Scott’s Jack London Seafood, Inc. COMMISSION CEASE AND ...Scott’s Jack London Seafood, Inc. 2770 Camino Diablo, #B Walnut Creek, CA 94597 COMMISSION CEASE AND DESIST AND CIVIL

Scott’sJackLondonSeafood,Inc.2770CaminoDiablo,#BWalnutCreek,CA94597

COMMISSIONCEASEANDDESISTANDCIVILPENALTYORDERNO.CDO2017.01

andEffectiveDate:April6,2017

PortofOaklandP.O.Box2064Oakland,CA94604-2064

Respondents.

TOSCOTT’SJACKLONDONSEAFOOD,INC.ANDTHEPORTOFOAKLAND:

I. CEASEANDDESIST

PursuanttoCaliforniaGovernmentCodeSection66638,Scott’sJackLondonSeafood,Inc.(“Scott’s”)andthePortofOakland(“Port”),alloftheiragentsandemployees,andanyotherpersonsactingonbehalfoforinconcertwiththem(collectively“Respondents”)areherebyorderedtoceaseanddesistallactivityinviolationofBCDCPermitNo.1985.019.09B,BCDCPermitNo.1985.019.20A,ortheMcAteer-PetrisAct(“MPA”)atJackLondonSquareinOakland,asdescribedherein.Specifically,Respondentsareorderedto:

A. CeaseanddesistfromviolatingBCDCPermitNos.1985.019.09Band1985.019.20A,andtheMcAteer-PetrisAct.

B. FullycomplywithrequirementsofSectionsIIIandIVofthisCeaseandDesistandCivilPenaltyOrder(“Order”).

II. FINDINGSThisOrderisbasedonthefollowingfindings.Theadministrativerecordinsupportofthese

findingsandthisOrderincludes:(1)alldocumentsandotherevidencecitedhereinincludingAttachmentA–AdditionalFindings;and(2)alladditionaldocumentslistedintheIndexofAdministrativeRecord,AttachmentBhereto.

A. BCDCPermitNo.1985.019.09B,asamendedthroughOctober7,1997(“thePermit”),issuedjointlytoScott’sandthePort,authorizestheconstruction,use,andmaintenanceofa4,400-square-footpavilion,inaportionoftheFranklinStreetPlazaatJackLondonSquareinOakland,forsharedpublicandprivateuseataratioof80%publicto20%private,andtheinstallationofcaféseating,benches,lighting,andothersitefurnishingswithinthepavilionandlarger,approximately23,000-square-footplaza.

CommissionCeaseandDesistandCivilPenaltyOrderNo.CDO2017.01Page2

B. BCDCPermitNo.1985.019.020A,asamendedthroughApril10,2008(“thePort’sPermit”),issuedtothePort,authorizedcertaindevelopmentactivitiesalongasix-blocksectionofthePort’swaterfrontpropertybetweenJeffersonandHarrisonStreetsatJackLondonSquare.

C. InoraboutDecember2011,Scott’scontactedBCDCstaffregardingcertainmodificationstothepavilionproposedbyScott’s.BetweenDecember2011andNovember2012,BCDCstaffandScott’scontinuedtodiscuss,BCDCstaffprovidedcommentson,andScott’ssoughtBCDCstaffapprovalofvariouspotentialmodificationstothepavilionproposedbyScott’s.AsofNovember2012,staffinformedScott’sthatithadnotobtainedBCDCstaffapprovalofitsproposedpavilionmodificationsandstatedthatScott’sshouldcoordinatewiththePortandthatRespondentsshouldjointlypresentarevisedproposaltoBCDC.

D. InDecember2012,BCDCstafflearnedthatScott’shadcommencedconstructionofcertainmodificationstothepavilionwithoutobtainingapprovalfromBCDCstaffortheCommission,whichuponcompletioninMarch2013,includedanunauthorizedpermanentmetal-framedoorwayandnewretractablewallpanelsystem,andthatScott’shadalsoinstalledplantersinapublicaccessareawithoutauthorization.

E. OnMay16,2013,BCDC’sChiefofEnforcementissued,pursuanttosection11386oftheCommission’sregulations(14C.C.R.§11386),anenforcementlettertoRespondentsdescribinganumberofallegedviolationsoftheMPAand/orthePermit,including:

1. Constructionofanunauthorizedmetal-frameddoorway,storagearea,andstage,andinstallationofmultipleplanters,inapublicaccessarea;

2. FailuretoobtainBCDCstaffapprovalofdesignandconstructionplanspriortoreplacingtheformertentwallswitharetractablewallpanelsystemusedtoenclosethepavilion;

3. Failuretoprovidesixyearsofreportsofprivateeventsinthepavilion;

4. Failuretorecordapublicaccesslegalinstrumentforthepavilion;and

5. Failingtoinstallandmaintainallthepublicaccessimprovementsatthepavilionforatleast292daysperyear.

F. TheMay16,2013,enforcementletterdirectedRespondentstotakecertainactionstoretaintheopportunitytoresolvetheallegedviolationswithstandardizedfines,asspecifiedin14C.C.R.§11386,including:

1. Removethemetal-frameddoorway,storagearea,andplantersfromthepublicaccessarea;

2. SubmitandobtainBCDCstaffapprovalofafullsetofplansfortheretractablewallpanelsystem;

3. SubmitsixyearsofpastduereportsofprivateeventsforthepavilionmeetingtherequirementsofthePermit;and


4. SubmitandobtainBCDCstaffapprovalofalegalinstrumenttorecordthepavilionpublicaccessarea;and

5. Installandrepaircertainpublicaccessimprovements.

G. FollowingreceiptoftheMay16,2013,enforcementletter,Respondentsdidnotremovetheunauthorizedstructuresandimprovements.Instead,Scott’scontinuedtousethepavilionforprivateeventsandengagedindiscussionswithBCDCstaffoveranapproximatelytwo-yearperiodregardingthepossibilityofobtainingafter-the-factapprovalofsomeoralloftheunauthorizedstructuresorimprovementseitherbyBCDCstaff,throughplanreviewandapproval,orbypotentialamendmentstothePermitandthePort’sPermit.RespondentsmadetwopresentationsregardingtheirvariousproposalstoBCDC’sDesignReviewBoard,onFebruary10,2014andApril6,2015.AsofthedateofthisOrder,RespondentshavenotsubmittedacompleteapplicationtoamendthePermitorthePort’sPermit,andhavenotremovedorobtainedapprovaloftheunauthorizedconstructionofthemetal-framedentrydoorway,storageareaandstage,orretractablewallpanelsystem,oroftheunauthorizedinstallationofthemultipleplantersinthepublicaccessarea.

H. AfterlearningofScott’sunauthorizedconstructionactivitiesinadedicatedpublicaccessarea,BCDCstaffcontinueditsenforcementinvestigation.ThatinvestigationrevealednumerousadditionalallegedviolationsofthePermitorthePort’sPermit,includingbutnotlimitedto,Scott’sextensivenon-Permitcomplaintuseofthepavilionforprivateeventsoveranapproximately12-yearperiod.

I. InoraboutSeptember2015,BCDCstaffinformedRespondentsthattheExecutiveDirectorintendedtoinitiateanenforcementproceedingregardingthenumerousviolationsofthePermitorthePort’sPermit,including,butnotlimitedtotheunresolvedissuesregardingScott’sunauthorizedconstructioninapublicaccessarea,thatwouldlikelyresultintheCommissionissuingaceaseanddesistandadministrativecivilpenaltyorderagainstRespondents.RespondentsrequestedanopportunitytoseektonegotiateaproposedsettlementwithBCDC.

J. OnJuly19,2016,theExecutiveDirectorandRespondentsagreedtoasettlementinprincipleonthetermsofaproposedstipulatedorder,subjecttoreviewandapprovaloftheproposedorderbytheCommission’sEnforcementCommitteeandbytheCommission.

K. OnOctober20,2016,theEnforcementCommitteeheldapublichearingandadoptedthestaff’srecommendationthattheCommissionissuetheproposedstipulatedorder.

L. OnNovember3,2016,theCommissionrejectedtheEnforcementCommittee’srecommendedenforcementdecision(i.e.,adoptionoftheproposedstipulatedorder).TheCommissionprovidedcommentsoncertainissuesraisedbytheallegedviolationsanddirectedstafftocommenceaformalenforcementproceedingifstaffandRespondentswereunsuccessfulinreturningtotheEnforcementCommitteewithintwomonthswithadifferentproposedorderthatrespondedtoandtookintoaccountthedirectionprovidedbytheCommission.


M. ByletterdatedDecember8,2016,toBCDC’sChiefCounsel,MarcZeppetello,fromScott’scounsel,MichaelP.Verna,Scott’sprovidedasettlementproposaltostaff.AfterreviewingScott’sproposal,andafterfurtherdiscussionsbetweenMr.ZeppetelloandMr.Vernaregardingtheprospectsforreachinganagreementonaproposedsettlement,staffdeterminedthattheproposalwasnotresponsivetotheCommission’sdirectionandthatitwouldnotbepossibletoreachanagreementwithRespondentsonarevisedproposedstipulatedorderthatwouldbeacceptabletotheCommission.Therefore,onDecember19,2016,staffcommencedaformalenforcementproceedingbymailingtoRespondentsaViolationReport/ComplaintfortheImpositionofAdministrativeCivilPenalties(“ViolationReport/Complaint”).

N. Insummary,theviolationsorcategoriesofviolationofthePermitorthePort’sPermitdocumentedbyBCDCstaff’senforcementinvestigationincludethefollowing:

1. Unpermitteddevelopmentbyunauthorizedconstructioninpublicaccessareasofametal-framedentrydoorway,woodandmetal-framedwalls,multiplemoveablewallpanelsandceilingtracksinthepavilion;storageareaandstage;roofextensionandplanters.

2. Non-Permitcompliantuseofthepavilion,inviolationofSpecialConditionII.B.2.c,EventScheduleReporting,includingPermitExhibitA,GuidelinesforPrivateUseofPublicPavilion,duringtheperiod2004-2015:

a. Providingfewerthan292publicusedaysperyear;

b. Providing,onaveragepermonthduringwinterseason,fewerthanfive(5)publicuseweekenddaysandnights;

c. Holding,onaveragepermonthduringwinterseason,morethanfour(4)privateuseweekenddaysandnights;

d. Holding,onaveragepermonthduringsummerseason,morethanthree(3)privateuseweekenddaysandnights;

e. Providingfewerthanthree(3)publicuseweekenddaysandnightspermonth;and

f. Holdingmorethantwoconsecutiveprivateusedays.

3. UnpermitteduseoftheFranklinandBroadwayStreetplazasbyplacingtentsandstanchions,storingeventrelatedequipment(includingplanters),anddisplayingpromotionalvehicles;

4. UntimelysubmittalofprivateeventschedulesasrequiredbySpecialConditionII.B.2.c,EventScheduleReporting,includingPermitExhibitA,GuidelinesforPrivateUseofPublicPavilion;

5. Failuretorecordapublicaccesslegalinstrumentforthepavilionpublicaccessareapriortocommencementofconstruction,asrequiredbySpecialConditionII-B-3,PermanentGuarantee;


6. Failuretoprovideallrequiredpublicaccessimprovementsduringpublicusedays,asrequiredbySpecialConditionII.B.5,ImprovementsWithinthePublicAccessArea;and

7. Failuretoobtainplanapprovalpriortoinstallationofpublicaccessimprovements,asrequiredbySpecialConditionII.A,SpecificPlansandPlanReview.

O. ThepavilionmodificationsconstructedbyScott’sincluding,butnotnecessarilylimitedto,themetalentrydoorway,retractablewallpanelsystem,roofextension,andstorageshedandstageareunauthorizedandincludecomponentsanddimensionsthatstaffhasadvisedRespondentshaveadverseimpactsonpublicaccessrequirementsofboththePermitandthePort’sPermit.UnlessanduntiltheCommissionactsfavorablytoapproveproposedmodificationstothepavilion,theas-builtpavilionmodificationsshallremainunauthorizedandsubjecttoremovaland/orreconstruction.Moreover,theCommissioncannotactonarequesttoauthorizeproposedpavilionmodificationsuntilRespondentssubmittwocompleteapplicationstoamendthePermitandthePort’sPermit,respectively,thatcomplywiththeCommission’sregulationspertainingtomaterialamendmentstoamajorpermitasoutlinedin14C.C.R.§§10310,10824,andAppendicesD,E,F.

P. TheadditionalfindingssetforthinAttachmentAhereto,andincorporatedbyreferenceherein,morefullydescribeeachofRespondents’violationsorcategoriesofviolation,andincludeinformationregardingthedatesofviolationandreferencestosupportingevidence.

III. CONDITIONS

A. OnandaftertheEffectiveDateofthisOrder,RespondentsshallceaseanddesistfromallactivityinviolationofthePermit,thePort’sPermit,andtheMcAteer-PetrisAct.

B. MakePublicAccessAvailable.OnandaftertheEffectiveDateofthisOrder,Respondentsshallmakethepavilionandallotherpublicaccessareasaroundthepavilion(exceptforareasoccupiedbyabuilt-inunauthorizedstructure,suchasthestorageshedandpavilionwallsandpanels)availabletothepublicforunrestrictedpublicaccess,asrequiredbySpecialConditionII.B.1ofthePermitandSpecialConditionB.II.1ofthePort’sPermit,exceptasotherwiseprovidedinaccordancewithSpecialConditionII.B.2ofthePermit.

C. NoStorageofEquipmentInorUnauthorizedUseofPublicAccessAreas.OnandaftertheEffectiveDateofthisOrder,Scott’sshallceaseanddesistfromstoring,andshallnotstore,anyrestaurantequipmentorsitefurnishingsinanyrequiredpublicaccessareasatanytime,andshallceaseanddesistfromusing,andshallnotuse,anyportionoftheFranklinandBroadwayplazasforprivateevents,tostoreanyrestaurantequipmentorsitefurnishings,ortodisplaypromotionalmaterials.

D. PlanterRemoval.Nolaterthan15daysaftertheEffectiveDateofthisOrder,Scott’sshallpermanentlyremoveallplantersfromtheareaaroundthepavilionandshallnotplaceorstorageplanterswithintheCommission’sjurisdictionwithoutCommissionauthorization.


E. CompliancewithPermitExhibitA,GuidelinesforPrivateUseofPublicPavilion.OnandaftertheEffectiveDateofthisOrder,RespondentsshallcomplyfullywithSpecialConditionII.B.2ofthePermit,PublicUseofthePavilion,andshallusethepavilionforprivateeventsonlyasspecifiedinExhibitAtothePermit,“GuidelinesforPrivateUseofthePublicPavilion,”includingbutnotlimitedtousingthepavilionfornomorethan73daysofprivateuseannually.

F. SubmitCompleteApplicationstoAmendthePermitandthePort’sPermit.Nolaterthan45daysaftertheEffectiveDateofthisOrder,RespondentsshallsubmittotheExecutiveDirectorafullycompletedandproperlyexecutedapplicationtoamendthePermit,andthePortshallsubmittotheExecutiveDirectorafullycompletedandproperlyexecutedapplicationtoamendthePort’sPermit.Thoseapplicationsshallincludethefollowing:

1. Respondents’applicationtoamendthePermitshallrequestafter-the-factauthorizationforthefollowingstructuralcomponentsofthepavilionthatScott’sconstructedwithoutauthorization:(1)thepermanentwallandretractablewallpanelsystemalongportionsoftheexteriorofthepavilion;(2)thestagealongthewesterninteriorboundaryofthepavilion;(3)thestorageareabehindthestage;and(4)thestructurethatconnectstheroofofthepaviliontotheroofoftherestaurant.Inpreparingtheirapplication,RespondentsshalltakeintoaccounttheplansdepictingtheproposedpublicpavilionmodificationspresentedtotheDesignReviewBoardonApril6,2015,andtheDRB’scommentsonthoseplans.Theapplicationshallalsorequestauthorizationfornewentrancedoorsintothepavilion,whichwouldbeintegratedintotheretractablewallpanelsystemandinstalledbyScott’storeplacetheexistingpermanentdoorstructureandmetalframingattheentrancetothepavilionthatScott’sconstructedwithoutauthorization.Theapplicationshallalsoinclude:(1)detailedarchitecturalplansfortheproposedprojectincludingbutnotlimitedtonewentrancedoorsandanymodificationstotheretractablewallpanelsystemnecessarytointegratethedoorsintothatsystem;(2)documentationofdiscretionaryapprovalandCEQAreviewfromtheCityofOakland;(3)astatementoftotalprojectcosts;and(4)paymentoftheappropriateapplicationfilingfee.Theapplicationshallnotincludearequesttoincreaseuseofthepavilionforprivateevents.

2. Respondents’applicationtoamendthePermitandthePort’sapplicationtoamendthePort’sPermitshallincludeapublicaccessplanforthepavilionandthepublicaccessareasaroundthepavilionbasedontheconceptualplanthatScott’sproposed,andBCDCstaffmodified,duringameetingonAugust28,2015,thattakesadvantageofexistingelements,considersfactorspertainingtoexistinglimitations,andattemptstounifythepublicspaceinsideandoutsideofthepavilion.Theplanshallprovidehighqualitychairsplacedbothinsideandoutsidethepavilion;repairexistingpavingbeneaththepavilionandtowardWaterStreet(someareashavebeenpoorlypatchedandrequirereplacementpavers);intheplazaeastofthepavilionandnorthofKincaid’s,removetrees,useverticallightstocreateandangled


“procession”towardsthewater,incorporateafewsimplepermanentconcreteseawallsaroundanareawithdecomposedgranitepaving(andplacetablesandchairswithinthisarea),providebenchesinalinealongthewaterfacingeasttowardPescatorerestaurant,andprovideplantedscreensaroundKincaid’swallsandtrashareas.

G. ProvidePublicAccessImprovementsRequiredbythePermits.Nolaterthan30daysaftertheEffectiveDateofthisOrder,RespondentsshallprovideallimprovementswithinthepublicaccessarearequiredbySpecialConditionII.B.5ofthePermitincluding:(1)atleastfourpublicaccesssigns,twopermanentandtwotemporary,tofacilitateshorelinepublicaccessbetweenFranklinStreetandBroadwayontheBaysideofScott’s;and(2)atleast15tablesand35chairsthataretobeinplaceatalltimesexceptwhenthepavilionisinuseforprivateeventsorotherapprovedevents,asauthorizedbythePermit.

H. RecordLegalInstrument.Nolaterthan30daysaftertheEffectiveDateofthisOrder,excludingthetimeperiod(s)duringwhichthedraftguaranteeisheldbystaffcounselforreview,RespondentsshallsubmitproofofrecordationwithAlamedaCountyofalegalinstrumentthatguaranteesthepublicaccessarearequiredbySpecialConditionII.B.1and2ofthePermit,inaccordancewithSpecialConditionsII.B.3and4ofthePermit.Forreferencepurposes,thepublicaccessareaoverwhichthelegalinstrumentistoberecordedisshownonExhibitAofthePort’sPermitas“ScottsPavilion.”

I. SubmitPavilionEventsSchedules.Nolaterthan30daysaftertheEffectiveDateofthisOrder,Scott’sshallsubmittoboththePortandBCDCallpast-duequarterlyeventschedules,asrequiredbySpecialConditionII.B.2.cofthePermit,andthePortshallsubmittoBCDCallpast-dueannualsummariesofeventschedules,asrequiredbySpecialConditionII.B.2.cofthePermit.Inaddition,commencingMay15,2017,Scott’sshallsubmittoBCDCbynolaterthanthe15thofeachmonthastatementforthepriormonthlistingalleventsheldatthepavilionandthedurationofeachevent,includingbothsetupandbreakdowntimes.

J. FurtherReviewByTheCommission.IfRespondentsfailtosubmitcompleteapplicationstoamendthePermitandthePort’sPermitbynolaterthan45daysaftertheEffectiveDateofthisOrder,inaccordancewithConditionIII.F,above,oriftheExecutiveDirectorhasnotfiledthoseapplicationascompletebynolaterthanJuly10,2017,theExecutiveDirectorshallscheduleapublichearingbeforetheCommissiontoreportonthestatusofRespondents’applications,theircompliancewiththePermitandthePort’sPermitsinceJanuary1,2017,andtheircompliancewiththetermsofthisOrder.Atsuchhearing,theCommissionmay,ifrecommendedbytheExecutiveDirector,orderthatthisenforcementproceedingbereopenedandthattheCommissionconsidermodifyingthisOrdertorevokethePermitandtoorderRespondentstoremoveanyorallstructureswithintheshorelinebandonthestatetidelandsoccupiedbythepavilion.

CommissionCeaseandDesistandCivilPenaltyOrderNo.CDO2017.01Page8 IV. CIVILPENALTYORDER

A. GovernmentCodeSection66641.5(e)providesthattheCommissionmayadministrativelyimposecivilliabilityforanyviolationoftheMPAoraBCDCpermitinanamountofwhichshallnotbelessthan$10normorethan$2,000foreachdayinwhichtheviolationoccursorpersists,butmaynotadministrativelyimposeapenaltyofmorethan$30,000forasingleviolation.

B. GovernmentCodeSection66641.9(a)states:

Indeterminingtheamountofadministrativecivilliability,thecommissionshalltakeintoconsiderationthenature,circumstance,extent,andgravityoftheviolationorviolations,whethertheviolationissusceptibletoremovalorresolution,thecosttothestateinpursuingtheenforcementaction,andwithrespecttotheviolator,theabilitytopay,theeffectonabilitytocontinueinbusiness,anyvoluntaryremovalorresolutioneffortsundertaken,anypriorhistoryofviolations,thedegreeofculpability,economicsavings,ifany,resultingfromtheviolation,andsuchothermattersasjusticemayrequire.

C. NatureoftheViolations.Scott’sviolatedtherequirementsofthePermitrepeatedlyandconsistently,asfollows:

1. Non-permitCompliantUseofthePavilion.Asdocumentedonpages8through17intheViolationReport/Complaint,Scott’sregularlyheldmoreprivateeventsthanallowedbythePermitandoperatedthepavilioninnumerousotherwaysthatviolatetherequirementsofthePermit.

2. UnauthorizedUseoftheFranklinandBroadwayStreetPlazas.Scott’sregularlydisplayedapromotionalvehicleintheBroadwayStreetPlazaandstoredevent-relatedequipmentincludingplantersintheFranklinStreetPlaza.Scott’swasrepeatedlynotifiedthattheseactivitieswereunauthorizedyetcontinuedtocommittheviolations.

3. EventSchedulesandScheduling.Respondentshabituallyfailedtosubmitquarterlyreportsand,toalesserextent,annualsummariesofscheduledevents.

4. PublicAccessImprovements.Scott’sfailedtoplacethetables,chairsandsignsinthepavilionwhenitwasinpublicusealmostcontinuouslysince1998.AsofthedateoftheViolationReport/Complaint,Scott’swaspostingonlyoneofthetworequiredmoveablesignsanditwasnotlocatedinthepavilionwhereitisrequiredtobelocated.

5. RecordationofLegalInstrumentforthePublicAccessArea.RespondentshavefailedtoresolvethisissuedespitethefactthatCommissionstaffprovidedalltheinformationnecessarytoachievecompliancewiththisrequirementinaletterdatedDecember12,2013.


6. FailuretoObtainPlanApprovalforthePublicAccessImprovements.Respondentsfailedtoobtainplanapprovalforthepublictables,chairsandsignagepriortoconstructingthepavilion.

D. CircumstancesoftheViolations.Onmultipleoccasions,BCDCstaffdescribedtoScott’sthepermitrequirementsandthepropercorrectiveactionsandrequestedthatactionsandeventsremainwithintheauthorizednumbers.Despitethesemeetingsandcommunications,thesameunauthorizedconductcontinued.CircumstancesofthismattersupporttheconclusionthatviolatingtheBCDCpermitwasanintentionalbusinessdecisionbyScott’s,wherebypotentialBCDCpenaltiesmayhavebeenfactoredintodecisionstoproceedunabatedoveratleasta12-yearperiod.

E. ExtentofViolations.Thenon-permitcompliantelementsoftheviolationshavebothspatialandtemporalcomponents.ThefactsdemonstratethelongdurationoftheseviolationsandtheexpansionofprivateusebeyondthelimitsofthepavilionintotheBroadwayandFranklinStreetPlazas.

F. GravityoftheViolations.TheopenviewsoftheestuaryaffordedbythespaceoccupiedbythepavilionaretheonlyunobstructedviewsoftheestuarythatareavailabletopersonsapproachingfromFranklinStreet.Therefore,theobstructionofthosepublicviewsbyScott’sunauthorizedprivateeventsisasignificantdetrimenttothepublic.

1. AdverseImpactsonPublicAccess.EachandeveryviolationcitedintheViolationReport/Complaintadverselyimpactsexistingrequiredphysicalandvisualpublicaccessinandadjacenttothepavilion.

2. UnauthorizedConstructionofthePavilionEnclosureSystem.Scott’sknowinglyandintentionallycommencedandcompletedconstructionofitsnewpavilionenclosuresystemwithoutthenecessaryCommissionstafforCommissionapproval.

3. PermitApplicationFilingProcess.Respondentsfailedtosubmittwocompleteapplicationstoretroactivelyauthorizethoseelementsofthepavilionconstructionprojecteligibleforretroactiveapproval.Inaddition,Respondentshavefailedtosubmitarevisedpublicaccessproposal.

4. FailuretoCooperate

a. OnMay30,2013,duringasitevisitwiththeCommission’sExecutiveDirector,Mr.Fagaldestatedhewouldnotremovethepermanentmetal-framedentrydoorway;

b. DuringameetingwithMs.MiramontesandMs.KleinonApril17,2014,Mr.Fagaldesaidhecouldnotremovethepermanentmetal-framedentrydoorway;

c. DuringameetingwithCommissionstaffonNovember18,2014,Mr.Gallaghersaidhecouldnotremovethepermanentmetal-framedentrydoorway;


d. Asthesecommunicationsshow,itwasnotamatterofnotbeingabletoremovethepermanentmetal-framedentrydoorwayfromtheprojectfora3.5-yearperiod,butratheranunwillingnesstoremoveit.Thisbecameapparentwhen,onFebruary20,2015,Respondentssubmittedaplanproposingtoreplacethepermanentmetal-framedentrydoorwaywithadditionalretractablewallpanelsthatincludeanentrydoorway;

G. SusceptibletoRemovalorResolution.Whethertheviolationissusceptibletoremovalorresolution:

1. Susceptible

a. Theunpermittedconstructionofthenewpavilionenclosuresystemissusceptibletoresolutionthroughthecombinedremovalofportionsofthenewpavilionenclosuresystemandafter-the-factapprovaloftheremainderofit;and

b. Thefailuretogainapprovalofalegalinstrumenttopermanentlyguaranteethepublicaccessareaand/orrecordanapprovedlegalinstrumentisalsosusceptibletoresolutionbyobtainingstaffapprovalofalegalinstrumentandsubsequentlyrecordingit.

Themaintenanceofpublicaccessareasfreefromstorageofrestaurantrelatedequipment.

Theprovisionofallrequiredpublicaccessimprovements(publicaccesstables,chairsandsigns).

UseofthepavilionincompliancewiththePermit(i.e.,292days/yearofunrestrictedpublicaccess,etc.).

2. NotSusceptible.Thefollowingviolationsarenotsusceptibletoremovalorresolution:

a. Themultitudeofpastpermitnon-compliantuses,suchasbutnotlimitedtotheprovisionoffewerthan292publicaccessdaysatthepavilion,from2004through2016andcontinuingthroughthepresent;

b. Thepastinstallation,storageanddisplayofunauthorizedstructuresandmaterialsintheBroadwayandFranklinStreetPlazas;

c. Thepastfailuretosubmitquarterlyreportsofproposedeventsinatimelymanner;

d. Thepastfailuretosubmitannualreportsinatimelymanner;and

e. Thefailuretoprovidealloftherequiredpublicaccesstables,chairsandsignsbetween2000andthepresent.

H. CosttoState.Theestimatedcoststothestateinpursuingthisenforcementactiontotalatleast1,109hoursandacostofover$83,224throughthedateofissuanceoftheViolationReport/Complaint,andadditionalcostshaveaccruedsincethattime.


I. WithRespecttotheViolator

1. AbilitytoPayandEffectonBusiness.Scott’shasprovided“profit/loss”financialstatementsthatincludeannualnetprofitfigures.Foreachofthethreemostrecentyears,2014-2016,Scott’searnedanaverageannualnetprofitofapproximately$548,549.Inaddition,inresponsetoasubpoenaissuedbytheExecutiveDirector,Scottshasproduceditsbalancesheetsfor2014and2015.ThosebalancesheetsincludethefollowingfiguresthatarerelevanttoScott’sabilitytopayandtheeffectofanypenaltyonitsabilitytocontinueinbusiness:

BalanceSheetDescription 2014 2015

InterCompanyAccount

Receivable(CurrentAsset)

$6,048,315 $6,646,394

TotalCurrentAssets 6,847,473 $7,229,226

RetainedEarnings $4,996,157 $5,394,308

TotalStockholdersEquity $5,975,582 $6,245,857

TheseaverageannualnetprofitandbalancesheetfiguresindicatethatScott’shastheabilitytopaythepenaltyimposedbytheCommission.

2. VoluntaryRemovalorResolution.TheCommissionfindsnoevidencethatScott’shasmadeanyeffectiveefforttovoluntarilyremovetheunauthorizedstructures.Instead,theevidencecitedonpages34through38intheViolationReport/ComplaintdemonstratesasteadypursuitofprojectcompletionandretentionofunauthorizedconstructionindirectcontradictiontotheinformationanddirectionprovidedbyBCDCstaff.Onthecontrary,Scott’shasprotractedthisenforcementmaterbyitsstubbornbeliefthatitcanperpetuallyoperatethepavilionindisregardofitspermitandthelaw.

3. PriorHistory.RespondentshavebeenrepeatedlyandconsistentlyviolatingthePermitandtheMPAsinceatleast2000asshownbytheevidencecitedintheViolationReport/ComplaintandthefindingsofthisOrder.

4. Culpability.Scott’sisfullyresponsibleandthusculpable.Scott’sexecutedthePermit,attestingthatitunderstoodthepermitconditions,andhasproceededfor15yearstoignoretherequirementsofitsPermitandtheMPA,aswellasthedirectionfrommanymembersoftheBCDCstaff.


5. EconomicSavings.TheCommissionisnotinapositiontoquantifyanyeconomicsavingstoRespondentsresultingfromtheviolations,butScott’shasclearlybenefittedeconomicallyfromdeferringremovaloftheunauthorizedconstructionatthepavilionwhilecontinuingtooverusethepavilionforprivateevents.Similarly,Scott’shasprofitedfromtheeventsinexcessof73peryearthatitholdsinthepavilion.

J. Suchothermattersasjusticemayrequire.NobusinesslocatedwithinBCDC’sjurisdictionotherthanScott’shasmadesuchextensiveuseofadedicatedpublicaccessspaceforprivateprofit.NootherbusinesswithinBCDC’sjurisdictionhassoflagrantly,extensively,andknowinglyviolatedthetermsofitsPermitandtheMPA.Moreover,asofthedateofthisOrder,allbutoneoftheviolations(planapproval)areongoingandRespondentshaveneitherremovedtheunauthorizedstructures,filedascompletethepermitamendmentapplicationsnecessarytoseekauthorizationfortheunpermittedconstruction,norceasedthenon-compliantandillegalusesofthepavilionandtheunpermittedusesoftheFranklinStreetPlaza.

K. BasedonconsiderationoftherelevantfactorssetforthinGovernmentCodeSection66641.9(a),thepenaltyamountsauthorizedbyGovernmentCodeSection66641.5(e),andtheprecedingfindings,theCommissionherebyfindsthatanadministrativecivilpenaltyof$841,180isjustifiedtoresolvethismatter.

L. PursuanttoGovernmentCodeSection66647,within30daysoftheEffectiveDateofthisOrder,RespondentsshallremitpaymenttotheCommission,bycashier’scheck,intheamountof$841,180,payabletotheSanFranciscoBayConservationandDevelopmentCommission–BayFillClean-UpandAbatementFund.

V. TERMS

A. UnderGovernmentCodeSection66641,anypersonwhointentionallyornegligentlyviolatesanyceaseanddesistorderissuedbytheCommissionmaybeliablecivillyinthesumofupto$6,000foreachdayinwhichsuchviolationspersist.Inaddition,uponthefailureofanypersontocomplywithanyceaseanddesistorderissuedbytheCommissionandupontherequestoftheCommission,theAttorneyGeneraloftheStateofCaliforniamaypetitionthesuperiorcourtfortheissuanceofapreliminaryorpermanentinjunction,orboth,restrainingthepersonorpersonsfromcontinuinganyactivityinviolationoftheceaseanddesistorder.

B. ThisOrderdoesnotaffectanyduties,right,orobligationsunderprivateagreementsorunderregulationsofotherpublicbodies.

C. Scott’sandthePort,mustconformstrictlytothisOrder.

D. ThisOrderdoesnotconstitutearecognitionofpropertyrights.

E. ThisOrderiseffectiveuponissuancethereof.

CommissionCeaseandDesistandCivilPenaltyOrderNo.CDO2017.01Page13 VI. OPPORTUNITYFORJUDICIALREVIEW

UnderGovernmentCodeSection66639,withinthirty(30)daysafterserviceofacopyofaceaseanddesistorderissuedbytheCommission,anyaggrievedpartymayfilewiththesuperiorcourtapetitionofwritofmandateforreviewoftheorderpursuanttoSection1094.5oftheCodeofCivilProcedure.Failuretofilesuchanactionshallnotprecludeapartyfromchallengingthereasonablenessandvalidityoftheorderinanyjudicialproceedingsbroughttoenforcetheorderorforothercivilremedies.

DATED:April___,2017 _______________________________

LAWRENCEJ.GOLDZBANDExecutiveDirector

SanFranciscoBayConservationandDevelopmentCommission

ListofAttachments

AttachmentA:AdditionalFindingsAttachmentB:RevisedIndexofAdministrativeRecord

ATTACHMENTA–ADDITIONALFINDINGSCOMMISSIONCEASEANDDESISTANDCIVILPENALTYORDER

NO.CDO2017.01

InsupportofandasthebasisforCommissionCeaseandDesistandCivilPenaltyOrderNo.CDO2017.01(“Order”),theCommissionherebyfinds,inadditiontothosefindingssetforthinSectionIIoftheOrder,asfollows:

I. INTRODUCTION

A. OnMarch6,1986,theCommissionissuedtothePortBCDCPermitNo.1985.019.00,fordevelopmentactivitiesalongasix-blocksectionofthePort’swaterfrontpropertybetweenJeffersonandHarrisonStreets,knownasJackLondonSquare.

B. OnFebruary13,1996,theCommissionissuedBCDCPermitNo.1985.019.08,whichaddedScott’s,atenantofthePort,tothePort’spermit,andauthorizedtheconstruction,useandmaintenanceofa4,400-square-footpavilion,inaportionoftheFranklinStreetPlaza,forsharedpublicandprivateuse,atarationof80%publicto20%private1,andtheinstallationofthecaféseating,benches,lightingandothersitefurnishingswithinthepavilionandthelargerapproximately23,000square-footFranklinStreetPlaza.

C. OnJuly8,1997,theCommissionsplitBCDCPermitNo.1985.019.08intotwopermits:

1. BCDCPermit1985.019.08A(hereafter“thePort’sPermit”)issuedsolelytothePortpertainstoallofJackLondonSquareexceptthepavilion;and

2. BCDCPermitNo.1985.019.08B(hereinafter“thePermit”)issuedtoScott’sandthePortpertainstoonlythepavilion.

D. OnOctober7,1997,theCommissionre-issuedthePermit,asBCDCPermitNo.1985.19.09B,tocorrecttheomissionofaspecialconditionthatoccurredduringthepermitsplit.ThePermithasnotbeenamendedsincethatdate.

II. ALLEGEDVIOLATIONS

TherearesevencategoriesofallegedviolationsdescribedinSectionsAthroughG,below.Thefollowinginformationisprovidedforeachcategory:(1)natureoftheviolations;(2)legalbasisfortheviolation;and(3)descriptionandevidenceofviolations.

A. ConstructionofUnpermittedDevelopment

1. NatureofViolations.Constructionofunpermitteddevelopmentconsistingofa:

a. Roofextensionwestofthepavilion;

b. Storageareaandstagewestofthepavilion;and

1Thepermitdoesnotdistinguishforandnonprofitevents;theybothconstituteprivateuseofapublicspace.

AttachmentAtoCommissionCeaseandDesistandCivilPenaltyOrderNo.CDO2017.01Page2

c. Metal-framedentrydoorway,woodandmetal-framedwall,multiplemoveablewallpanelsandceilingtracksinthepavilion.

2. LegalBasisforViolation.UnderCaliforniaGovernmentCodeSection66632(a),anypersonorgovernmentalagencywishingtoplacefill,toextractmaterials,ortomakeanysubstantialchangeinuseofanywater,landorstructure,withintheareaofthecommission'sjurisdictionshallsecureapermitfromthecommission.

3. DescriptionandEvidenceofViolations.Scott’sconductedthefollowingactivitieswithintheareaoftheCommission’sjurisdictionwithoutobtainingapermitorpermitamendment:

a. RoofExtensionWestofthePavilion.AsevidencedbyPortstaffmemberJulieBraun’sobservationsoutlinedinanemaildatedApril24,2015,andasshowninGoogleEarthaerialimagery,onoraboutMarch,2000,Scott’sconstructedaroofextensionjoiningitsbuildingtothepavilion.

b. StorageAreaandStageWestofthePavilion.AsevidencedbytheobservationsofMs.Braun,asdescribedinanemail,datedApril24,2015,toAdrienneKlein,ChiefofEnforcement,andasshowninphotographstakenbyEllenMiramontes,BayDesignAnalyst,duringasitevisitonMarch12,2013,onoraboutJuly,2011,Scott’sconstructeda255-squarefootstoragearea.

c. Metal-framedEntryDoorway,WoodandMetal-FramedWall,MultipleMoveableWallPanelsandCeilingTracksinthePavilion.AsevidencedbytheobservationsofTammyBorichevskyandKeithMiller,CaliforniaCanoeandKayak,inemails,datedFebruary25,March3,andMarch6,2013,thefirsttwoofwhichincludedphotographs,betweenDecember28,2012,andMarch6,2013,Scott’sconstructedapermanentwallinthenorthwestcornerofthepavilion,apermanentmetal-framedentrydoorwayontheeastsideofthepavilionandaretractablewallpanelsystemtoenclosethepavilion.

B. Non-permitCompliantUseofthePavilion.

1. NatureofViolations.Non-permitcompliantuseofthepavilionthroughexcessiveprivateuse:

a. MinimumNumberofPublicUseDays(annual).Providingfewerthan292publicusedaysperyear;

b. MinimumNumberofPublicUseWeekendDaysandNights2(winterseasonaverage).Providing,onaveragepermonthduringwinterseason(January–April,NovemberandDecember),fewerthanfive(5)publicuseweekenddaysandnights;

2PermitExhibitAdefines“weekendnights”asFridayandSaturdayand“weekenddays”asSaturdayandSunday,whichthisreportcollectivelyreferstoas“weekenddaysandnights”.


c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Holding,onaveragepermonthduringwinterseason,morethanfour(4)privateuseweekenddaysandnights;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Holding,onaveragepermonthduringsummerseason(May–October),morethanthree(3)privateuseweekenddaysandnights;

e. MinimumNumberofPublicUseWeekendDaysandNightsPerMonth.Providingfewerthanthree(3)publicuseweekenddaysandnightspermonth;and

f. MaximumNumberofConsecutivePrivateUseDays.Holdingmorethantwoconsecutiveprivateusedays.

2. LegalBasisforViolations.SpecialConditionII.BofthePermitandPermitExhibitA,entitled“GuidelinesforPrivateUseofPublicPavilion,”togethersetforththefollowingrequirements:

a. Thepavilionmustbepubliclyavailablefor292days/yearandmaybeprivatelyoccupiedforamaximumof73days/year;

b. Thepavilionmustbeavailableforpublicuseanaverageoffive(5)weekenddaysandnightspermonthduringthewinterseason;

c. Theaveragenumberofweekenddaysandnightsforprivateusemaynotexceedfour(4)weekenddaysandnightspermonthduringthewinterseason;

d. Theaveragenumberofweekenddaysandnightsforprivateusemaynotexceedthree(3)weekenddaysandnightspermonthduringthesummerseason;

e. Theremustbeatleastthree(3)weekenddaysandnightsavailableforpublicuseeverymonth;and

f. Theremustnotbemorethantwoconsecutiveprivateusedays.

3. DescriptionandEvidenceofViolations.StaffreliedondatafromthePort’spropertymanager,whodispatchedasecurityofficertomonitorpavilionuseonadailybasis,forthenon-permitcompliantusesofthepavilionthatoccurredin2004through2007and2012through2015.Between2008and2011,Port–generateddatawasnotprovided.IntheabsenceofdatafromthePort’spropertymanager,staffreliedondatafromScott’sforthenon-permitcompliantusesofthepavilionthatoccurredin2008through2011.3

3CommissionstaffbelievesthatthedatafromScott’sfor2008,2009,2010,and2011under-reportsprivatepavilionusebecausewhenevertwosetsofdataareavailable,thePortpropertymanager’sdatashowsmoreprivatepavilionusethanScott’sdata.


4. 2004.AsevidencedbytheinformationcontainedinthereportfromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,datedMarch31,2005,asadjustedbyCommissionstaff:4

a. MinimumNumberofPublicUseDays(annual).Thepavilionwasopenforpublicuseonly268oftherequired292days;

b. MinimumNumberofPublicUseWeekendDaysandNights(winterseasonaverage).NoViolation;

c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageoffive(5)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofseven(7)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

e. MinimumNumberofPublicUseWeekendDaysandNights(permonth).InMay,therewereonlytwo(2)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights;and

f. MaximumNumberofConsecutivePrivateUseDays.InMay,thereweresix(6)morethantwoconsecutiveprivateusedays.InJune,therewerefour(4)morethantwoconsecutiveprivateusedays.InAugust,thereweretwo(2)morethantwoconsecutiveprivateusedays.

5. 2005.AsevidencedbytheinformationcontainedinthereportfromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,datedMarch31,2006,asadjustedbystaff:5

4Incalculatingtheminimumnumberofpublicusedays,thePort’spropertymanagercountedtwoprivateeventsthatoccurredonthesamedayastwodaysofnon-publicuse.BCDCstaffhascountedeachofthese11dual-eventdaysasasingleprivateuseday,resultingin11morepublicaccessdaysthancalculatedbythePort’spropertymanager.

Incalculatingthethreemonthlyaverages,thePort’spropertymanagerandthestaffconductedtheircalculationsdifferentlyyetreachedthesameorsimilarconclusions.Theminordeviationsintheseresultsdonotaffectthedeterminationofwhetherornotaviolationhasoccurred.

ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicuseweekenddaysandnightspermonthnorthemaximumnumberofconsecutiveprivateusedays.5Incalculatingthethreemonthlyaverages,Port’spropertymanagerandthestaffconductedtheircalculationsdifferentlyyetreachedthesameorsimilarconclusions.Theminordeviationsintheseresultsdonotaffectthedeterminationofwhetherornotaviolationhasoccurred.

ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicuseweekenddaysandnightspermonthnorthemaximumnumberofconsecutiveprivateusedays.




c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageofsixandahalf(6.5)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofsevenandsixtenths(7.6)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

e. MinimumNumberofPublicUseWeekendDaysandNights(permonth).NoViolation;and

f. MaximumNumberofConsecutivePrivateUseDays.InAprilthereweresix(6)morethantwoconsecutiveprivateusedays.InMaytherewereeight(8)morethantwoconsecutiveprivateusedays.InJune,thereweretwo(2)morethantwoconsecutiveprivateusedays.InOctober,therewasone(1)morethantwoconsecutiveprivateusedays.InNovemberthereweretwo(2)morethantwoconsecutiveprivateusedays.InDecembertherewerenineteen(19)morethantwoconsecutiveprivateusedays.

6. 2006.AsevidencedbytheinformationcontainedinthereportfromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,datedFebruary22,2007,asadjustedbyCommissionstaff:6



6Incalculatingtheminimumnumberofpublicusedays,thePort’spropertymanagerdeterminedthattherewere286publicusedayswhereasstaff,reviewingthesamedata,determinedthattherewere266publicusedays.


ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicuseweekenddaysandnightspermonthnorthemaximumnumberofconsecutiveprivateusedays.


c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageoffiveandahalf(5.5)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofsixandahalf(6.5)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;


f. MaximumNumberofConsecutivePrivateUseDays.InMarchtherewereeight(8)morethantwoconsecutiveprivateusedays.InMay,therewasone(1)morethantwoconsecutiveprivateusedays.InOctober,thereweretwo(2)morethantwoconsecutiveprivateusedays.InNovember,thereweretwo(2)morethantwoconsecutiveprivateusedays.InDecember,therewerethree(3)morethantwoconsecutiveprivateusedays.

7. 2007.AsevidencedbytheinformationcontainedinthereportfromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,datedApril7,2008,asadjustedbyCommissionstaff:7



c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageoffourandahalf(4.5)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageoffourandahalf(4.5)[vs.the

7Incalculatingtheminimumnumberofpublicusedays,thePort’spropertymanagerdeterminedthattherewere258publicusedayswhereasstaff,reviewingthesamedata,determinedthattherewere278publicusedays.


ThePort’spropertymanagerdidnotcalculatethemaximumnumberofconsecutiveprivateusedays.


maximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;


f. MaximumNumberofConsecutivePrivateUseDays.InFebruarytherewasone(1)morethantwoconsecutiveprivateusedays.InMay,thereweretwo(2)morethantwoconsecutiveprivateusedays.InDecember,thereweresix(6)morethantwoconsecutiveprivateusedays.

8. 2008.AsevidencedbytheinformationcontainedinthereportpreparedbySteveHanson,Scott’sconsultant,datedJuly19,2013,asmodifiedbyCommissionstaff’scalculations:8



c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageoffourandeighttenths(4.8)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageoffiveandeighttenths(5.8)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;


f. MaximumNumberofConsecutivePrivateUseDays.InMarchtherewasone(1)morethantwoconsecutiveprivateusedays.InApril,thereweretwo(2)morethantwoconsecutiveprivateusedays.InMaytherewasone(1)morethantwoconsecutiveprivateusedays.InAugust,therewerethree(3)morethantwoconsecutiveprivateusedays.InOctober,thereweretwo(2)

8Scott’sdataconsistofalistof107events,thedateonwhichtheeventoccurred,andthehoursofdurationofeachevent.Thereporttotalsthenumberofhoursthatthe107eventslastedand,basedonthis,concludesthatthepavilionwasoccupiedfora19-dayperiod,orat5.35%ofcapacity.Scott’sreachedthisconclusionbycalculatingthetotalnumberofhoursthepavilionwasusedforprivateeventsanddividedthatnumberby24hours.Scott’smethodologyforcalculatingprivatepavilionuseisflawedbecauseanydaythepavilionissubjecttoanyprivateuseforanyamountoftimecountsasaprivateuseday.Staffconductedindependentcalculationsandreachedsignificantlydifferentconclusions.


morethantwoconsecutiveprivateusedays.InDecember,thereweretwo(2)morethantwoconsecutiveprivateusedays.

9. 2009.AsevidencedbytheinformationcontainedintheundatedreportfromScott’ssubmittedbyJohnBriscoewithaletter,datedJune20,2013,asadjustedbyCommissionstaff:9

a. MinimumNumberofPublicUseDays(annual).Noviolation;


c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).NoViolation;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofthreeandeighttenths(3.8)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober:


f. MaximumNumberofConsecutivePrivateUseDays.InOctoberthereweretwo(2)morethantwoconsecutiveprivateusedays.InDecember,therewasone(1)morethantwoconsecutiveprivateusedays.

10.2010.AsevidencedbytheinformationcontainedintheundatedreportfromScott’ssubmittedbyJohnBriscoewithaletter,datedJune20,2013,asadjustedbyCommissionstaff:10




d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageoffour(4)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

9Scott’sdataconsistofalistofun-numberedevents,andthedateonwhichtheeventoccurred.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.10Scott’sdataconsistofalistofun-numberedeventsandthedateonwhichtheeventoccurred.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.



f. MaximumNumberofConsecutivePrivateUseDays.InApril,therewerefortwo(2)morethantwoconsecutiveprivateusedays.InMaytherewasone(1)morethantwoconsecutiveprivateusedays.InJunetherewasone(1)morethantwoconsecutiveprivateusedays.InOctober,therewereforfour(4)morethantwoconsecutiveprivateusedays.InNovember,therewasone(1)morethantwoconsecutiveprivateusedays.InDecember,therewasone(1)morethantwoconsecutiveprivateusedays.

11.2011.AsevidencedbytheinformationcontainedintheundatedreportfromScott’ssubmittedbyJohnBriscoewithaletter,datedJune20,2013,asadjustedbyCommissionstaff:11




d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageoffiveandonetenth(5.1)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;and


f. MaximumNumberofConsecutivePrivateUseDays.InMarchtherewasone(1)morethantwoconsecutiveprivateusedays.InMay,thereweretwo(2)morethantwoconsecutiveprivateusedays.InJulytherewasone(1)morethantwoconsecutiveprivateusedays.InSeptember,thereweretwo(2)morethantwoconsecutiveprivateusedays.InNovember,therewasone(1)morethantwoconsecutiveprivateusedays.InDecember,thereweretwo(2)morethantwoconsecutiveprivateusedays.

12.2012.AsevidencedbytheinformationcontainedinthereportfromMichaelMeyer,Director,Cushman&WakefieldofCalifornia,Inc.,datedApril18,2013,asadjustedbyCommissionstaff:12

11Scott’sdataconsistofalistofun-numberedeventsandthedateonwhichtheeventoccurred.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.




c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageofnine(9)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofeightandhalf(8.5)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

e. MinimumNumberofPublicUseWeekendDaysandNights(permonth).InMarch,therewasonlyone(1)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights.InMay,therewerezero(0)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights.InSeptember,therewereonlytwo(2)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights.InDecember,therewerezero(0)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights;and

f. MaximumNumberofConsecutivePrivateUseDays.InJanuary,therewasone(1)morethantwoconsecutiveprivateusedays.InFebruary,thereweretwo(2)morethantwoconsecutiveprivateusedays.InMarch,therewere15morethantwoconsecutiveprivateusedays.InApril,therewere10morethantwoconsecutiveprivateusedays.InMay,therewere19morethantwoconsecutiveprivateusedays.InJune,thereweretwo(2)morethantwoconsecutiveprivateusedays.InJuly,thereweresix(6)morethantwoconsecutiveprivateusedays.InAugust,therewerefour(4)morethantwoconsecutiveprivateusedays.InSeptember,therewere15morethantwoconsecutiveprivateusedays.InOctober,therewerefour(4)morethantwoconsecutiveprivateusedays.InNovember,thereweresix(6)morethantwoconsecutiveprivateusedays.InDecember,whenconstructionofthenewpavilionenclosurecommenced,thereweretwenty-nine(29)morethantwoconsecutiveprivateusedays.

12ThePort’spropertymanagerdeterminedthattherewere182privateusedays.ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicusedays.ThePort’spropertymanagerstatesthatScott’sexceededthenumberofconsecutiveprivateusedaysbutdidnotprovidethisoranyothercalculations.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.


13.2013.AsevidencedbytheinformationcontainedinthereportfromJenniferKoidal,GeneralManager,Cushman&WakefieldofCalifornia,Inc.,datedMarch12,2014,asadjustedbyCommissionstaff:13


b. MinimumNumberofPublicUseWeekendDaysandNights(winterseasonaverage).Onaverage,Scott’sprovidedonlyfourandsixtenths(4.6)[vs.theminimumoffive(5)]publiclyavailableweekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageofeightandsixtenths(8.6)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofsixandonetenths(6.1)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

e. MinimumNumberofPublicUseWeekendDaysandNights(permonth).InJanuary,therewerezero(0)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights.InFebruary,therewerezero(0)[vs.theminimumthree(3)]requiredpublicuseweekenddaysandnights;and

f. MaximumNumberofConsecutivePrivateUseDays.InJanuary,thereweretwenty-nine(29)morethantwoconsecutiveprivateusedays.InFebruary,thereweretwenty-eight(28)morethantwoconsecutiveprivateusedays.InMarch,whenconstructionofthenewpavilionenclosurewascompleted,therewereeleven(11)morethantwoconsecutiveprivateusedays.InApril,therewerefive(5)morethantwoconsecutiveprivateusedays.InOctober,therewerethree(3)morethantwoconsecutiveprivateusedays.InNovember,therewasone(1)morethantwoconsecutiveprivateusedays.InDecember,thereweresixteen(16)morethantwoconsecutiveprivateusedays.

13ThePort’spropertymanagerdeterminedthattherewere153privateusedays.ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicusedays.ThePort’spropertymanagerstatesthenumberofweekenddaysandnightsthatthepavilionwasinprivateusebutitdoesnotcalculatetherequiredaverages.ItstatesthatScott’sexceededthenumberofconsecutiveprivateusedaysbutdidnotprovidethisoranyothercalculations.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.


14.2014.AsevidencedbytheinformationcontainedinthereportfromMichaelMeyer,Director,Cushman&WakefieldofCalifornia,Inc.,datedMarch16,2015,asadjustedbyCommissionstaff:14



c. MaximumNumberofPrivateUseWeekendDaysandNights(winterseasonaverage).Scott’susedthepavilionanaverageoffive(5)[vs.themaximumoffour(4)]weekenddaysandnightsinthemonthsofJanuary,February,March,April,NovemberandDecember;

d. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageoffourandfivetenths(4.5)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;


f. MaximumNumberofConsecutivePrivateUseDays.InApril,therewerefive(5)morethantwoconsecutiveprivateusedays.InMay,therewerethree(3)morethantwoconsecutiveprivateusedays.InJune,therewasone(1)morethantwoconsecutiveprivateusedays.InOctober,therewerethree(3)morethantwoconsecutiveprivateusedays.InNovember,therewasone(1)morethantwoconsecutiveprivateusedays.InDecember,therewerefive(5)morethantwoconsecutiveprivateusedays.

15.2015.AsevidencedbytheinformationcontainedinthereportfromJenniferKoidal,VicePresidentandGeneralManager,CIMGroup,datedJuly18,2016,asadjustedbyCommissionstaff:15

14ThePort’spropertymanagerdeterminedthattherewere97privateusedays.ThePort’spropertymanagerdidnotcalculatetheminimumnumberofpublicusedays.ThePort’spropertymanagerstatesthenumberofweekenddaysandnightsthatthepavilionwasinprivateusebutitdoesnotcalculatetherequiredaverages.ItstatesthatScott’sexceededthenumberofconsecutiveprivateusedaysbutdidnotprovidethisoranyothercalculations.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.15ThePort’spropertymanagerdidnotcalculatetherequiredaveragenumberofweekenddaysandnightsthatthepavilionwasinprivateuse,butitdoesnotcalculatetherequiredaverages.ItstatesthatScott’sexceededthenumberofconsecutiveprivateusedays,closedtheretractablewallpanelstoosoonbeforesomeeventsandopenedthemtoolongaftertheendofsomeevents,andlapsedinmaintenanceoffloorandfurniture.Staffconductedindependentcalculationstoreachtheconclusionscitedherein.


a. MaximumNumberofPrivateUseWeekendDaysandNights(summerseasonaverage).Scott’susedthepavilionanaverageofthreeandsixtenths(3.6)[vs.themaximumofthree(3)]weekenddaysandnightsinthemonthsofMaythroughOctober;

b. MaximumNumberofConsecutivePrivateUseDays.InFebruary,therewasone(1)morethantwoconsecutiveprivateusedays.InMay,therewerethree(3)morethantwoconsecutiveprivateusedays.InOctober,therewerefour(4)morethantwoconsecutiveprivateusedays.InDecember,therewasone(1)morethantwoconsecutiveprivateusedays.

C. UnpermittedUseoftheFranklinandBroadwayStreetPlazas16

1. NatureofViolations.Theinstallation,storageordisplayofunauthorizedstructuresasfollows:

a. UnauthorizeduseoftheBroadwayStreetPlazabydisplayingapromotionalvehicleadjacenttothemainrestaurantentrance.

b. UnauthorizeduseoftheFranklinStreetPlaza(outsidethepavilionboundary)byinstallingeventtents,stanchions,andplantersandbystoringevent-relatedequipmentincludingplanters.

2. LegalBasisforViolations.UnderCaliforniaGovernmentCodeSection66632(a),anypersonorgovernmentalagencywishingtoplacefill,toextractmaterials,ortomakeanysubstantialchangeinuseofanywater,landorstructure,withintheareaofthecommission'sjurisdictionshallsecureapermitfromthecommission.

3. DescriptionandEvidenceofViolations.Scott’sconductedthefollowingactivitieswithintheareaoftheCommission’sjurisdictionwithoutobtainingapermitorpermitamendment:

a. AsevidencedbyanemailfromSteveFagalde,SeniorVicePresident,Scott’s,toJulieBraun,datedDecember16,2011,fora30-dayperiodeachsummeroftheyears2000through2011,Scott’sparkedapromotionalvehicleintheBroadwayStreetPlaza.Thistotals330days.

b. AsevidencedbythephotographscontainedinthereportfromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,datedMarch31,2005:

(1) OnMay8,2003,Scott’sinstalledatentintheFranklinStreetPlaza.

(2) OnMay9,2003,Scott’sinstalledatentandstanchionsintheFranklinStreetPlaza.

16BoththeFranklinandBroadwayStreetPlazasarededicatedpublicaccessareassubjecttotherequirementsofthePort’sPermit.


(3) OnMay10,2003,Scott’sinstalledatent,stanchionsandplantersintheFranklinStreetPlaza.

(4) OnMay23,2003,Scott’sinstalledatentandstanchionsintheFranklinStreetPlaza.

(5) OnMay25,2003,Scott’sinstalledatentintheFranklinStreetPlaza.

(6) OnSeptember20,2003,Scott’sinstalledatent,stanchionsandplantersintheFranklinStreetPlaza.

c. Forafive-dayperiodbetween9:00amonDecember7,and9:00amonDecember12,2012,Scott’sinstalledatentintheFranklinStreetPlaza,asevidencedby:(a)SecurityOfficerTimCrosby’snotescontainedinthereportsubmittedbyJenniferKoidal,GeneralManager,CushmanandWakefield,datedMarch12,2014;and(b)Aphotographattachedtoanemail,datedDecember19,2012,fromMaryannStarn,GeneralManager,CushmanandWakefieldtoBCDCstaff.

d. AsevidencedbyaphotographattachedtoanemailofthesamedatetoMr.FagaldefromMs.Starn,CushmanandWakefield,onDecember19,2012,Scott’sinstalledanentrydoorwayandcarpetedwalkwaywithrailingsintheFranklinStreetPlazaadjacenttothepavilion.

e. AsevidencedbyphotographstakenbyLeeHuo,SanFranciscoBayTrail,attachedtoanemailofthesamedate,onFebruary10,2014,Scott’sstoredeventrelatedequipmentandplacedplantersintheFranklinStreetPlaza.

f. AsevidencedbyphotographstakenbyKeithMiller,CaliforniaCanoeandKayak,sometimebeforeFebruary25,2013,Scott’sinstalledatentintheFranklinStreetPlaza,apparentlyforconstructionstaging.

g. AsevidencedbyphotographstakenbyMr.Miller,CaliforniaCanoeandKayak,onApril28,2013,Scott’sinstalledplantersintheFranklinStreetPlaza.

h. OnApril30andMay1,2013,Scott’sinstalledtentsintheFranklinStreetPlaza,asevidencedby:(a)UniversalProtectionServices’SecurityOfficerAlanHumphrey’snotesinthereportsubmittedbyMs.Koidal,CushmanandWakefield,datedMarch12,2014;and(b)PhotographstakenbyMr.Miller,CaliforniaCanoeandKayak.

i. AsevidencedbyfourphotographstakenbySecurityOfficerHumphrey,submittedtoJulieBraun,Port,byemail,datedMay22,2013,fora26-hourperiodbeginningonMay19,2013,andendingonMay20,2013,Scott’serectedatentintheFranklinStreetPlaza.

j. AsevidencedbyUniversalProtectionServices’SecurityOfficerDominicWade’snotesinthereportsubmittedbyMs.Koidal,CushmanandWakefield,dated


March12,2014,fora24-hourperiodbeginningat7:00amonJune8,2013,andendingonJune9,2013,Scott’serectedatentintheFranklinStreetPlaza.

k. AsevidencedbyobservationsofthestaffofthePortofOaklandandsummarizedinaletterdatedJuly18,2013,fromAdrienneKlein,BCDC’sChiefofEnforcement,toJohnBriscoe,Briscoe,IvesterandBazelLLP,Scott’sformercounsel,foratleasta36-dayperiodfromJune12thtoJuly18,2013,Scott’sstagedapromotionalvehicleintheBroadwayPlaza.

l. AsevidencedbyaphotographattachedtoaletterdatedDecember19,2013,toMr.FagaldefromMs.Koidal,GeneralManager,CushmanandWakefield,onDecember18,2013,Scott’serectedatentintheFranklinStreetPlaza.

m. AsevidencedbyphotographstakenbyMs.Kleinduringasitevisit,onJanuary21,2014,unauthorizedplantersandotherequipment,includingthepublictablesandchairs,werestoredintheFranklinStreetPlaza.

n. OnApril28,2014,Scott’serectedatentintheFranklinStreetPlaza(southofthepavilion)andalsoplacedpipesandladdersintheFranklinStreetPlaza,creatingnon-publicconditions,asevidencedby:(a)thephotographattachedtotheletter,datedApril30,2014,toMr.FagaldefromJenniferKoidal,CushmanandWakefield;(b)observationsbySeanPalmer,GeneralManager,Kincaid’sRestaurant;and(c)observationsbyTammyBorichevsky,CaliforniaCanoeandKayak,inanemaildatedApril28,2014.

o. AsevidencedbythelettertoMr.Fagalde,datedJuly2,2014,fromMoniqueScott,AssistantPropertyManager,CushmanandWakefield,onJuly2,2014,Scott’sstagedapromotionalvehicleintheBroadwayStreetPlaza.

p. AsevidencedbyMs.Klein’sobservationsduringasitevisitonSeptember19,2014,anddocumentedwithphotographs,thefollowingconditionsexistedatthepublicpavilion:

(1) Despitebeingpubliclyavailable,twooftheretractablewallpanelswereinplacealongthesouthern,watersideofthepavilion;

(2) Sevenunauthorizedplanterswereinplace,twonexttothestage/storageareaandfiveinthePort’spublicaccessareanearthesouthernexitdoorfromtherestaurant;

(3) Severalunauthorizedbencheswerelocatedinsidethepavilioninlinewiththestructuralsupportcolumns;and

(4) Anhydraulicjackwasstoredinthenorthwestcornerofthepavilion.

q. Forapproximately40hoursbeginningat8:20amonDecember7,2014,andendingatmidnightonDecember8,2014,Scott’serectedatentintheFranklinStreetPlazaandplacedplantersandstanchions,asevidencedby:(a)Universal


ProtectionServices’SecurityOfficerRashemaJacobs’notesinthereport,datedMarch16,2015,fromMs.Koidal,CushmanandWakefield;and(b)threephotographssubmittedbyMr.Miller,CaliforniaCanoeandKayak,viaemailonDecember8,2014.

r. AsevidencedbySecurityOfficerRashemaJacobs’notesinthereport,datedMarch16,2015,fromMs.Koidal,CushmanandWakefield,forapproximately15hoursbeginningat8:25amonDecember16,2014,Scott’serectedatentintheFranklinStreetPlaza.

s. AsevidencedbyKeithMiller’sandJenniferKoidal’sobservationsonSeptember21,2015,Scott’serectedaredcarpet,stanchionsanddiningtablesintheFranklinStreetPlaza.

t. AsevidencedbyphotographstakenbyAdeBararionAugust14,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,Scott’splacedelevenplanters(10terracottaandonemetal)intheFranklinStreetPlaza.

u. AsevidencedbyphotographstakenbyTammyBorichevskyandsubmittedbyKeithMilleronAugust15,2016,Scott’sstoredfourstacksofprivatediningtables,twoservingtables,onemechanicallift,andplacedsevenplanters(fiveterracottaandonemetal)intheFranklinStreetPlaza.

v. AsevidencedbyphotographstakenbyMarkMadambaonAugust16,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,Scott’splacedeightterracottaplantersandonemechanicalliftintheFranklinStreetPlaza.

w. AsevidencedbyphotographstakenbyMarkMadambaonAugust17,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,Scott’splacedfourterracottaplantersandonemechanicalliftintheFranklinStreetPlaza.

D. UntimelySubmittalofPrivateEventSchedules

1. NatureofViolations

a. FailurebyScott’stosubmittothePortbythe1stofJanuary,April,JulyandOctoberofeachyear,aquarterlycalendarofevents;and

b. FailurebythePorttosubmittoBCDCbyMarch1stofeveryyear,asummaryofthescheduledeventsforthepreviousyear;and

c. Holdingunscheduledevents.

2. LegalBasisForViolations.SpecialConditionII.BofthepermitincludingPermitExhibitA,entitled“GuidelinesforPrivateUseofPublicPavilion,”setsforththefollowingrequirements:

a. QuarterlyCalendarofEvents.Bythe1stofJanuary,April,JulyandOctoberofeachyear,Scott’smustsubmitaquarterlycalendarofeventstothePort.


b. AnnualSummaryofEvents.ByMarch1stofeveryyear,thePortmustsubmitasummaryofthescheduledeventsforthepreviousyeartoBCDC.

c. UnscheduledEvents.Theholdingofaneventwithinthepavilionorpublicaccessplazanotlistedinthescheduleofevents,ortheapprovalofascheduleofeventsthatisinconsistentwiththePermitExhibitA,GuidelinesforPrivateUseofthePavilion,isprohibited.

3. DescriptionandEvidenceofViolations.

a. QuarterlyCalendarofEvents17:

(1) Scott’sdidnotsubmita2013firstquartercalendarofevents.OnApril5,2013(andagainonOctober1,2013,revised),Scott’ssubmitteda“committed”calendarofeventsfromApril3rdthroughDecember2013,asevidencedbyanemailfromJenniferKoidal,datedJuly13,2015,whichrendersthesefourreportsacumulativetotalof97dayslate,asofJuly1,2016;

(2) OnJanuary13,2014,Scott’ssubmitteditsfirstquartercalendarofevents.OnMarch5,2014,Scott’ssubmitteditssecondquartercalendarofevents.OnOctober1,2014,Scott’ssubmittedathirdandfourthquarterly“activityreport”,asevidencedbyanemailfromJenniferKoidal,datedJuly13,2015,whichrendersthesefourreportsacumulativetotalof104dayslate;

(3) OnJanuary16,2015,Scott’ssubmitteditsfirstquartercalendarofevents.OnJune9,2015,Scott’ssubmitteditssecondquartercalendarofevents.OnJuly1,2015,Scott’ssubmitteditsthirdquartercalendarofevents.Scott’sdidnotsubmita2015fourthquartercalendarofevents,asevidencedbyanemailfromJenniferKoidal,datedJuly13,2015,whichrendersthesethreereportsacumulativetotalof357dayslate,asofJuly1,2016.

(4) Scott’sdidnotsubmita2016firstquartercalendarofevents.OnApril27,2016(andagainonMay18,2016,revised),Scott’ssubmitteditssecondquartercalendarofevents.OnApril27,2016,Scott’ssubmitteditsthird18quartercalendarsofevents,asevidencedbyanemailfromJenniferKoidal,datedJuly18,2016,whichrendersthesethreereportsacumulativetotalof208dayslate,asofJuly1,2016.

17Followingtheissuanceofanenforcementletter,datedMay16,2013,thePermitteessubmittedtheannualreportsforYears2008through2012onJune20,2013,rangingfromfiveyearstothreemonthspastdue.Asdescribedinstaff’sresponsetothissubmittal,datedJuly18,2013,staffacceptedtheannualreportsasretroactivefulfillmentoftherequirementtoprovidethequarterlyreportsandthePermitteesaccruednostandardizedfinesforthese24violationsbecausetheysubmittedthereportswithin35daysofstaff’senforcementletter,datedMay16,2013.18Scott’salsosubmitteditsfourthquarterreportonApril27,2016.


b. AnnualSummaryofEvents.ThecumulativetotalnumberofdayslatethatthePermitteeshavesubmittedtheannualsummariesofeventsis230daysasoutlinedbelow:

(1) In2003,thePermitteessubmittedtheannualsummaryofevents54dayslate,asevidencedbytheletter,datedApril23,2004,fromRhondaHirata,CushmanandWakefield,toAdrienneKlein.

(2) In2004,thePermitteessubmittedtheannualsummaryofevents30dayslate,asevidencedbytheletter,datedMarch31,2005,fromRhondaHirata,JackLondonSquareMarketing,toAdrienneKlein.

(3) In2005,thePermitteessubmittedtheannualsummaryofevents30dayslate,asevidencedbytheletter,datedMarch31,2006,fromRhondaHirata,JackLondonSquareMarketing,toAdrienneKlein.

(4) In2006,thePermitteessubmittedtheannualsummaryofevents53dayslate,asevidencedbytheletter,datedFebruary22,2007,fromRhondaHirata,JackLondonSquareMarketing,toAdrienneKlein.

(5) In2007,thePermitteessubmittedtheannualsummaryofevents37dayslate,asevidencedbytheletter,datedApril7,2008,fromBrianLee,CushmanandWakefield,toAdrienneKlein.19

(6) In2013,thePermitteessubmittedtheannualsummaryofevents11dayslate,asevidencedbytheletter,datedMarch12,2014,fromJenniferKoidal,CushmanandWakefieldtoAdrienneKlein.

(7) In2014,thePermitteessubmittedtheannualsummaryofevents15dayslate,asevidencedbytheletter,datedMarch16,2015,fromJenniferKoidal,CushmanandWakefieldtoAdrienneKlein.

(8) In2015,thePermitteessubmittedtheannualsummaryofevents149dayslate,asevidencedbytheletter,datedJuly18,2016,fromJenniferKoidal,CIMGrouptoAdrienneKlein.

E. FailuretoDedicatethePavilionPublicAccessArea

1. NatureofViolation.Failuretodedicatetherequiredpublicaccessareabeforecommencementofconstructionofthepavilion.

19Followingtheissuanceofanenforcementletter,datedMay16,2013,thePermitteessubmittedtheannualreportsforYears2008through2012onJune20,2013,rangingfromfiveyearstothreemonthspastdue.Asdescribedinstaff’sofresponsetothissubmittal,datedJuly18,2013,thePermitteesaccruednostandardizedfinesfortheseviolationsbecausetheysubmittedthereportswithin35daysofstaff’senforcementletter,whichisapenalty-freeperiodwithinwhichaviolatormayresolveaviolation,asprovidedforbyCommissionRegulation11386.


2. LegalBasisforViolation.SpecialConditionII.B.3,PermanentGuarantee,requiresthePermitteestodedicatethe4,400-square-footpublicaccessareaknownasthepavilionpriortothecommencementofconstruction.


a. SometimebetweenFebruary13,1996,thedateofissuanceofthepermitamendmentthatauthorizedthepavilionand2000,exactdateunknown,thePermitteescommencedandcompletedconstructionofthepavilion.

b. ByletterdatedMay16,2013,Ms.KleinnotifiedthePermitteesthattheyhadfailedtodedicatethe4,400-square-footpublicaccessarea.

c. FollowingnotificationofthisPermitviolation,betweenMay16andSeptember11,2013,thePermitteespreparedseveraldraftlegalinstrumentsforstaff’sreview.

d. OnSeptember11,2013,BCDCLegalInternSimranMahalconditionallyapprovedadraftlegalinstrument,asevidencedbyanemailofthesamedatetoPeterProws,Briscoe,Ivester&Bazel,LLP,counseltoScott’s.

e. BetweenSeptember11andDecember13,2013,thePermitteesdeterminedthattheareacoveredbytheleasebetweenthePortandScott’sdoesnotoverlapwiththeboundaryofthepavilion.

f. InaseriesofemailmessagesbetweenApril18andJuly24,2014,DeputyPortAttorneyJoshuaSafranraisedanumberofissuesregardingthetermsofthededicationofthepavilionasapublicaccessarea.ThemostsignificantoftheseissueswasaproposalbyMr.Safranthat,duetorestrictionsonthePort’sabilitytoencumbertidallandsconveyedtoitbytheStateofCalifornia,thetermofthepublicaccessdedicationtobemadebyScott'sandthePortbelimitedto66-years.CommissionStaffCounselJohnBowersrespondedtothisproposalbypointingoutthatthatPort'sproposalwasbasedonamisconceptionastothetermofthededicationrequiredbythePermit,whichMr.Safranhadcharacterizedas"permanent"or"perpetual."AsMr.BowersadvisedMr.Safran,thetermofthededicationrequiredbythePermitisnotinfact"permanent,"butrather,pursuanttosection10503(c)oftheCommission'sregulations,islimitedtothedurationofthepermitandoftheimprovementsthatitauthorizes.Mr.BowersfurtheradvisedMr.SafranthatanychangeinthetermsofthePermit,suchasachangeinthetermordurationofthepublicaccessdedicationrequiredbythePermit,couldonlyoccurbymeansofanamendmenttothePermit,andthatanylimitationonthetermofthePermit'sdedicationrequirementwouldneedtobeaccompaniedbyacorrespondingchangeorreductioninthetermofthePermititself.


g. AsofthedateofthisOrder,theCo-Permitteeshaveneitherdedicatedthe4,400-square-footpublicaccessareainthemannerrequiredbythePermitnorsubmittedanapplicationtoamendthePermittochangetheterms,includingduration,ofthePermit'sdedicationrequirement.

F. FailuretoProvideAlloftheRequiredPublicAccessImprovementsDuringPublicUseDays

1. NatureofViolation.Failuretoinstallandmaintainonacontinuousbasissincethedateofissuanceofthepermitalloftherequiredpublicaccessimprovementswhenthepavilionwasopen.

2. LegalBasisofViolation

a. SpecialConditionII.B.5.c,PublicAccess,requiresthePermitteestoinstall“[a]tleastfour…publicaccesssigns,twopermanentandtwotemporary,tofacilitateshorelinepublicaccessbetweenFranklinStreetandBroadwayontheBaysideofScott’sRestaurant.Thetemporarysignsshallbeinstalledandremovedwhenapprovedprivateeventsareheld.”20

b. SpecialConditionII.B.5.d,PublicAccess,requiresthePermitteestoinstall“[a]tleast15tablesand35chairs…tobeinplaceatalltimes,exceptwhenthepavilionisneededforapprovedprivateeventsorotherapprovedpublicevents.”


a. AsevidencedbypersonalobservationsofKeithMiller,CaliforniaCanoeandKayak,andJulieBraun,Port,inemailsdatedApril16and24,2015,respectively,Scott’sfailedtoinstallalloftherequiredtables,chairsandsignsfora13-yearperiodfromJanuary1,2000throughJuly22,2013;

b. Asevidencedbyaphotograph,datedJuly22,2013,takenbyMr.FagaldeandsubmittedbyPeterProws,Briscoe,IvesterandBazelLLP,formercounseltoScott’s,onJuly22,2013,Scott’spartiallyresolvedthisviolationbyinstallingtablesandchairs;

c. AsevidencedbyMs.Klein’sobservationsduringasitevisitonSeptember19,2014anddocumentedwithphotographs,therequiredtablesandchairswerenotprovided;

d. Asevidencedbytwoemails,datedApril16,2014,andApril30,2015,bothfromKeithMiller,Scott’shasfailedtoinstallthemoveable“PublicShore”signsalongsidethepublictablesandchairs;and

20Onepublicaccesssignshallbeinstalledattheentrancetothegangwayleadingtothekayaklaunchfloatthatdescribestherulesandhoursforpublicuseofthekayaklaunchfloat.


e. AsevidencedbyphotographstakenbyRobertHowardonAugust13,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,therequiredmoveablepublicshoresignswerenotlocatedinthepavilionadjacenttothetablesandchairs.

f. AsevidencedbyphotographstakenbyAdeBakarionAugust14,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,therequiredmoveablepublicshoresignswerenotlocatedinthepavilionadjacenttothetablesandchairs.

g. AsevidencedbyphotographstakenbyMarkMadambaonAugust15,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,therequiredmoveablepublicshoresignswerenotlocatedinthepavilionadjacenttothetablesandchairs;onesignwasplacedbaywardandoutsidetheperimeterofthepavilionnexttothebenchoverlookingtheBay.

h. AsevidencedbyphotographstakenbyMarkMadambaonAugust16,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016,therequiredmoveablepublicshoresignswerenotlocatedinthepavilionadjacenttothetablesandchairs.

i. Asevidencedbyanemail,datedAugust16,2016,fromTammyBorichevskyandKeithMiller,Scott’shasfailedtoinstallbothmoveable“PublicShore”signsalongsidethepublictablesandchairs.

G. FailuretoObtainPlanApprovalPriortoInstallationofPublicAccessImprovements

1. NatureofViolation.FailuretoobtainwrittenplanapprovalfromtheBCDCstaffinadvanceofinstallingpublictablesandchairs.

2. LegalBasisofViolations.SpecialConditionII.A,SpecificPlansandPlanReview,ofthePermitstates,inpart,that“[n]oworkwhatsoevershallbecommenced…untilfinalprecise…planinformationforthatportionoftheworkhavebeensubmittedto,reviewedandapprovedinwritingbyoronbehalfoftheCommission.Thespecificdrawingsandinformationrequiredwillbedeterminedbythestaff.”


a. Asevidencedbythephotograph,datedJuly22,2013,takenbySteveFagaldeandsubmittedbyMr.Prows,onJuly22,2013,Scott’sinstalledtherequiredpublicaccesstablesandchairspriortoreceivingBCDCstaffreviewandapprovaloftheplansrequiredbySpecialConditionII.AofthePermit.

b. ByemailtoMs.Klein,datedSeptember19,2013,Mr.Prowssubmittedasetofdesignspecificationsforthe15publicaccesstablesand35chairs.


c. ByemailtoMs.Klein,datedOctober15,2013,Mr.ProwssubmittedaproposedpublicaccesssignageplanasrequiredbySpecialConditionII.B.5.cofthePermit.21

d. ByemailtoMs.Klein,datedOctober16,2013,Mr.Prowssubmittedaplan-viewillustrationshowingtheproposedlocationsofthepublicfurnitureforstaff’sreviewandapproval.22

e. BylettertoMr.Prows,datedOctober18,2013,Ms.Miramontesretroactivelyapprovedthedesignspecificationsforthepublicaccesstablesandchairsandrequestedchangestothesignageplan.

f. ByemailtoMs.Miramontes,datedOctober30,2013,Mr.Prowssubmittedarevisedsignageplan.23

g. BylettertoMr.ProwsdatedNovember19,2013,Ms.Miramontesapprovedthesignageplans,whichresolvedthisviolation.

21Theplans,whicharenotdatedanddonotindicatewhopreparedthem,havethefollowingtitles:“PublicPavilionRegulatorySigns:Location/SitePlan,”“PublicPavilionRegulatorySigns:ExhibitPlan”and“PublicPavilionRegulatorySigns:ExhibitPlan,SignSpecifications.”22Theplans,whicharenotdatedanddonotindicatewhopreparedthem,havethefollowingtitles:“PublicPavilionTableandChairExhibit”and“PublicPavilionTableandChairExhibit,Page2.”23Theplansareentitled“PublicPavilionRegulatorySignSpecifications,”datedOctober22,2013,andpreparedbySteveHanson.

Page1

DocumentDescription Date1 BCDCPermitNo.1985.019.08A 2/13/962 BCDCPermitNo.1985.019.09B 10/7/974 LetterandreportfromRhondaHirata,CushmanandWakefield,toAdrienneKlein,datedApril23,2004 4/23/04

5LetterandreportFromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,DatedMarch31,2005 3/31/05

6LetterandreportFromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,DatedMarch31,2006 3/31/06

7LetterandreportFromRhomdaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,DatedFebruary22,2007 2/22/07

8LetterandreportFromRhondaHirata,Director,ExternalCommunications,JackLondonSquareMarketing,DatedApril7,2008 4/7/08

9 CommunicationbetweenBCDCstaffandpermittees,datedDecember14,2011andJanuary13,2012 12/14/2011,1/13/201210 EmailfromSteveFagalde,SeniorVicePresident,Scott's,toJulieBraun,datedDecember16,2011 12/16/11

11

CommunicationsbetweenBCDCstaffandpermittees,datedFebruary1(meeting),March9(meeting),March12(submittalfromScott's),March26(lettertoScott's),July10(meeting),August23(letterfromScott's),September12(lettertoScott's),October28(submittalfromScott's),andNovember20(lettertoScott's),2012

2/1/12,3/9/12,3/12/12,3/26/12,7/10/12,8/23/12,9/12/12,10/28/12,11/20/12

12Photographande-mailtoBCDCstaff,datedDecember19,2012,fromMaryannStarn,GeneralManager,CushmanandWakefieldtoBCDC 12/19/12

13Photographande-mailtoMr.FagaldefromMaryannStarn,CushmanandWakefield,datedDecember19,2012 12/19/12

14

CommunicationsbetweenBCDCstaffandpermittees,datedJanuary9,January16(emailandaletter),February27,March14(planreview),May30(sitevisitnotesandletter),June3,September3,September5,September6(letter),September30(applications),October29(letter),andNovember25,2013

1/9/13,1/16/13,2/27/13,3/14/13,5/30/13,9/3/13,9/5/13,9/6/13,9/30/13,

10/29/13,11/25/13,15 PhotographsTakenByEllenMiramontes,BayDesignAnalyst,DuringaSiteVisitonMarch7,2013 3/7/13

16Emailsand/orPhotographsfromTammyBorichevskyandKeithMiller,CaliforniaCanoeandKayak,toBCDC,DatedFebruary25,March3,March6,April11,April28,April30,May1,2013

2/25/13,3/3/13,3/6/13,4/11/13,4/28/13,4/30/13,5/1/13

17 Reportfrom,MichaelMeyer,Director,Cushman&WakefieldofCalifornia,Inc.,datedApril18,2013 4/18/1318 JulieBraun'sE-mailDatedApril24,2015-Duplicate.See#55 4/24/1519 May16,2013EnforcementLetterfromBCDCtothePermittees 5/16/1320 May16,2013,ApplicationLetterfromBCDCtothePermittees 5/16/1321 SecurityOfficerHumphrey,submittedtoJulieBraun,Port,byemail,datedMay22,2013 5/22/1322 UndatedReportFromScott's,SubmittedByJohnBriscoeWithaLetter,DatedJune20,2013 6/20/13

23LetterdatedJuly18,2013,fromAdrienneKlein,BCDC’sChiefofEnforcement,toJohnBriscoe,Briscoe,IvesterandBazelLLP 7/18/13

24ReportPreparedBySteveHanson,Scott'sConsultant,DatedJuly19,2013.ReceivedbyBCDConJuly23,2013 7/19/13

25Photograph,datedJuly22,2013,takenbyMr.FagaldeandsubmittedbyPeterProws,Briscoe,IvesterandBazelLLP,formercounseltoScott’s,onJuly22,2013 7/22/13

26

EmaildatedSeptember11,2013,fromBCDCLegalInternSimranMahaltoPeterProws,Briscoe,Ivester&Bazel,LLP,counseltoScott’s,thatconditionallyapprovedadraftlegalinstrument(includesLIsubmittedonSeptember6,2013) 9/11/13

27EmailanddesignspecificationsfortablesandchairstoMs.KleinfromPeterProws,datedSeptember19,2013 9/19/13

28 EmailandproposedpublicaccesssignageplantoMs.KleinfromMr.Prows,datedOctober15,2013 10/15/13

29Emailandplan-viewillustrationshowingtheproposedlocationsofthepublicfurnituretoMs.KleinfromMr.Prows,datedOctober16,2013 10/16/13

30 LettertoMr.ProwsfromMs.Miramontes,datedOctober18,2013 10/18/1331 EmailtoMs.MiramontesfromMr.Prows,datedOctober30,2013 10/30/1332 LettertoMr.ProwsfromMs.Miramontes,datedNovember19,2013 11/19/1333 Letterfromstafftopermittees,datedDecember12,2013,regardinglegalinstrument 12/12/13

34LetterdatedDecember19,2013,andphotograph,toMr.FagaldefromMs.Koidal,GeneralManager,CushmanandWakefield 12/19/13

35EmailfromLindaMeyertoMargieTurrel,datedApril8,2013,called"PavilionUseDates2013-14andattachment(forwardedtoAdrienneKleinbyJenniKoidal) 4/8/13

36 PhotographstakenbyMs.Kleinduringasitevisit,onJanuary29,2014 1/29/1437 DesignReviewBoardmeetingmaterialsandminutesonFebruary10,2014 2/10/1438 Photographsande-mailfromLeeHuo,SanFranciscoBayTrail,datedFebruary10,2014 2/10/14

39CommunicationsbetweenBCDCstaffandpermittees,datedApril17,May9,May15,May19,May20,May21,May23,May28,July9,July25,September7,andSeptember23,2014

4/17/14,5/9/14,5/15/14,5/19/14,5/20/14,5/21/14,5/23/14,5/28/14,

7/9/14,7/25/14,9/7/14,9/23/14

40ReportfromJenniferKoidal,GeneralManager,Cushman&WakefieldofCalifornia,Inc.,datedMarch12,2014 3/12/14

41 RevisedAnnualReport-PublicPavilionUsage2013 3/12/14

42SeriesofemailmessagesbetweenApril18andJuly24,2014,betweenDeputyPortAttorneyJoshuaSafranandBCDCStaffCounselJohnBowers,regardingthelegalinstrument 4/18/2014-7/24/2014

43 ObservationsbySeanPalmer,GeneralManager,Kincaid’sRestaurant 4/28/14

Scott'sJackLondonSeafoodInc.andthePortofOakland,ViolationReport/ComplaintforAdministrativeImpositionofCivilPenalties

RevisedIndexofAdministrativeRecord(2/3/2017)

Page2

DocumentDescription Date44 ObservationsbyTammyBorichevsky,CaliforniaCanoeandKayak,inanemaildatedApril28,2014 4/28/14

45Photographattachedtotheletter,datedApril30,2014,toMr.FagaldefromJenniferKoidal,CushmanandWakefield 4/30/14

46LetterdatedMay16,2014,tostafffromMr.Fagalde,whereinhedeclinedtofollowtheDesignReviewBoard’srecommendation 5/16/14

47LettertoMr.Fagalde,datedJuly2,2014,fromMoniqueScott,AssistantPropertyManager,CushmanandWakefield 7/2/14

48 Ms.Klein’sobservationsduringasitevisitonSeptember19,2014,documentedwithphotographs 9/19/1449 MeetingbetweenBCDCstaffandpermitteesonNovember18,2014 11/18/1450 ThreephotographssubmittedbyMr.Miller,CaliforniaCanoeandKayak,viaemailonDecember8,2014 12/8/14

51EmailfromSteveHansontoJulieBraun,datedJanuary16,2015.Subject:PublicQuarterlySubmittalforJanuarythroughMarch31,2015.Attachment:Pavilion20141stquarterdatesJanuary-March31,2014 1/16/15

52 CommunicationsbetweenBCDCstaffandpermittees,datedJanuary29,February20,2015 1/29/15,2/20/15

53ReportfromMichaelMeyer,Director,andJenniKoidalCushman&WakefieldofCalifornia,Inc.,datedMarch16,2015 3/16/15

54 AnnualReport-PublicPavilionUsage2014 3/16/1555 DesignReviewBoardmeetingmaterialsandminutesonApril6,2015 4/6/1556 ObservationsofKeithMiller,CaliforniaCanoeandKayak,inanemail,datedApril16,2015 4/16/1557 ObservationsofJulieBraun,Port,inanemail,datedApril24,2015-DuplicateSee#18 4/24/1558 Email,datedApril30,2015,fromKeithMiller 4/30/15

59EmailbetweenKellyHodginsandJenniKoidal,datedJune9,2015,at2:13p.m.and5:51p.m.Subject:Revisionsfor2ndQuarterPavilionReportfromScott'sJLS 6/9/15

60 EmailfromKellyHodginstoJenniKoidal,datedJuly1,2015.Subject:3rdquarterPavilonReportScott'sJLS 7/1/15

61EmailfromJenniferKoidal,datedJuly13,2015,whichincludesfour2013quarterlyreports,four2014quarterlyreports,&three2015quarterlyreports 7/13/15

62 KeithMiller’sandJenniferKoidal’sobservationsonSeptember21,2015 9/21/15

63EmailfromSteveHansontoJulieBraun,datedJanuary12,2016.Subject:PublicQuarterlySubmittalforJanuarythroughMarch31,2015.Attachment:Pavilion20141stquarterdatesJanuary-March31,2014 1/12/16

64 CommunicationbetweenAdrienneKleinand3staffmembersoftheCityofOaklandonFebruary5,2016 2/5/1665 EmailfromJenniKoidaltoAdrienneKlein,datedJune28,2016.Subject:BCDC.Attached:2015PavilionUse 6/28/16

66Emailand3,2016QuarterlyReportsfromJenniferKoidal,VicePresidentandGeneralManager,CIMGroup,datedJuly18,2016 7/18/16

67 LetterfromJenniKoidaltoAdrienneKlein,datedJuly18,2016and2015AnnualReport 7/18/1668 LetterfromJenniKoidaltoAdrienneKlein,datedJuly18,2016and2016AnnualReport 7/18/1669 AnnualReport-PublicPavilionUsage2015(NoReportAttached) 7/18/16

70LetterfromJenniKoidaltoAdrienneKlein,datedAugust1,2016.SubjectandAttached:1stand2ndquarterpavilionuse 8/1/16

71 PhotographstakenbyTammyBorichevskyandsubmittedbyKeithMilleronAugust15,2016 8/15/1672 PhotographstakenandsubmittedbyTammyBorichevskyandKeithMilleronAugust16,2016 8/16/16

73

PhotographstakenbyRobertHowardonAugust13,2016,byAdeBararionAugust14,2016,andbyMarkMadambaonAugust15,16,and17,2016,andsubmittedbyJenniferKoidal,CIMGroup,onAugust23,2016 8/23/16

74 October20,2016EnforcementCommitteeMeetingandPublicHearingMinutes 10/20/1675 November3,2016CommissionMeetingandPublicHearingMinutes 11/3/1676 LetterandattachmentstoMarcZeppetellofromMichaelP.Verna,BowlesandVernaLLP 12/8/16

DocumentsAddedtotheRecordAfterIssuanceoftheViolationReport77 DepositionSubpoenaforProductionofBusinessRecordsissuedtoScott'sJackLondonSeafood,Inc. 12/22/1678 PortofOaklandStatementofDefense79 Scott'sStatementofDefense(includingDeclarationsandExhibits)80 Scott’sJackLondonSeafood,Inc.BalanceSheetsforDecember2015andDecember201481 BCDCSummaryandAnalysisofScott'sJackLondonSeafoodInc.EventInvoicesfortheYears2014-201682 BCDCLettertothePortofOaklandre:ApparentViolationsofBCDCPermitNo.1985.085.00A 7/26/0083 Scott'sLettertoBCDCre:RequestChagestoGuidelinesforPrivateUseofPublicPavilion 6/1/0184 BCDCResponseLettertoScott'sRequestforAmendment11toBCDCPermitNo.1985.085.00A 6/26/0185 LettertoBCDCfromThePortofOaklandEnvironmentalDepartment 3/30/9486 BCDCApplicationForm,AttachmentA,Box5,ProjectInformation 3/30/94