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Presidio Trails and BikewaysMaster Plan & Environmental AssessmentNational Park Service, U.S. Department of the Interior
The Presidio Trust
Presidio of San Francisco, Golden Gate National Recreation AreaJuly 2003
CONTENTS
iCONTENTS
TABLE OF CONTENTSChapter 1: Introduction
A Vision of the Future . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
The Master Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
Analysis and Alternatives Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2
Document Organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .2
The Presidio's History . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
Planning Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
Public Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6
Changes to the Trails Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7
Plan Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
Prioritization and Phasing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
Environmental Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
Chapter 2: Purpose and Need
Project Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
Project Need . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
Chapter 3: Trail Classifications and Design GuidelinesUser Groups . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
Trails and Bikeways Classification System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
Pedestrian Trails . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
Multi-Use Trails . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
Bikeways . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
Bikeway Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
Accessibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
Accessible Trails . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
Presidio Trails & Bikeways
master planCONTENTS
iiCONTENTS
Trail Features . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27
Best Management Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
Chapter 4: Alternatives
Alternative Descriptions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .31
Changes to Existing Trail Corridors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .35
New Trail Corridors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44
Overall Trail Network . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48
Comparisons at Key Locations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .58
Environmentally Preferrable Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .66
Chapter 5: Environmental Consequences
Introduction and Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67
Geologic Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .67
Hydrologic Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .69
Biological Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .71
Cultural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .78
Traffic Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .80
Visitor Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .83
Visual Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .86
Air Quality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .88
Noise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .89
Cumulative Impacts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .90
Impact Topics Dismissed from Further Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .96
Chapter 6: Consultation and References
Interagency Review . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .97
List of Persons and Agencies Consulted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .98
List of Preparers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .99
CONTENTS
iiiCONTENTS
Chapter 7: Appendices
Appendix A: Finding of No Significant Impact . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .A-1
Appendix B: Response to Comments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .B-1
Appendix C: Best Management Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-1
Appendix D: Cumulative Project List . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .D-1
Figures
1-1. Regional Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
1-2. The Presidio of San Francisco . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
1-3. Changes to the Preferred Alternative, Pedestrian, Multi-Use Trails and Bicycle Routes . . . .12
3-1. Pedestrian Trails . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
3-2. Pedestrian Trail Detail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
3-3. Multi-Use Trail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
3-4. Typical Bike Lanes on Roadway . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
3-5. Uphill Bike Lane . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
3-6. Shared Roadway . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
3-7. Beach Access Route (Plastic Mat Option) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26
3-8. Primary Trailhead . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
3-9. Secondary Trailhead . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
3-10. Existing Trail Marker, Bay Area Ridge Trail . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
4-1. Street Names . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33
4-2. Trail Corridors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .34
4-3A. Alternative A: No Action, Pedestrian and Multi-Use Trails . . . . . . . . . . . . . . . . . . . . . . . . .51
4-3B. Alternative A: No Action, On-Street Bicycle Routes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52
4-4A. Alternative B: Mixed Use, Pedestrian and Multi-Use Trails . . . . . . . . . . . . . . . . . . . . . . . . . .53
4-4B. Alternative B and C: Mixed Use and Shared Use, On-Street Bicycle Routes . . . . . . . . . . . .54
4-5. Alternative C: Shared Use, Pedestrian and Multi-Use Trails . . . . . . . . . . . . . . . . . . . . . . . . .55
4-6A Alternative D: Dispersed Use, Pedestrian and Multi-Use Trails . . . . . . . . . . . . . . . . . . . . . .56
4-6B. Alternative D: Dispersed Use, On-Street Bicycle Routes . . . . . . . . . . . . . . . . . . . . . . . . . . .57
Presidio Trails & Bikeways
master plan ivCONTENTS
4-7. Existing Conditions at Lincoln Boulevard at Pershing Drive North . . . . . . . . . . . . . . . . . . .58
4-8. Proposed Development at Lincoln Boulevard at Pershing Drive North . . . . . . . . . . . . . . .58
4-9. Existing Conditions at Lincoln Boulevard at Kobbe Avenue . . . . . . . . . . . . . . . . . . . . . . . .59
4-10. Proposed Development at Lincoln Boulevard at Kobbe Avenue . . . . . . . . . . . . . . . . . . . . .59
4-11. Existing Conditions at Lincoln Boulevard at Washington Boulevard . . . . . . . . . . . . . . . . . .60
4-12. Proposed Development at Lincoln Boulevard at Washington Boulevard . . . . . . . . . . . . . . .60
4-13. Existing Conditions at Lincoln Boulevard at Crissy Field Avenue . . . . . . . . . . . . . . . . . . . .61
4-14. Proposed Development at Lincoln Boulevard at Crissy Field Avenue . . . . . . . . . . . . . . . . .61
4-15. Existing Conditions at Golden Gate Promenade at Fort Point Extension . . . . . . . . . . . . . .62
4-16. Proposed Development at Golden Gate Promenade at Fort Point Extension . . . . . . . . . . .62
4-17. Existing Conditions at Ecology Trail Corridor at Arguello Boulevard . . . . . . . . . . . . . . . . .63
4-18. Proposed Development at Ecology Trail Corridor at Arguello Boulevard . . . . . . . . . . . . . .63
4-19. Existing Conditions of Bay Area Ridge Trail Corridor at Washington Boulevard . . . . . . . .64
4-20. Proposed Development of Bay Area Ridge Trail Corridor at Washington Boulevard . . . . .64
4-21. Existing Conditions of Juan Bautista de Anza Trail at Battery Caulfield Road . . . . . . . . . .65
4-22. Proposed Development of Juan Bautista de Anza Trail at Battery Caulfield Road . . . . . . .65
A-1. Changes to the Preferred Alternative Pedestrian, Multi-Use Trails and Bicycle Routes . . .A-5C-1. Typical Location: Existing Drainage Control . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-1
C-2. Outsloping (BMP 1-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-1
C-3. Rolling Grade Dip (BMP 1-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-2
C-4. Surface Reinforcing (BMP 2-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-2
C-5. Boardwalk Bridge (BMP 2-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-3
C-6. Drainage Lens (BMP 2-3) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-3
C-7. Typical Location: Steep Slopes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-3
C-8. Retaining Wall (BMP 3-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-4
C-9. Trail Stairs (BMP 3-3) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-4
C-10. Above Grade Trail (BMP 4-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-5
C-11. Typical Location: Eroding and Hazardous Trail Edges . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-5
vCONTENTSCONTENTS
C-12. Edge Protection (BMP 5-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-6
C-13. Trail in Sandy Soil . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-6
C-14. Subsurface Geogrid (BMP 6-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-7
C-15. Moveable Textured Panel (BMP 6-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-7
C-16. Sand Ladder (BMP 6-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-7
C-17A.Trail Damaged by Vehicle Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-8
C-17B.Reinforced Trail Base (BMP 7-1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-8
C-18. Typical Location: Bicycle/Auto Conflict on Washington Boulevard . . . . . . . . . . . . . . . . . .C-8
C-19. Social Trail Through Forest . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-10
C-20. Vegetation Restoration (BMP 9-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-11
C-21. Lobos Creek Boardwalk . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-11
C-22. Boardwalk (BMP 10-2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-12
Tables
3-1. Trails and Bikeways Classification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
4-1. Trails and Bikeways by Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48
5-1. Changes to Trail Surfaces . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .70
5-2. Trailheads and Overlooks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .85
B-1. Format of Written Comments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .B-1
B-2. General Position of Commentor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .B-1
B-3. Preference of Commentors in Support of the Trails Plan . . . . . . . . . . . . . . . . . . . . . . . . .B-2
B-4. Self Identity of Commentors (User Types) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .B-2
B-5. Single Issue Letters, Emails and Comment Cards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .B-2
B-6. Agencies, Organizations and Individuals Commenting on the Trails Plan . . . . . . . . . . . . .B-3
C-1. Backslope Cut Ratios . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .C-4
FPPHA Fort Point and Presidio Historical AssociationFR Federal Register
ft FeetGG Transit Golden Gate Transit
GGBHTD Golden Gate Bridge, Highway and Transportation DistrictGGNPC Golden Gate National Parks Conservancy
GGNRA Golden Gate National Recreation Area
GIS Geographic Information System
GMPA General Management Plan
gpd Gallons Per Day h HectaresIMBA International Mountain Bicycle Association
in Inch/inches km Kilometers lf Linear FeetLSRA Lake Street Resident's Association
m MetersMCBC Marin County Bicycle Coalition
mi Miles mm Milimeters mph Miles Per HourMUNI San Francisco Municipal Railway
NAPP Neighborhood Associations for Presidio Trails PlanningNEPA National Environmental Policy Act
NHL National Historic Landmark
NHLD National Historic Landmark District
NHPA National Historic Preservation Act
NPCA National Parks and Conservation Association
viLIST OF ACRONYMS AND ABBREVIATIONSAASHTO American Association of State Highway Transportation Officials
ABAG Association of Bay Area Governments
ac AcresACHP Advisory Council on Historic Preservation
Act Presidio Trust Act
ADA Americans with Disabilities Act
ADAAG ADA Accessibility Guidelines
ANPR Advanced Notice of Professional Rulemaking
APA Administrative Procedures Act
Ave Avenue
BAAQMD Bay Area Air Quality District
BART Bay Area Rapid Transit
BARTC Bay Area Rapid Transit Council
BCDC San Francisco Bay Conservation and Development CommissionBMPs Best Management Practices
CalTrans California Department of Transportation
CEQ Council on Environmental Quality
CFR Code of Federal Regulations
CHA Cow Hollow Association
CHC California Heritage Council
cm CentimetersCoastal Trail California Coastal Trail
CWA Clean Water Act of the United States
EAs Environmental Assessments
EIS Environmental Impact Statement
FEMA Federal Emergency Management Agency
FONSI Finding of No Significant Impact
7Appendices
1Introduction
2Purpose & Need
4Alternatives
5Environmental Consequences
6Consultation and References
3Trail Classifications & Design Guidelines
NPS National Park Service
PA Programmatic Agreement
PAR Trails Planning Association of Richmond
PHAN Presidio Heights Association of Neighbors
PM10 Particulate Matter Less than 10 Microns in DiameterPTMP Presidio Trust Management Plan
ROMP Responsible Organized Mountain Pedalers
RTC Rails to Trails Conservancy
SFBC San Francisco Bicycle Coalition
SFBT San Francisco Bay Trail
SFTC San Francisco Tree Council
SHPO State Historic Preservation Officer
sf Square Feet sm Square MetersTDM Transportation Demand Management
Trails Plan Presidio Trails and Bikeways Master PlanTrust Presidio Trust
Trust Board Presidio Trust Board
USC United States Code
USFWS U.S. Fish and Wildlife Service
USPP U.S. Park Police
VMP Vegetation Management Plan
viiINTRODUCTION
7Appendices
1Introduction
2Purpose & Need
4Alternatives
5Environmental Assessment
6References and Consultation
3Trail Classifications & Design Guidelines
Introduction
1Brenda Tharp
1INTRODUCTION
7Appendices
1Introduction
2Purpose & Need
4Alternatives
5Environmental Consequences
6Consultation and References
3Trail Classifications & Design Guidelines
A Vision of the FutureThe year is 2023, and as a beautiful summer day slides into evening, a group of people stop to enjoy a Pacific sunset at one of the Presidio's overlooks atop the coastal bluffs. The admirers include tourists, runners, a family out for a bicycle ride, a woman walking her dog, a wheelchair athlete taking a break from her training and a Presidio resident out for an evening stroll. All of them traveled to the overlook along the Presidio's well-maintained and interconnected network of pedestrian and multi- use trails and bikeways.This idyllic scene had its start in 1999, when
work began on a plan to develop a pedestrian and bicycle network that provides access to thePresidio's unique natural, cultural and historic
resources.The Master PlanThe Presidio Trails and Bikeways Master Plan(Trails Plan or plan) will provide park visitors,neighbors and Presidio residents with aninterconnected, safe and enjoyable trails andbikeways system, while protecting and managingthe Presidio's natural and cultural resources. Theplan is a joint effort of the National Park Service(NPS) and the Presidio Trust (Trust), the two
agencies responsible for managing the area. It will guide management of Presidio trails and bikeways for the next 20 years.