City and County of March 2011
San Francisco
For the 2012 and 2013 Regattas
on San Francisco Bay
AMERICA’S CUP PEOPLE PLAN
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City and County of March 2011
San Francisco
For the 2012 and 2013 Regattas
on San Francisco Bay
AMERICA’S CUP PEOPLE PLAN
34th America’s Cup i March 2011
People Plan
TABLE OF CONTENTS
34th America’s Cup People Plan
Page
1. Executive Summary 1- 1
2. Overview 2- 1
2.1 The America’s Cup Host and Venue Agreement and the People Plan 2- 1
2.2 Context: The Event Planning Process 2- 2
2.3 The People 2- 3
2.4 Guiding Principles 2- 4
2.5 Planning Constraints 2- 6
2.6 People Plan Structure 2- 7
3. Event Locations 3- 1
3.1 Analytical approach 3- 1
3.2 Race Facilities on Port of San Francisco Lands 3- 1
3.3 Race Area viewing locations 3- 4
4. Transportation Strategies 4- 1
4.1 Transit Operations 4- 1
4.2 Bicycles 4- 6
4.3 Private Automobiles 4- 10
4.4 Water Transport 4- 15
4.5 Pedestrians 4- 17
4.6 Taxis and Chartered Buses 4- 18
5. Additional Considerations 5- 1
5.1 Coordinated Communications Strategy 5- 1
5.2 Disabled Access 5- 1
5.3 Interagency Initiatives 5- 2
5.4 Potential Capital Improvements to Systems Described above 5- 2
List of Figures
1. NOP – Race Area 3- 2
2. NOP – 2013 Event Locations and Uses 3- 3
3. Transit Map 4- 2
4. Bicycle Stations 4- 7
5. Downtown Parking 4- 11
6. Satellite Parking 4- 13
34th America’s Cup 1- 1 March 2011
People Plan
SECTION 1
Executive Summary
On December 31, 2010 the City and County of San Francisco ( the " City") was selected as the host
city for the 34th America's Cup and associated sailing regattas. The prospect of staging these
races for the first time in close proximity to urban waterfront areas and scenic parklands presents
a set of exciting but challenging planning efforts.
One of the most significant efforts will be to identify a package of transportation options to reliably
transport racing teams, event personnel, event sponsors, members of the media and thousands of
America's Cup spectators to and from their desired destinations on any given race day, while at
the same time satisfying the daily transportation needs of residents, businesses and visitors not
associated with the races. This “ People Plan” proposal represents the first step in that process.
The transportation modes described in this People Plan proposal have been structured according to four
guiding principles: resource efficiency, environmental sustainability, strategic adaptability and positive
legacy. These principles favor bicycling and transit over the private automobile while emphasizing the
need for effective communication and information tools that allow large numbers of users to make
individual decisions that support the success of the system as a whole. In addition, the legacy concept
stimulates interest not only in potential capital projects that can be brought forward in association with
America's Cup preparations but also operational strategies and other pilot concepts that can provide
benefits to the City and the Bay Area long after the 34th America's Cup Final is complete.
The People Plan reviews likely destinations of race viewers and others associated with the America's
Cup events, in order to better identify the increase in transportation demands to these areas. The
Plan then reviews key modes of transportation and the ways in which they can be employed to
address the anticipated transportation demands. A general point made in relation to all modes of
transport is the need to anticipate and resolve conflicts with the large numbers of pedestrians that
are expected to be present at the same locations that travelers are attempting to access.
The City's submission of this People Plan transportation strategy proposal to the America's Cup
Event Authority is called for as a key initial planning step under the Host and Venue Agreement
relating to staging the America's Cup events. At the same time, this submission presents an opportunity
for the City to also provide an early description of its approach to structuring and enhancing its
transportation assets to meet this challenge for review and comment by its America's Cup partners
and the public at large. The issuance of this Plan at such an early stage also provides City residents,
businesses and other stakeholders with the means to assist the City in shaping how this key aspect
34th America’s Cup People Plan
34th America’s Cup 1- 2 March 2011
People Plan
of the America's Cup effort will be further developed. The City looks forward to receiving this
feedback as this People Plan is further developed and refined over the course of the planning and
environmental review processes associated with the America's Cup events.
34th America’s Cup 2- 1 March 2011
People Plan
SECTION 2
Overview
2.1 The America’s Cup Host and Venue Agreement
and the People Plan
On December 31, 2010 the Golden Gate Yacht Club selected San Francisco as the host city for a
series of regattas leading up to and including the 34th America’s Cup Final ( the “ America’s Cup”),
all as further described in the 34th America’s Cup Host and Venue Agreement ( the “ Agreement”)
among the City and County of San Francisco ( the “ City”), the America’s Cup Event Authority
(“ ACEA”) and the America’s Cup Organizing Committee ( the “ ACOC”), a copy of which can be
found on the website of the City’s Office of Economic and Workforce Development at
http:// www. oewd. org.
The Agreement creates an implementation structure that involves the City and three partners each
responsible for coordinating specific aspects of the Events. ACEA and ACOC are contractual
partners with the City: ACEA is the private corporation responsible for managing the on- shore
aspects of the events described in the Agreement; while the ACOC is a nonprofit public benefit
corporation charged with fundraising and other initiatives in support of the events. Another private
agency, America’s Cup Race Management (“ ACRM”), is responsible for managing the on- water
portion of the events.
The sailing races proposed for San Francisco Bay under the Agreement include ( i) one or two
America’s Cup World Series regattas in July- September 2012, each lasting approximately nine
days ( the “ 2012 Events”) and ( ii) the Louis Vuitton Cup Challenger Series, America’s Cup Defender
Series ( if held) and America’s Cup Final in July- September 2013 ( the “ 2013 Events” and, together
with the 2012 Events, the “ Events”). Specific dates for the 2012 Events will be announced later
in 2011.
As part of the City’s preparation for the Events, Section 8.1 of the Agreement calls for the City to
submit to ACEA for its review and approval a “ People Plan,” a plan describing a safe, reliable and
efficient traffic and transportation scheme to facilitate the movement of thousands of visitors on
any one day to and from the America’s Cup Events. ( The Agreement estimates up to 200,000
spectators on a high- volume weekend race day, and City and ACEA staff are working on refining
those projections for the full set of Events.) This People Plan represents a key planning process
by which the parties to the Agreement can develop, communicate, and implement their shared vision
of an effective transportation system meeting the needs of residents, competitors, event staff and
spectators.
34th America’s Cup People Plan
34th America’s Cup 2- 2 March 2011
People Plan
The Agreement calls for the People Plan to be reviewed and accepted by ACEA by September
30, 2011, and after such acceptance the City would consider the Plan for adoption as part of the
Event project approvals once environmental review is complete. It is important to note that there
may be certain aspects of the People Plan upon which the City and other responsible public
agencies would not be able to take binding action until the completion of environmental review
as required under the California Environmental Quality Act (“ CEQA”) and, in some cases, the
National Environmental Policy Act. Accordingly, the People Plan will be submitted as part of the
Event project description for review under CEQA. The CEQA review process may result in
additional recommendations, including mitigation measures, about how to manage transportation,
traffic and spectators. Those measures may be imposed as mitigation measures as part of the approval
of the project or may be incorporated into the People Plan. The People Plan is likely to be revised
as a result of the CEQA analysis and process, and will be revised as project details are refined and
broad community input is received, as described below.
With those factors in mind the City’s intention is to engage the community, City policymakers,
transportation agency stakeholders and ACEA to further refine the strategies outlined in this document
over the course of the next several months. The ultimate goal would be to arrive at a document
that can be accepted by ACEA and approved by the City as the overall People Plan strategy upon
the completion of required environmental review. Certain elements of the September 30 document
may be subject to further revision in connection with the environmental review described above,
along with any additional adjustments in the Event plans themselves. Such revisions to the People
Plan would be subject to the approval of the City and ACEA at the appropriate time as described
in the Agreement.
2.2 Context: The Event Planning Process
In understanding the context for this initial People Plan proposal it is helpful to have a sense of
where this document falls in terms of the overall preparations for the Events.
The relatively limited interval between the signing of the Agreement and the hosting of the Events
will require the City, ACOC, ACEA and ACRM to coordinate and engage in a comprehensive
planning and implementation effort in a very compressed time window. The People Plan represents
just one facet of this complex multipronged process taking place over the next several months, and
is a good yardstick of the parties’ progress. In the three months since the Agreement was signed,
the parties’ vision for the Events has already come into greater focus as compared to the very general
description provided in the Agreement.
One of the Agreement’s key deadlines relates to the completion of the environmental review process
under the CEQA within a year of the date ACEA provides sufficient information to provide a
project description to initiate the CEQA review process. City and ACEA staff worked diligently
to prepare a description of Event activities for inclusion in the Notice of Preparation of an
Environmental Impact Report ( an “ EIR”) issued by the City Planning Department on February
9, 2011 ( the “ NOP”). ( For a copy of the NOP, please visit the City Planning website at
http:// tinyurl. com/ meacases.) City Planning then facilitated a public comment period regarding
2. Overview
34th America’s Cup 2- 3 March 2011
People Plan
the NOP, including meetings with the public and interested regulatory agencies. The feedback
from that process will be utilized to further refine project plans and to target the scope of needed
technical studies in support of the preparation of an EIR for the Events, all as further described in
the NOP.
At the same time as the CEQA process continues to move forward, the Agreement calls for a number
of more detailed Plans to be provided on various aspects of the Events. Those Plans will inform
the CEQA review, as CEQA review will inform the development and refinement of the Plans. The
People Plan is one of these, and its submission on March 31 as required by the Agreement allows
the City to provide an initial summary of its strategic thinking about Event transportation as the
parties enter a key stage of this front- loaded planning and engagement process.
In addition to review by ACEA as called for under the Agreement, the City invites comments from
members of the public on the strategies described in this People Plan. Comments can be provided
on the website of the City’s Office of Economic and Workforce Development ( http:// www. oewd. org)
or via email at americascup@ sfgov. org. The City asks that any comments be provided on or before
May 31, 2011. These comments will be used to further refine the People Plan in advance of the
September 30, 2011 date noted above as well as to inform further Event plans and EIR impact and
possible mitigation measure analyses. The City currently anticipates that the Planning Department will
issue the Draft EIR for the Events for public review and comment in July 2011.
2.3 The People
The America’s Cup Events represent the premiere level of competitive sailing. The hosting of these
sailing regattas on San Francisco Bay is expected to create an experience that will attract spectators
from throughout the Bay Area, across the United States, and around the world. These spectators
and Event staff will place demands on transportation infrastructure that already serves a wide range
of residents and visitors. Therefore, this People Plan has been developed with different groups of
travelers in mind, with the goal of accommodating circulation and providing strategies that support
the needs of each individual group while minimizing the conflicts between or among different groups:
2.3.1 America’s Cup Participants ( Teams, Event Staff,
Accredited Media)
Special transportation needs for this “ Participant” group include but are not limited to staff access
to race- related areas and other constricted waterfront areas as part of their Event- related duties,
attending Event- related functions, staging and maintenance of property, and so forth. These activities
may require unique and frequent vehicle access to various sites. Further development of circulation
strategies will require close coordination with Participant needs to set the stage for the successful
implementation of the Event program itself.
2.3.2 Visitors and Spectators to the Events
These “ Race Viewers” represent the major portion of the expected Event- related increase in
transportation demands. Race Viewers may have limited or extended stays, with local, regional
34th America’s Cup People Plan
34th America’s Cup 2- 4 March 2011
People Plan
or more far- reaching points of origin. This group includes major VIP donors and sponsors of the
Events, and as such the final People Plan will include tailored transportation arrangements to
attend their designated viewing locations. Race Viewer trips to event sites are generally not
characterized by the same immediate, urgent nature of trips of the Participant group.
2.3.3 Businesses and Neighbors in the Vicinity of the Events
Although the anticipated Participant and Race Viewer transportation demands are the primary
impetus for the development of a People Plan of this kind, the refinement of the Plan must be
informed by the needs of all of the people who utilize these transportation systems on a day- to-day
basis. This also extends to businesses who rely on these same transportation facilities for
their ongoing operations.
2.3.4 Other Travelers Using the Transportation Facilities
Impacted by Event Demands
This category includes people who rely upon or frequent the transportation services and infrastructure
that will be influenced by the Events, or altered by the event accommodation, including commuters
and truck traffic. With no inherent need for a destination or origin in the vicinity of the Events,
opportunities to serve the needs of this group are less restricted than the other groups traveling to
the immediate vicinity of the Event sites.
2.4 Guiding Principles
The ultimate objective of any transportation strategy is to provide and communicate a set of
transportation options that address anticipated demands through reliable and predictable operations.
This People Plan represents an initial effort at identifying how this effectiveness and reliability
can be achieved.
The City Municipal Transportation Agency has coordinated a multiagency vetting process that has
allowed for the refinement and articulation of a number of strategies to reach this objective. The
strategies set forth in this People Plan have been developed according to four organizing principles:
resource efficiency, environmental sustainability, strategic adaptability, and positive legacy.
2.4.1 Resource Efficiency
Efficiency for purposes of the People Plan relates to the use of a finite amount of transportation
resources in the most effective manner. This principle fosters the development of a number of
mutually supportive strategies, including but not limited to the following:
a. Provision of a number of different options to arrive at key destinations, including
multiple modes, routes and price points.
b. Information tools that not only educate potential users about the available options but
also provide realtime information to foster individual decisions that spread demand more
efficiently.
c. Encouragement of higher volume methods of transport to constricted areas instead of the
private automobile.
2. Overview
34th America’s Cup 2- 5 March 2011
People Plan
2.4.2 Environmental Sustainability
As described in the Agreement, the City, ACEA and the ACOC are committed to making the Events a
model of environmental stewardship. A key consideration in this effort is the potential negative
environmental impacts of transporting the large number of spectators attending the events, layered
on top of the more targeted transportation demands of other travelers. Therefore the People Plan
prioritizes lower- impact forms of transport such as walking, bicycling, and transit. Automobile
use in the immediate vicinity of the key spectator areas will be controlled, not only to encourage
the use of alternate modes of transportation but also to limit the negative environmental effects of
automobile congestion in close proximity to sensitive areas along the Bay waterfront.
2.4.3 Strategic Adaptability
Part of the appeal that brought the Events to San Francisco Bay was the opportunity to create a
new kind of viewing experience for the highest level of competitive sailing, with races held in
close proximity to urban areas and accessible shoreline instead of open seas. The novelty of this
concept creates excitement but it also creates uncertainty, in that there are few instructive examples
of how spectators will choose to attend an America’s Cup Final- level sailing event in the middle
of a weekend day, or how a large event on San Francisco Bay during a weekday will affect the
ability of Bay Area residents to commute to work or their other daytime destinations.
Accordingly, the City has sought and will seek to seed the strategies set forth in the People Plan
with a measure of adaptability to allow for the strategic deployment of a finite amount of transportation
resources across the spectrum of transportation demands associated with the Events in accordance
with the expected demands of each day. As a planning matter this effort includes the use of the
2012 Events as a pilot or testing ground for the strategies that will be employed more widely for
the 2013 Events, which would be of longer duration and would generate greater spectator interest
than the 2012 Events. On an ongoing basis this effort will include the monitoring and analysis of
transportation demands and potential opportunities, so that informed decisions can be made on a
day- to- day or hour- to- hour basis to foster the provision of the most effective transportation
options to the widest range of users.
For initial planning purposes, all of the days during which the AC would take place would be
allocated into five or six prototypical plan implementation days so that the transportation
resources can be more adequately planned for and deployed. Initial attendance estimates, modal
shares, arrival/ departure profiles, and so forth will be developed in the coming months for these
prototypical days, which will serve as initial planning guidelines. The expected attendance
characteristics of these days will be further refined as the race schedule is better defined, and
additional prototypical days could also be added to this initial list. In addition, the planning
efforts and lessons learned from the 2012 events will serve to further define the types and
characteristics of such days.
2.4.4 Positive Legacy
The People Plan recognizes that the Events represent a unique moment in the history of the City
and San Francisco Bay that has intrinsic value in providing enjoyment and other benefits to
residents and visitors alike. At the same time, however, the level of attention that the Events will
34th America’s Cup People Plan
34th America’s Cup 2- 6 March 2011
People Plan
attract along with the amount of resources that will be devoted to them creates an equally unique
opportunity to create legacy benefits for the City and the Bay Area that will last for a long time
after the Events are complete. Therefore the development of the strategies laid out in this Plan
has been and will be informed not only by the specific Events in question but also by considerations
of how these efforts can create a positive legacy for transportation in the Bay Area going forward.
Positive legacy considerations include the following:
a. Information tools and processes that can be applied on a wider basis, including internet
technology, signage, “ transit concierges” and similar initiatives;
b. Operational planning and implementation allowing large numbers of people to travel to
the waterfront destinations that themselves are being improved into legacy benefits ( such
as the Event- related projects being developed at lands under Port of San Francisco
jurisdiction as described further below);
c. Environmental justice and social equity benefits in terms of developing models for
reliable and affordable transportation connections to and from underserved communities;
d. Partnerships among transportation agencies allowing access to additional resources
without incurring excessive costs; and
e. Capital improvements to transportation infrastructure.
2.5 Planning Constraints
The structure of the Agreement creates some boundaries for the planning process.
Primary among these is the Event schedule itself. The strategies in this document will only be
successful if they can be implemented by the commencement of the Louis Vuitton Cup Challenger
Series in July of 2013. It would be optimal if the selected strategies could also be implemented and/ or
piloted as part of the 2012 Events. These dates narrow the focus of this process to those projects
that are deliverable within the timeframe provided.
Similarly, the Agreement identifies the ACOC’s philanthropic contribution program as a potential
funding source that is intended to pay for a number of the City’s Event- related costs, including
increased transit service. The limits of this funding source combined with the difficult budgetary
situations faced by the City and many other public agencies will provide incentives toward the
identification of grants, partnerships and other pilot program leveraging opportunities. Such
opportunities would not only allow for the implementation of the strategy in question but would
also potentially free up other funds for those strategies without similarly beneficial implementation
models.
2. Overview
34th America’s Cup 2- 7 March 2011
People Plan
2.6 People Plan Structure
The remainder of this document is structured in three parts:
 Section 3 itemizes the likely destinations of spectators on any particular day during the
America’s Cup Events.
 Section 4 describes the transportation strategies that will serve these key locations.
 Section 5 describes certain additional considerations and strategies that will be evaluated
over the coming months in conjunction with the further development of Event- related
transportation arrangements.
34th America’s Cup 3- 1 March 2011
People Plan
SECTION 3
Event Locations
The first step in developing a transportation plan for the America’s Cup Events is to analyze the
likely destinations of the increased Participant and Race Viewer populations. That understanding
will then be used to develop strategies for handling the increase in transportation demand resulting
from the Race Viewers while ensuring accessibility for Race Staff as well as residents, commuters
and other travelers not affiliated with the Events.
3.1 Analytical approach
As described above, ACEA and ACRM are developing an innovative event concept that seeks to
create never- before- seen public access and race viewing opportunities in the so- called “ natural
amphitheater” of San Francisco Bay. Unlike more traditional sporting events and amphitheaters,
there is no single facility or venue that can be expected to attract the majority of visitors. Rather,
the program of events and Event Authority facilities creates an array of locations based primarily
in San Francisco that include major spectator venues and programs to attract, manage and support
public enjoyment of the races. In addition, other locations in San Francisco and in the North Bay
can be expected to attract varying levels of spectators and associated transportation demands that
will need to be addressed in the final People Plan. The two primary drivers for the 2013 Events’
transportation demands are the ( i) the construction of America’s Cup Event- related facilities on
Port of San Francisco lands along the City’s northeast and central waterfront and ( ii) waterfront
locations with views of the race area identified by ACRM, as depicted in Figure 1 ( the “ Race
Area”). Planning for the 2012 Events will focus on some measure of these same demands, with
the potential to pilot 2013 Event strategies as described below.
3.2 Race Facilities on Port of San Francisco Lands
The Port of San Francisco locations listed below have been targeted for Event- related
infrastructure and/ or programming in the NOP. ( See Figure 2 for the NOP diagram depicting
such potential activities.) The specific programming at these locations is subject to change under
the ongoing planning and environmental review processes, but the projected transportation needs
associated with staff of and visitors to these attractions have been factored into the transportation
strategies set forth in Section IV below.
1. Pier 80 – racing team industrial bases, other back office uses; no public access
2. Brannan Street Wharf – public access
San Francisco- Oakland Bay Bridge
Alcatraz
Golden Gate Bridge
S a n F r a n c i s c o B a y
Treasure
Island
P r e s i d i o
S a n F r a n c i s c o
Ma r i n H e a d l a n d s
Angel Island
0 1
Mile

Race Area
Spectator Boat Areas
Figure 1
AC34 Sailing Race Area
SOURCE: Google Maps; ESA The 34th America’s Cup People Plan
Figure 2
2013 Event Locations and Uses
SOURCE: AECOM
The 34th America’s Cup People Plan
34th America’s Cup People Plan
34th America’s Cup 3- 4 March 2011
People Plan
3. Pier 30- 32 – racing team bases, maintenance and storage of racing vessels; controlled
public access
4. Seawall Lot 330 – parking; potentially available to public
5. Pier 26 and Pier 28 – event staff and related uses; no public access
6. Pier 19, Pier 19 ½ and Pier 23 – event and media staff and related uses; no public access
7. Pier 27 and Pier 29 – America’s Cup Village; public access to most areas, controlled
public access in others
3.3 Race Area Viewing Locations
3.3.1 The Race Area
The Race Area extends from Treasure Island in the east to approximately one mile west of the
Golden Gate Bridge on the west, and from Marin County and Angel Island on the north to the
northern waterfront of San Francisco on the south. The Race Area includes the potential for races
to start and/ or finish in close proximity to the America’s Cup Village proposed for construction at
Piers 27 and 29.
3.3.2 Waterfront Locations in Closest Proximity to the
Race Area
The location of the Race Area prompts a focus on transporting Race Viewers to and from waterfront
lands in its vicinity with uninterrupted lines of sight. The City and ACEA are therefore focusing
their efforts to optimize public viewing and enjoyment of these sites while balancing the protection
of sensitive habitat and cultural resources that make these areas so valuable in their own right. To
that end the strategies identified under this People Plan for further analysis and/ or implementation
emphasize the provision of transportation options along these waterfront corridors.
The City is working with ACEA and the relevant trustee agencies to evaluate potential Event-related
programming at park lands listed below. In particular, City staff is meeting with staff
from the National Park Service to discuss environmental and transportation impact and mitigation
strategies relating to increased visitor demand from the Events, and places like Cavallo Point and
the Marin headlands that present attractive viewing opportunities but are constrained by limited
transportation access.
The following sites are immediately adjacent to the Race Area and readily accessible to the
public, and therefore can be expected to attract varying levels of spectator traffic:
a. The America’s Cup Village at Piers 27 and 29 ( Port of San Francisco)
b. Piers and other accessible areas between Pier 29 and Pier 39 with views of the Race Area
( Port of San Francisco)
c. The Fisherman’s Wharf/ Pier 39 Area ( Port of San Francisco)
d. Aquatic Park ( National Park Service/ SFNMHD)
e. Fort Mason ( National Park Service/ GGNRA)
3. Event Locations
34th America’s Cup 3- 5 March 2011
People Plan
f. Marina Green ( SF Recreation and Park Department)
g. Crissy Field ( National Park Service/ GGNRA)
h. The Presidio ( Presidio Trust)
i. Cavallo Point ( National Park Service/ GGNRA)
j. Angel Island State Park ( California Department of Parks and Recreation)
k. Treasure Island and Yerba Buena Island ( Treasure Island Development Authority)
l. Alcatraz Island ( National Park Service/ GGNRA)
3.3.3 Other Potential Viewing Locations – Further
Collaboration
There are also additional locations that could provide some opportunity to view the Race Area.
These are generally farther from the Race Area than those described above, including the Marin
Headlands and the cities along the Marin County waterfront ( including Sausalito, Tiburon and
Belvedere). More distant waterfront locations along the eastern shore of San Francisco Bay and
in the East Bay hills may also provide some distant views of the Race Area, but are not expected
to attract increased Race Viewer transportation demands.
This initial People Plan proposal focuses on transportation from around the region to the urban
waterfront areas of San Francisco where the majority of Event- related activities will be located.
The transportation service planning and management strategies set forth below have been developed
in consultation with the City’s Municipal Transportation Agency (“ MTA”) and preliminary contacts
with regional transportation agencies. They have also been preliminarily vetted with a number of
stakeholders, but further communication and collaborative planning work will be required to develop
this People Plan for all potential Race Viewer destinations, again in keeping with the principles
that have guided the development of this Plan.
To that end, City and ACEA staff will be convening interagency meetings with the park trustees,
local jurisdictions and regional transportation agencies affected by such increased demands, in
order to foster the development of a coordinated strategy that takes into account the varied
transportation systems and assets serving these additional areas, as well as environmental,
resident and business considerations.
34th America’s Cup 4- 1 March 2011
People Plan
SECTION 4
Transportation Strategies
4.1 Transit Operations
The guiding principles listed above combined with the limited parking and travel capacity along
the roadways in the vicinity of the waterfront Race Viewer destinations provide strong arguments
favoring emphasis on transportation options other than the private automobile. The provision of
robust transit options can create environmental sustainability and resource efficiency benefits
while laying the groundwork for a positive legacy of improved transit operations in these areas
often frequented by residents and visitors alike.
4.1.1 Overall Strategy
The initial development and further refinement of the transit strategies has been and will be based
on the increase of frequency of service along existing routes, with certain modifications to better
serve planned Event activity and viewing locations.
The use of existing routes will serve to reduce confusion for those familiar with the City’s transit
system. The route modifications and limited stop service are intended to increase efficiency of
travel from regional transportation hubs to waterfront corridor locations, while still retaining the
ability to connect to other lines around the City.
The novelty of the Event format combined with the challenge of providing visitor projections at
this early planning stage require the development of criteria for increasing service above the baseline
as conditions and demands warrant. Decisions under those criteria will be resource- driven, and
adaptability among strategies will facilitate the selection of the most effective option as we learn
more about Race Viewer transportation and attendance patterns.
As noted throughout this People Plan, a key factor in the success of these Events will be providing
ample information, maps and signage to those making travel decisions and those assisting others
in making such decisions. Accordingly this People Plan includes the formulation of an effective
communications plan to enable residents, workers, visitors and race management entities to incorporate
transit options and the other Event transportation strategies in the early stages of planning their
activities and transportation arrangements.
Figure 3 depicts some of the potential transit routes that would serve the Events, as further
described below.
101
80
Lombard St
1st St
Bay St
Sansome St
Chestnut St
Broadway
Bush St
3rd St
4th St
5th St
7th St
9th St
Market St
Townsend St
Stanyan St
Fell St
16th St
S. The Embarcadero
Columbus Ave
Van Ness Ave
Sacramento StSacramento St
Geary St
Golden Gate Ave
McAllister St
2nd St2nd St
Mission StMission St
King St
Folsom St
Harrison St
Brannan St
Fell St
3rd St
St
Stockton StStockton St
Battery St
S a n F r a n c i s c o B a y
P r e s i d i o o f
S a n F r a n c i s c o
VAN NESS
MUNI
STATION
CIVIC CENTER
MUNI/ BART
STATION
Protected Lanes;
Limited Stops
unprotected lanes
no stops
Modified 30X
Modified
47 VN
Modified
47 VN
Service to regular end
of the line when possible
AC Village
MONTGOMERY
MUNI/ BART
STATION TRANSBAY
TEMPORARY
TERMINAL
POWELL
MUNI/ BART
STATION
CALTRAIN
EMBARCADERO
MUNI/ BART
STATION
Figure 3
Proposed Augmented Service Routes
0 2000
Feet

SOURCE: San Francisco Planning Department
The 34th America’s Cup People Plan
Area proposed for study of
restricted automoble access:
residents and authorized vehicles only
F- line shuttle from
Ferry Building to Fisherman’s Wharf,
interlined with reguar F- line Service
Reinforced N- Judah
( Ballpark type service)
Capability of implementing E- line with
double ended historic vehicles from
Fisherman’s Wharf
MUNI Line
MUNI Express Line
Stop
Potential Stop
Walkable Areas
30
47
30
30
30X
4. Transportation Studies
34th America’s Cup 4- 3 March 2011
People Plan
4.1.2 Bus Service Strategies
Increase Frequency on Key Existing Routes
The majority of the City’s regional transportation hubs for both transit and automobiles lie along
and to the south of the Market Street corridor. Therefore a centerpiece of the People Plan strategies
is to provide additional capacity for Race Viewers to travel from these transportation hubs to the
waterfront viewing areas.
Rail service is the primary strategy for doing so along the Embarcadero, but additional bus capacity
is needed to travel to destinations along the City’s northern waterfront to the west of the
Fisherman’s Wharf terminus of the E/ F lines.
The 30 Stockton bus line provides a number of key connections, including ( i) in the vicinity of
the 4th and King Caltrain terminal and BART stations in the south, ( ii) a transfer point near the
E/ F line terminus at Fisherman’s Wharf and ( iii) access to the northern waterfront viewing areas.
The 30X Marina line provides express service to the northern waterfront viewing areas from
downtown transit hubs, including BART stations and the Transbay bus terminal. Further study
of these routes will include an evaluation of the costs and benefits of decreased headways along
these lines and potential route modifications to allow for a faster rate of travel, such as the utilization
of Lombard Street.
The 47 Van Ness bus line provides a key north- south connection from the Civic Center BART
station that would allow travelers to avoid any potential congestion along the Embarcadero or
closer to downtown. Further study of this route will include limited stop service and the potential
for a route modification that would use Civic Center Plaza as a terminus. Civic Center Plaza has
also been identified as a potential “ Event live site” in the initial project description in the NOP, a
concept that includes some combination of showing Event television programming on a large screen,
Event- related retail and/ or food and beverage services. By bringing a direct link to waterfront
viewing areas the activation of this site is likely to be more successful in drawing positive energy
and interest from Race Viewers.
Identify Other Possible Key Routes
While the routes above are the primary focus on efficient travel, there are other connections to
likely destinations that are worthy of attention during the planning process. Like the 30 and 30X
lines, the 45 Union- Stockton line connects the Powell BART station ( and another potential “ event
live site” at Union Square) to the edge of the Presidio. Similarly, the 108 Treasure Island provides
service from downtown regional hubs to Treasure Island, the western shore of which enjoys views
of much of the Race Area. Automobile access to Treasure Island is constricted at its Bay Bridge
approaches, and therefore the utilization of higher- volume methods of transportation will be
encouraged. The 108 Treasure Island line could be one way to provide that volume, while other
models could include the shuttle bus approach implemented for the annual Treasure Island Music
Festival or some type of ferry service. As further Event plans are developed the relative merits of
these strategies ( and combinations thereof) will be further analyzed.
34th America’s Cup People Plan
34th America’s Cup 4- 4 March 2011
People Plan
Explore Partnerships
The guiding principles noted above will require the planning team to look beyond existing assets
and programs for the most effective leveraging opportunities as the People Plan is further developed.
For example, bus lines operated by other transportation agencies utilize the key Van Ness Avenue
and northern waterfront corridors, or provide connections between regional hubs and the westernmost
viewing areas. While there are limitations on the general use of these lines for passengers traveling
within San Francisco, there may be arrangements that can be negotiated with those agencies and
other interested parties to allow these lines to add Race Viewer transportation capacity during the
limited duration of the Events.
In addition, the Treasure Island Development Authority (“ TIDA”) is in the process of negotiating
a proposal to develop the majority of Treasure Island and Yerba Buena Island as a new mixed- use
neighborhood that would include a congestion pricing approach to manage the use of automobiles.
City staff will explore with TIDA and relevant agencies the possibility of piloting or otherwise
incorporating the congestion pricing concepts for Race Viewers in order to encourage the use of
the 108 Treasure Island line or similar transit options for this automobile- constricted location.
4.1.3 Rail Service Strategies
Increase Frequency of Existing Embarcadero Corridor Lines
The dedicated Embarcadero rail right of way is critical to the effective transport of Race Viewers
along this key corridor to bypass congestion while maintaining and augmenting capacity for residents
and commuters who need to access these same areas for reasons unrelated to the Events. The existing
rail lines will provide service from different points in the City to the northeast waterfront and will
provide key connections between regional transportation hubs and the Event ( and other) attractions
on Port of San Francisco lands along the Embarcadero. North of Howard Street the Embarcadero
rail right of way is limited to historic streetcars due to overhead wire limitations. South of Howard
the overhead wire and station platforms can accommodate either historic streetcars or the larger
Breda Light Rail Vehicles
The Breda vehicles utilized by the N- Judah line provide high volume service from the western
part of the City through the Market Street subway, connecting with BART, and then south along
the Embarcadero to the Caltrain terminal at 4th and King.
The F- Market and Wharves line currently provides historic streetcar service along Market Street
and then north to Fisherman’s Wharf. The F- line streetcars have become a popular success with
tourists and residents, though they are smaller than the Breda vehicles and generally at full capacity
even without the added attraction of the Events. One approach to augmenting transportation capacity
for large waterfront events like the 4th of July and Fleet Week is to run historic streetcars in a shuttle
service from the Ferry Building northward. This strategy may prove to be valuable for high- volume
Event days as well. In addition, historic streetcars have also been proposed for use as the E-Embarcadero
line running the length of the Embarcadero from 4th and King in the south to
Fisherman’s Wharf in the north. The Events present an excellent opportunity to test the
conditions under which that service can provide the most benefit to the Embarcadero corridor.
4. Transportation Studies
34th America’s Cup 4- 5 March 2011
People Plan
MTA also can provide added Breda car capacity along the southern Embarcadero through the use
of a Shuttle line in appropriate circumstances, as is done for baseball games at AT& T Park. Breda
car Shuttles could follow the N- Judah route into the Market Street tunnel. However, only historic
streetcars can run along the segment north of the Ferry Building. In past situations MTA has run
bus shuttles along the rail right- of- way to bolster transit capacity in this location.
Address Operational Challenges to Augmenting Service
The lack of a rail loop turnaround in the 4th and King Street area requires that any service along the
southern end of the Embarcadero be provided through double- ended cars that can switchback without
a rail loop. This factor limits the number of historic streetcars that can be used in this location. Certain
historic streetcars under refurbishment have the needed double- ended capacity. As part of the further
development of this People Plan the status of such refurbishment along with other ways to provide
an effective E- Embarcadero line rail service using other rolling stock will be evaluated.
An additional operational challenge is posed at other locations along the Embarcadero corridor.
The competing modes of transport at key intersections along with potential rail congestion at the
Ferry Building junction of the Market Street underground and aboveground rail service and the
Embarcadero corridor requires careful operational planning and procedures to allow for the safe
and efficient movement of rail cars along this corridor.
Lastly, during large waterfront events the northern terminus of the Embarcadero rail line is impacted
by spectator and automobile traffic, and at times the congestion forces rail service to turn around at
the Pier 39 loop to the east. As the Jones Street location provides passengers with better access to
Fisherman’s Wharf and Aquatic Park, along with a connection in close proximity to the 30 Stockton
bus line link to the western viewing locations, further analysis will target the development of people
and automobile movement strategies that allow for the continued use of the full Jones Street loop.
34th America’s Cup People Plan
34th America’s Cup 4- 6 March 2011
People Plan
4.1.4 Cable Car Service Strategy
San Francisco’s iconic cable car system provides a number of connections at locations with strategic
significance to the Events. These include linking the Ferry Building area with the Van Ness
Avenue bus corridor, as well as linking the Market Street corridor with the northern waterfront.
The cable car speeds and capacity are limited, but they continue to be an attraction for visitors
seeking a uniquely San Franciscan transit experience. Recent and planned upgrades to the cable
car lines will be complete in advance of the Events, and will assist in MTA’s efforts to anticipate
and accommodate heavier use by spectators and tourists.
4.2 Bicycles
Each of the guiding principles set forth above ( efficiency, sustainability, adaptability and legacy)
would be advanced by the establishment of cycling as a viable option for the widest possible range
of Race Viewers. The relative lack of hills along the San Francisco waterfront corridor combined
with its existing bicycle pathway assets together create an exciting opportunity to achieve this
objective. Therefore the further development of the People Plan will evaluate ways to leverage
these existing assets to create a cycling- friendly set of Events.
4.2.1 Secured Bicycle Parking
An initial step in encouraging cycling is to ensure that there will be secure and convenient locations
to store bicycles once the rider arrives at his or her destination. Further event planning will include
the identification of space and feasible operational models for temporary bicycle valet stations along
the San Francisco waterfront from Piers 30- 32 to Crissy Field. It will be important to locate these
stations in close proximity to key points of interest and to assess their size, location and hours of
operation as a function of the type of Event day. These could include some or all of the following:
Piers 30- 32, the Ferry Building/ Embarcadero Station area, Piers 27 and 29, the Pier 39/ Fisherman’s
Wharf area, the Marina Green/ Fort Mason area, and the Crissy Field/ Palace of Fine Arts area.
Figure 4 depicts the existing bicycle network and some potential bicycle parking station locations
to be evaluated as described above.
STANYAN BLVD
OTIS ST
LAUREL ST
MACARTHUR AVE
ASHBURY ST
ARGUELLO BLVD
KEARNY ST
GRANT AVE
MIDDLE EAST DR
COMMONWEALTH AVE
MARTIN LUTHER KING JR DR
KING ST
CRISSY FIELD AVE
BERRY ST
JORDAN AVE
PALM AVE
CHANNEL ST
MISSION ROCK ST
10TH AVE
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GROVE ST
KING ST
MAIN ST
FULTON ST
GOLDEN GATE AVE GOLDEN GATE AVE
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EDDY ST EDDY ST
FREDERICK ST FREDERICK ST
TURK BLVD
HERMANN ST
CASTRO ST
14TH ST
LOMBARD ST
ARGUELLO BLVD
STANYAN ST
PARNASSUS AVE
TAYLOR ST
05TH AVE
PIERCE ST
FRONT ST
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LYON ST
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WALLER ST
JOHN F KENNEDY DR
PRESIDIO AVE
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DUBOCE AVE DUBOCE AVE
LINCOLN BLVD
07TH ST 07TH ST
FULTON ST
POST ST POST ST POST ST POST ST
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03RD ST
GREENWICH ST
LAGUNA ST
WEBSTER ST
DOLORES ST
BROADWAY BROADWAY
04TH AVE
CHURCH ST
KEZAR DR
FRANCISCO ST
BROADWAY
OFARRELL ST
NORTH POINT ST
FULTON ST FULTON ST
GROVE ST
FULTON ST
MCALLISTER ST MCALLISTER ST
LOMBARD ST
GOLDEN GATE AVE
WASHINGTON ST
NORTH POINT ST
FULTON ST
CLAY ST
BEACH ST
WASHINGTON ST
JEFFERSON ST
BAY ST
TURK ST
PAGE ST PAGE ST
OAK ST OAK ST
HAYES ST HAYES ST HAYES ST
SPEAR ST
HAYES ST
OAK ST OAK ST
FELL ST FELL ST FELL ST FELL ST
BEACH ST
KANSAS ST
RHODE ISLAND ST
PAGE ST
SAN BRUNO AVE
UCSF LN
GROVE ST
BEALE ST
VERMONT ST
WASHINGTON ST WASHINGTON ST
JACKSON ST JACKSON ST JACKSON ST
SOUTH ST
CAMPUS WAY
BUCHANAN ST
DAVIS ST
SCOTT ST
ASHBURY ST
LARKIN ST
PIERCE ST
BAKER ST
CLAYTON ST
PRESIDIO AVE
BAKER ST
OCTAVIA ST
CENTRAL AVE
02ND AVE
GOUGH ST
COLE ST
04TH AVE
PIERCE ST
BRODERICK ST BRODERICK ST
OCTAVIA ST
GOUGH ST
BRIDGEVIEW WAY
WASHINGTON BLVD
DRUMM ST
LAGUNA ST
BUCHANAN ST
BRODERICK ST
FRANCISCO ST
FILLMORE ST
SCOTT ST
SPRUCE ST
WALNUT ST
CHERRY ST
LOCUST ST
MAPLE ST
LYON ST
BAKER ST
JEFFERSON ST
FULTON ST
07TH ST
CORNWALL ST
LAKE ST LAKE ST
IRVING ST
CLEMENT ST
CLAYTON ST
SCOTT ST
CARL ST
PARKER AVE
CERVANTES BLVD
GOLDEN GATE AVE
EUCLID AVE
COLE ST
ALHAMBRA ST
STANYAN ST
SHRADER ST
ELLIS ST
VALLEJO ST VALLEJO ST
MCALLISTER ST MCALLISTER ST
PINE ST PINE ST
GEARY ST GEARY ST
WALLER ST
MONTGOMERY ST
CENTRAL AVE
LYON ST
BROADWAY
TURK BLVD
12TH ST
BEACH ST
MORAGA AVE
02ND AVE 02ND AVE
STEUART ST
BUSH ST
FUNSTON AVE
WEBSTER ST
06TH ST
FILLMORE ST FILLMORE ST
SCOTT ST SCOTT ST
STEINER ST STEINER ST STEINER ST
LAGUNA ST
OCTAVIA ST
BATTERY ST
WEBSTER ST
OCTAVIA ST
BUCHANAN ST
GOUGH ST GOUGH ST
STEINER ST
FRANKLIN ST FRANKLIN ST
POLK ST POLK ST POLK ST POLK ST
08TH ST
LARKIN ST LARKIN ST
WASHINGTON ST
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MISSION ST MISSION ST MISSION ST
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04TH ST 04TH ST
DE HARO ST
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05TH AVE
BAY ST BAY ST BAY ST
NORTH POINT ST NORTH POINT ST
HAIGHT ST HAIGHT ST
BAKER ST
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THE EMBARCADERO
THE EMBARCADERO
GREENWICH ST
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LINCOLN BLVD
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LAGUNA ST
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FOLSOM ST FOLSOM ST FOLSOM ST
FOLSOM ST
TERRY A FRANCOIS BLVD
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RICHARDSON AVE
CALIFORNIA ST
VAN NESS AVE VAN NESS AVE VAN NESS AVE
DIVISADERO ST DIVISADERO ST DIVISADERO ST
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DIVISADERO ST
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GEARY BLVD GEARY BLVD GEARY BLVD
LINCOLN WAY LINCOLN WAY
LOMBARD ST
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TAYLOR ST
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RAMONA AVE
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CLINTON PARK
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CALIFORNIA ST CALIFORNIA ST CALIFORNIA ST CALIFORNIA ST CALIFORNIA ST CALIFORNIA ST
MARINA BLVD
CHESTNUT ST
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SACRAMENTO ST
BEALE ST
BUSH ST
HARRISON ST HARRISON ST HARRISON ST
HARRISON ST
LOMBARD ST
01ST ST
BRANNAN ST BRANNAN ST BRANNAN ST
VALLEJO ST
UNION ST UNION ST UNION ST UNION ST UNION ST
BUSH ST BUSH ST BUSH ST
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CLAY ST
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CLEARY CT
MONTGOMERY ST
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PIERCE ST
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TOLEDO WAY
FORTUNA AVE
15TH ST
IRIS AVE
STARR KING WAY
MANZANITA AVE
BLAKE ST
SHOTWELL ST
JULIAN AVE
BARCELONA AVE
EDWARD ST
BEAUMONT AVE
16TH ST
ST JOSEPHS AVE
HUGO ST
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15TH ST
15TH ST
ALAMEDA ST
OFARRELL ST
TERRA VISTA AVE
MCCOPPIN ST
MONTGOMERY ST
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15TH ST
MAYFAIR DR
DAVIS ST
NIDO AVE
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MARINA BLVD
ARGUELLO BLVD
WISCONSIN ST
BUENA VISTA EAST AVE
OWENS ST
HEATHER AVE
CHESTNUT ST
BUENA VISTA WEST AVE
SOUTH VAN NESS AVE
GREENWICH ST
TELEGRAPH HILL BLVD
PETER YORKE WAY
NEW MONTGOMERY ST
PRADO ST
BAY ST
COOK ST
EWING TER
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DIVISION ST
HOOPER ST
IRWIN ST
HUBBELL ST
JEFFERSON ST
BEACH ST
05TH AVE
DIVISION ST
FRANKLIN ST
MARKET ST
MUSEUM WAY
13TH ST
13TH ST
PLUM ST
MISSION ST
VALENCIA ST
NOE ST
06TH ST
FRONT ST
MONTGOMERY ST
KEARNY ST
PRESIDIO
GOLDEN GATE PARK NATIONAL RECREATION AREA MARINA GREEN
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PIER 24
PIER 30 PIER 32
CHINA BASIN
PIER 40
PIER 48
PIER 50
PIER 54
PIER 38
PIER 36
PIER 34
PIER 28
PIER 26
PIER 9
PIER 19
PIER 23
PIER 31
PIER 33
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PIER 27 BTrikeea sSutraeti Iosnla onnd
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Figure 4
Conceptual Locations for Bike Station Facilities
SOURCE: City & County of San Francisco Planning Department The 34th America’s Cup People Plan
34th America’s Cup People Plan
34th America’s Cup 4- 8 March 2011
People Plan
4.2.2 Establish Bicycle Rental and Bicycle Sharing Facilities
at Strategic Locations
The final People Plan will also identify ways in which Race Viewers without their own bicycles
can obtain one for a short trip or a longer duration, in each case reducing demand for other, more
energy- and space- intensive transportation modes.
Bicycle Rentals
The City is home to a number of thriving bicycle rental businesses. Certain of them already capitalize
on the attractions in the Fisherman’s Wharf and Embarcadero areas to bolster their business. The
City plans to engage in dialogue with these operations to understand the limits of their existing
capacity. If after evaluating these existing rental options in relation to the potential Event- related
demands it is determined that additional bike rental space or more strategic locations would be
beneficial to the Events, the City could pursue a solicitation for bicycle rental concession space
along the waterfront corridor or at other strategic locations like satellite parking facilities. The
Recreation and Park Commission recently solicited proposals to offer bicycle rental concessions
at certain park lands within the City, which provides one helpful model of how such an effort could
proceed.
Bicycle Sharing
Similar to car sharing, bicycle sharing is a term used to describe a membership- based system of
short- term bicycle rental. Members can check a bicycle out from a network of automated bicycle
stations, ride to their destination, and return the bicycle to a different station. Bicycle sharing is
enjoying a global explosion in growth with the development of purpose- built bicycles and stations
that employ high tech features like smartcards, solar power, and wireless internet and GPS technologies.
The Bay Area Regional Bicycle Sharing Pilot Program will pilot and test bicycle sharing in downtown
urban centers of varying sizes and population densities along the San Francisco Peninsula transportation
corridor. Participating jurisdictions include the City and the cities of San Jose, Mountain View,
Palo Alto and Redwood City. This project will demonstrate the potential to effectively reduce
vehicle miles traveled by deploying 1,000 shared- use bicycles at up to 100 kiosks.
The launch of this pilot is currently targeted for Spring 2012. That schedule could potentially
present opportunities to incorporate these types of kiosks at key locations along the waterfront
corridor or at satellite parking facilities to further bolster the supply of bicycling options.
4.2.3 Maps and Signage
Any effort to encourage visitors and casual cyclists to use bicycles as a primary mode of transport
must be accompanied by the means to get them to their desired destinations. At a basic level this
includes the ability to find the best routes to get to the Event waterfront attractions. Therefore it
will be important to find ways to get that information to the people who need it, including cycling
maps at valet, rental, and bikeshare stations. It will also be important to identify key locations
4. Transportation Studies
34th America’s Cup 4- 9 March 2011
People Plan
and routes for signage to assist cyclists in unfamiliar surroundings. Such an effort could also
provide an additional legacy benefit by being a catalyst for a citywide signage system.
4.2.4 Potential Bike Improvements Facilitating Travel along
the Waterfront Corridor
Lastly, while the waterfront corridor itself does present a potentially attractive area to bring
cyclists, there are locations that could benefit from temporary or permanent improvements to
bicycle circulation. These include the following:
a. Evaluating special signaling or other bike improvements to improve flow along the
northbound Embarcadero;
b. Pursuing the proposed Jefferson Street public realm project ( described further in Section
V below);
c. Working with the Golden Gate National Recreation Area and the San Francisco Maritime
National Historic District to analyze approaches to provide accessible and safe bike links
through Aquatic Park/ Fort Mason/ Marina waterfront areas; and
d. Implementing improvements from the San Francisco Bike Plan ( described further in
Section V below).
34th America’s Cup People Plan
34th America’s Cup 4- 10 March 2011
People Plan
4.3 Private Automobiles
Despite the advantages of bicycles and transit in transporting Race Viewers to these constricted
waterfront areas, there will still be a large segment of Race Viewers who will choose to drive to
the events in their own car. Although the guiding principles listed above are all supported more
directly by transit and bicycles rather than automobiles, automobile access can still be managed in
ways that foster efficiency, sustainability, adaptability and legacy. These strategies will be evaluated
as part of the environmental review process as well as through further work in refining this People
Plan.
4.3.1 Information
As noted throughout this People Plan, a key factor in the success of these Events will be providing
ample information to those making travel decisions. This is especially true for those who drive
their cars, as the wrong choice can result in negative impacts not only to the driver but to others in
the vicinity as well.
As noted in Section V below, the formulation of an effective communications plan will be critical
to enabling beneficial decisions by Race Viewers and others. This will include strategic outreach
via the internet and with appropriate travel planning partners so that detailed information is in
potential visitors’ hands before they make decisions about their travel plans ( i. e. renting a car,
choosing a hotel). In addition, day- of- event signage will be key in providing driver’s with information
as they arrive at their ultimate destination. For Fleet Week the City provides a number of temporary
signs along the waterfront to inform drivers of expected congestion as well as to direct them to
less obvious parking locations. The City would anticipate pursuing a similar approach to signage
for the Events, with the specific messages being used to bolster strategies noted below regarding
restricted automobile access and satellite parking alternatives.
This communications plan will need to be fed by accurate information from a variety of sources,
which will place a premium on coordination with relevant agencies and large scale roadway
construction projects in and around San Francisco, including but not limited to the new East Span
of the Bay Bridge and the Doyle Drive rebuild project. In addition, the dissemination of information
regarding the car- related initiatives proposed below will be critical in ensuring a positive experience
for the full range of spectators, no matter what mode of transport they ultimately choose.
4.3.2 Parking
As shown in Figure 5, parking options in close proximity to the waterfront areas are limited, and
could potentially be further limited in connection with times of automobile access restrictions as
described below. Therefore it will be important to manage the spaces that are accessible in the
most efficient manner possible. Two key strategies in this effort include the MTA’s SFpark initiative
as well as the establishment of higher- volume satellite parking facilities in other locations that
have reliable and effective connections to the waterfront areas described above.
Bay St
Chestnut St
California St
Washington St
Mission St
Market St
Folsom St
Fremont St
Green St
North Point St
Hyde St
Leavenworth St
The Embarcadero
Jones St
Columbus Ave
Francisco St
Lombard St
Broadway
Howard StHoward St
Harrison St
Beach St
Jefferson St
Stockton St
Grant Ave
Kearny St
Sansome St
Battery St
80
S a n F r a n c i s c o B a y
AC
Village
Figure 5
Proposed Waterfront Parking
0 1000
Feet

SOURCE: San Francisco Planning Department
Parking Facility
The 34th America’s Cup People Plan
34th America’s Cup People Plan
34th America’s Cup 4- 12 March 2011
People Plan
SFpark
The MTA is piloting a new program called SFpark that has the potential to provide significant
benefits in the effort to provide information about parking options to drivers on a real- time basis.
SFpark will provide a web and smartphone interface that will provide drivers with up- to- the-minute
parking availability.
To help achieve the right level of parking availability, SFpark will periodically adjust meter pricing
up and down to match demand. Demand- responsive pricing encourages drivers to park in underused
areas and garages, reducing demand in overused areas. With SFpark, real- time data and demand-responsive
pricing work together to readjust parking patterns in the City so that parking is easier
to find.
In 2011 SFpark will be testing its new parking management system at 6,000 of San Francisco’s
25,000 metered spaces and 12,250 spaces in 15 of 20 City- owned parking garages. The pilot phase
of SFpark will be rolled out over the course of the next several months.
The Event planning team will monitor the progress of the SFpark pilot closely, as it presents an
exciting opportunity to reinforce the foundations of the various strategies in this People Plan. In
addition to the parking benefits, the City team will be looking at potential opportunities to tie in
additional realtime data on traffic, spectator venue capacity, and similar issues that can prove
helpful as Race Viewers and others make their travel decisions.
Satellite Parking
The anticipated Race Viewer demand for parking in close proximity to the waterfront is expected
to exceed the available supply, especially on weekends and other high- interest days. Therefore
the Event planning team will be evaluating options to provide higher- volume satellite parking
options at locations away from the waterfront but with good transit links or other shuttle options
to provide connections to the final waterfront destinations.
This evaluation will include sites and garages within the City as well as locations outside the City
at strategic interception points. Certain of these potential options are set forth below and depicted
in Figure 6. Most if not all of these options would require further coordination with the owners
and/ or jurisdictional agencies controlling these sites, and therefore this listing remains subject to
their further feedback as planning moves forward.
1. Lot A south of AT& T Park
2. Civic Center Garage
3. 2055 Lombard Street Garage
4. 12th and Kissling Garage
5. Main Post and nearby paved locations in the Presidio
6. Key regional transit transfer hub garages and lots ( garages and lots associated with
BART’s Daly City and West Oakland stations, Larkspur Ferry, Alameda/ Harbor Bay
Ferry, Vallejo Ferry)
101
101
101
101
80
280
Lombard St
1st St
Bay St
Sansome St
Broadway
4th St
5th 7th St
9th St
Market St
Brannan St
Townsend St
Balboa St
Fulton St
19th Ave
Stanyan St
Taraval St
Park Presidio Blvd
Turk St
16th St
S. Van Ness Ave
Dolores St
Divisadero St
Hyde St
The Embarcadero
Columbus Ave
Van Ness Ave
California St
Geary St
Bush St
2nd St
3rd St
5th St
Folsom St
Harrison St
Lincoln Way
Noriega St
7th Ave
Fell St
Oak St
3rd St
S a n F r a n c i s c o B a y
G o l d e n G a t e P a r k
P r e s i d i o o f
S a n F r a n c i s c o
1
2
6
3
4
5
35 Figure 6
Proposed Satellite Parking
0 2000
Feet

SOURCE: San Francisco Planning Department
Presidio Main Post
5th and Mission Garage
Civic Center Garage
12th and Kissling Garage
Ballpark Lot A
Lombard Street Garage
San Francisco Facilities
Regional Park- and- Transit
Transfers
West Oakland BART
Daly City BART
Larkspur Golden Gate
Transit Ferry
1
2
3
The 34th America’s Cup People Plan
1
2
3
4
5
6
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People Plan
The evaluation will also include larger City- owned garages in proximity to key transit lines.
These locations have limited capacity, but the SFpark information tools described above will
provide an opportunity to utilize this space as efficiently as possible.
4.3.3 Restricted Access Areas
One attraction of automobiles is convenience, in terms of being able to expend little personal
energy in traveling quickly to one’s destination. However, if too may people choose to drive their
single occupancy vehicles onto waterfront roadways with limited capacity, then no one will be
able to arrive at their destination quickly. Therefore in certain locations and circumstances it will
be strategically appropriate to develop policies to restrict automobile access during high- volume
points of the day.
Types of Restrictions
Depending on the location the restriction may limit vehicular access to public vehicles ( police,
fire, transit) and other authorized vehicles ( including some combination of Event and team staff,
media and sponsors). In other areas where residents would be heavily impacted restricted auto
access could also include “ residents only” areas. Similarly, in areas where businesses would be
heavily impacted and where no other access options exist, auto restrictions could include exceptions
to allow for such access. Each of these restricted access configurations requires outreach and further
discussions with affected communities. Any such restrictions must be managed as an overall plan
and on a day- to- day basis to reduce impact on residents and businesses.
Potential Locations for Restricted Access
The following are some potential locations for such restricted automobile access.
The Northbound Lanes of the Embarcadero
On high volume weekend race days the closure of the Embarcadero to private vehicles for a portion
of the day presents an opportunity to create a pedestrian-, transit- and bicycle- friendly environment
that will serve to enhance the popularity of the Events. At the same time, however, the Event
attractions, ferry terminals and other non- race- event businesses along the waterfront require some
level of access across those same lanes, not to mention residents and commuters in the area who
depend on the Embarcadero as a major travel facility. Therefore such a closure should be studied
carefully, and the 2012 Events should be utilized in combination with the experience of the recent
Sunday Streets closures of the Embarcadero to design a thoughtful approach to such closures at
appropriate times during the longer- duration 2013 Events.
Northern Waterfront Area ( Generally North of Bay St.)
Similarly, there will be benefits to restricting automobile access at different locations along the
City’s northern waterfront, generally to the north of Bay Street. In addition to the considerations
listed above, these locations also include residential areas. Again it is evident that effective
communications and the utilization of the 2012 Events as a testing ground will be critical to
developing a strategy that works for all concerned.
4. Transportation Studies
34th America’s Cup 4- 15 March 2011
People Plan
Jefferson Street
The Jefferson Street area bordering Fishermans Wharf and Pier 39 is a potentially congested location
that requires careful coordination to balance competing transportation demands. Restrictions on
private automobiles in this area could bolster pedestrian and bicyclist safety while freeing up the
area for continued light rail operations at the Jones Street turnaround.
Signage
As noted above, the City would anticipate pursuing the Fleet Week approach to supplement the
fixed and variable message signs plan with additional temporary variable message signage for the
Events, with the specific messages being used to bolster strategies regarding restricted automobile
access and satellite parking alternatives. The variable message signs will vary and adapt to the
changing traffic conditions as the event day unfolds.
Vehicle/ Pedestrian Crossings
As noted in the Agreement, the proposed programming at Piers 30- 32 and Seawall Lot 330 will
require the deployment of an effective strategy for moving pedestrians across this key location.
Similar considerations will apply at other Embarcadero locations, including the crossing in front
of the Ferry Building as well as at Piers 27 and 29. In each instance, MTA staff will evaluate signal
timing, travel conditions and projected event crowds to determine the appropriate deployment of
Traffic Control Officers to assist in the orderly management of competing pedestrian, transit and
automobile demands. These strategies will be crafted to be adaptable and effective in delivering
safe passage to those seeking to attend these waterfront locations.
Similarly, the public dialogue and further analysis of automobile restrictions on the northern
waterfront area west of the Embarcadero should include the identification of potential pedestrian
crossing challenges and the strategic resources required to address them.
4.4 Water Transport
4.4.1 Ferries
Ferries represent a potential high- volume mode of transport that would provide direct connections
to the waterfront corridor while removing some amount of land- side congestion. However, due to
the location of the Events ferry service could be impacted by a variety of factors. The Ferry routes
and schedules themselves will need to be coordinated to avoid conflicts with the on- water Event
activities, while still delivering needed service to Race Viewers, Participants and other groups not
associated with the Events.
In addition, any waterfront roadway restrictions would have to be structured with access to ferry
terminals in mind. While a number of San Francisco- bound ferries dock at the Ferry Building, there
are also locations at Piers 3, 31, 41, 43 and 45 that would need to be evaluated in this manner. Each
of these locations will be analyzed in order to ensure that such restrictions do not present obstacles
to effective ferry service. Similarly, the availability of parking for ferry patrons at the points of
origin ( e. g., Larkspur) will have to be evaluated, particularly during weekdays. Subject to further
34th America’s Cup People Plan
34th America’s Cup 4- 16 March 2011
People Plan
discussions with the applicable operators, potential temporary strategies such as the provision of
attendant parking could also be studied.
4.4.2 Spectator Vessels
There will be a number of Race Viewers and Participants who will choose to access the Events
from vessels on the Bay. This traffic will also be coordinated as part of the on- water permitting
process and the management of the Race Area. The primary Event- related berthing locations are
still under discussion in connection with the Event planning and environmental review processes.
Further coordination of land- side access to these berthing locations will be a key to ensuring the
efficient management of this aspect of the Race Viewer and Participant experiences
4.4.3 Water Taxis
The Port of San Francisco has entered into an agreement with SF Water Taxi LLC to provide
water taxi service beginning June 2011 along the Port’s northern waterfront with landings at Pier
1 ½ and Hyde Street Harbor in Fisherman’s Wharf. Further coordination, and possible
expansion, of the water taxi service will be evaluated as Event planning moves forward.
4.4.4 Other Water Transport Opportunities
As part of the discussion among the affected ferries and waterside regulatory and security agencies
there may be occasion to discuss other opportunities to incorporate water based transportation options
to further alleviate congestion on land. Such discussions could include further partnerships with
existing ferry operators for additional service to new locations ( i. e. Treasure Island) or potentially
other initiatives. City staff has not yet engaged in any evaluation of the feasibility of these
opportunities, and therefore they require further review and discussion before specific proposals
can be advanced.
4. Transportation Studies
34th America’s Cup 4- 17 March 2011
People Plan
4.5 Pedestrians
The general cluster of Event attractions along the City waterfront will allow for a wide range of
Participants and Race Viewers to travel to their destinations on foot. The People Plan will be
developed to enhance the pedestrian experience throughout the corridor for both residents and
visitors alike. Many of these pedestrian considerations are detailed in relation to the other transportation
strategies set forth above, and together they provide some of the promising legacy benefits of all
of the strategies because they can be enjoyed by the widest range of people. The comprehensive
pedestrian strategy that will be developed in conjunction with the People Plan includes but is not
limited to the following aspects:
1. Temporary or permanent wayfinding signage ( as with bicycle signage, potentially
providing a positive legacy opportunity);
2. Temporary street closures or restricted automobile access enhancements to pedestrian
safety in key locations;
3. Evaluation of key Embarcadero crossings to foster the safe coordination of pedestrian
traffic with other modes of traffic moving through this area;
4. Detailed pedestrian crossing safety planning as noted above; and
5. Potential capital improvements as described below.
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People Plan
4.6 Taxis and Chartered Buses
Taxis and chartered buses represent additional modes of transport that may be chosen by Race
Viewers. These modes can provide some benefits at addressing aspects of demand, but their success
depends on careful planning. This includes identifying appropriate dropoff and pickup locations
in relative proximity to the waterfront and, in the case of buses, an appropriate location for them
to park during the times they are not occupied. The selection of these locations must be informed
by a better understanding of the Event- related programming at such locations as such plans come
into greater focus. In the case of taxis, further work on the Plan will include additional analysis
of the relative supply of taxis at the projected and actual times of increased Race Viewer transportation
demands, and potential mechanisms by which that capacity can be increased to meet those demands.
The further development of this People Plan will include evaluations of all of these considerations
as part of the comprehensive transportation strategy.
34th America’s Cup 5- 1 March 2011
People Plan
SECTION 5
Additional Considerations
5.1 Coordinated Communications Strategy
5.1.1 Overall Communications Strategy
As noted elsewhere in this People Plan, arming Race Viewers and other potentially affected populations
with information ahead of time is an investment that will pay dividends in the form of more informed
and efficient transportation choices from among the strategies above. Providing visitors and residents
with information ahead of time can encourage decisions that benefit both the individuals as well
as the Events and the Bay Area as a whole.
Therefore, in parallel with the development of the People Plan the Event team will be developing
an active pre- Event communications plan that includes the effective utilization of web portals,
contacts with key travel businesses and representatives ( agents, hotels, concierges at airports as
called for under the Agreement) and local outreach as conduits for creating an informed set of
transportation consumers during the Events.
5.1.2 Day of Event Information
While advance information can generate benefits from a wide range of potential travelers, such an
initiative will need to be paired with effective day- of- event communications initiatives, in part to
assist those who have not had the opportunity or inclination to plan their options in advance. These
communications initiatives can include traditional methods that have proven effective with respect
to other events in the City such as greeters/ concierges at key regional transfer points. These may
include some or all of the following: Embarcadero Station, Ferry Building, Caltrain Terminal,
Civic Center Station, Transbay Terminal and AT& T Park.
In addition, the Event team is also excited by the opportunity to use modern information technology
to improve the transportation demand patterns associated with the Events. This investigation will
include the further development of the SFpark pilot and evaluation of ways it can be paired with
similar internet- based realtime mechanisms to create an Event- specific application to communicate
space availability and scheduling information across a range of transportation modes and destinations.
5.2 Disabled Access
In the further development of the options set forth above the City and ACEA will be evaluating
how the strategies set forth above can be deployed in such a way as to enhance Event access for
the persons with disabilities and seniors. This effort will focus on both Race Viewers and those
not seeking to experience the Events, and will take into account destinations in the vicinity of the
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34th America’s Cup 5- 2 March 2011
People Plan
waterfront corridor that are not associated with the Events themselves but which are known to
attract visitors and others with access needs.
5.3 Interagency Initiatives
As noted in other sections of this Plan, the success of the final People Plan will depend in large
part on the ability of the City and ACEA to leverage the cooperation by other public and private
partners towards implementing strategies that support the guiding principles of this document.
Some of these strategies would be pilots or expansions of partnerships that have already been
proposed, such as coordination of service schedules, single- priced farecards that can be used on a
variety of transit systems, or the Treasure Island congestion pricing model described in Section
IV. A. 2. c above. Others would be new partnerships that could include the sharing of rolling stock
or staff to the extent such approaches would yield efficiency benefits at limited costs. All of these
initiatives will require close cooperation, both under and in addition to the City’s planned
facilitation of an interagency transportation task force.
5.4 Potential Capital Improvements to Systems
Described above
While not directly linked with the Event project planning process, the following projects could
provide some benefits to the transportation strategies under this People Plan. They are in various
stages of readiness, and in some cases do not have a firm financing plan. Therefore the City’s
America’s Cup team will continue to coordinate with the applicable project sponsors to identify
which of these proposed improvements may be brought forward in time to improve the Event
experience for Race Viewers and other travelers in the vicinity.
5.4.1 Jefferson Street Public Realm
The Jefferson Street project includes street and sidewalk area improvements to improve pedestrian
and bicycle circulation as part of an integrated shared- use strategy with the F- Market line historic
streetcars and automobiles in the general vicinity of Fisherman’s Wharf and Pier 39. The City
Planning Department plans to issue a mitigated negative declaration relating to the Jefferson Street
project in May 2011. As of the current date there is no firm financing plan to deliver the proposed
project prior to the Events.
5.4.2 Implement Embarcadero Promenade Design Criteria
from AT& T Park to Pier 45
The Embarcadero Promenade Design Criteria is a proposal to enhance and guide improvements
to the continuous waterfront multiuse walkway on the Bay side of The Embarcadero. The proposed
Embarcadero Promenade Design Criteria provide policy and design direction to further improve
public circulation, and direct the placement of street furnishings and other improvements within
the Promenade in a manner consistent with the City’s Better Streets Plan. Promenade Criteria
recommendations include reconstructing raised sections of the Art Ribbon to be flush with adjacent
pavement, relocating interpretive sign pylons in alignment with light poles, and adopting criteria
5. Additional Considerations
34th America’s Cup 5- 3 March 2011
People Plan
for selection and placement of signs and furnishings. Certain aspects of this proposal would require
additional environmental clearance and funding to allow for implementation prior to the Events.
5.4.3 Fort Mason Tunnel F- line Extension
This project would lengthen the historic streetcar F- line from Fisherman's Wharf to San Francisco
Maritime National Historical Park and on to Golden Gate National Recreation Area, ending at Fort
Mason Center. The intended effect of this proposed project is to provide high- quality rail transit
that improves transportation access and mobility between regional transit hubs and San Francisco's
bustling waterfront by extending the existing streetcar service past its current terminus at Jefferson
and Jones Streets. On March 18, 2011 the National Park Service issued a Draft Environmental
Impact Statement for the tunnel project. The federal environmental review process is projected to
be complete in late 2011. As of the current date there is no firm financing plan to deliver the project
prior to the Events.
5.4.4 Improvements to Bay Trail As Part of Marina Yacht
Harbor Rebuild
The scope of the project to convert the sidewalk located between Lyon and Laguna Streets into a
bike and pedestrian trail. A segment of this trail between Laguna and Buchanan will reconstruct a
portion of the Bay Trail. This project has an identified funding source and is in the process of
obtaining environmental clearance ( NEPA and CEQA). Construction is anticipated to be
complete September 2012.
5.4.5 Bike Plan Improvements
The City has adopted the “ San Francisco Bicycle Plan,” a program of bicycle- focused enhancements
to the City’s bikeways that are intended to grow and refine the City’s network of bicycle improvements.
Certain of the planned improvements may provide benefits in terms of bicycle access to or along
the waterfront corridor at which Event traffic will be focused, though some of these proposed projects
may require further environmental clearance or the identification of available funding. The City
team will continue to coordinate with the managers of the bicycle plan projects to understand
where such projects may present synergies with the bicycle strategies set forth in this People Plan.
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People Plan
5.4.6 Other Short- Term Improvements
In addition to monitoring and coordinating with the projects described above, the City’s team will
continue to evaluate short term improvements or similar opportunities to further enhance the
transportation strategies listed above. For example, these could include reprogramming parking
areas or public space located in restricted access areas for temporary uses in support of other
strategies such as bicycle support facilities or augmented pedestrian or spectator space.