"We submit herewith our final report -- and our Plan for San Francisco Bay -- as required by the McAteer-Petris Act (Chapter 1162, Statutes of 1965). As directed by the Act, we have made a detailed study of the Bay and we have used this study to prepare 'a comprehensive and enforceable plan for the conservation of the water of San Francisco Bay and the development of its shoreline'"--Letter of transmittal.