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 passengers and 

30 vehicles.1 Although the vessel is designed to carry vehicles, vehicles are not carried 

by the vessels 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 

gangways provided at each terminal allow pedestrians to board the ferry at the end of 

the vessel which is facing the terminal (two other gangways service entry points at the 

end of the second deck). Along the center line of the vessel, two lanes are provided 

for vehicle parking. Along each side of the vessel, two enclosed spaces separated by 

a double leaf fire door (magnetically held in the open 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 

elevators

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 elevators 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 

gangways 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 double leaf fire doors located near 

the sides of the vessel. Interior seating is provided in both halves, with a men’s and 

women’s toilet room provided in one half and a snack bar provided in the other half. 

Four stairs and two elevators starting from the main 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 enclosed 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 half contains the men’s and women’s toilet rooms 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 feet 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 by 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.
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Figure 4. Fourth Deck – Original Design

Methodology

A representative of the Access Board reviewed the original designs of the vessel with a 

representative3of the ferry to identify passenger features that would not meet the 2006 

draft passenger vessel accessibility guidelines4. The ferry representative proposed new

designs for the identified features so as to meet the draft guidelines and estimated how 

much the redesigned 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 accessibility guidelines. The 2006 costs recorded in the 2008 

draft of the study (available on the Board’s website) that applied to the proposed 

guidelines were multiplied by 1.1948

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 cost 

approximately $50 million to $55 million to construct a similar vessel in 2006, 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. Automatic 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 years.

 

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.

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1.194773214
4

Actions taken on features in the original vessel designs 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 have significant impacts, or 3) 

have other outcomes which should be noted. 

An action is identified as having a significant impact where the redesign 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 as incurring an additional cost 

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 Have Significant Impacts

1. Accessible Means 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 vessel 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, another 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 features are expected to have protected waiting areas6(PWAs) at their 

entries, unless the entries are open to the weather or the passenger vessel is protected by

an automatic sprinkler system. Advisory V207.1. However, the AMOE provisions 

establish no technical requirements for AMOE stairs and no other provisions apply to 

 

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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 deck 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. Protected areas should be equipped with an audible and 

visible two-way communication system that connects the bridge of the vessel or other space where 

emergency actions are directed. Advisory V207.1.
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non-pool stairs, except the protruding object requirements for passenger circulation paths 

(see V204).

The ferry representative proposed in the new designs 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 power7. The 

ferry representative evaluated whether to add six PWAs at the elevators (one at each 

elevator on decks two through four) to the new designs or to provide an automatic 

sprinkler system in the ferry to avoid needing PWAs. Although the sprinkler system was 

about $46,600 more expensive than the PWA option, the ferry representative decided for 

reasons related to passenger movement in emergencies and the impact on seating areas to 

propose that the new designs have an automatic sprinkler system 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 Impacts

2. Exterior Doors with Required Coamings

On the main deck, four entry points are provided (two at each end of the vessel). Beyond 

these entry points, to enter the enclosed seating spaces which are located on the sides of 

the vessel, four double leaf manually operated hinged doors are provided (one at each end 

of the two enclosed sides of the main deck). The USCG 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. These 

weathertight doors seal against the ramp surfaces. The proposed guidelines require all 

four doors to be accessible because the doors are part of required accessible 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 ferry

representative indicated they would make the doors automatic which is estimated to 

increase the cost of the new vessel by $95,600 (about $24,000 per door).

The ferry representative expressed concerns that the USCG may not allow automatic 

doors at these 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. V207.1
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insufficient industry input was received about using this option, no adjustments 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 deck four additional entry points are provided (two at each end of the vessel). 

From these entry points, 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 coamings, the proposed guidelines require in the new designs that at least one 

door8at each end of the vessel to be accessible. V206.2.2, V206.4, and Advisory

V207.1. Accessible doors features would include thresholds which do not exceed 1⁄2 

inch9and having maneuvering clearances10 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 of the vessel and would install 

drain troughs and related drainage piping. Because of the reduced threshold height, this 

drainage system is needed to keep rainwater from entering the vessel due to the 

movement of the vessel. This action is estimated to increase 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 (V404.2.911), the ferry representative proposed to make 

the two sliding doors automatic at a cost increase of $47,800 (about $24,000 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 by one single 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 by two double leaf hinged doors 

and two double leaf sliding doors with high thresholds 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 designs that at least one12 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 V404.

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 watertight doors to be five pounds maximum, except on sailing vessels. 

The case study assumes these sliding doors are fire doors and the five pound maximum 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. 
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The ferry representative proposed in the new designs to reduce 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 system would increase the cost 

of the new vessel by $70,500 (about $17,600 per door). As the case study assumes these 

doors are not fire doors, the proposed guidelines has no force opening requirements 

which apply 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 thresholds that are ramped on both sides. The proposed guidelines require one13

door to each narrow outside seating area to be accessible. V206.2 and Advisory V207.1. 

The ferry representative proposed in the new designs 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 (V404.2.914) and are assumed not to be fire doors, the ferry representative proposed 

to make the two sliding doors automatic at a cost increase of $47,800 (about $24,000 per 

door). Therefore, the total cost increase for these two doors is $83,000.

The ferry representative expressed concerns that the USCG may not allow automatic 

doors at these 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.

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 deck (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 proposed in the new designs to reduce the thresholds to comply

with the proposed guidelines and use different gasket material to limit passage of smoke 

and flames

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. 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 of 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 requirements to limit passage of smoke and flames.
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minimum allowed by the USCG16, and the doors would not be required to be automatic. 

V404.2.9.1. 

5. Emergency Communications17

The vessel has an installed public address system that is assumed to provide emergency

information to passengers. Therefore, the propose guidelines require a vessel-wide 

assistive listening system to be provided serving all passenger areas. V219.2.2. A FM 

(frequency modulation) assistive listening system serving all passenger areas is estimated 

to increase the cost18 of the new vessel by $18,900. 

Other Outcomes

6. Transportation Seating

General Seating - There are approximately 2100 fixed transportation seats 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. V222.3. The ferry representative proposed to add 17 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 658 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 

requirement 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 internal passenger areas which are activated when 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. Most passenger areas have fixed seats and 

would 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 allows wheelchair spaces to be dispersed in groups of two that could result in not 

every seating area having a wheelchair space.
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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 other 

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 dispersal20 requirement for wheelchair spaces, 

the proposed guidelines require one wheelchair 

space with knee and toe clearance to be provided at 

a table/counter in this seating area. V222.3.3. The 

ferry representative proposed in the new designs to

 

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

remove 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 Facilities

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 accessible. 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, Fuel Consumption, and Vessel Stability

The ferry has two 370 KW generators that have sufficient excess capacity 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 

is included in the automatic door cost estimates above, and the original designs already 

had the elevators connected to the emergency generator. The ferry representative 

estimates the proposed designs, 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 impact of the proposed guidelines on the passenger 

boarding system 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 vessel 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 be replaced every

three to five years. The construction cost estimates are summarized below.
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4,400 Passenger/Vehicle Ferry 2006 Estimate 2011 Estimate

(average/rounded)

Construction Cost (original vessel) $50M – $55M $62.7M

Emergency Communications 18,900

Main Deck - 4 Automatic Doors at Exterior 

“Coaming” Doors

80,000 95,600

2nd (Saloon) Deck – 2 Automatic Exterior 

Sliding Doors and Drainage Systems

69,500 73,400

3rd (Bridge) Deck – Drainage Systems for 4 

Exterior Doors

59,000 70,500

4

th (Hurricane) Deck – 2 Automatic Exterior 

Sliding Doors and Drainage Systems

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 

system)

343,000 409,800

Total (% increase) $722,600 $786,600 

(1.3%)
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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 study, 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. 

As insufficient industry input was received about using this option in this situation, no 

adjustments were made to the case study and no decisions were made regarding any cost 

savings by using this option in a new vessel designs.