1 

### 4,400 Pax Vehicle **Ferry Case**  **Study (Public Entity)**  **June 25, 2013**


### Introduction The ferry was placed into service in 2005 and is designed to carry 4 ,400 passenger s and 30 vehicle s. 1 Although the vessel is designed to carry vehicles, vehicles are not carried by the vessel s of this class at this time , but the vehicle parking areas still exist and have not been used for other purposes. The vessel’s service speed is 16 knots. The ferry has four passenger decks.

 Main Deck

– The main deck is approximately 310 feet long and 70 feet wide. The main deck has four pedestrian entry points, two at each end of the deck. Two gangway s provided at each terminal allow p edestrians to board the ferry at the end of the vessel which is facing the terminal (two other gang way s service entry points at the end of the second deck )

. Along the center line of the vessel, two lanes are provided for vehicle parking

. A long each side of the vessel, two enclosed space s separated b y a double leaf fire door **(** magnetically held in the o pen position ) contain passenger seating areas

. Four stairs (one in each enclosed space) which are located near the ends of the vessel connect the main deck to decks two and three . In addition, two elevator s 2 (one on each side of the vessel located near the middle of the vessel ) connect the main deck with decks two through four

.

**Figure 1. Main**  **Deck**

**– Original Design** 

1 The 30 vehicle capacity is based on a car length of 16 feet 6 inches and width of 6 feet 6 inches. 2 The ferry representative reported that the two ele vators on the vessel comply with Table V407.4.1 (first row).2

 Second Deck **(** Saloon Deck**)**

– The second deck is approximately 284 feet long and 70 feet wide. The second deck has four entry points, two at each end of the deck. Two gangway s provided at each terminal connect the entry points at one end of the ferry

. Except at the ends where the entry points are located, the deck is enclosed and is divided in half by

a fire barrier equipped with two doub le leaf fire doors located near the sides of the vessel. Interior seating is provided in both hal ves , with a men’s and women’s toilet room provide d in one half and a snack bar provided in the other half. Four stairs and two elevators starting from the ma in deck connect the second deck to the third deck with the elevators continuing on to the fourth deck

.

**Figure 2. Second Deck** 

**– Original Design** 

 Third Deck **(** Bridge Deck**)**

– The third deck is approximately 264 feet long and 70 feet wide. The deck is encl osed except for two small outside seating areas at the ends of the deck and two narrow outside seating areas along the sides

. Like the second deck, the enclosed part of the deck is divided in half by a fire barrier with two double leaf fire doors. One ha lf contains the men’s and women’s toilet r ooms and seating, and the other half contains only seating. Four stairs from the second deck provide passenger circulation to the third deck. Four other stairs provide further passenger circulation to the fourth deck. The two elevators starting at the main deck also service the third deck and continue on to the fourth deck

.

**Figure 3**  **. Third**  **Deck**

**– Original Design** 

 Fourth Deck **(** Hurricane Deck**)**

– The fourth deck is approximately 251 fe et long and 70 feet wide. Only

the center part of the deck is open to passengers. The enclosed passenger portion of the deck is divided in half b y a fire barrier with two single leaf fire doors. Seating is provided in both halves. Along the sides of the enclosed passenger part of the deck, two narrow outside seating areas are provided. Four stairs and two elevators service the enclosed passenger parts of this deck.3 **Figure 4**  **. Fourth**  **Deck**

**– Original Design** 



### M **ethodology** A representative of the Access Board reviewed the orig inal design s of the vessel with a representative 3 of the ferry to identify passenger features that would not meet the 2006 draft passenger vessel accessibility guidelines 4

. The ferry representative proposed new designs f or the identified features so as to meet the draft guidelines and estimated how much the re design ed features would add to the vessel’s construction cost , if constructed in 2006

. The Access Board has updated the study to represent the requirements in the proposed passenger vessel accessibil ity guidelines. The 2006 costs recorded in the 2008 draft of the stud y (available on the Board’s website) that applied to the proposed guidelines were multiplied by 1.19 4 8 5 and rounded to produce 2011 values. The ferry representative has not reviewed the updates. The ferry representative reported that the cost to construct the vessel was approximately $ 40 million in 2001 dollars . The ferry representative estimated it would c ost approximately $50 million to $55 million to construct a similar vessel in 20 06 , updated to $59.7 million to $65.7 million in 2011 (average of $62.7 million)

. The ferry representative estimated that the proposed designs to meet the proposed guidelines would add $ 786,600 to the vessel’s (updated) construction costs, or an increase of approximately 1. 3 percent. The new designs would also lead to the loss of three fixed seats in the snack bar area, and another 47 fixed seats in the other seating areas of the 2,100 seat vessel which represents a fixed seating loss of 2.4 percent. Aut omatic doors were provided at eight exterior locations. Although the US flag passenger fleet has had little exposure to the use of automatic doors, each automatic door is estimated to incur an annual maintenance cost of $ 1,100 to $ 1,300 and may need to be replaced every three to five y ears.

3 Although the report notes decisions made by the ferry representative, it should be noted that the Access Board hired a consultant (acceptable to the ferry representative) to provide most impact information (including cost estimates) which was used by the ferry representative in the case study decision making process. 4 2006 draft guidelines, as amended by Board action at the 2007 and April 2008 meetings. 5 1.1947732144

Actions taken on features in the original vessel design s to create designs meeting the draft guidelines for a new vessel are discussed below , as updated to reflect the requirements of the proposed guidelines

. The case study sought to identify actions that : 1) have significant impacts , 2) incurred additional costs but did not hav e significant impacts , or 3) have other outcomes which should be noted

. An action is identified as having a significant impact where the red esign of the feature would add more than 0.5 percent to vessel’s construction costs; would substantially reduce the vessel’s usable space or necessitate an increase in the vessel’s size; or would present major operational issues. An action is identified a s incurring an additional co st but not having a significant impact where a specific cost can be attributed to the redesign of a feature but it does not meet the criteria for a significant impact.



### Actions **That Hav**  **e Significant**  **Impact s**  **1. Accessible Me**  **ans of Escape** Except for the outside seating areas on the third and fourth decks, the ferry representative indicated the US Coast Guard (USCG) requires that each space must have two means of escape (MOE) to the areas of refuge located at the ends of the v essel on the main and second decks. Per the evacuation plan, in an emergency , the vessel would go to the nearest terminal and passengers would disembark via the entry points on the main and second deck. Where the vessel could not return to a terminal, an other ferry would come to offload passengers from the entry points located on the main deck. Based on this evacuation plan and the USCG requirements, the proposed guidelines require two accessible means of escape (AMOE) from the upper decks to the second deck and main deck , and one AMOE on the second deck and two AMOE to each end of the vessel to provide a substantially

equivalent level of protection as that provided by the MOE

. V207. 1 On the main deck, two AMOE are needed to each end due to the configuration of the two seating cabins. The proposed guidelines permit stairs, elevators, and platform lifts to be components in an AMOE. Such feature s are expected to have protected waiting areas 6 (PWAs) at their entries, unless the entries are open to the we ather or the passenger vessel is protected by an automatic sprinkler s ystem. Advisory V207.1. However, the AMOE provisions establish no technical requirements for AMOE stairs and no other provisions apply to

6 A protected waiting area is an area protected from fire and smoke where persons with disabilities can wait at AMOE components that need crew assistance to use, such as stairs and crew operated elevators. A protected waiting area should be sized to accommodate at least one clear d eck space (see V305) for each occupant to be served. Building codes typically require one such space per 200 occupants based on the occupant load of all accessible spaces to be served by the protected area. The clear deck spaces should not reduce the required width of any means of escape traveling through the area. Where more than two clear deck spaces are provided at a single location, each space should be accessible without necessitating travel through more than one adjoining clear deck space. Protect ed areas should be equipped with an audible and visible two

- way communication system that connects the bridge of the vessel or other space where em ergency actions are directed. Advisory V207.1.5

non - pool stair s , except the protruding object requirements for passenger circulation paths (see V204). The ferry representative proposed in the new design s that the two elevators (which have a size complying with the proposed guidelines) would be used as components in the two AMOE from the second, third and fourth decks down to the main deck , instead of using stairs . In the existing vessel, the elevators are equipped with emergency power 7 . The ferry representative evaluated whether to add six PWA s at the elevators (one at each elevator on decks two through four) to the new designs or to provide an automatic sprinkler sy stem in the ferry to avoid needing PWA s . Although the sprinkler s ys tem was about $ 46,600 more expensive than the PWA option , the ferry representative decided for reasons related to p assenger movement in emergencies and the impact on seating areas to propose that the new design s have an automatic sprinkler sy stem complying with NFPA 13. This action increased the cost of the new vessel by $ 409,800

. 

### Actions **That Incur Additional Costs But Do Not Have Significant**  **Impact s**  **2 .**  **Exterior Door**  **s with Required Coamings**  On the main deck, four entry points are provided (two at each end of the vessel). Be yond these entry

points, to enter the enclosed seating spaces which are located on the side s of the vessel , four double leaf manuall y operated hinged doors are provided (one at each end of the two enclosed sides of the main deck ) . The US CG requires that these doors be provided with coamings ( raised thresholds ) three inches high. On each side of the doors, ramps with slopes that do not exceed 1:12 connect the top of the coamings. The se weathertight doors seal against the ramp surface s . T he proposed guidelines require all four doors to be accessible because the doors are part of required acces sible routes and accessible means of escape

. V206.2.2, V206.3 , V206.4 , and Advisory V207

. 1. The proposed guidelines allow doors required to have coamings to have ramps on both sides of the coamings provided the doors are automatic. V404.2.5 .2. 2

. The f erry representative indicated they would make the doors automatic which is estimated to increase the cost of the new vessel by $ 95,600 ( about $ 2 4 ,0 00 per door)

. The ferry representative expressed concerns that the US CG may not allow automatic doors at the se locations. Based on an informal review of the case study by the Marine Safety Center of the USCG, the USCG noted no problems with use of automatic doors at these locations. In the update to the study , an attachment was added to highlight the option of providing single ramp access with manually operated doors at the door coamings on the main deck, instead of providing double ramp access with automatic doors as described above. As

7 The proposed guidelines permit an elevator to be used as a component in an accessible means of escape. To ensure an elevator used as an AMOE component provides a substantially equivalent level of protection from hazards for passengers (who cannot independently use stairs) as the MOE provides to other passengers, the elevator would be expected to be equipped with emergency power. V207.16

insufficient industry

input was received about using this option, no adju stments were made to the case study

. **3 .**  **Other Exterior Doors** Second (Saloon ) Deck

- In addition to the four entry points on the main deck, on the Saloon d eck four additional entry points are provided (two at each end of the vessel). From these entry

po ints, access into the vessel is through 10 double leaf sliding doors (five at each end of the vessel) . These sliding doors are provided with high thresholds which are ramped on both sides. As none of the sliding doors are required by the USCG to have co amings, the proposed guidelines require in the new design s that at least one door 8 at each end of the vessel to be accessible. V206.2.2, V206.4, and Advisory V207.1. Accessible doors features would include threshold s which do not exceed 1⁄2 inch 9 and hav in g maneuvering clearances 10 on both sides which do not exceed 1:48 in any direction

. V404.2.4.4 and V404.2.5.1. The ferry representative indicated in a new design, they would propose to reduce the thresholds and remove the ramps at one door at each end o f the vessel and would install drain troughs and related drainage piping . Because of the reduced threshold height, this drainage s ys tem is needed to keep rainwater from entering the vessel due to the movement of the vessel. This action is estimated to in crease the cost of a new vessel by $ 35,200 ( at $ 17,600 per door). In addition, because the sliding doors require a force of more than five pounds to open (V404.2.9 11 ), the ferry representative proposed to make the two sliding doors automatic at a cost incr ease of $ 47,800 ( about $ 2 4 ,0 00 per door). Therefore, the total cost increase for these two doors is $ 83,000

. Third (Bridge) Deck

- On the third deck, a small outside seating area is provided at both ends of the vessel with each being entered b y one singl e leaf hinged door with a high threshold that is ramped on both sides. Also, along each side of the vessel a narrow outside seating area is provided with each being entered b y two double leaf hinged doors and two double leaf sliding doors with high thresh olds that are ramped on both sides. As none of the doors are required by the USCG to have coamings, the proposed guidelines require in the new design s that at least one 12 door to each outside area be accessible. V206.2.2, V206.4, and Advisory V207.1

.

8 As reported by the ferry representative, the USCG only requires one means of escape to the ends of the vessel. Therefore, V207 does not require additional doors comply with V40 4. 9 Per section V404.2.5.1 and V303, 1⁄2 inch max. beveled thresholds or 1⁄4 inch max. vertical thresholds are required. 10 Where a door is automatic and complies with V404.3.2, the maneuvering clearances are not required. 11 Section V404.2.9 requires the force to push or pull open all sliding doors (that are required to be accessible) that are not fire doors or w atertight doors to be five pounds maximum, except on sailing vessels. The case study assumes these sliding doors are fire doors and the five pound max imum was applied to the accessible sliding doors in the new designs, as worst case scenario

. 12 As reported by the ferry representative, the USCG only requires one means of escape from each narrow outside area. Therefore, V207.1 does not require a second door to each narrow area to comply with V404 as part of a second accessible means of escape.7

T he ferry representative proposed in the new design s to r educe the thresholds and remove the ramps at four hinged doors (one at each of the four outside seating areas) and install drain troughs and related drainage piping

. This drainage s ys tem would increa se the cost of the new vessel by

$ 70,500 ( about $ 17,600 per door)

. As the case stud y assumes these doors are not fire doors, the proposed guidelines has no force opening requirements which appl y to these exterior hinged doors. V404.2.9. Fourth (Hurricane) Deck

- On the fourth deck, on each side of the vessel a narrow outside seating area is provided with each being entered by two double leaf sliding doors with high threshold s that are ramped on both sides. The proposed guidelines require one 13 door to e ach narrow outside seating area to be accessible . V206.2 and Advisory V207.1

. The ferry representative proposed in the new design s to reduce the thresholds and remove the ramps , and install drain troughs and drainage piping , at one sliding door on each side

. This action is estimated to increase the cost of the new vessel by $ 35,200 ( at $ 17,600 per door). In addition, because the sliding doors require a force of more than five pounds to open (V404.2.9 14 ) and are assumed not to be fire doors , the ferry r epresentative proposed to make the two sliding doors automatic at a cost increase of $ 47,800 ( about $ 2 4 ,000 per door). Therefore, the total cost increase for these two doors is $ 83,000

. The ferry representative expressed concerns that the USCG may not al low automatic doors at these locations. Based on an informal review of the case study b y the Marine Safety Center of the USCG, the USCG noted no problems with use of automatic doors at these locations. **4 .**  **Interior Doors** On all four passenger decks, the eight fire doors located amidships ( magnetically held in the open position) have thresholds higher than 1⁄2 inch to limit the passage of smoke and flame when the doors are shut

. Each door is a double leaf hinged door, except for the doors on the fourth dec k (Hurricane Deck) which are single leaf hinged doors. As each functions either as part of an accessible route or an accessible means of escape , the proposed guidelines require each to be accessible . V206 and Advisory V207. 1. The ferry representative p roposed in the new design s to reduce the threshold s to comply with the proposed guidelines and use different gasket material to limit passage of smoke and flame s 15

. This action at the eight doors is estimated to increase the cost of a new vessel by $ 25,800 ( about $ 3,200 per door)

. The case study assumes that the force necessary to open these fire doors with the added gasket would comply with the

13 As reported by the ferry representative, the USCG only requires one means of escape from these seating areas. Therefore, V207 does not require an additional door to comply with V404. 14 Section V404.2.9 requires the force to push or pull open all sliding doors (that are required to be accessible) to be five pounds maximum, except on sailing vessels and at fire and watertight doors. It is assumed for purposes o f this case study that the administrative authority did not authorize a greater force maximum, per V404.2.9.2 Exception. 15 The ferry representative was unable to get an answer from the US Coast Guard as to whether the gasket material would meet their requi rem ents to limit passage of smoke and flames.8

minimum allowed by

the US CG 16 , and the doors would not be required to be automatic. V404.2.9.1. **5. Emergency Communications**  **17**
T he vessel has an installed public address s ys tem that is assumed to provide emergency information to passengers. Therefore, the propose guidelines require a vessel

- wide assistive listening sy stem to be provided serving all passenger are as. V219.2.2. A FM (frequency

modulation) assistive listening sy stem serving all passenger areas is estimated to increase the cost 18 of the new vessel by $ 18,900

.


### O **ther O**  **utcomes 6**  **. Transportation**  **Seating** General Seating

- There are approximately 21 00 fixed transportation seat s on the ferry as shown below which includes 20 seats in the snack bar area (discussed further below )

. Where 2001 to 2150 seats are provided, the proposed guidelines require 17 wheelchair spaces dispersed throughout the seating areas , including one at a table in the snack bar area . V22 2.3

. The ferry

representative proposed to add 1 7 wheelchair spaces as shown below , resulting in the net loss of 50 fixed seats (including 3 at the snack bar) 19

. Deck Original Seat # # of Areas # of Wheelchair Spaces Main 648 Interior 4 4 Interior Second 6 5 8 Interior 3 4 Interior (one at table in snack bar) Third 400 Interior

182 Exterior 2

4 2 Interior 4 Exterior Fourth 168 Interior

44 Exterior 1

2 1 Interior 2 Exterior Total 2100 16 17

16 The 2008 draft of the study required the fire doors to be automatic. The proposed guidelines allows the administrative authority (in this vessel’s situation, the US Coast Guard) to set the force opening requ irement for fire doors and watertight doors. The updated case study assumes the administrative authority would allow a force that is high enough to allow the doors to remain manually operated. 17 It was reported that the vessel has visual alarms in interna l passenger areas which are activated w hen the audible general emergency alarm sounds. The study assumes such visual alarms provide effective coverage of external seating areas. This footnote was added as part of the updated study. 18 The requirements of V219.2.2 are new to the updated study and the ferry representative has not reviewed the results. The vessel

- wide assistive listening system (ALS) applies only to passenger areas, not crew only areas. V203.2. The original vessel has no assembly areas. M ost passenger areas have fixed seats and wo uld be classified as transportation seating areas. Based on 2050 fixed passenger seats in the ferry, per V219.3, the number of receivers required is 56. Therefore, an ALS with 56 quality receivers with headsets/neckloops ($15,900), one FM transmitter with related support material ($1,400), and with engineering, installation, and other expenses ($1,600) is estimated to cost $18,900. 19 V222.3.3 Exception allow s wheelchair spaces to be dispersed in groups of two that could result in not every seating area having a wheelchair space.9 **Figure 5. Examples of Seating Changes** This action to provide wheelchair spaces is estimated by

the ferry representative to have a minimal impact on the seating needs of the passengers and has an insignificant cost impact on the new vessel

. Snack Bar Area

- The snack bar area on the second deck has 20 fixed seats . Nine of the 20 seats are at tables, with the two corner tables each having two adjacent seats and five other seats along a table which faces the snack bar service counter . No othe r tables or counters are provided in the passenger areas of the vessel. Because the seating in this area is classified as transportation seating and because of the dispersal 20 requirement for wheelchair spaces, the proposed guidelines require one wheelchai r space with knee and toe clearance to be provided at a table /counter in this seating area

. V22 2.3.3

. The ferry representative proposed in the new design s to

20 V226.1 would also ensure one wheelchair space at a table/counter in the snack bar.10

re move three seats at the side of the snack bar area to provide one wheelchair space (of the 17 required) at a table . This action is estimated by the ferry representative to have a minimal impact on snack bar operations due to the net loss of three seats and has an insignificant impact on the cost of the new vessel

. **6 .**  **Life Jacket Storage Faciliti es**  Each deck has life jacket storage lockers of different sizes holding the two types of life jackets, adult and children. For purposes of this case study , each life jacket storage locker was required to be accessib le

. V225 and V807. The ferry representative proposed to provide complying doors at the lockers in the new designs . This action is estimated to have an insignificant cost impact on the new vessel

. **7 .**  **Electrical Power,**  **Fu el Consumption,**  **and Vessel Stability** The ferry has two 370 KW generato rs that have sufficient excess capacit y to supply the automatic doors

. The ferry also has one 300 KW emergency generator that has sufficient excess capacity

to power the automatic doors when used as a component in an accessible means of escape. The cost to connect the automatic doors with the emergency generator i s included in the automatic door cost estimates above , and the original design s alread y had the elevators connected to the emergency generator. T he ferry

representative e stimates the proposed de sign s , to meet the proposed guidelines , would have a minimal impact ( at an insignificant cost ) on the vessel ’s electrical power and fuel consumption , and no impact on its stability

. **8 .**  **Passenger Boarding System** The case study

did not evaluate the impa ct of the proposed guidelines on the passenger boarding s ys tem used at the two terminals to embark and disembark passengers from the ferry . 

### Summary The ferry representative estimated the cost for constructing a similar vessel based on the original designs to be approximately $50 million to $ 55 million in 2006 dollars , updated to $59.7 million to $65.7 million in 2011 dollars (average of $62.7 million) . The ferry representative estimated that the proposed designs to meet the proposed guidelines would add $ 786,600 to the vessel’s construction costs, or an increase of approximately 1

. 3 percent

. The new designs would also lead to the loss of three fixed seats in the snack bar area, and another 47 fixed seats in the other seating areas of the 2,100 seat vess el which represents a fixed seating loss of 2.4 percent. Although the US flag passenger fleet has had little exposure to the use of automatic doors, each automatic door is estimated to incur an annual maintenance cost of $ 1,100 to $ 1,300 and may need to b e replaced every three to five ye ars. The construction cost estimates are summarized below

.11

**4,400 Pa ssenger/** **Vehicle Ferry** 2006 Estimate 2011 Estimate (average/rounded) Construction Cost (original vessel) $50M

– $55M $ 62.7 M Emergency

Communications 18 ,900 Main Deck

- 4 Automatic Doors at Exterior “Coaming” Doors 80,000 95,600 2 nd (Saloon) Deck

– 2 Automatic Exterior Sliding Doors and Drainage Sy stems 69,500 73,400 3 rd (Bridge) Deck

– Drainage Sy stems for 4 Exterior Doors 59,000 70,500 4 th (Hurrican e) Deck

– 2 Automatic Exterior Sliding Doors and Drainage Sy stems 69,500 83,000 (revision) 8 Automatic Interior Fire Doors 80,000 N/A 8 Interior Fire Doors

– Gaskets 21,600 25,800 Accessible Means of Escape (automatic sprinkler sy stem) 343,000 409,800 **Total (% increase) $722,600**  **$786,600 (1.**  **3 %)** 12 

### Attachment **4,400 Pax Vehicle Ferry Case Study** In the case study , to travel over the US Coast Guard required 3 inch high coamings at the four exterior doors on the main deck, the exterior doors where made automatic ($24,000 per door) to allow the coamings to have a ramp on each side. V404.2.5.2.2. In industry

interviews on the case stud y, concern was expressed about requiring the doors in this situation to be automatic. Therefore, the figure below presents another access option allowed by

the proposed guidelines for crossing the coaming, single ramp access. V404.2.5.2.1. A s insufficient industry

input was received about using this option in this situation , no adjustments were made to the case study an d no decisions were made regarding an y cost savings b y using this option in a new vessel design s .