Staff Report. Re: National Park Service Ferry Landing Facilities at Piers 31, 31½ and 33 Joint Meeting with BCDC Design Review Board

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1 Port of San Francisco Waterfront Design Advisory Committee Agenda Item No. 2 Meeting Date: January 22, 2018 Staff Report To: From: Waterfront Design Advisory Committee: Laura Crescimano Jeff Joslin Marsha Maytum Kathrin Moore David Winslow Dan Hodapp and Ming Yeung Re: National Park Service Ferry Landing Facilities at Piers 31, 31½ and 33 Joint Meeting with BCDC Design Review Board Project Proponents and Property Owners National Park Service ( NPS ), Golden Gate National Parks Conservancy ( Conservancy ), and Port of San Francisco ( Port, Property Owner) Prior Reviews and Management This is the second review of the proposed Project by NPS, the Conservancy, and the Port. The first review was on August 7, This review focuses on the Project proponents responses to comments from the first review. Project Description The project site is located at Piers 31, 31½, and 33, on the San Francisco waterfront, near the intersection of Bay Street, Francisco Street, and The Embarcadero. The site consists of the pier deck located between Pier 31 and Pier 33 (known as Pier 31½) and portions of the Pier 31 and Pier 33 bulkhead and shed buildings. The project site is currently used as a terminal for a ferry service that transports passengers between San Francisco and Alcatraz Island, which is part of NPS Golden Gate National Recreation Area. The terminal includes at the Pier 31½ pier deck, a portable ticket booth, two temporary canopies, passenger queuing areas, interpretive exhibits, limited parking for NPS vehicles, benches, and water stations. A gangway and one float accommodate two berthed ferries from Pier 31½. The Pier 33 shed building includes a restroom and operational space, and within the Pier 33 bulkhead building is the privately-operated Alcatraz Café and Grill. The Pier 31 bulkhead building is vacant. The project site is within the Port of San Francisco Embarcadero Historic District. Visitors may reach the project site via public transit (bus, streetcar, or BART), taxi and rideshare, bicycle, personal vehicle, or walking. There is an ADA-accessible tour bus and drop-off area along The Embarcadero adjacent to the Pier 33 bulkhead building. A 2012 Visitor Flow Survey conducted by NPS found that most visitors arrive by public transportation (35 percent), walk (35 percent), or carpool (28 percent). Various paid parking lots are located in the vicinity of the project site. From The Embarcadero, visitors enter the project site between the Pier 31 and Pier 33 bulkhead buildings, approaching first the ticket booth, circulating through existing interpretive exhibits, and

2 entering a covered queuing area. A separate pre-boarding area adjacent to the gangway offers seating for passengers with disabilities. In 2016, the Pier 31½ facility served 1.76 million visitors. There were 7,007 annual ferry trips to Alcatraz Island from Pier 31½, which includes service to both Alcatraz Island and Angel Island (the Alcatraz Plus Angel Island Loop ). In addition, during peak season (June to September), the concessionaire operated 133 bay cruises from the site that were not associated with NPS operations. The number of visitors to Alcatraz Island is restricted by the NPS General Management Plan guidelines that limit seasonal service levels based, in part, on large nesting bird populations at Alcatraz Island. Ferries run from Pier 31 ½ every 30 minutes between 8:30 am and 3:30 pm, seven days a week. In addition, there are two evening departures to the island (6 pm and 6:30 pm). A typical visit to the island is approximately two hours, however visitors may remain at the island as long as they like and return on any available vessel. Although the total number of passengers per visit fluctuates throughout the day based on guest flow, the total number of visitors per scheduled departure is limited to approximately 300 passengers. Proposed Project The project would renovate an outdoor space on the Pier 31½ pier deck as well as interior space in the Pier 31 and Pier 33 bulkhead and shed buildings to provide an enhanced visitor experience in keeping with NPS practices. The project would also construct space for administrative and operational functions in the Pier 31 and Pier 33 bulkhead and shed buildings. The proposed boarding ramps and floats would support berthing of up to three ferry boats at a time. In addition to its current ferry routes, the improved terminal would provide limited ferry service for interpretive cruises of the Bay, and a new route between Pier 31½ and the Fort Baker pier (City of Sausalito). Overall, visitor demand is expected to grow in line with a general growth in tourism in the City and County of San Francisco. NPS modeling forecasts show that in 2018, 7,790 visitors could visit the primary ferry embarkation site per day, or 1.9 million visitors per year. The proposed project would remove the existing non-historic canopy structure, parking area, queuing and ticketing area, and interpretive exhibits at Pier 31½. The existing floating dock and gangway would be removed to accommodate two new floating docks and gangways. Existing uses within portions of the Pier 31 and Pier 33 bulkhead and shed buildings, including the Alcatraz Café and Grill, would cease, and the buildings would be reconfigured and renovated. All work would rehabilitate existing historic elements at the project site, consistent with the Secretary of the Interior s Standards for Rehabilitation of Historic Buildings. The following improvements are proposed: In the Bay: 1. Expanded Berthing Facilities. An existing floating dock and gangway would be replaced with two individual docking facilities, each with an ADA-accessible gangway, float, and guide piles, to berth a total of three ferry vessels. The landside of the proposed project is characterized by the Project Proponents in three zones: Civic Plaza, Embarkation, and Disembarkation (Please see exhibit Sheet 2). At the Pier 31½ pier deck: 1. Entryway and Civic Plaza. A public plaza would be created at the center of Pier 31½, extending from the sidewalk at Herb Caen Way to the edge of the pier deck, allowing for

3 Bay views that are now partially obstructed. Stepped seating would be installed at opposite corners of the plaza to provide seating and help organize site circulation. A monument sign similar in design to those found at the Exploratorium (Piers 15/17) and the cruise terminal (Pier 27) would be installed at the Embarcadero entrance. Pedestrian-scale light poles would line the perimeter of the plaza. The plaza paving would be distinct from the remainder of the deck to define the space, along with the seating and lighting elements. 2. Primary Queuing Area. A visitor information desk would be installed near the entryway to the queuing area for ticketed passengers adjacent to the Pier 33 shed building. The queuing area would be reorganized from its current configuration, and the existing canopy structure would be replaced by a concrete canopy structure. Benches and glass panels would be used in places to delineate the queuing area. The glass panels would serve as a wind break and would include opaque or semi-transparent overlays with interpretive information. 3. Secondary Queuing Area and Café. A secondary queuing area would be provided adjacent to the Pier 31 shed building at the Bay edge. This area would incorporate seating and glass panel elements as described for the primary queuing area. The secondary queuing area would primarily serve the ferry berth used for Bay cruises and proposed service to Fort Baker. An enclosed café with food stalls and seating would be built adjacent to the secondary queue. Both the secondary queuing area and the café would be covered by a single concrete canopy structure. 4. Interpretive Exhibit Area. An interpretive exhibit area, including benches, would be created at the plaza area bound by the ticket window area, the primary queuing area, and the public restrooms in the Pier 33 shed building. At the Pier 33 bulkhead and shed buildings: 5. East Façade Improvements. New ticket windows would be installed along the east façade, and the façade would be restored, including the historic windows and removal of post-1949 additions. 6. Interior Renovations. The bulkhead building interior would be renovated to accommodate exhibits, retail, and a ticket office. The second floor would be mostly demolished except for a small area to create a mezzanine level for offices and a mechanical platform. Portions of the shed would be renovated for public restrooms, storage, and site operations. At the Pier 31 bulkhead and shed buildings: 7. Interior Renovations. A café would be constructed within a portion of the bulkhead building. Portions of the shed would be renovated to include public restrooms, public bicycle parking, disabled visitor parking (3 spaces), staff and service parking (10 spaces), and site operations. Compliance with Historic Resource Standards The project is subject to review for consistency with the Secretary of the Interior's Standards for the Treatment of Historic Properties because it is within the Port of San Francisco Embarcadero Historic District, and includes alterations to Pier 31 and 33 and the adjacent marginal wharf. Piers 31, 33 and portions of the adjacent marginal wharf are contributing resources to the historic district and listed on the National Register of Historic Places. Port Commission adoption of the historic district in 2006 included policy requiring that the Secretary Standards apply to all

4 Port and Non-Port projects within the district. Because the project is also subject to environmental review pursuant to the California Environmental Quality Act (CEQA), the project sponsor retained the firm of Architectural Resources Group (ARG), Historic Preservation Consultants, who prepared an evaluation of the project for consistency with the Secretary Standards as part of the required CEQA analysis of impacts on historic resources. Leadership in Energy and Environmental Design (LEED) Compliance NPS is seeking LEED platinum certification for the work under the system established by the US Green Building Council. Environmental Review A final Environmental Impact Statement was released by NPS in January 2017, and a July 2016 Memorandum of Understanding between NPS and the Port outlines lease terms for a future ferry concessioner and the Conservancy. CEQA review is underway and a Mitigated Negative Declaration (MND) was released on December 6, 2017 for public review and the comment period concluded on January 5, The final document is anticipated to be completed in early Prior Review Comments and Responses The WDAC and the Bay Conservation and Development Commission s Design Review Board (DRB) jointly reviewed the proposed project on August 7, At that meeting the DRB and WDAC reviewed the previous iteration of the proposed Project and provided a detailed set of comments summarized below. The project proponents have considered and incorporated these comments. The table below provides a narrative description of how the project has changed to reflect major comments from the DRB and WDAC s feedback from the August meeting. For a complete list of comments and responses see Exhibit sheet 32. DRB and WDAC Comments Comment Comment # per Exhibit sheet 32 5 The buildings along the Embarcadero orient to the tangent of the roadway. Consider a different geometry than imposing a rectangle in the middle, such as a fan shape that is more appropriate to the context and which would allow a more open interpretation of the view. The parti is appreciated, but a consideration of the plaza shape would be appreciated. 15 Concerned about the "rock" icon. May not be understood and appear odd. Appropriateness of only placing one rock on the site. Response Other geometries were considered and eliminated earlier in the design process. The current geometry situates the plaza perpendicular to the dominant tangent of the Embarcadero and in relationship to the adjacent finger piers and historic shed buildings. Please see sheet 24 for more detail. The use of the rock has been abandoned. 18 The rock will invite children and others to climb on it. Consider incorporating this further into the overall design. 17 The same design experience of the plaza should carry through to the in- The NPS and Port will require the future ferry service concessioner to design the ramps, docks,

5 water connections to the ferries. 19 Are the ferry facilities part of the project? (not described in the presentation) 17 Encourage materials and other clues to draw visitors to the water's edge. and floats to meet performance specifications, subject to Port review and approval. This approach will enable fair competition among parties interested in the future ferry concession that may have differing vessels and operating needs. The railings are designed with open fields to allow visitors to view the water and will incorporate interpretive elements that will attract visitors interest. Please see sheets 6 and 28 for more detailed information on integration of interpretation and selection of materials. Also the large fixed seating feature in the Civic Plaza draws visitors to the water s edge and encourages them to linger. Please see sheet 16, 23, and 24 for more details and illustrations. 19 Think more about how the empty spaces could be used. Create a balance that is perhaps temporary and adaptable between the current cluttered location and the proposed design, which is perhaps too sparse. 20 How could the central empty space be used, think about how the site could provide more furnishings. 23 Consider another material besides concrete for the shear walls. 24 Are there other ways to accomplish the job of the shear walls such as bracing 26 How will the wayfinding for the two different ferry services be defined? 28 The facades on Piers 31 and 33 can help amplify the sense of arrival. Provide further views and narrative to what is this experience. 29 Anticipate what modifications to the terminal may be necessary over time because future modifications could diminish the integrity of the overall design. 29 Think of all the future site adjustments that could occur and include them now. The central civic plaza serves as a welcome mat inviting visitors into the site and providing generous circulation for the high volume of visitors. The current design includes significant additional seating and the appropriate mix of fixed and movable site furnishings that help to activate spaces, define boundaries, and provide opportunities for plantings. Please see sheets 25-28, 31 for more details and illustrations. Other materials and methods were considered and abandoned earlier in the design process. In the current design the concrete shear walls help to define the entry to the queuing areas and the outdoor cafe. Please sheets for illustrations. Each ferry queue includes an A/V (LED) display to show intended destination and may also display interpretive information/ imagery. Please see sheets 7 and 9 for more details. Treatment of the facades is consistent with Port policy for the Embarcadero and the Secretary of Interior s Standards for Historic Properties. Please see sheets 21 and 22 for illustrations. The design team has done all that it can at this time to anticipate future site adjustments and modifications. The current design reflects a 15-year design horizon which is consistent with the next ferry service concession. Once a concessioner is selected the design will advance and may require refinements which could be accommodated due to the flexibility of the current design. The Team is dedicated to continuing to work with skillful, highlyqualified designers to ensure the same high quality of design and materials are reflected in any future refinements.

6 Committee Review of the Project The WDAC reviews Port Projects to ensure that they are consistent with policies and design criteria set forth in the Design & Access Element of the Port s Waterfront Land Use Plan. Below are policies and criteria in the Design & Access Element that apply to the proposed project. Page 31, Commercial Facilities Within and Adjacent to Public Access and Open Space - Design public access so that the user is not intimidated nor is the user s appreciation restricted by structures or incompatible uses. Allow accessory commercial activities (e.g. food and beverage services, bike or skate rentals, ferry queuing) within open space and public access areas after maintaining adequate pedestrian circulation and minimizing blockage of the waterfront edge. Allow adjacent commercial uses (e.g. restaurants) to spill out onto public access and open space areas. Clearly delineate adjacent commercial use areas from public use areas with signs, planting, fences, elevation changes, or other distinguishing characteristics. The public access areas allow visitors to reach and travel along the Bay edge. Commercial functions of the project are located inside the bulkheads and where outside they are located out of the most obvious circulation corridors and in the view shadow of the Pier 31 bulkhead. Historic Resource Policies Page 51, Preservation Preserve and adaptively reuse significant historic resources where feasible. The Project would rehabilitate the Embarcadero wall of the Pier 33 bulkhead with a new and enlarged entry to match the original, but currently covered opening. The side wall of the Pier 33 bulkhead and the wall facing the Pier 31½ wharf would be renovated with windows consistent with the original improvements. The project would also include improvements within the Pier 33 shed including installing curtain wall storefronts immediately inside the location of the roll-up doors adjacent to the wharf area. The roll-up doors would be retained in an up position and interior improvements would feature views of the shed roof and structural elements by installing glass above first level partitions. The Pier 31 bulkhead would be renovated to a single full height space exposing its structural elements. Similar to Pier Shed 33, Pier Shed 31 would receive new public restrooms, storefronts and other operational space. All improvements would be evaluated for compliance with the Secretary s Standards as described above. Page 51, Waterfront Character Require development of the waterfront to be compatible with historic resources. All proposed improvements are required to be consistent with the Secretary s Standards. The WDAC should evaluate the new queuing and ticketing canopy and other visitor amenities to determine if they are architecturally compatible with the existing historic resources while also clearly differentiated from them. Page 55, Bulkhead Buildings and Piers Sheds Retain and reuse the historic bulkhead buildings and pier sheds at Piers 9, 15, 31, 33, The Project plans include retaining and reusing Pier 33, the shed and bulkhead building, consistent with the Secretary s Standards as described above. Page 61, Industrial Maritime Character The architectural character of pier development should respect, but not mimic, the historic industrial/maritime character of the waterfront.

7 Waterfront Design Advisory Committee NPS Alcatraz Ferry Landing Facilities at Piers 31, 31½ and 33 January 22, 2018 The Pier 33 historic shed would retain its industrial/maritime character. WDAC members should evaluate the proposed new queuing and ticketing canopy structure to determine conformance with this policy. Page 61, Historic Preservation Retain and reuse the historic piers and pier sheds. The Project plans include retaining and reusing the Pier 33 shed and bulkhead building and the wharf area consistent with the Secretary s Standards as described above. Page 84, Transparency Maximize transparency of pier edges facing adjacent open spaces, to the extent compatible with maritime uses. The Pier 33 roll-up doors would be retained in an up position with new curtain wall storefronts installed to allow views from the shed to the wharf area. In addition, the new concrete canopies over the embarkation and post-tour areas are designed with gently sloping roofs to maximize views below the roofs of the historic pier sheds and of the Bay. Page 84, Open Space Pier 31½ Create a public access area within the pier (wharf) which maintains a view corridor between the Pier 31 and 33 bulkhead buildings to the Bay. The project removes the ticket structure and other site improvements currently within the central (view) corridor and places only low seating structures within this space. Also, the canopies are designed to maximize views as described above. Weather protection for diners is located in the view shadow of the Pier 31 bulkhead and an information kiosk is located in the view shadow of the Pier 33 bulkhead. P:\Planning\Waterfront Design Advisory Committee\Projects\Pier 31-5 Alcatraz\NPS Alcatraz_ doc 7