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& Candlestick Point Hunters Point Shipyard Phase II - Office of ...
Approved June 3, 2010Agency Commission Resolution No. 69-2010Candlestick&PointHunters PointShipyardPhase IITransportation Plan
TABLE OF CONTENTS1 Executive Summary…………………………………………… 11.1 Introduction11.2 Project Definition31.3 Transportation Program41.4 Game Day Considerations61.5 Non-Stadium Variants61.6 Analogies72 Introduction……………………………………………………… 92.1 The Development Plan92.2 Project Location102.3 Goals, Principles and Strategies112.4 Outreach & Community Feedback133 Existing Conditions…………………………………………… 153.1 Transit Challenges163.2 Traffic Challenges173.3 Pedestrian & Bicycle Challenges183.4 Other Proposed Developments in the Project Area 194 Project Definition……………………………………………… 214.1 Land Use Program214.2 Street Network and Urban Form244.3 Proposed Roadway Improvements435 Transportation Program……………………………………… 495.1 Introduction495.2 Strategies515.3 Phasing716 Game Day Considerations…………………………………… 736.1 Game Day Travel Demand746.2 Game Day Modes of Travel746.3 Game Day Applications of Improvements756.4 Stadium Parking Supply766.5 Game Day Operations767 Non-Stadium Variants………………………………………… 877.1 Variant 1 - Research & Development887.2 Variant 2A - Housing/Research & Development 908 Analogies……………………………………………………… 938.1 Comparison to Other San Francisco Neighborhoods 948.2 TDM Case Studies94Appendix: TDM PlanTransit Operating PlanList of Tables & FiguresTable 1:Table 2:Table 3:Table 4:Table 5:Table 6:Table 7:Table 8:Table 9:Table 10:Table 11:Table 12:Table 13:Table 14:Table 15:Table 16:Table 17:Table 18:Table 19:Table 20:Table 21:Table 22:Table 23:Table 24:Table 25:Table 26:Table 27:Table 28:Table 29:Figure 1:Figure 2:Figure 3:Figure 4:Figure 5:Figure 6:Figure 7A-7P:Figure 8:Figure 9:Figure 10:Figure 11:Figure 12:Figure 13:Figure 14:Figure 15:Figure 16:Figure 17:Figure 18:Figure 19:Figure 20:Figure 21:Figure 22:Figure 23:Figure 24:Project Mode Split Goals - PM Peak Hour Work Trips…………………………Land Use Program………………………………………………………………………………Mode Split Comparison - San Francisco Neighborhoods……………………Land Use Program………………………………………………………………………………SD-3 Calculated Mode Split – Weekday PM Peak Hour………………………Project Mode Split Goal – Weekday PM Peak Hour……………………………Muni Service to the Project – Existing and TEP Equivalents………………5059Car Share Parking Space Requirements……………………………………………… 63Parking Requirements………………………………………………………………………… 66Proposed Parking Supply…………………………………………………………………… 67Proposed Bicycle Parking Supply and Facilities………………………………… 67Proposed Off-Street Freight Loading Space Limits…………………………… 70Proposed Off-Street Freight Loading Space Requirements……………… 70Land Development Phasing………………………………………………………………… 71Roadway Improvement Phasing………………………………………………………… 71Transit Improvement Phasing……………………………………………………………… 72Proposed Game Day Mode Split…………………………………………………………Post-Game Lane Configuration – Existing Stadium……………………………Post-Game Lane Configuration – Proposed Stadium…………………………Peak Direction Exit Capacity – Existing Stadium………………………………Peak Direction Exit Capacity – Proposed Stadium……………………………Land Use Program (Variant 1 - Research & Development)………………Proposed Parking Supply (Variant 1 - Research & Development)………Land Use Program(Variant 2A - Housing/Research & Development)………………………………Proposed Parking Supply(Variant 2A - Housing/Research & Development)………………………………Mode Split Comparison - San Francisco Neighborhoods……………………Employee Commute Options (ECO) Program……………………………………Hillsborough County Long Range TDM Plan………………………………………Santa Clara Valley Transportation Authority Trip Reductions……………Potential Transportation Improvements……………………………………………Project Location…………………………………………………………………………………Existing Transit Network……………………………………………………………………Existing Roadway Network…………………………………………………………………Proposed Nearby Developments………………………………………………………Land Use Program………………………………………………………………………………Proposed Internal Street Network……………………………………………………Proposed Roadway Improvements……………………………………………………Proposed Harney Way Initial Configuration………………………………………Proposed Harney Way Potential Long-Term Configuration…………………Yosemite Slough Bridge Concept………………………………………………………Pedestrian Circulation Plan…………………………………………………………………Existing Bicycle Routes………………………………………………………………………Proposed Bicycle Routes……………………………………………………………………Proposed Transit Improvements…………………………………………………………Proposed Project Parking……………………………………………………………………Proposed Stadium Game Day Parking………………………………………………Game Day Transit………………………………………………………………………………Post-Game Auto Exit Capacity – Opening Day Conditions…………………Post-Game Auto Exit Capacity – Project Build Out Conditions…………Game Day Routes………………………………………………………………………………Game Day Traffic Control……………………………………………………………………Land-Use Program: Non-Stadium(Variant 1 - Research & Development)………………………………………………Land-Use Program: Non-Stadium(Variant 2A - Housing/Research & Development)………………………………2372250747779808188909191949697974101618202327-424546474852545557687879828384858992
1Executive Summary1.1 IntroductionThe Candlestick Point and Hunters PointShipyard Phase II Development Plancontemplates a new, mixed-use communityin southeastern San Francisco. Lennar, thelead developer of the community, is workingin partnership with various City agencies anddepartments to define the DevelopmentPlan. The Development Plan is subject toenvironmental review and approval byvarious city, state, and federal authorities.This Transportation Plan is one of severalplans and reports describing the proposedDevelopment Plan. The Transportation Planpresents goals, principles, and strategiesto meet the travel demand needs of anemerging mixed-use, urban neighborhoodin southeast San Francisco. Incorporatinginnovative practices and sustainabledevelopment principles, the Plan seeks toprovide residents, employees, and visitorsof the two neighborhoods with high-qualitytransportation infrastructure and services.1
Goals & PrinciplesThe Transportation Plan's (referred to throughout as "thePlan") elements prioritize walking, bicycling, and transittravel, making these attractive and practical transportationoptions. At full build-out, the project targets a weekday PMpeak hour work trip mode split of not more than 45 percentauto, and not less than 30 percent transit, 20 percent walk,and 5 percent bike, as shown in Table 1. This aspirationalgoal compares with an existing PM peak hour work tripmode split in Superdistrict 3 (SD 3) of 66 percent auto,16 percent transit, 16 percent walk, and 2 percent bike.Integrating transportation and land use, providing new andimproved transit options, an effective Transportation DemandManagement (TDM) Program, and properly designed streetswill help achieve this goal. The project also enhances the selfsufficiencyand sustainability of adjacent neighborhoods (suchas the Bayview, Executive Park/Visitacion Valley, the CentralWaterfront, India Basin and across the border in Brisbane)by linking these areas to the project's strong transit, bicycleand pedestrian networks, and neighborhood services withinclose proximity while providing seamless transit to regionalemployment center and destinations. This linkage should alsoserve to reduce overall trips and vehicle miles traveled in thearea.Table 1: Project Mode Split Goals - PM Peak Hour Work TripsMode SD-3 Mode Split 1 Project TravelBehavior Goal 2DifferenceAuto/Carpool 66% 45% -21%Transit 16% 30% +14%Walk 16% 20% +4%Bike 2% 5% +3%Total 100% 100%Source: Fehr & Peers – May 2009It is important to note that even small differences in thecurrent SD-3 mode split and the project travel behavior goalwill have a large effect due to the scale of the Project.In addition, the project aims to create a community with all ofthe services necessary to achieve self-sufficiency, and serveas a model of sustainable development and transportation.Integration ofTransportation & Land UseThe land use plan incorporates a dense, compact developmentpattern centered around mixed-use transit nodes. Thefollowing illustrate a few features of the plan designed topromote pedestrian, bicycle, and transit travel:• The development pattern is designed to facilitate walkingand cycling for internal trips, and bus service for internaltrips, trips downtown and to regional transit hubs;• Significant portions of the project area are preserved asopen space;• Streets are designed to support a variety of travel modes atmoderate to low speeds, and are arranged in a pedestrianorientedgrid of small blocks;• All of the homes within each community are within a15-minute walk of a transit stop, where frequent servicewill be available;• Neighborhood services and retail are integrated intoresidential blocks;• The mixed-use center of each community will serve asan arrival point and activity hub, and provide a source ofidentity; and• The phasing of development and supporting transportationinfrastructure is designed to support the goals above ateach major increment.1 The Metropolitan Transportation Commission (MTC) maintains a set of regional travel analysis zones foruse in MTC planning studies. In addition to regional travel analysis zones and counties, MTC supportsan intermediate geographic scale, "superdistricts," for analysis and reporting purposes. There are 34superdistricts in the nine-county Bay Area.2 Goals are based on precedents described in Table 3 at full project build-out. Auto mode share is amaximum, others are minimums.Executive Summary2
Integration of TransportationImprovements with SurroundingBayview NeighborhoodThe proposed street and transit improvements would beintegrated with the surrounding transportation networkand facilities to benefit the entire Bayview/Hunters Pointneighborhood, in addition to serving the proposed projectdemands.1.2 Project DefinitionThe proposed land use program for the redevelopment ofCandlestick Point and Hunters Point Shipyard, summarized inTable 2, includes residential, regional and local-serving retail,research and development space, office, hotel, and openspace. In addition to these uses, the program includes a newstadium for the San Francisco 49ers and an arena that couldbe used for smaller events and performances.Land UseTable 2: Land Use ProgramCandlestick PointHunters PointShipyardResidential 7,850 homes 2,650 homesRegional-Serving Retail 635,000 sq. ft. ---Neigborhood-Serving Retail 125,000 sq. ft. 125,000 sq. ft.Office 150,000 sq. ft. ---Research & Development --- 2,500,000 sq. ft.Hotel 220 rooms ---Stadium --- 69,000 seatsArena 10,000 seats ---Parks & Open Space 105 acres 231 acresArtist Studios --- 255,000 sq. ft. 1Community Services 50,000 sq. ft. 50,000 sq. ft.Source: Lennar Urban – October 20091 The Project includes 225,000 sq. ft. of existing artist studio space that would be renovated andreplaced.The density and arrangement of land uses at CandlestickPoint and Hunters Point Shipyard are designed to activelyencourage the use of walking and bicycling as primary travelmodes within the project area. The street network is intendedto better manage vehicle access while supporting transitridership, public character, and sustainability.A comprehensive set of roadway improvements, shown withtransit improvements in Figure 1, have been identified to meetthe project's increase in auto travel demand. These include,but are not limited to:3Executive Summary
New and Improved TransitCurrent Muni service toCandlestick Point and HuntersPoint Shipyard is limited,and no circulation is providedbetween the two areas.Connections to major employmentcenters in Downtown San Francisco and thePeninsula are inefficient. To maximize the effectivenessand convenience of transit service to and within the projectsite, the following strategies have been developed:• Extensions of existing Muni routes to Candlestick Point andHunters Point Shipyard, and new express buses providingdirect service to Downtown San Francisco;• New BRT (Muni Line 28L) service operating betweenCandlestick Point and Hunters Point Shipyard, andconnecting to SamTrans, BART, Caltrain, and the T-ThirdMetro line at the Bayshore Caltrain station and BalboaPark BART station;• A transit center at Hunters Point Shipyard to enableefficient and convenient transfers;• Bus service throughout the day, evening, and weekends athigh levels of service to provide convenient connections toemployment and activity centers and the regional transitnetwork; and• Other areawide improvements associated with the TransitEffectiveness Project (TEP) and Muni's Service PlanTransportation Demand ManagementProgramAlso included in the Plan is a comprehensive TDM programthat will include elements to facilitate carpools and vanpools,encourage carsharing, increase the convenience of transitservices, and create a walkable and bikeable community.Specific components of the TDM program include:• A full-time Transportation Coordinator to manage the realtimetransportation needs of residents, employees andvisitors to Candlestick Point and Hunters Point Shipyard;• Residential parking sold or leased separately from units3 ;• Bicycle support facilities to encourage bicycling, includingparking facilities (racks, lockers and showers), stationsat key locations with attended bicycle parking and repairfacilities, and potentially a bike sharing program;• The inclusion of a transit pass with monthly homeowner'sdues; and• Visitor parking charges at variable market rates toencourage transit use. This can be accomplished byincreasing parking rates during the peak period whentransit service is most frequent, or increasing parkingrates progressively to favor short-term parking over longtermparking, discouraging commuter parking.3 This arrangement would not apply to the 1,655 "Agency Affordable" units, which are limited bytax-credit financing requirements.5Executive Summary
Implementation and MonitoringA phasing strategy has been developed for the transportationimprovements and programs to coincide with the project'sdevelopment. Some specific components of the monitoringplan include:• The Plan will be implemented at the earliest stages ofdevelopment and specific phasing of the programs andservices will be adopted;• Outreach to residents, employees and visitors will informthem of all available transportation options; and• The impact of events at the football stadium andperformance venue will be monitored to determine theopportunities for applying TDM to encourage the use ofnon-auto modes.1.4 Game Day ConsiderationsAs part of the development of Hunters Point Shipyard, a newstate-of-the-art 69,000-seat stadium for the San Francisco49ers is planned. Based on input from the operators of theexisting stadium and the 49ers staff, parking, access, andoperations have been analyzed for typical football game dayevents, with the following results:• The new stadium would be served by more transit-onlyroutes (streets or lanes closed to all traffic other thanbuses) including regular and game-day service to andfrom regional transit connections (e.g., BART, Caltrain,etc.) compared to the existing stadium;• At build-out, the new stadium would be expected toclear 46 percent faster following events than the existingstadium at Candlestick Point; and• As a key improvement for the stadium, the projectproposes a network of traffic signals, overhead lane usecontrol signals, changeable message signs, and reversiblelanes to optimize intersection operations during pre- andpost-game conditions.1.5 Non-Stadium VariantsAlternate plans have been developed in the event that the49ers franchise elects not to build a new stadium at HuntersPoint Shipyard. These alternatives place an expanded researchand development campus on the stadium site, adding betweenone half and two and a half million square feet of space to thetwo million square feet indicated in Table 2. The non-stadiumalternatives aspire to achieve the same mode split goals asthe stadium alternative.• The new stadium would provide approximately 17,415parking spaces for all types of game day attendees;• Secured valet bike parking should be provided for aminimum of one percent of all expected participants andbe located within a one block radius of an entrance to thestadium;Executive Summary6
1.6 AnalogiesComparison to other San Francisco NeighborhoodsThe project's mode split goals have been compared with 2000U.S. Census data on existing travel behavior in other SanFrancisco neighborhoods. As shown in Table 3, at least eightother neighborhoods in San Francisco exhibit travel behaviorcomparable to the project's goals.The auto mode share goal of 45 percent is a desired maximumshare, while the transit, walk and bike mode share goals aredesired minimum mode shares.Table 3: Mode Split Comparison - San Francisco NeighborhoodsNeighborhoodPM Peak Hour Residential Work TripsTransit Walk/Bike Auto/CarpoolMarina 40% 11% 49%Mission 39% 14% 47%Nob Hill 39% 32% 29%North Beach 30% 40% 30%Parkmerced 31% 4% 65%Russian Hill 35% 15% 50%Telegraph Hill 31% 29% 40%Western Addition 45% 16% 39%% That Would AchieveProject Goals 30% 25% 45%Source: U.S. Census Bureau – 2000TDM Program Case StudiesIn an effort to evaluate the effectiveness of the TDM measuresproposed by the project, other projects that have implementedsimilar programs and conducted post-implementationmonitoring and analysis have been reviewed.Case studies from northern California (including San Jose,Stanford University, Berkeley, and Sacramento), Oregon,British Columbia, and Florida have been identified that evaluatethe effectiveness of TDM measures, such as transit passes andimproved bus service, that are similar to those proposed forthis project. These TDM case studies are presented in detailin Section 7.2 of this Plan. Since the TDM case studies relateprimarily to employers at office or campus uses, additionalstrategies and innovations for large scale residential and retailwill be needed.While it is difficult to isolate the effectiveness of any one ofthe TDM elements described in the Plan, it is clear from thesecase studies that comprehensive, multi-faceted TDM planscan achieve dramatic shifts in mode choice.7Executive Summary
Executive Summary8
2Introduction2.1 The Development PlanThe Candlestick Point and Hunters PointShipyard Phase II Development Plan (theDevelopment Plan, referred to throughout as"the project") contemplates a new, mixedusecommunity within the Bayview/HuntersPoint Redevelopment Area. The projectconsists of 10,500 homes; over 3 millionsquare feet of retail, office, and researchand development uses; one hotel; over300 acres of new and restored parklandsand recreational open spaces; civic andcommunity uses; and a new stadium site forthe San Francisco 49ers. Additional researchand development uses are proposed forthe site should the 49ers select anotherlocation for the stadium. This TransportationPlan (referred to throughout as "the Plan") isone of several plans and reports (includinga Sustainability Plan and Urban Design Plan)describing the project and the existing andfuture circumstances of the project site andsurrounding areas.9
Lennar is the lead developer for the Development Plan.Lennar is working in partnership with various City agenciesand departments to define the project and plan for itsimplementation, including, among others, the Mayor's Officeof Economic and Workforce Development, the RedevelopmentAgency, the Planning Department, and the MunicipalTransportation Agency (SFMTA). The project's componentsand design have been informed by feedback obtained at over200 public meetings and workshops with the Bayview/HuntersPoint communities and presentations before the BayviewProject Area Committee (PAC) and Shipyard Citizens AdvisoryCommittee (CAC).Figure 2: Project LocationThe project is subject to environmental review under theCalifornia Environmental Quality Act, and the approval ofthe Redevelopment Commission, the Planning Commission,and the Board of Supervisors as well as other city, state, andfederal permitting authorities. The Transportation Plan hasbeen refined through discussions with City representativesand the environmental review process. Implementation ofthe final Transportation Plan will require commitments fromLennar, the City (including SFMTA), and other transportationagencies.2.2 Project LocationThe Candlestick Point and Hunters Point Shipyard Phase IIDevelopment Plan site is located along the San FranciscoBay waterfront in the Bayview/Hunters Point neighborhoodin southeastern San Francisco, as shown in Figure 2. Theneighborhood is generally bounded by Cesar Chavez Streetto the north, US 101 to the west, the San Mateo County lineand the City of Brisbane to the south, and San Francisco Bayto the east.Introduction10
The project site includes Candlestick Point, a 267-acre sitewithin the Bayview/Hunters Point Redevelopment Plan Area;and Hunters Point Shipyard Phase II, a 421-acre site withinthe Hunters Point Shipyard Redevelopment Plan Area. PhaseI of the Hunters Point Shipyard is a 75-acre site within theShipyard Redevelopment Plan Area and is under developmentwith 1,600 new homes and approximately 20,000 square feetof retail uses.2.3 Goals, Principles & StrategiesThe Candlestick Point and Hunters Point Shipyard Phase IITransportation Plan presents goals, principles, and strategiesto meet the travel demand needs of an emerging mixed-use,urban neighborhood in southeast San Francisco. Incorporatinginnovative practices and sustainable development principles,the Plan seeks to provide residents, employees, and visitorsof the two neighborhoods with high-quality transportationinfrastructure and services.The Plan's elements prioritize walking, bicycling, and transit,making these attractive and practical transportation options,which are consistent with the City's Climate Action Plan(CAP) (September 2004). The CAP outlined a number oftransportation strategies, which, when combined with otherstrategies, will help the City reduce its overall greenhouse gasemissions to 20 percent below 1990 levels by the year 2012.The CAP's recommended transportation actions are groupedinto six categories:• Increase the use of public transit as an alternative todriving• Increase the use of ridesharing as an alternative to singleoccupancy driving• Increase bicycling and walking as an alternative todriving• Support trip reduction through employer based programs• Discourage driving• Increase the use of clean air vehicles and improve fleetefficiencyThe goals, principles, and strategies in this TransportationPlan are centered around these six themes, and are supportedby investment in infrastructure and services that providealternatives to private auto travel. Also included in the Plan aretravel demand management strategies designed to encouragethe use of transit and alternative modes of travel.Another objective of the project is to integrate the proposedroadway and transit improvements with the surroundingneighborhood, as many of these improvements will haveimpacts on adjacent communities. The Plan seeks to createtransportation solutions that benefit the entire Bayview/Hunters Point neighborhood in addition to serving the proposedproject demands.Goals• The project targets a weekday PM peak hour mode splitfor work trips of not more than 45 percent auto travel,and not less than 30 percent transit, 20 percent walk and5 percent bike;• The project will create a lively community with a strongsense of place and the services necessary to help achieveself-sufficiency;• The project proposes a balance of uses that will enableresidents to meet their daily needs with reduced automobiledependency;• The project will serve as a model for the region and thenation of sustainable development and transportation andland use integration; and• The project will reduce vehicle miles traveled and carbonemissions compared to traditional development patterns.11Introduction
Principles• Transportation systems should be fully integrated withexisting networks to provide seamless connections andservice;• The development pattern is designed to facilitate walking,cycling, and transit trips;• Internal streets are designed to support a variety of travelmodes at moderate to low speeds (between 15 and 25mph), arranged within a pedestrian-oriented grid of smallblocks;• Arterials have a design speed of 35 mph to allow for rapidtransit service competitive with the private car;• The mixed-use center of each community should serveas an arrival point and activity hub, and provide a sourceof identity;• All of the homes within each community should be within aquarter mile of a transit stop, where frequent bus servicewill be available;• All residences should also be within walking distance ofbasic neighborhood retail;• Transit service to and from Candlestick Point and HuntersPoint Shipyard should operate throughout the day,evening, and weekends at high levels of service to provideconvenient connections to employment and activity centersand the regional transit network;• Auto access should be discouraged through traffic calming,parking management, and other policies;• Transportation demand measures should support transit,pedestrian, and bicycle travel and will be directed atresidents, employees, and visitors; and• Phasing of development and transportation infrastructureshall be coordinated to support the achievement of thegoals above in each major increment of development.StrategiesTo achieve the project goals according to the above principles,the Plan includes the following elements:• Homeowners' dues will include the cost of a transit passthat can be used on Muni, Caltrain, or BART services;• Residential parking will be "unbundled", i.e., sold or leasedseparately from units 4 ;• All non-residential parking will be unbundled fromresidential and visitor uses, and incur a parking charge atvariable market rates to encourage transit use (potentiallywith increased rates during peak periods and/or for longtermparking);• A full-time Transportation Coordinator will be employed tomanage the real-time transportation needs of residents,employees, and visitors;• Travel within the development areas will be facilitated bybike lanes and frequent bus rapid transit service operatingin dedicated lanes and with signal priority;• Elements of the Transportation Demand Management(TDM) Program will be implemented at the earliest stagesof development and specific phasing of the measures andservices will be adopted;• The TDM program will be monitored for its effectivenessin meeting the Plan's objectives. Outreach to residents,employees, and visitors will inform them of all availabletransportation options. The TDM Plan is an Appendix tothis Transportation Plan;• The impact of events held at the stadium and performancevenue will be monitored to determine opportunities forapplying TDM to encourage the use of non-auto modes;and• Development controls and design guidelines will requirethat public and private spaces be designed to create ahigh quality pedestrian environment.4 This arrangement would not apply to the 1,655 "Agency Affordable" units, which are limited by taxcreditfinancing requirements.Introduction12
2.4 Outreach & CommunityFeedbackThis plan relies extensively on community outreach andinput. Input and guidance from City agencies and longstandingagreements with members of the Bayview/HuntersPoint community have been carried into this Plan, rangingfrom the high-level (e.g., San Francisco's "Transit First" policyand SFMTA's policies supporting safe pedestrian and bicyclecirculation) to specific neighborhood-related transportationgoals and objectives of the Bayview/Hunters Point area.To complement the broader policies and agreements, inputand feedback reflecting the most current conditions informedby new developments in the transportation system isincluded. An extensive multi-agency series of workshops,panels, hearings, and presentations were conducted between2008 and 2010 to update and refine information for thisTransportation Plan.Community-Based Outreach & InputThe specially-formed, community-staffed, Project-basedPolicy Advisory Committee (PAC) and Citizens AdvisoryCommittee (CAC) presided over numerous meetings focusedon transportation and were held in the project area. In thespring and summer of 2009, a transportation workshop serieswith a brainstorming/report-back format was held with threefocus areas:• India Basin Roundtable (specific focus on the IndiaBasin area);• Northern Connections Workshop (brainstorming/reportback,broad scope with special focus on Hunters Point);• Southern Connections Workshop (brainstorming/reportback,broad scope with special focus on Candlestick Pointand Yosemite Slough);• Workshop summary presentations to the CAC and thePAC.To complement these workshops and broaden the discussionto adjoining neighborhoods and regional connections, otherspecific community meetings were held with these areas offocus:• Adjoining neighborhoods: Visitacion Valley, India Basin,and Bayview;• Environmental sustainability;• The San Francisco Bay Trail;• The San Francisco Bicycle Plan;• Bi-County Study (San Francisco County/San Mateo Countytransportation & land use coordination).Community PrioritiesThese community-based workshops informed a set of goalsto guide the decisions, multi-modal balance, and phasing/implementation strategies of this Plan, and expressed thefollowing priorities and focus areas:• Safety: to address perceived safety concerns as wellas incidents;13Introduction
• Equity: to avoid a "gated community" effect;• Connectivity: to ensure efficient and fast transit to othercity neighborhoods and the region, and for seamless travelfor all modes between neighborhoods;• Community: to create a walkable "village" context;• Sustainability: to emphasize transit, pedestrian, andbicycle circulation;• Vitality: to promote economic and aesthetic health ofthe area;• Quality of Life: to address noise and other impacts toresidential areas;• Adaptability: to ensure "complete" communities inall phases.The community also provided specific direction related to thedesign of key arterials such as Harney Way, Innes Avenue, andPalou Avenue, defining alternative transportation paths androutes (including over and around Yosemite Slough and IndiaBasin), managing impacts on residential areas, refining transitand bicycle route extensions and service plans, protecting theon-street parking supply, integrating the safety and designenhancements of the San Francisco Better Streets Plan, andimplementing development and infrastructure in phases.Public Agency ReviewInput and feedback from the public agencies involved in thedevelopment of the Transportation Plan was obtained froma series of technical meetings to focus on transportationengineering issues such as emergency vehicle access,Muni service planning needs, land use and transportationcoordination and phasing, street greening, truck routecirculation, highway and interchange design, waterfronttransportation access and parks access.The agencies engaged include, among others:• San Francisco Planning Department and Commission• SF Redevelopment Agency and Commission• Board of Supervisors and its various committees• SF Municipal Transportation Agency (MTA Board, BoardCAC, Traffic Engineering, Muni Capital and ServicePlanning)• San Francisco County Transportation Authority: Bi-Countyproject and CAC• Bayview Transportation Improvements Project• TASC (includes SFMTA, DPW, SF Police Department and SFFire Department)• Mayor's Office on Disability• SF Public Utilities Commission• SF Environment and Commission• SF Department of Public Health• SF Greening• City/County Association of Governments for San MateoCounty• City of Brisbane• Caltrain/SamTrans• Association of Bay Area Governments• Metropolitan Transportation Commission• Water Emergency Transportation Authority• California Department of Transportation• California State Parks FoundationThrough these processes, the Plan incorporates communitypriorities, coordination between local and regional networksand between transportation and land use phases, andrecommendations following technical review and refinementsfrom responsible agencies. The outreach and input alsoassisted in accommodating a variety of goals, reconcilingconflicts, and ensuring the over-arching accommodation ofsafety and sustainability in the Project area.Introduction14
3Existing ConditionsThe Project site is located in the southeasternportion of San Francisco along the BayviewWaterfront. The Candlestick Point andHunters Point Shipyard Phase II portions of theproject lie within the Bayview/Hunters PointRedevelopment Plan Area and the HuntersPoint Shipyard Redevelopment Plan Area,respectively.The site is relatively isolated from the rest ofthe City. The surrounding topography of hillsand Yosemite Slough create a context withlimited connections to the existing regionaltransportation network. Essentially, only twomain roads serve the site, Harney Way on thesouth and Innes Avenue on the north, andmany intermediate streets do not connectthrough to other neighborhoods. Theseconditions create challenges with respectto providing convenient transit service andaccommodating traffic demand.15
3.1 Transit ChallengesFigure 3: Existing Transit NetworkIn the existing transit network, shown on Figure 3, two Munilines currently reach the edge of the project area: 19-Polkand 29-Sunset. This is inadequate to serve the project, as thelines do not provide any circulation within the project area, nordo they directly serve employment centers in San Franciscoor the Peninsula. Both lines provide access to Downtown SanFrancisco via a transfer to the T-Third Metro line. Althoughthe 29-Sunset connects to the regional rail system at BalboaPark BART station, it is accessed via a circuitous route thatis subject to congestion. Further, neither the 19-Polk nor the29-Sunset connects to Caltrain, which operates in the project'svicinity 5 and serves as the primary connection to the majoremployment centers on the Peninsula and in the South Bay.Bayshore remains the only Caltrain Station in the project areaafter the closure of Paul Avenue Station in 2005. No othertransit services connect directly to Bayshore Station, which isserved only by local trains running on an hourly basis duringpeak periods. An average of only 171 weekday boardingswas recorded at the station in 2007. Without convenienttransit connections from Candlestick Point and Hunters PointShipyard and with limited service, the existing BayshoreStation is insufficient to serve the project area. In additionto the two lines previously mentioned, four additional Munilines – 23-Monterey, 24-Divisadero, 44-O'Shaughnessy and54-Felton – serve the greater Bayview neighborhood west ofCandlestick Point and Hunters Point Shipyard.Muni has recently conducted a comprehensive review of itsservices in an effort to improve its performance and efficiency.This "Transit Effectiveness Project" (TEP) specifies changes toseveral of the lines that would serve Candlestick Point andHunters Point Shipyard. One of the proposals from the TEPinvolved replacing the 19-Polk line with the 48-Quintara linein the study area. These changes would improve serviceto the Bayview/Hunters Point neighborhood, but additionalimprovements beyond the TEP proposals would be needed toserve the project.5 Bayshore Caltrain Station is located in San Mateo County.Existing Conditions16
3.2 Traffic ChallengesThe existing street network at Hunters Point Shipyard hasserved relatively little traffic since the shipyard that occupiedthe site closed. The street network within Candlestick Pointalso sees comparatively low levels of traffic, except on gamedays at Candlestick Park, where the 49ers currently playhome games. Streets in both areas have been only marginallymaintained and are not sufficient for the high-densitydevelopment of the proposed land use plan.Further outside the project boundaries, the arterial streetsin the area – Third Street, Cesar Chavez Street, and HarneyWay – lack the capacity needed to accommodate frequenttransit service and the level of auto traffic expected to begenerated by the project. Hunters Point Shipyard in particularhas only two access points and an indirect route to thefreeway network. Access to Candlestick Point is currentlyconstrained by the narrow right-of-way between ExecutivePark and San Francisco Bay. East-west access is inhibited bythe limited number of streets that cross the Caltrain tracks,some of which are narrow or have steep grades. CurrentCandlestick Park game-day and special event conditionspresent additional challenges related to street traffic and onstreetparking prohibitions. These include use of sidewalks forparking, private automobiles on streets designated for transitand taxis only, overcrowded buses delayed on congestedstreets, and numerous automobile/pedestrian/bicycle conflictpoints.Other transportation challenges that exist in the areainclude:• Third Street cuts across the street grid at an angle, withno direct alternate routes;• Industrial and residential land uses are mixed togetherin Bayview, resulting in truck traffic in some residentialareas; and• Streets are relatively wide, potentially encouraging highervehicular speeds.For regional access to the project area, the project is nearUS 101, part of the regional freeway network. The US 101interchanges that serve the project area (at Harney Way,Third Street, Paul Avenue, Silver Avenue, Alemany Boulevard /Industrial Avenue, and Cesar Chavez Street / Jerrold Avenue)will likely lack the capacity to accommodate the additionalauto travel demand for a project of this size in the future.There is no direct on-ramp from westbound Cesar ChavezStreet to southbound US 101 or from southbound ThirdStreet to northbound US 101. In contrast to congested US101 interchanges, the interchanges on I-280 that serve theproject area (Silver Avenue / Alemany Boulevard / IndustrialStreet, and Cesar Chavez / 25th Street) are underutilized.The existing roadway network is shown in Figure 4.17Existing Conditions
3.3 Pedestrian &Bicycle ChallengesFigure 4: Existing Roadway NetworkPedestrian access throughout the project site is limited due totopographic constraints and minimal connectivity within thestreet network. Existing land uses are primarily industrialand not conducive to pedestrian activity. Currently waterfrontaccess is limited to a portion of the Bay Trail, a Class I facilitythat provides a completely separate right-of-way and isdesignated for the exclusive use of bicycles and pedestrians,which extends along the southern shoreline of the CandlestickPoint State Recreation Area.Currently, bicycle facilities within the project area include ClassIII bicycle routes, which provide for a right-of-way designatedby signs and pavement markings for shared use with motorvehicles. Existing Class III bicycle facilities are located onCarroll Avenue, Fitch Street, Hunters Point Expressway andJamestown Avenue. The existing bicycle facilities provideminimal access to the proposed project site. There are noClass II on-street bicycle facilities separating vehicular trafficfrom bicycles within the project site.Existing Conditions18
3.4 Other ProposedDevelopments in the Project AreaThere are also a number of other new development projectsunderway or at the planning stage in the area of the projectsite that will increase transit demand and automobile traffic.These proposed developments are summarized below, in termsof their net overall increases. Figure 5 shows the location ofthese proposed developments in relation to the two projectareas and to major transportation facilities.Executive Park(far left) andVisitacion Valley(left) are otherproposeddevelopments19Existing Conditions
Figure 5: Proposed Nearby DevelopmentsExecutive Park3,400 homes90,000 sq. ft. of retail/restaurantHunters View800 homes6,400 sq. ft. of retail21,600 sq. ft. of community servicesIndia Basin Shoreline Area C1,240 homes100,000 sq. ft. of retail1,365,000 sq. ft. of commercial spaceHunters Point Shipyard Phase I1,600 homes20,000 sq. ft. of retailBrisbane Baylands8,400,000 sq. ft. of developmentCow Palace Redevelopment1,700 homes550,000 sq. ft. of commercial/research & developmentJamestownapproximately 200 homesVisitacion Valley1,600 homes170,000 sq. ft. of retail25,000 sq. ft. of community servicesExisting Conditions20
4Project Definition4.1 Land Use ProgramThe proposed Candlestick Point and HuntersPoint Shipyard Phase II Development Planland use program includes 10,500 homes;885,000 square feet of retail uses; 150,000square feet of office space; a research anddevelopment campus; one hotel; a 10,000-seat performance venue, and a NationalFootball League stadium. The Plan alsoincludes a number of city parks, sports fields,and new and restored open space in theCandlestick Point Recreation Area. A totalof 336 acres are designated for recreationaluses, including dual-use fields, and as openspace. Table 4 summarizes the proposedland use program for Candlestick Point andHunters Point Shipyard Phase II. The locationof the project's proposed land uses areshown in Figure 6. A project alternative thatdoes not include the stadium is discussed inChapter 7.21
Land UseTable 4: Land Use ProgramCandlestickPointHunters PointShipyardProject TotalResidential 7,850 homes 2,650 homes 10,500 homesRegional-ServingRetail635,000 sq. ft. - 635,000 sq. ft.Neighborhood-ServingRetail125,000 sq. ft. 125,000 sq. ft. 250,000 sq. ft.Office 150,000 sq. ft. - 150,000 sq. ft.Research &Development-2,500,000 sq.ft.2,500,000sq. ft.Hotel 220 rooms - 220 roomsCommunity Facilities 50,000 sq. ft. 50,000 sq. ft. 100,000 sq. ft.Stadium - 69,000 seats 69,000 seatsArena 10,000 seats - 10,000 seatsParks & Open Space 105 acres 231 acres 336 acresArtists Studios - 255,000 sq. ft 1 255,000 sq. ftSource: Lennar Urban – October 20091 The Project includes 225,000 sq. ft. of existing artist studio space that would be renovatedand replaced.Candlestick PointAt Candlestick Point, 7,850 new residential units are proposed.These units would be developed as two-story townhomes,four-to-eight-story mid-rise buildings, and high-rise towers.Some residential buildings will be mixed-use with residentialunits above ground-floor retail or office uses. Other residentialbuildings may include corner-store retail.The housing program includes the redevelopment of the SanFrancisco Housing Authority's Alice Griffith site (also knownas "Double Rock"), replacing the 263 existing units with atotal of about 1,000 townhomes and four-story stacked flats.These new units will be made available to existing residentsbefore the existing units are removed, so that no residentswill have to be relocated.A 635,000-square foot regional retail center is also envisionedat Candlestick Point. The proposed retail program is anticipatedto include large-format shopping venues, restaurants, andentertainment uses such as a multi-screen movie theaterand clubs with live music. The retail center is also proposedto include a 75,000-square foot performance venue seating8,000 to 10,000. In addition, a hotel with 220 rooms wouldbe located at the regional-serving retail center. A parkingstructure adjacent to the regional retail center wouldaccommodate approximately 2,600 vehicles.An additional 125,000 square feet of neighborhood-servingretail space, such as grocers or coffee shops, and 150,000square feet of office uses, is planned for Candlestick Point.Hunters Point Shipyard Phase IIHunters Point Shipyard Phase II includes 2,500 new residentialunits. These units would be developed as a mix of housingtypes including townhomes, four-story flats over parking, andresidential towers. Some residential buildings will be mixedusewith residential units above ground-floor retail or officeuses. Other residential buildings may include corner-storeretail.In addition, 125,000 square feet of neighborhood-servingcommercial development would also be located at HuntersPoint Shipyard, adjacent to an approximately two and ahalf million square-foot research and development campus,focused on "clean/green technology."A site for a new, approximately 69,000-seat stadium for theSan Francisco 49ers has also been designated at Hunters PointShipyard. This site would accommodate an expanded researchand development campus if the stadium is not built.Project Definition22
Figure 6: Land Use Program23Project Definition
4.2 Street Network & Urban FormAs noted earlier, Candlestick Point and Hunters Point Shipyardare relatively isolated and currently have limited connectionsto the existing roadway network and US 101 interchanges inthe immediate vicinity. The condition of the existing streetsis insufficient to meet the travel demand that the project willgenerate and there is no existing direct connection betweenHunters Point Shipyard and Candlestick Point.Both Candlestick Point and Hunters Point Shipyard haveextensive waterfronts; however, access to the waterfrontis currently limited to a portion of the Bay Trail at thesouthern end of Candlestick State Recreation Area. Thisproject prioritizes multimodal access to the waterfront, whichhas been coordinated with Executive Park and other localdevelopments.The street network proposed for Hunters Point Shipyard andCandlestick Point is an extension of the existing grid of theadjacent Bayview neighborhood, using typical Bayview blocksizes. This street pattern allows the axes of most streets tolie perpendicular to the Bay Shore with terminating vistas ofthe bay.The proposed internal street network is intended to provideimproved vehicular access while supporting transit ridership,public character, and sustainability. Streets are designed toemphasize non-auto travel and moderate the speed of autotraffic where required, successfully facilitating all movements.Proposed techniques include driveway access management;traffic calming features such as signage and striping, pedestrianbulbouts at intersections, and refuge islands; streetscapeamenities including street furniture, lighting, and plantings;and other features that will assist in creating a high-qualitypedestrian and bicycle network. Streets are designed to reflecttheir roles as the community's organizing framework whileproviding a safe and comfortable environment for all users.The internal street network is composed of eight types ofstreets, as classified by the San Francisco Better Streets Plan(Draft for Public Review, June 2008): Commercial Throughway,Residential Throughway, Neighborhood Commercial Street,Neighborhood Residential Street, Mixed-Use Street, Parkway,Park Edge Street, and Alley.The guidelines of San Francisco's Better Streets Plan (BSP)were consulted throughout the planning of the project streetsand sidewalks. In some cases, constraints in topography,transportation engineering, and abutting land uses resultedin proposed sidewalk widths narrower than the idealizedsuggestions of the BSP. In extreme cases, constraintsresulted in proposed sidewalks that, while ADA-complying,are narrower than the suggested BSP minimums.The locations of each street type and sections for thevariations of each are presented in Figures 7A through 7Pon the following pages. The BSP strives to, when possible,have minimum sidewalk widths of 10 feet. The AmericanAssociation of State Highway and Transportation Officials(AASHTO) and the San Francisco Bicycle Plan recommend aminimum on-street bicycle lane width of 5 feet when adjacentto a curb. All cross-sections strive to be consistent withthe objectives of the BSP, AASHTO, and the San FranciscoBicycle Plan:Figure 7A:Figure 7B:Figure 7C:Figure 7D:Figure 7E:Figure 7F:Figure 7G:Figure 7H:Figure 7I:Figure 7J:Hunters Point Shipyard ArterialsYosemite Slough ArterialsCandlestick Point ArterialsCollectorsParkwaysPark Edge StreetsLocal StreetsStadium RoadsYosemite Slough Bridge ConceptsPost-Game Lane Configurations:Hunters Point Shipyard ArterialsProject Definition24
Figure 7K:Figure 7L:Figure 7M:Figure 7N:Figure 7O:Figure 7P:Post-Game Lane Configurations:Yosemite Slough ArterialsPost-Game Lane Configurations:Candlestick Point ArterialsPotential Long-Term ConfigurationsNon-Stadium Alternative:Hunters Point Shipyard Local StreetsNon-Stadium Alternative:Hunters Point Shipyard ArterialsExternal Roadway ImprovementsThe spine of the project's street network is a continuous arterialbeginning in the northwest of Hunters Point and travelingsouth to Candlestick Point that connects the two project sites.The portion of the arterial within Hunters Point incorporatesInnes Avenue, Robinson Street, and Crisp Road, growingwider as it moves south (as shown in Figure 7A). The portionof the arterial connecting Hunters Point and Candlestick Pointincorporates an improved Griffith Street, Thomas Avenue,Ingalls Street and Carroll Avenue (Figure 7B). The finalportion, Arelious Walker Drive, lies on the western edge ofCandlestick Point and connects to an improved Harney Way atthe southernmost point of Candlestick Point (Figure 7C).Most locations on the project site would be within four to fiveblocks of this roadway spine, affording convenient access toresidences and offices. The arterial skirts the edge of the twomixed-use "village centers" at Hunters Point Shipyard andCandlestick Point, providing access to their parking facilitiesand to transit services. The arterial is intended to provideextra capacity for truck traffic, which would use interior streetsonly as a direct connection from the arterial to a particulardestination.The Hunters Point Shipyard and Candlestick Point arterialstreets would function as the primary thoroughfares of theproject, with generally perpendicular collector, parkwayand park edge streets (Figures 7D, 7E and 7F) playing asubordinate role.BRT (Muni Line 28L) lanes would be coupled with Harney Waybefore diverting through the Candlestick Point site, using theYosemite Slough Bridge to reach Hunters Point Shipyard.Automobiles would not be permitted to use the YosemiteSlough Bridge except on game days, and would instead berouted along an auto route alignment via Carroll Avenue,Ingalls Street, Thomas Avenue and Griffith Street. (Figure7B).The local streets which form the balance of the street networkare Neighborhood Residential streets, of which there are fourvariations, and both private and public alleys. Their crosssectionsare shown in Figure 7G. Auto travel lanes areuniformly ten feet except in instances where the travel lane isshared by a bicycle or bus route in which case they are elevenfeet wide. Local streets at the stadium site are comprised ofan inner and outer ring road, as shown in Figure 7H.The proposed Yosemite Slough Bridge would extend AreliousWalker from Candlestick Point to Crisp Avenue in Hunters PointShipyard. The bridge would contain a landscaped greenway,two BRT lanes, and a Class I bicycle/pedestrian path. On 49ersgame days, the landscaped greenway would be converted tofour peak direction travel lanes for game day auto traffic. TheYosemite Slough Bridge would not be used for vehicular trafficduring secondary events or other non-game day purposes,excepting emergency vehicle access, as needed. In the caseof the non-stadium variants, the bridge would have the sameprofile, less the landscaped greenway, as shown in Figure 7I.Several roadway lane configurations would be temporarilychanged to allow for the efficient egress of auto traffic fromthe proposed 49ers stadium after a game's conclusion. Theseroadways include Innes Avenue, Robinson Avenue, and FisherAvenue on the north side of the Hunters Point Shipyard; CrispAvenue on the southern side of the Hunters Point Shipyard25Project Definition
(Figure 7J); Griffith Street, Thomas Avenue, and Ingalls Streetbetween the Shipyard and Candlestick Point (Figure 7K); andArelious Walker and Harney Way on Candlestick Point (Figure7L). In all cases, a lane of inbound traffic will be dedicated forlocal traffic and emergency access vehicles.Initially, Harney Way would be designed with a widelandscaped strip between the general-purpose roadway andthe state park along the waterfront, as shown in Figure 7C.If needed, a portion of this landscaped area would be rebuiltto provide an additional lane from the proposed Harneyinterchange east to Arelious Walker Drive, as shown in thecorresponding Sections in Figure 7M. Refinements to thisconfiguration (number, locations, and design of turn lanes, forexample) may be necessary following completion of ongoingstudies related to the Executive Park development site andthe Harney Way interchange.In the case of the non-stadium variants (discussed in Chapter7), three types of Neighborhood Commercial streets wouldserve the research and development campus (Figure 7N),and the width of Crisp Road would be reduced, as shown inFigure 7O.A number of improvements would be made to off-site streets,generally those that provide east-west access to ThirdStreet. Figure 7P shows the improvements to off-site streets,including Jamestown Avenue, Gilman Avenue, and InnesAvenue/Hunters Point Boulevard. Improvements would alsobe made to Palou Avenue and Ingerson Avenue; however thecross-sections of those streets would remain unchanged.Dedicated BRT (Muni Line 28L) lanes are shown in these crosssectionsand in plan to illustrate the continuity of this transitalignment through the project area. The project intendsto construct most or all of these lanes with "greenways"(permeable surfaces with durable landscaping/planting) as aninnovation supporting the principles of San Francisco's BetterStreets Plan. Greenways are also planned where BRT or autotraffic does not regularly travel to serve as a visual, permeablegreen buffer between traffic/travel lanes and sidewalks. Ongame days, these greenways would accommodate eithertransit or extra traffic to provide an additional travel lane forvehicle traffic. This innovative treatment has been successfullyemployed in several other cities in the US.Many street cross-sections include asterisks and/or alternativedimensions that indicate how key streets would function inaccommodating post-game traffic on days when the stadiumis in use. These complement the more detailed informationabout traffic lane configurations on select streets and accessto regional arterial and freeways covered in Chapter 6.5.For maximum flexibility, the grades, width, and turning radiifor the BRT lanes are designed to be consistent with SFMTAdesign standards for light rail operations. However, no lightrail is proposed as part of this project.Project Definition26
27 Project DefinitionFigure 7A: Hunters Point Shipyard Arterials
Figure 7B: Yosemite Slough ArterialsProject Definition28
29 Project DefinitionFigure 7C: Candlestick Point Arterials
Figure 7D: CollectorsProject Definition30
31 Project DefinitionFigure 7E: Parkways
Figure 7F: Park Edge StreetsProject Definition32
Figure 7H: Stadium RoadsProject Definition34
35 Project DefinitionFigure 7I: Yosemite Slough Bridge Concepts
Figure 7J: Post-Game Lane Configurations: Hunters Point Shipyard ArterialsProject Definition36
37 Project DefinitionFigure 7K: Post-Game Lane Configurations: Yosemite Slough Arterials
Figure 7L: Post-Game Lane Configurations: Candlestick Point Shipyard ArterialsProject Definition38
39 Project DefinitionFigure 7M: Harney Way Potential Long-Term Configuration
Figure 7N: Non-Stadium Alternative: Hunters Point Shipyard Local StreetsProject Definition40
41 Project DefinitionFigure 7O: Non-Stadium Alternative: Hunters Point Shipyard Arterials
Figure 7P: External Street ImprovementsProject Definition42
4.3 Proposed RoadwayImprovementsExisting roadways will be expanded and new facilities built toserve Candlestick Point and Hunters Point Shipyard and thesurrounding Bayview neighborhoods. This expansion will includea new special-access bridge, widening of existing streets, andother improvements, as shown in Figure 8 and describedbelow.1. Harney Way WideningHarney Way, with its access to the US 101 Freeway, will functionas the southern gateway to the project. The existing four-lanefacility would be rebuilt as a new five-lane auto facility (Figure9) with right-of-way reserved for an additional auto lane to bebuilt in the future as needed to serve increased traffic levels(Figure 10). In addition, a left turn lane on eastbound HarneyWay would be incorporated at both the Thomas Mellon Drive andExecutive Park East Boulevard intersections to provide accessto Executive Park. A westbound right turn lane will be providedat Executive Park East Boulevard to provide access to ExecutivePark. New traffic signals will be installed at Thomas Mellon Driveand Executive Park East Boulevard. In addition to the autolanes, two lanes would be constructed adjacent to the roadwayto accommodate exclusive BRT operations and Class I or Class IIbicycle lanes would be provided on both sides of the roadway.2. New Primary Roadway through Candlestick PointCandlestick Point will be served by a new four- to five-laneroadway approximately following the current path of GiantsDrive and Arelious Walker Drive. The roadway would also havea 13-foot median to accommodate left turn lanes at majorintersections. Sidewalks, curb ramps, and streetlights would beupgraded. New traffic signals will be installed at the Harney Way/Arelious Walker Drive intersection and at the Ingerson, Gilman,and Carroll Avenue intersections. Portions of the roadway wouldaccommodate exclusive BRT operations. Class II bicycle laneswould be provided on both sides of the roadway.3. New Connecting RoadwaysRoadway connections between Hunters Point Shipyard andCandlestick Point will be served by Ingalls Street, connecting toCrisp Road via Thomas Avenue and Griffith Street. Ingalls Streetand Griffith Street would contain two travel lanes and on-streetparking/loading on both sides of the roadway. Thomas Avenuewill be converted from a two-lane to four-lane facility with onstreetparking retained on both sides of the roadway. During theevening peak period, on-street parking would be prohibited onGriffith Street and Ingalls Street, such that there would be fourtravel lanes connecting the entire auto route around YosemiteSlough (Carroll Avenue, Ingalls Street, Thomas Avenue, GriffithStreet, and Crisp Avenue). New signals will be installed atthe intersections of Thomas Avenue/Ingalls Street and PalouAvenue/Crisp Road.43Project Definition
4. Streetscape ImprovementsStreetscape improvements are planned for several keyBayview/Hunters Point roadways: Innes, Palou, Carroll andGilman Avenues. These streets will serve as primary routesfor pedestrians, bicyclists, transit riders, and drivers. They areproposed to enhance the safety and experience of road usersand existing residents.Enhanced streetscape design, including street trees, sidewalkplantings, furnishings, and paving treatments will be designedto visually tie together the proposed project with the greaterBayview neighborhood. Specific streetscape treatments willvary depending on existing right-of-way and traffic demands.Careful consideration will be given to improving visibility at allfour-way stops.5. Yosemite Slough BridgeA new Yosemite Slough bridge would extend Arelious WalkerDrive from Candlestick Point to Hunters Point Shipyard. Thebridge would have an 81-foot wide right-of-way and wouldcontain a 40-foot wide landscaped greenway, two 11-foot wideBRT lanes, and a Class I bicycle/pedestrian path. On 49ers gamedays, the 40-foot wide landscaped area would be converted tofour peak direction travel lanes for game day auto traffic. TheYosemite Slough Bridge would not be used for vehicular trafficduring secondary events.The Class I bicycle/pedestrian path would provide the mostdirect connection between Candlestick Point and Hunters PointShipyard for pedestrians and bicyclists and BRT service. Duringgame days, the 40-foot wide landscaped median would serve asthe primary and most direct route between the stadium parkingareas and U.S. 101.6. Transportation Management SystemIn conjunction with the roadway facilities and improvementsdescribed above, a transportation management system willbe implemented. The system will allow for the coordination ofsignals at over 25 intersections in the Development Plan andvicinity using fiber-optic or equivalent technology. On gamedays,some intersections would be controlled by Traffic ControlOfficers. Several variable message signs will be installed onroadways with reversible lanes. These signs will be able toconvey messages for drivers, pedestrians and cyclists for gamedayand emergency vehicle circulation. Software and hardwarefor a Transportation Management Center (TMC) on the stadiumgrounds will be developed. The TMC would be operated by theSFMTA on game days.New Roadway Improvements Under StudyAdditional roadway improvements have been identified thatmay serve the project site and surrounding development. Theseimprovements, requiring approval by the City of Brisbane, willbe studied through the environmental review process requiredby the California Environmental Quality Act (CEQA). Theimprovements are shown on Figure 8 and described below.7. Geneva Avenue ExtensionGeneva Avenue, which currently ends at Bayshore Boulevard,would be extended east to meet Harney Way, improving eastwestaccess in the area. The Geneva Avenue Extension wouldhave three eastbound and three westbound travel lanes betweenBayshore Boulevard and a new interchange with U.S. 101.Currently, the nearest east-west access road is Blanken Avenue,which is designed as a neighborhood collector roadway and couldnot accommodate the additional east-west traffic generated byarea projects. The lead agency for this project is the City ofBrisbane, with the Caltrans Project Study Report (PSR) expectedto be completed in 2010.Existingroadwayswill beexpandedand newfacilitiesbuilt toserveCandlestickPoint &HuntersPointShipyardProject Definition44
Figure 8: Proposed Roadway Improvements8. Geneva/Harney/US 101 InterchangeIn conjunction with the extension of Geneva Avenue east, theexisting Harney Way interchange would be redesigned as atypical diamond interchange. Caltrans and the City of Brisbaneare the lead agencies for this project, and a PSR is currently beingprepared. Two alternatives are currently being assessed; onewith Geneva Avenue/Harney Way crossing under U.S. 101, andone with Geneva Avenue/Harney Way crossing over U.S. 101. Aseparate environmental review and approvals by Caltrans, theCity of Brisbane, SFCTA, and the City of San Francisco will berequired to implement this improvement, supported by analysisfrom the San Francisco County Transportation Authority's Bi-County study.9. Geneva Avenue to Balboa Park BARTIn conjunction with the projects above, specific transitpreferentialtreatments along Geneva Avenue and relatedroadway improvements (including signal work, street design,and safety improvements) would be implemented.45Project Definition
Figure 9: Proposed Harney Way Initial ConfigurationProject Definition46
Figure 10: Proposed Harney Way Potential Long-Term Configuration47 Project Definition
Figure 11: Yosemite Slough Bridge ConceptProject Definition48
5Transportation Program 5.1 Introduction49Currently, about two-thirds of all trips in thesoutheast quadrant of San Francisco are cartrips. If the trips generated by the projectexhibit this level of automobile use, theexisting vehicular transportation facilities inthis area would be insufficient to handle theprojected demand. Thus, the policies andprograms outlined in this chapter target asignificant redistribution of trips from autoto transit and non-motorized modes. Thefollowing sections outline the specific meansdesigned to encourage the use of modesother than private automobile, achieve theproject mode split goal, as well as enhancealternatives to transportation in surroundingneighborhoods by developing a strongertransit, bicycle, and pedestrian network.The Candlestick Point and Hunters PointShipyard Phase II Development PlanEnvironmental Impact Report (EIR), has beenprepared independently from this Plan, andmodels and evaluates the travel demand ofthis project.
Existing Travel BehaviorWithin the City and County of San Francisco, travel behaviorfor new developments is typically estimated using the SFGuidelines 6 , which contains detailed survey data used toestimate trip generation, mode split, and origins/destinationsbased on land use and trip type. The data is organized bysuperdistricts (SD), one in each quadrant of San Francisco.Candlestick Point and Hunters Point Shipyard are located inSD-3, the southeastern quadrant of the City. According tohistorical data from the SF Guidelines, the modal split of traveldemand for a new project located in SD-3 would be expectedto exhibit the modal split shown in Table 5.Table 5: SD-3 Calculated Mode Split – Weekday PM Peak HourSD-3 Mode SplitMode1(Inbound and Outbound Trips)Auto/Carpool 66%1 Estimates per AECOM – October 2008Transit 16%Walk 16%Bike 2%Total 100%The mode split above reflects data collected in the 1990sfor land uses and transit service within a large area of SanFrancisco that has since undergone significant change. It isalso based on much less dense development and a differentmix of uses than what is proposed for the project area.Therefore, the data from the SF Guidelines alone is not asufficient estimator for mode split for a project of this sizeand character.Project Travel Behavior GoalAlthough past travel behavior can be a useful tool to forecastfuture mode splits, many factors can result in changes totravel patterns. The Candlestick Point and Hunters PointShipyard Phase II project aspires to a mode share of not morethan 45 percent of person-trips by auto, and not less than 30percent by transit, 20 percent on foot, and 5 percent as biketrips for work trips during the weekday PM peak hour. Table6 shows that to achieve this mode split goal, approximately21 percent of peak hour work trips would need to shift fromprivate auto to either transit, walk or bike based on historicaltravel behavior data. The project is also linked to surroundingneighborhoods by its strong transit, bicycle and pedestriannetworks, and neighborhood services which should serve toreduce overall trips and vehicle miles traveled in the area.Table 6: Project Mode Split Goal - Weekday PM Peak HourMode SD-3 Mode Split 1 Project TravelBehavior GoalDifferenceAuto/Carpool 66% 45% -21%Transit 16% 30% +14%Walk 16% 20% +4%Bike 2% 5% +3%Total 100% 100%1 Estimates per Fehr & Peers – May 20096 2002 Transportation Impact Analysis Guidelines for Environmental Review. Planning Department, Cityand County of San Francisco. October, 2002.Transportation Program50
5.2 StrategiesThe strategies outlined in this section, which include new andimproved transit options as well as a comprehensive packageof TDM measures, would help achieve the desired modeshift.Maximize Internal TripsThe Development Plan envisions mixed-use neighborhoodsthat will incorporate new office, retail, and entertainmentcenters. These will allow trips that might be otherwiseattracted to external destinations to remain within the projectarea. Internal trips are shorter and are thus more likely toshift from auto to non-auto modes.Internal trips will be maximized by the following strategies:• Support services will be included in the commercial landuse program. These uses will be designed and located in amanner that minimizes the need to use automobiles;• Neighborhood-serving retail and a market will be locatedwithin a half mile of every household;• Opportunities for residents to work within the project sitewill be encouraged; and• Appropriate street design that accommodates pedestrianfriendlydesign speeds and levels of congestion.Maximize Pedestrian TravelThe density and configuration of the project are designedto actively encourage the use of walking as a primary travelmode. The project will be served by a network of pedestrianroutes as illustrated in Figure 12. The following concepts willencourage pedestrian travel:• The proposed residential densities are consistent withother dense and walkable San Francisco neighborhoods,such as North Beach, the Mission and the Marina, and arecomparable to successful walkable and transit-orientedcommunities elsewhere;• The highest residential densities will be within a fiveminutewalk of the Hunters Point Shipyard Transit Centerand the Candlestick Point BRT Stops, and all residenceswill be within a 15-minute walk;• The community-oriented land uses – markets, schools, andother public facilities – are located within short walkingdistances of project residents;• Site design elements such as the configuration andorientation of buildings, landscaping and streets will bedesigned to provide a comfortable walking environment;• Sidewalks conforming as closely as possible to the BetterStreets Plan will be provided on all streets;• A comprehensive wayfinding signage program will supportthe network of walkways and shared-use paths;• The project will be designed and built to be ADA-accessibleto residents and visitors;• Pathways will be provided between residential areas andto key entrances of parks and open space;51Transportation Program
Figure 12: Pedestrian Circulation PlanTransportation Program52
• Many residences in the adjacent neighborhoods of Bayview,Hunters View, India Basin, Executive Park, and the Cityof Brisbane will also be within a 15-minute walk of theimproved transit facilities and new neighborhood servicesand retail; and• Streets will be designed to be pedestrian-friendly andincorporate the following characteristics:»» Separate pedestrians from moving traffic throughthe use of wide sidewalks, on-street parking, andlandscaping;»» Facilitate pedestrian circulation with continuouspedestrian paths of travel and short block distances;»» Enhance safety at crossings with shorter crossingdistances, clearly marked crosswalks, and pedestriancrosswalk signals. Intersections should be designed withcurb extensions where possible and tight corner radii(except on streets with delivery trucks or buses);»» Install vibrant streetscape elements including streettrees, continuous "street wall", openings for activity andgathering space; and street furniture and lighting.Maximize Bicycle TravelThe existing bicycle routes in the project vicinity, illustratedin Figure 13, are not sufficient to accommodate the level ofbicycle activity expected in the area after the proposed projectis built. To facilitate bicycle travel, the project will be servedby an expanded network of bicycle routes, as proposed inFigure 14 7 . The following concepts have been developed tofacilitate bicycle travel in a safe and convenient manner:• Bicycle routes will be established within a quarter mile ofall residences and employment, consistent with the City'scurrent guidelines and bicycle plans;• The development's roadways or adjacent roadways willincorporate Class II bicycle lanes for safe and efficient bikemobility through the project site. Appropriate signage andpavement markings (sharrows) will also be included forClass III bicycle routes;• Shared-use paths will provide safe, direct, convenientand attractive routes between all of the development'smajor destinations. The project's bicycle route networkwill connect to the Bay Trail and to recreational paths onthe project site;• Internal streets will be designed to be low-speed (15-25mph), creating an environment that is attractive andsafe for bicycling. Arterials will have a design speed of 35mph;• Directional signage along the bicycle routes and sharedusepaths will point out key destinations;• Bicycle routes will be designed to improve connectivity fromwithin the project area to surrounding neighborhoods, andto increase bicycle access from outside the area to newdestinations and regional transit hubs within;• Safe and secure bicycle parking will be provided withineach residential garage or within each residential building,with a minimum of 25 parking spaces for the first 50dwelling units plus one space for every four dwelling unitsthereafter. Each commercial parking facility will providebicycle parking at a minimum rate of 15 percent of carspaces;• Supplemental bicycle parking racks will be provided nearmajor destinations, and a bike parking station will beincluded at the Hunters Point Shipyard Transit Center;• Showers and locker facilities will be provided within eachnew commercial building with greater than 10,000 squarefeet of uses; and• Discounted space will be provided to encourage a bicyclestation offering rentals, repairs, and storage to locate atCandlestick Point/Hunters Point Shipyard.7 The proposed route improvements shown in Figure 14 and other local bike route revisions may beexplored in the future per TDM, Bike Plan Revisions, or other programs.53Transportation Program
Figure 13: Existing Bicycle RoutesTransportation Program54
Figure 14: Proposed Bicycle Routes55Transportation Program
Expand & Improve Transit ServicesThe Plan targets a near doubling of the current mode shareof transit in the vicinity of Candlestick Point and Hunters PointShipyard. Reaching this goal depends upon maximizing theeffectiveness and convenience of transit service to and withinthe project site.Ongoing dialogue with the San Francisco MunicipalTransportation Agency (SFMTA) has identified new transitservices to serve the project site. The ultimate network ofnew and improved transit services will be implemented bySFMTA. In addition, the City has initiated discussions to ensurecomplementary and mutually-reinforcing system connectionswith SamTrans and Caltrain.In order to attain the project's transit usage goal, the strategiesbelow have been developed. Rather than proposing a singlemajor transportation facility, such as a new BRT, the strategiesbuild upon the existing transit network and infrastructure. Thefollowing strategies will also benefit the surrounding Bayviewand Hunters Point Shipyard neighborhoods:• Extend existing Muni routes in coordination with phases ofdevelopment to better serve the project area, with localand rapid transit service within a quarter or half mile of allresidences and employment, respectively;• Increase frequencies on existing routes to provide morecapacity and increase the capacity of key routes, such asthe T-Third;• Complement these routes with new transit facilities androutes in coordination with phases of development inorder to reduce transfers and better serve the project'sproposed land use program and transit demand;• Increase connections to the regional transit network(BART, Caltrain) to help reduce the current perception ofthe area's transit isolation;• Specifically create a new BRT (Muni Line 28L) connectingBalboa BART Station, Bayshore Caltrain Station and T-ThirdMuni with several bus lines; and• Ensure that new regional transit hubs within the projectarea are accessible by local transit, bicycle, pedestrians,shuttles, and taxis from adjacent neighborhoods on bothsides of the City limits.The need for new transit vehicles to serve the project presentsan opportunity to introduce low- or zero-emission buses.SFMTA has targeted a reduction in greenhouse gas emissionsfrom its vehicles to 30 percent below 1990 levels by 2012,and plans to become 100 percent emission-free by 2020.Proposed Transit ImprovementsNew direct one-seat transit service is proposed to serve thehigh employment concentration of Downtown San Francisco.Fast and efficient connections to the regional transit network(BART, Caltrain, T-Third/Central Subway) also serve thesedestinations, as well as the employment centers of the Airport,the East Bay, the Peninsula, and the South Bay. BART andCaltrain stations south of the project site are generally wellservedby local bus routes and shuttles that would provideconnections to Peninsula workplaces.The proposed transit improvements, illustrated in Figure 15,are described in the list to follow.Transportation Program56
Figure 15: Proposed Transit ImprovementsA. New and Expanded Bus LinesExisting Muni lines 24-Divisadero, 44-O'Shaughnessy, and the48-Quintara would be extended to Hunters Point Shipyard;line 29 would be extended into Candlestick Point. Servicefrequencies on these lines would be increased to accommodategreater demand. New Downtown Express routes wouldconnect both Candlestick Point and Hunters Point Shipyardwith the Transbay Terminal. As transit-preferential elementsare implemented on Palou Avenue, as well as Harney Wayto support BRT (Muni Line 28L) service, new lines wouldbe introduced to serve these corridors as well (see D and Ebelow). The proposed expansion is summarized in Table 7.B. Harney/Geneva BRT/Transit Preferential StreetTo facilitate access to the regional transit system, BRT andtransit preferential improvements will be implemented in theHarney Way / Geneva Avenue corridor. Exclusive bus lanesand BRT elements will be installed along the route connectingHunters Point Shipyard Transit Center and Bayshore CaltrainStation through Candlestick Point. These lanes will be designedto be "rail ready" in that they will be able to accommodate thegeometric curves, grades, and widths that support light railoperation, although light rail is not proposed as part of thisproject. Transit preferential elements would be implementedalong Geneva Avenue between Bayshore Caltrain Station andNaples Street, and BRT elements from Naples Street to BalboaPark BART Station. BRT service in this corridor would connectHunters Point Shipyard and Candlestick Point to Caltrain,T-Third Metro, and BART service. In addition, transfers toSamTrans will be facilitated at the Bayshore Boulevard andGeneva Avenue intersection.57Transportation Program
C. Hunters Point Shipyard Transit CenterThe Hunters Point Shipyard Transit Center will serve thenorthern half of the project and would be located along twoblocks adjacent to the Hunters Point Shipyard Village Center.Along with ten bus bays, the facility will include shelters,ticketing kiosks, real-time transit information technology andoperator restrooms. Most of the bus lines serving HuntersPoint Shipyard will stop at the transit center allowing quickand immediate transfers to other lines. The transit centerwill be located just one block away from the Hunters PointShipyard Village Center retail street.The intention of the Transit Center is to consolidate theterminus of all transit lines in one location to allow forconvenient transfers and bus layovers. It is located at thenexus of residential, retail, and research and developmentland uses.D. BRT StopsBRT (Muni Line 28L) stops will be located at Hunters PointShipyard Transit Center, three locations within CandlestickPoint and at two intermediate locations. At the BRT stops, theroadway would be widened to allow for curbside bus loadingzones or station platforms. The stops will include shelters,ticketing kiosks, real-time transit information and otheramenities.E. Palou Avenue Transit Preferential StreetOne Muni line will be extended along Palou Avenue to servethe Hunters Point Shipyard Transit Center. In addition, twoother lines will operate along Palou Avenue with service nearthe project. In order to provide efficient, attractive serviceon these lines, transit preferential treatments includingtransit-priority technology would be implemented, includinginstallation of up to six new traffic signals along Palou Avenue.To improve pedestrian comfort and the accessibility of transitin this corridor, new bus shelters will be installed and the streetwill be upgraded with ADA ramps, bulbouts, and crosswalks.Other Potential Transit System Improvements Under StudyA number of additional transit projects under study have beenidentified that would facilitate access to the project but arenot part of this Plan.F. Bayshore Transit CenterThe Harney/Geneva bus rapid transit corridor intersectsCaltrain at the Bayshore Station, which would allow forconvenient intermodal connections between CandlestickPoint, Hunters Point Shipyard, and Peninsula destinations.A vertical circulation connection would be introduced toseamlessly connect the two services. The connection wouldinclude elevators and stairs, and a potential extension ofthe station platform. Consideration will be given to include abicycle station to facilitate Intermodal connections.Transportation Program58
Table 7: Muni Service to the Project – Existing and TEP EquivalentsExisting MuniLine23 –Monterey24 –Divisadero28L –19th Ave/Geneva Limited(BRT)29 –Sunset44 –O'Shaughnessy48 –Quintara to24th St54 –FeltonT –Third(light rail)CandlestickPoint Express(CPX)Hunters PointExpress (HPX)Equivalent under TEPProposals and Summaryof Changes18 – 46th Ave: would becombined with Line 23,providing direct serviceto the Outer Sunset andOuter Richmond24 – Divisadero: wouldbe modified to serve theMission and the MarinaDistricts28L – 19th Ave Limited:would be modified toserve Balboa Park BART.Service would extend to9 PM.29 – Sunset:minor changes only44 – O'Shaughnessy:no changes48 – Quintara to 24th St:would cover portion ofLine 19 on Evans and Innes54 – Felton:minor changes onlyT – Third: increasefrequency and capacityand extend into Chinatownvia the Central SubwayNot proposed in TEPNot proposed in TEPAdditional ProposedService EnhancementsSame as proposedTEP serviceExtension along Palou,Crisp and Spear Aves. toHunters Point ShipyardTransit CenterExtension along GenevaAve through CandlestickPoint with terminus inHunters Point Shipyard.Conversion to BRTin the project area,with enhancementsalong Geneva Ave assupported in the Bi-County StudyExtension along GilmanAve to Harney WayExtension along InnesAve to Hunters PointShipyard Transit CenterExtension to HuntersPoint ShipyardTransit CenterSame as proposedTEP serviceSame as proposedTEP serviceProvide new expressbus service betweenCandlestick Point andDowntown San FranciscoProvide new express busservice between HuntersPoint Shipyard andDowntown San FranciscoSource: San Francisco Municipal Transportation Agency and Fehr & Peers – March 2009G. Oakdale Caltrain Station ImprovementsUntil 2005, the Bayview District was served by the PaulAvenue Station, which has since been closed. San FranciscoCounty Transportation Authority (SFCTA) is considering a newstation serving this area at Oakdale Avenue. If implemented,bus services on Palou Avenue would intersect Caltrain at thislocation, creating an intermodal station. This would forge asecond connection from Hunters Point Shipyard and CandlestickPoint to Caltrain, offering a fast, convenient connection to theSouth of Market District.H. SamTransFacilitate new shared routes with SamTrans to directly serveSouth San Francisco employment centers.Muni Transit Effectiveness ProjectMuni has proposed changes to several of the lines that wouldserve Candlestick Point and Hunters Point Shipyard as part ofits Transit Effectiveness Project (TEP). Service extensions andmodifications beyond the TEP proposals would be requiredto serve the project site. Table 7 presents each existingline proposed to serve Candlestick Point and Hunters PointShipyard, the line's equivalent under the TEP proposals, andthe modification to the existing or equivalent line that wouldbe required to provide service to the project.59Transportation Program
Regional Transit EfficiencyThe new and stronger Muni links to local trunk lines andregional transit corridors helps provide multiple options fortransit riders heading to Mission Bay and Downtown SanFrancisco via connections to the T-Third/Central Subway, BART,Caltrain, and the one-seat Muni express ride. Furthermore,the development of mixed uses in the project area will help tocreate "reverse commute" job and recreation destinations thattake advantage of transit capacity in the regional networksin the serving the non-peak direction. This phenomenon willhelp balance the network and increase fare box revenue forcorridors where capacity currently exists. These include BARTto the Airport and Peninsula and Caltrain to the Peninsula andSilicon Valley.Additional Transit ElementsIn addition to the extension of Muni service to the project site,as described above, the following elements will support andencourage transit ridership:• Real-time transit arrival information using NextBustechnology and passenger waiting shelters will be providedat the transit center and key bus stops;• All bus stops will be clearly marked on the pavement, andwill include either bus bulbs or bus pull-outs if requestedby Muni;• Transit maps, schedules, on-line passes, real-time arrivalinformation, and internet links will be provided on theCandlestick Point/Hunters Point Shipyard website for allnearby transit operators;• A Guaranteed Ride Home program supported by employerparticipation would reimburse transit riders for return triptravel in the event of an emergency when an alternativemeans of travel is not available;• Residents will be charged for and provided a transit pass aspart of their homeowner's dues, which would be valid foruse on the various transit systems that serve the site;• Tickets for special events and cultural activities at theproject site, including 49ers games, could be priced toinclude the cost of a roundtrip transit ride; and• In addition to a pass for residents, opportunities to provideemployees with an "EcoPass" will also be pursued, similarto the programs already underway at the University ofCalifornia and the City of Berkeley. These passes wouldallow unlimited transit use and could be purchased on amonthly and/or annual basis, and then be made availableto all employees who work on the project site.Implement Transportation DemandManagement ProgramAn effective Transportation Demand Management (TDM)Program will reduce the amount of auto use and encourageresidents, employees, and visitors to use alternative modesof travel, such as transit, walking, and bicycling. In addition,a TDM program provides measures to reduce the demand fortravel during peak times.Transportation Program60
Employerswill berequired toparticipatein TDMprogramsThe TDM program for Candlestick Point and Hunters PointShipyard project will be consistent with the policies of thevarious agencies within the City of San Francisco, and workseamlessly with the ongoing plans at nearby developments.The proposed TDM program will target residents, employeesand visitors, and could include the strategies described in thefollowing sections.Transportation Coordinator and WebsiteAn on-site Transportation Coordinator (TC) will provideresidents, employers, employees and visitors with theinformation they need to make the best use of the transportationalternatives available to them.The TC will implement and administer the various TDMelements, and will coordinate with the City, the various transitagencies, and other nearby uses. The TC will be in regularcommunication with the transit agencies and will work withthem to monitor transit usage and make appropriate changesto services to match demand. In addition, the TC will beresponsible for operating and maintaining a website for theCandlestick Point/Hunters Point Shipyard project, which willinclude transportation-related data and real-time transitinformation.The TC will keep residents, employees, and employers apprisedof travel incentives or changes to travel options, and will beresponsible for coordinating with visitors and groups holdinglarge events at Candlestick Point or Hunters Point Shipyard.The TC will be responsible for coordinating the production anddistribution of travel brochures and educational documentationto increase resident, employee and visitor awareness ofthe various available TDM elements and travel options. TheTC will also be responsible for conducting new employee/resident orientation and education programs and performingindividualized marketing of transportation alternatives.Other responsibilities of the TC include the following:• Managing the carpooling/vanpooling database andGuaranteed Ride Home program;• Coordinating carsharing organizations on the projectsite;• Monitoring bicycle parking provision and usage; and• Reporting maintenance issues.Each year, the TC will be responsible for conducting surveysof residents, employees, and visitors to determine the currentmode split (percentage of travelers who drive alone, carpool,ride transit, walk, or bike) and demographic information (suchas location of work and commute time to and from work).This information will be used to improve the effectiveness ofthe TDM program if the project's modal split goals are notbeing met.Employee TDM ElementsThe TDM program will include elements designed to assistemployers to encourage the use of transit and facilitate walkingand bicycling among their employees. All project site employerswould be required to participate in the TDM program, andthe TC would work with employers to monitor progress andprovide support. It is expected that the TDM program will bea single document, which will cover the program monitoringto be performed by the TC. The project's TDM program willdetail what elements are required of employers of differentsizes and each employer will be required to designate a singlecontact for transportation purposes.In addition, employers will be expected to provide thefollowing:• Bicycle parking in a controlled access or secure area withshowers and clothes lockers;61Transportation Program
• Carpool and vanpool ridematching services, with allocatedparking spaces and reduced parking charges;• Guaranteed Ride Home program for registered carpool,vanpool and transit riders in emergency situations; and• Information boards/kiosks displaying transit routes andschedules; carpooling and vanpooling information; bicyclelanes, routes, paths and facility information.Furthermore, employers will be encouraged to offer programsto reduce auto use and support the use of alternative modesincluding the following:• Alternative commute subsidies and/or parking cash-out,where employees are provided with a subsidy if they usetransit or commute by alternative modes;• Opportunities to purchase commuter checks;• Opportunities to provide subsidized vanpool service;• Marketing of alternative travel options, with employersencouraged to provide information to customers regardingalternative modes of travel;• Compressed work week and flextime, where employeesadjust their work schedule to reduce vehicle trips to theworksite; and• Telecommuting options.The TC will work with employers to ensure that employees arekept fully informed of the available programs and promotionalactivities, and will be available to assist with new employeeorientation. In addition, the TC will be available to coordinatethese services on behalf of the smaller employers.Carpool/Vanpool ElementsCarpool and vanpool ridematching services would be offeredthrough the TDM program, and designated spaces in parkingfacilities would be provided free to vanpools. A designatedsigned area near the transit centers would be reserved forcasual carpooling.Proposed implementation measures include the following:• Within the commercial zone, preferential parking spaceswill be reserved for carpoolers;• A casual carpool pick-up point will be designated;• All employees and residents who are registered carpool/vanpool users will be guaranteed a ride home whencarpooling or vanpooling;• A database of carpool/vanpool participants will be collectedand maintained by the TC; and• A real-time carpool match program will be provided on theCandlestick Point/Hunters Point Shipyard website.Carshare ElementsThe Transportation Coordinator will work with local carsharingorganizations to provide a network of carshare vehicles parkedin neighborhood "pods", each within a half mile of all residences.Members will be allowed to use vehicles when needed, payingbased on how much they drive, thus reducing the fixed costsassociated with private automobile ownership.Transportation Program62
It is expected that many residents would become membersof the carsharing organizations, reserving a car by phoneor online on an as-needed basis. At the carshare "pods",members would check in with a personalized key card to gainaccess to the car.This program provides an effective incentive for residents andothers to opt for transit as a primary mode of travel becausethey know that a car is readily available when they needone. The growth and success of these programs in the BayArea and in other cities throughout the US has shown theireffectiveness in reducing auto dependency.The carshare operators would determine the appropriatenumber of cars to be located at the project site, based onmarket demand. Parking spaces for carshare vehicles wouldbe provided at strategic locations throughout the project site.The number of car share parking spaces is determined on thenumber of users as outlined in Table 8 below.Table 8: Car Share Parking Space RequirementsNumber of Residential UnitsNumber of Required Car ShareParking Spaces0-49 050-200 1201 or moreNumber of Parking Spaces Providedfor Non-Residential Uses or in aNon-Accessory Parking Facility2, plus 1 for every 200 dwellingunits over 200Number of Required Car ShareParking Spaces0-24 025-49 150 or more1, plus 1 for every 50 parkingspaces over 50Proposed implementation measures include the following:• The TC will coordinate with carshare providers to establishlong-term carshare use. This will reduce the need forprivate vehicle ownership for vacations or weekend trips;• The availability of carsharing and information on thevarious carshare operators will be included in all rentaland leasing information and on the Candlestick Point/Hunters Point Shipyard website;• Within the commercial zones, free parking spaces will bereserved for short-term carshare parking;• All carshare parking spaces and hub locations will be clearlyidentified and directional signage will be provided, andreal-time availability of carshare vehicles will be providedon the Candlestick Point/Hunters Point Shipyard website(to supplement the information on the carshare operators'websites); and• Carshare vehicle hubs will be established throughout theproject site in coordination with the design of garages andparking facilities.Additional Elements and Implementation StrategiesThe following additional TDM strategies are best implementedin conjunction with complementary strategies among thepreviously-described TDM elements:• A personalized commute plan will be offered for all newresidents. The TC will meet with each resident and developa customized transit, carpool, vanpool, or bicycle program.The TC will show residents their various commute options,comparing costs and travel times, and identifying anyemployer-based programs.63Transportation Program
• The TC will coordinate with major employers in SanFrancisco and the Peninsula to develop employer-basedTDM measures. Transit usage and carpool/vanpool needto be supported on both ends to be successful. Thereis a higher incentive to use transit if free parking is notprovided at the workplace. Employers control the abilityto institute alternative work hours and telecommuting.Housing at Candlestick Point/Hunters Point Shipyard couldalso be marketed to new employees at these workplaces.• The TC will institute a TDM committee staffed by residentsand employees. The committee will participate in settingTDM goals and developing programs, which would giveresidents and employees a greater stake in its success.• Performance goals will be set upon occupancy of eachphase. Goals could be established as a given decrease insingle-occupant vehicle mode split or reduction in peakhour traffic volumes at driveways.• All TDM information will be included in rental packets andhome ownership documents as well as all office, R&D, andretail lease documents.• Surveys of residents, employers, and employees will beconducted on an annual basis to document TDM effectivenessand to develop additional program measures.• High-speed wireless internet will be provided to encouragetelecommuting.• All deliveries to the grocery store and other high-volumecommercial uses will be scheduled to avoid peak commuteperiods.• A bike sharing program will be considered as an alternativetransportation program where bike kiosks are set up atintervals along major corridors and riders can pick up anddrop off bicycles in seconds.ParkingThe parking program is designed to reduce the overall usage ofprivate automobiles through pricing, supply, new technologies,and effective monitoring programs. The following sectionsoutline some of the key elements of the parking plan.Residential ParkingResidential parking will be unbundled from the units and eachparking space will be sold or leased separately to individualunits 8 . Residential parking rates will be set equivalent to fairmarket value and parking will be provided at a rate of onespace per unit on average.In areas outside of Downtown San Francisco, the PlanningCode generally requires a minimum 1.0 parking ratio – oneoff-street parking space for each dwelling unit. However,minimum parking requirements have recently been removedfor Downtown Residential (DTR) and C-3 districts – includingUnion Square, the Financial District, Rincon Hill, and portionsof the South of Market Area (SOMA) surrounding the TransbayTerminal. Maximum parking ratios now apply in these areas,which in some cases are well below the otherwise 1.0 parkingratio minimum. The 1.0 parking ratio maximum proposed forthis project would be similar.The San Francisco General Plan discourages automobile useand encourages alternative means of travel in high-density,congested areas, and recognizes that not every residentneeds parking provided with their unit. The policy ofproviding less than one parking space per residentialunit has been incorporated in the Market and OctaviaNeighborhood Plan, and is under consideration in theEastern Neighborhoods Area Plans.8 This arrangement would not apply to the 1,655 "Agency Affordable"units, which are limited by tax-credit financing requirements.Transportation Program64
Unbundling takes this concept one step further and linksparking requirements to auto ownership instead of homeownership. In typical units where parking is bundled, tenantspay for the unit and the parking space as a single cost.Unbundling removes the parking component from the costof residential or commercial space and allows residents andtenants to buy or lease parking only if they need it.There are two primary benefits to unbundling 9 :Reduced housing costs and greater housing affordability.Tenants who do not intend to use off-street parking cansave the expense of purchasing a parking space with theirunit. Unbundling parking can thus increase the affordabilityof housing, which is an especially important issue in SanFrancisco, where the cost of housing can be beyond themeans of many households.Induced changes in travel behavior. Bundled off-streetparking gives the impression that parking is "free", whenin reality; the cost of the unit is greater than a unit withoutoff-street parking. Unbundling parking reveals the actualcost of parking to the tenant and can affect the perception ofthe cost of owning a car compared to the cost of alternativemodes of travel such as transit. By increasing awarenessof the hidden costs of auto ownership, unbundling parkingcould ultimately help to induce changes in travel behavior,such as decreasing auto dependency and encouragingmore sustainable travel patterns on transit, bicycles, andby foot.Unbundled parking is currently required in the Transbay,Rincon Hill, Central Waterfront, and Eastern Neighborhoods,and is a standard condition for any housing projects needingapproval of the Planning Commission.Employee/Visitor Parking Elements• Parking will be designed to serve all commercial land uses.Where shared parking opportunities exist (e.g., a facilityprovides parking for service uses during the day and arestaurant during the evening), the parking requirementswill be reduced accordingly;• All on- and off-street parking will be paid parking;• Parking rates will ideally be set equivalent to fairmarket value and not subsidized by tenants or buildingoperators;• No discounts will be allowed for "early bird" or "in by/outby" long-term parking, and no discounted monthly parkingpasses will be allowed; and• Preferred parking spaces will be reserved for carpool/vanpool/carshare vehicles.In addition to the above elements, off-street parking will bepriced according to the following principles:• Free or discounted parking will be available for rideshare/vanpool users;• Parking will be more expensive than transit options;• Parking fee structures will encourage short-term retailtrips and strongly discourage long-term parking/employeeparking; and• Assessment of parking fees would begin before the morningcommute period and end after the evening commuteperiod to discourage use of automobiles for home-basedwork trips among project residents.9 Klipp, Luke. "The Real Costs of San Francisco's Off-Street Residential Parking Requirements: An analysisof parking's impact on housing finance ability and affordability." (2004).65Transportation Program
Retail and Hotel Parking• Shoppers and hotel guests will not receive validation forparking;• Parking will be more expensive than transit options;• Hotel room rates will include a transit pass surcharge toencourage transit use among hotel guests;• TDM programs will be instituted for retail and hotelemployees; and• TDM programs will be instituted for special events whichwould be expected to draw large numbers of visitors toproject retail uses and hotels.Parking RequirementsTable 9 summarizes parking requirements calculated forthe project land use program. These numbers representmaximum off-street parking spaces for uses within the projectarea. The Planning Department may require that parking beshared across uses. The development plan anticipates utilizingthe Design for Development (D4D) process for developmentcontrols, and thus the parking and loading requirements willbe tailored to this development. Stadium parking needs arediscussed separately in Section 6.4.Land UseTable 9: Parking RequirementsRateCandlestickPointNumber of SpacesHuntersPointShipyardTotalResidential 1 per unit 7,850 2,650 10,500CommercialRegional Retail 2.7 per 1,000 sq.ft. 1,570 - 1,570NeighborhoodRetail1 per 1,000 sq.ft. (CP)3 per 1,000 sq.ft.(HP)125 375 500Office 1 per 1,000 sq.ft. 150 - 150Research andDevelopment 1 1.3 per 1,000 sq.ft. - 2,600-3,5002,600-3,500Hotel 0.25 per room 55 - 55Arena 1 per 23.5 seats 425 - 425Artists' Space 1 per 2,000 sq.ft. - 130 130Community Uses 1 per 2,000 sq.ft. 25 25 50Total10,200 5,780-6,67015,980-16,800Source: Fehr & Peers 2009 based on San Francisco Planning Codeand discussions with San Francisco Redevelopment Authority.1 To achieve game day parking requirements if the 49ers stadium is constructed at Hunters PointShipyard, parking requirements for R&D on Crisp Road only will be increased to 1.8.These requirements present the base number for theproposed project required spaces, although it does notinclude the Stadium site. It should be noted that differentrequirements may apply based on the type of office andresearch and development tenants. The project parkingsupply for residential uses meets requirements. The parkingsupply for commercial uses falls within the low and high coderequirements for Hunters Point Shipyard, but would not meetrequirements for Candlestick Point, providing only two-thirdsof the required number of spaces. This reflects the project'scommitment to reduce automobile use and encourage the useof alternative travel modes.Transportation Program66
Parking SupplyThe proposed parking supply program is summarized in Table10. On average, residential uses are provided up to one spaceper dwelling unit, although some residents may not requireparking spaces due to use of alternative modes. The majorityof commercial parking spaces would be located in structures.Parking by location and type is illustrated in Figure 16.ParcelCandlestick PointAlice Griffith/JamestownTable 10: Proposed Parking SupplyNumber of SpacesCommercial 1 GeneralResidentialStructure On-StreetOn-StreetStadiumOnly 2Total1,535 0 0 450 0 1,985North 3,070 0 25 450 0 3,545Center 275 2,321 0 170 0 2,766South 2,970 0 0 290 0 3,260Subtotal 7,850 2,321 25 1,360 0 11,556Hunters Point ShipyardHunters PointShipyard2,085 75 0 319 0 2,479Village Center 125 89 0 47 0 261Research andDevelopment440 2,939 0 317 0 3,696Stadium Site 0 925 0 0 12,665 13,590Subtotal 2,650 4,028 0 683 12,665 20,026Total 10,500 6,349 25 2,043 12,665 31,582Source: Lennar Urban – May 20091 Includes regional retail, neighborhood retail, office, hotel, and arena uses for Candlestick Point andneighborhood retail, artists' space, and research and development for Hunters Point Shipyard.Bicycle Parking SupplyThe proposed bicycle parking program is summarized inTable 11. Hotels, Residential Buildings and Live/Work Unitsare excluded from shower/locker requirements.Land UseResidentialMedical,Office,Institutional,R&D, Theater,Hotel, ArtistSpace, &CommunityUsesRetail andEating/DrinkingUsesStructuredParkingTable 11: Proposed Bicycle Parking Supply and FacilitiesSize of Use0 - 50 dwellingunits> 50 dwelling units10,000 – 20,000sq.ft.20,000 – 50,000sq.ft.Number ofBicycle SpacesRequired1 per 2 units25 spaces plus 1for every 4 unitsover 50Showersn/aLockersn/a3 1 26 2 4> 50,000 sf 12 4 825,000 – 50,000sq.ft.3 1 250,000 – 100,000sq.ft.6 2 4> 100,000 sf 12 4 8< 500 automobilespaces> 500 automobilespaces1 per 20 autospaces25 spaces plus 1for every 20 auton/a n/aspaces over 500,maximum of 100Source: Fehr & Peers – October 20092 Additional game day parking will be available in commercial structured parking in the Research &Development area of Hunters Point Shipyard.67Transportation Program
Figure 16: Proposed Project ParkingTransportation Program68
Non-Stadium VariantsThe non-stadium variants assume either an additional2,500,000 sq.ft. of research and development space in placeof the stadium (Variant 1) or an additional 500,000 sq. ft. ofresearch and development space plus a shift of 1,625 dwellingunits from the Candlestick Point site to the Hunters PointShipyard site (Variant 2A). These alternatives would removethe 12,665 parking spaces associated with the stadium andreplace them with structured and on-street parking consistentwith the Design for Development guidelines. The Non-Stadiumparking supply is discussed in Chapter 7.LoadingThe loading program is designed to facilitate access requiredby freight vehicles (commercial delivery and movingtrucks) and passenger vehicles (private vehicles, vans, andshuttles), while mitigating the negative impacts that loadingand unloading activities might have on other traffic modes,particularly the pedestrian environment. The program mustbe managed effectively in order to prioritize pedestriansand enhance safety. The following sections outline the keyelements of the loading plan.On-street LoadingOn-street loading spaces are designed to facilitate short-termparking near building entrances to meet the needs of disabledindividuals and as a general convenience. They also allowpackage and other commercial deliveries to be made. Loadingspaces also facilitate traffic flow by reducing the incidenceof double-parking. However, even the frequent movementsof vehicles in and out of loading spaces can hinder traffic,including bikes and transit service. The following guidelineswill apply to the location and management of on-street loadingspaces:• The prime street frontage directly in front of buildingentrances will not be designated for parking but reservedfor use as short-term loading zones;• The sizes of loading zones will be tailored to the specificuses of the adjacent properties;• Retail streets featuring angled parking on one street facewill have loading spaces on the opposite street face, andinclude additional spaces to accommodate the needs ofboth sides of the street; and• Loading spaces will not be designated on BRT streets. Theloading needs of blocks adjacent to BRT streets will beaccommodated on other block faces.Off-street LoadingTo provide access from the street, off-street loading spacesrequire curb cuts and driveways, which can be intrusive tothe bicycling and pedestrian environment. In addition, theturning movements of vehicles leaving or entering the streetcan impede the flow of traffic, which is of particular concernwith regard to transit vehicles. The following guidelines willapply to the location and design of off-street loading spaces:• Where possible, curb cuts and driveways providing accessto off-street loading spaces should be consolidated intoa single location on any block face to minimize theirimpact;• No curb cuts accessing off-street loading will be createdon the BRT streets or on the local streets with bike lanes,where alternative frontages are available;• Individual buildings will be limited to one opening ofup to 22 feet in width to provide access to off-streetloading. Shared openings for parking and loading will beencouraged, with a maximum width of 27 feet;69Transportation Program
• Loading spaces will be designed to serve all commercialland uses. Where opportunities to share loading spacesexist (e.g., loading area for a supermarket with a peakof morning deliveries and restaurants with afternoondeliveries), the off-street loading requirements will bereduced accordingly; and• The Redevelopment Agency may regulate truck access fromarterial streets to loading docks based on developmentspecificloading needs.Tables 12 and 13 present permitted and required off-streetfreight loading space for various project uses, based on Section152 of the San Francisco Planning Code. The Code stipulatesoff-street loading space requirements that apply generallyoutside of the downtown commercial core and the South ofMarket District, but includes special conditions for DowntownResidential (DTR) districts. DTR districts are transit-oriented,high-density, mixed-use residential neighborhoods in andaround downtown. Reflecting the greater pedestrian activityin such districts, off-street loading is limited to a certainnumber of permitted spaces, rather than a prescribed numberof spaces.The off-street loading limits of DTR districts, shown in Table12, are proposed for the medium-density residential and highdensityresidential blocks, as shown in the Land Use Programpresented in Figure 6. In all other areas of the project, theCity's general requirements for off-street loading spaces willapply, as presented in Table 13.Table 12: Proposed Off-Street Freight Loading Space LimitsMedium- and High-Density Residential BlocksLand UseNon-Residential UsesSize of UseNumber of SpacesPermitted(per block)0 - 50,000 sq. ft. 1> 50,000 sq. ft. 1 space per 50,000 sq. ft.Residential – low density 0 - 100 units 1Residential – high densityTotal Number of LoadingSpaces Allowed for AnySingle Building (all uses)> 100 units1, plus 1 additional loadingspace for every 200additional units4Source: Fehr & Peers – October 2008Table 13: Proposed Off-Street Freight Loading Space RequirementsOutside of Medium- and High-Density Residential BlocksLand UseRetail, Wholesale,Manufacturing,Live/WorkOffices, Hotels,Residential, andall other usesNumber of SpacesSize of UseRequired(per block)0 - 10,000 sq. ft. 010,000 - 60,000 sq. ft. 160,000 - 100,000 sq. ft. 2> 100,000 sq. ft.3, plus 1 for eachadditional 80,000 sq. ft.0 - 100,000 sq. ft. 0100,000 - 200,000 sq. ft. 1200,000 - 500,000 sq. ft. 2> 500,000 sq. ft.3, plus 1 for eachadditional 400,000 sq. ft.Source: Fehr & Peers – October 2008Transportation Program70
5.3 PhasingThe Plan calls for a comprehensive set of transportationsolutions to serve the travel demands of residents, employeesand visitors and to meet the project goals of sustainabilityand livability. Because of their cost and complexity, theseimprovements to the transit and roadway networks will bephased during the development of the project. Because theproject is expected to be constructed over a relatively longperiod (full buildout expected by 2032), it is crucial thattransportation improvements be timed to provide the optimallevel of mobility relative to the amount of developmentthroughout the buildout process.Development of the project has been grouped into three majordevelopment phases. Table 14 presents the anticipated landdevelopment phasing.Table 14: Land Development PhasingLand Use Phase 1 Phase 2 Phase 3Hunters Point ShipyardResidential Units 2,650 homes 0 0Neighborhood-Serving Retail125,000 sq. ft. 0 0Research &Development722,000 sq. ft. 1,778,000 sq. ft. 0Stadium 69,000 seats 0 0Artists Studios 225,000 sq. ft. 0 0Candlestick PointResidential Units 1,253 homes 3,835 homes 2,762 homesRegional-ServingRetail0 635,000 sq. ft. 0Neighborhood-Serving Retail0 125,000 sq. ft. 0Office 0 150,000 sq. ft. 0Hotel 0 220 Rooms 0Arena 0 10,000 seats 0Source: Lennar Urban, February 2010These development assumptions anticipate construction of themajority of the Hunters Point Shipyard site in Phase 1 (includinga new NFL stadium) and the majority of the Candlestick Pointsite (including a new arena seating up to 10,000 spectators) inPhase 2. Additional residential development in the CandlestickPoint site will occur in Phase 3.Tables 15 and 16 summarize the programmed roadway andtransit improvements, respectively. Roadway improvementsare identified by the numbers corresponding to Figure 8 andtransit improvements are keyed by the letter they are identifiedwith in Figure 15. Phase 1 improvements are generallyexpected to be built and operational to coincide with the firststage of residential development and to meet the needs of thenew NFL stadium. Subsequent improvements are expected tobe built and operational to coincide with project build-out.Table 15: Roadway Improvement PhasingRoadway Improvement Phase 1 Phase 2 Phase 31A. Harney Way Widening (Initial Configuration) t1B. Harney Way Widening(Ultimate Configuration)t2. New Roadway through Candlestick Point t3. Ingalls Avenue/Thomas Avenue/CarrollAvenue/Griffith Street Improvements4A. Innes Avenue Streetscape Improvements t4B. Palou Avenue Transit Preferential StTreatments and Streetscape Improvements t4C. Carroll Avenue Streetscape Improvements t4D. Gilman Avenue Streetscape Improvements t4E. Ingerson Avenue Repaving t4F. Jamestown Avenue Improvements t5. Yosemite Slough Bridge t6. Transportation Management System t7. Geneva Avenue Extension 1 t8. Harney Way / US 101Interchange Reconstruction 1t1 Included to indicate anticipated infrastructure development timeline; under study.tSource: Fehr & Peers– March 201071Transportation Program
Generally, improvements to roadways that are expected tocarry traffic to and from the new NFL stadium will be constructedin Phase 1. (See Chapter 6 for a more detailed discussionof gameday traffic conditions). These include Harney Way,the Yosemite Slough Bridge, and improvements to IngallsAvenue, Thomas Avenue, Carroll Avenue, and Griffith Street(the auto route around Yosemite Slough). If the stadium isnot constructed, some of these improvements may be delayeduntil typical traffic volumes associated with the developmentreach levels that warrant the improvements. A more detaileddiscussion of the development-related "triggers" for roadwayimprovements is included in the project's Infrastructure Plan.A similar concept has been developed for the transitimprovements, as shown in Table 16. Transit routes servingthe Hunters Point Shipyard (Hunters Point Express (HPX),23-Monterey/24-Divisadero, 44-O'Shaughnessy, and 48-Quintara) would be extended to serve the site in the earlystages of Phase 1, at somewhat lower frequencies thanexpected with full buildout. Gradually, as development in theHunters Point Shipyard occurs, frequencies of these routeswill be increased to correspond to the level of development.Similarly, routes serving Candlestick Point (Candlestick PointExpress (CPX) and 29-Sunset) will be extended into the sitein the relatively early stages of Phase 2, when the bulk ofthe Candlestick Point development is scheduled to occur.The 1,253 homes in Candlestick Point associated with Phase1 would be served by the existing 29-Sunset route, and nomodifications are necessary in this phase.The Muni Line 28L/BRT route would be implemented andextended in Phase 2, with completion of the Geneva Avenueextension and US 101/Harney Way interchange reconstructionand with the beginning of substantial development of theCandlestick Point site.Table 16: Transit Improvement PhasingTransit Improvement Phase 1 Phase 2 Phase 3A. New and Expanded Bus LinesRouteFrequency (Minutes)Hunters Point Express (HPX) 20 12 12Candlestick Point Express (CPX) 15 - 20 10Extension of 23-Monterey (Temporary) 15Extension of 24-Divisadero (23-MontereyReturns toExisting Route)10 7.5Extension of 28L/BRT 1 8 5Extension of 29-Sunset 10 5Extension of 44-O'Shaughnessy 7.5 6.5 6.5Extension of 48-Quintara 15 10 10Increased service on T-Third light rail 8-10 6 2 5 2B. Harney / Geneva BRT / TransitPreferential Street 3 t tC. Hunters Point ShipyardTransit Center t t tD. BRT Stops t tE. Palou Avenue TransitPreferential Street t t tF. Bayshore Transit Center Unknown – Currently Under StudyG. Oakdale CaltrainStation ImprovementsUnknown – Currently Under StudyH. Connections to SamTrans t t t1 Until construction of the Geneva Avenue extension, the BRT service may operate independently fromthe 28L – 19th Avenue/Geneva Avenue limited between the Hunters Point Transit Center and theBayshore Caltrain Station via Alana Way and Beatty Avenue.2 Increased capacity on the T-Third shown here is accommodated within the overall implementationof the Central Subway service capacity and frequency enhancements. Extension to the BayshoreCaltrain station is also proposed as part of the overall Bi-County study. In Phase 3, service will likely beprovided by two-car trains.3 Improvement currently under study – phasing shown is anticipated but subject to change.Transportation Program72
6Game Day ConsiderationsAs part of the redevelopment of HuntersPoint Shipyard, a new stadium for the SanFrancisco 49ers is proposed. The facilitywould have a capacity of 69,000 seatedpatrons and provide parking and loadingspaces for about 16,400 cars and busesnear the stadium, with an additional 1,000spaces at the Candlestick Point retail center.This chapter considers the travel demandgenerated by a capacity crowd at footballgames in the proposed stadium. The facilityis expected to host other events, such asconcerts, that would have a comparable orlower level of attendance. Thus, the traveldemand associated with these events wouldalso be accommodated by the parking androadway capacities outlined below.73
6.1 Game Day Travel DemandHistorical data provided by the 49ers franchise found that travelto games occurs predominantly by private auto (81 percent)while the remaining trips utilize transit (19 percent), consistingof publicly-operated buses and private charter buses. Existingdata also indicates average vehicle occupancy of about threepeople per vehicle. With the proposed new stadium at HuntersPoint Shipyard, more efficient transit connections to regionaltransit are proposed, including Harney BRT and Palou TransitPriority Treatment. These service improvements will providebetter accessibility via new game day transit configurations.As a result, it is expected that the mode split for the newstadium would shift to approximately 75 percent private autoand 25 percent transit. Table 17 summarizes the expectedtravel demand patterns for the new stadium.The expected mode split could be achieved in part throughincentives for transit riders. The 49ers could explore theinclusion of a transit ride to and from a game with admission,or providing discounted passes for game-day use.6.2 Game Day Modes of TravelDuring a typical football game day, there will be numeroustypes of trips, including visitors to the stadium and residents/visitors to the project site and surrounding neighborhoods.The following modes and trip types would be expected tooperate on a typical game day:Regularly Scheduled Muni ServiceDuring game days, regularly scheduled Muni service to andfrom Hunters Point Shipyard would continue to operate,although frequencies may increase prior to and followinggames. Figure 15 illustrates the proposed modifications toMuni routes and other transit improvements designed to servethe project.AutoModeTable 17: Proposed Game Day Mode SplitPrivate Automobile(Spectator)ModeSplitNumberof PatronsNumberofVehiclesPatronsper Vehicle70.9% 48,892 18,073 2.7Private Automobile (Staff) 3.9% 2,683 2,000 1.3Limousine 0.1% 50 17 3Recreational Vehicles 0.3% 220 44 5Auto Subtotal 75.2% 51,845 20,134 2.6BusChartered Buses 5.3% 3,656Transit Buses 1 (Spectator) 18.5% 12,732Transit Buses 1 (Staff) 1.0% 725Transit Subtotal 24.8% 17,113Total 100.0% 68,958 2 20,134 3Source: San Francisco 49ers, Fehr & Peers – May 20091 Operated by Muni, Silverado Stages, Golden Gate Transit, Eastern Contra Costa County Transit andValley Transportation Authority.2 Includes 5% reduction for spectator "no shows."3 Excludes transit vehicles.Game Day Transit ServiceIn order to serve the game day transit demand and to achievethe 25 percent transit mode share as shown in Table 17,accommodations for transit loading/unloading and parking arenecessary to facilitate safe and efficient transit connections.The following types of game day service have been identifiedbased on current stadium operations as well as an estimateof the types of transit services that could reasonably beimplemented to increase game day transit service to the site.Specifically, the types of transit service that would be providedon game days may include:Game Day Considerations74
Shuttles to Regional Transit Connections – these buseswould provide service to and from the Bayshore Caltrain and/or Balboa Park BART station in a continuous loop before andafter the game. Typically, Muni would operate this service, butother Bay Area transit providers may provide buses and/ordrivers since there is generally available fleet on Sundays;Long-Haul San Francisco Service – Muni typically operatessome game day express services that provide service to theoutlying areas of San Francisco such as the Geary Corridor,the Marina District, and San Francisco State University;Regional Bus Service – other buses operated by GoldenGate Transit, AC Transit and/or Silverado Stages may provideregional bus service to the North, East and South Bay. Thesebuses would be expected to make only one trip to and fromthe stadium due to the extended run time to the regionaldestination;Charter Buses – privately-operated buses that arrive beforethe game, park in a specific parking area dedicated to thesebuses, and leave shortly after the game (depending on thegroup).Emergency VehiclesEmergency vehicle trips must also be accommodated on gamedays. During the pre- and post-game condition, an adequateroute will be provided at all times that allows emergencyvehicles to and from the site to respond to an emergencysituation.Private AutoAs shown in Table 17, the majority of visitors to events at thestadium are expected to arrive via private auto. A sufficientsupply of game day parking is an integral part of the planningof the stadium area, as is discussed in detail in Section 6.4.There would also be auto traffic in the project area for othernon-stadium uses, which would need to be accommodatedduring a typical game day through proper traffic control in theproject area and surrounding streets.6.3 Game Day Applicationsof ImprovementsThe roadway and transit improvements described in Chapters4 and 5 would substantially enhance game day access andoperations for pre- and post-game conditions. In addition,the following improvements would be incorporated into thetransportation program to increase capacity and facilitatestadium access on game days.Transportation Management System (TMS)A TMS Center located at the proposed stadium wouldcontrol traffic signals, overhead lane use control signals andchangeable message signs to react to pre- and post-gamelane closures and game traffic-related congestion on a realtimebasis. The TMS would be operated by SFMTA staff andwould only be active on game days.75Game Day Considerations
Overhead lane use control signals and changeable messagesigns controlled by the TMS will be installed on the followingexit routes:• Arelious Walker to Harney Way• Harney Way and Executive Park Boulevard• Griffith Street to Thomas Avenue to Ingalls Street• Innes Avenue to Hunters Point Boulevard to EvansAvenue• Jennings Street to Cargo Way to Illinois StreetPalou Avenue Transit Preferential Street (TPS)On game days, Palou Avenue would be a dedicated transitonlystreet for use by charter and public buses, althoughresidents would still be allowed to access their homes. Mostof the signals along Palou Avenue would likely be manuallycontrolled to provide long segments of free-flow bus travel,and enable local access at some intersections.Harney Bus Rapid Transit (BRT)In addition to BRT operated by SFMTA, other public and charterbuses providing game-day express service from around the BayArea would use the exclusive BRT lanes through CandlestickPoint and over the Yosemite Slough Bridge.Yosemite Slough BridgeOn game days, the bridge would accommodate four lanes ofauto traffic in addition to the two dedicated BRT lanes. Theselanes would be configured to provide four auto lanes to thestadium during pre-game conditions and four auto lanes awayfrom the stadium during post-game conditions. The two BRTlanes would remain configured with one lane in each directionfor all types of buses (charter and public).6.4 Stadium Parking SupplyCandlestick Park has approximately 17,500 parking stalls inits immediate vicinity. Additional parking is provided in remotelots to the north and west of the stadium. The proposed HuntersPoint stadium offers approximately 16,400 on-site stalls atthe stadium and adjacent R&D campus, plus 1,000 spacesat the Candlestick Point retail center. Additional parking isexpected to be accommodated in a number of nearby off-siteparking facilities. Figure 17 summarizes the proposed GameDay parking supply.Approximately 50 percent of the parking stalls would beaccommodated in dual-use sports fields and unpaved openspace. When events are not taking place at the stadium, theseparking areas would be used as baseball and football/soccerfields. Approximately 15 percent of the supply would be atthe research and development campus immediately north ofthe stadium that would be made available for stadium events.The remainder will be housed in parking structures and lotsimmediately adjacent to the stadium.6.5 Game Day OperationsOverview of Existing Game Day OperationsThe existing Candlestick Park operates with reversible lanesand traffic control officers at many key intersections before andafter events. Ingerson Avenue is used as a transit-only street,allowing for efficient bus travel during post-game conditions.Game day operations are focused on the post-game conditionsince typically the travel demand surges once the event isover, while patrons tend to arrive over a longer period of timeprior to a game. Table 18 summarizes the number of lanes ineach direction during the post-game condition for the existingstadium.Game Day Considerations76
Table 18: Post-Game Lane Configuration – Existing StadiumAuto TrafficRoute Inbound OutboundVia Carroll Avenue 1 1 1Via Gilman Avenue 1 3Via Jamestown Avenue 1 2Via Harney Way 0 4Auto Subtotal 3 10Transit VehiclesVia Ingerson Avenue 1 1Transit Subtotal 1 1Total 4 11Source: AECOM – October 20081 Carroll Avenue has three outbound lanes, but they merge into one right turn lane at Third Street.Game Day TransitTo improve transit service to the new stadium at Hunters PointShipyard, the Palou TPS treatment and Harney BRT route areexpected to serve game day transit service in addition to theregularly-scheduled Muni bus service during game days. Theproposed game day transit service is illustrated in Figure 18.A brief description of the operation of each transit facility isprovided below:Palou TPSPalou Avenue between Griffith and Third Streets would beclosed to auto traffic and be available for bus traffic only.Buses that would be using this stretch of Palou would be theregularly-scheduled Muni buses, charter buses, and regionalbuses. Muni buses would operate in both directions as partof the Muni schedule for game days. The other two typesof buses that serve the stadium would only operate in onedirection (to the stadium pre-game and from the stadium postgame)to eliminate unnecessary conflicts at the intersectionsof Palou/Crisp Road and Palou/Arelious Walker Drive wherethese buses would be potentially conflicting with peak gameday auto traffic, as is illustrated later in this section.Harney BRTDuring game days, the two lanes for the exclusive use of theHarney BRT would also be made available for other game daytransit service. Since there are two exclusive lanes (one ineach direction), buses on this route would have no conflictsin either direction (except at intersections where the BRTalignment crosses auto traffic). Therefore, shuttles to andfrom the Bayshore Caltrain station and Balboa Park BARTstation could operate on this route efficiently to complementBRT service on gamedays. This BRT route is also a designatedemergency vehicle access route.Game Day BicyclesTo promote bicycling, secured valet parking should beprovided for a minimum of 1% of all expected participants(approximately 690 patrons). Bicycle regulations approvedby the San Francisco Board of Supervisors require monitoredbicycle parking for events with an anticipated number ofparticipants greater than 2,000. The parking facilities shouldbe located within a one block radius of a regular entrance tothe event.All event publicity should include information on the availabilityand location of the Secured Valet Bike Parking in the sameformat, with equal amount of space, as other transportationinformation. All event personnel should be aware of the SecureValet Bike Parking location and event maps must indicate thelocation as well.Bicycle parking will be open for two hours before the gameand remain open until 60 minutes after the game.77Game Day Considerations
Figure 17: Proposed Stadium Game Day ParkingGame Day Considerations78
Figure 18: Game Day TransitGame Day AutoAs part of the proposed new stadium, reversible lanes andTraffic Control Officers would be available to promote betteraccess. In addition, real-time traffic signal coordination,overhead lane control signs, and changeable message signswould also be built to control traffic before and after majorevents.During game days, several roadways in the project area wouldbe reconfigured to promote easier access to the stadium.Sections of Evans Avenue, Innes Avenue, Griffith Street,Thomas Avenue, Ingalls Street, and Harney Way would bereconfigured to provide additional lanes in the peak directionof travel (pre-game to the stadium, post-game away fromthe stadium). Table 19 summarizes the number of lanes ineach direction for the proposed new stadium on Hunters PointShipyard.Table 19: Post-Game Lane Configuration – Proposed StadiumRoute Inbound OutboundAuto TrafficVia Innes Avenue / Cargo Way 0 2Via Innes Avenue / Evans Avenue 1 2Via Griffith Street / Ingalls Street 1 3Via Yosemite Slough Bridge 0 4Auto Subtotal 2 11Transit VehiclesVia Yosemite Slough Bridge 1 1Transit Subtotal 1 1Total 3 12Source: AECOM – October 200879Game Day Considerations
Post-Game Auto Exit CapacityOne of the factors used to evaluate the accessibility of theproposed stadium is to determine how the surroundingroadway network would serve the post-game travel demand.Specifically, this is determined using a hypothetical stadiumclearance time (i.e., the amount of time it takes all patrons toleave the stadium vicinity). The critical mode is the clearanceof the private auto facilities (parking lots for general admissionguests). The game day lane configurations and transportationimprovements presented above are key elements that directlyrelate to post-game roadway capacity. Table 20 summarizesthe current roadway exit capacity (in vehicles per hour) of theexisting 49ers stadium.Table 20: Peak Direction Exit Capacity – Existing StadiumRouteExiting North of Stadium (destinations North & South)Existing Exist Capacity (vehiclesper hour)Via Carroll Avenue 900Via Gilman Avenue 1,800Via Jamestown Avenue 900North Subtotal 3,600Exiting South of Stadium (destinations North & South)Via Harney Way 4,100South Subtotal 4,100Total 7,700Source: AECOM – October 2008A key consideration in constructing a new stadium is providingimproved accessibility for a better fan experience, including anincrease in post-game exit efficiency. Table 21 summarizes theroadway exit capacity (in vehicles per hour) of the proposednew stadium. The only difference between the exit capacitybetween opening day and build-out conditions is related to thenew US 101/Harney/Geneva interchange, as it would increasethe south gate capacity. The exit capacity was calculated forOpening Day Conditions and project build-out conditions. Theproposed project exit capacities for the two conditions areillustrated in Figures 19 and 20, respectively.Table 21 is based on several assumptions:• The local street network, with the help of advanced trafficsignal technology and traffic control officers, would be ableto process approximately 800 vehicles per hour per lane;• Where the exit routes interface with Third Street, a majortransit corridor, a lower capacity was assumed;• Freeway ramps could process up to 1,600 vehicles perhour per lane (a total of 3,200 vehicles per hour at theexisting Harney Way interchange); and• Stadium exit gates can process up to 1,000 vehicles perhour per lane.Game Day Considerations80
Table 21: Peak Direction Exit Capacity – Proposed StadiumTo the NorthRouteExit Capacity:Opening DayConditionsExit Capacity:Project Build-Out ConditionsVia Innes Ave. / Evans Ave. / Mendell St. 400 400Via Innes Ave. / Evans Ave. /Cesar Chavez St.900 900Via Innes Ave. / Evans Ave. / Third St. 900 900Via Innes Ave. / Illinois St. / 25th St. 1800 1800North Subtotal 4,000 4,000To the SouthVia Griffith St. / Ingalls Ave. / Third St. 2,700 2,700Via Yosemite Slough Bridge / Harney Way 3,200 4,300South Subtotal 5,900 7,000Total 9,900 11,000Post-Game Event Clearance TimeSource: AECOM – October 2008Based on the theoretical lane capacities presented in theabove tables, an approximation of stadium clearance timewas calculated for the existing stadium and compared to theproposed project stadium configuration.Approximately 16,400 vehicles (autos, buses and RVs) areexpected to park at the stadium during an event. For stadiumclearance time calculations, the buses were removed fromthe total post-game demand since they would be exiting thestadium by transit-only routes. Therefore, only 16,000 vehicles(autos and RVs) would be using the auto routes during postgameoperations.Existing 49ers StadiumAt the existing stadium, it would take approximately twohours and ten minutes to serve the 16,500 vehicles (excludesbuses) expected during game days at the new stadium, basedon the existing roadway capacity of 7,700 vehicles per hour.In making this comparison, it should be noted that the existingstadium has a lower transit mode share compared to what isexpected at the proposed new stadium; therefore, the existingstadium has a larger theoretical post-game exit demand than16,500 vehicles.Proposed StadiumThe proposed exit capacity for the new stadium under OpeningDay Conditions was calculated at 9,900 vehicles per hour. Itwould take approximately one hour and 40 minutes to serve16,000 (autos and RVs) vehicles.The proposed capacity for the new stadium under build-outconditions was calculated at 11,000 vehicles per hour. It wouldtake approximately one hour and 30 minutes to serve 16,000vehicles.The above calculations were made using the most conservativeassumptions. In reality, some vehicles would likely leaveearly, and a portion would also stay in the area after theevent. Therefore, a more qualitative look at this analysis issummarized as follows:81Game Day Considerations
• The Opening Day Condition would result in a 29 percentfaster clearance time when compared to the existingstadium. The Build-Out Condition would result in a 43percent faster clearance time when compared to theexisting stadium;• The on-site amenities and additional land uses developedas a part of the project would likely affect post-gametravel behavior (some patrons may choose to stay afterthe game to visit the nearby retail or open space uses);• The transit improvements proposed as a part of theproject would likely make transit a more convenient andefficient option for game day travel compared to privateautos. The above calculations assume that 25 percent ofall game day attendees would travel by transit. The robustpackage of post-game transit services proposed as a partof the project have the potential to serve a much largerpatronage compared to the existing transit service; and• The 49ers and the City may explore additionalopportunities to delay vehicle departures following games,which could include such measures as preferred parkingareas, promotion of post-game tailgating, and musicperformances.Figure 19: Post-Game Auto Exit Capacity – Opening Day ConditionsGame Day Considerations82
Figure 20: Post-Game Auto Exit Capacity – Project Build Out ConditionsGame Day Traffic RoutesFigure 21 illustrates the auto and transit routes that wouldoperate on a typical game day during the post-game condition.In an effort to maintain effective and safe traffic flow after atypical event, many of the intersections require traffic controlofficers while others can be controlled effectively via trafficsignals and the Transportation Management System.In addition to intersection control, many of the roadwaysegments would serve stadium traffic via reversible lanecontrol similar to how the existing stadium operates.During game days, the following roadways outside theproject site would have reversible lanes to promote moreefficient access to and from the stadium (see Figure 7J-L forcross-sections):North Gate:• Innes Avenue between the project site and EvansAvenue; and• Evans Avenue between Innes Avenue and Mendell Street.South Gate:• Crisp Road between the project site and Griffith Street/Palou Avenue;• Griffith Street between Palou Avenue/Crisp Road andThomas Avenue;• Thomas Avenue between Griffith Street and IngallsStreet;• Ingalls Street between Carroll Avenue and UnderwoodAvenue;• Arelious Walker Drive between Crisp Road and HarneyWay (including over Yosemite Slough Bridge); and• Harney Way between the project site and the US 101/Harney Interchange.83Game Day Considerations
Game Day Traffic ControlFigure 21: Game Day RoutesInside the project site, the Hunters Point Shipyard Arterialsand the Candlestick Point Arterials would have reversiblelanes on game days.The following intersections will be under control by the TMScenter or a Traffic Control Officer as shown on Figure 22:• 25th Street and Pennsylvania Avenue• 25th Street and 3rd Street• Illinois Street and Cesar Chavez Street• Oakdale Avenue and Barneveld Avenue• Industrial Street and Palou Avenue• Industrial Street and Oakdale Avenue• Oakdale Avenue and Phelps Street• Phelps Street and Jerrold Avenue• Evans Avenue and Mendell Street• Hunters Point Boulevard and Galvez Avenue• Hunters Point Boulevard and Innes Avenue• Jennings Street and Evans Avenue• Robinson Street and Donahue Street• Crisp Road and Fischer Avenue• Crisp Road and Arelious Walker Drive• Palou Avenue and Griffith Street• Palou Avenue and Hawes Street• Palou Avenue and Ingalls Street• Palou Avenue and Jennings StreetGame Day Considerations84
Figure 22: Game Day Traffic Control• Palou Avenue and Keith Street• Palou Avenue and Lane Street• Carroll Avenue and Ingalls Street• Arelious Walker Drive and Carroll Avenue• Arelious Walker Drive and Gilman Avenue• Arelious Walker Drive and Ingerson Avenue• Arelious Walker Drive and Harney Way• Harney Way and Executive Park Boulevard85Game Day Considerations
Game Day Considerations86
7Non-Stadium VariantsThe proposed project includes a new stadiumfor the San Francisco 49ers at Hunters PointShipyard. However, should the 49ers franchisechoose to build a new stadium elsewhere,alternative development plans for ParcelsD and E have been considered. Two ofthose variants are described in this Chapter.One variant, known as Variant 1, includesan expanded research and developmentcampus. The other variant, known as Variant2A, includes a mix of additional housing andresearch and development instead of a newstadium.The roadway improvements, transitimprovements and TDM programsintroduced in Chapters 4 and 5 would allbe implemented as part of the non-stadiumalternatives. Under the alternatives, thesame project goals of reducing auto use toapproximately 45 percent, and increasingtransit ridership, walk and bike trips to 30, 20,and 5 percent, respectively, would apply.87
7.1 Variant 1 – Research &DevelopmentOne of the two non-stadium variants is known as Variant 1. Itincludes a more extensive research and development campusin the Hunters Point Shipyard site.Land Use ProgramCurrent plans for this variant would include an additional twoand a half million square feet of research and developmentspace in a "green-technology" campus, creating a substantialnew employment center. This would create more opportunitiesfor residents of the proposed project to work on-site withoutrequiring private autos for off-site work trips. The landuse program for Variant 1 is summarized in Table 22 andillustrated in Figure 23. In this variant, all other uses outsideof the stadium site in both Candlestick Point and Hunters PointShipyard would remain the same.Table 22: Land Use Program (Variant 1 - Research & Development)Land UseCandlestick PointHunters PointShipyardProject TotalResidential 7,850 homes 2,650 homes 10,500 homesRegional-ServingRetailNeighborhood-Serving Retail635,000 sq. ft. - 635,000 sq. ft.125,000 sq. ft. 125,000 sq. ft. 250,000 sq. ft.Office 150,000 sq. ft. - 150,000 sq. ft.Research &Development- 5,000,000 sq. ft. 5,000,000 sq. ft.Hotel 220 rooms - 220 roomsArena 10,000 seats - 10,000 seatsParks & Open Space 105 acres 222 acres 327 acresArtists Studios - 255,000 sq. ft 1 255,000 sq. ftCommunityServices50,000 sq. ft. 50,000 sq. ft. 100,000 sq. ft.Source: Lennar Urban – October 20091 Carroll Avenue has three outbound lanes, but they merge into one right turn lane at Third Street.Non-Staduim Variants88
Figure 23: Land-Use Program: Non-Stadium (Variant 1 – Research & Development)89Non-Staduim Variants
Parking SupplyThe project parking supply for Variant 1 removes the spacesassociated with the stadium and includes approximately 6,000additional parking spaces to serve the expanded research anddevelopment campus. The parking supply for the non-stadiumalternative land use program is presented in Table 23.ParcelTable 23: Proposed Parking Supply(Variant 1 - Research & Development)ResidentialNumber of SpacesCommercialOff-Street 1GeneralOn-StreetTotalCandlestickPoint7,850 2,346 1,360 11,556Hunters PointShipyard2,650 7,028 1,678 11,356Total 10,500 9,374 3,038 22,912Source: Lennar Urban – December 20081 Includes regional retail, neighborhood retail, office, hotel, and arena uses for Candlestick Point andneighborhood retail, artists' space, and research and development for Hunters Point Shipyard.7.2 Variant 2A – Housing/Research & DevelopmentThe second non-stadium variant is known as Variant 2A. Itincludes a combination of additional research and developmentspace and housing in the Hunters Point Shipyard site.Land Use ProgramThis variant would be similar to Variant 1, except that 1,625residential units would be shifted from Candlestick Point tothe Hunters Point Shipyard and only 3 million square feet ofresearch and development space would be constructed in theHunters Point Shipyard instead of the 5 million proposed underVariant 1. Similar to Variant 1, the research and developmentspace would be focused on a "green-technology" campus,creating a substantial new employment center. The landuse program for Variant 2A is summarized in Table 24 andillustrated in Figure 24.Non-Staduim Variants90
Land UseTable 24: Land Use Program(Variant 2A - Housing/Research & Development)Candlestick PointHunters PointShipyardProject TotalResidential 6,225 homes 4,275 homes 10,500 homesRegional-ServingRetailNeighborhood-Serving Retail635,000 sq. ft. - 635,000 sq. ft.125,000 sq. ft. 125,000 sq. ft. 250,000 sq. ft.Office 150,000 sq. ft. - 150,000 sq. ft.Research &Development- 3,000,000 sq. ft. 3,000,000 sq. ft.Hotel 220 rooms - 220 roomsArena 10,000 seats - 10,000 seatsParks & Open Space 105 acres 222 acres 327 acresArtists Studios - 255,000 sq. ft 1 255,000 sq. ftCommunityServices50,000 sq. ft. 50,000 sq. ft. 100,000 sq. ft.Source: Lennar Urban – February 20101 The Project includes 225,000 sq. ft. of existing artist studio space that would be renovated and replaced.Parking SupplySimilar to Variant 1, the project parking supply for Variant2A also removes the spaces associated with the stadium andincludes additional parking spaces to serve the expandedresearch and development campus and shifts residentialparking spaces from Candlestick Point to Hunters PointShipyard. The parking supply for the Variant 2A (Housing/Research & Development) land use program is presented inTable 25.ParcelTable 25: Proposed Parking Supply(Variant 2A - Housing/Research & Development)ResidentialNumber of SpacesCommercialOff-Street 1GeneralOn-StreetTotalCandlestickPoint6,225 2,346 1,360 9,931Hunters PointShipyard4,275 4,428 1,428 10,131Total 10,500 6,774 2,788 20,062Source: Lennar Urban – February 20081 Includes regional retail, neighborhood retail, office, hotel, and arena uses for Candlestick Point andneighborhood retail, artists' space, and research and development for Hunters Point Shipyard.91Non-Staduim Variants
Figure 24: Land-Use Program: Non-Stadium (Variant 2A - Housing/Research & Development)Non-Staduim Variants92
8AnalogiesThe mode split goal of the project – 45percent auto, 30 percent transit, 20 percentwalk, and 5 percent bike are analogousto other San Francisco neighborhoods. Inaddition, automobile travel has declined andalternative modes have gained popularityin projects and neighborhoods in SanFrancisco and other cities through effectiveTDM strategies. The following sections drawanalogies to Candlestick Point and HuntersPoint Shipyard, showing that dense, mixedusedevelopment and a comprehensive TDMprogram can achieve the project's modalsplit goal.93
8.1 Comparison to Other SanFrancisco NeighborhoodsWith respect to current travel patterns in southeastern SanFrancisco, the mode split shift sought by the project goalsmight appear ambitious. However, many San Francisconeighborhoods currently exhibit comparable levels of auto,transit, and walk/bike travel, as shown in Table 26. Percentagesof residential work trips in other San Francisco neighborhoodsthat meet or exceed the project modal split goal appear in thetable in bold.All of the featured neighborhoods have a level of transit usegreater or equal to 30 percent for residential work trips. Areasof the City where at least a quarter of trips are made onfoot or by bike include Nob Hill, North Beach, and TelegraphHill. Private automobiles are used for 45 percent or less ofresidential work trips in Nob Hill, North Beach, Telegraph Hill,and the Western Addition.With a development density, mixed-use character andlevel of transit service comparable to these neighborhoods,Candlestick Point and Hunters Point Shipyard will achieve amodal split similar to these transit-oriented and walkable SanFrancisco neighborhoods.8.2 TDM Case StudiesWhile it is difficult to isolate the effectiveness of any one ofthe TDM elements described in Chapter 5, it is clear from thefollowing case studies that comprehensive, multi-faceted TDMplans can achieve dramatic shifts in mode choice. The policiesand programs outlined in Section 5.2.4 intend to createthis synergy, achieving results comparable to the followingcase studies.Table 26: Mode Split Comparison - San Francisco NeighborhoodsNeighborhoodPM Peak Hour Residential Work TripsTransit Walk/Bike Auto/CarpoolMarina 40% 11% 49%Mission 39% 14% 47%Nob Hill 39% 32% 29%North Beach 30% 40% 30%Parkmerced 31% 4% 65%Russian Hill 35% 15% 50%Telegraph Hill 31% 29% 40%Western Addition 45% 16% 39%% That Would AchieveProject Goals 30% 25% 45%Stanford University, Palo Alto, CaliforniaSource: U.S. Census Bureau – 2000In 2002, four percent of Stanford University employees rodeCaltrain to work. By 2007, this figure jumped to nearly 18percent. During the intervening five years, the following wereimplemented:• GO Passes are provided free to all employees who live offcampus,which allow unlimited rides on Caltrain;• Caltrain introduced "baby bullet" service, with Palo Alto asan express station; and• "Clean Air Cash" was instituted, an incentive which paysuniversity employees $234 (the cost of a permit) if theydo not purchase a parking permit.TDMplans canachievedramaticshifts inmodechoiceAnalogies94
Station Tower, Surrey, British ColumbiaIntrawest Corporation developed a trip reduction program forits Station Tower, an office building where 700 people areemployed. The tower is located in a suburban area, yet nearly50 percent of the employees use transportation alternatives.This is due to the tower's location at a SkyTrain rapid transitstation, as well as TravelChoices, a TDM program includingthe following elements:• Each organization in the building has a TravelChoicesrepresentative who administers the program;• Showers and secure bike lockers are provided forcyclists;• Free access to fitness facilities, showers and lockers areprovided;• A ride-matching service links potential carpool partnerswithin the complex;• Preferential parking is reserved for carpools andvanpools;• A guaranteed ride home program is offered; and• An incentive program awards "TravelBucks" to eachemployee that uses alternative transportation to and fromwork. Prizes include coffee, transit tickets, ski passes andrental car certificates.North Natomas Transportation Management Association,Sacramento, CaliforniaThe North Natomas Transportation Management Association(NNTMA) has targeted a 35 percent reduction in singleoccupantvehicle trips by residents of the community. Eachdeveloper must submit a transportation management plan(TMP) prior to development, which is a commitment to acombination of trip reduction measures. The TMP must beapproved by the City of Sacramento. NNTMA's TDM programincludes the following TDM elements:• Baseline telephone survey;• Association website;• Online guaranteed ride home program;• Brochure for residents;• Subsidized bicycle program; and• "Spare the Air" cash giveaways.Marquam Hill Partnership Plan, Portland, OregonThree major medical facilities combined efforts to develop aplan to manage the daily transportation demand of 10,000employees, students, patients and visitors. In the first yearafter the plan's implementation, single-occupant vehicle tripsdeclined by 15 percent and transit ridership increased by 46percent. The plan included the following:• New express buses;• Coordinated carpool/vanpool database;• Reduced-cost transit passes and an extensive marketingprogram.Employee Commute Options (ECO) – Oregon Departmentof Environmental QualityThe Oregon Department of Environmental Quality's ECOprogram aims to reduce vehicle trips in the Portlandmetropolitan area. Employers with over 100 employees at awork site are required to provide incentives for alternativecommute options that have a combined potential to reducesingle occupant vehicle commute trips by ten percent from anestablished baseline. The program estimates the trip reductionpotential for various TDM elements among the percentage ofemployees they are made available to, which are summarizedin Table 27.95Analogies
Table 27: Employee Commute Options (ECO) ProgramTDM ElementTelecommuting (among employees expected to participate)Trip ReductionPotentialFull Time 82-91%1-2 Days/Week 14-36%Compressed Work Week (among employees expected to participate)9/80 Schedule 7-9%4/40 Schedule 16-18%3/36 Schedule 32-36%Full Transit Pass SubsidyHigh Transit Service 19-32%Medium Transit Service 4-6%Low Transit Service 0.5-1%Half Transit Pass SubsidyHigh Transit Service 10-16%Medium Transit Service 2-35%Low Transit Service 0-0.5%Employee Parking Cash-OutHigh Transit Service 8-20%Medium Transit Service 5-9%Low Transit Service 2-4%Parking Subsidy EliminationHigh Transit Service 8-20%Medium Transit Service 5-9%Low Transit Service 2-4%Reduced Cost Parking for High Occupancy Vehicles(HOV)1-3%On-Site Services 1-2%Table 27: Employee Commute Options (ECO) ProgramTDM ElementTrip ReductionPotentialBicycling Program (employees who live < 6 milesfrom work site)0-10%Walking Program 0-3%On-site Rideshare MatchingWithout support strategies 1 1-2%With support strategies 6-8%Company-provided Vanpools (with fee) 15-25%Company-subsidized Vanpools 30-40%Gifts/Awards for Alternative Mode Use 0-3%Time Off with Pay for Alternative Mode Use 1-2%Company Cars for Business Travel 0-1%Source: Oregon Department of Environmental Quality – October 20081 Support strategies include employee transportation coordinators, marketing/education campaigns,preferential HOV parking, on-site transit pass sales, pre-tax transit pass sales, employee recognitionprograms, and shuttles.Long Range TDM Plan – Hillsborough County, FloridaResearchers at the University of South Florida analyzed thepotential of TDM strategies to reduce congestion and airpollution in the Tampa Bay Area. The Environmental ProtectionAgency's COMMUTER Model was used to measure theeffectiveness of different combinations of TDM strategies.The analysis was applied to the activity centers of DowntownTampa, Brandon, USF/Busch/New Tampa, and Westshore,with commuting workforces ranging from 23,000 to 58,000in 2000. Downtown Tampa had a single occupancy vehicle(SOV) mode split of 63 percent, while the other, suburbanactivity centers ranged from 81 to 83 percent. The results ofthe analysis are summarized in Table 28.Analogies96
ScenarioScenarioA(AlternativeWorkSchedule)ScenarioB(AlternativeWorkSchedule &EmployerbasedTDMPrograms)ScenarioC(EmployerbasedTDMProgram II)ScenarioD(EmployerbasedTDMProgram III)Table 28: Hillsborough County Long Range TDM PlanElements• 1% increase in 4/40 compressedwork week• 2% increase in 9/80 compressedwork week• 2% increase in telecommuting• Compressed workweek andtelecommuting, as in Scenario A• Preferentialparking program• Transit/vanpool subsidy• 10% workforce participation• Same as Scenario B, but with35% workforce participation andgreater employer support levels• Same as Scenario B, but with50% workforce participation andgreater employer support levelsReduction of SOVMode Share2000Baseline2025Baseline 11.0-1.1% 4.1-4.5%1.3% 4.4-4.8%2.4-2.5%3.8-3.9%5.5-5.9%6.6-7.0%Source: Florida Department of Transportation, "Incorporating TDMinto the Land Development Process" – October 20051 Baseline assumes expected telecommuting growth and existing and committed transit improvements.An employer-level baseline was also analyzed, usingHillsborough County Government as the employer. In 2000,the county employed 2,860 in downtown Tampa. The modelfound that a reduction of SOV mode split of up to 11.7 percentcould be achieved under the most aggressive scenario.Santa Clara Valley Transportation Authority (VTA), SanJose, CaliforniaTransportation Impact Fee (TIF) credits are offered todevelopers in Santa Clara County, California, based onthe maximum trip reduction potential of the given projectelements. Table 29 summarizes the accepted maximum tripreduction potential for various project elements.Table 29: Santa Clara Valley Transportation Authority Trip ReductionsProject ElementMixed-use Development ProjectMaximum TripReductionPotentialWith housing and retail components 13%With hotel and retail components 10%With housing and employment 3%With employment and employee-serving retail 3%Location within 2,000-foot walk of a transit facilityHousing near Light Rail or Caltrain station 9%Housing near a major bus stop (≥10 min service) 2%Employment near Light Rail or Caltrain station 3%Employment near a major bus stop (≥10 min service) 2%Effective TDM ProgramFinancial Incentives 5%Project-funded dedicated shuttle, not combined withemploymentProject-funded dedicated shuttle, combined withemploymentPartially-funded multi-site shuttle, near Light Rail orCaltrain station3%1.5%2%Source: Santa Clara Valley Transportation Authority – October 200897Analogies
City of Berkeley, California Employee TDM ProgramsThe City has implemented a number of programs benefitingits 1,500 employees. As a result, single-occupant vehicle usehas dropped 25% (from 47 percent to 36 percent) between2001 and 2005. These programs include:• Annual EcoPasses are purchased for all employees, at acost of $60 each ($84,000 total);• Pre-Tax Commute Benefits;• Fleet of ten bicycles for employee use;• Two secure bike parking locations at City Hall;• Shower facilities available through deeply discountedYMCA membership (adjacent to City Hall);• Carpool/vanpool parking is discounted 70%;• City vehicle fleet has been partially replaced with carsharevehicles, saving $87,000 - $130,000 annually; and• Guaranteed ride home program.City of Boulder and the University of ColoradoThe City of Boulder's 1996 Transportation Master Plan soughtto hold traffic to 1994 levels and reduce single-occupantvehicle mode share to 25 percent. As a result of the Plan, thenumber of trips on transit doubled between 1990 and 2000;17.4 percent of work trips shifted from SOV to bike (10.6percent) and transit (5.8 percent); and transit pass holdersjumped from 4,000 in 1994 to 60,000 in 2001. The followingstrategies have been implemented in conjunction with thePlan:• A "Community Transit Network" of small buses hasbeen developed with identity and amenities shaped withcommunity input and direction;• University of Colorado provides transit passes for 29,000students and 6,000 employees (students pay a mandatoryfee, while staff passes paid through parking revenues,general fund and head tax);• 65,000 people have access to a transit pass;• City matches 25 percent of the cost of bus passes forneighborhood residents, who cover the balance throughvoluntary contributions or through a General ImprovementDistrict (GID). With a GID, all residents are eligible forpasses, which are paid for through annual property taxassessments;• Developers of new residential subdivisions are requiredto buy each household three years' worth of unlimitedtransit passes. After the third year, residents pay to HOAor through rent to continue;• Downtown parking revenues pay for marketing of businessarea, maintenance of pedestrian area and for employeetransit passes;• Bike routes, paths and lanes have been added; bikeactuatedand grade-separated crossings have beenimplemented; bike racks have been installed on all buses;and CU has a free bicycle check-out program; and• A "safe ride home" service is funded with $2 of each $50transit pass.Analogies98