The COVID-19 pandemic has greatly impacted the transportation sector. Ridership losses, cautionary decreases in transit service delivery, and reduced parking and traffic enforcement mark the main areas in which the COVID-19 crisis has adversely impacted revenue streams generated by transit, parking and traffic operations. During this crisis, transportation has been critical to maintaining mobility for essential workers and ensuring access to essential services, while prioritizing the health of transportation workers and the public. Transportation will continue to be just as critical during the recovery ahead, as workers and visitors return, children go back to schools, and cultural activities resume. Transportation infrastructure will be a driver of the regional recovery and the backbone of the city’s social fabric. It is critical that the City provide high quality transportation service for all, including neighborhoods with high populations of people of color and low-income people, as well as youth, older adults, and people with disabilities.

This chapter describes projects and programs to improve San Francisco’s transportation network, mitigate losses due to the COVID-19 crises, and build resilience in the sector over the next 10 years. It is critical that San Francisco takes care of our transportation needs so that the city remains accessible and livable for generations to come.

Overview

San Francisco sits at the center of the Bay Area, both geographically and economically. To support residents, workers, and visitors, the City maintains a vast system of transportation infrastructure ranging from cross-town buses and Muni trains to the San Francisco International Airport, one of the busiest in the United States prior to COVID-19. Regional transportation assets like BART and Caltrain also run through the city, connecting San Francisco to the surrounding counties.

While addressing the operational challenges brought on by the COVID-19 pandemic, San Francisco is also in the midst of implementing several major capital initiatives that will improve its transportation system for years to come. From the Salesforce Transit Center downtown, Better Market Street, bus rapid transit (BRT) lines on major thoroughfares, and terminal expansions at the Airport, San Francisco is adding capacity that will dramatically improve mobility. These projects will expand the transit network and provide benefits throughout the city, and are estimated to create nearly 58,000 jobs over the next 10 years.

San Francisco Municipal Transportation Agency

The San Francisco Municipal Transportation Agency (SFMTA) manages all City-owned ground transportation infrastructure. Related operations include running the San Francisco Municipal Railway (Muni), managing parking and traffic, facilitating bicycling and walking, regulating taxis, and planning and implementing strategic community-based projects to improve the transportation network and prepare for the future.

The SFMTA has a number of short-term and long-term processes in place to identify and prioritize its capital projects. Once every two years the SFMTA develops its own fiscally unconstrained Capital Plan, last published in 2019, to identify needs for projects and programs over the next 20 years. This Capital Plan is overseen by the Transportation Capital Committee, which is comprised of representatives from all the agency’s functional divisions. The plan identifies the agency’s capital investment needs and establishes priority investments.

Over the next 10 years, the SFMTA’s total capital need is approximately $4.8 billion.

This City-wide Capital Plan summarizes SFMTA’s capital needs at a high level. For a detailed description of SFMTA’s capital projects, please see the SFMTA’s published plans at SFMTA Reports and Documents. 

San Francisco International Airport

Owned by the City and County of San Francisco, and located within unincorporated San Mateo County, the San Francisco International Airport (SFO) manages a large and diverse infrastructure portfolio that includes four runways, 91 operational gates, and four terminals that total 4.4 million square feet. It also oversees 32 miles of roadways, six parking garages, the AirTrain transit system, a rental car facility, a new 351-room hotel, leased cargo and maintenance facilities, a waste treatment plant, and more than 274 miles of pipelines, ducts, power, and pump stations for water, sewage, storm drainage, industrial waste, and gas, in addition to electrical and telecommunications distribution systems.

To help manage its assets, the Airport previously maintained a five-year and a 10-year Capital Plan. The Airport currently reports and tracks its capital spending against an adopted capital improvement plan (CIP), currently totaling $7.8 billion. A major objective of the Airport’s current Capital Plan is to meet increased infrastructure demands driven by historic levels of passenger growth. Prior to COVID-19, the Airport was ranked the fifth most active airport in the United States in terms of overall origin and destination passengers and the seventh most active airport in the United States in terms of domestic origin and destination passengers, according to Fiscal Year 2018-19 U.S. Department of Transportation statistics. The Airport accounted for approximately 66.7% of the total air passenger traffic at the three San Francisco Bay Area airports during Fiscal Year 2018-19. The Airport has also prepared a long-range planning document (ADP) that is currently undergoing environmental review. The ADP includes proposed projects to be implemented as demand warrants to support growth to 71.1 million annual passengers. In FY 2018-19, the Airport reached 58 million annual passengers.  As the Airport and the general economy returns to pre-COVID levels and as traffic rebounds, projects in the ADP could be considered for inclusion in the CIP.

The Airport’s Capital Plan identifies $1.4 billion in infrastructure needs through FY2031. This chapter contains a high-level summary of the Airport’s capital needs. For a more in-depth description of the Airport’s capital projects, please see the five-year and 10-year Capital Plans published on the Airport’s website: flysfo.com.

Port of San Francisco

The Port of San Francisco is the hub of the local and regional commuter, special event, and tourist water transportation network in the Bay Area. The Port constructs and provides land and water areas to support ferries and excursion vessels that are operated by external agencies such as the Water Emergency Transit Agency (WETA) and the Golden Gate Bridge and Ferry District. Though it does not operate any such vessels itself, the Port works in close collaboration with these critical agencies. The expansion of both publicly and privately operated ferries has helped to address congestion in the Bay Area while continuing to build an emergency response network. Prior to COVID-19, WETA ridership had grown significantly and is expected to continue to grow again in the coming years.

San Francisco County Transportation Authority

The San Francisco County Transportation Authority (SFCTA) is the sub-regional transportation planning and programming agency for the City. The SFCTA is responsible for the City’s long-range transportation planning, coordinating with federal, state, and other local transportation agencies. In this capacity, SFCTA helps to plan, fund, and deliver improvements for San Francisco's roadway and public transportation networks. The SFCTA is funded through a combination of local funds including San Francisco Sales Tax revenues and Vehicle Registration Fees, as well as grants from the State of California and federal government.

Peninsula Corridor Joint Powers Board (Caltrain)

San Francisco, along with San Mateo and Santa Clara counties, is a representative member of the Peninsula Corridor Joint Powers Board (JPB), which operates and maintains Caltrain, one of the oldest commuter rail services in Northern California. Caltrain provides peak and off-peak connections along the Peninsula rail corridor between San Francisco and Gilroy. Per the 1996 Joint Powers Agreement, funding for system-wide capital improvements are shared equally among the three member counties, while local improvements are, in general, borne by the county in which the improvements are located. More information on the JPB’s future projects and programs can be found at Caltrain Project Plans. 

Transbay Joint Powers Authority

The Transbay Joint Powers Authority (TJPA) was created to manage the financing, design, development, construction, and operation of the Transbay Program, including the Salesforce Transit Center and the Caltrain Downtown Extension (DTX). Phase One of the Transbay Program included constructing the Salesforce Transit Center, a $2.2 billion modern transit hub that replaces the seismically deficient terminal in downtown San Francisco. Now complete, the Salesforce Transit Center helps to unify a fractured regional transportation network by connecting eight Bay Area counties and the State of California through 11 transit systems: AC Transit, BART, Caltrain, Golden Gate Transit, Greyhound, Muni, SamTrans, WestCAT Lynx, Amtrak, Paratransit, and the future California High-Speed Rail. The project is split in two phases. Phase 1 saw the opening of the Salesforce Transit Center in August 2018; Phase 2 encompasses construction of the Caltrain Downtown Extension, a new Fourth and Townsend Street Caltrain station, the Transit Center’s train station and pedestrian connection to BART and Muni, and a new intercity bus facility.

A related effort overseen by San Francisco’s Office of Community Investment and Infrastructure will create a new mixed-use transit-oriented neighborhood surrounding the Transit Center. For more information on this neighborhood development, please refer to the Office of Community Infrastructure and Investment Section in the Economic and Neighborhood Development chapter of this Plan.

Bay Area Rapid Transit

Since its opening in 1972, Bay Area Rapid Transit (BART) has become essential to the mobility, economy, and livability of the Bay Area for riders and non-riders alike. Prior to the COVID-19 crisis, BART carried 440,000 passengers on a typical weekday. Pre-COVID forecasts suggest that demand for BART will increase as the region grows, with 600,000 daily riders projected to use BART by 2040. However, after 48 years of service, BART faces major challenges including aging infrastructure, crowded conditions for riders, and revenue declines due to COVID-19.

BART improvements within San Francisco will include ADA compliance projects to improve accessibility, station modernizations, and escalator replacements.

With San Francisco’s population and economy growing, the local transportation infrastructure has never been more important to the city’s well-being. Without smooth operations and adequate capacity, residents, workers, and visitors would be unable to access jobs, schools, or the cultural institutions that make San Francisco special. Transportation is also a driver of regional and national competitiveness, allowing San Francisco to propel innovation and attract tourism. It is critical that San Francisco take care of our transportation needs so that the city remains accessible and livable for generations to come. The myriad transportation offerings that run to and through San Francisco connect neighborhoods and ensure that the city is accessible to locals, commuters, and travelers alike. This chapter describes projects and programs that will improve San Francisco’s transportation network over the next 10 years.

San Francisco sits at the center of the Bay Area, both geographically and economically. To support residents, workers, and visitors, the City must maintain a vast system of transportation infrastructure ranging from cross-town buses and Muni trains to the San Francisco International Airport, one of the busiest in the United States. Regional transportation assets like BART and Caltrain also run through the city, connecting San Francisco to the surrounding counties.

San Francisco is currently in the midst of implementing several major initiatives that will improve its transportation system. From the Salesforce Transit Center downtown, bus rapid transit lines on major thoroughfares, and terminal expansions at the Airport, San Francisco is adding capacity that will dramatically improve mobility for residents. These projects will expand the transit network and provide benefits throughout the city.

San Francisco Municipal Transportation Agency

The San Francisco Municipal Transportation Agency manages all City-owned ground transportation infrastructure. Related operations include running the San Francisco Municipal Railway (Muni), managing parking and traffic, facilitating bicycling and walking, regulating taxis, and delivering community-based projects to improve the transportation network and prepare for the future.

The SFMTA has a number of short-term and long-term processes in place to identify and prioritize its capital projects. Once every two years the SFMTA develops its own fiscally unconstrained Capital Plan, last published in 2017, to identify needs for projects and programs over the next 20 years. The SFMTA Capital Plan is overseen by the Transportation Capital Committee, which is comprised of representatives from all the agency’s functional divisions. This identifies the agency’s capital investment needs and establishes priority investments.

Over the next 10 years, the SFMTA’s planned capital projects total $4.9 billion. Even with that substantial planned investment, approximately $4.6 billion in need is deferred.

This City-wide Capital Plan summarizes SFMTA’s capital needs at a high level. For a detailed description of SFMTA’s capital projects, please see the SFMTA’s published plans at https://www.sfmta.com/reports-documents.

San Francisco International Airport

Owned by the City and County of San Francisco, and located within unincorporated San Mateo County, the San Francisco International Airport manages a large and diverse infrastructure portfolio that includes four runways, 91 operational gates, and four terminals that total 4.4 million square feet. It also oversees 32 miles of roadways, five parking garages, the AirTrain transit system, a rental car facility, leased cargo and maintenance facilities, a waste treatment plant, and more than 274 miles of pipelines, ducts, power, and pump stations for water, sewage, storm drainage,
industrial waste, and gas, in addition to electrical and telecommunications distribution systems.

To help manage its assets, the Airport maintains a five-year and a 10-year Capital Plan, which are generally updated annually. A major objective of Airport’s current Capital Plan is to meet increased infrastructure demands driven by historic levels of passenger growth. In FY2018 the Airport continued its long run of passenger growth, reaching a record 57.8 million passengers – a 7.2% increase over the prior year and a 58% increase since FY2009.

The Airport’s Capital Plan identifies $2.9 billion in planned infrastructure projects through FY2029. This chapter contains a high-level summary of the Airport’s capital programs. For a more in-depth description of the Airport’s capital projects, please see the five-year and 10-year Capital Plans published on the Airport’s website: http://www.flysfo.com/about-sfo.

Port of San Francisco

The Port of San Francisco is the hub of the local and regional commuter, special event, and tourist water transportation network in the Bay Area. The Port constructs and provides land and water areas to support ferries and excursion vessels that are operated by external agencies such as the Water Emergency Transit Agency (WETA) and the Golden Gate Bridge and Ferry District. Though it does not operate any vessels itself, the Port works in close collaboration with these critical agencies. The expansion of both publicly and privately operated ferries has helped to address congestion in the Bay Area while continuing to build an emergency response network. WETA ridership has grown by 78% since 2012 and is expected to continue to grow in the coming years.

San Francisco County Transportation Authority

The San Francisco County Transportation Authority is the sub-regional transportation planning and programming agency for the City. The SFCTA is responsible for the City’s long-range transportation planning, coordinating with federal, state, and other local transportation agencies. In this capacity, SFCTA helps to plan, fund, and deliver improvements for San Francisco's roadway and public transportation networks. The SFCTA is funded through a combination of local funds including San Francisco Sales Tax revenues and Vehicle Registration Fees, as well as grants from the State of California and federal government.

Peninsula Corridor Joint Powers Board (Caltrain)

San Francisco, along with San Mateo and Santa Clara counties, is a representative member of the Peninsula Corridor Joint Powers Board (JPB), which operates and maintains Caltrain, one of the oldest commuter rail services in Northern California. Caltrain provides peak and off-peak connections along the Peninsula rail corridor between San Francisco and Gilroy. Per the 1996 Joint Powers Agreement, funding for system-wide capital improvements are shared equally among the three member counties, while local improvements are, in general, borne by the county in which the improvements are located. More information on the JPB’s future projects and programs can be found at http://www.caltrain.com/projectsplans.html.

Transbay Joint Powers Authority

The Transbay Joint Powers Authority was created to manage the financing, design, development, construction, and operation of the Transbay Program, including the Salesforce Transit Center and the Caltrain Downtown Extension (DTX). Phase One of the Transbay Program includes constructing the Salesforce Transit Center, a $2.3 billion modern transit hub that replaces the seismically deficient terminal in downtown San Francisco. When completed, the Salesforce Transit Center will help unify a fractured regional transportation network by connecting eight Bay Area counties and the State of California through 11 transit systems: AC Transit, BART, Caltrain, Golden Gate Transit, Greyhound, Muni, SamTrans, WestCAT Lynx, Amtrak, Paratransit, and the future California High-Speed Rail. The project is split in two phases. Phase 1 saw the opening of the Salesforce Transit Center in August 2018; Phase 2 encompasses construction of the Caltrain Downtown Extension, a new Fourth and Townsend Street Caltrain station, the Transit Center’s train station and pedestrian connection to BART and Muni, and a new intercity bus facility.

A related effort overseen by San Francisco’s Office of Community Investment and Infrastructure will create a new mixed-use transit-oriented neighborhood surrounding the Transit Center. For more information on this neighborhood development, please refer to the Office of Community Infrastructure and Investment Section in the Economic and Neighborhood Development chapter of this Plan.

Bay Area Rapid Transit

Since its opening in 1972, Bay Area Rapid Transit has become essential to the mobility, economy, and livability of the Bay Area for riders and non-riders alike. BART currently carries 440,000 passengers on a typical weekday. Forecasts suggest that demand for BART will increase as the region grows, with 600,000 daily riders projected to use BART by 2040. However, after 46 years of service, BART faces major challenges including aging infrastructure and crowded conditions for riders.

BART improvements within San Francisco will include repairing water damage in the Market Street tunnels, ADA compliance to improve accessibility, station modernizations, escalator replacements, and adding protective canopies downtown.

With San Francisco’s population and economy growing, the local transportation infrastructure has never been more important to the city’s well-being. Without smooth operations and adequate capacity, residents, workers, and visitors would be unable to access jobs, schools, or the cultural institutions that make San Francisco special. Transportation is also a driver of regional and national competitiveness, allowing San Francisco to maintain our status as a global leader of innovation and a renowned destination for tourism. For decades, San Francisco has cultivated a reputation for economic vitality, unique cultural offerings, and a progressive spirit. It is critical that San Francisco take care of our transportation needs so that the city remains accessible and livable for generations to come. The myriad transportation offerings that run to and through San Francisco connect neighborhoods and ensure that the city is accessible to locals, commuters, and travelers alike. This chapter describes projects and programs that will improve San Francisco’s transportation network over the next 10 years.

San Francisco sits at the center of the Bay Area, both geographically and economically. To support our residents, workers, and visitors, the City must maintain a vast system of transportation infrastructure ranging from crosstown buses and Muni trains to the San Francisco International Airport, one of the busiest in the United States. Regional transportation assets like BART and Caltrain also run through the city, connecting San Francisco to the surrounding counties.

San Francisco is currently in the midst of implementing several major initiatives that will improve its transportation system. From the Transbay Transit Center downtown, Bus Rapid Transit lines on major thoroughfares, and terminal expansions at the Airport, San Francisco is adding capacity that will dramatically improve mobility for residents. The projects being pursued will expand the City’s transit network and provide benefits for generations to come.

San Francisco Municipal Transportation Agency

The San Francisco Municipal Transportation Agency manages all City-owned ground transportation infrastructure in the city. Related operations include running the San Francisco Municipal Railway (Muni), managing parking and traffic, facilitating bicycling and walking, regulating taxis, and planning and implementing strategic community-based projects to improve the transportation network and prepare for the future.

The SFMTA has a number of short-term and long-term processes in place to identify and prioritize its capital projects. Once every two years the SFMTA develops its own fiscally unconstrained Capital Plan, last published in 2015, to identify needs for projects and programs over the next 20 years. This Capital Plan is overseen by the Transportation Capital Committee, which is comprised of representatives from all the agency’s functional divisions. This identifies the agency’s capital investment needs and establishes priority investments.

Over the next 10 years, the SFMTA’s total capital need is $6.1 billion.

This document summarizes SFMTA’s capital needs at a high level. For a detailed description of SFMTA’s capital projects, please see the SFMTA’s published plans at https://www.sfmta. com/about-sfmta/reports.

San Francisco International Airport

Owned by the City and County of San Francisco, and located within unincorporated San Mateo County, the San Francisco International Airport (SFO) manages a large and diverse infrastructure portfolio that includes four runways, 91 operational gates, and four terminals that total 4.4 million square feet. It also oversees 32 miles of roadways, five parking garages, the AirTrain transit system, a rental car facility, leased cargo and maintenance facilities, a waste treatment plant, and more than 274 miles of pipelines, ducts, power, and pump stations for water, sewage, storm drainage, industrial waste, and gas, in addition to electrical, and telecommunications distribution systems. 

To help manage its assets, the Airport maintains a five-year and a 10-year Capital Plan, which is generally updated annually. A major objective of Airport’s current Capital Plan is to meet increased infrastructure demands driven by historic levels of passenger growth. In FY2016 the Airport continued its long run of passenger growth, reaching a record 51.4 million passengers – a seven percent increase over the prior year and a 56% increase since FY2007. 

The Airport’s Capital Plan identifies $5.7 billion in need over the next five years, and $6.1 billion over the next 10 years. This chapter contains a high level summary of the Airport’s capital needs. For a more in-depth description of the Airport’s capital projects, please see the five-year and 10-year Capital Plans published on the Airport’s website: http://www.flysfo.com/about-sfo.

San Francisco County Transportation Authority

The San Francisco County Transportation Authority (SFCTA) is the sub-regional transportation planning and programming agency for the City. The SFCTA is responsible for the City’s long-range transportation planning, coordinating with federal, state, and other local transportation agencies. In this capacity SFCTA helps to plan, fund, and deliver improvements for San Francisco's roadway and public transportation networks. 

In early 2017, the SFCTA will adopt a minor update of the 2013 San Francisco Transportation Plan (SFTP), the long-range countywide transportation plan. The SFTP evaluates existing needs and growth trends to develop updated transportation sector policies, strategies, and investment priorities for sustainable growth. 

The full SFTP can be found at http://www.sfcta.org. 

Connect SF (http://connectsf.org/) is a multi-agency collaboration process that builds on the SFTP and other local planning efforts to develop an effective, equitable, and sustainable transportation system for our future. It will develop a long-range vision that will guide plans for the City and our transportation system.

Peninsula Corridor Joint Powers Board (Caltrain)

San Francisco, along with San Mateo and Santa Clara counties, is a representative member of the Peninsula Corridor Joint Powers Board (JPB), which operates and maintains Caltrain, one of the oldest commuter rail services in Northern California. Caltrain provides peak and off-peak connections along the Peninsula rail corridor between San Francisco and Gilroy. Per the 1996 Joint Powers Agreement, funding for system-wide capital improvements are shared equally among the three member counties, while local improvements are, in general, borne by the county in which the improvements are located. 

The total estimated cost for the 10- year JPB Capital Improvement Program is $3.3 billion, as projected in its most recent Short Range Transit Plan, covering FY2015 through FY2024. This includes basic maintenance, renewal costs, and major enhancements. An example of such enhancements are the conversion to an electrified system and installation of a federally mandated Positive Train Control system. 

The Short Range Transit Plan can be found at www.caltrain.com.

Transbay Joint Powers Authority

The Transbay Joint Powers Authority (TJPA) was created to manage all matters concerning the financing, design, development, construction, and operation of the Transbay Program, including the Transbay Transit Center. The Transbay Transit Center will help unify a fractured regional transportation network by connecting eight Bay Area counties and the State of California through 11 transit systems: AC Transit, BART, Caltrain, Golden Gate Transit, Greyhound, Muni, SamTrans, WestCAT Lynx, Amtrak, Paratransit, and the future California High-Speed Rail. The Program’s total capital cost is estimated at approximately $6.2 billion. It is funded through a mix of local, regional, state and federal funds.

A related project overseen by the City’s Office of Community Investment and Infrastructure will create a new mixed-use transit-oriented neighborhood surrounding the new Transit Center. For more information on Transbay neighborhood development, please refer to the Office of Community Infrastructure and Investment Section within the Economic and Neighborhood Development Chapter of this Plan.

Bay Area Rapid Transit

Since its opening in 1972, Bay Area Rapid Transit (BART) has become essential to the mobility, economy, and livability of the Bay Area for riders and non-riders alike. BART currently carries 440,000 passengers on a typical weekday. Forecasts suggest that demand for BART will increase as the region grows, with 600,000 daily riders projected to use BART by 2040. However, after 44 years of service to the region, BART faces major challenges including aging infrastructure and crowded conditions for riders. Without addressing these issues BART will not be able function effectively, putting the Bay Area’s economic vitality and quality of life at stake. 

In November 2016 voters approved Measure RR which authorized BART to issue $3.5 billion in G.O. Bonds to fund projects throughout its system. The Bond was put to the voters in three counties: San Francisco, Alameda, and Contra Costa. Its projects include replacement of 90 miles of track, renew mechanical infrastructure, repair of tunnels and stations, and many other initiatives that will modernize the BART system. The result of the Bond’s program will be shorter wait times, fewer delays, and more comfortable rides for passengers. 

Riders to, from, and through San Francisco will benefit from overall system improvements. These improvements will include repairing water damage in the Market Street tunnels, ADA compliance to improve accessibility, and adding protective canopies to all downtown stations. BART will begin Phase 1 of its Powell Street and Balboa Park modernizations to improve capacity, aesthetics, and security. Balboa Park is also receiving the Eastside Connection Project, which will improve access to the station. 

BART's investments in San Francisco will establish its stations as inviting public spaces and provide reliable service to its riders. 

The Recreation, Culture, and Education Service Area encompasses much of what makes San Francisco a rich and vibrant city. San Francisco’s park system has more accessible green space than any other city in the United States. Libraries provide free access to information as well as diverse literary and educational programs, and they are increasingly relied upon to meet San Francisco’s resilience challenges. Our City museums and cultural centers showcase wide-ranging exhibitions and complement the City’s own civic art collection of over 4,000 objects and monuments. An essential part of the City’s social and cultural fabric is our student body; each year San Francisco Unified School District serves 57,000 students, and City College of San Francisco serves 35,000 full-time equivalent students. These educational institutions serve a significant share of San Francisco’s young people of color.

Many of these San Francisco institutions have experienced significant disruptions as a result of COVID-19. Restoring their operations in a resilient and equitable way may require capital support, especially as revenues from regular operations are reduced due to the pandemic.

Overview

San Francisco’s recreational, cultural, and educational resources drive our quality of life and underlie our shared experience as a city. Keeping these institutions in a state of good repair is a priority. Within each subsection of this chapter, projects are discussed in the following order: Parks (REC), Cultural Facilities (AAM, ARTS, FAM, SCI, WAR), and Educational Institutions (LIB, CCSF, SFUSD). The projects for this service area are estimated to create over 18,000 jobs over the next 10 years.

Parks

The Recreation and Parks Department administers more than 225 parks, playgrounds, and open spaces, including two outside the city limits. The system includes 27 recreation centers, nine swimming pools, five golf courses, and numerous sports venues. The Department’s responsibilities also include the Marina Yacht Harbor, the San Francisco Zoo, Camp Mather, and the Lake Merced Complex.

In June 2016 the voters of San Francisco approved Proposition B, a set-aside of the City’s General Fund for the Recreation and Parks Department to fund ongoing and one-time capital needs. These General Fund dollars complement the voter-approved Neighborhood Parks and Open Space General Obligation Bonds program, passed in 2008, 2012, and 2020, and anticipated to continue in this Plan. Park facilities are also supported by the Open Space Fund, a property tax earmark approved by voters in 2000. With these resources, the Recreation and Parks Department aims to continue making progress against the department’s substantial deferred maintenance needs and to address increasing demands on the system due to population growth.

The Recreation and Parks Department recently updated its asset lifecycle management tool and its associated calculation of deferred maintenance. The Department has continued its planning to address the development, renovation, replacement, and maintenance of capital assets, as well as the acquisition of real property. An annual capital plan is a requirement of Proposition B and includes an equity analysis using Recreation and Parks Commission-adopted metrics.

Cultural Facilities

With some of the oldest and newest construction in the City’s capital portfolio, San Francisco’s cultural institutions present a wide range of needs. From repairing the roofs of the Legion of Honor and Opera House, to protecting the de Young and Academy of Sciences against the foggy conditions in Golden Gate Park, to restoring the publicly held Civic Art Collection, the City’s arts agencies have distinct capital needs.

In November 2018, San Francisco voters approved Proposition E, which allocates 1.5% of the base hotel tax to arts and cultural purposes through the Hotel Room Tax Fund. Proposition E will provide a set-aside for various arts and cultural services including grants and a cultural equity endowment. Arts-related capital projects such as those at the City’s cultural centers would be an eligible use for the Arts Commission from this source which is expected to continue with an annual baseline
for capital.

Educational Institutions

Having recently completed the $196 million Branch Library Improvement Program, the San Francisco Public Library is in the process of planning the renovation of three outstanding branches. The Library’s mission is evolving as access to technology and the provision of services take on a greater role in providing services to the public. The City is committed to serving local communities’ needs into the future and continues to program our spaces accordingly.

Although City College of San Francisco and the San Francisco Unified District do not fall within the City’s administrative purview, descriptions of their capital priorities are included here to provide a comprehensive look at the infrastructure needs in this Service Area. San Francisco voters approved an $845 million bond for CCSF in 2020, and SFUSD is planning for a 2022 G.O. Bond ballot measure.

The Recreation, Culture, and Education Service Area encompasses much of what makes San Francisco a rich and vibrant city. San Francisco’s park system has more accessible green space than any other municipality in the United States. Dog play spaces, golf courses, urban trails, natural areas, and urban agriculture are all part of the City’s recreational portfolio. The Main Library and 27 branch libraries provide free and equal access to information as well as diverse literary and educational programs. Our City museums—the Asian Art Museum, de Young Museum, Legion of Honor, and Academy of Sciences—showcase wide-ranging exhibitions and complement the City’s own civic art collection of over 4,000 objects and monuments. An essential part of the City’s social and cultural fabric is our student body; each year San Francisco Unified School District serves 57,000 students, and City College of San Francisco serves 35,000 full-time equivalent students. These San Francisco institutions honor the City's cultural histories while embracing the promise of the future.

San Francisco’s recreational, cultural, and educational resources drive our quality of life and underlie our shared experience as a city. Keeping these institutions in a state of good repair is a priority. Within each subsection of this chapter, projects are discussed in the following order: Parks (REC), Cultural Facilities (AAM, ARTS, FAM, SCI, WAR), and Educational Institutions (LIB, CCSF, SFUSD).

Parks

The Recreation and Parks Department administers more than 225 parks, playgrounds, and open spaces, including two outside the city limits. The system includes 27 recreation centers, nine swimming pools, five golf courses, and numerous sports venues. The Department’s responsibilities also include the Marina Yacht Harbor, the San Francisco Zoo, Camp Mather, and the Lake Merced Complex.
In June 2016 the voters of San Francisco approved Proposition B, a set-aside of the City’s General Fund for the Recreation and Parks Department to fund ongoing and one-time capital needs. These General Fund dollars complement the voter-approved Neighborhood Parks and Open Space General Obligation Bonds program, passed in 2008 and 2012 and anticipated to continue in this Plan. Park facilities are also supported by the Open Space Fund, a property tax earmark approved by voters in 2000. With these resources, the Recreation and Parks Department aims to continue making progress against the department’s substantial deferred maintenance needs and to address increasing demands on the system due to population growth.

The Recreation and Parks Department recently set out to update its calculation of deferred maintenance with a new asset lifecycle management tool. The new system will replace COMET, which has not been updated in several years. The Department has continued its planning to address the development, renovation, replacement, and maintenance of capital assets, as well as the acquisition of real property. An annual capital plan is a requirement of Proposition B and includes an equity analysis using Recreation and Parks Commission-adopted metrics.

Cultural Facilities

With some of the oldest and newest construction in the City’s capital portfolio, San Francisco’s cultural institutions present a wide range of needs. From repairing the roofs of the Legion of Honor and Opera House, to protecting the de Young and Academy of Sciences against the foggy conditions in Golden Gate Park, to restoring the publicly held Civic Art Collection, the City’s arts agencies have distinct
capital needs.

In November 2018 San Francisco voters approved Proposition E, which allocates 1.5% of the base hotel tax to arts and cultural purposes through the Hotel Room Tax Fund. Proposition E will provide a set-aside for various arts and cultural services including grants and a cultural equity endowment. Arts-related capital projects such as those at the City’s cultural centers would be an eligible use for the Arts Commission from this source which is expected to continue with an annual baseline for capital.

Educational Institutions

Having recently completed the $196 million Branch Library Improvement Program, the San Francisco Public Library is in the process of planning the renovation of three outstanding branches. The Library’s mission is evolving as access to technology and
the provision of services take on a greater role in providing services to the public. The City is committed to serving local communities’ needs into the future and continues to program our spaces accordingly.

Although City College of San Francisco and the San Francisco Unified District do not fall within the City’s administrative purview, descriptions of their capital priorities are included here to provide a comprehensive look at the infrastructure needs in this Service Area. CCSF is planning for a G.O. Bond ballot measure as early as November 2019, and SFUSD is planning for a 2022 G.O. Bond ballot measure.

The Recreation, Culture and Education Service Area encompasses much of what makes San Francisco a rich and vibrant city. San Francisco’s park system has more green space than any other municipality in the United States. Dog play spaces, golf courses, urban trails, natural areas, and urban agriculture are all part of the City’s recreational portfolio. Our Main Library and 27 branch libraries provide free and equal access to information as well as diverse literary and educational programs. Our City museums—the Asian Art Museum, de Young Museum, Legion of Honor, and Academy of Sciences—showcase wide-ranging exhibitions and complement the City’s own civic art collection of over 4,000 objects and monuments. An essential part of the City’s social and cultural fabric is our student body; each year San Francisco Unified School District serves 57,000 students, and City College of San Francisco serves 35,000 full-time equivalent students. These San Francisco institutions honor the City's cultural histories while embracing the promise of the future.

San Francisco’s recreational, cultural, and educational resources drive our quality of life and underlie our shared experience as a city. Keeping these institutions in a state of good repair is a priority. Within each subsection of this chapter, projects are discussed in the following order: Parks (REC), Cultural Facilities (AAM, ARTS, FAM, SCI, WAR), and Educational Institutions (LIB, CCSF, SFUSD).

Parks

In June 2016 the voters of San Francisco approved Proposition B, a set-aside of the City’s General Fund for the Recreation and Parks Department to fund ongoing and one-time capital needs. These General Fund dollars complement the voter-approved Neighborhood Parks and Open Space General Obligation Bonds program, passed in 2008 and 2012 and anticipated to continue in this Plan. Park facilities are also supported by the Open Space Fund, a property tax earmark approved by voters in 2000. With these resources, the Recreation and Parks Department aims to continue making progress against the department’s substantial deferred maintenance needs and to address increasing demands on the system due to population growth. 

The Recreation and Parks Department recently set out to update its calculation of deferred maintenance through the use of a new asset lifecycle management tool. The new system will replace COMET, which has not been updated in several years. This year, the Recreation and Parks Department has prepared its first annual five-year capital plan to address the development, renovation, replacement, and maintenance of capital assets, as well as the acquisition of real property. This annual capital plan is a requirement of Proposition B and includes an equity analysis using Recreation and Parks Commission-adopted metrics.

Cultural Facilities

With some of the oldest and some of the newest construction in the City’s capital portfolio, San Francisco’s cultural institutions present a wide range of needs. From repairing the roofs of the Legion of Honor and Opera House, to protecting the deYoung and Academy of Sciences against the foggy conditions in Golden Gate Park, to restoring the publicly held Civic Art Collection, the City’s arts agencies have distinct capital priorities.

Educational Institutions

Having recently completed the $196 million Branch Library Improvement Program, the San Francisco Public Library is in the process of planning the renovation of three outstanding branches. The Library’s mission is evolving as access to technology and the provision of services take on a greater role in providing services to the public. The City is committed to serving local communities’ needs into the future and continues to program our spaces accordingly.

Although City College of San Francisco (CCSF) and the San Francisco Unified District (SFUSD) do not fall within the City’s administrative purview, descriptions of their capital priorities are included here to provide a comprehensive look at the infrastructure needs in this Service Area.

The Public Safety Service Area addresses the capital needs of the agencies working to keep San Franciscans safe and secure in their daily lives and in response to emergency situations. From fire and police stations, to jails and juvenile detention facilities, to evidence storage and forensic lab space, public safety facilities have unique needs for their highly specialized operations.

Addressing the capital needs of the City’s public safety departments is one of the challenges of the Capital Plan. As the City works towards a more progressive justice system, there is an obligation to maintain the infrastructure that enables departments to do their jobs safely day in and day out. To ensure the security and well-being of San Francisco’s visitors and residents, including those in custody, the City must devote resources to provide resilient facilities for our public safety agencies.

Overview

Neighborhood fire stations, district police stations, County jails, and administrative office space are all important for the public safety operations throughout the city. Space needs for storage, training, and equipment unique to public safety operations are also part of the picture. The projects for this service area are estimated to create over 5,600 jobs over the next 10 years.

ESER G.O. Bond Program

Since June 2010, and again in 2014 and 2020, the voters of San Francisco have enthusiastically supported the Earthquake Safety and Emergency Response (ESER) General Obligation Bond Program at the ballot box. That program has provided funding for essential public safety projects large and small, from a new public safety headquarters and crime lab to focused scope projects in neighborhood fire and district police stations. The ESER Program is projected to continue in the Plan, with a bond planned for the ballot in 2027. The City will aim to prioritize projects that address the greatest seismic and other risks in the publicly owned capital portfolio and those most essential for public safety operations, including training.

One of the major programs in ESER is the Emergency Firefighting Water System (EFWS), sometimes referred to as the Auxiliary Water Supply System. EFWS is an independent high-pressure water supply system dedicated to fire protection. It was installed in 1913 in response to the Great Earthquake and Fire of 1906 and is owned and operated by the San Francisco Public Utilities Commission. The system consists of core facilities, pipelines, tunnels, and cisterns, which provide the ability to deliver water at extremely high pressures in defense against large multi-alarm fires, specifically those that could occur after a large earthquake when the domestic water system may be impacted.

With previous ESER funds critical reliability upgrades have been made at three primary water sources and two pump stations, the system's pipelines and tunnels have been improved and expanded, and 30 new cisterns have been constructed.

Future ESER funds will focus on improving EFWS capabilities in the city's western neighborhoods. A 2013 SFPUC analysis studied how to maximize the likelihood the EFWS would effectively provide the necessary firefighting capabilities after a major earthquake. In 2018, the SFPUC completed a study analyzing options for high-pressure fire suppression for the Richmond, Seacliff, and Sunset districts. These studies serve as the basis for future EFWS project selection and implementation.

To better cover the west side of the city with pressurized water for emergency firefighting purposes, San Francisco envisions a Potable Emergency Firefighting Water System consisting of over 14 miles of new, seismically resilient high-pressure pipelines. The looping pipeline network would be supplied with four water sources at two strategic locations with delivery expected in two phases. A combination of SFPUC water revenue bonds and ESER 2020 G.O. Bonds are planned to fund Phase 1 and ESER 2027 G.O. Bonds expected to support Phase 2.

Justice Facilities Improvement Program

The Justice Facilities Improvement Program (JFIP) was originally developed in 2008 to initiate the closure of the Hall of Justice (HOJ) and the construction of replacement spaces for the departments that occupied that facility.

The HOJ stands seven stories tall and was originally built in 1958. It contains the County courthouse, office space for various justice-related staff, and two County jails. The jails on its two top floors (County Jails #3 and #4) were built on an a 1950’s era model of corrections with linear jails and limited program space. County Jail #3 and County Jail #4 are now closed. However, the County Jail #4 kitchen, laundry, and some of the building’s core subsystems support operations at the nearby County Jails #1 and #2. A major earthquake would likely generate significant damage to the building and render it unusable.

As San Francisco is responsible for the lives of the persons in custody and the staff who work with them, closing the dangerous HOJ facility has been a top priority of the City’s Capital Plan since its inception and remains so.

Since the last Capital Plan, the City has taken several significant steps towards the closure of the HOJ. To vacate the building as expediently as possible per direction from the City Administrator, staff from the District Attorney, Police, and Adult Probation departments are relocating to leased space. Their exit, combined with the recent relocation of the Office of the County Medical Examiner in 2017, and the forthcoming Traffic Company and Forensic Services Division building departure in 2021, both funded by ESER 2014, will leave reduced operations in the building.  Capital investments to end the reliance of the downtown justice campus on the HOJ have also begun. The renewal of the County Jail #2 kitchen was funded with General Fund as part of the Capital Budget in FY2019. Certificates of Participation (COPs) were authorized to acquire and prepare a new facility for the Police’s Evidence and Property operations. COPs also enabled the purchase of parcels across Harriet Street from the HOJ.

With the acquisition of the Harriet Street parcels, the City is now in a position to build a facility for the City staff remaining in the HOJ and return some of those relocated to leased space to a City-owned facility. This approach will not require the previously envisioned demolition of the Bryant Street wing of the existing building to make way for a new state courts building, which was going to be costly and logistically difficult. The demolition needed, now that the City holds contiguous parcels on Harriet Street, is much more straightforward than the demolition of the Bryant Street wing, and it can be delivered as part of the construction project on that site. General Fund allocations will support the planning for this future site in the short term.

Based on preliminary massing studies, the City plans to build a facility that can hold the City operations still in the HOJ, finally and permanently relocating nearly all City staff from the HOJ. For Police, the units for the future site include Investigations, ID/Fingerprinting, Muni Officers, and Project SAFE. For Sheriff, Warrants and Records, Prisoner Legal Services, and Transportation Operations would relocate. Both departments’ staff will need lockers and firearm storage for its sworn staff. The new facility could also hold the Adult Probation staff who have relocated to leased offices if that is the preferred policy direction.

The Courts are an important partner as the City plans the Justice Facilities Improvement Program. State capital funding for the Courts to support their relocation has been pulled due to budget constraints arising from the pandemic. Without State funding, the Courts are likely to remain in the east wing of the HOJ. Some Sheriff security staff will need to remain at the HOJ as long as the Courts operate from there. The City and Courts will need to work in close partnership once funding is in place for the Courts to relocate, and San Francisco will continue to advocate for resources to support this important need at the State level.

Master Planning

As San Francisco’s population quickly grows and density increases, greater demand is placed on the City’s public safety agencies and their facilities. The San Francisco Fire Department, Police Department, and Sheriff’s Department have all taken a close look at needs across their respective portfolios, and they have identified significant needs throughout.

Working in partnership with San Francisco Public Works, these public safety agencies have identified repair and renewal needs to keep their existing facilities in a state of good repair and ensure that each agency’s operational needs are met. They have also identified some sizable gaps between the current portfolio and their projected operational needs in the years ahead. For both SFFD and SFPD, additional stations may be needed if the City is to keep pace with the rapidly growing population in the Southeast.

The Juvenile Probation Department’s needs and facilities assessment began with a leading focus on Log Cabin Ranch, which closed in 2018. Given the reduced number of young people requiring detention in San Francisco, the City has embarked on a discussion exploring the broader juvenile detention system and alternatives to incarceration.

The Public Safety Service Area addresses the capital needs of the agencies working to keep San Franciscans safe and secure in their daily lives and in response to emergency situations. From fire and police stations, to jails and juvenile detention facilities, to evidence storage and forensic lab space, public safety facilities have unique needs for their highly specialized operations.

Addressing the capital needs of the City’s public safety departments is one of the primary challenges of the Capital Plan. As the City works towards a more progressive justice system, there is an obligation to maintain the infrastructure that enables departments to do their jobs safely day in and day out. To ensure the security and well-being of San Francisco’s visitors and residents, including those in custody, the City must devote resources to provide humane and resilient facilities for our public safety agencies.

Neighborhood fire stations, district police stations, County jails, and administrative office space are all important for the public safety operations throughout the city. Space needs for storage, training, and equipment unique to public safety operations are also part of the picture.

ESER G.O. Bond Program

Since 2010, the voters of San Francisco have enthusiastically supported the Earthquake Safety and Emergency Response (ESER) General Obligation Bond Program at the ballot box. That program has provided funding for essential public safety projects large and small, from a new public safety headquarters and crime lab to focused scope projects in neighborhood fire and district police stations. The ESER Program is projected to continue in the Plan, with measures planned for elections in 2020 and 2027. The City 
will aim to prioritize projects that address the greatest seismic and other risks in the publicly owned capital portfolio and those most essential for public safety operations. One of the major programs in ESER is the Emergency Firefighting Water System (EFWS), sometimes referred to as the Auxiliary Water Supply System. EFWS is an independent high-pressure water supply system dedicated to fire protection. It was installed in 1913 in response to the Great Earthquake and Fire of 1906 and is owned and operated by the San Francisco Public Utilities Commission. The system consists of core facilities, pipelines, tunnels, and cisterns, which combine to produce the ability to deliver water at extremely high pressures in defense against large multi-alarm fires, specifically those that could occur after a large earthquake when the domestic water system may be impacted.

With previous ESER funds critical reliability upgrades have been made at three primary water sources and two pump stations, the system's pipelines and tunnels have been improved and expanded, and 30 new cisterns have been constructed.

Future ESER funds will focus on improving EFWS capabilities in the city's western neighborhoods. A 2013 SFPUC  analysis studied how to maximize the likelihood the EFWS would effectively provide the necessary firefighting capabilities after a major earthquake.  In 2018 the SFPUC completed a study analyzing options for high-pressure fire suppression for the Richmond, Seacliff, and Sunset districts. These studies serve as the basis for future EFWS project selection and implementation.

To better cover the west side of the city with pressurized water for emergency firefighting purposes, San Francisco envisions a Potable Emergency Firefighting Water System consisting of over 14 miles of new, seismically resilient high-pressure pipelines. The looping pipeline network would be supplied with four water sources at two strategic locations with delivery expected in two phases. A combination of SFPUC water revenue bonds and ESER 2020 G.O. Bonds are planned to fund Phase 1 and ESER 2027 G.O. Bonds expected to support Phase 2.

Justice Facilities Improvement Program

The Justice Facilities Improvement Program (JFIP) was originally developed in 2008 to initiate the closure of the Hall of Justice (the Hall or HOJ) and the construction of replacement spaces for that facility.

The HOJ stands seven stories tall and was originally built in 1958. It contains the County courthouse, office space for various justice-related staff, and two County jails. The jails on its two top floors (County Jails #3 and #4) were built on an antiquated model of corrections with linear jails and limited program space. County Jail #3 is closed, but County Jail #4 remains open, with approximately 350 prisoners in the building 24 hours a day. The linear model of this facility creates limited visibility of prisoners, leaving them vulnerable to assault and self-harm. The County Jail #4 kitchen and laundry and some of the building’s core subsystems support operations at the nearby County Jails #1 and #2. A major earthquake is likely to generate significant damage to the building and render it unusable.

As San Francisco is responsible for the lives of the persons in custody and the staff who work with them, closing the dangerous HOJ facility has been a top priority of the City’s Capital Plan since its inception and remains so.

Since the last Capital Plan, the City has taken several significant steps towards the closure of the Hall. To vacate the building as expediently as possible per direction from the City Administrator, staff from the District Attorney, Police, and Adult Probation departments will be relocated to leased space by the end of 2020. Their exit, combined with the recent relocation of the Office of the County Medical Examiner in 2017 and the forthcoming Traffic Company and Forensic Services Division building, both funded by ESER 2014, will leave reduced operations in the building.

Capital investments to end the reliance of the downtown justice campus on the Hall have also begun. The renewal of the County Jail #2 kitchen was funded with General Fund as part of the Capital Budget in FY2019.

The Hall of Justice Exit Projects funded in the Certificates of Participation Program will further advance the JFIP effort. The few remaining City offices in the Hall will be consolidated on the Harriet Street side of the building and acquired properties once obtained. Any remaining dependencies on the Hall jails such as holding required for Courts operations will need to be addressed. The data hub in Room 125 will need to be relocated, which will be a major interdepartmental capital and IT effort; the equipment required for this project is not included within the COPs project. Together with the relocation of prisoners if the jail count is not sufficiently reduced through alternative strategies, these projects should enable the demolition of the Hall's Bryant Street wing.

Demolishing the Bryant Street wing and enclosing the remaining part of the building will leave a regular rectangular structure with better expected seismic performance. The demolition will also create room to begin construction of a replacement Hall of Justice while the Courts remain operational.

The last Capital Plan slated projects for administrative staff and prisoner relocations in the COP Program. With leases now secured for nearly all administrative staff in the short-term, the capital construction projects related to the Hall Exit has been removed from the early years of the COP Program. The COP Program now planned shows a replacement Hall of Justice Consolidation Project in FY2028 instead, envisioned at the downtown campus once the Courts secure State funding.

The full vacation, demolition, and consolidation of the Hall of Justice will not be possible as long as County Jail #4 is open.

Working with input from criminal justice reform advocates through the Re-Envisioning the Jail Work Group convened by then-Board President Breed, the City continues to pursue and fund strategies to reduce the jail population. Co-chaired by the Sheriff, the Director of Public Health, and a leading community advocate, the Work Group prioritized strategies of housing, expansion of community-based and Department of Public Health behavioral health treatment facilities, a reentry navigation center for justice-involved persons, renovations to County Jail #2 to accommodate a portion of the County Jail #4 population, and the creation of an interagency intake and discharge planning center in County Jail #1. The construction of a replacement jail facility for the beds at the Hall was not prioritized by a majority of Work Group members, nor was a centralized Behavioral Health Justice Center. The City has put resources behind the Work Group’s prioritized strategies. Still the jail count remains too high to allow for the permanent closure of County Jail #4.

A solution that will permanently close the Hall of Justice jails is still needed. San Francisco historically has been averse to the construction of new jail facilities. However, given the City’s responsibility for prisoners and staff, it will be necessary to relocate them from the Hall one way or another. The solution may require the construction of a replacement facility and/or operational changes such as out-of-county placements.

Efforts to finally close the Hall once and for all may involve the allocation of General Fund Debt, Capital Planning Fund, and/or General Fund.

Public Safety Training Facility Needs

San Francisco’s Fire Department currently trains at two facilities, one in the Mission District and one on Treasure Island. With Treasure Island’s development now in progress, the Department will need to relocate from that site as early as 2024. The Mission facility is too small to accommodate the full training operation. The Fire Department has conducted a needs assessment and determined that approximately seven acres would be required to house a state-of-the-art training operation. The City is currently exploring options for a location. Once a location is secured, the City will seek to make the highest and best use of that site. SFFD's programming needs will be scoped first. If it is financially and spatially feasible to address other public safety training needs with an integrated project, the City will pursue that option.

Master Planning

As San Francisco’s population quickly grows and density increases, greater demand is placed on the City’s public safety agencies and their facilities. The San Francisco Fire Department, Police Department, and Sheriff’s Department have all taken a close look at needs across their respective portfolios, and they have identified significant needs throughout.

Working in partnership with San Francisco Public Works, these public safety agencies have identified repair and renewal needs to keep their existing facilities in a state of good repair and ensure that each agency’s operational needs are met. They have also identified some sizable gaps between the current portfolio and their projected operational needs in the years ahead. For both SFFD and SFPD, additional stations are needed if the City is to keep pace with the rapidly growing population in the Southeast.

The Juvenile Probation Department’s needs and facilities assessment began with a leading focus on Log Cabin Ranch, which closed in 2018. Given the reduced number of young people requiring detention in San Francisco, the City has embarked on a discussion exploring the broader juvenile detention system and alternatives to incarceration.

The Public Safety Service Area addresses the capital needs of the agencies working to keep San Franciscans safe and secure in their daily lives and in response to emergency situations. From fire and police stations, to jails and juvenile detention facilities, to evidence storage and forensic lab space, public safety facilities have unique needs for their highly specialized operations. 

Addressing the capital needs of the City’s public safety departments is one of the primary challenges of the Capital Plan. As the City works towards a more progressive justice system, there is an obligation to maintain the infrastructure that enable departments to do their jobs safely day in and day out. To ensure the security and well-being of San Francisco’s visitors and residents, including those in custody, the City must devote resources to provide humane and resilient facilities for our public safety agencies.

Neighborhood fire stations, district police stations, County jails, and administrative office space are all important supports for the public safety operations throughout the city. Space needs for storage, training, and equipment unique to public safety operations are also part of the picture.

ESER G.O. Bond Program

Since 2010, the voters of San Francisco have enthusiastically supported the Earthquake Safety and Emergency Response (ESER) General Obligation Bond Program at the ballot box. That program has provided funding for essential public safety projects large and small, from a new public safety headquarters to focused scope projects in neighborhood fire and district police stations. The ESER Program is projected to continue in the Plan, with measures planned for elections in 2020 and 2026. Planning work in FY2018 and FY2019 will be needed to ensure ESER 2020 projects are shovel-ready at first issuance. The City will aim to prioritize projects that address the greatest seismic and related structural and non-structural risks in the publicly owned capital portfolio as shown in the recently completed HAZUS analysis discussed in Chapter Four: Building Our Future.

ESER Bond Program

• ESER 2010: $412.3M
• ESER 2014: $400M
• ESER 2020 slated for $290M
• ESER 2026 slated for $290M

Justice Facilities Improvement Program

The Justice Facilities Improvement Program (JFIP) was originally developed in 2008 to initiate the closure of the Hall of Justice (the Hall or HOJ) and the construction of replacement spaces for that facility. The HOJ stands seven stories tall and was originally built in 1958. It contains the County courthouse, office space for various justice-related staff, and two County jails. The jails on its two top floors (County Jails #3 and #4) were built on an antiquated model of corrections with linear jails and limited program space. This linear model creates limited visibility of prisoners, leaving them vulnerable to assault and self-harm. A major earthquake is likely to generate significant damage to the building and render it unusable.

As San Francisco is responsible for the lives of the persons in custody and the staff who work with them, closing the dangerous HOJ facility has been a top priority of the City’s Capital Plan since its inception and remains so.

Space considerations for JFIP include both the custodial and administrative uses of the Hall. County Jail #3 is closed, but County Jail #4 remains open, with approximately 400 prisoners in the building 24 hours a day. The District Attorney’s Office, SFPD Investigations Unit, Sheriff's Department, and the Adult Probation Department all occupy office space in the Hall. In addition the kitchen, laundry, and some of the building’s core subsystems support operations at the nearby County Jails #1 and #2. The last Capital Plan updated JFIP to reflect current conditions and existing staff levels at the Hall and also at 555 7th Street, which houses the Public Defender’s Office. 

The last Capital Plan identified a Rehabilitation and Detention Facility project that would have created replacement capacity for the prisoners in custody at the Hall. Construction of a replacement facility was prioritized so as to evacuate the Hall’s most vulnerable population, the prisoners, first. The City applied for an $80 million award of State financing and won, but in the face of tremendous community resistance and demands for overarching reform to the criminal justice system, the Board of Supervisors unanimously declined that award. 

In the wake of that rejection of State funds, Board President London Breed convened the Work Group to Re- Envision the Jail Replacement Project. The Work Group was tasked with identifying strategies to reduce the jail population and strengthen prevention and treatment services to bring about the permanent closure of County Jails #3 and #4. 

Co-chaired by the Sheriff, the Director of Public Health, and a leading community advocate, the Work Group was convened in public sessions from March through October 2016. During that time, Work Group membership and support staff gathered, analyzed, and discussed information about San Francisco’s criminal justice and behavioral health systems. An interim report was made to the Government Audit and Oversight Committee of the Board of Supervisors in December 2016, and a final report is expected in March 2017.

The primary result of the Work Group’s efforts was a set of prioritized strategies to address programmatic, policy, and facility needs. The construction of a replacement jail facility for the beds at the Hall was not prioritized by a majority of Work Group members, nor was a centralized Behavioral Health Justice Center that was proposed by the District Attorney’s Office. Prioritized strategies included investments in housing, expansion of community-based and Department of Public Health behavioral health treatment facilities, a reentry navigation center for justice-involved persons, renovations to County Jail #2 to accommodate a portion of the County Jail #4 population, and the creation of an interagency intake and discharge planning center in County Jail #1. 

As City stakeholders plan the implementation of efforts to close the HOJ permanently, San Francisco intends to honor the input of the Work Group to pursue non-incarcerating strategies to reduce the jail population. For example, the City plans to implement the Law Enforcement Assisted Diversion (LEAD) program based on the successful model from Seattle. It will also add capacity to Hummingbird Place, which provides a safe environment in a health treatment setting for those that need mental health support staving off a crisis. The Co-Chairs, Mayor’s Office, and elected officials will factor the prioritized strategies into upcoming decisions and planning efforts, including this Capital Plan. 

The Plan has slated two HOJ-related projects in the COP Program, both with first issuance in FY2021: one for administrative staff relocation (either lease-to-own or construction), and one for prisoner exit. Planning work to find a solution that will permanently close the Hall of Justice jails will be needed in the years leading up to the planned first issuance for the Prisoner Exit project. 

In recent weeks, conditions at the Hall have worsened dramatically, compounding the facility's already critical problems and hastening the need to vacate the building. Beyond the known seismic risk, subsystems including plumbing and elevators, have repeatedly failed and require substantial investment to repair. Rather than invest more than necessary in a facility ultimately unfit for occupation, in January 2017 the City Administrator declared the building’s City’s offices and jails should be shuttered as quickly as possible. 

The target date for expedited exit from the Hall is 2019, the fastest possible to line up alternative locations for all staff and prisoners. City staff are exploring ways to meet this deadline; solutions may involve the allocation of General Fund Debt and/or Capital Planning Fund capacity to meet the cost of this ambitious schedule. 

Should the expedited exit stall and/or the good-faith implementation of prioritized strategies from the Work Group fall short of reducing the jail population enough to be able to close the HOJ jails permanently, the City will need to make a difficult decision about what to do with the building's staff and prisoners. 

San Francisco has historically been averse to the construction of new jail facilities. However, given the City’s responsibility for prisoners and staff, it will be necessary to relocate them from the Hall one way or another. The solution may require the construction of a scaled replacement facility and/ or operational changes such as out-of-county placements. 

Meanwhile, the Sheriff's Department is proceeding with an application to the California Board of State and Community Corrections for financing that would support work at County Jail #2. The project scope includes needed repairs to the roof, HVAC system, and kitchen, hardening of dorms into cells to allow for some prisoners to move out of the Hall, and improvements for ADA code compliance. San Francisco intends to apply for the maximum large-county award of $70 million and has identified $12 million for the required match in the General Fund Debt Program.

Master Planning

As San Francisco’s population quickly grows and density increases, greater demand is placed on the City’s public safety agencies and their facilities. The San Francisco Fire Department, Police Department, and Sheriff’s Department have all taken a close look at needs across their respective portfolios, and they have identified significant needs throughout. The Juvenile Probation Department’s needs and facilities assessment is currently underway. 

Working in partnership with San Francisco Public Works, these public safety agencies have identified repair and renewal needs to keep their existing facilities in a state of good repair. They have also identified some sizable gaps between the current portfolio and their projected operational needs in the years ahead. The departments are working actively with Public Works project managers, as well as Capital Planning and Mayor’s Budget Office staff, to prioritize projects, balance renewals and enhancements, and ensure that each agency’s operational needs are met.

The backbone of San Francisco is our horizontal infrastructure; the streets, water, power, and sewer systems that make living in a city possible. Many of these systems function invisibly to residents. They run underground, are walked over, and are turned on with the flick of a switch or turn of a faucet. The infrastructure systems that the City invests in provide basic services and also contribute to City-wide goals of environmental sustainability, pedestrian safety, and a more beautiful and livable city.

It is imperative that the City maintain these assets in a state of good repair given the essential nature of these systems. Proactive maintenance ensures the steady provision of services and is less costly than fixing problems that have degraded beyond repair. High quality service provision is key for advancing equity as utility disruptions or degraded street conditions have disproportionate impacts on low-income people, communities of color, and people with disabilities.

Overview

Programs addressed in this chapter are delivered by San Francisco Public Works (PW) and the San Francisco Public Utilities Commission (SFPUC). Among the key programs implemented by PW are Street Resurfacing, Sidewalk Repair, and Street Tree Maintenance. SFPUC provides San Francisco with water, power, and wastewater systems, implementing multi-billion dollar programs designed to prolong the life of these assets. Together, these two agencies deliver tangible results that affect the lives of each and every San Franciscan. The projects for this service area are estimated to create over 47,000 jobs over the next 10 years.

Public Works Streets and Rights-of-Way

The City has been able to make significant improvements in its street condition since the 2011 Road Repaving and Street Safety Bond Program. The third and final bond sale was completed in the spring of 2016, rounding out the $248 million program dedicated to street resurfacing, streetscape, and traffic signal upgrade projects. Since then, General Fund, State dollars from SB1, and other sources have contributed to continued street condition improvements. San Francisco voters also approved another $41.5 million for the public right-of-way when they approved the 2020 Health and Recovery G.O. Bond. These funds as well as the use of General Fund Debt are necessary to offset the shortage of General Fund for this purpose in the short term due to the COVID-19 crisis. The City's Pavement Condition Index (PCI) score is now at 75, which is considered "good" condition.

San Francisco also continues its commitment to Vision Zero SF and its goal of zero traffic fatalities and critical injuries in San Francisco by 2024. San Francisco’s expenditures in streets and right-of-way infrastructure improve safety in myriad ways. Roadway repaving creates a smoother surface and renews street and crosswalk markings, which improve safety for drivers, bicyclists, and pedestrians. Additionally, the City reaffirms our commitment to safe and accessible paths of travel for people with disabilities by making capital improvements to curb ramps, sidewalks, street crossings, and roadways across the city.

Public Utilities Commission

The SFPUC provides and distributes water to 2.6 million customers, treats wastewater, and supplies electric power to operate Muni streetcars and electric buses, street and traffic lights, and municipal buildings. The SFPUC includes three utility enterprises: Water, Wastewater, and Power.

The Water Enterprise consists of over 389 miles of pipeline, over 74 miles of tunnels, 11 reservoirs, five pump stations, and three water treatment plants located outside of the city (the “Regional Water System”), and over 1,235 miles of pipeline, 11 reservoirs, eight storage tanks, 22 pump stations, eight hydropneumatic stations, and 17 chlorination stations located within city limits (the “In-City Distribution System”).

The Water Enterprise is responsible for the distribution of high quality water to its customer in San Francisco and other Bay Area communities. Hetch Hetchy watershed, located in Yosemite National Park, provides approximately 85% of San Francisco’s total water needs, with the remaining 15% produced by the Alameda and Peninsula watersheds. The drinking water provided is among the purest in the world; the system for delivering that water is almost entirely gravity fed, requiring almost no fossil fuel consumption to move water from the mountains to the tap. Hetchy Water operates, maintains, and improves water and power facilities, smaller dams and reservoirs, water transmission systems, power generation facilities, and power transmission assets.

The Wastewater Enterprise operates and maintains the City's water pollution control plants, pumping stations, and collection system in order to protect public health and the environment. It also maintains the 900-mile long combined sewer system and 27 pump stations that collect sewage and storm water, moving wastewater to treatment plants for eventual discharge into the San Francisco Bay and the Pacific Ocean. The SFPUC is undertaking a Sewer System Improvement Program (SSIP) to modernize its systems and help meet its Levels of Service goals. The SSIP is expected to take place over the next 20 years.

The Power Enterprise is responsible for providing reliable, clean, high-quality electric energy to the city. The Power Enterprise’s 100% GHG-free electric supply portfolio consists of hydroelectric power from three power plants in the Sierra Nevada mountains, solar power generated at SFPUC and other City facilities, and bio-methane power produced at SFPUC wastewater treatment facilities.

 

Power Interconnection Costs

Under the new Wholesale Distribution Tariff (WDT) proposed by Pacific Gas & Electric Company (PG&E) in 2020, all new power interconnections will need to be at primary voltage. This imposes an additional $500,000 for the majority of new interconnections. Any capital project that requires a new, upgraded, or relocated electrical service will be impacted by this requirement. The City continues to protest the new WDT at the Federal Energy Regulatory Commission (FERC). Without FERC intervention, this costly new requirement will be officially imposed after April 15, 2021.