REPORT ON Relief of Traffic Congestion on Lower Market Street BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 6 Submitted Oct. 30, 1912. f-ii-VCijV S*^ ,rj4^T^ REPORT ON Relief of Traffic Congestion on Lower Market Street BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 6 Submitted Oct. 30, 1912. c- IliiiODM I'ulilisliiii}; Company I'riiitois '.S MMiiOioincry SIn'el, S. K >? c3 244572 Description of Illustrations Accompanying Report No. 6 Photograph. Typical Ferry-bound traffic conditions during evening rush hour. Note majority of pedestrians on north side of Market street and close spacing of cars on out-bound tracks; also contraction of throat at Ferry loop due to Sacramento street corner. Figure 1. Vehicle traffic count, Fourth and Market streets, showing graphically the volume and complexity of traffic How at a typical congested center; also the necessity of according Market street traffic preference over transverse traffic. Figyre 2. Study of car delay on lower Market street, representing graphically Where the congestion occurs along Market street, as shown by the slowing of the schedule. Note the hump between Sutter and McAllister streets. Minimum speed 3.2 miles per hour. Average results from 160 cars counted during evening rush hour. Figure 3. Comparative loading time of various types of cars, including the newer Oakland cars with movable guide-rail. For average group of passengers at Ferry and on Market street. Figure 4. Possible track connections for accommodating four-line traffic, showing two alternative plans for minimizing car interference: A, parallel flow plan as rec- ommended; B', counter flow plan, avoiding all branch-off crossings; C, parallel flow plan, avoiding one line of crossings. Figure 5. Typical cross-sections of street, showing possible station arrangements resulting from different trackage plans — A, B and C. Figure 6. Proposed rearrangement of safety station for accommodating two cars simultaneously, first car arriving to talve the forward berth. Step built around out- side of station for protection to waiting passengers. Seats optional. Figure 7. Car step clearance diagram, showing present variation in step clearance at safety stations along Market street, and position of proposed stations. Figure 8. Diagram indicating relative distribution of seats in the vicinity of Market street during a typical rush hour. "Width of band is proportional to number of seats passing a given point per hour. Geary and Sutter street traffic shown in heavy black for comparison. This diagram represents trackage Plan A, as recom- mended. Figure 9. Same as Figure 8, except for alternative trackage Plan B, accommodat- ing Geary and Sutter street lines on separate tracks. The relative interference of car traffic can be best appreciated by comparing these two plans. Figure 10. Proposed detailed arrangement of safety stations and stops on lower Market street, showing all possible stops for trackage Plan A, as recommended. Figure 11.* Proposed arrangement of stations and stops for alternative trackage Plan iB. Figure 12.* Present plan of stations and stops on Market street. Key Sheet. Figures 10, 11, and 12. *Originals on file. Board of Supervisors. RELIEF OF TRAFFIC CONGESTION ON LOWER MARKET STREET Preliminary Report No. 6 Board of Supervisors, City of San Francisco. Gentlemen : In furtlier considering ways and means for the immediate relief of the traffic congestion on lower Market street, I am now able to confirm my earlier recommendations expressed to you verbally, after care- ful study of these existing conditions, and I therefore submit to you at this time more detailed information in the hope that the facts conveyed may assist you in taking steps toward conserving the full capacity of this most important thoroughfare. As indicated in previous reports, it is only possible for me to transmit to you at this time recommendations on such phases of the larger problem under consideration as now appear to be unaffected by any ultimate plan of settle- ment. This report will therefore be later amplified with respect to such mat- ters as cannot at the present time be reasonably determined, for example — rerouting. Consideration has been given herein to the following subjects : Traffic regulation ; car and passenger distribution ; location and sources of transit delays ; street capacity ; loading speed ; physical obstructions ; intersecting lines ; arrangement of tracks ; safety stations ; assignment of stops, present, proposed and alternative ; shelters ; ferry loop traffic. From the above, it will be observed that this report relates to the physi- cal conditions and the operative problems only, and has no bearing whatever upon any question of franchises or litigation involving the outer tracks in lower Market street. Summary of Recommendations. Encourage and extend the worlc of the traffic force. Reserve, for heavy vehicle traffic, one street thi'ough the Mission parallel to Market street, and one or more crossing Market street through the wholesale district. Right-of-way should be determined by relative amount of pedestrian and car traffic at important intersections. Reduce car traffic crossing Market street throat during rush hours to a minimum, e. g.. First street. Average loading speed of cars must be increased. Use both ends of the cars at the Fex'ry for loading, at least, during periods of maximimi travel. Rearrange safety stations with seats elsewhere than opposite entrances and exits. Extend stations to accommodate two cars at designated points of heavy travel. 6 SAN FRANCISCO TRANSPORTATION PROBLEM. At the heaviest traffic points— Third street and Fourth street — two cars Bhoukl berth and cross together, tandem fashion. Estai)lish only "near side" stops within the business district. Distribute stops as uniformly as possible to peniiit rapid running. Eliminate as many unnecessary or special stops as may be consistent with the varying local demands of passenger travel. Out-bound stations are more necessary thau in-bound ; the latter are only required within districts where ferry travel originates. Avoid out-bound and in-bound stations located in opposite position. Designate all stopping points definitely by fixed signs. No considerable increase in the use of the inner tracks on Market street can be recommended under present conditions and routing. Use of outer tracks should be limited to preserve the proper ratio of car traffic on inner and outer tracks. Minimum headway 45 seconds. Four-track plan A, best suited to immediate needs, is recommended. Establish definite rules for stops with regard to cars passing on parallel tracks. Commence proceedings for the recession of the protruding corner of Sac- ramento and East streets. Water-front terminal will require modification to better fulfill the fluctu- ating demands of ferry traffic. Traffic Kegulation. The plans which your Police Department contem- plate putting into effect throughout the congested district under the supervision of the traffic force, I consider to be most important, and should be heartily encouraged by all your citizens as one effective means of reducing the traffic congestion on lower Market street. The appended diagram. Figure 1, repre- senting graphically the present conditions at a typical congested intersection — Fourth and Market streets — will give you an idea of the complexity of vehicle routing, with which street transportation companies have to con- tend. This will also illustrate the necessity for the institution of the trafflc signal at such intersections, in order to permit the most rapid interchange of vehicles by selective routing. I luiderstand that the installation of the selective signal will be extended to all the more congested intersections along Market and Mission streets, and to otlier important intersections, such as Kearny and Sutter streets, and I believe that such a system will result in maximum benefit, as has been proved in other large cities. I am informed that before tlie traffic force was organized, there were approximately 1,600 vehicles crossing per hour observed at Fourth and Market streets, and that fully 70 per cent of the vehicles using Market street were "empties", a great majority of which were found upon this street not by reason of necessity but purely hy preference. As a result of the operations of the traffic force, the number of vehicles intersecting at this location had been reduced to less than 1,000 by actual count in the early part of the year. The appended diagram shows 984 vehicles, exclusive of street cars. Fortunately this vehicle traffic is somewhat less during the evening rush hours than during midday, so that the increase in car traffic is a little less serious than if vehicle traffic also increased proportionately thereto. On account of the unavoidable necessity of utilizing Market and Mis- sion streets primarily for passenger travel, it will be desirable for you to LOWER MARKET STREET 7 reserve as far as possible for vehicle traffic one street parallel thereto. Howard street is the natural choice, and I am pleased to confirm the selec- tion of this street by your traffic force for this purpose. By the genera? use of Howard street as the main trucking thoroughfare from The Embarch- dero to the Mission, existing traffic conditions will be improved, as soon as the construction work being carried on upon this street is completed. The perfection of the work of the traffic force should be encouraged in every possible way by both pedestrians and teamsters. Similarly, Battery-Fifst streets and Front-Fremont streets should be re- served as far as possible as trucking thoroughfares, in order to relieve Mont- gomery street, which is extremely narrow, and Kearny-Third streets which are indispensable for passenger and car traffic. The Embarcadero should be improved and maintained in the best pos- sible condition so as to encourage its use for the heavier trucking. And in this connection, the recent action of your Board in taking steps to open Berry street deserves commendation as a means of facilitating this plan of diverting all unnecessary vehicle traffic from the congested intersections along Market and Mission streets. Car Distribution. The location of centers of congestion can be shown very accurately by observation under heavy traffic. Typical conditions now existing during the evening rush hour along Market street are represented by the appended diagram, figure 2, and the following data obtained therefrom by averaging the running time of 160 cars out-bound from the Ferry between 4:30 and 6:00 p. m. These conditions were perhaps slightly aggravated by the construction work in progress on Howard, Second, and Market streets; but, nevertheless, they are liable to occur at any time when congestion is not promptly controlled. Approxi- mate Total Speed. Cars Dis- Oiitbound Run Time Running Miles on tance Interval Time Per Hr. Street Feet Ferry to Sansome ( Sutter) .5'o9" 5'59" 5.7 17 2660 Sansome to Kearny (Third) 4'20" 10'19" 3.2 12 1210 Kearny to Stockton (Fourth) 3'11" 13'.30" 4.3 5 1210 Stockton to McAllister (Sixth) 3'41" 17'10" 6.4 8 2080 McAllister to Haight (Valencia) 4'29" 21'39" 10.7 4220 Haight to Castro and Eighteenth 7'14" 28'53" 9.4 6010 Total 17390 Average speed. Ferry to Eighteenth street, 6.86 miles per hour. In the most congested run, from Sansome to Keai'ny streets, there was an average car spacing of about 100 feet, or only about twice the length of a standard car. The crux of the problem is to be found at Lotta's Fountain — Third, Kearny and Geary streets — where both Market street tracks are crossed by the Third and Kearny lines. Here the delays occasioned by crossings are aggravated to the maximum degree by reason of the concentration of pas- nengers icithin so limited an area, especially during the evening rush hour. This has the effect of slowing the entire schedule for some distance bacJi. To a somewhat less degree the Fourth-Stockton and Market srreet crossing is 8 SAN FRANCISCO TRANSPORTATION PROBLEM. also responsible for considerable congestion, and it appears that the capacity of Market street is practically dependent upon and determined hy the con- dition of these two couyestcd crossimjs. It will be observed that the out- boimd tracks are comparatively clear as far as Sansome street, which is extremely fortunate, iii view of the proposed extension of the Sutter street service to the Ferry, thus relieving also the proposed Geary street extension to the Ferry. Car Capacity, The carrying capacity of the Market street throat has determined by numerous observations made at Market and Powell streets. These counts indicate that on the average about 125 cars pass out of the Market street throat per hour, which corresponds to about 2!) seconds aver- age headway. From computations made upon standard equipment of the same type under efficient operating conditions, I believe this headway is very close to the rmmmum that ought to be considered for the inner Market street tracks, for the reason that the several short-haul lines that use Market street have little or no opportunity to recover by fast running outside of the business district, and the beneficial results from traffic regulation and other improve- ments hereafter contemplated ought to be reserved for the improvement of the present running speed which is extremely low. This standard equipment is capable of operating most efficiently at a minimum headway of only about 22 seconds or thereabouts on a level unobstructed track, assuming a 10-second loading stop every 440 feet. (Equivalent to an average city block or 12 stops per mile.) This headway, equivalent to 163 cars per hour, rep- resents about the maximum clear capacity of the tracks. The additional cars from the Geary and Sutter street lines as contem- plated would increase the total outflow from the Market street throat at Sutter street to about 192 cars per hour, assuming a two-minute headway during rush hours on the Geary street line. In the present four-track plan, 63 per cent of the equipment would have to be handled on the inner tracks, i. e., from Geary street to the Ferry there would be found 28 out-bound cars* on the inner tracks and 13 on the outer tracks. Were the Sutter street cars to be operated on the inner tracks there would result 163 cars per hour out-bound thereon during the rush hour. As this is about the theoretical capacity of the equipment, it is obviously impossible of consideration. There- fore, even under improved conditions anticipated for the near future, I can- not recommend any conMderable increase of the use of the inner tracks by any more cars than at present operated. And if running conditions cannot be greatly improved now, the establishment of service on the outer tracks will only increase rather than decrease the difficulties of operation. As a result, it is entirely within the bounds of possibility that in the near future it may be fomid necessary under four-track operation to reduce the number of oars utilizing both the inner and the outer tracks by diverting some of the tributary routes to adjacent thoroughfares; or else, this could be ac- complished by looping backt a certain proportion of the rush hour extra cars on all north-side lines converging into Market street, as is now done on the Turk and Eddy line during rush hours, this being done to remove *By actual count. tDefinite recommendations for the proper handling of this rush hour short-haul traffic will be found in a forthcoming report on Re-routing and Service Re-distri- bution. LOWER MARKET STREET 9 from Market street the additional equipment operated solely for the handling of the large volume of business traffic originating in the central loading district. In any event, there should be no attempt to equalize the traffic on the inner and outer tracks. Owing to the handicap to the inner tracks, the number of cars using the outer tracks should be kept at a minimum and not exceed about 38 per cent of the total cars using the Market street throat. The necessity for this balancing of traffic arises from the fact that heavier traffic on the outer tracks will prevent access to the inner tr-acks and in the end defeat the ultimate purpose of the entire four- track arrangement. Figures 8 and 9, referred to later, indicate the relative volume of car traffic resulting from the contemplated use of the outer tracks by two pro- posed methods. Passenger Distribution. The above observations on car congestion are confirmed by studies of the distribution of out-bouud passengers along Mar- ket street as determined by numerous observations. These show that the heaviest rate of loading per stop begins at Second street, increasing to a maximum at Third street, thence decreasing progressively. As the time of loading is practically proportional to the volume of passenger traffic, every possible means of relief should be applied to this section of the Market street throat, as herein recommended. RELATIVE VOLUME OF TRAVEL — Market Street Stations Out-bound Average Car, Evening Rush Hour Station Boarding Total Only Off and on Ferry loop 12 12 Drumm ( California ) 6 6 Battery-First (Bush) 8 8 Sansome ( Sutter ) 8 10 Second street 7 7 Montgomery (Post) 14 16 Kearny-Thircl (Geary) 25 26 Grant (O'Farrell) 10 12 Stockton-Fourth (Ellis) 6 7 PJmporium-Flood 6 7 Powell-Fifth (Eddy) 12 17 Mason (Turk) 4 5 Taylor-Sixth (Golden Gate) 4 5 Jones (McAllister) 2 2 Larkin-Ninth (Hayes) 3 5 Church-Fillmore (Fourteenth) 3 6 Note heavy loading at Kearny street. 10 SAN FRANCISCO TRANSPORTATION PROBLEM. RELATIVE VOLUME OF TRAVEL^- Sutter Street Stations Out-bound Average Car, Evening Rusli Hour (Sutter-California, Sutter-Clement, Sutter-Jackson) Boarding Alighting Total Sansome 30 30 Montgomery 14 14 Kearny . 28 28 Grant 9 1 10 Stockton 4 4 Powell 15 3 18 Mason 1 2 3 Taylor 1 1 Jones 1 1 Leavenworth '2 2 Hyde 2 1 3 Larkin 2 2 Polk 8 10 18 Van Ness 1 1 Franklin 1 2 3 Gough 1 4 5 Octavia 5 5 Laguna 1 1 Buchanan 4 4 Webster 1 1 Fillmore 8 19 27 (Sutter-California, Sutter-Clement, only) Divisadero 2 7 9 North Side Traffic Distribution. Similar observations of riding habit on north-side lines converging into Market street further confirm the state- ment that there is no necessity for all of the north-side cars which run into Market street continuing to the Ferry during rush hours. The ap- pended results from traffic counts on Sutter street will illustrate this point. These results show that the heaviest rush hour loading originates north of Sansome street. This, taken in connection with the foregoing fact that Market street lines do not pick up their heavy outbound loads until Second street or Third street is reached, proves that this north-side traffic could be efficiently handled by short-haul "tripper" extras looping back at the intersection with Market street. This applies equally to the Geary street and Sutter street lines, and it will be found that such a plan will not only save car-miles for use on that part of the line where needed, but vjill also automatically relieve the congestion on lower Market street. Minimum Headway. Until further experience has been acquired with the operation of this contemplated four-track plan, it appears to me that the most feasible method of conserving the maximum usefulness of all the tracks on Market street is to place a limit on the number of cars that may be operated thereon. Considering the proper proportion of traffic between inner and outer tracks as above discussed, I believe I can safely recommend that an average headway of not less than 45 seconds should be seriously considered for the outer tracks — that is, 80 car-trips per LOWER MARKET STREET 1 1 hour — as compared with the present headway of 29 seconds, or 125 car- trips per hour, on the middle tracks. This applies to the present type of motor car equipment and might very readily change if more powerful motor cars were later put into operation. Further, as the schedules of the Geary street road have not yet been worked out, it is somewhat un- certain how many car-trips per hour will be required, and especially so in view of the possibility of additional municipal lines desiring to use the Geary street and outer tracks. But, as the general theory upon which these outer tracks are used is that of equal participation in maintenance and receipts, I should consider it reasonable that the Municipal and the United Railroads lines, respectively, should be permitted to share equally — that is, up to a headway of 90 seconds, or 40 car-trips per hour. Obviously, as far as the Market street traffic conditions are concerned, it is immaterial what routes contribute to this total utilization of the outer tracks, but it is important that the respective operating departments of the tributary systems should co-operate in harmonizing their sched- ules, in order to secure the maximum resulting service for the patrons from the Western Addition. As the traffic increases, it will, in my judg- ment, be found necessary and entirely practicable to put in force a sys- tem of short-haul routes, especially for rush hour "trippers", as the traffic counts plainly show that the major portion of the heaviest or outbound riding originates west of Sansome street, rather than at the Ferry. How- ever, on days of exceptional travel or during emergencies, it is quite likely that the utmost use of both outer and inner tracks would be de- manded, in which event, the above-mentioned minimum headway of 4 5 seconds could be somewhat reduced under proper authorization from the City, but such permission should be contingent upon close co-operation of the respective operating departments with regard to schedules and the overlapping of authority of their street traffic inspectors. Ivoading Speed. Preliminary observations on a large number of cars in- dicate that the average speed of loadrng in seconds per passenger is low, un- fortunately, in San Francisco. This condition can undoubtedly be remedied by certain improvements in platform arrangements, upon which I shall later make recommendations, liut nevertheless the results indicate that every pos- sible facility must be afforded that will increase the loading speed, especi- ally when large groups of passengers — 15 to r)0 or GO — are to be loaded at one stop. This condition becomes most serious at the Ferry loop ter- minal, referred to later, which will require special treatment. Hei'e. 10 passengers board the average car during the morning hours, which is about twice as many as for the average stop along Market street. The extent of the handicap imder which present equipment is being operated may be judged from the fact that the largest San Francisco cars, for gi'oups of 10 passengers, require about 27.5 per cent more time per passenger to load than the latest type of car operated in Oakland, where the radius rod is in use that permits the full length of step to be used for entrance as in the Geary street equipment. Figure 3 indicates this relation graphically. Physical Obstniction.s. One very apparent cause of this slow loading exists in the present arrangement of safety stations, the majority of which are approximately the same length as the car, so that the station seats 12 SAN FRANCISCO TRANSPORTATION PROBLEM. occur directly opposite the car entrances and exits, thus greatly impeding the passenger flow. This impedance is confirmed by comparative observa- tions of loading speed taken at the safety stations and upon the level street under the same conditions. In this respect, the stations are found to re- quire a loading time about 13 per cent in excess of that of the street level. If seats aitJ required at all, this can only be remedied by locating the seats alongside the car instead of at the ends, as indicated in figure G. Whatever plans are carried out in rearranging tracks at the Feri-y loop, steps should be immediately taken to set back the triangular corner of Sacramento street and The Embarcadero, vs'hich makes it necessary at pres- ent for the Sacramento street car tracks to enter upon and thus interfere with the main Market street loop. I imderstand that unsuccessful efforts have previously been made to effect this improvement. But, in spite of this, I strongly endorse the improvement as one of the first steps in the relief of the Market street throat. At the same time, a recession of the oppo- site corner could be carried out to advantage in order to open the throats of the loop and distribute foot passenger travel crossing The Embarcadero. This situation will be' enlarged upon in a subsequent report. Intersecting Lines. With the increasing traffic occasioned by the Sutter and Geary street cars, it will be necessary to limit, to the minimum, inter- ference from transverse car traffic at intersecting streets, particularly at Third street and Fourth street. I understand that during the rush hours it is the present practice of the railway company with certain of the west- bound routes that have heretofore utilized or crossed Market street tracks, to "short-run", beginning the route at the Market street branch-off ; for ex- ample, the Turk-Eddy and Hayes-Ellis lines. While this undoubtedly dis- commodes some passengers, I believe it is, on the whole, justifiable In view of the transfer facilities available, and it is possible that still other routes may be short-run to advantage, in order to relieve the Market street thoroughfare from additional cars. The Third street crossing is the most serious problem, and will require prompt and efficient handling to secure effective results. The First street crossing should be entirely abandoned, cars stopping at the easterly line of First street, at least during rush hours. Track AiTangenients. There are three possible arrangements of tracks •on lower Market street which could be used to accommodate both the Mar- ket street and Geary-Sutter street traffic. Referring to Figure 4. Plan A, parallel flow: using present Ferry loop and with branch-offs from the outer tracks. Here every inbound car on Geary and Sutter streets must cross the entire throat, holding up all in-bound and out-bound cars thereon. Plan B, counter flow: Market street lines may be separated entirely from the Geary and Sutter street lines by using the right-hand pair of tracks exclusively, with an individual Ferry loop. This plan necessitates a rear- rangement of loops at the Ferry in order to avoid the same interference as it is sought to avoid along Market street. It has the marked advantage that lines converging from the north side of Market street do not occasion any interference with the through Market street lines as in the other two plans. But it also has disadvantages : First, alternate lines of traffic along Market street with increased danger of accidents ; second, the necessity of LOWER MARKET STREET 1 3 spreading tracks at stations; third, the unbalancing of car traffic. These are discussed later, in detail. Plan C, j)arallel floiv: branch-offs from the first and third instead of from the first and fourth tracks. Here, in-bound Geary and Sutter street cars reach the Ferry by the inner track, thus avoidinff one line intersection but with two still remaining. This arrangement could be handled by the pres- ent Ferry loop with slight modification, or by the rearranged loop shown. It would necessitate Geary street cars using one track of the United Rail- roads' lines. Cross-Section of Street. There are four possible arrangements of cars and safety stations with the present four-track layout along Market street. Referring to Figure 5, the sketch shows: (1) Present txco-track. arrangement above or south of Sutter street, with a 21-foot clear , roadway, measured to the curb. (2) Present four-track parallel flow arrangement below Sutter street, without safety stations, allowing 16i/4-foot clear roadway with room for two vehicles to pass while passengers are loading. (3) Counter floic arrangement with internal safety platforms utilized by both in-bound and out-bound lines. Obviously out of the question. (4) Counter flon> arrangement showing impracticability of two stations on a four-track arrangement except in an enlarged part of the thoroughfare. (5) Counter ffoto arrangement with central platforms suited for entrance and exit, both lines. Cars on the outside tracks are to be loaded from the street. This is a possible arrangement. Of the above arrangements, Nos. 2 and 5 only may be considered as prac- tical. They correspond to Market street Plans A and B, Figures 10 and 11. In No. 2, platforms cannot be used to advantage, and passengers entering or leaving cars on the inside tracks must hold up the entire line of cars on the outside tracks. In No. 5, it is necessary to widen the present "devil- strip" at stations. For a platform width of six feet, the tracks will have to be spread two feet on each side, or four feet total. However, this spread- ing may be done opposite the triangular plazas in Market street so as not to contract the roadway on the south side of the street as shown in Figure 11. But in the center of the street, the platform thus becomes a real safety station, as well as a loading station. Safety Stations. The present safety stations vary in length from the length of one car up to 70 feet, including seat and electrolier at each end. Apparently they were designed for shorter cars than now regularly oper- ated over the lines of heavy traffic. As previously indicated, this seat ar- rangement is entirely improper, and I should recommend that the platforms be modified either by concentrating the seating at the middle of the car or by extending the platform. In a number of instances, stations of larger capacity than at present available are, in my judgment, badly needed, and Figure 6 shows the general dimensions* of these proposed enlarge stations, which will accommodate two cars at once, with a space between fenders for ♦Safety stations may be shortened 2i^ or 3 feet if exit doors from forward car platforms are located next to the car body or bulkhead, as in the Geary street cars, instead of next to the bumper, as in the Market street ears. 14 SAN FRANCISCO TRANSPORTATION PROBLEM. interchange of passengers. The platform proper is only required to be of suftic-ient length to serve the entrance and exit steps of the platform, al- though a few feet additional length would serve a useful purpose in ao- eommodatlng passengers hunched at the entrances. A substantial electrolier at each corner of the station exposed to traffic provides some protection to standing passengers ; consequently no cement barrier is shown as in the pres- ent stations. But, it may be advisable to carry a six-inch step around the outside and ends of the station to serve the double purpose of assisting passengers to ascend and to protect waiting passengers from the hubs and wheel guards of carelessly driven passing vehicles. Side seats are shown in this sketch, but as standing si)ace is so valuable, it is perhaps a question whether it is advisable to continue their use. Profiles of the various types of cars operating along upper Market street show a maximum variation of two inches betweea the widest and narrow- est car steps. This permits of a platform built more nearly to the step level than at present. Figure 7 shows the present clearance conditions be- tween platforms and stations. As standard equipment will probably not employ a drop step lower than 14 inches from the rail.l- I believe the sta- tion could be built to a height of 10 inches to advantage, and with a mini- mum of two inches clearance outside of the widest step. This additional height will tend to prevent persons attempting to stand on the ground level, and to facilitate entrance. Seat Plow. A graphical impression of the relation, disposition and vol- ume of car traffic on ^Market street and liranc-h streets by these trackage Plans A and B, is afforded by tlie diagrams, Figiu'cs S and 'J, showing the number of seats passing a given point during the rush hour. Figure 9 shows the entire avoidance of car interference along Market street b.v the Geary and Sutter street lines. Plan B. Assignment of Stops. The plans proposed herein for locating stopping points and operating four tracks in lower ^larket street involve the follow- ing essential principles : (1) That car stops should be distributed as rcniihirli/ as possible along the street in order to secure the most effective car operation, i. e., acceleration, coasting and braking. (2) That the distance between stops should be increased to a maximum consistent with convenience of the majority of patrons and the vary- ing local demands of passenger travel. (3) That provision be made for two-car or tandem cross iiigfs at inter- secting streets where congestion of traffic is sufficiently serious to require traffic regulation and the whistle signal. (4) That stations at such points be designed for tandem stops, so that loading and unloading may be done simultaneously without retard- ing the entire line of traffic by cars berthing singly as at present. (5) That "fi-ee way" for vehicle traffic across intersecting streets should not be intei'fered with by locating the stops s;) as to constitute a source of congestion. (6) That, during rush hours, the right-of-way across Market street be proportioned approximately according to the relative volume of ]ias- senger and car travel. tTo the step tread. LOWER MARKET STREET | 5 (7) That definite stopping places be designated by posts or by signs sus- pended from the trolley span wires supplemented by signs in the pavement, so that patrons may know exactly where cars are to stop, thus avoiding confusion. (8) That safety loading stations are only needed where passengers are required to icait for a particular car for any length of time. (9) That branch lines should berth off of Market street as soon as the intersection is reached. In applying these principles, the institution of the "near side" stop be- comes necessary at least within the congested zone, except in special cases of "blind" street intersections. The rule may be waived in the case of the blind side of a cross street. In the interests of safety, cars are now re- quired to stop at all special work intersections over which cars are regu- larly operated and also at all leading switches. It follows, therefore, that they should not be required to stop also at the other side of the crossing, but, cnce across, should be given the right-of-way to the next "near side" in- tersection in oi'der to clear the block for siicceeding cars. This will elimin- ate certain of the present stopping points, unavoidably.* Plan of Stops. The accompanying drawings. Figures 10 and 11, em- body the above principles, applied to trackage Plans A and B, respectively. These may be compared to the present plan of stops, Figure 12. In the appendix hereto, these plans are discussed in detail, with the reasons for such changes as are recommended. Each station stop, flag stop and safety stop is desig- nated by a car in position. Ordinarily, not all of these stops would have to be made. Cautionary stops are also indicated. At Third street and Fourth street, two-car crossings can be made during rush hours. The present safety stations at Ellis and at O'Farrell streets are removed to the east side of the crossing and several of the stations lengthened. Stops at Fremont and Main streets, in-bound, are omitted to facilitate quick running from the business district to the Ferry and for the reason that the passenger traffic Ferrp-hoiind during evening rush hours originating east of First street is so light as to make it undesirable to delay the main line by stopping at each of these short blocks. Plan A. In this plan, the average running distance between stops is 454 feet,t and on the average a running speed of 7.75 miles per hour from the Ferry to McAllister street can be maintained, assuming no intereference from vehicle trafflc and an average stop of 10 seconds at each of the points indi- cated. "Within the four-track territory, cars moving in the same direction on adjacent tracks are shown in a tandem position, based upon a rule of the road that one line of traffic is not allowed to pass another in the same di- rection while loading or unloading. This will unquestionably be a source of some delay under trackage Plan A, for the reason that outer track cars will hold up those on the inner track, and vice versa. However, in the case of such a broad street as Market street, it would seem possible and necessary *For each unnecessary stop eliminated, the schedule speed can be increased 5.6 per cent, under San Francisco conditions, assuming that cars now stop at every corner averaging 440 feet apart, or twelve stops per mile. The average distance on Market street is now even less than this. tThe average distance between present stops is 368 feet; minimum distance, 137 feet; maximum. 678 feet. 1 6 SAN FRANCISCO TRANSPORTATION PROBLEM. to waive this rule to the exteut that inner track cars should be allowed to continue under cautionary running past a car loading or unloading on the outer track. This will afford the inner tracks a certain measure of relief, much needed by virtue of the fact that these tracks are carrying the heaviest traffic. Obviously, this rule is not reversible, and in all cases the outside car must stop while the inside car is loading and imloading. In these tan- dem stops, the outside car berth is shown in the forward position — that is, leading by one car length — in order to permit access to the rear car plat- forms. However, the forward berth will in any case be occupied by the first car arriving on either outer or inner track, in order that the next arrival may berth in the tandem position shown without obstructing streets and established lines of vehicle traffic. This is important, as 100-foot berths are now imder consideration in lower Market street, and the stop signs placed along the streets for the guidance of passengers should be located with refer- ence to the iorward and not the rear berth. Plan B. Woi'king out this same idea of fixed stops with trackage plan B, Figure 11 is a result. Fortunately, most of the safety stations between tracks may be located nearly or exactly opposite the triangular plazas exist- ing at Geary, Post, Sutter, Bush, Pine and California streets. In this arrangement the average distance between stations from the Ferry to Mc- Allister street is 484 feet, and more rapid running is possible along the lower end of Market street, north of Third street, by reason of the lengthened and more uniform stops, and with a clear street a schedule speed averaging eight miles per hour could be maintained. This plan necessitates a consid- erable rearrangement of loops at the Ferry, the spreading of which would unquestionably increase loading facilities. This subject will be treated in a subsequent report. The spreading of tracks that will be necessary to accommodate these safety stations can be worked out by allowing the east side tracks to remain as they are and spreading the west side tracks into the plaza where there is ample space to avoid any interference with vehicle traffic. Although eight cars are shown at each stop, it is unlikely that such a condition will occur except very infrequently. Finally, weighing the advantages and disadvantages of these two plans, in my judgment, Plan A best meets the present necessities, and it should be put into immediate effect by the construction of the necessary track and special work. Under present traffic conditions and in the absence of a supplementary rapid transit system. Plan B is objectionable from the stand- point of counter traffic flow. Shelters. Owing to the peculiar conditions resulting from the diagonal street intersections north of Market street, it is desirable that adequate shelter stations should be erected within the existing triangular plazas, espe- cially at California street where the California street line terminates. This shelter may simply provide seats for waiting transfer passengers, or may be more elaborate, as is possible in the large plaza at Bush street and Battery street. Ferry Ix)op Traffic. No detailed recommendations can be made at this time with reference to the best disposition of terminal facilities at the Ferry loop. This report concerns the lower Market street situation as far as The Embarcadero only. A subsequent report will cover this subject of terminal LOWER MARKET STREET 1 ^ facilities. However, after a study of ferry traffic, I am convinced that addi- tional reservoir track capacity should be available in order to make it possible for relay cars to lay over for incoming boats, and that more adequate and defimte loading facilities should be provided to avoid the confusion now existing. Observations during the morning rush hour of incoming trans-bay passengers indicate that within a space of four minutes following the land- ing of the several ferryboats, the total available cars passing both loops vary from ten cars per boat down to five cars, with a maximum capacity of about 600 passengers per boat, to carry them to their destination. In some cases only three cars per boat were available. At present this is partly unavoidable owing to the impossibility of anticipating late ferry arrivals. During the two-hour period observed, although cars reached the ferry loop at about 29 seconds average headway, only one ferry arrived on schedule time, the remainder being from two to eight minutes late. This illustrates the impossibility of serving ferries effectively without reservoir track capacity and special "shuttle" or transfer routes serving the ferries only. One remedy which can be applied immediately to the relief of out-bound ferry traffic is that all i)re-payment cars be throicn open at both ends for loading, with an extra conductor at the forward vestibule to receive and register fares. This method of relief should be employed during all periods of heavy trans-bay traffic, as is now practiced by the United Railroads during Sunday excursion traffic at the Ferry and other heavy terminal loading points. And until passengers are thoroughly familiar with the double entrance method, inspectors should be stationed at the Ferry loop to facili- tate this double loading of passengers. The saving in operating car hours during the day would go far toward offsetting the additional expense of this special Ferry service. In conclusion, I can recommend a reasonable utilization of the four tracks on lower Market street, but in accommodating Geary street and other lines, such a plan must be worked out carefully by the respective operating departments, in order to preserve the proper balance between inner and outer traffic, or there will result worse delay, confusion and accidents than at present. The operating problem is by no means as simple as it appears, and in order to produce the most effective results there must be close co-operation in putting into effect operating rules for passenger, car, and vehicle traffic. These recommendations are to be considered independent of any plans which I shall develop later with regard to the re-routing of the entire system. Respectfully submitted. Prepared June 26, 1912. Consulting Engineer. 1 8 SAN FRANCISCO TRANSPORTATION PROBLEM. APPENDIX lietailed Discussion of Plans A and B, Stops, and Stations. in the recommend Plan A, Figure 10, and also Plan B, Figure 11, several modifications of the present plan of stops, Figure 12, will be found. These are discussed in detail below. Plan A. In-l)Oiind Stops. At present, stops are made at Fifth street, west side; Fifth street, east side, and intersection stop at Eddy street. One of these, the middle stop, has been eliminated, and the safety inter- section stop made use of as a loading stop, assisted by a single-car safety station located as close to the special work as possible so as to permit east- bound vehicle traffic from Powell street to have ample passageway west of the station. In-bound stations, as a rule, are not as necessary as out-bound stations, for the reason that in-bound passengers immediately disperse to the side- walks, and no waiting at the station is necessary. However, in the case of Market street, a special condition arises owing to the location of the Ferry Building. Below Second street, it is found from observations that the vast majority of ferry patrons walk, but from this point westward the street cars are patronized more and more, the heaviest in-bound loading points during the rush hours being at Third street and Powell street. Conse- quently, an in-bound station has been located at the latter point, and the Third street in-bound station lengthened to permit of two-car crossings. At Fourth street, the traffic rules would ordinarily dictate that Fourth- Stockton street traffic should cross Market street at right angles. However, on account of the offset in these streets, it is desirable to allow this traffic to parallel the Ellis street tracks, so that the in-bound stop may be located as shown. East of Kearny street tandem stops must be provided for, the first car reaching the corner to take the forward berth. At First street the "near side" rule is departed from in order to secure a better distribution of stops and clear the First street thoroughfare for vehicle traffic from Battery street, which, with First street, is an extremely important thoroughfare. From First street to the Ferry, stops are shown only at alternate streets. This is for the reason that these blocks are short — only 275 feet. And it is believed that this part of the in-boimd run should be freed from unneces- sary stops in order to leliver passengers as promptly as possible at the Ferry. Observations show that in-bound traffic below Second street is extremely light, so that the elimination of these intervening stops will not work any serious inconvenience, considering the interests of the vast major- ity of in-bound passengers. In any event, the maximum distance ferry- bound passengers from Fremont and Main streets have to walk to reach a car stop is about 220 feet. If it should appear desirable to continue "flag" stops at every in-bound crossing during the morning hours, it will still be desirable to adhere to the LOWER MARKET STREET 19 limited stop scheme shown hereon for the afternoon rush, at least after 4 o'clock, when approximately six times the number of passengers travel ferry-bound than during the hours of morning and early afternoon. This change, however, may result in some confusion, and it is believed to be more desirable to omit the extra stops altogether. Plan A introduces an average distance between stops that is less than three-fourths the length of the block between Jones street and City Hall Square, which is approximately 1,000 feet. Out-hound Stops. Starting from the Ferry, out-bound, it is believed that the Sacramento street stop is in a large measure unwarranted, the inter- section being so near the Ferry terminal. The average length of walk from the middle of the block to the first out-bound stop is not excessive — 370 feet. However, a tentative stop has been shown. The safety station in the plaza opposite Bush-Battery streets may be retained, as it does not interfere with traffic, although it is not in a very effective position for tandem stops. As above mentioned, the First street line should "dead-end" at Market street, and not cross the throat tracks, at least during rush hours. This provision need not necessarily invalidate the status of the franchise of this line. At the Sutter street branch-off, Sutter street cars should berth off of Market street. At Second street, the heavy out-bound loading begins and the "near side" stop is shown in order to permit proper vehicle crossings and to avoid an exceedingly short run to the next stop. The walking distance to the Second street stop from the intersection of Post and Montgomery streets is prac- tically the same as to the next stop west. The present station in front of the Crocker National bank must neces- sarily be abandoned with four-track operation, although the tandem stop may be located in practically the same position. At Lotta's Fountain, Third-Kearny streets, the station must be enlarged for a two-car stop. This point is the heaviest loading point along Market street, exceeding even the Ferry on the out-bound trips. Here, two-car crossings must be rigidly adhered to on signal, and railway inspectors should co-operate with the traffic squad in securing prompt transits. It may even be necessary to dispatch cars from the in-bound and out-bound stations, respectively, at Third street, arhttrarihj on signal, as In rapid transit subway service. This is the most congested intersection in the city, and it may be desirable to install a railway dispatcher in a small tower at the apex of Market and Geary streets, who, relaying the traffic signals, will control car transits by means of semaphore signals, as is done in other cities. Owing to the excessive obstruction of pedestrian traffic along the north side of Market street, it is undesirable to stop the Third-Kearny street cars in the triangle opposite Lotta's Fountain. In this position cars completely interrupt the flow along both Market street and Geary street walkways. The cross-town cars should, therefore, make the run from Third street to Kearny street without stopping. And a north-bound stop opposite the Chronicle building will be more desirable than to attempt an additional stop in the triangle. To secure this result, relay traffic signals must be put 20 SAN FRANCISCO TRANSPORTATION PROBLEM. into effect so as to control the Market street and Geary street lines simul- taneously. If this is done the interruption to the Marliet street tracks will be far less serious, as the in-bound Geary street cars may cross to their position on the outer tracks while loading of Market street cars is taking place at the Lotta's Fountain station. The present safety station opposite Stockton street should lie moved to the east side of the crossing, as shown. Its location is entirely incorrect, being too near the Emporium station and on the far-side of the intersection. The near-side safety stop at the Ellis street tracks should be used for loading purposes, and the far-side stop eliminated. As Fourth street is also a heavy passenger loading point, a two-car station is desirable. By reason of this change, the station opposite Grant avenue should also be removed to the near-side position and extended to accommodate two cars, in order to secure a more even spacing of stops. In this position, the Grant avenue station will be of additional value in drawing traffic away from the Lotta's Fountain station and thereby reducing congestion there. Sit- uated approximately midway between the Call and Phelan office buildings, it will be able to do this more effectively than in the present far-side position. A difficult problem exists in the two out-bound stations opposite Powell street. First, the westerly station is unfortunately located directly in the line of all street traffic between Powell and Fifth streets. Second, the stop here practically amounts to a far-side stop, whereas the near-side safety stop opposite the Flood and Emporium buildings should be utilized for loading purposes at this intersection. Third, it will probably be desirable in the near future to route some of the out-bound cars via Mission street, return- ing to Market street at Fifth street, in which event this station will be unavailable for loading and transfer purposes. After much study, it appears desirable to move this station westerly to a position approximately midway between Mason and Fifth streets, where it will be in a position* to receive this Mission street loop loading. In the position shown, the Mason street station will require a walk of only 160 feet from the Fifth street building line. The Flood-Emporium station may then be moved westerly to the Eddy street branch-off, and it should be extended to accommodate two cars. In this position, the station will be but 85 feet distant from the Powell street building line, and will consequently prove more convenient for trans- fer purposes than at present. However, until the merits of tliis change become apparent, the present westerly station may be retained and is con- sequently indicated hereon as "tentative." Plan B. In the alternative Plan B, Figure 11, the station stops westerly from Geary street are indicated in the same position as in the previous Plan A, figure 10. Commencing at the Chronicle building, the present United Railroads tracks are shown diverted to the east side of the street, so that no car interferences with the Geary street line will be encountered — similarly, at Sutter street. In all station locations, except at Davis-Beale streets, the spread of the west side tracks around the safety station occurs opposite the triangular plazas, so as not to reduce the width of roadway. Although eight cars are shown at these points, it is not likely that such a condition will occur except very infrequently. On this plan, the protruding corner of Sacramento street at The Embar- *In this position the station will be available for direct transfer from the Turk and Eddy line, whicli turns at tiie corner. LOWER MARKET STREET 21 cadero has been receded, in order to provide additional roadway area, much needed for both car and vehicle traffic. It will be observed that in this position Spear street may now be used to much greater advantage than at present, in order to relieve traffic across the loop throat. In all cases free-way for vehicle traffic has been preserved in accordance with established traffic rules. Present Plan. Figure 12 has been prepared in order that comparison might be made between the present plan of stops and the two alternative plans presented herein, i. e., disregarding certain trial improvements introduced by the traffic force. The position of all stops are shown as in Plans A and B, and the reasons for the elimination of the unnecessary ones will become more apparent after a study of the revised schemes. For example, both near-side and 'far-side stops are made at Sixth, Fifth, Fourth, and Third streets, and also an intermediate stop in the Lotta's Fountain triangle. In this present scheme, the average distance between stops is 368 feet, which is 19 per cent less than the recommended Plan A, and 24 per cent less than tentative Plan B. BION J. ARNO;^ FIGURE 2— STUDY OF CAR DELuVY, MARKET STREET. Study of cai- delay on lower Market street, representing graphically where the congestion occurs along Market street, as shown by the slov/ing of the schedule. Note the hump between Sutter and McAllister streets. Minimum speed 3.2 miles per hour. Average results from 160 oars counted during evening rush hour. BION J. ARNOLD 0.5 * FULL ENTRANCE- FIGURE 3— STUDY OF CAR LOADING SPEED. Comparative loading time of various types of cars, including the newer Oakland cars with movable guide-rail. For average group of passengers at Ferry and on Market street. FIGURE 4 — POSSIBLE TRACK ARRANGEMENTS. Possible track connections for accommodating- four-line trafflr. showing two alternative plans for minimizing car interference: A, parallel tlow plan as recommended; B, counter flow plan, avoiding all branch -off crossings; C, parallel flow plan, avoiding one line of crossings. Proposed two car safety station FOR tOADlNG IN TANDEM 5hOWIN6 exit forward PDSmON SmOWINS exiT NEXT TO BULKHEAD FIGURE 6— PROPOSED SAFETY STATIONS. Proposed rearrangement of safety station for accommodati'ig two cars simultaneously, first car arriving to take the forward berth. Step built around outside of station for protection to waiting passengars. Seating optional. kS'O-^ f-3'O-H NO. I , ABOVE SUTTER PRESENT r- ■ I r o"— 4.5'a'^ S'o'f 504— 1 1 o- T&'O' ■■ lao'o"- k'^^^^^^^^^^^ ' ^^^^^'W.^^ . 'i M/VRKEIT ST ARRA^/SJQEMEMT Of^ ROADWAV STUDIES OF POSeiBUCL CUEA-R/VMCCS 3ION J. A.RMOl_D CONSUUTirsG EINSi r-i e; e F^ 3A.N PRANCl&CO "TRANSPOR-TATION PROBl-EKI FIGURE 5— POSSIBLE ARRANGEMENT OF SAFETY STATIONS. Typical cross-sections of street, showing possible station arrangements resulting from different trackage plans — A, B and C. Car step clearance at safety stations Actual and Proposed, scale- i inch = i foot O 1 2 FT. h- < o' -<-r -4'-6" 4-5 4'- 3 Floor Of= platform Geary st car; Maximum- K) IP, V W Minimum (actuaU- - 5: w" TOP OF RAIL r>' ). I550 TO 1749 TYPE Ol TO ISO TYPE. I500 TO 1549 TYPE. -Floor of station V— Proposed station"?! 1- -4-7V -5'-0'- A-€>' -4'-9" FIGURE 7— STUDY OF CAR STEP CLEARANCE. Car step clearance diagram, showing present variation in step clearance at safety stations along Market street, and position of proposed stations. XS aw09NVS JS AtJ3M05XNOM .IS ANUV3M : z ii "°^.., r A Ay FIGURE 10— PROPOSED PLAN OF STOPS AND STATIONS FOR MARJi/l. inches to 31 7/32 inches. End compartments, op- posite entrance way. IT inches by 34 inches. 24 inches minimnm. 28 inches at shoulder line. United Railroads 7. Width i-eqnired for 37^^ inches. Seat Over-all S. Width iif car body 8 feet (> inches. 0. riatform Side sills tapered to provide c-learance at ciirves. 10. ^Minimum rear en- 40 inches, trance width 11. Bulkhead width 12. I'ositinn of exit door 13. Minimum exit width -1^. Guide rail 15. Type of step IG. Platform fixtures 17. Window sash 18. Storm protection, open section 10. Ventilators 20. Sanders Open l)etween corner posts no inches. Next to car-body bulk- head. 20 inches. T'ses Oakland radius bar for obtaining full step entrance. Motor- man protected by movable guide rail. Folding type, raised on I)lind side of car. .Alaster type controller to reduce space occu- pied. Raise sash in closed sections. Drop curtains. Autoniatic eductors in roof, and floor in- takes. Positive air lilast Sand- ers delivering close to wheel. 45% Entire closed compart- ment. 20 inches. Middle or closed com- partment. in inches by 32 inches. About 38 inches mini- mum between seat hardware. 40 inches at shoulder line. 35 inches or more, de- pending upon the type used. feet 2 inches. Sides kept straight be- cause fenders limit clearance. 32 inches, due to con- traction of hand-rail- ing, location of and difference in types of controller. liaise itartitions. open- ing 53 inches. Next to car bumper, with seat intervening. 27 inches. Guide rail cut off at stanchion to permit full-width entrance. Fixed steps. Type K control opposite narrowest entrance- way. Sr.sh fixed. None. Intak;-. and exhaust fun- nels. Gravity sanders. 6 SAN FRANCISCO TRANSPORTATION PROBLEM SUMIMARY OF RECOMMENDATIONS. The improvements which I am able to recommend depend to a large degree upon the service intended, as suggested in the intro- duction, i. e., whether this new equipment is intended for general use in all parts of the city, i. e., interchangeable as regards routes, or for operation on certain lines only. In either case, I should like to see the following improvements included : (1) Taper platforms, to provide for future clearance operation. (2) Front exit gate next to the bulkhead. (3) Straightened guide rail to provide greater entrance width, or (3a) Conductor's stand in center of buUdiead opening and elimi- nation of present form of guide railing. (4) Motorman protected by movable guide rail. (5) Geary street or equivalent seating arrangement. (6) Cross-seat cushions 17" x 34", spacing 30 inches or more. All cushions spring backed. (7) Raise sash in middle or closed section. (8) Bulkhead open between comer posts. (9) Folding steps instead of fixed steps. (10) Storm curtains or equivalent protection. (11) Ventilating intakes in floor or sides of the car. (12) Positive air blast sanders. (13) More liberal spacing per passenger for longitudinal seats where vertical stanchions are used in place of straps. For a future standard car: (14) Over-all width 8' 6", track centers not less than 10' 2" (sidewalk width 12' on 68' 9" street), giving two-line vehicle traffic on all streets. NOTE: It is understood that the United Railroads now has in contemplation the following modifications of the original plans: 1. Moving front exit gate next to bulkhead. 2. Cleveland arrangement of fare box and guide rail. (See p, 11.) 3. Cross-seat cushions 17" x 34". 4. Bulkhead posts to be flared back to increase shoulder width at entrance. 5. Sliding or folding step. 6. Storm curtains, if satisfactory on Geary street cars. 7. Ventilating intakes if found necessary. 8. Removal of fare box from entrance way. 9. Vertical stanchions in closed compartment set out to knee line. 10. Platforms to be tapered, when improved type of fender is developed. ROLLING STOCK J DISCUSSION. Seating Arrangement. In the Geary street cars I have preferred to locate the principal storage space in the open section, while the reverse is true in the United Eailroads design. My rea- son for so doing is in recognition of the fact, which I have deter- mined by observation, that the average passenger rides less than two miles along a given route before alighting. This means that the short-haul pa»ssenger greatly predominates, and consequently that extra space must be provided for persons disinclined to move forward because of a short trip ahead. On the other hand, the United Railroads provides this extra storage space by using longitudinal seats in the closed section to encourage people to move forward in order to clear* the rear part of the car for newcomers, and also for the reason that during stormy A\'eather, longitudinal seats will accommodate the maximum number of persons desiring to be protected. However, the United Railroads design provides no sash in the open sections, nor storm- curtains, as does the Geary street car. It is possible that the storm curtains for the latter may not prove a perfect appliance for this purpose, but in the absence of something better I certainly should not consider it wise to spoil such a good seating arrangement as in the Geary street cars on account of a short period of inclement weather. One method that occurs to me of encouraging passengers to move forward is to limit smoking, b.y ordinance, to the front open section, thereby inviting forward a fair proportion of the pas- sengers immediately after entrance. The serious objection to the United Railroads layout is that the passengers entering the car body are immediately forced into the center of the aisle, counter- current to those passing out through the rear exit. On the other hand, the side seat plan as used in the Geary street car provides not only a relatively wide passageway, but also an offset aisle which will tend to separate lines of entering from leaving pas- sengers. Experience in other cities tends to show that longitudinal seats do not attract street car patrons — cross seats, quite the reverse. Consequently, the advisability of thus using all longitudinal seats in the center or closed section is very doubtful, especially with so wide a car as here proposed. The fact that riding in San Fran- cisco is extremely short-haul justifies the use of a certain percentage of longitudinal seats ; but they should be placed where most needed, and in this respect the Geary street car design is, in my judgment, the more desirable for the present ear. The best that can be said *As a matter of fact, the contraction of the aisle at the ends instead of the center tends to defeat tlie very purpose in view by cliecliing- free forward movement riglat at tlie entrance. 8 SAN FRANCISCO TRANSPORTATION PROBLEM of the United Railroads seating arrangement is tliat it is a consid- erable improvement over some of the present equipment, with the exception of the so-called Chicago car, which may be identitied by class numbers ]500 to 1549, and the half cross, half longitudinal seat type, represented by class numbers 1550 to 1749. In the latter, the longitudinal seats run as far as the center of the car on the one side, then for the remainder of its length on the other side, thus approximating the Geary street arrangement except for the central closed section. Width of Car. As a result of experience and observations in Chicago during the complete rehabilitation of the transit system, it would seem that the adherence to a car as wide as 9' 2"* in San Francisco is a mistake, provided that a future standard is under discussion. If all of the streets of your cit,v were of the generous proportions of those of the business district south of JMarket street, the necessity for limiting the car width would not arise. Unfor- tunately, however, the streets of the 50- Vara district and Western Addition are, as a general rule, only about 68' 9" in width. And, still more unfortunately, the track centers have been standardized at a distance of 11' O^/o" in order to secure an ample width of "devil strip" — 22yo inches between cars. This width undoubtedly represents good practice, although a width of 20 inches is some- times sufficient where street Avidths are limited. Unfortunately, again, the sidewalks in the 50-Vara district and Western Addition are fixed by ordinance at 15 feet in width, which is too great to permit two-line vehicle traffic on cadi side of the street. In order to secure reasonably rapid transit, two-line vehicle traffic is abso- lutely essential, to enable slow-moving vehicles to keep next to the curb, rapid vehicles passing between them and the car. If the usual proportion in sidewalk width were in vogue, viz. : one-sixth of the width between building lines, the sidewalk would be ap- proximately lli/o feet wide. Then with the narrower car — Si/o feet in width — and a 20-inch "devil strip", there would be ample room for two lines of vehicles on either side. Under present conditions two-line traffic is impossible, as a 15-foot sidewalk only permits a single line of vehicles. Therefore, at the present time, the wider car will offer practically no greater obstruction to street traffic than the narrower car, in the Western Addition district. It is entirely possible, however, that future steps may be taken to reduce the width of sidewalks in order to clear some of these streets. And, in addition, considering the new streets which will be improved and electrified from time to time, it is not too early to cstablisli a standard which will make these things possible. Nar- rowing of the track centers in order to require less of the roadway 'Width over belt rail 9 feet 2 inches, over body 9 feet. ROLLING STOCK 9 width than at the present time must be effected to carry out tliis plan. This can only be done gradually on extension and rehabili- tation work, but ultimately the entire city will be broujSfht to one standard. For an 8' 6" car 10' 2" track centers may be used, as is the present standard within the city of Chicago. This combination makes available 18 inches more of roadway than under present conditions. The desire of the I^^nited Railroads to furnish the maxi- mum width of aisle by using the wider car is indeed laudable, but when it is considered that the wider car is obtained at the expense of narrowing the roadway. I cannot recommend it, especially when a width of aisle, 28 inches between seat backs, has proven sufficient in so congested a city as Chicago. Seats. The seat proportions proposed do not appear to be liberal enough, especially for so wide a car. For comfort. ciLshions should be 17" x 34", and all seats in the car spring-backed. This requires a longitudinal spacing of at least thirty inches, preferably more. In the 1912 car, tlie dimension of the closed section has resulted in cramping the spacing of cross seats in the open sections to 29 inches. This should be increased. The size of the closed section is determined by the number of seats and the spacing al- lowed per person. Although the design calls for 17% inches per passenger, which is fair, the effective spacing has been reduced by the provision of vertical hand rods or stanchions at alternate seats, extending from the floor to the roof at the seat line. These hand rods reduce the actual spacing between stanchions to 34 inches, which is not sufficient to allow two persons to rise together comfortably. Moreover, these stanchions in the present position will probably prevent uniform seating, inasmuch as there are no fixed divisions betweeen the seats. They require six inches addi- tional length in the closed compartment, which if applied to the open compartments, would increase the seat spacing to thirty inches — some improvement over the present spacing. However, where longitudinal seats are used, these stanchions are desirable in place of straps, for the assistance of standing pas- sengers, and if covered with white enamel as in modern rolling stock, they are sanitary and convenient. But in the absence of a more liberal spacing, thej^ should be set out at least to the knee line, in which position they would interfere less with seated pas- sengers, and would be fully as convenient for standing passengers as in the present plan. Without very liberal seat space per pas- senger, partitions must be used between seats if stanchions are to be set up against the seat line, and either condition requires so much extra length of car body that the number of cross-seats in the open sections is reduced from six to four. Therefore, with 10 SAN FRANCISCO TRANSPORTATION PROBLEM this ear body I should prefer the standard cross-seat arrangement within the closed section, or else the dimensions should be so modi- fied as to obtain better results in both compartments. Length of Car. This is limited by the permissible overhang of platform beyond the center line of trucks, and that of the projecting fenders used. On general principles, it is desired to increase the length of car body as much as possible, in order that the proportional cost of platform wages may be reduced and also the relative maintenance of parts. But, in any case, the platform overhang is the serious and determining factor, especially where narrow streets are encountered, owing to the resulting interference Avith adjacent car and vehicle traffic on curves. For prepayment cars, long platforms are necessary, and in order to reduce the overhang of the ends, trucks must be located as far apart as possible, and still keep the center overhang within reasonable limits. In the case of the 1912 type of car, the proportions have been worked out to secure probably as good a design as could be pro- duced imder the conditions existing in this city. The distance between truck centers and car platforms is practically the same as in the Geary street car. In either design, the end overhang cannot be reduced because of interference of trucks with the projecting underhanging platform side sills. In reasonably fiat cities, two-motor, maximum traction trucks, with pony wheels ex- tending out under the platform can be used, thus decreasing to some extent the platform overhang. But in San Francisco, two- motor equipments are impossible on account of the greater tractive effort required on heavy grades. The only remaining method of reducing car overhang is by tapering the platform so that the corners of the bumpers describe an arc of somewhat shorter radius. In this respect, I cannot rec- ommend the 1912 car, because of the fact that the platform has been designed of the same width as the car body on the assumption that with the use of a fender, the platform actually presented less overhang around curves than the corner of the fender, which now prevents clearance operation. But even assuming that this is true, it should not be assumed that the present type of fender is to be permanent. Clearance operation is very essential in any system of rapid transit, surface or otherwise, and it is a fact that through the adoption of the "Eclipse" Fender, specified by the Board of Supervisors, the clearance operation of cars around curves in San Francisco has been entirely nullified. Nevertheless, I feel that the development of a new car for either present or future should not embody this purely temporal condition and render clearance opera- tion impracticable or dangerous. Consequently, tapered platforms ROLLING STOCK 1 | should be embodied in the design. The only alternative is for the City to permit the spreading of tracks at curves sufficient to clear present fenders, which would result in an overhang of 15 inches over the standard curb of the Western Addition district. t Platform Arrangement. Generally speaking, there is a cer- tain relation between the area occupied by passengers in the car body and that of the platform; i. e., the larger the car, the more platform space is required. Where the prepayment prin- ciple is used, it is particularly necessary that ample storage space be available on the platform in order to avoid delaying the schedule due to slow loading, as would be the case with the short platforms. Moreover, every restriction placed in the way of free entrance of passengers must be removed. In the 1912 car, the principal dif- ficulty is this contraction of the entrance space — first, by cramping the railing into the entrance passageway; and, second, by locating the controller directly opposite the contraction. There are three ways of improving this defect : First : By straightening out the guide railing so as not to cramp the entrance way ; Second : By use of the master control system ; and Third: By placing the fare box next to the bulkhead and in the center of the opening, with the conductor immediately behind it standing on the car body floor.* With the remote control system, only a very small master con- troller box is necessary on the platform, while the actual contact devices, connected thereto by an electric circuit, are all located underneath the car. In the third method the present form of guide railing is entirely dispensed with, the ^ard rail for the fare box serving the purpose of dividing the bulkhead opening into entrance and exit passages. In this manner, the entire platform is open to passsengers and the congestion at the entrance entirel}^ eliminated. For the new rolling stock, one or more of these methods should be adopted ; and in any case, the front exit gate should be removed from its present location next to the bumper to a position next to the bulkhead. This, in my judgment, is more desirable, so that passengers may alight quickly without having to force their way through standing groups which at present congest the space be- tween the bulkhead and front exit gate. * This plan is at present in operation in Cleveland. t With standai'd spiral easements at present used throughout the United Railroads system, the 1912 car theoreticall>- clears on curves with a margin of four to six inches on the wider streets, and one to two inches on the narrower, exclusive of fender. But even this maximum clearance is out of the question on account of the possible list of the car on curves from various causes, such as eccentric loading, depressed i-ail, worn side bearings, failure of springs, etc. 12 SAN FRANCISCO TRANSPORTATION PROBLEM By iisiuo' the luastor control system as above proposed, and with tlie handrailing straightened, fully 50 per cent more entrance width will be available. An advantage of the proposed location of exit gate next to the bulkhead is that two or three feet of length may be saved from each two-car safety station* along Market street. At Kearny street station particularly, this is of importance, owing to the difficulty in securing the proper length of station without interfering with street traffic. In carrying out these improvements, the bulkhead should be left open with the maximum width between corner posts, in order to secure ample entrance and exit space. This is a definite advant- age of the so-called "California" type of car, and the entrance and exit should not be contracted by false bulkheads such as wire screens or vertical railing. Loading. San Francisco cars, unlike those of other cities, are called upon to handle two entirely different classes of service : (1) normal street traffic; and (2) terminal traffic at the Ferry, and it is the difficulty in handling large groups of passengers at terminals that has occasioned most of the recent criticism. In my judgment, the prepayment is by far the best system of opera- tion that has been devised thus far, but it must be perfected for these special conditions of service. More rapid loading at points of congestion can be secured by the use of a radius rod in the guide railing, such as first used on the Oakland cars, and which has been adopted by the Geary street car. By means of this radius rod, the entire width of step can be made available so as to increase the storage space at entrance, and thus load large groups of passengers more promptly than if half the step were used. As an alternative, the radius bar may be omitted and the hand railing cut off about 24 inches back from the step, in a measure accomplishing the same purpose. This plan is now in use on some of the United Railroads cars. Still another method of accomplishing the same result is by changing the position of the conductor's stand from the platform to the entrance of the car body as previously described (page 11), and by the elimination of the present form of guide railing. By this arrangement not only is the full step width made available for entrance, but the entire platform area can be used as storage space for passengers waiting to pay their fare. A graphical demonstration of this relation between loading speed and width of entrance is afforded by Figure VI, based upon * Recommended in Report No. 6. ROLLING STOCK 1 3. observations on different widths of entrance at the step line. It will be seen here, that the long platforms of San Francisco require approximately 27 per cent more time in seconds per passenger' than the Oakland car, using the full width entrance with the radius bar swung over to the bulkhead. At the Ferry and other heavy terminal points, it is very neces- sai'y that the platforms at both ends of the ear be available for prepayment entrances. This may be accomplished in two Avays : First: By turning the front exit gate into an entrance gate, in which case only half of the full width between posts is avail- able for entrance after the car is emptied. Second : By opening the blind side of the front platform for the full width betw^een posts for rapid exit, using front exit gate for entrance only. Height of Steps. The height of steps involves man}- more details of design than appear upon the surface. In fact, to eliminate the last inch of height may require the redesigning of the trucks, bolsters, and car underframing. Furthermore, it must be recalled that any figure representing height of step is subject to considerable fluctuation due to the following causes : First: After usage, the truck springs show a tendency to set, which may amount to from 14 to 1/2 inch. Second : Under maximum car load, the springs may compress 134 to 21/0 inches. Third: Due to wear, the wheel diameters decrease from 34 inches, new, to 311/. inches, maximum wear, dropping the entire car 114 inches. Fourth : Due to wear of side bearings, steps may vary as much as one inch in height. Fifth : Permanent sag in platform underframing. Due to one or all of these causes, the step of a properly designed car may drop from 2 to 4 inches from its position when new. Were the car originally designed with this low step, wear and stress would result in the platform lowering to a point where it would interfere with the operation of the trucks. Consequently, to secure this necessary truck clearance, the new cars must be designed with proportionately high steps. The 1912 car submitted by the United Railroads appears to show careful design with respect to this step height, and the cars, when new, will have the first step about 15 to 16 inches from the pavement, which may eventually be reduced to 12 inches by wear and settling. 14 SAN FRANCISCO TRANSPORTATION PROBLEM In the Geary street car, a simple device was made use of to reduce the height of step between platform and car body, in which the car floor was inclined from the center line of the bolster toward the end sill, so that the platform step is two inches lower than it M^ould be with the level car floor. It is understood that this plan will also be adopted in the 1912 car, except that the platform instead of the floor will be sloped upward two inches in the form known as a ramp. I regard it as very necessary that folding steps be used in the place of fixed steps. The object of the folding step is two-fold: First : Lifting the steps on the blind side of the car will tend to discourage persons from endeavoring to steal a ride, and thereby incur the liability of accidents, as is the case when the steps are down. Second: This practically obviates the possibility of collision or other interference with passing vehicles. With the large number of overhanging steps now being oper- ated in San Francisco, the danger from these two sources will be appreciated. In some prepayment cars, designers have even gone to the length of automatically raising the steps when the vestibule door or gate is closed, so that while in motion, the car is entirely stripped of steps in the lowered position. Cars of this type may be found on the College avenue line. Oakland, and in Boston and other cities. Ventilation. Without having positive knowledge of the oper- ation of the ventilating funnel shown on the 1912 car, I believe it should operate with fair satisfaction when the car is in motion. The principal objection I find is that there is no provision for the ventilation of the closed section while the car is standing still, and in this respect the Geary street car is superior, in the use of floor intakes by means of which natural circulation is provided for. It is unquestionable that the fixed sash will result in slightly lower maintenance expense, but there will be times when it will be necessary or desirable to open the windows of the closed section. The Gearj^ street cars have raise sash, which I prefer to drop sash, on account of the increased cleanliness and the fact that the decreased thickness of wall may be taken advantage of for increas- ing the width of the aisle. In conclusion, the 1912 United Railroads car may be regarded as a step in the right direction, and in general a considerable im- provement over any of the types at present in operation here. It will prove fairly satisfactory for certain sections of the city where streets are wide enough to accommodate a wide car, as in the Mis- sion. ROLLING STOCK 15 Some features are quite commendable, such as the use of the turtle-back or arched roof and the position and type of illuminated signs ; also the lowering of the steps by means of a platform ramp. But if the design is intended for universal use throughout the city, or a standard for future equipment is under consideration, this car will require considerable moditicatiou, as outlined in the preceding discussion. Respectfully submitted, C2 ^L Consulting Engineer. Prepared August 17, 1912. 16 SAN FRANCISCO TRANSPORTATION PROBLEM DESCRIPTION (3F ILLUSTRATIONS ACCOMPANYING REPORT. Diagrams of Street Sections — Present and Proposed Ar- rangements Compared in Each Diagram. I. Standard street, 50-Vara — Western Addition district. Two car lines and passenger vehicles only. With present 15-foot side- walks, only one line of vehicle traffic possible. With narrower car (i. e., 8' 6"), and sidewalk reduced to 12 feet, two lines of traffic are possible. This condition impossible with wider car. II. 100-Vara — Mission district, with standard ordinance width of sidewalk — 19 feet — two-line passenger vehicle traffic possible only with narrow^ car. In this district, however, the sidewalks have been reduced by special ordinance on most of the important streets. III. Easiness street, 50-Vara district. Two car lines barely permit single line traffic for freight vehicles. But with single car track, two-line traffic can be secured by reducing the sidewalk width to 1-1 feet. Two-line mixed traffic impossible with either car and present standard width of sidewalk. 12-foot sidewalk, as proposed in I, would permit two-line freight vehicle traffic with narrower car, but hardly with wider car. TV. Business street, 100-Vara district, showing actual side- walks. Two-line mixed traffic possible with either narrow or wide oar. Nine inches greater margin or clearance with narrower car. This shows most efficient utilization of 9' 2" car in the district where wide streets occur, such as IMission street, as referred to in conclusion of this report. V. Heavy trucking street, 100-Vara district. Sidewalk 15 feet in width, as established by ordinance, does not permit two-line vehicle traffic with double-track car line. By reducing sidewalk to the usual standard — one-sixth of street width — two-line vehicle traffic is possible with narrow car, but not with wide ear. This condition typical of Howard street, which has been set aside for heavy trucking through the Mission. Using the present standard track centers — 11' Oi/." — two-line heavy vehicle traffic can only be secured by cutting sidewalk to 13' 7" for the narrower car, or 13' 3" for the wider car. ROLLING STOCK 17 PASSEtNlSEF* -VCHICI-ES 50N/yA.RA» DiS-TRlC" R>xssE:M«e:« vemcL-cs toox^-A,f%A, Di«.-T-Ric~r of^dima-moe. rui— e SU3IMES3 STREET ^OV^^RA. tJlSTF A ■DlATFttCX ■ae s-TRce too VA.T«.^^ Dis-r^iOT PROPOSCO STREET SEICTIOMQ Figs. 1 to 5. 18 SAN FRANCISCO TRANSPORTATION PROBLEM Effect of Entrance Width on Loading Speed of Car. VI. Based upon observations of car loading, showing the rela- tive time required to load a given group of passengers through wide and narrow entrances. For comparisons of this kind, the same sized group must be used, otherwise the comparison is valueless. These results conform in character to similar observations made upon different sized ears in Chicago. The data shows that the largest San Francisco platforms now in use require 27 per cent more time in seconds per passenger than the Oakland cars using the radius rod. BION J. ARNOLD r ~ i v^k4- -^Qir- ■'Jlt^a^ Tji^t .-E it i^^AiTMiii^ n'likii'S Tv^ li «yinkT«l /m; - M TI3 ^> V 1/"" s ■■ .Oi^\j r4S n = 1 u '^LL^ iZ ZI9J 5ZS^I^! C.& ~ ~ — ~ 2^ --^lytBi = E2S3= -i2Z q^IESEIBazESS; ~2- "j: : IL » E 2 » ^S^J 3^ ' - 2 5.^ t ^ ■ ± 1 , ,4...,, ^ ^>J 1 TT ^'iSh^ -\- i i E!' '^s! - " i 1 -1- - -^-f- -1 1 - I " 'J ^^ J -h .-^ K. ">«, 1 ; i . yi "^ *" ^ i 1 \^l- : _ """■ fc / L ' ••Oil ^ ^*" mn^ ^ ' * r f-** - — — 1 1 ! 1 1 ^l_ ,, H_ . ' 1 1 U - ll i i "t ■'• •]] L - ,. . 1 V [ : '^ 1 7 J : s ji ••o ~ r t ~ - ' ■ ~! ! ] " r -. - -4- - ' 3I— — f— 7 1 'J '1 ■'' ij _^ pH ■ ' j^ l\ - j_ _^ 21— 1 t * "' L 1 a ^ W '^ 1 -1— J| 1 /-.etc arc ffi 1 <^-S T 1 ± ![ " "TJj 1 :M: i_ 1^ I ' ' CJ 'ill 'h' » * ti ^ ' i ' "^ fc "li"! !^ '11 1 1 [ -f- -H ^ !:-if -1- - ' ljp_ _^ I [_ 1 1 jI ^ ' t"" (JI 1 *• 1 ' j ! ! i Wll 3TH 55= CI" >~"52^^si=^ - liinaoi jii 1 1 vYii-' in jLy |i,-. IL ii.jJuJ — L-i 10 20 30 40 SO eo 7o eo 90 100 Fi£ m WMmM^m^^ REPORT ON' IMPROVEMENTS IN EXISTING ROLLING STOCK TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD ConAultini; Engineer Preliminary Report No. 7 — Part II Submitted Jan. 20, 1913 ■7^ REPORT ON IMPROVEMENTS IN EXISTING ROLLING STOCK TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 7— Part II. Submitted Jan. 20, 1913 Rlncon Publishing Company 2S Montgomery Street, San Franclsoo IMPROVEMENTS IN EXISTING ROLLING STOCK PRELIMINARY REPORT NO. 7— PART II. ' Board of Supervisors, City of San Francisco. (Jentlemen: Supplementing Part I of this report concerning the design of the new United Railroads motor car, I herewith submit an anah'sis of the general arrangement of the present rolling stock, with detailed recommendations by which the present car bodies may be retained in service for some years to come, and still be made more useful to the Company and also more useful and com- fortable to passengers, especially with reference to rapid loading and unloading, which as I have pointed out in previous reports, is so extremely necessary in San Francisco. Appended hereto you will also find a supplemental report on brakes, in which the relative size and age of the various types of cars have guided me in my recommendations as to the extent of the changes desirable. The rolling stock may be best analyzed by class or type, as designated by serial numbers printed upon the ends and sides of tlie car bodies, so that they may be identified on the street. Sketches of the recommended changes and alterations are appended hereto. The most important classes to be considered are those having drop platforms, of M'hich nearly 330 out of a total of 557 double-truck cars are now operated. The company is to be commended for its adoption of the more convenient drop platform as a standard in- stead of the flush platform', in spite of the greater cost and weight and the widespread use of the flush platform type in neghbor- ing cities. SUMMARY OF CONCLUSIONS AND RECOMMENDATIONS 1. The three improvements essential to the electric car equip- ment are: (a) an increase in platform loading capacity; (b) better unloading facilities; (c) improved seating arrangement. To secure the principal result, there are only two alternatives — either lengthen the platform, or else remodel the platform fixtures and remove the end bulkhead ; possibly both will be advisable in some cases. These changes 1 believe will result in increasing the speed tof passenger movement at least 25%. Note — For exhibits accompanying report see Page 6. 4 SAN FRANCISCO TRANSPORTATION PROBLEM 2. Observations under different conditions consistently indi- cate that the time consumed in stops for loading- and unloading is entirely too great. Entrance passages should be enlarged, par- ticularly on the short-platform cars, and at least the full width of the entrance step (i. e., from the outer grab handle to the stanchion) should lie preserved in tlie platform passageway as far as the last step or entrance door into the car body. This result may be accom- plished by changing- the shape of the guide railing, and on the shorter platform cars by moving the controller to the right, away from the entrance. (In the 100 class the latter is not necessary, since great improvement is possible by alteration of the guide rail- ing alone.) 3. Inasmuch as the use of the prepayment fare box is estab- lished, end bulkheads should be removed to provide the addi- tional entrance way made neeessaiy by this method of fare collec- tion (except in the 100 class, which already have a wide ])ulk- head opening). In this manner a "('alifornia" type car may readily be developed by locating the bulkheads within the car body, forming a closed central section with open end compart- ments. 4. If a fare box is to be used, the eliniination of the end l)ulk- head is essential, but in this case moving the controller to the side, although desirable, will not be absolutely necessary. On the other hand, if the fare box is not used, it will be unnecessary to take out the end bulkhead, since moving the controller will provide considerable platform space. In any case, the clear en- trance way to the ear body should generally exceed 24 inches. 5. Lengthening of platforms is preferable if the cars are in sufficiently good condition to warrant the expenditure ; but the change would not be worth w^hile unless each platform could be lengthened at least 12 inches. If none of these improvements are carried out, the short platform cars should be retired to out- lying or cross-town service, Avhere traffic is lighter. 6. The closed section of the "California" type cars should have cross seats, but in the end compartments the maximum amount of storage space should l)e provided to accommodate short-haul riders. This necessitates the use of a longitudinal seat on that side of the car where passengers enter, as in the Geary street design. In the all-enclosed box car, 100 class, at least 50'/( of the seating capacity should be in cross seats arranged as in the loOO or looO types instead of the present all-longitudinal plan. 7. During stormy weather, protection by windows or cur- tains must be provided in the "California" type ears for passen- gers using the open sections, otherwise more than half of the seating capacity of the ear is rendered unavailable at such times, when maximum capacity is demanded by the excessive rush hour loading. ROLLING STOCK 5 8. In cars from which the end bulkheads are not removed, such as the 100 class, the stanchion in the middle of the door opening should be set out six or eight inches from the end sill to increase the entrance and exit passagewaj^s. 9. The ''Cleveland" fare box frame as hereinafter described will provide the maximum storage space on short platform cars using this method of fare collection. If the fare box is not used, the present type of guide railing altered in shape, may be re- tained, but any rail of this type should be cut off at least 24 inches from the step or provided with the "Oakland" radius rod in order to make the entire step available for emergency loading. 10. Any form of guide railing or fare box stanchion should be movable, so as to be located behind the motorman on the for- ward end to protect him from interference by standing passen- gers during surges of the car, at the same time clearing the for- ward platform of obstructions. 11. Rapid unloading at the forward end should be facilitated by the following means: (a) Removal of the stanchions now divid- ing the door opening (unless bulkheads are removed) so as to give a less obstructed exit way; (b) moving the exit gate next to the bulkhead in order that passengers alighting will not have to force their way through a crowded platform. This will also have the effect of decreasing the necessary length of safety sta- tions on the street; (c) providing a gate at least 30 inches wide and of a type such as a sliding gate, which does not interfere with passengers standing on the platform. 12. All cars should be provided with automatic folding steps at the forward exits, and lift steps at the rear entrances. With all steps raised except that under the conductor's control, acci- dents will be greatly reduced. 13. On the flush-platform "California" type cars (700 class) the principal improvements that should be made include the re- modeled guide railing, storm curtains in the open sections, and a seating arrangement approximating the IMunicipal car plan, except that in such a narrow car two rows of cross seats should not be used in the closed section ; also the projecting steps on these cars, or any other type, should be replaced by automatic folding steps to prevent accidents. 14. On the 1300 class, the platforms should be lengthened and the car converted into the prepayment type if it is to be operated on any important lines. The reconmiendations made for the 700 class will all apply. 15. Power brakes should be used on all double-truck equip- ment especially that operating within the congested districts. The expense of new brake installation on cars that have been in service 10 years or more would not be warranted, but such equipment should be immediately retired to outlying districts. 6 SAN FRANCISCO TRANSPORTATION PROBLEM 16. Cable ears of the Powell Street lines should have additional capacity, and these short cars should be immediately converted into the "California" type by the addition of another open section. Double end operation should be provided for, together with the re- moval of turntables, especially at the end of Powell Street. In the design of new cable equipment, the adoption of the prepayment center entrance type should receive serious consideration, with the object of reducing accidents and obstructions of streets. 17. For hill-top lines encountering long grades much in excess of 10 or 12^ , a special type of car should be developed, of light construction and equipped with power track brakes such as the magnetic type ; this car to be from 35 to 40 feet in length and seating about 36 people. Respectfully submitted. Consulting Engineer. Prepared January 10, 1913. EXHIBITS ACCOMPANYING REPORT. Table 1. Relative weights of equipment. Table 2. Schedule of rolling stock. United Railroads. Figure 1. Platform and seating plans. Figure 2. Loading speed of forward and rear platforms. ROLLING STOCK GENERAL DISCUSSION. The United Railroads at the present time operates on its various lines a total of 620 electric ears, which may be divided into four grroups : 1. Modern cars either designed as or later converted into the prepayment type : Class 1500-1549 50 closed body, diwp platform. Class 1550-1749 199 closed body, drop platform. Class 101-180 80 closed body, drop platform. Class 700-719 20 rebuilt "California" type, flush platform. Total 349 2. Modern cars now operated non-prepay : ; Class 1300-1425 123 "California" type, flush platform. 3. Various old types almost entirely obsolete, and nearly ready to be retired from service unless rebuilt. Classes 500, 600, 700, 1000 and 1100—63 single-truck original ' ' California ' ' type cars.* Classes 681-698,t 731-745. 1001-1024—55 double-truck original "California" type, flush platform. Total 118 4. Interurban cars : Class 1-12 12 closed 56-seat interurban cars. Class 1225-1244 18 closed 48-seat suburban cars. Total 30 Of these four groups, (mly the first two, both of which are cov- ered in Fig. 1, Mill be dealt with in detail. The third group consists of cars which have been in service so long that extensive improve- ments in them would hardly be warranted, unless they be rebuilt. The ears listed under this head are operated at present on lines south of Market Street for the most part, and as fast as new rolling stock is added these should be retired to lines where the traffic is lighter. Loading Time. The relatively slow loading of the various types of San Francisco cars has already been emphasized in previou.v. reports on lower Market Street congestion and on service, and the. •These have been renumbered 601-663. tBodies may be rebuilt for prepay operatian. 8 SAN FRANCISCO TRANSPORTATION PROBLEM results of several hundred observations are entirely consistent in showing- that the attempt to apply the prepayment principle under the uniLsually severe loadinf>- conditions of San Francisco to a car with short platform and constricted entrance has not been a success. It is a fact that on care of different platform length, the relative loading speed is practically i)roportional to the length of the avail- able entrance step, until the platform storage space is entirely taken up, providing no further obstniction is interposed in the line of incoming passengers. Under the loading conditions in Chicago, v^^hich are not more severe than the terminal and ilarket Street loading in San Fran- cisco, a platform 8' 4y./ in length was provided for a car body of about the same size as in this city, giving a clear entrance width of 40 inches. But with the abrupt vertical grades and nec- essary platform overhang in San Francisco, the present operating company has established a platform length somewhat shorter — 7' 4". If this length were taken advantage of to the fullest ex- tent, as has l)een done in the Municipal Railway car. it would be sufficient. A study of Fig. 3. Reports and 11. has developed the fol- lowing facts : 1. For loading conditions in San Francisco, sufficient stor- age space should be provided on the platform to accommodate an average group of 10 and a maximum of 25 passengers Avaiting to pay their fare.* 2. For average gir)ups of 10 passengers, the loading time for the best of the San Francisco cars is 27.5% slower than the latest equipment operated in Oakland, and for the short platform tyi)es 65% slower, or twice as slow as the standard cars of Chicago. 3. In spite of its undoubted advantages, the introduction of fare box collection has resulted, with the same railing, in slow- ing up the loading materially. p]ven with properly shaped rail- ings this would occur, principally due to the necessary reduction of storage space and entrance passageway (which are already too small on these cars), as well as to the delay incident to mak- ing change. In Report Xo. 6 it was recommended that at terminals and heavy loading points the front exit, as Avell as the rear entrance gate, .should be used for loading, with extra conductors stationed at these points to receive additional fares. This plan has been put into operation by the United Railroads with very satisfactory results, and the tt)tal tinie of tenninal loading has now been reduced to a point practically equivalent to that of the Chicago standard car loading along the street hi) the usual rear entrance. *The Municipal Railway cars are now carrying from 20 to 2.5 passengers on the rear platform. ROLLING STOCK 9 • Observations show (Fig. 2) that although the front gate re- quires 25 7(; more time to load than the rear, the total loading is reduced to about one second per passenger. In other words, by this expedient the present short platform ear has increased in loading speed by one-third. However, for the average street loading conditicms, the speed is neces.^arily slower, as shown by the dotted line, for the reason that passengers alighting at the rear end use part of the platform step, so that for e(iual conditions the San Francisco car loading at both ends is about one-third slower than tiie Chicago standard loadin^r at the rear end only. Thus far the results of the new ^Municipal car indicate that the principles herein expressed are correct, and that by the provision of ample storage space the loading speed of these cars imder normal conditions will probably approximate that of the long platform cars used in Chicago. GROUP I— PREPAYMENT. Class 1500 (1500-1549), Fig. 1 (B). These so-called "Chicago"! cars. 50 in number, are a closed body, 44 seat, prepay car weighing 52,000 pounds, built by the American Car Company and purchased from the Chicago City Railway Company in 1906. The body is 32' 4" long — practically the same as the Municipal car — but SY 2" wide. The platforms are only 6' 81/2" long from sill to bumpers, and are slightly tapered. The cars were originally designed for non-prepay operation, and Avere consequently provided with comparatively short plat- forms. When they were converted to the prepay type, the plat- forms Avere not lengthened, resulting in a constricted entrance which is the cause of most of the present diffictdty in their oi)er- ation. In the rebuilding of this same car in Chicago, platforms were lengthened to over 8 feet and further tapered to enable cars to pass on curves. Platform Arrangement, The most obvious remedy for the loading difficulties in this 1500 class is to lengthen the platforms, and this should be done if it is found that the age and condition of the cars warrant the considerable expenditure incident to such an alteration ; otherAvise they should be kept out of the congested district. In any case. Avhether or not it is considered expedient to make this change, the present platform equipment should be re-arranged so as to provide the maximum storage space for entering passen- gers, at the point Avhere it is most desirable, viz., opposite the en- tThis i.s an entirely different ciiv from the standard developed 1),\- the Board of Supervisins Ensineers, CiiL'Uso Traction, vvliicli is only S' 6" wide and designed for 10' 2" trafk centers. 10 SAN FRANCISCO TRANSPORTATION PROBLEM trauc(\ The present coiistrieted entrance is due to two defects — the shape of the j^iiide rail, and the position and type of the con- troller. The clear space of 2-i^/." provided at the step is almost im- mediately contracted upon entering the platform to 20y^" between the controller and the uuide rail. This space is totally inadequate for h)adin *J OS as" t-* r^ rrjl2 »*. i4^ lo *. lo en -^ 00 ic o n ^ 5 w3 OO o?oooo 5" 05' 51 '* a 5] S 5.' '^' S '^ p p pppppppppp 0000 OOii a- li li IC ic o 00 ' %. =• n- - » B =• =■ s ::■ 1 J II en 01 CO i>5 o -1 -4 SOSilOOtCOWO ;.. ooi-'tni-ii-'O -1 ii ^, H-i (-« l-i I-" l-i -q -J ^1 .*. , -q CJl .*-. to o *■ h-* I* '-0 a «1 *. ^ ^ — . (T o — ( 3 - ^IB (^ 3" '< 2L — J '"^ ^ ??„.n i 3 ^.t m3 ■■- goo : o3.a9 &0 2 ^ OS ST. £qo» _, ^p - 3 O ©_• "! "! S; 5 2 ■■ "(H ■■<•■< P (T » 3 O aSQ"^ 2. 3 00 IQ 70 a; M — — (ti o 3 a> a ^ kri : c (i -^^ c O g-W? c P /; c -^ — c J "L O o — ? £ == -! Jl? 2 " .-! 5» (» •< o: in > X a 0—00 £SES. »1 3 CO f« p o p ? O 3 SD •'^ p= a3 i: 3 o S. PC. O "> "OP " op Ota' o^ ?n o o o o i. o o o o 00 Tf - >-■ oooOqOooo 0000- '-■""5 w____ -0 = '0~ o o o o; 0000 O 3-. '5= o '>:■ O O iT. c -jq tH^- — C 3 P • a 1 « (73 -~i ^1 -J ic 3 U KJ >T; u ►fl K > W t^ c w a u r' H w ^ •^ w r t^ :? t-^ HH •^ :;^ w >► :^ '/3 H 72 (J n >1 CO CO CO CO CO CO CO W CO CO ^^ *-■ w CO ocooooo o CO'*; 3= i O *- IS 4_ ".£ O en . C5 M h-'^-COCOI-'COh^l-ik-i h-ih-'CO-^-CI)^ J^ loi-'iOioCn4».CJiiji*- Oi-'io0r;0 ^ '"■!» 1^ CO O J*- 4^ too; ^ — : Ci O CC 4^ O i; r^ (fq O o 000000 O OS to- :i J O— Oi^^CJl^OCO ■ ■:^o?i -.1 -^j ^r> as 00 :d 00 oe 00 00 00 -j: ts ~ q oc«noOc5a5cnai4- oj^ioopt^ ^ 5 a .>3 -1 vo "-^ is ys -^ '^ -.o -js --C 00 -^ S o — "" '' f^ < t I-" t; 'O 'D 000 l-iSJ3>-J '■<;<» ^'^^■•tM-l -' PRESENT ARRANGEMENT CLASS 1300-1425 PROPOSED RE-ARRANGEMENT CLASS 1500-1549 PROPOSED RECONSTRUCTION CLASS 1300-1425 F IMPROVEMENTS IN PLATFORM AND SEATING ARRANGEMENT PRESENT ROLLING STOCK SAN FRANCISCO TRANSPORTATION PROBLEM TO THE HON. BOARD OF SUPERVISORS CITY OF SAN FRANCISCO A '.lip '.I alternative in platform 1550 classes passageway plan simila ARRANGEMENTS These rearrangements in platfoim apparatus are recommended as an ngements are shown both with and without a fare box. Note the increase jither remove the bullthead or move the controller on all cars of 1500 and Francisco cars, and ciin be loaded vi-rv rapidly, due to the unobstructed (E) shows tlie proposed r.-ariangi-ment of the 1.500 class, using a seating i{irepayment car by lengthening platforms, as shown in Plan (F). ClASS 1300-1425 CLASS 1550-1749 IMPROVEMENTS IN PUTFORM AND SEATING ARRANGEMENT PRESENT ROLLING STOCK SAH FRANCISCO TRANSPORTATION PROBLEM TO THE HON BOARD OF SUPERVISORS CITY OF 5 AMFRANCISCQ >VEMENTS IN PUV le Important featui VXD SEA'n> Kl fare box railing:. The 1300 class may be i _ of high class eciuipmer McAllister strpet type. Proposed ai the loading speed, it la necessary t 3st of the large S ; sailsfactory, PI L-onstructed into i . . 111. nts in platfoin .Ml both with and n. Miilkhead or move thi , .nil can bo loaded vor piupii.sed rfariangiMiienl by lengthening plntfon apparatus are recommended ithout a fare I>ox. Note the he contioiler on all cars of 1500 and .•ry rapidly, due to the unobstructed BION J. ARNOLD 5 lO 15 20 25 30 35 -^O AS SO FIGl'Rl!: II— TBRMINAI^ I.OAUING TIME. I'pon the loading- speed of platforms depends to a laige degree the rapaeity cf the line in periods of heaviest traffic. These curves are representative of ToTf of the large curs operated here, and show the total time of loading, and tlie time per passenger required for various gi-oups boarding at the Ferry tei-.ninal b>- both fiont and rear platforms. Curves A, B and C ai-e from actual observation, and do not nece.ssarily sum up. The fact that the loading speed of the San Fian- cisco cars, using both platforms, is barely eciual to those in Chicago using tlie rear platform only, indicates the need of rearrangement of fi.xtures to obtain mucli faster loading- along the street. BION J. ARNOLD lO 15 20 25 30 35 4-0 AS SO FIGURE II— TERMIXAL. LOADING TIME. and do not ne-.essarilv sum up. Tiie fact that the loading speed of the San Fran- ci«f0 cars, using both platforms, is barely equal to tliose in Chicago using the rear platform only, indicates tlie need of rearrangement of fixtures to obtain much faster loading along the street. '■:^..ssity for reasonably rapid operation through the tunnel, not more than three stations between the north and south portoi fppear to he desirable for the present : "Church Street," located in the valley at Fourteenth and Church streets ; side platform, sidewalk entrance. "Eureka Valley," located along Market Street contour exten- sion, betAveen Collingwood and Eureka streets; island plat- form, central entrance kiosk. 8 SAN FRANCISCO TRANSPORTATION PROBLEM "Lap:nna Honda," located on City property at the intersection of Seventh Avenue and Dewey Boulevard ; side platform, es- calator or ramp entrance. One future station, "Noe Street," has been provided for by rais- ing the tunnel crrade to the proper level ; but this should be built for local stops, and only when the development of cross-town traffic warrants. Seventh : Both IMarket Street stations, at Church Street and Eureka Valle.v, should be built at high-level. Church Street may be developed later into a sub-level type express station later de- scribed, with the necessary direct transfer facilities between ex- press and local platforms. Eureka Valley station may be expanded into a reservoir station as soon as traffic warrants, so as to provide "passing tracks" foi* through service or in conjunction with the branch-off tracks of the proposed Mission-Sunset tunnel connecting at Eureka Street. This Avill be independent of the future loAV-grade bore of Project B, which will pass beneath Eureka Valley station, either on the same alignment or a more direct one. Eighth : Lagiuia Honda station should be constructed at the highest level consistent with the maximum grade established — 3 per cent — but at sufficient depth to permit a future overhead crossing beneath the surface of Dewey Boulevard for trolley cars of connect- ing transfer lines, this super-grade crossing to be developed as soon as traffic conditions warrant, but independent of the present tunnel station. Laguna Honda station has been located largely on City property, and an unusual opportunity exists for effective utilization and en- hancement in value of the entire City Tract. The improvement of this locality and the boulevards leading thereto should therefore be undertaken by the City at its earliest opportunity. An open cut crossing for trolley cars will save much of the expense of a cov- ered sub-grade station such as shown herein. Ninth : The upper IMarket Street subway section should be de- signed so as to connect directly at subway grade with a future four- track section extending down lower Market Street. All subway branch-off lines should be designed without grade crossings. Pres- ent designs must fit into a proper scheme of future development without necessitating expensive reconstruction, particularly with reference to station structures. Tenth : The lower Market Street subwaj^ section, which will be- come necessary in the future, should be built with a standard four- track section, Avith all four tracks built at sub-level, permitting an overhead concourse from sidewalk to sidewalk beneath the street MARKET STREET EXTENSION TUNNEL 9 from which access may l)e had to both express and local platforms, with direct transfer between them. This section is well adapted for connection with the npper ^farket Street section of Project A, as herein recommended. It is idle to consider a two-track section, because of the number of branches that will probably be required. Eleventh : In the location of stations, provision should be made for ultimately extendin TRACKS FOR EXPRES TO BE PROVIDED FOH~ SUBOIVISION or PROP 1 MARKET ST. EXTENSION TUNNEL UNDER TWIN PEAKS DETAILS OF SOUTHWEST SECTION AND LACUNA HONDA STATION ACCOMPANY I NO THK RePORT OF BION J.ARNOLD SAN FRANCISCO°fuNNEL PROBLEM TO THE HON BOARD OF SUPERVISER5 ____CITYOF SAN FRANCISCO.' Plan, pitnt of Laguna Honda station detailed as to first and second construction stage, providi to first and second construction I < \ /////////A V/////^'// / ////// /^ ^* 3Nn SNianina " vnv/^ ■aais oil j \^\\VS\V\V\\VV\\V'!S v-ivA^ 3a le aNin •Nio-iina ^77777^ *IOAynV393 777^7777777777777777 > J2 Cfl 3 ^ yj J2 3 M 0) ^ > 1> > •^ fe 3 01 0) u c 3 o O 3 o o .Is 0) 0> bo <■* 3 si r y 2 jzii. Z U o be -M fe 3 3 Eh cS DETAILS OF POSSIBLE DEVELOPMENT AND TRACK CONNECTIONS MARKET ST EXTENSION TUNNEL ■IDER TWIN PEAKS BION J.ARNOLD. SAN FRANCISCO TUNNEL PROBLEM TO THE HON BOARD OF SUPERVISERS CITY OF SAN FRANCISCO jr four-track express bore — Project B, track connections into a future four- t'eturn loop at Castro Street, and subway connections to Mission-Sunset tunnel, e surface track connections, sliowing outlet of tunnel to four tracks in upper ^ut of Eureka Valley. CONNECTIONS WITH FUTURE SUBWAY — - - ^ MARrtEx ST SUBWAY VELOPMENT OFEUREK.A VALLEY PORTAL OF TUNNEL DETAILS OF POSSIBLE DEVELOPMENT AND TRACK CONNECTIONS MARKET ST EXTENSION TUNNEL UNDER TWIN PEAKS BION J ARNOLD. SAN FRANCISCO fuNNElL PROBLEM TO THE HON BOARD OF SUPERVISERS CITY OF SAN FRANCISCO. ir four-track express bore — Project B, track connections into a future four- ^'eturn loop at Castro Street, and subway connections to Mission-Sunset tunnel. le surface track connections, sliowing outlet of tunnel to four tracks in upper ^ut of Eureka Valley. k inel as compai-ed wilh the time zones of present lines. Shaded lite lines indicate Market Street Extension boulevard, and the inel as compared with Ihc time zones of pi'esent lines. Shacled ite lines indicate Market Street Extension boulevard, and tlie Fig. 14. Details of future extensions and developments. Market Street Extension Tunnel, showing provision for four-track express : subway in lower Market Street, typical branch connections to the Mission and Western Addition, local return loop at Castro Plan and profile also shown for present tunnel construction, terminating at Eureka Street, with possible surface track conn :et Street. This Involves the contour extension of Market Street now, with a possible further extension out of Eureka Valley. MARKa ST EXTENSION TUNNEL bore — Project B, track connections Into a future four- Itreet, and subway connections to Mission-Sunset tunneL ttlons. showing outlet of tunnel lo four tracks in upper O . -a _c IS 'S 3 C O O M ™ E-I oj u. o < in »0 i6 ecu o22 j2u o H kOi* 0) e o-;s< aTxri u Z gu 01 OC JO m c -C .- -2 -a B S S « Eh o r; c3 ■o ^ -O n? c O ^ H S ID ^ C to E-i 0) ^ 1 3 Ji 5 a t 0>2 S"S !J'E th Z aojo < § •!(: f i ^ »D i « U k o >^^^Uw« uS s § |vj '^"^M ' "' 0-5 # ft Q, -y > , ■.^.— ^J V" SJ^K 5 i^ t M 55 ^ s *^3tfMlJire^ SI — -m. 1^ iB, It Jr c ti 5 t ^ ' i 1 " ^ u i; 3 m g jl o \ ''^^ ^J-^ ^N~- " "K^-"'<'^-— J"^^ Si ^p~, i Development of Transit System Part II— Extensions, Immediate and Future TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 10— Part II Submitted Dec. 7, 1912. REPORT ON Development of Transit System Part II — Extensions, Immediate and Future TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer iPreliminary Report No. 10— Part II Submitted Dec 7, 1912. i REPORT ON Development of Transit System Part II — Extensions, Immediate and Future TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer \ Preliminary Report No. 10— Part II Submitted Dec. 7, 1912. UNIFIED SYSTtri Cnon- competitive) PROPOSED EXTENSIONS I nn EOiATL AFTER 5 YEARS ULTIMATE DIAGRAMMATIC MAP OF RECOMMENDED EXTENSIONS TO UNIFIED TRANSIT SYSTEM. Supplementing the detailed relief map (FMg. I) on wliicli sd\ present lines are indicated, together witli the distribution of population. This diagram shows in skeleton form the general location of extensions essential to a complete transit system unified with respect to operation — that is, providing patrons with the most direct transit and most convenient transfer facilities, irrespective of ownersliip. The program of extensions indicated represents the minimum mileage and investinent. Witli competing systems extending throughout the entire city, the mileage of extensions necessary to accomplisli the same degree of service would be considerably greater than here indicated. The legend subdivides this extension program into (1) Immediate; (2) Five years; (3) Ultimate. Should contour streets be later developed, modifications of this program would naturally result. Such tunnels as have already been recommended are here included as a fundamental part of the improved transit plan. DEVELOPMENT OF TRANSIT SYSTEM PRELIMINARY REPORT NO. 10— PART II. EXTENSIONS, IMMEDIATE AND FUTURE. Board of Supervisors, City of San Francisco. Gentlemen : From the standpoint of the average citizen interested in the development of your city, two necessities are apparent, both of which require immediate attention. These are : 1st. Extensions into unserved territory ; 2nd. Service improvements throughout the system. Could it be said that San Francisco had already over-expanded, as in the case of several cities of the United States, the question of service might be regarded as the most urgent. But in San Francisco the occurrences of recent years have resulted in the fact that the city is now confronted with an abnormally rapid growth, accelerated by the expected opening of a great inter-oceanic waterway and the Exposition commemorating it. And the means are not available for meeting, in the immediate future, this certain civic growth. Therefore, the question of extensions to its public utilities, particu- larly street railways, becomes of most immediate and far-reaching consequence. While the necessities of the present are being considered it is equally necessary that those of the near future and of a decade hence shall be anticipated as far as possible in order that piecemeal development may be avoided and a transit s^'stem planned Avhich will eventually co-ordinate all of these successive steps into one efficient and unified operating system, whether under one or several managements, municipal or private. The extensions herein recom- mended are designed as parts of such a unified system, irrespective of ownership — i. c.. with a system developed only with reference to the best needs of the re.spective districts, and with duplication of capital investment eliminated. This unified plan does not in any manner prevent the future control by the City of all of its traction lines,, but may be regarded at the present time as simply the best means to a much-desired end — adequate service. From the standpoint of the patron, the ideal condition of service necessitates ONE CITY, ONE FARE, UNI- VEESAL TRANSFERS. However, plans have been prepared for the subdivision of this unified program of development into its component parts, one of 4 SAN FRANCISCO TRANSPORTATION PROBLEM which contemplates a privately operated system, and the other a municipally operated system, both covering the entire city as far as possible, and operating in direct competition. Bnt such a plan necessarily results in extensive duplication of investment along parjillel streets and consequently duplication of service.* In planning this program of extensions, a thorough study has been made of the topography, available thoroughfares, and physical obstructions throughout the entire city, with a view to securing the most practical results ; and the necessary street improvements involved will be treated later in detail. It suffices here to note that the city may derive great advantage from a comparatively small amount of improvement work. The major improvements in the city plan have been so thoroughly covered in the Burnham report that only such minor and relatively inexpensive projects are here contemplated as are essential to the proper development of the city and its transit system in the near future. Similarly, definite consideration will be given in the location of these extensions to improved car routing and distribution of service. Particular!}^ may be mentioned the necessities of so-called cross- town lines, making possible inter-communication between various local centers, of which there are many in San Francisco. Here I desire to acknowledge the invaluable aid rendered by the various improvement clubs and commercial organizations of this city, and also by many public-spirited citizens in the matter of suggestions and data regarding the districts served. All of these suggestions have been analj'-zed, and while many of them have been found impracticable owing to existing physical obstructions, mostly excessive grades, some of them are entirely warranted, and are included herein. Of particular value may be mentioned the Mer- chants' Association report, submitted in 1907. It is of interest to note in this connection that of all the extensions sho^^ii therein (some, I understand, were practically agreed to by the United Rail- roads), there have only been constructed short lines on Gough Street, Ninth Avenue, Fulton Street, Cortland Avenue, and through Visitacion Valley, and that most of the extensions of re- cent years have been financed through the assistance, either directly or indirectlj^ of the property owners benefited thereby; also, that there have been no railway extensions whatever built under fran- chises granted since the last charter amendments took effect. Transportation facilities to the Panama-Pacific Exposition have already been dealt with, on the score of exceptional urgency ('Report No. 10, Part I), and therein were recommended such transit lines as will best co-ordinate with this greater system now under consideration. Much of the discussion in Part I will apply directly herein, as, for example, the following: 1. IMaximum grades limited as close to 10% as possible. *See addendum. DEVELOPMENT OF TRANSIT SYSTEM 5 2. Headway limited to one ear per bloek on grades over 8%, for piirpases of safety to passengers. 3. Full motor poAver on grades up to at least 8%. 4. Chicago standard of narrow cars and track centers when possible, to preserve roadways wide enough for two vehicles on each side. 5. Curves to be designed to allow cars to pass thereon. 6. Duplication of investment and service by parallel lines to be avoided as far as possible. In the exhibits hereto appended are presented : 1st. A record of the more important suggestions that have been made for transit facilities within the city — Figure I. 2nd. Those improvements which may reasonably be recom- mended for present and future construction. Figure II shows the topography and resulting physical obstructions with relation thereto. And for the purpose of accurately gauging these transit necessities, the actual distribution of sleei)ing population of the 1910 census is superimposed upon the map at a scale of 200 persons per dot. Conclusions and Recommendations : 1st. A study of the relative growth of population, operated trackage and riding habit indicates that the principal traction system in its extension program is at least six years behind the average rate established by the company from 1900 to 1905, w^hich was 6% miles of single track per year. During the preceding decade an even higher rate was maintained — S% miles per year. Furthermore, extensions are by no means keeping pace with the growth in population, and only about 8 miles more track is now being operated than in 1905. 2nd. The apparent needs of the immediate future, determined independently of the above facts, require the construction of about 72 miles of single track. 94% of which is under municipal juris- diction ; and by far the greater proportion of this mileage is to be regarded as simply completing a delayed program. 3rd. Upon the completion of the above construction, five years hence at the most, a second construction program should be entered upon involving about 50 miles of single track, which may possibly be warranted within the present decade. 4th. After this period further extension work should be steadily carried out as indicated, both in the outlying districts and within the city proper, solidifying and perfecting the present system. Inasmuch as San Francisco is hardly half developed, there remains much to be accomplished before a so-called saturation point shall have been reached, to justify retrenchment in extensions. This schedule of extensions does not include the necessary rehabilitation .6 SAN FRANCISCO TRANSPORTATION PROBLEM of the California Street line from Sixth Avenue to Cliff Avenue, which is now operating without a franchise. 5th. This work Avill call for an approximate expenditure of about $6,000,000 in track and equipment within the next five years, and $11,000,000 for all the extension work indicated herein, exclu- sive of all special street improvement work, such as regrades, tun- nels, etc., and exclusive of all rapid transit undertakings, except the Twin Peaks tunnel project alreadj^ recommended. 6th. At a very conservative estimate the investment in physical property should increase at the rate of $3.00 per $1.00 earned per year, and possibly at a higher rate. As the earnings for the future are conservatively estimated as douhling in from fourteen to eigh- teen years, this means that within the next decade probably $18,- 000,000 will have to be invested in extensions, additions and better- ments to the transportation facilities of San Francisco. 7th. A large proportion of these extensions must be operated as part of the private system having no possible connection with the municipal lines, present or contemplated. But if these various out- lying fragments were built by the city, some form of contract should be entered into to guarantee through service during the life of the trunk line franchise. 8th. As the maximum benefit from service will be derived from extensions nearest the business center or into comparatively thickly settled suburbs, these should receive first consideration, prior to lines into thinly settled districts. 9th. Certain development lines, however, are so clearly desirable and have such a certain future, that these might well take prece- dence over those development lines which are more or less specula- tive in final results. 10th. For track in the outlying districts, a lighter and less expensive type of construction may be used which will serve amply for some years to come until the upbuilding of those districts requires rehabilitation with heavier track construction. 11th. Single track construction, with turn-outs, will be justi- fiable in the case of some extensions into very thinly settled districts. This, together with the lighter construction employed, will so reduce the relative investment as to make it possible to serve a much greater territorij than if standard construction were used throughout. But such single-track lines, if of reasonably permanent construction, especially as regards the substructure, should be laid at the side of the street, so as to be in position when the line is double-tracked and rerailed. 12th. Extension lines should in general be so located as to best serve as feeders to future rapid transit trunk lines, and have been so considered here. This particularly applies to districts now requiring the longer rides in transit from the business center. 13th. In outlying territory, Avhere the streets and topography DEVELOPMENT OF TRANSIT SYSTEM 7 permit, a spacing between adjacent lines should be adopted which will divide the undeveloped territory with reasonable equality of service, as herein indicated. In other M'ords, parallel lines should not be located nearer than three or four blocks apart, unless through exceptionally dense settlements. Otherwise unwarranted duplica- tion will occur, as in the case of the upper Richmond District. 14th. Several districts in San Francisco can never be adequately served except by the contour plan of sti-eet subdivision, as for example, University ^Mound and Larsen Heights, or the Sunset, Twin Peaks, and San Miguel slopes. If a method could be devised, a re-subdivision in many of these cases would undoubtedly be war- ranted, in order to secure the development desired. This has already been urged in Report No. 8. dealing with the development of the territory to be served by the 3Iarket Street extension tunnel under Twin Peaks. 15th. A number of the extensions herein named lie partly or wholl}' outside of the jurisdiction of the city, as, for example, the Belt line around the waterfront, and the Presidio line. Special means must therefore be found for the financing of these extensions, particularly the Belt line. But until the project is financed, arrangements should be made whereby The Embarcadero will be kept open for the building of such a service line next to the dock wall line. 16th. The Van Ness Avenue line is largely a matter of municipal polic3^ Without tunnels it will unquestionably be needed, as it will become of great strategic importance in the event of failure to reach a resettlement of existing difficulties, when the organization of a complete competitive municipal system will be the principal means of relief. 17th. It is probable that a number of the extensions recom- mended, especially those not in a direct line of through traffic, may be bettor handled for the present by means of a shuttle service rather than to attempt through service to the downtown district. On such lines, smaller car equipment Avould be permissible, such as would not be of sufficient capacity to warrant operating through the business district. And as shuttle cars can be readily operated on a definite schedule through the outlying districts, much better service results from transfer to a trunk line of frequent headway than to attempt a through service that will very likely be irregular at times, due to delays on the trunk line. Passengers then always have the opportunity of transferring to and from the first trunk line ear passing. 18th. Only one cable line extension is recommended, on Dia- mond Street, and this is unavoidable as it is now the most feasible way to reach the southern slopes of Noe Valley, unless a resubdi- vision of all the surrounding slopes with contour streets is put into effect. » SAN FRANCISCO TRANSPORTATION PROBLEM 19th. In view of the completion of the iMission Viaduct an addi- tional viaduct from Holly Street across the Islais Creek basin into University lyiound district is not considered as of such pressing necessity for some years to come as the other extension projects herein outlined; 20th. The opening of Berry Street and the improvement of Division Street as a continuation of Fourteenth for cross-town connection will become advisable in the very near future ; also the utilization of Potrero and San Bruno Avenues as a low-level outlet from the district south of Market down the Peninsula. 21st. The early improvement of Berual Cut for handling through traffic from the converging thoroughfares is extremely important, and special plans have been mad-e therefor. 22nd. A comparatively easy grade along Church Street has been devised by means of a short diversion at Mission Park and a tunnel one block in length, which line reaches the heavily-settled Noe Valley district, which requires additional service perhaps more than any other district in the city. This project will be developed in detail under ' ' Improvements in City Planning. ' ' In conclusion, it is again necessary to draw the attention of your Board and the citizens of San Francisco to the serious fact, with which they are confronted, that capital must he found to build these extensions. The municipality, of course, has a free hand in this contemplated use of its streets ; but many of the extensions are of such a fragmentary character that it is a grave question whether it should undertake, under present conditions, a capital burden of this nature. The only alternatives are for these extensions to be financed by assessment upon the property benefited thereby, or else by private capital, and to make this possible the passage of Charter Amendment No. 34, with proper restrictions, is therefore necessary and vital to the proper development of your city, particularly in time for the Panama-Pacific Exposition. Respectfully submitted, C2^ Consulting Engineer. Prepared December 2, 1912. ADDENDUM TO REPORT No. 10, PART II. December 11, 1912. Inasmuch as the electors have expressed themselves (even though by a very small nia.jority) against the execution of a plan of action such as contemplated in Charter Amendment No. 34, it is now incumbent upon the city : 1st. To finance, by local assessment or bond issue, all or a large part of the extensions herein called for, and secure the right of exchange of its own cars with the connecting United Railroads lines (involving an ad.justment of wage scales) ; or 2nd. To build the roadbed onl.y, and grant private operation rights there-over ; or 3rd. To secure private capital to finance these extensions, and secure the right of through service under present charter conditions. In the appendix hereto the unified plan originally proposed is segregated into its component parts for the purpose of indicating the real magnitude and legal perplexities of the problem, which the city is facing in establishing a competitive municipal' system. In such a plan it is evident that duplication of investment and service will be inevitable, and the validity of the five-block law must be established. The time has now arrived for the City of San Francisco to estab- lish a definite transit policy; either to ulidertake a prolonged war- fare of competition with established lines, or else to accept a reason- able compromise and subdivision of territory served between the municipal and private systems until such time as it is able to assume the financial burden of the entire transit system. APPENDIX Table I. Summary of mileage and approximate cost of exten- sions segregated into periods of construction (unified system). Table II. Description of streets traversed by extensions (unified system). Table III. Detail of mileage and maximum grades of exten- sions, single and dovible track (unified system). Table IV. Additional extensions essential to municipal com- petitive system. Table V. Extensions to unified system forming part of private system or connections thereto. Table VI. Program of improvements in cit}^ plan necessary for the completion of the transit extensions contemplated. TABLE I— APPROXi:\rATE COST ANALYSIS OF EXTENSIONS. Including only roadbed, overhead, cars, and power converting equipment.* Miles of single Per cent of grand Period. track. Cost. total. Immediate : City 66.92 Outside 4.76 71.68 $5,730,000 51.0 After five years : City . .' 44.00 Outside 3.79 47.79 3,820,000 34.0 Ultimate : City 21.37 Outside 0.0 21.37 1.710.000 15.0 Total city 132.29 94.0 Total outside control . 8.55 6.0 Grand total 140.84 $11,260,000 100.0 EXPLANATORY NOTES. The detailed routes to be established over these various extensions and the necessity therefor will be developed in full in the final treat- ment of ' ' Rerouting and Service Redistribution. ' ' Similarly, street improvement work necessary for the construction of these extensions will be analyzed in "Improvements in City Plan." This extension program does not contain possible future lines and extensions along contour streets that may be developed from resubdivision of hillside tracts now inaccessible because of prohib- itive grades resulting from the rectilinear plan of subdivision. LTnquestionabl.y, such resubdivision will develop desirable additions to this program, and possibly some changes. ♦Assuming power purchased, alternating current, thus excluding cost of power stations and transmission lines. ) >-p. -r fe ' rn O _ _ 0%::: > pq ■M U CO a ^1 Cl-3 ^^ ^C H i3 _-M ,0)05 ^ « 2 r-'^ d p C.S 2 5 o ;3 ^ aj < : .M "E .S 2 25 G 0) b 'P "te f^ ri 5 "ti 2 0) 3 ^ - o > o C CD o Wra. > 02 '^r. C m 0) o i3ior;-m' ; 3 D S 5£ ^ & ca ^ C ^ m : . 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Si- fc a] 0': . c^j=Zo^S6£ 4 1 £ 1 ^ ; i 1 IsSfioarnKMOH mZ?KmS ^w3a W Z^ zed S5Eh 5j aj - jmitted Dec. 23, 1912. REPORT ON TRAFFIC AND SERVICE In the Downtown District TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 11 Submitted Dec 23, 1912. BION J. ARNOLD FIGURE I— TYPICAL DAILY TRAFFIC LOAD CURVE. Showing outbound, inbound, and total passenger travel for the United Rail- roads system for eacli hour of the day. The fluctuations within the hour are not indicated in this diagra':n. The shaded section indicates outbound travel which gives the most severe daily peak. Note that the morning peak, inbound (dotted lines) is considerably less severe than the evening outbound peak, which simply increases the difficulty in arranging schedules convenient for extra or tripper trainmen. TRAFFIC AND SERVICE IN THE DOWNTOWN DISTRICT PRELIMINARY REPORT No. 11. RESULTS OF TRAFFIC COUNT FOR COMPOSITE DAY AND ANALYSIS OF RIDING HABIT AND SERVICE STANDARDS. Board of Supervisors, City and County of San Francisco. Gentlemen : In accordance with Resolution Number 123 of your Board, I herewith submit my report upon the existing street railway service in San Francisco and the conditions under which such service is rendered, with oreneral recommendations thereon, which are supplemented by detailed recommendations in that chapter of my final report dealing with Rerouting and Service Redistribution. The object of this report is: 1. To show the magnitude of the problem of transporting dur- ing one hour of heaviest travel over 20% of the total daily pas- senger traffic at a rate four to five times the average for the 24 hours. 2. To indicate what character of service is being rendered by the various railway lines under these conditions. Owing to the variation in travel from day to day, this traffic study cannot represent all conditions that occur, but rather is in- tended to give an impression of typical operating conditions exist- ing during a normal business day, that is, excluding Saturdays and Sundays and other days of unusually light or heavy travel. Further, the report is confined to the "down-town" or loading district, the outer limits of which may be defined, from a traffic standpoint, as including the points of maxirmnn outhaund loading on the individual routes; that is, the limits within which the load- ing of cars is completed. These points form the basis of a so-called "Cordon count" of traffic, the object of which was to intercept during the maximum rush hour every outbound passenger on his homeward journey. This sub-division of the traffic problem into business district and out-lying district is an entirely logical one, as the needs of the former differ entirely from those of the latter. Footnote: For exhibits accompanying report, see Page 20 and Appendix, SAN FRANCISCO TRANSPORTATION PROBLEM SUMMARY OP CONCLUSIONS AND RECOMMENDATIONS. 1. Adequate city transportation is largely a question of meet- ing on the one hand the capacity demands of the four rush hours, when one-half of the total day's travel must be handled, and, on the other, of providing a reasonably frequent headway during the remaining hours of light travel. The former requires, for four hours only, about twice the number of cars and crews necessary for the balance of the business day. 2. Outside of the extra investment in rush hour equipment, the greatest problem is to provide a reasonable day's work for rush hour trainmen without running idle cars during the day to fill out the working day of "tripper" men. 3. Of the two rush hour periods, the evening has by far the heavier travel— easily 100% greater than the average for the busi- ness day, and 20% greater than the morning peak. On practically all lines, maximum travel occurs within a short period from 5 :15 to 5:30 p. m., and is approximately 10% higher than the hourly average. 4. A composite passenger count of all lines leaving the busi- ness district during the evening rush hour indicated a total home- ward travel of about 49,000 passengers per hour, 84% of which was city bound, and only 16% transbay commuters. Although nearly 15,000 commuters cross at this time each day. Ferry bound riding was found to be generally light, as over half of the commu- ters, encouraged bj^ street and terminal obstructions, walk to the Perry. 5. Over 42% of the total traffic was carried by Market and Mission Streets, while the remaining streets of the Mission were comparatively little used, thus indicating the desirability of re- routing. All Market Street lines carried less than 12,000 passen- gers per hour, which gives an indication of the capacity of such a throat of travel. Powell Street, although using the smallest cable cars of the system, was the heaviest loaded cable line, and only carried about 1500 passengers per hour. 6. The operations of the Traffic Squad have been effective and should be encouraged, as street congestion is responsible for a con- siderable reduction in speed and carrying capacity. The average operating speed in the terminal district is exceedingly low, but since 1905 the average schedule speed for the city has increased from 7.6 to 8.5 miles per hour, or over 12%. 7. Every effort should be made to eliminate unnecessary stops, as recommended in Report No. 6, on the * ' Relief of Lower Market ' '. Within the usual range of speed, a reduction of one stop per mile will result in an increase in speed of about 5.6%, 8. A study of car distribution indicates an excessive number of cars on lower Market Street and operating over and above the TRAFFIC AND SERVICE 5 schedule, due to the progressive delays extending to and in the Ferry loops. This will be relieved by rerouting and terminal im- provements. 9. The prepayment principle for collecting fares has not been given a fair trial in San Francisco especially as applied to short platform cars designed for non-prepay collection, particularly those fitted with fare boxes, which require about two-thirds more time to load a passenger than for the long platform of the latest Oakland cars. With a properly designed platform, passengers can load at a speed of about one second each. 10. A comparison of official schedules of 1909 and 1912 indi- cates on the whole a small increase in equipment operated as deter- mined by trips scheduled. Checks against operating schedules cover- ing every car in the system showed that practically all of the available rolling stock is being operated, there being only 8% idle cars out of the total, 5% being held for emergencies and the re- mainder undergoing repair. 11. The most direct measure of service is the average loading of equipment during a period long enough to secure typical re- sults. This is expressed as total passenger load in per cent of seats furnished, or as per cent excess loading over seats. 12. Comfortable standing should be limited to 50% above stand- ing capacity for cross seats, 100% above for longitudinal seats, or 3 sq. ft. per standing passenger allowed for normal maximum ca- pacity. Thus, the California type prepay car, as used on Geary Street, should not carry much over 100 passengers maximum at one time. 13. Analysis of service standards indicates excessive loading on many routes. While the average car loading throughout the city during the rush hour was 58% in excess of seats furnished, that of Mission Street was 112% for the hour and for the heaviest 15- minute period both Market and Mission throats showed 135% ex- cess loading over seats furnished. 14. Individual car loading was frequentl.y so excessive as to make it impossible for conductors to reach passengers on non-pre- pay cars. In one case 90 passengers were missed on a single trip — 38% of the registration — which shows the necessity for prepay- ment platforms, properly designed. 15. The most prolific cause of excessive car loading is irregu- larity of headway, due to street obstructions, careless dispatching, or improper schedules. At present, delays of three to four times the headway are common. 16. Of all lines throughout the city, those operating on Mis- sion Street are heaviest loaded, and require first attention in de- crea.sed headway and better equipment. Of the several cable lines, Powell Street conveys the most passengers during the rush hours, and with the most inadequate equipment. 6 SAN FRANCISCO TRANSPORTATION PROBLEM 17. The great interchange of transfer passengers clearly in- dicates the effectiveness and need of cross-town lines in city ser- vice. 18. The new equipment now under construction will probably reduce the average excess rush hour loading from 58% now to about 38%, which will hardly suffice for the present, even neglecting the needs of the Exposition in 1915, unless by means of a general re- routing, much car mileage now imused can be conserved where most needed, thus giving more service for the same number of equipments and trainmen on duty. 19. In conclusion, permanent relief from the conditions above enumerated may be obtained only by, 1st, an increase in car mile- age (carrying capacity) to be secured through effective rerouting and additional equipment ; 2nd, more uniformity in headway to be secured by improved schedules, inspection and dispatching, and de- creased street obstruction ; and 3rd, increased operating speed, both in the loading of passengers and along thoroughfares. Respectfully submitted. C2^ Consulting Engineer. Prepared Dec. 14, 1912. TRAFFIC AND SERVICE GENERAL DISCUSSION. The Problem of the Rush Hour. The wide fluctuation in ca- pacity demand during various hours of the day is due principally to the fact that the requirements of business cause practically all the business population of the city to be moved to and from their homes at about the same periods of the daj' — that is, from 7 to 9 a. m. and 4 to 6 p. m. During these four rush hours, approximately one-half of the total day's travel must be handled. The accom- panying diagram (Fig. I.) indicates graphically the enormous fluctuations in travel that must be met by a properly operated rail- way system. Furthermore, a considerable difference exists between morning and evening travel in the suddenness and severity of the peak loads. Owing to the lesser rigidity of business hours in the morn- ing, travel is spread over a longer period than in the evening, re- sulting in a lower peak load. Thus, the mithound evening peak is 2.4 times that of the morning; while the morning inhound peak is only 1.4 times as great as the inbound evening peak. And finally, the diiference in this fixed riding habit is sho\Mi in a total evening peak, both inbound and outbound, 1.2 times or 20% more than the morning peak. It is thus clear that any condition tending to re- strict business hours within definite limits tends to accentuate the suddenneas and severity of the daily rush hour peak load, and the difficulty of giving adequate service. Analyzing the evening rush hour travel in more detail, it is found that the maximum on practically all lines occurs in this city between the hours of 5 and 6 p. m., outboimd. This is shown in Fig. II where the maximum crest for the entire system occurs with- in the second 15-minute period. As these counts were taken at the point of maximum loading on the individual routes, the maximum period — 5:15 to 5:30 — simply reflects the result of the closing of the official day at 5 :00 p. m. ^Market Street alone shows the pe- culiarity of a peak later than 5 :30, due to the closing of the retail stores generally at 5:30. However, the total variation within the hour is only 2,400 out of 12,500 passengers, or less than 20% of the total. The problem of the rush hour therefore constitutes the major problem of street railway transportation, on account of the burden it imposes in the matter of extra equipment and accessories, and particularly extra platform expense (motormen and conductors) for short-time men, who are forced to accept a four-hour working day or thereabouts, unless the midday schedule is deliherately in- creased for the sole purpose of giving these short-time men reason- able employment. This conclusion, then, is capable of two inter- pretations : 8 SAN FRANCISCO TRANSPORTATION PROBLEM First. With an adequate day service, the rush hour service must be exceedingly poor. Second. With an adequate rush hour service, the day service must be unnecessarily good. This condition, in effect, has occurred in the street car opera- tions of this city. While the maximum evening travel is 2.4 times the minimum midday travel, the maximum car movement is only 1.65 times that of the minimum midday — that is, 65% additional trips are run during the evening rush period, which is far too low for a proper balance of service. In most large American cities practically double service during evening rush hour is found nec- essary. This rush hour service ratio must be interpreted with cau- tion, however, and in the last analysis, the only absolute criterion is actual average loading of equipment. This has been determined by the composite day counts, as later presented. Even this meas- ure of the possibilities of service may be misapplied, for it is pos- sible by a too rigid application of the unit capacity rule to pre- scribe a rush hour service that cannot be sustained by the resultant net earnings from the business. Seasonal Variation. In this connection, it should be recalled that the seasonal variation in traffic in the City of San Francisco is relatively small,* as the riding is nearly as heavy in summer as in winter, so that practically the same rolling stock may be used throughout the year. In some cities, where the seasonal and cli- matic variation is many times greater, an entirely separate equip- ment of summer cars becomes necessary, the duplicate investment in which lies idle during the winter months and vice versa. This condition manifestly results greatly to the interest of any company operating in San Francisco in reducing its investment and thereby increasing the possibilities of good service. Vehicle Traffic Counts. One very serious cause of the in- creased difficulties of giving adequate service is the interference of vehicle traffic. A very material improvement, however, has resulted from the institution of traffic regulation in this city by the Traffic Squad of the Police Department, with the result that heavy and slow-moving vehicles are being gradually encouraged to seek and follow less congested thoroughfares, which has greatly facilitated passenger movement. t Table I shows the actual volume of traffic which now exists at the various intersections listed. The more ef- fective this regulation, the more will passenger transportation be improved in this city. As an illustration, the vehicle movement at Fourth and Market Streets has already been reduced by traffic regulation over 100% since last year. ♦About 10% above and below mean; Maximum, October, November; Minimum, June, July. fTyplcal conditions of the congested downtown street intersections have been illustrated in my report on "Methods for the Relief of Lower Market Street Congestion." TRAFFIC AND SERVICE 9 Schedule Speed. The average operating speed on typical main thoroughfares has been compiled in Table II for the purpose of comparing the so-called "city terminal" district with typical sec- tions of lines in other parts of the city, where slow, medium, and rapid running occur. While the average schedule speed for the entire city is 8.5 miles per hour, the actual operating speed in the terminal district is but little over half — 4.4 miles per hour; in the next zone of operation, 6.7 ; further out in the districts where ve- hicle interference is small, 8.9 ; and finally on thoroughfares clear of interference, as high as 11.3 miles per. hour. This exceedingly low speed in the central terminal district, av- eraging about the same speed as brisk walking, undoubtedly ac- counts for the loss to the railway company of a very large amount of short-hmil traffic, which is by far the most lucrative of all the traffic handled. Therefore, any measures tending to increase run- ning speed u'iU make possible more service in the poorly paying outlying districts for the same total income per year. Since the electrification of the cable lines, the schedule speed has increased about 12% and is continually improving, thus realiz- ing one of the greatest advantages of electric service. 1905—7.599 1908—7.91 1911—8.43 1906—7.647 1909—8.113 1912—8.509* 1907—6.85 1910—8.284 These average figures are based upon the actual car hours or running time of trainmen. Effect of Too Frequent Stops. Another important element in preventing high schedule speed is too frequent stops. Numerous observations made on various routes indicate a relation betw^een stops and speed as follows : 10 stops per mile, 528 ft., 7.5 miles per hour. 8 stops per mile, 660 ft., 8.4 miles per hour. 6 stops per mile, 880 ft., 9.4 miles per hour. 4 stops per mile, 1320 ft., 11.0 miles per hour. 2 stops per mile. 2640 ft., 13.7 miles per hour. Thus a stop at every city block of 400 feet permits a speed of only 6.4 miles per hour, while a stop at every other block would permit an increase in speed of over 40%— to 9.2 miles per hour. This illustrates the necessity of eliminating every stop not actually needed for serving the majority of passengers, and also the desir- ability of alternate stops in sections of the city where very short Mocks occur. That 550 ft. is not an unreasonabl hardship is ap- parent from the fact that the standard block in the 100- Vara dis- trict is now 550 ft. wide by 825 ft. in length along trunk lines. In the Western Addition the average block is only 275 ft. wide ♦Eight months only. 10 SAN FRANCISCO TFIANSPORTATION PROBLEM along tnmk lines, making possible over 19 stops per mile — entirely too many for a through or trunk line. An effort may well be made to improve conditions on all trunk lines in the city, of which the following are typical : stops per Mile. INIarket Street, one mile west from Ferry Building. 11 Misvsion Street, one mile west from Ferry Building. 9.4 Sutter Street, Market Street west 11 Third-Kearny, Mission Street north 16 Fillmore Street, McAllister Street north 16 Ninth-Polk, Post Street north 15 Cable lines, from termini 12 For one stop per mile saved (within ordinary ranges of speed) an increase of speed averaging ahoiit 5.6% will he realized, this percentage increasing in proportion as the speed of the line in- creases. Relative Loading Time. The results of a large number of ob- servations on the various types of cars in service referred to in a previous report on lower Market Street indicate that the prepay- ment principle has not been given a fair trial in San Francisco, because of its being applied to cars designed for non-prepay ser- vice with short or constricted platforms. Thus, for a group of 25 passengers boarding at one point (a condition which occurs at the Ferry regularly), the short platform cars fitted with fare boxes require about two-thirds more time per passenger than for the long platforms in the latest Oakland cars fitted with a movable handrail- ing. A graphical analysis of these various types is presented in Fig. Ill/ In Report No. 7, Part II, detailed recommendations are made for the improvement of the present platforms and entrances in order to facilitate loading speed on old as well as new equipment. That a large improvement can be made is evident b.y comparison with other cities. Thus, in Chicago, on standard prepayment cars with long platforms, passengers are loaded at a speed under one second per passenger for the ordinary group of six to twelve per- sons. Under the same conditions, San Francisco cars require at least one-half more time to load the same group. Car Distribution. An effective graphic illustration of condi- tions in San Francisco resulting in the present congestion of cars along Market Street is the car location map, Fig. IV, showing the actual distribution of all cars on the system at the time of maxi- mum evening traffic — 5 :15 p. m. While the rectangular plan of streets south of Market provides outlet thorouglifares for cars from the business district along parallel streets, no such thoroughfarer exist north of Market, with the result that all lines of the Western Addition, as well as the cross-town lines of the northern distri(K TRAFFIC AND SERVICE II must feed directly into Market Street, resulting in the congestion indicated, which is equivalent to an average headway of only 29 seconds between cars. This condition can only be relieved by the improvement of load- ing speed, diversion of unnecessary vehicle traffic, and rerouting of cars in the terminal district, plans for M^hich are presented in another chapter. Comparisons of Headway, Past and Present. The actual headways observed on the various routes are of interest here as com- pared with previous records. (1) Service count, conducted by the Chamber of Commerce in 1909. (2) Schedule submitted by operating company to the Board of Supervisors in 1911. (3) Check count made during the present year prior to the composite traffic count, and without the knowledge of the operating company. These comparative checks show not only a general improvement in service, although small, but also no evidence of attempt by the operating company to temporarily improve the service on particu- lar lines counted while the traffic record was being obtained. Fur- ther evidence against possible distortion of the records by the tem- porary addition of cars is offered by the fact that the entire avail- able equipment has been in regular service, which automatically prevented any further equipment being pressed into service. Check on Service. Additional check counts were made on July 1st and July 15th without the knowledge of the operating de- partments for comparing the official operating schedule with the equipment actually operated on the streets during these typical working days. At the same time, the equipment reserved in the car houses and shops or storage yards was noted, with the follow- ing results, indicating a very slight variation in commissioned equipment : July 1st July 15th. Number of trips operated 7,594 7,607 Number of cars commissioned 596 607 Practically all of the available rolling stock was operating un- der the existing week-day schedule — that is, every car was sent out on a rush hour trip, either on a "regular" or an "extra" run. Out of a total of 661 cars, 32 cars were found in the various car houses and 22 in the car shops undergoing repair. Thus with only 8% idle cars, 5% were held ready for emergency service. The operating company is therefore using its available rolling stock to the best possible advantage, and it is a creditable showing that so large a percentage of its equipment remains in service, which indi- cates a high degree of maintenance. This, of course, has no bear- 12 SAN FRANCISCO TRANSPORTATION PROBLEM ing upon the question whether or not this equipment is adequate for the requirements of rush hour service. Car Capacities. In the development of a "service standard," an element of pure judgment arises in what may be considered as car capacities — that is, seated load plus standing load. Various methods have been applied heretofore to obtain a measure of "com- fortable" standing capacity: First. Standing floor area has been computed at a fixed num- ber of square feet per passenger, considering standing passengers as distributed indiscriminately throughout the car without refer- ence to the maintenance of a proper aisle space. Second. An arbitrarj^ number of standing passengers is al- lowed opposite each seat. I am inclined to favor the second plan, as it is definite and more applicable to the particular type of car under consideration. Thus, as a general rule, for cross seats 50% additional standing capacity will permit of the maintenance of the proper aisle space — that is, one standing passenger opposite each two seated ; and for longitudinal seats 100% — that is, one standing passenger opposite each seated passenger — both exclusive of platform. The longest platforms of San Francisco cars will accommodate from eight to ten standing passengers, and the short platforms, five or six. This rule applied to the wide Sutter Street cars on the one hand and the standard Geary Street cars on the other results in a relative "comfortable" capacity of 98 and 81 respectively, both with 44 seats in the car body. While the above rule may be regarded as a "comfortable ca- pacity" for the modem double-truck San Francisco car, excessive loading under unusual traffic conditions such as baseball games warrants a higher loading. On a basis of three square feet per standing passenger, the wide longitudinal seat car will accommodate 104 passengers, and with two square feet per standing passenger, 120 passengers per car. It is therefore recommended that reasonable standards to be applied to all types of cars are as follows : (1) Comfortable standing, 50%i in excess of cross seats, and 100% in excess of longitudinal seats. (2) Normal maximum capacity, three square feet per stand- ing passenger. (3) Emergency maximum capacity, two square feet per stand- ing passenger. The accompan^dng "Capacity" Table III., is based upon these standards, and applied in the rerouting studies later discussed. It % is of interest here to note that on this basis, the carrying capacity of a trunk line operating under 30-second headway (as in the case of Market Street) will be as follows: TRAFFIC AND SERVICE 13 "■California" Type Longitudinal Seat Prepay Car. Prepay Car. Per Car. Per Hour. Per Car. Per Hour. Comfortable carrying capacity 81 9720 96 1152D Normal maximum capacity.... 87 10440 109 13080 Emersrency -maximnm capacity 105 12600 134 16080 Preferential Standing. Allowance must be made, especially in San Francisco, for the existing fact that many passengers stand by preference even when seats are vacant. The proportions to which this preferential standing may extend are well brought out by an investigation by the Wisconsin Railroad Commission cover- ing many thousand observations, and which showed that with a full carload as high as 20% of the seating capacity represents sta/nding hy preference. This only emphasizes the necessity of a car design for San Francisco which will recognize the desire of many persons to stand, especially smokers, and consequently the necessity of providing ample open-air space. This relation is ab- stracted from reports of the Wisconsin Railroad Commission. (Harris on the Milwaukee St. Rys.), as follows: Total 'Load on Car.* 1-4 Total Average Passengers Standing by Preference. 1 Percentage Standing by Preference. 5-9 1. 3 20. 10-14 15-19 2 3 17.75 17.9 20-24 4 18.2 25-29 30-34 5 6 18.5 18.8 35-39 40-42 7 8 19.1 19.5 Passenger Flow — Rush Hour. In the study of travel dur- ing the maximum or evening rush hour, it is necessary to consider only that outbound from the business district in defining the exist- ing service standards. Although the same number of cars are actually operated inbound, the inbound travel is extremely light and the cars are so operated that they may loop and return to the loading district at the proper time to pick up outbound travel. This simplifies the study considerably and malvcs it possible to illustrate rush hour conditions by means of such a diagram as shown. Here the traffic is considered as originating in all directions from the center of the business district, Third-Kearny-Market Streets, con- sequently trans-bay traffic bound to the Ferry on so-called "in- bound" cars are here considered as outbound travel, but computed separately. The graphical record, Fig. V., clearly indicates the preponder- ance nf traffic on Market and Mission Streets, the convergence of * 42 -seat car 14 SAN FRANCISCO TRANSPORTATION PROBLEM Western Addition traffic into the Market Street throat, the rela- tively large traffic already on Mission Street as compared with parallel thoroughfares, the relatively small carrying capacity of the cable lines; and finally, the small amount of traffic riding to the Ferry as compared with the total known trans-bay traffic, due to the prevalent walking habit of these commuters. From this diagram, it is clear that the streets of the 100-Vara District, parallel to Market and Mission Streets must be used more for the relief of these more important thoroughfares, for the diver- sion of traffic from Market to Mission Street would serve no useful purpose unless some of the present Mission Street traffic were di- verted further to the south. As Howard Street is the only low- grade parallel artery that may be reserved for heavy vehicle traf- fic, Folsom Street must be pressed into further use for traffic to and from the Mission. Total Rush Hour Travel. A summary of observations on all these various outbound routes. Table V., shows that for a typical composite business day, slightly less than 49,000 passengers travel homeward on the surface cars during the maximum rush hour per- iod — 5 to 6 p. m. Of this total, 42,500 or about 87% were handled by the electric lines, and less than 13% by the cable lines; and 41,000 or about 84% represents city-bound traffic, the balance or 16% representing trans-bay commuter traffic to the Ferry terminal. Of the 42,500 passengers travelling on the electric lines, the Mar- ket Street lines carry 11,722 per hour, or 27.6%, Mission Street lines 6,431 or 15.1%, and the Sutter Street lines, 3,567 or 8.4%. The heaviest cable line, Powell Street, carries less than 1,500 pas- sengers per hour, which slightly exceeds the travel on Jones-Hyde cable line. Thus the smallest cable cars of the system are called upon to handle the heaviest rush hour travel, although least adapted for excess loading. In addition to this street railway travel, the ferries carry the following commuter travel during the maximum evening rush hour : Per Hour. Total commuter traffic to Oakland, Berkeley and Alameda 12,480 Marin County 1,730 Total, transbay 14,210 Deduct city travel to Ferry 7,838 Pedestrian commuters to Ferry 6,372* Add city-bound travel 40,821 Grand total outbound passengers, exclusive of commuters walking to Railroad Depot 55,031 *To check this figure, a count of pedestrians was made by the Traffic Bureau, at Market Street and The Embarcadero, which showed 5,000 persons using the north side, and 2,410 the south side of Market Street between 5 and 6 p.-m., or 7,410 persons total through the Market Street throat. TRAFFIC AND SERVICE 15 Throat or Cordon Counts. Data for the throat or cordon eounts comprised in the totals presented above were obtained by stationing observers at the various points of maximum loading on each of the outlet throats of travel. (Table IV.) The resulting records, shown for convenience in graphical form, indicate not only the fluctuations in traffic within various periods of the hour (Fig. II) and the relative loading of cars with respect to the seat- ing capacity (Fig. VIII), but also the comparative regularity of cars on schedule. (Fig. VI,) Thus, for the Market Street throat at McAllister Street, cars passed at an average of 28 seconds head- way, with only two or three delays between cars, the maximum, 1'45" duration. The wide variation in passengers carried per car is in fact a peculiarity of riding habit, rather than due entirely to irregu- larity of headway. There will be noted in Fig. VI two crests of travel : First — From five o 'clock shoppers and office employees ; and Second — From the closing of business at 5 :30 p. m. Individual loads occasionally appear extreme — in several eases as high as 150 passengers per car of 44 seats seating capacity; and this represents passengers actually on the car at one time, rather than the total aggregate fare registration at the end of the trip which might result from multiple riding. In contrast to this outbound iMarket Street throat, the out- bound traffic to the Ferry is exceedingly light — for the most part telow seating capacity. Only two peaks occur— shortly after 5 and 5 :30 p. m. As previously pointed out. this is due to the walk- ing habit of trans-bay commuters. The Mission Street throat, observed at Tenth Street, shows a very excessive peak for five o'clock traffic, and great irregularity in headway. This irregularity has been confirmed by other ob- servations of terminal arrivals and departures at the Ferry. These IMission lines undoubtedly show the heaviest loading of cars of any of the lines of the city, and on such lines as "24th &, Hoffman" the equipment is least adapted to care for this exces- sive loading. With an average headway of w- seconds, delays were recorded of 3'30" duration, which resulted in a maximum load as high as 185 passengers for a 44-seat car. This is all the more pronounced in view of the fact that when the ^lission Street cars are uniform in headway, the fluctuations in loading due to riding habit are not nearly- as sudden as on ^Market Street. The Sutter Street throat, counted at Polk Street, showed fair uniformity'' with maximum loads of about 100 passengers when no delays occurred, or 125 Avith delays of 3'45", and Avith no pronounced 5 o'clock and 5:30 peak. This throat approximated more nearly a proper standard of service than any other lines of the city. The California Street count sliows a remarkable uniformity in 16 SAN FRANCISCO TRANSPORTATION PROBLEM riding habit that can only be explained by its having an indi- vidual patronage, and it is the best example of the suppression of violent rush hour peaks as the result of uniform headway. The rush hour loading standard is easily within the limits of com- fortable standing, as defined above, although it is to be said that standing continues for the entire length of the line, whereas on the longer electric lines, standing does not continue beyond one- half or two-thirds of the run. The traffic on Geary Street, just before the replacement of the cable line, indicated in some respects a similar uniformity in patronage throughout the rush hour and with somewhat lighter loading than California Street. The Powell Street cable line, on the other hand, shows a ten- dency toward two peaks during the rush hour, as in the case of the electric lines, and with a tendency toward irregularity in headway, which results in exceeding the comfortable standing ca- pacity. Cross-town lines, such as Polk Street and Fillmore Street, show only one crest of travel during the hour, generally following the five o'clock load. The general deductions from these records are that the most prolific cause of overloading is irregularity of headnmy. It is un- questionably the fact that during the time these counts were taken considerable delays were encountered on the Mission Street thoroughfare, due to the excessive heavy vehicle traffic that had to be diverted from Howard Street to Mission Street due to the installation of the sewer, making Howard Street impassable. But at this time, the Police Traffic Squad started in its work, and the traffic congestion would probably have been worse on both Market and Mission Streets, had it not been for the police regulation, which has given most beneficial results. To emphasize this point of delays, it is only necessary to con- sider the effect on waiting patrons of the following observed de- partures from uniform, headway on some of the lines during the rush hour: Line. Departure. Headway. % Off. McAllister 3'18" 2'30" 132.0 Haight 3'15" 2'00" 162.5 Valencia 3a5" 2'00" 162.5 Market 3^5" 2'00" 162.5 Ingleside 6'30" 6^00" 108.3 24th & Mission 8'30" 2'30" 340.0 Bryant . . 2'53" 4'00" 72.0 Kentucky 3'30" 4'00" 87.0 Kearny & Beach 4a5" 4'00" 106.0 Ellis & Ocean 2'00" 2'00" 100.0 TRAFFIC AND SERVICE 17 Compare the above with California Street cable line and Sut- ter Street: Line. Departure. Headway. % Off. Sutter rOO" 2'00" 50.0 California I'SO" 2'30" 60.0 It should be said here that the character of some of the equip- ment on Mission Street is least suited to the handling of these excessive crests of travel. And the first steps toward the im- provement of service should be taken on these lines, rather than on lines such as Sutter Street, where the conditions, relatively speaking-, are not nearly as serious. Load Distribution Along Route. To illustrate the reason for the selection of the points of traffic counts listed in Table IV, it is only necessary to refer to loading curves for typical routes, Fig. VII, which show progressive loading and unloading from terminal to terminal. Here it will be noticed that maximum travel occurs on the various routes at a distance from the origin which has very little bearing upon the location or the length of the route, but rather reflects the peculiarities of the riding habit. On this account, all throat counts have been checked at points of maximum loading with reference only to actual trip records. This diagram, Fig. VII, is designed to show the relative load- ing at various points of the line with respect to the maximum only, and irrespective of the actual number of persons on the car. It may therefore be called the route characteristic curve applicable to all rush hour cars. These records have been ob- tained for all lines and are interpreted in the "Rerouting" chapter. ANALYSIS OF SERVICE. The relative degree or quality of service is best expressed by ratio between seats furnished and total passengers carried at the maximum loading points. It has already been stated that if this average car loading is analyzed by different periods shorter than one hour, the relative loading appears much higher than the aver- age for the hour. In the accompanying analysis. Table V, the percentages are obtained for 15 minutes and 30 minutes, as well as for 60-minute periods. The use of as short a time as 15 minutes is impracticable on lines of long headway, as at least 10 cars should be embraced within the average to secure typical results. Therefore, for the lighter lines, the full hour should be used in studying service standards; for lines such as Sutter and Haight Streets, 30 minutes ; and for the IMarket and Mission Street throats the 15-minute period should be used under normal conditions of operation. Rush Hour. Taking the hourly basis, it was found that the average loading for all lines of city-hound passengers only was 158%, i. e., 58% excess passengers over seats; or for every 100 18 SAN FRANCISCO TRANSPORTATION PROBLEM seats outbound there M^ere 58 passengers forced to stand. For the electric lines only, the corresponding loading was 158.5% and for the cable lines 155.4% of the seating capacity. These figiires give due credit to the operating company for all unoccupied seats — that is, they recognize the standing by prefer- ence, due to the fact that many people stand even with seats vacant, as has been previously explained. This standing by pref- erence is rarely credited to the companies in the consideration of service standards. If the transbay traffic to the Ferry be included, the average loading for the system is then reduced to 131.1%, due to the fact that the Ferry-bound traffic is relatively light, averaging for the hour only 69.2% of the seating capacity, i. e., one-third more seats than passengers. But it is not deemed proper to include in the final analysis this transbay commuter traffic to the Ferry, for the reason that it is handled almost entirely on inbound cars and has no bearing on the outbound city service. It is necessary to state here that the above percentage load- ings, while apparently fair considered on the rush hour basis, are, in reality, entirely too high. It has already been pointed out that the ratio between rush hour and base midday schedule indicated too low a rush hour service standard. These throat counts fully confirm this conclusion. In modern urban transportation, where the rush hour load much exceeds 133% of the seating capacity on an average, excessive standing results. Here the rush hour average of city-bound traffic is 158%, or nearly 20% higher. Analysis by Periods. The serious nature of the existing ser- vice on some of these important lines will be apparent from the following comparison of loading percentages : Maximum Maximum Trunks or Routes. Full Hour. Half-hour. Quarter-hour. Market Street 206 215 232 Mission Street 212 230 235 Sutter Street 190 194 204 Folsom Street 144 180 194 Turk & Eddy 171 180 188 Mission & 24th 230 262 270 Cemeteries 222 241 271 These relations are more striking when shown graphically for successive 15-minute periods. (Fig. VIII.) The maximum crest of travel clearly occurs in the second period for city travel only, while travel to the Ferry decreases steadily after five o'clock. Carrying this analysis to a finality, i. e., to single cars, it is found that extremely severe loading occurs on many lines to an extent of which the usual operating records available give no indi- cation. For example, 23 trips on various routes showed over 200% loading, three trips over 300% and one as high as 383% loading. However, as before stated, individual trips cannot be taken as a TRAFFIC AND SERVICE 19 fair basis for computing service standards unless in conformity with the average record of the period, including at least 10 cars. Check on Conductors* Records. The above mentioned dis- parity between the records of the operating department and those found by actual count may largely be accredited to the fact that it is a physical impossibility for any conductor to keep an accurate record of passengers or fares where continued car loading as ex- cessive as that enumerated above is encountered. And here exists the most forcible argument for the installation of the prepayment principle on all lines. To make sure of results, as many as five observers were sta- tioned on the non-prepayment cars of both double-truck and single- truck type. These counts showed the following missed fares or passengers missed by the conductor on a single trip : 1 line was 90 passengers short; 4 lines were 50 passengers short; 8 lines were 25 passengers short; 13 lines were 10 passengers short. Thus, in one case, the Kentucky Street line, during a typical rush hour period, 38% of the total registration was missed on a single car trip. In comparison therewith, only two prepayment lines showed 10 passengers or over missed by the conductor, the average being four or five, and in these two cases, the excessive crowding on the rear platform (which is against the rules of the Company) prevented the conductor from reaching the passengers clinging to the rear step. It is therefore deemed unquestionable that the prepayment car has served a most useful purpose in securing the proper income that should be derived from the passenger traffic handled which should not be considered for the sole purpose of increasing dividends, as often considered, but also for the purpose of securing from this justly increased revenue the additional car service made possible thereby. New Equipment. For the purpose of a rough comparison, it is estimated that the addition of the 65 cars now under construc- tion for the United Railroads will effect a reduction in the rush hour loading of outbound city traffic from 158% to about 138%. Thus, this new equipment will hardly suffice to bring about a proper service standard for the present, to say nothing of demands of the future or of the Panama-Pacific Exposition in 1915. The exact computations of additional service required, how- ever, should be made upon a standard car-mile or seat-mile basis, which automatically compensates for wide variations in length and speed of various routes. Detailed recommendations upon this sub- ject will be made in another chapter — "Rerouting and Service Re- distribution. ' * TRAFFIC AND SERVICE 2t APPENDIX. Table I. Table II. Table III. Table IV. Table V. Table VI. Figure I. Figure II. Figure III. Figure IV. Figure V. Figure VI. Figure VII. Figure VIII. PRELIMINARY REPORT No. 11. EXHIBITS ACCOIMP ANTING REPORT. Vehicle traffic observations. Typical operating speed of car lines. Recommended capacitj^ of car equipment. Location of various throat counts. Summary of rush hour standards. Detailed analvsis of service standards. Typical daily traffic load curve — Frontispiece, Typical rush hour traffic load curve. Comparative loading time of San Francisco cars. Distribution of cars during rush hour. Relative volume of passenger flow, rush hour, out- bound. Typical record of passenger counts, at outlet throats. Loading characteristics of typical routes. Rush hour variation in service standards. 22 SAN FRANCISCO TRANSPORTATION PROBLEM TABLE I— VOLUME OF VEHICLE TRAFFIC. Observations bv Traffic Bureau, Police Department, during March, April and July, 1912. Average Count Points. Hourly Traffic. Third and Market 730 Fourth and Market 982 Post and Kearny 478 Sutter and Kearny 472 Sutter and Grant 473 Post and Grant 528 Geary and Grant 449 O'Farrell and Stockton 449 Sutter and Powell 323 Ellis and Powell 354 Sutter and Montgomery 459 Third and Mission 721 Fourth and Mission 826 Sixteenth and Mission 420 Polk and Sutter 417 Fillmore and Sutter 160 Post and Stockton 397 Third and Howard 469 Fourth and Howard 468 Sixth and Market 722 TABLE II— TYPICAL OPERATING SPEED— MAIN THOROUGHFARES. streets. Distance. OITY TERMINAL: Market 0.552 Post . . 0.71 Kearny and 'Third.. 0.485 Sutter 0.331 Montgomery 0.443 Average SLOW: Sacramento 1.47 California 2.80 Divisadero 1-48 Third 0.836 Mission 0.595 Halght 0.86 Leavenworth . . ... 0.461 Average MEDIUM: Sixteenth 0.983 Hayes 0.831 Hayes and Stanyan 1.53 Sutter 0.965 Bryant 1.23 LaVkin 0.709 Eddy 1.184 Market and Castro. 1.06 McAllister 1.47 Folsom 0.773 Guerrero 1.09 Gough 0.441 Average RAPID: O'Farrell 1.31 Mission 1.61 Kentucky 1.26 Valencia 1.89 Point Lobos Ave 0.988 Howard 1.07 Fulton 1.48 Clement . . 1.48 Lincoln Way 2.79 Average Average sneed for entire city Time. 7' 06" 6' 45" 5' 45" 9' 00" 4' 30" 11' 30" 21' 45" 12' 30" 8' 00" 7' 00" 8' 00" 4' 00" 7' 00" 6' 00" 6' 00" 6' 00" 8' 00" 5' 00" 8' 00" 7' 00" 10' 30" 5' 30" 8' 00" 2' 45" 7' 30" 9' 00" 5' 45" 11' 00" 5' 00" 6' 15" 6' 15" 8' 45" 14' 00" Miles per Hour. 4.664 6.306 5.058 2.206 5.906 4.416 7.658 7.7 7.104 6.27 5.099 6.88 6.915 6.6i85 8.415 8.3 9.18 9.65 9.225 8.232 8.88 9.08 8.393 8.425 8.175 9.621 8.931 10.48 10.722 13.14 10.26 11.856 10.272 14.17 10.151 11.938 11.311 (schedule), 8.529 Location. Sansome- Powell. Montgomery-Leavenworth. Bush-Howard. Sansome- Stockton. Washington -Post. Stockton -Fillmore. Market -Presidio. Oak -Sacramento. Townsend-Market. Valencia-Richland. Market- Divisadero. Post-McAllister. Bryant-Church. Larkin -Fillmore. Divisadero-Fulton. Kearny-Van Ness. Third-Alameda. Market-Post. Mason -Webster. Gough-Eighteenth. Market -Divisadero. Steuart-Fourth. Eight eenth-Vallejo. McAUister-Haight. Hyde -Divisadero. Third -Fourteenth. Hubble-Twenty-third St. Gough-Mission. 33d Ave.-48th Ave. 3d St.-lOth St. 8th Ave. -33d Ave. 8th Ave. -33d Ave. 1st Ave.-48th Ave. miles per hour. TRAFFIC AND SERVICE 23 TABLE III— CAR LOADING STANDARDS ELECTRIC EQUIPMENT Total Capacity. Per Cent Loading. I. II. III. I. II. III. Type. Seats . Com - Nor- Emer- Com- Nor- Emer^ Routes Operated fort a - mal, gency, forta- mal, gency On ble. Max , Max. ble. Max. Max. 1-12 56 100 106 122 178 189 218 San Mateo. 101-180 44 m 108 134 218 248 305 Hayes; Sutter. 681-698 44 71 99 127 161 225 289 Kentucky. 700-712 43 79 88 110 184 195 256 Kearny; Parkside. 731-745 40 73 97 137 182 243 343 Folsom. 1001-1024 40 73 94 135 182 235 337 Mission and 24th. 1225-1244 48 72 78 82 150 162 171 Cemeteries. 1300-1425 40 73 77 96 182 192 240 Fillmore- Valencia; Fillmore-Sixteenth; Mission-Rich-mond; Kearny. 1500-1549 44 80 87 100 182 198 227 McAllister, 9th and Polk, 1550-1749 44 86 93 110 195 211 250 Valencia, Haight; Ellis-Ocean, Market; 'Ingleside, Howard. Single truck 28 55 75 99 196 288 353 18th St., Fillmore Hill; Sixth and Sansome; Tenth and Montgomery. Geary 47 81 87 105 172 185 223 New. 1912, U. R. R. 49 88 95 121 163 194 246 New. Seating capacity, longitudinal seats, based on 17 inches per passenger. I. Comfortable standing — 150% cross seats, 200% longitudinal seats. II. Normal maximum loading (3 square feet per passenger). III. Emergency maximum loading (2 square feet per passenger), (both plat- forms or both running boards). TABLE IV— CORDON OR THROAT COUNTS- OBSERVATIONS. -POINTS OF Count No. Powell at Post 30 North. Third at Brannan 39 South. Polk at Sutter 25 North. Sutter at Polk 26-A-B West. Eddy at Jones 27 West. Ellis at Jones 29 West. Post at Powell 32 West. Kearny at Sacramento 38 North. Sacramento at Kearny 37 West. Kearny at Pacific (Union line only).... 41 North. Fourth at Townsend 40 South. California at Kearny 33 West. Geary at Jones 34 West. Jones at O'Farrell 35 North. Folsom at Fifth 44 South. Mission at Tenth 51 South. Bryant at Eighth 45 South. Harrison at Eighth 52 South. Market at McAllister 55 West. Market at Sutter 64 East. California at Drumm 106 East. Sansome at Broadway 107 North. Ninth at Mission 108 South. East at Clay 109 East. East at Mission Ill East. East at Mission 112 East. Note: Counts taken at transfer points include outbound transfer traffic on *xunk linea. 24 SAN FRANCISCO TRANSPORTATION PROBLEM TABLE V— SUMMARY OF THROAT COUNTS. Outbound Traffic from Business District, Rush Hour, 5 to 6 p. m. Total passen- gers. UNITED RAILROADS. To City Only — Electric Lines: Third at Brannan 1,555 Polk at Sutter 1,197 Sutter at Polk 3,586 Eddy at .Jones 1,509 Ellis at Jones 2,626 Post at Powell 595 Kearny at Sacramento .... 1,567 Fourth at Townsend 207 Folsom at Fifth 893 Mission at Tenth 6,435 Bryant at Eighth 1,898 Harrison at Eighth 128 ..Market at McAllister 11,722 Ninth at Mission 455 Sansome at Broadway .... 27 Total electric to city 34,400 Cable Lines: Powell at Post 1,479 ■Sacramento at Kearny .... 736 Total calble to city 2,215 Total to city 36,615 To Ferry Only — Electric Lines: Market at Sutter 5,284 Bast at Mission 1,828 East at Clay 36 Total electric to Ferry.. 7,148 Cable Lines: East at Clay 198 Total cable to Ferry 198 Total to Ferry 7,346 Grand Total— LJ. R. R 43,961 Seats Loading — % of seating capacity, fur- For Per max. Per max. nished. hour. 30 min. 15 min. 1,731 101.2 103.4 103.5 748 159.6 173.2 182.8 1,886 190.1 194.1 203.18 880 171.1 179.8 187.6 1,496 175.4 206.0 206.4 522 114.1 121.8 127.5 1,312 119.2 122.1 141.9 968 21.4 24.2 32.3 620 144.1 180.2 194.1 3,024 212.2 230.0 235.0 1,360 139.3 150.9 174.4 377 38.0 46.8 46.5 5,672 206.8 215.1 232.1 792 57.6 72.0 81.9 261 10.3 10.3 13.S 21,649 158.8 168.9 183.0 924 159.9 166.5 167.8 576 127.7 138.1 141.6 1,500 147.4 108.0 156.8 23,149 158.2 163.1 181.1 5.674 93.2 94.2 108.8 3,402 53.7 57.2 61.4 344 10.5 15.7 18.6 9,420 75.9 77.0 89.0 540 36.6 41.2 55.5 540 36.6 41.2 55.5 9,960 73.18 75.4 87.4 33,109 OTHER COMPANIES. To City Only- Electric Lines: Kearny at Pacific 607 Total electric to city 607 Cable Lines: California at Kearny . 1,289 Geary at Jones 955 Jones at O'Farrell 1,355 Total cable to city 3,599 Total to city 4,206 To Ferry Only — Electric Lines: East at Clay 215 Total electric to Ferry. . 215 Cable Lines: California at Drumm 277 Total cable to Ferry ... 277 Total to Ferry 492 Grand Total— Other Lines 4,698 504 532 532 816 816 1,348 4,082 120.3 40.4 40.4 33.9 33.9 36.5 135.2 49.4 49.4 41.2 4L2 46.7 139.3 504 120.3 135.2 139.3 850 780 600 151.7 122.5 225.4 158.1 127.9 242.2 159.8 136.3 254.6 2,230 2,734 161.3 153.8 169.1 163.1 175.5 169.2 59.2 59.2 58.8 58.8 59.1 NOO' er. to c: 00 WJ" ■»(> M s J CD t-^ JO lO o 25 2 I - n 'M I'l - bo 5 i: L« M -j: t-1- c: ii :: ■ i^ CO -r -^ " "" — -A to :o 3^ to CO CO Cvl CO OC GC to CO to to (M to — C-- ::o t* o to cc to rH ^ t^ ^ T-1 C'j n CI to to to to ir: cc -f ■* o to 00 cc lOlOlftl^ ift if^ tra I c a: 05 to c. 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Note the maximum period of travel occurs between 5:15 and 5:30 p. m., excepting Market Street and a few other lines. BION J. ARNOLD FIGURE III— COMPARATIVE LOADING TIME OF SAN FRANCISCO CARS. Indicating- botli the total time and tiie seconds per passenger required for loading various groups of passengers on the several types of San Francisco cars as compared with the latest type of equipment in use in Oakland and Chicago. The box collection here shown applies to short-platform cars only. Both types of Oakland cars shown use fare box collection. Note that long-platfoi-m Chicago cars load from ten to fifteen passengers at a rate of about one second each, requiring a stop of only ten to fifteen seconds as compared with twenty to thirty seconds per stop in San Francisco. FIGURE V— DIAGRAM OF PASSENGER FLOW OUTBOUND FROM BUSI- NESS DISTRICT DURING EVENING RUSH HOUR. This record is based upon a complete traffic count of the entire city at throats of heaviest travel. The relative widths of lines indicate graphically the propor- tionate volume of' travel over the various outbound thoroughfares, also the pro- gressive decrease in load toward the outer termini. Numbers indicate actual volume of travel at various throat points. Note the comparatively small usage of thoroughfares south of Mission Street and small volume of travel toward the Ferry. Third and Kearny Streets are considered as the dividing line of travel city-bound and Ferry-bound, respectively. TS OF OUTBOl'ND RUSH-HOUR TRAVEL. ults of delays in increasing car loading-, variation in riding habit dmiiis the ble travel as compared with the wide fluctuation in travel on electric lines. for the avoidance of delays so as to make uniform headway possible. |L^.- m i J= I i 4- [L U^r: C iilLi f:S ■■iijruh; vi-TVii.'Ai. iincup.n ssENGER ror: \T VARIorS THROATS iT.or.Ni' nr -niiCU TRAXIvl.- This rliasiKiii shows c-omparatlve rfsula rush liour. the romparaUvely small volume of and llie actual headway along trunk lines resulting from the opei' of .ipi'ratlrn. niaxr.num loading of cars as compared with seals, results of delavs in inirmising car loading, variation in ridina habit during the the Perry, the peculiar uniformity of California Street cable travel as compared with the wide fluctuation in travel on eleolric lines. Note the great necessity for tile avoidance of delays so ns to make uniform headway possible. of tributary rou BION J.ARNOLD FIGURE Vn— LOADING CHARACTERISTICS OP TYPICAL ROUTES. Indicating the great variety of conditions to be met in serving long and short- haul lines and those having heavy transfer traffic. "A" shows the heavy loading of south-bound trunk lines at Third and Kearny Streets. At "B" practically the entire Market Street load transfers to the Castro Street cable. At "C" half of the load transferred to and from Market Street. "E" shows the importance of cross-town transfers to the Union Street line. "D" indicates the heavy transfer load to Ellis-Ocean from the Haight Street terminus at Stanyan Street. Observe that Sutter Street cars reach their maximum load within one-half mile of Market Street — i. e., east of Stockton Street. BION J. ARNOLD T! T -- _L 1 " ;Sui^^wt^iSS^5e"CJ CF lY^^ttKm itziizt^i -c:?i icii3f5i:]3i cr- *C58I"*DJ^C ]-[]^I[: " ■ z ^ ^scsEEsi^ ": " i " i C jl M X 3 - X ± 100. x i 4 arr ^'^ i^ —•i^ t ^j^\y C *». X iu — .' # J^ 1 ""^h k 2 rs 1 / J»^^^ 1 ^'I'^T ^- I ji:^ 5v i ^Z^K Ul It* *^ . Sjl ^^5*.-" . ^^ K 'Sll*'"^ ^^ ^^°^ --,j IE IT -+ I^Ol " 5J2^ - 50.1 ll: _ _. !S^»,^ ^ J-^^^i a It It - -V^^s^ ^ '^ b It- li- 1^ \A^ ' fe i: F ? I i^ A k ^k h « ^2S ^ L^L *ZE ^'b g es_«i^ _ _ ""X" ^i* ^'S """ I4 *^.^ 3±: _ S5 ■ _. is i± \?^^ ^§£ 5c it 5 1 ju in!^s 4! ^*»„ t^ I u % ^K^ I. *5" _t H ^ jlll N^^ a_l: S jL 3c^ . 1 i ' 1 i *3S"^S!!i:«QB» Ji 41 ■ x 1 ' 1 1 " 1 IOO._Z HZ .X,^.^ ~r- 4: iL J ,.i»"^^f"f ^ ^ ^ j' f^^aiv_l -4- !_i_ _L_ G Ij M K> - 4: TX ^ir Y rf #! ^?4\ 1 7S ! ir j"^! fe^^» ^ 1 5 ^jt ^s it^ ^ M i *p S tt' ' 55=;ul|vd' ^B ^'^~''~^ a'M. 1 iil'*^>= so.__t?Si± ■*•: -se: ,^ ' jSl^s: _ 4: J^s^ A^C^SS-, _ JL E 41 i t Z^ % ^^^i^^r- - 4^ \ - ^ if 1 ^" I '*~^?[LLT ^ ^ 1 OlJf m- ""'■'-K- ~■. REPORT ON al and Franchise Matters Charter Amendments TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 13 — Part I. Submitted Nov. 5, 1912. REPORT ON Legal and Franchise Matters Charter Amendments TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 13 — Part I. Submitted Nov. 5, 1912. Rincon Publishing Company 28 Montgomery Street, San B^ancisoo LEGAL AND FRANCHISE MATTERS PRELIMINARY REPORT NO. 13— PART I. CHARTER AMENDMENTS. Board of Supervisors, City of San Francisco. Gentlemen : In my Preliminary Report No. 9, dealing with Present Trans- portation Conditions existing in your City, I reviewed very briefly some of the essential matters relating to franchises and regula- tions that must he given serious attention before it will be pos- sible to reach any satisfactory permanent settlement of the vari- ous questions involved in transportation service of San Francisco. This general review emphasized the status of the railway cor- poration with regard to its franchises, the effect of the present city Charter provisions on continued investment of private cap- ital, and the possibility of a contract-franchise plan involving municipal regulation and profit-sharing by which the perplexing problems of the past and future might be merged into that of the present solution. In this report, No. 13 — Part 1, the matters presented to your Board for consideration are the Charter am,endments to be sub- mitted to referendum vote on December 10th, 1912. Conditions to be Met. — There are two distinctly different situations which call for solution in the present Charter revision. 1st. The outlining of future conditions pertaining only to new francliises granted subsequent to the passing of the amend- ments either as (a) Trunk line franchises, or (b) Extension franchises. 2d. The establishment of present conditions which will make possible effective operation under existing franchises and at the same time secure the necessary expansion of the present system by private capital until snch time as the City is able and desires to take over the entire properties as a municipal project. It is evident from a study of the proposed Charter revision amendments that no provision has been made for this latter and most important condition, for, if the proposed amendments were passed, any contract-franchise plan that might be developed and that did not conform to the provisions of the new amendment, however just and feasible the plan might be for the present sit- 4 SAN FRANCISCO TRANSPORTATION PROBLEM uation, would be illegal and impossible to carry out until further enabling amendments were adopted. It therefore seems to me desirable, if these amendments are to be adopted now, that an additional section be ijicorporated in the revised Charter, deal- ing specifically with a possible contract-franchise settlement of existing questions, or else that definite provision be made by means of some form of exemption clause whereby such a settlement plan may be evolved at any time and put into effect independent of the Charter provisions dealing with new franchises. Supplementing this statement of my conclusions and recom- mendations, there will follow in Part II of this report a detailed analysis of the essential elements of a practicable franchise set- tlement plan for present and future traction difficulties; and therein are involved the purchasing power of the City, the earn- ing power of present franchises, the legal questions regarding their validity, the respective rights and view-points of the City, the Corporation, and of Labor. SUMMARY OF CONCLUSIONS FROM PRESENT CONDITIONS. Taking into consideration the available facts discussed herein and drawing upon the experience of other cities in their effort to find a practicable solution of their transportation difficulties, I interpret the present traction situation in San Francisco, as follows : 1st. The City of San Francisco has created, through the high riding habits of its' citizens, an exceedingly profitable traction field from which it should be possible with reasonable capital in- vestment to derive, within the limitations of a 5c fare, a high standard of service, as eon;i|)ared with other cities. This condition of service does not take into consideration the results of such catastrophies as have occurred within recent years to curtail the possibilities of the system. 2d. The powers of regulation over public utilities vested in the municipalities of California are exceedingly broad as com- pared w^ith those of the older cities of the East, and comprehend- ing supervisory power over rates, service, equipment and cap- italization, the reasonable exercise of these powers should place the City in a most fortunate position with respect to utility prop- erties organized after these powers had been confirmed. But be- fore these powers were established, conditions were less fortunate from the City's standpoint, as a result of rights granted. 3rd. The railway corporation is in unquestionable possession of the best-paying city streets for a long term of years, during which time it will be able to earn out of the property nearly three times its present liberal capitalization, provided of course LEGAL AND FRANCHISE MATTERS 5 that in the meantime it renders adequate service over its lines now established. 4th. Being in possession of the short-haul and most profit- able lines, it will be in a better and better position as time goes on to earn large returns, for the reason that the City has no power to compel extensions; consequently, the poor-paying exten- sions will either have to be borne by the municipal system, or else the development of the city grossly retarded. 5th. It is a fact that, even if the franchises of a large por- tion of the city expired at a given time, the pressure of public necessity would absolutely require the corporation to continue service over the unexpired lines until such time as the City was in a position to operate them under a satisfactory system of rout- ing, so that the earning power of the remaining fragments of the system would continue for some time. Since there is nothing in the present franchises requiring the maintenance of the system at a higher standard than that neces- sary to give actual operation, it is quite probable that a general rehabilitation of the system would be necessarj^ requiring per- haps two years, before the City, even though it had possession, would be in position to operate the new system efficiently. 6th. Owing to the fact that the City has embarked upon a fixed policy of mimicipal ownership and possibly competition, the Corporation does not feel justified in making any extensions, and in fact cannot obtain funds therefor from private investors at reasonable prices. The City therefore must face a situation where the Corporation will continue to reap heavier and heavier profits from its short-haul lines, without making the necessary extensions. The effect which this policy has had upon the devel- opment of the city is already only too apparent and it is perti- nent to reflect what the condition would be seventeen years hence, if this policy were to be continued. 7th. At the present time, the purchasing power of the City approximates only $50,000,000 for all utility purposes, and if water bonds are excluded from the debt limit, this purchasing power could be exercised for the acquisition of street railway property. These funds while more than sufficient to acquire the actual physical property would probably fall short of what the present railway companies would consider reasonable, including franchise values under the contractual relations embodied in the present franchises. ^Moreover, it will be shown that the purchasing power of the City is increasing at only about one-fourth the rate of the necessary investment in street railway property, so that its ability to purchase will become more and more inadequate as time goes on, unless a progressive increase in bonding limit be secured, either under or outside of the present basis of determining mu- nicipal debt. 6 SAN FRANCISCO TRANSPORTATION PROBLEM 8th. Financial credit is in most cases a function of stability of property and efficiency of management. Therefore, the ques- tion whether the City can underwrite its utilities at a lower rate of interest than private capital will accept depends upon these two considerations. And the City must not lose sight of the effect that a wholesale expansion of its municipal undertakings would have upon its credit, and especially with reference to the securi- ties previously issued. 9th. The Corporation, on the other hand, is beginning to ex- perience, for the first time in its history, the pressure of regula- tion and supervision, both from the Municipality and the State, and owing to a loss in earnings of approximately $5,000,000 from the Fire and Strike, it finds itself in a financial position not con- templated at the time of its organization. Not having elected to provide for such a contingency, it is difficult for it to absorb these losses under the heavy burden of fixed charges and the pressure for dividends. 10th. The present condition of the property, in spite of the heavy renewals and betterments that have already taken place since the Fire, is such as to require a continued program of re- habilitation, necessarily involving heavy expenditures, only a portion of which may be capitalized as betterments and additions. The nature of these renewals is such that to capitalize them in toto would be a duplication of capital unwarranted in modern sys- tems of accounting. The Corporation, therefore, must find itself confronted with the necessity of retiring this extinguished value out of earnings, which will necessarily cut deeply into the con- templated return. 11th. The attitude of Labor, while at present passive, may become serious from time to time in the future as it has in the past, although not now apparently imminent, as railway wages ii^ San Francisco are somewhat higher than in other parts of the country, being exceeded in but one instance by a Coast city. How- ever, the determination of a proper wage scale is an ever-recurring problem and with the present tendency toward increasing prices, it seems but a question of time when the wage question, in addi- tion to those of financing, franchises, and regulation, will com- bine to render increasingly difficult the operation of the Corporation upon its present basis of capitalization. 12th. The Charter wage scale now in force, as applicable to private corporations, will be shown later to be a practical impos- sibility with a 5c fare under any normal conception of adequate service or reasonable operating ratio. In street railway opera- tion more than in any other public utility, the time limit for working hours and the high minimum wage imposed by the Char- ter, work exactly opposite to the provision of adequate rush hour service. The adoption of this wage scale would prevent the Cor- LEGAL AND FRANCHISE MATTERS 7 poration from earning a reasonable return upon its present bonded debt, to say nothing of attempting to earn a return upon its present capitalization. Even if a reasonable return upon the value of the physical property only were under consideration, the operating ratio under this Charter wage scale would be higher than justifiable under a 5c fare, if adequate service is demanded from the Company. The wage question should be settled from time to time as new conditions arise, with due consideration for the financial and industrial conditions of the community, and it therefore is, in my judgment, an economic error to legislate wages into a Charter. 18th. An analysis of the possibilities of the retirement of in- vested capital during various periods of maturity and at various rates of interest shows that it is practically impossible to retire out of earnings street railway investments within so short a period as 25 years — the limit of franchise term under the present Char- ter — and earn a fair return upon such investment. This arises from the fact that the iaecessary investment in property is three or four times the annual earnings, so that the annuity rate for a term of 25 years may be tis high as 11% of the gross earnings, which represents a much larger proportion of the gross earnings than can possibly be appropriated for the retirement of the in- vestment under a 5c fare. Consequently, the proposed Charter should be changed so as to either materially lengthen the fran- chise term, provide for an indeterminate franchise, or make pro- vision for protecting the investment in the property after the ex- piration of a determinate franchise until such investment can be amortized out of the earnings at a reasonable annual rate. This can be effectively accomplished by the issuance of long-term bonds by the Corporation with the City's consent, and with definite pro- vision for the a.ssumption of this imderlying debt by the City at the end of the franchise term. 14. In perfecting a franchise plan for the present as well as the future, it is most important to appreciate the seriousness of and to provide for the amortization or decapitalization of that part of the original and subsequent investment, which is not now represented by actual tangible property, but which expenditure nevertheless was incurred in order to create the properties as they at present exist ; also the additional capital liability with which the properties were burdened over and above the necessary expenditures just mentioned. Obviously, there are only two plans upon which a property may be organized : First, when it is operated to extinction at the end of an ex- isting franchise term; Second, when it is operated as a continuing property in an- ticipation of renewed grant, or sale to the City. 8 SAN FRANCISCO TRANSPORTATION PROBLEM If operated to extinction, it is evidently incumbent upon the Company to retire all of its capital liability, both tangible and intangible, but if the property is to be continued as will unques- tionably be the case, it is economically unnecessary to burden the community with the necessity of creating a property free of debt within the short life of ordinary franchises. Therefore, the first duty of the Corporation should be to decrease its capital account by amortizing out of earnings all of this so-called intangible value. Summarizing, it is my desire to convey from the above the firm conviction now in my mind, reached only after detailed con- sideration of these various questions, that the present problem is by no means one-sided; that the three factors in the problem — City, Corporation, and Labor — are equally involved ; and that any settlement of these difficulties that is destined to achieve permanent and satisfactory results must be in the nature of an attempt to secure definite, practicable, working results, rather than to strive for the perpetuation of individual rights, all of which are more or less questionable. The great objects are : I. Adequate service; II. The protection of actual investment, whether municipal or corporate ; and III. The highest rate of wages consistent with the limitations of a 5c fare, and the proper maintenance and renewal of the property. Supplementary to these are: (a) The method of regulating the utility. (b) The method of decapitalizing obsolete investment and intangible values. (c) The determining of the question of whether the in- vestment shall be a continuing one or be decapitalized to extinction ; and if the latter, the fixing of the period long enough to make it practicable under a 5c fare. The proper vehicle for the accomplishment of these objects is the modification of the present Charter by suitable enabling amendments which will empower the Board of Supervisors to work out and submit to a referendum vote suitable adjustment franchises which will eliminate present contractual relationships and place the City in position to substitute others therefor which will secure the three objects above enumerated. In Part II of this report, to be presented later, I shall discuss in detail the essential matters, giving in full my reasons for the conclusions herein presented, as I am assuming that, for immed- iate purposes, the details of such an adjustment franchise or set- tlement as has been referred to herein may be reserved until the above-mentioned enabling acts have made such a plan possible. Supplemental to this report I have prepared an analysis of and suggested changes in the proposed amendments to the present Char- LEGAL AND FRANCHISE MATTERS 9 ter, which have been drafted by the Charter Advisory Committee appointed by your Mayor, with a view to the perfection of these amendments from the standpoint of the street railway problem, in order that the amendments when passed may be broad enough to enable the above program to be carried out should it later be deemed advisable by you to do so. Respectfully submitted, Consulting Engineer. Prepared November 4, 1912. APPENDIX PRELIMINARY REPORT NO. 1 3 -Part I APPENDIX TO PART I. Preliminary Report No. 13 to Board of Supervisors City and County of San Francisco.* I. Resume of Provisions in Present Charter, Relating to Pub- lic Utilities. II. Brief Discussion of Proposed Amendments to the Present Charter, Relating to Public Utilities. III. Letter Transmitting Proposed Charter Amendments as Fi- nally Recommended by the Special Committee Appointed by the Board of Supervisors. IV. SjTiopsis by Delos F. Wilcox of Charter Amendments Drafted by the Special Committee. V. Full Text of Proposed Charter Amendment No. 34 as Adopted by Board of Supervisors November 7th, 1912. In the complete amendments as finally passed, the above Char- ter amendments are supplemented by the following: Article XII, Chapter I, "Acquisition of Public Utilities", being Sections 1 to 16, inclusive, of Article XII of the present Charter. Article XII, Chapter II, Sections 1 and 2, inclusive, "Construc- tion of Public Utilities." Article XII, Chapter III, Sections 1 to 5, inclusive, relating to the "Department of Public Service" and creating a Public Service Commission for the City and County of San Francisco. These supplementary amendments, Chapters II and III, as' finally passed by the Board of Supervisors, contain most of the important revisions that, to me, seemed necessary from a study of the amendments as originally drafted. *Upon the submission of the preceding report, the Board of Super- visors decided, after discussion, to proceed upon the theory of submitting to the electors a broad enabling act instead of a detailed franchise code, and ap- iwinted to draft such an act a special committee consisting of Delos F. Wilcox, Chief of the Franchise Bureau, Public Service Commission, New York City; E. A. Walcott, President of the Civil Service Commission, City of San Fran- cisco, and Bion J. LA.rnold. This committee reported November 7th, and the amendments, after thorough discussion by the Supervisors and others, were, with slight modifications, unani'mously adopted on the same date. LEGAL AND FRANCHISE MATTERS 13 I— RESUME OF PRESENT CHARTER PROVISIONS. The Present Charter, which went into effect in 1907, in its general terms was designed to empower the Board of Su- pervisors with broad regulative powers and control over public utilities operating within the City and County of San Francisco. Apparently, none of these powers., as outlined therein, are retro- active — that is, they do not apply to franchises granted prior to 1907 unless specific provisions in the franchises anticipated such future revision as actually took place. The Board of Supervisors has power to determine rates and prescribe service, wages and hours of labor, and to examine books and records, or cause to be made through arbitration proceedings valuations of property which the City desires to purchase. The Charter declares for municipal ownership of utilities with power to take over traction properties at a fair value, including bonus, but excluding franchise value. The franchise term is limited to 25 years and awarded to the highest bidder upon the basis of percentage of gross receipts. Conditions surrounding construction and operation of utilities are specified, failure to comply with them working immediate forfeiture of the franchises, which the Board of Supervisors has no power to relieve. Roadbed and fix- tures become the property of the City at the expiration of the franchise term. A minimum wage scale of $3.00 for an eight-hour day to be completed within ten hours, with a one and one-half time rate for over-time, is specified to apply to all new franchises granted to privately owned street railway companies, but the same conditions are not specified for those employed in municipal enterprises. The Charter, instead of making this condition imperative upon the City, exempts it from the time limit of ten hours in which the eight-hour service must be performed, and also the compulsory payment of a one and one-half time rate for over-time.* ♦This discrimination falls particularly heavy upon a street railway company, owing to the fact that its two periods of daily maximum or rush hour service (each two or three hours long) come so far apart that 'men employed for one of these periods cannot be employed for the other period without the payment of overtime; otherwise the employment of additional men is necessary, thus result- ing in the payment of a proportionately large amount of wages for which no service has been rendered. It would seem, therefore, that street railway employees, owing to these unavoidable conditions of the business in which they are engaged, should be willing to extend the total period during which their services are rendered, provided they are paid a suitable wage per hour with a reasonable minimum wage, especially since the total time of actual service is reasonably short, and since they are free to attend to their own affairs during the interval between rush hour periods. As such short runs are usually and properly assigned to students or apprentices in the business, and the full-ti-iie, regular runs are reserved for the more experienced men, a reasonable disposition of the wage question along these lines should be accomplished, and by this means secure adequate service under a 5-cent fare. 14 SAN FRANCISCO TRANSPORTATION PROBLEM Having declared for ultimate municipal ownership, the Board of Supervisors is empowered to buy or construct utilities when public necessity demands ; but the City 's bonded debt is limited to 15% of the assessed realty value with a maximum limit of 75 years' life of bond issues, redemption to be commenced within 18 years. II— DISCUSSION OF PROPOSED CHARTER AMEND- MENTS. In order to facilitate the fullest understanding of the principles and purposes underlying the construction of this proposed Charter Amendment No. 34, the following discussion of the underlying principles is appended. Briefly expressed, the purposes of the amendment are: 1st. To provide in the Charter a "blanket" enabling act, out- lining the general terms under which detailed municipal ordi- nances may later be prepared by the Board of Supervisors, sub- ject to the referendum vote. 2d. To establish the foundation for a comprehensive franchise or administrative code, defining in specific terms the conditions and limitations under which all new franchises may be granted by the City to private operators. 3d. To empower the Board of Supervisors to carry out a com- prehensive resettlement or adjustment franchise policy by means of which existing grants to private operators may bp merged into those of new or adjusted grants containing specific conditions cal- culated to remove the present obstacles to adequate service and continued expansion. It has been deemed essential in the preparation of these amend- ments that detailed matters relating to the granting of franchises be incorporated in such a comprehensive franchise code, rather than in the City Charter; that, on the other hand, a City Charter should constitute a simple declaration of principles only, by rea- son of the wide variation in the conditions surrounding the grant- ing of franchises to different utilities which will necessarily change from time to time. The Charter amendments are designed to cover all manner of utilities which, in the expressed determination of the City, fall M'ithin the scope of its operations. The Franchise Code, on the other hand, should cover separately, each of the various utilities to be encountered where variations from the general prin- ciples therein expressed need to be specified. In order to carry out the provisions of franchises hereafter to be granted under ordinances passed by the Board of Supervisors in accordance with the terms of the Charter amendments, there LEGAL AND FRANCHISE MATTERS 15 is created in other Charter amendments to Article XII, Chapters II and III, a Public Service Commission for the City and County of San Francisco, consisting of three members appointed by the Mayor, each for a term of six years, except those first appointed, whose terms end July 1, 1915, July 1, 1917, July 1, 1919, respectively. This Commission is to have charge of the construction, extension and operation of all municipally o\Mied and operated public utilities, t^'^ harbor and water-front and all worlds located thereon for the use of com- merce. This Commission will also exercise control over such other public utilities as the Board of Supervisors may from time to time prescribe, but which are not covered by this Charter. It is also authorized to enter into contracts for construction or for materials necessary for the construction or operation of such util- ities, as well as to exercise all other powers over public utilities elsewhere conferred by the present Charter on the Board of Pub- lic Works. Ill— LETTER TRANSMITTING CHARTER AMENDMENT NO. 34, AS RECOMMENDED BY SPECIAL COMMITTEE. To the Honorable, The Board of Supervisors of the City and County of San Francisco. Gentlemen : In accordance with your instructions, we have prepared a draft of Charter Amendment No. 34, relative to the granting of franchises upon which we have been able substantially to agree. Such amendment is submitted herewith with our recommendation that it be adopted for submission to the people at the Special Election on December 10th, 1912. In this amendment we have at- tempted to cover in general terms the entire subject of the grant- ing of franchises leaving to a general ordinance to be enacted later by the Board of Supervisors and ratified by the people the more detailed procedure which may be regarded as essential to protect the City's interests in the granting of franchises in the future. The amendment presented contains, we believe, all or practically all the essential features of a general franchise policy, in accordance with which the City should be able to work out satis- factory practical results. Respectfully submitted, (Signed) DELOS F. WILCOX (Signed) E. A. WALCOTT (Signed) BION J. ARNOLD. Submitted November 7th, 1912. 16 SAN FRANCISCO TRANSPORTATION PROBLEM IV— SYNOPSIS, BY DELOS F. WILCOX, OF CHARTER AMENDMENTS RELATING TO PUBLIC UTILITY FRANCHISES DRAFTED BY THE SPECIAL COMMITTEE APPOINTED BY THE BOARD OF SUPERVISORS. The Board of Supervisors has no authority to grant franchises for any public utility except in accordance with the provisions of the Charter. The outstanding street railroad franchises make no provision for extensions into outlying territory. The outstanding gas, electric and water franchises, acquired under the Constitution of 1879, cover only such streets and parts of streets as were actually occupied with mains prior to the adop- tion of the Constitutional Amendments on October 10th, 1911. Consequently, no extensions of street railroads, gas or water pipes, or electric lines can be made under existing franchises, even if the companies are willing to make them. In every case, new franchises are required. The provisions of the existing Charter relative to the grant of franchises have proved to be impractical, as they tend to penalize the companies for doing what the City wants them to do, namely, extend their lines. For a company to accept a franchise for an extension, under the present Charter, the extension would have to be unusually profitable taken by itself, while in most cases where the extensions would have to be carried by the profits earned on the main lines or in the areas of dense service, there is nothing whatever to induce the companies to build and the City has no power under existing franchises to make them build. This situation has long been critical in regard to street rail- ways, and, under the recent decision of the Supreme Court in the Russell case, will soon become equally critical as to water, gas and electric service. These conditions made necessary the proposed amendment to the Charter relative to franchises. If this amendment is de- feated there will not be another opportunity to amend the pres- ent Charter until two years hence. The proposed franchise amendment is based upon the City's declared policy of ultimate municipal ownership. Not only do all franchises require a three-fourths vote of the Board of Super- visors, but in case they are vetoed by the Mayor, they can be re- passed only by a five-sixths vote. Moreover, the Mayor can, if he wishes, insist upon a referendum, and every grant of a new fran- chise to renew or replace an existing one must be submitted to the people. Entirely new grants and grants for extensions are sub- LEGAL AND FRANCHISE MATTERS 17 ject to the sixty-day optional referendum procedure for due pub- licity, and time for deliberate consideration is carefully provided for. The right of the City to take over the franchise and prop- erty at any time is expressly stipulated, and in order that this power of purchase may be something more than mere power on paper, it is required that provision shall be made in the franchise itself for the accumulation of a purchase fund out of earnings, so that the property will actually be paying for itself, and the City will be getting into a better position in regard to it every year. On the other hand, under the proposed franchise plan, the actual investment of capital in any utility' enterprise would be amply protected and would be allowed to earn a fair return and be sure of not losing out in the end. The requirement in the pres- ent Charter that a fixed percentage of gross receipts mentioned in the Charter itself must be paid whether the utility or the ex- tension is able to pay even operating expenses or not has been cut out. The existing provision that the property in the streets shall revert to the City without payment at the expiration of twenty- five years and forbidding a re-grant beyond that time is also elim- inated, and in place of it is put a more elastic provision to the effect that part or all of the capital must be retired within the twenty-five year maximum period for original grants, but that if the capital has not all been retired within that time and if the City does not choose to buy the property, the holder of the fran- chise shall be entitled to fifteen years more to get his money out. The existing minimum wage provision as applied to franchises is eliminated from the Charter for the reason that it seems better to leave the whole matter of wages to be negotiated in connection with each particular franchise or between the employees and the o-wners of the utility. It makes the Charter conditions less forbidding to capital, and does not prevent the establishment of a minimum wage in the franchise itself if it can be agreed upon at the time. The eight- hour day is kept, but the provision is liberalized with reference to street railwaj^s so as to make the eight-hour day actually work- able under the conditions of that business, which requires the employment of a great many extra men for the rush hours, morn- ning and night, if the people are to have reasonable service. As stipulated in the proposed amendment, the eight hours' work of the operating force of a street railway must be completed within thirteen hours, while in all other utilities the eight hours' work must be completed within ten hours. This change removes a bar- rier that now practically prohibits the enlistment of capital in street railway building. The existing prohibition of all exclusive franchises for pipes, 18 SAN FRANCISCO TRANSPORTATION PROBLEM wires or conduits, which was based on the constitutional provision in force prior to 1911, has been liberalized so that exclusive fran- chises may be granted which would tend to induce private capi- tal to enter outlying fields. But the interests of the City are safe- guarded by requiring that any such franchise must be subject to purchase and must provide for extensions of the plant as the pub- lic needs require. Moreover, under the amendment, the Board of Supervisors does not need to wait for anybody to apply for a franchise for an ex- tension or for a new utility, but may on its own motion declare the necessity for the construction of such extension or new utility. and advertise for bids. The City may advertise in all the financial centers of the world, if necessary, calling attention to the oppor- tunity for investment. But, after all, the most important provisions of this amendment relate to a possible resettlement of the franchises of existing utili- ties to the end that in return for the practical guarantee of their fixed investment and the new money put in from time to time, they shall surrender their outstanding franchises and come in under a new deal by the terms of which the City will get the right peace- ably to acquire the property by paying a fixed price therefor, and the companies will obligate themselves in the meantime to make extensions and begin to retire their capital out of earnings. As an extra safeguard, the City may provide for the transfer of the property to a new company, if, through persistent failure of the old company to co-operate in good faith in carrying out the spirit of the agreement, it seems useless to expect good results from the management then in control, and if the City is not then in a position to take the utility over for municipal operation. At the same time, the Company will be protected against capricious or corrupt action on the part of the City authorities by the require- ment that any new company may be required under the terms of the franchise to pay a bonus to the owner of the property in addi- tion to what the City would have to pay if the property were being taken over for public ownership. > This licensee provision is not made obligatory, but may be in- serted in a resettlement franchise if the City desires to put it in. In fact, the amendment is in effect an enabling act under which the City would be able to open up the whole franchise question with the companies and in accordance with certain general prin- ciples fixed in the amendment, negotiate for a rational resettlement of the big utility problems now confronting San Francisco. As to grants of new franchises that are not resettlements of existing franchises, they are to be regulated more in detail by a general ordinance to be adopted by the Board of Supervisors and ratified by the people subsequent to the adoption of the Charter amendment and its final enactment bv the Legislature. LEGAL AND FRANCHISE MATTERS 19 v.— FULL TEXT OF CHARTER AMENDMENT NO. 34, AS ADOPTED. Describing and setting forth a proposal to the qualified electors of the City and County of San Francisco, State of California, to amend the Charter of said City and County by amending Section 12 of Chapter 1 and Sections 5, 6 and 7 of Chapter 2 of Article 2 thereof and by repealing Sections 7a, 7b and 7c of Chapter 2 of Article 3 thereof, relating to the granting of franchises for street railways and other public utilities, and providing for the surrender and resettlement of franchises and rights now held by persons, companies or corporations operating street railways or other public utilities within the limits of said City and County. The Board of Supervisors of the City and County of San Fran- cisco hereby submits to the qualified electors of said City and County at a special election to be held on the tenth day of Decem- ber, 1912, a proposal to amend Article 2 and Article 3 of said Charter as follows : That Section 12 of Chapter I of Article II be amended to read as follows : Section 12. . When a bill is put upon its final passage in the Board and fails to pass, and a motion is made to reconsider, the vote upon such motion shall not be acted upon before the expira- tion of twenty-four hours after adjournment. No bill for the grant of any franchise shall be put upon its final passage within thirty days after its introduction, and no franchise shall be renewed before one year prior to its expiration, except as other- wise provided in Section 7 of Chapter II of this Article. Every ordinance shall, after amendment, be laid over one week before its final passage. That Section 5 of Chapter II of Article II be amended to read as follows : Section 5. No exclusive franchise or privilege for the construc- tion or operation of any public utility shall ever be granted unless said franchise shall provide for the extension of such utility as public need requires and for the purchase of such franchise and the property of such utility at the option of the City and County of San Francisco, as provided in Sections 6 and 7 of this Chapter. NEW FRANCHISES. That Section 6 of Chapter II of Article II be amended to read as follows: Section 6. The Board of Supervisors shall have power, subject to the referendum as elsewhere provided in this Charter, and sub- ject to the terms of a general ordinance hereinafter provided for and to be passed by the Board of Supervisors and ratified by the 20 SAN FRANCISCO TRANSPORTATION PROBLEM people, to grant franchises for the construction, maintenance and operation of street railways, gas works, electric works, water works, telephone systems and other public utilities upon, or over, or under, or across the streets and public places of the City and County of San Francisco upon the following conditions and in the following manner : 1. No franchise shall be granted for a street railway upon any street or part of a street reserved for a boulevard, except for the purpose of crossing the same. 2. No franchise granted under the authority of this section shall run for a period longer than twenty-five (25) years, except that if at the expiration of the original period of the grant the investment under such franchise shall not have been fully amort- ized and the City shall not exercise its option to purchase the property, the grantee shall be entitled to a renewal or renewals not exceeding in the aggregate fifteen (15) years. Every fran- chise so granted shall be subject to the right of the City and County to recall such franchise prior to the termination thereof or of any renewal thereof upon purchasing or finding a purchaser for such franchise and the property constructed or used in connection there- with upon terms and in a manner calculated to render the legiti- mate and judicious investment of private capital under such fran- chise safe and remunerative, such terms and manner to be pre- scribed by a general ordinance hereafter to be passed by the Board of Supervisors and ratified by the people of the City and County of San Francisco. Such franchise may also provide that at the expiration thereof, the City and County shall purchase or find a purchaser for the property constructed or used in connection there- with, upon terms and conditions to be prescribed in such franchise or by such general ordinance referred to in the last preceding sen- tence and as may be in force and effect at the time of the granting of such franchise. In case any franchise hereafter granted by the City and Coimty is recalled prior to its expiration, the price to be paid therefor in addition to the price of the property constructed or used thereunder is hereby fixed at the sum of one dollar, but this shall not be construed as forbidding the City and County to pa}^ a bonus on account of the cost of developing the business or on account of operating deficits incurred within ten (10) years sub- sequent to the commencement of operation of any such utility and not made up, in addition to a fair return upon investment, prior to the recall of such franchise. But in case the property of any utility is not purchased until the expiration of such franchise, noth- ing whatever shall be paid for such franchise or as such bonus. Provision shall be made in such franchise, or in such general ordi- nance above referred to, for the amortization out of earnings of all or a part of the purchase price of the property prior to the expiration of the franchise, and, except for the bonus above men- LEGAL AND FRANCHISE MATTERS 21 tioned, the entire price to be paid for the property when acquired by the City shall not exceed the fair value, at the time of such purchase, of the tangible property so acquired less the amoimt amortized at the time of such purchase. 3. A franchise may be granted under this section either upon application to the Board of Supervisors or upon proceedings initiated by resolution of said Board declaring that public con- venience and necessity' require the grant of such franchise. 4. Upon application being made to the Board for any such franchise, it shall b}' resolution determine whether such franchise or any part thereof should be granted, and at said time shall deter- mine on what conditions the same shall be granted additional to the conditions expressly provided in this Charter or in any general ordinances then in force relative to such matters. After such de- termination, it shall cause notice of such application and resolution to be advertised in the official newspaper of the City and County for ten (10) consecutive days. Such advertisement must be com- pleted not less than twenty (20) nor more than thirty (30) days before any further action is taken by the Board on such applica- tion. The advertisement must state the character of the franchise sought, the term of its proposed continuance, and the route to be traversed or the district to be served by such utility, as the case may be ; that sealed bids will be received up to a certain hour on a day to be named in the advertisement; and a further statement that no bids will be received of a stated amount, but that all bids must be for the payment to the City and County in lawful money of the United States of a stated percentage of the gross annual re- ceipts of the person, company or corporation to whom the franchise may be awarded, arising from its use, operation, enjoyment or pos- session; provided that all costs of printing, publication and ad- vertising shall be borne by the applicant or applicants. Every bidder shall file Avith his bid a bond executed to the City and County, with at least two good and sufficient sureties, to be approved by the Mayor, in a penal sum prescribed by the Super- visors, and set forth in such advertisement, conditioned that such bidder will accept such franchise if awarded to him and will well and truh' observe, fulfill and perform each and all of the condi- tions, terms and obligations of the franchise for which said appli- cation M^as made in case the same shall be awarded to him. and that in case of the breach of any of the conditions of such bond, the whole amount of the penal sum therein named shall be taken to be liquidated damages, and that as such, shall be recoverable from the principal and surety on such bond. At the next regular session after the expiration of the time stated in such advertisement up to which such bids will be re- ceived, the Board shall open such bids, and shall take into con- sideration the award of such franchise. The Board may reject any and all bids, and may refuse to grant the franchise applied for or 22 SAN FRANCISCO TRANSPORTATION PROBLEM any part thereof. If the Board decides to grant the franchise, it shall, within ten (10) days after the opening of such bids, award the franchise to the highest bidder and introduce an ordinance making such grant. At least thirty (30) days shall intervene be- tween the introduction and the final passage of such ordinance, and such ordinance shall require upon final passage the concurrence of three-fourths of the members of the Board and the approval of the ]\Iayor ; provided, that if the Mayor fails or refuses to approve such ordinance within the time allowed for his approval or veto of ordinances and resolutions under the provisions of this Charter, such grant may be repassed by a concurrent vote of five-sixths of the members of the Board, and shall thereupon become effective as if the Mayor had signed it, subject only to the provisions con- tained elsewhere in this Charter relating to the referendum. Except as in this section otherwise provided, bidding for a franchise shall be in accordance with the provisions of this Charter in relation to bids made to the Board of Public Works, or such official or body then performing the duties now performed by said Board, so far as such provisions may be applicable. If any bid be accepted, the franchise must be granted upon the express condi- tion that such franchise shall be. exercised subject to all the provi- sions of the Constitution of the State of California and of this Charter and of any general ordinances then in force in the City and County of San Francisco relative to such franchises or opera- tion thereunder; and further upon the express condition that the percentum of the gross receipts of such utility payable to the City and County shall be paid into the Municipal Treasury on or before the twentieth (20th) day of the next ensuing month after such gross receipts shall have been earned. At the time such percentages are due the grantee shall file with the Clerk of the Board of Super- visors a sworn statement in general detail of the gross receipts upon which such percentages are payable, and in addition to all other powers of examination of public utility accounts elsewhere in this Charter conferred upon the City and County or any de- partment or officer thereof, the Board of Supervisors shall have authority, by its Finance Committee or other designated agent, to examine the accounts of such grantee for the purpose of verify- ing such statements of gross receipts. Any substantial failure on the part of the grantee of any franchise granted under this Char- ter, not due to causes beyond his control, or any refusal of such grantee to comply with the considtions of such franchise shall work an immediate forfeiture of the grant, and of all fixed property con- structed or acquired thereunder in the streets or public places of the City and County of San Francisco. 5. In case the proceedings for the grant of any franchise are initiated by resolution of the Board of Supervisors rather than by an application for such franchise the procedure to be followed in LEGAL AND FRANCHISE MATTERS 23 making such grant shall be the same as above provided in Subdivi- sion 4 of this section, so far as such procedure can be applied thereto. 6. In granting any franchise under this section the Board of Supervisors shall stipulate as a condition of such grant that eight hours shall be the maximum hours of labor in any calendar day for the emplo3^ees of the grantee or its successors engaged in the construction, maintenance and operation of the utility covered by such grant; provided that such eight (8) hours' work shall be completed within ten (10) hours except in the case of the operat- ing force of any street railway, in which case the working day shall be completed within thirteen (13) hours; and provided further, that nothing in this section shall be construed to prohibit overtime employment, wages for such overtime to be paid at one and one-half times the regular rate of wages proportionate to each hour of such extra service. 7. The Board of Supervisors shall prescribe, in any ordinance for the grant of a franchise, the security to be exacted for the per- formance of the conditions of such franchise and the penalties for a breach thereof. 8. No franchise granted hereunder shall become effective as against the Citj^ and County until the same has been accepted in writing by the grantee thereof. 9. No franchise hereafter granted by the City and County of San Francisco, and no fixed property constructed or acquired there- under in the streets or public places of said City and County, shall be assigned, leased, alienated or transferred in any manner what- soever by the grantee thereof, his successors or assigns, except by mortgage or deed of trust duly executed in accordance with the laws of the State of California, unless such assignment, lease, alien- ation or transfer shall have been consented to by ordinance, and the passage of any such ordinance shall be governed by the same procedure and shall require the same approval as the ordinance originally granting such franchise. Any violations of the provisions of this paragraph shall result in the immediate forfeiture to the City and County of such franchise and property. RESETTLEMENT OR ADJUSTMENT FRANCHISES. That Section 7 of Chapter II of Article II be amended to read as follows: Section 7. In order to further the established polic}^ of the City and County of San Francisco gradually to acquire and ulti- mately to own its public utilities, the Board of Supervisors may negotiate a general resettlement of the franchise rights and obliga- tions of any person, company or corporation actually operating a public utility in said City and County at the time this amendnient becomes effective, upon the following terms and conditions • 24 SAN FRANCISCO TRANSPORTATION PROBLEM 1. Any such resettlement franchise shall provide for the sur- render by the grantee thereof of all franchises or rights claimed by such grantee for the occupation of the streets or public places of said City and County at the time of such resettlement, and the acceptance, in lieu of such franchises and rights so surrendered, of the rights and privileges granted by such resettlement franchise as the sole franchise for the continued operation of such utility within the limits of said City and County. 2. Any such resettlement franchise shall provide that the City and County may at any time on six (6) months' notice purchase such franchise and the property, real and personal, actually used and useful and, in the discretion of the City and County, such other property of the grantee as may be prospectively useful in the operation of such utility, upon payment therefor of an amount, and in a manner, to be determined as shall be prescribed by such resettlement franchise. 3. Any such resettlement franchise shall make provision for the extension and development of the utility operated thereunder in accordance with the needs of said City and County and the inhabitants thereof as such needs may from time to time arise, and all extensions and improvements of such utility subsequent to the date of such resettlement franchise shall be subject to the terms thereof. 4. No such resettlement franchise shall in any case confer upon the grantee thereof the right to occupy the streets or public places of said City and County for a longer period than twenty (20) years from the date thereof unless effective provision is made therein for the gradual reduction of the purchase price by means of an amortization or other fund accumulated out of earnings, sufficient to retire, within such period of twenty (20) years, all elements of intangible value included in the purchase price as defined in sub- division 6 of this section. 5. No such resettlement franchise shall in any case confer upon the grantee thereof the right to occupy the streets and public places of said City and County for more than forty (40) years from the date thereof unless effective provision is contained therein for re- tiring within such period of forty (40) years, in addition to the in- tangible value referred to in the preceding paragraph, at least all that portion of the purchase price representing fixed structures in the streets and public places and all lands and landed rights actually used and useful, at the end of such period of forty (40) years, in the operation of such utility and included in the original appraisal at the date of such resettlement franchise or added under the terms thereof within twenty (20) years after such date. 6. Any such resettlement franchise shall provide a fixed agreed price for the property of such grantee based upon an appraisal at a date named therein, which shall constitute the basic price for LEGAL AND FRANCHISE MATTERS 25 purchase by the City and County. For determining the actual purchase price at which the City and County may take over the property at any given time^ additions to and subtractions from such basic price shall be made as follows : There shall be added the cost from time to time of improve- ments, additions, betterments and extensions properlj^ chargeable to capital account, such cost to be ascertained in a manner to be determined by such franchise. There shall be subtracted from such basic price the original appraised value of any property permanently alienated by the grantee and not replaced prior to the time of such purchase. There shall also be subtracted from such basic price the amount of depreciation, if any, in the value of the tangible property of such utility, other than land, which may have accrued through neg- lected maintenance subsequent to the date of the original appraisal and prior to the date of such purchase, the amount of any such depreciation, if not agreed upon by the parties, to be determined, upon application of the City and County, by the California Rail- road Commission or by arbitration, as may be set forth in such resettlement franchise. There shall also be subtracted from such basic price the amount of any payments made to the grantee prior to the time of said purchase applicable to reduction of capital value or purchase price and the amount of any amortization or other fund in the hands of the grantee, or payable to the grantee, accumulated out of earnings for the purpose of effecting such reduction. 7. Any such resettlement franchise shall provide for the in- vestment of the amortization or purchase fimd in the securities of such utility, or of other local utilities operated under similar fran- chises, or in the bonds of the City and County, to the end that such fund shall be invested in such a way as to accumulate as rapidly as shall be consistent with safe and conservative management, and in such a manner as to minimize the cost of securing additional capital for the extension and improvement of the plant of such utility. 8. Any such resettlement franchise shall provide for adequate continuous control by the City and County over the construction, accounts, equipment and service of such utility during the entire life of such franchise, and especially it shall provide for the main- tenance of the property of such utility at the highest practicable standard of operating efficiency throughout the life of such fran- chise. 9. Any such resettlement franchise may provide that the City and County, in taking over the property of such utility at any time, may assume the bonds then outstanding against such utility not exceeding in aggregate amount the appraised value of the tangi- ble property acquired at the time of such purchase, and in such case the par value of the bonds so assumed shall be deducted from 26 SAN FRANCISCO TRANSPORTATION PROBLEM the purchase price as determined in accordance with such franchise. The bonds so assumed shall no longer, after such purchase, be a lien upon the franchise or property of the utility as such, but may be secured by the general credit of the City and County, or as a lien upon a fixed percentage or amount of the gross earnings of such utility, or otherwise, as may be provided in such resettlement franchise. 10. Any such resettlement franchise may provide as a no.xt charge after operating expenses and maintenance, including proper provision for current depreciation, an allowance to the owner of such utility of an annual return upon the capital value of such utility represented in the purchase price as determined from time to time in the manner prescribed in such franchise. It may pro- vide further for a division of net profits, or for a bonus for skill- ful operation, or for other means calculated to enlist the motive of the owners or operators of such utility for the rendition of ade- quate, safe and convenient service and for the efficient and eco- nomical operation of such utility. 11. Any such resettlement franchise may provide that any share of the net profits payable to the City and County under the terms of such franchise, or any other income derived by the City and County from the utility operated under such franchise, shall be put into the amortization or purchase fund in addition to the regular contributions to such fund out of earnings, in order to hasten as much as possible the reduction of the purchase price or capital value of such utility. 12. Any such resettlement franchise shall provide that eight (8) hours shall be the maximum hours of labor in any calendar day for the emploj^es engaged in the construction, operation and maintenance of the utility under such franchise ; provided, that such eight (8) hours' work shall be completed within ten (10) hours, except in the case of the operating force of any street rail- way, in which case the working day shall be completed within thir- teen (13) hours, and provided further, that nothing in this par- agraph shall be construed to prohibit overtime employment, wages for such overtime to be paid at one and one-half times the regular rate of wages proportionate to each hour of such extra service. 13. No such resettlement franchise shall include more than one kind of public utility in the same contract or ordinance, and no such contract or ordinance shall go into effect until it shall have been submitted to the electors of the City and County of San Francisco and shall have received the approval of the majority of those voting thereon. 14. Any such resettlement franchise shall be introduced in the form of an ordinance and laid over for at least thirty (30) days prior to being passed to print, during which period public hear- LEGAL AND FRANCHISE MATTERS 27 ings shall be held, and shall remain before the Board for sixty (60) days thereafter before its final passage, and shall be passed by a two-thirds vote of the members of the Board of Supervisors and shall be signed by the ]\Iayor, or in case of his veto of such fran- chise, shall be repassed by a five-sixths vote of the members of such Board in its final form and published not less than sixty (60) days prior to the date of the election at which it is to be voted on by the people. It shall be the duty of the Board of Supervisors to give public hearings on such proposed resettlement franchise prior to its final passage, and immediately after such final pas- sage, and within seven (7) days thereof, to cause such franchise to be printed in convenient pamphlet form for public distribution, and to publish daily thereafter up to the date of such election in the oflficial paper of the City and County notice to the effect that any person may secure a printed copy of such franchise free of charge by application therefor in person or by mail to the Clerk of the Board of Supervisors; provided, that all costs of printing, publication and advertising shall be borne by the applicant or ap- plicants. 15. Any such resettlement franchise may provide that the City and County may at its option designate a licensee who shall have the same right to take over the franchise and property of such utility upon notice from the City and County as the City and County itself has, except that such licensee may be required to pay a bonus to the holder of the franchise, the amount of which shall be fixed in such resettlement franchise, in addition to the price the City and County would have to pay if it took the property over for itself at that time, but the designation of such licensee shall be by ordinance only, and no such ordinance shall go into effect until it has been submitted to the electors of the City and County and approved by the majority voting thereon. 16. Any such resettlement franchise may provide that upon the annexation to or consolidation with the City and County of San Francisco of any territory not now included in said Citj^ and County, any franchises or rights to operate such utility held or claimed by the grantee of such resettlement franchise in or for all or any portion of such annexed or consolidated territory shall thereupon be surrendered to the said City and County of San Francisco and that the privileges and obligations of such reset- tlement franchise shall thereupon automatically extend to such additional territory- or any part thereof and an appraisal and valuation of the franchises and property used and useful or, in the discretion of said City and County, prospectively useful in the supply of such utility to the area so annexed to or consolidated with said City and County, and not included in the capital value or purchase price alreadj^ fixed in such resettlement franchise, 28 SAN FRANCISCO TRANSPORTATION PROBLEM shall be made in a manner to be prescribed in such franchise to the end that the option of the City and County to buy such utility and to require extensions and betterments thereof, and all of the rights and obligations acquired, assumed, granted or imposed by or upon either the City and County or the grantee by such reset- tlement franchise shall extend to all the territory now or hereafter included in said City and County so far as such territory may be occupied by such utility ; or such franchise may provide for the extension of the terms thereof in the manner just described to such annexed or consolidated territory only as shall be contiguous by land to the City and County of San Francisco as now consti- tuted. 17. In the negotiation, framing and passage of any such re- settlement franchise the Board of Supervisors shall not be subject to or bound by the terms and conditions relating to franchise grants contained in subdivisions 2 to 5, inclusive, of section 6 of this chapter, but may, in its discretion, impose terms and condi- tions in addition to and different from, but not inconsistent with, the provisions of this section. 18. Any such resettlement franchise may be amended from time to time by ordinance passed by the Board of Supervisors, ap- proved by the Mayor and ratified by the people in the manner herein prescribed for the passage of such franchise in the first in- stance ; provided, that any such amendment shall not be effective unless accepted by the grantee of such franchise and that such amendment shall in no respect contravene the provisions of this section. That sections 7a, 7b and 7c of Chapter II of Article III are hereby repealed. Ordered submitted — Board of Supervisors, San Francisco, No- vember 7, 1912. Ayes: Supervisors Bancroft, Caglieri, G. E. Gallagher, Gian- nini, Hilmer, Hocks, Jennings, Koshland, Mauzy, McLeran, Mur- dock, Murphy, Payot, Vogelsang. Absent : Supervisors A. J. Gallagher, Hayden, McCarthy, Nolan. J. S. DUNNIGAN, Clerk. End of Preliminary Eeport No. 13 — Part I. REPORT ON GROWTH !0F TRAFFIC AND IN^/ESTMENT IN TRANSIT FACILITIES TO TlIE BOARD OF SUPERVISORS Gity of San Francisco BY BlQN J, ARNOLD Consullln? Ent^ineer PreUminary Report No. 19 Submitted Jan. 2, I9l3 '^k 'fJn^} >:■^ m m' REPORT ON GROWTH OF TRAFFIC AND INVESTMENT IN TRANSIT FACILITIES Analysis of Past, Present and Future TO THE BOARD OF SUPERVISORS City of San Francisco BY BION J. ARNOLD Consulting Engineer Preliminary Report No. 19 Submitted Jan. 2, 1913 s Q c c r _ Q Q Q — ? § i- § != g g g^ )■ >■ !■ != > > ^ ? ^ ^ a h OiJV- nc Od 1- ^ , , <^z ^^ V •^ V s, ^ 1 Pf 320,0 ^ ^x V- •?* > ^ ^t ^ ^J ^ 1 \, UK St z '^-^ ^ ' ^oj ^••. ^K \ '^ ^ S s S^ z X S >. ^> ^^\ ^^ \ ^ "k 'f •'• , ^ «ff =-0-^: h '"•t* ^^ ^1 1 l^ ^ u3 i° Su.aZ 1- a ^■.\ ' '■J* "v " V "r n" 1- ?5 01 ■'^^i ^^' c ^ s r^ ^iN ^; ^ s 5t J ° o< i:v> S'^ \,"jj t, Si "c^ K"- V t J Q. a r^- J. O y & V* " D Z I - I o I o .\' ^ \ \ 4 J. % k^ ^ ^N ^^ V- a b ^ '\ ■A o z c < 19 U Q U3 h y g: H \ r ^ '" \ ^' 1 \ 4 U ? i \ 1 F v^ lis' . *^ t ^ to 3o < '\ i\'' U (J h Z *> L S ,\< H V ] -\ o < n K c A ;\ ' t :lul U I- E "1 ■\ . i a\« \\*- * '« • 1 VI \v a < < \i , ^ u 1 1 A\ f. 5 Vfl r ^^ V 1 f Vv 1 1 1 t i\ • < \ Dj Zj s M ^ T een at the rate of 547c as against 21.6% shown by the census figures. This higher rate is only exceeded by two decades in its past history. Just prior to the disaster, the population of this city has been estimated as 450,000 (on a basis of average school attendance). Following the fire, an immediate exodus of 275,000 people took place (based upon General Greeley's estimate). If this estimate is correct, about 100,000 people have never reset- tled in San Francisco. This is confirmed by considering the expansion of transbay residence territory outside of the industrial district,* such as Marin County and Peninsula. But it is also true that the metropolis is regaining lost ground at a rapid rate, and will continue to do so. In fact, transbay traffic statistics indicate that Oakland, Berkelev and Alameda are rapidly becoming commercially self- SAN FRANCISCO TRANSPORTATION PROBLEM 5 19 o "> -. f h- 10 w o """^^II^"-!^"""!!" "" - IT 3 _ ^SIITEII sai ^ It „ A 3SCB3J_[lD3ffB ~»- Xj. " _|~" 4^H -l3 H • ^ 11-^ i ^_;_ ^JGl ^--^ Tt^ it ^. .i_ ±j _ _jr +_ 5 1 * 1 M 1 1 • 1 :E J: :jr; __ _ ±£ _ __± ^. JD ^ \i^ r L • f Jlla ml' "1 "^ ' ? J \* a S [ 3 i ^ * 1 "if r ? ? i ^ IS B r"ri~i~ ""~ ii' fl 1 ^ 'I k M ffo '[;^" i' "^^t ^ V ^'" :j:iff^^~^;» il" "^^x ~ ~n H t^lflL^J -c* l| ^jh 2 I -LIIJL ^^ i/^ !!« !i JL I -1 t -ttBt -V t^ j^^ f-^jt j^ ^- _ H!i4i ^- ^^,-- jt:: PhI-i '- H.- U h3E j^ ^ !- Al.t Jill' L L ^Xt 4 L^^ JC - IGuli' --i3— 1— U -• J- -i^ 't- '*--• t^ -LlJI^I V < ill '*: ^ . \\. 4' J 1 J " "^ It n '^ ^', \o' 11 jtl — ~ L Ilffi -,*. S!dl jC*Jl2JLfl - > rif ^ 5l» t' t^it^ it 2 :.. s -^J-t 1^ 'L* i^^^jI t "" i '? 2- ^f, t zi \.- jpij^' 1= _X - - _ir it - -.kIJu < %^ itijp-i^it it * . IT^^ ll !•- IW ^' <*i Xf^^** l;ni 1 '" ^ III , ^- . ' Vl^Ai^'V^^ ' li i 1 tf ^ f . \ 1 1 11 i ' if (. ri r -.""C ^T. sir 3 i ,T i J r 5 5 i^iVT^i ^ -a t :lti a ^ j^A *:r5:v3 i^^ t 5. T JfL / U •* J V - WiV R - ^Z J- Itit -- > z *l^iIjIh S\-t«4 4: f r/# ^ ON » 1 " Mi s ^ ^ -.an^ a j *j\t^h^l.vC ^ r- -^il/^ ^ rf ^ ^^^j\Xit^-f-J2'- ■ ' Jrf/ f 2 ^ \ K^ •v{\\- li jAj ^ p -'A -^ ii i*\\ J 1 ^ Ww - *rn\^s> iSr\^^ 1 J f ## f f ^ I * . *, k. 1 ^'^ ^ ! it' lUi^ ? it"' ^^zai."* ^^V It • JP Jr 'I l\^ f n f ^ IJr~n~ V c V- c 5j:3ri^3rc3iii hsl "^^ A^^it r I f^H4^nM ''N^T Prn^mT Iti riVL o o <0 P- o o o o o o FIG. II— ANALYSIS OF LIMITING RATES OF POPULATION GROWTH. A survey of this nature is necessary to reach reasonable conclusions for the future in a city subject to such erratic growth as San Francisco. These curves demonstrate the indisputable fact that cities grow with a decreasing rate of increase. For example, it was found that normal eastern cities of 500,000 inhab- itants grew at a rate of 135,000 in 10 years, or 36 per cent (see curves, dotted code), while at a population of 1,000,000 the rate had decreased to 27 per cent, althougli the actual increase was 290,000 per decade. Any fixed rate or percentage compounded through a long period would usually lead to impossible results. This study forms the basis of the prediction curves, Fig. I. GROWTH OF CITY AND DISTRICT 9 centered, and self-supportiner, and that San Francisco and Oak- land "svill continue to grow in the future as supplemental conianuni- ties without any further marked transference of population such as occurred after the fire. This is as it should be. and it remains only for San Francisco to develop the attractive residence dis- tricts within its own borders to maintain its present rapid p-rowth. The infiuence of the crreat fire in accelerating- the growth of the suburban Bay communities has been marked. Oakland, by census estimate, had gained but 5.700 people between 1900 and 1905, but increased 78,000 between 1905 and 1910. Similarly, Berkeley gained 5,400 population during the first five years and 22.000 during the last. The entire bay industrial district, exclu- sive of San Francisco, increased only 15.000 between 1900 and 1905, and 114,000 thereafter. Avithin the decade. Future Growth. The analysis upon which the future growth is based has included the following considerations : 1. San Francisco, the commercial metropolis of the West. 2. Effect of the opening of the Panama Canal. 3. Temporary effect of the Panama-Pacific Exposition. 4. Climatic and scenic advantages of San Francisco. 5. Effect of unusual isolation of San Francisco. 6. Growth of other Pacific Coast cities. 7. Normal and slow growth of Eastern cities. 8. ^Maximum and minimum past gro^^i:h in San Francisco. The basis of analysis is best indicated by the growth charac- teristic curve, Fig. II. in which the actual mcrease per decade is recorded at various stages of growth in the development of cities. Thus, for a city of 450,000 inhabitants, such as San Francisco at the present time, an actual increase per decade is recorded as fol- lows : Eastern cities, slow growth 105,000 per decade San Francisco, slow growth 125.000 per decade Eastern cities. ]\Iax. normal 170.000 per decade Other Pacific Coast cities 210,000 per decade Arnold estimate, San Francisco 145.000 per decade These composite curves recognize an unquestioned fact in the growth of cities that normal growth takes place with a decreasing rate of increase. The conservative nature of the rate finally se- lected for San Francisco will be apparent from a study of this curve. It is neither optimistic nor pessimjstic. And although the predictions may very likely fall short of the next census, it would "be entirely improper to recognize erratic growth, although such may have been recorded in the past. From the "Arnold ♦Including San Francisco, Oakland, Alameda. Berkeley, and Township Xo. 1 of San Mateo County.. 10 SAN FRANCISCO TRANSPORTATION PROBLEM Normal Growth Curve'' tlie following? prediction for the future City of San Francisco is obtained : San Francisco — Dec-aile EiKlins Increase, ppr Cent. Population. (19121) 450,000- 1920 34 558.000 1930 29.3 722,000 1940 25 909,000 1950 23.3 1.121,000 In establishing the initial percentage for the present decade, the probable fact has been given weight that a considerable part of the permanent loss due to the fire will be made up by the per- manent gain due to the Exposition. Commuter District. To fortify these conclusions with re>-\ speet to >San Francisco, it is desirable to predict in the same man- ner the growth of the commuter district that may be properly termed tributary to San Francisco (as defined in Table II). Prac- - tically the same basis of analysis has been used, and although an extraordinarily rapid gro\\i:h of the Bay cities has occurred with- in the past decade, the rates used have been tempered with due conservatism : Population. 728.000 1,019,000 1,366.000 1,760,000 2,202,000 A clear idea of the extent of this commuter district maj' be best obtained from the General Transportation Map, Fig. X, showing both electric and steam lines entering the city, and those converging from the surrounding districts to the bay ferries. Moreover, the relative growth within the last two decades is indi- cated in order to give a graphical picture of the correct position of San Francisco in respect to its neighboring communities. For example, the Alameda County cities have more than doubled their population in the last decade, while San Francisco improved upon its previous 10-year growth. Or considering all of the commuter towns alone, it is found that the population has more than doubled^ while with San Francisco included, the total rate of increase has been nearly 48'/. the highest of the last three decades. This commuter district differs from the "Indu.strial District" of the census by iucludiiiii- many residential suburbs not devoted to man- ufacturing. Commuter Distr ict— Decade End ing Increase, per ■ Cent. 1910 1920 40 1930 34 1940 29 1950 25 jl the absolute dependenoe of tlie people upon transit lines. M'ation district. The unsettled areas of San Francisco are ^ ION En s the ies ^i^M: •>;|"^^4#»_ UNIFIED SYSTEM ' NON-COMPETITIVE i DISTRIBUTION OF POPULATION SAN FRANCISCO basMa iiiai ifun Is I yi iplii 1 I I c I LI II I 1 \ Ml ^ InpoKiapln in tli •^hIli prehetUs -UU pnipie b ised .tn -jleLpme puijulaliuu uiiU tb Uyleiininetl bj the 1 ilii < iiid the extensions planned theielo aie shown foi both piesent and futuie Sh<. redlstr of a grea In clear This mai PA55E>JGER TRANSPORTATION AND GROWTH MAP Of POPULATION SAN FR'ANC15C0 6- BAY C0UNTIC5 BlON J. ARNOLD ON Tiit 5AN rRAt-K.\XO Tf?AN5PORTATlON PROBtCn TO the: HON BOARD OF 5uPe(?VI50R5 CITY OF SAN FRANCISCO ER DISTRICT. are of great Interest in indicating recent growth resulting from the s traversing the bottom lands clearly indicates the limits and posslbihties hrough the Market Street extension tunnel under Twin Peaks stand ou* cap of at least 2o minutes more running time via the water routes. itan district control of utilities and industrial development. «ol S] n t( ti e: ii e( C } 'i> y 1^8 —J .u S j ^1 = 3 8 S S 5 1 K P! 5 a » ^8 si (ri0iilV""'l.T'''1fl '"'''"; ^"'^.'''.'^'i' ^'"°"l'','''''''t'" ■'^i''"''' '*° '^^ ''''"' """'^ ^''^''^^ '>™as oie of great interest in Indicating recent growth resulting from the uf a great tutu" e IndustrlaV nUrlr., >^,^.rn, nrt-n-'",L'"'1f' ^ influenced by the great fire. The network of transportation lines traversing the bottom lands clean? indicates the limits and JosalbiUties "n Mf"'i'„;V,.";f i.^i^Mri"! °l;!.l'.':i surrounding the Bay Tnc poss.billties of rapid electric transit down the Peninsula through the Maiket Street extension tunnel under Twin Peakriland ou- :ss of transbay development by electric trains, even under the permanent handicap of at least 2(1 ^nliuites more running time via the water i-outes. tor a unined and compacted commuter and industrial district under one metropolitan district control of utilities and Industrial development. GROWTH OF CITY AND DISTRICT II Distribution and Density of Population. It will be well for those interested in the growth of the city to study carefully the distribution map, Fi»»'. III. which represents accurately the distribution of population of the 1910 census by tho actual enu- merating: districts. Two so-called "conjiested districts" of the city are clearly evident as "Chinatown" and "Japtown." The for- mer has the o:reater density, although l)y the splittinji: of assembly districts in 1910, the actual fij?ures of density do not appear as high as in Japtown at the present time. (See Table III.) Out- side of these two districts, those parts of the city that may be now reached by transit lines are found to be settled quite uniformly. As mentioned in previous reports, the 30-miuute time zone prac- tically marks the limits of heavily settled districts and will con- tinue to do so even after more rapid means of transportation are provided. From this map. Fig". III. it needs no argument to reach the rea- sonable conclusion that with adequate transportation and other utilities, Richmond, Sunset, Merced and Visitacion need not lon^ remain practically unpopulated as at the present time. If the city be divided into three zones, thus : (1) Within the one-mile circle; (2) Between one and three-mile circles; (3) Outside the three-mile circle. it is found that today only 75,000 people live Avithin the one-mile circle, 98,000 outside of the three-mile circle, with 244,000 in the in- termediate zone ; and that Avliile the densities of the inner and in- termediate zones are nearly the same, that of the outer zone is only six persons per acre, approximately one-sixth of that within the three-mile circle, which to a certain degree corresponds to the 30-minute timie zone previously mentioned. Taking the IT. S. census for the last three decades, a further comparison may be made on the basis of assembly districts (Fig. IV), although the continually changing boundaries of these dis- tricts make a direct comparison of local centers difficult as between census periods. However, the census records are illuminating as applied to the so-called "inner city", shown within the heavy boundary lines of Fig. IV and covering approximately the dis- trict bounded by Van Xess Avenue on the Avest and Bryant Street on the south. Population, Inner City. Area, in .\cr(\s. Inner City. I)e; Persons Inner City. nsit.v. per Acre.* Outlyin.?. 1890 157.400 1765 89 6.6 1900 152.000 1789 85 6.9 1910 86.200 1725 50 15.0 *These figures of density deduct all the unpopulated areas such as parks, reservations and waterlot areas. / GROWTH OF CITY AND DISTRICT II Distribution and Density of Population. It will be well for those interested in the growth of the city to study carefully the distribution map. Pig'. III. which represents accurately the distribution of population of the 1910 census by the actual enu- merating: districts. Two so-called "congested districts" of the city are clearly evident as "Chinatown" and "Japtown." The for- mer has the greater density, although by the splitting of assembly districts in 1910, the actual figures of density do not appear as high as in Japtown at the present time. (See Table III.) Out- side of these two districts, those parts of the city that may be now reached by transit lines are found to be settled quite uniformly. As mentioned in previous reports, the 30-minute time zone prac- tically marks the limits of heavily settled districts and will con- tinue to do so even after more rapid means of transportation are provided. From this map. Fig. Ill, it needs no argument to reach the rea- sonable conclusion that with adequate transportation and other utilities, Richmond, Sunset, Merced and Visitacion need not Ion:? remain practically unpopulated as at the present time. If the city be divided into three zones, thus : (1) Within the one-mile circle; (2) Between one and three-mile circles; (3) Outside the three-mile circle, it is found that today only 75.000 people live within the one-mile circle. 98,000 outside of the three-mile circle, with 244,000 in the in- termediate zone; and that while the densities of the inner and in- termediate zones are nearly the same, that of the outer zone is only six persons per acre, approximately one-sixth of that within the three-mile circle, which to a certain degree cbrresponds to the 30-minute time zone previously mentioned. Taking the IT. S. census for the last three decades, a further comparison may be made on the basis of assembly districts (Fig. IV), although the continually changing boundaries of these dis- tricts make a direct comparison of local centers difficult as between census periods. However, the census records are illuminating as applied to the so-called "inner city", shown within the heavy boundary lines of Fig. IV and covering approximately the dis- trict bounded by Van Ness Avenue on the west and Bryant Street on the south. Population, Inner City. Area, in Acip.s. Inner City. i)f Persons Inner City. ns pe ity. ir Acre.* Outlyini 1890 157.400 1765 89 6.6 1900 152.000 1789 85 6.9 1910 86.200 1725 50 15.0 ♦These figures of density dediut all the unpopulated areas sucii as parks, reseryations and vvaterlot. areas. 12 SAN FRANCISCO TRANSPORTATION PROBLEM ERRITORIAL GROWTH OF SAN FRANCISCO : Til E HOH.SOARD OFSUI>ECT1SOIS FIG. V— TERRI'TORIAL GROWTH OF SAN FRANCISCO. Municipal boundaries have very little relation to the broad movements of population as compared witli transit service. In studying growtli of transporta- tion it is therefore necessary to know whether the census records actually oover the settled districts tributary to the various transit lines of the city. In San Francisco the city boundaries have generally preceded nettlement. Starting with the village Verba Buena, indicated in black, now entirely within the business district, the city boundaries quickly expanded within four years of its incoi-pora- tion to the intersection of Divisadero and Twenty-second streets; and only five years later, upon the consolidation of the City and County of San Francisco, to the San Mateo County line. San Francisco's tributary population will probably not expand to any great extent % has devel- oped a clearly defined mathematical law. And although there are some cities varying considerably from this general law, the great majoritv closely adhere to it, as stated below : That the total annual railwa.v earnings increase ap- proximately as the square of the increase in population ; that is, by the time the population doubles, transit earn- ings will have increased four-fold. Or in other words, the earnings p(r capita will increase approximately in direct proportion to the increase in population. *Kven these maxi'.num densities in San Francisco are small rompared with other cities, siuli as the lower East Side, New York, which exceeds 1,200 per acre. . 14 SAN FRANCISCO TRANSPORTATION PROBLEM This i-clatioii may host be shown o^raphically as in Fiy. VIT. whert'in arc sliown the results of four decades of development in San Francisco, tofjether with a prediction for four decades into the future. Barrino- the erratic development in the last decade, especially 1905-1908, the averaii'es for the period are instructive. While the rate of growth in earninqs from 1900-1903 considerably exceeded the average, due to delayed increase in population, and on the other hand the reverse condition appears from 1908 to 1911. it is safe to sa.y that San Francisco at least approximates if not exceeds the law aliove stated, and will continue to preserve that relation for at least the remainder of the present decade — i. e., to 1920. By way of illustration, the following' figures would result if the law^ of the squares Avas applied to the present San Francisco for several consecutive decades before and after the present time : i.Aw OF THro squarf:s. Population. Per Capita. Rarnings. 200,000 $ 8.75 $ 1,750,000 400,000 17.50 7,000.000 800.000 35.00 28.000,000 However, it must be recognized that in San Francisco, owing to its limited ability to grow within its present boundaries, there will come a time when a "saturation point" will be reached in the possibilities of adequate service from surface line extensions within the city limits and a decline in growth of total traffic and earnings must then set in, unless rapid transit facilities are undertaken so as to properly serve the outlyinq' districts undergoing development. Therefore, in this prediction. Fig. VII, the index of growth has been progressively decreased b.v decades from 2.0 at the present time to 1.5 in 1950. This is done with the full knowledge that rapid transit facilities must come sooner or later, which alone will re- vive the total earning power of the system, as has been the ease of other cities. This estimate. Fig. VII, may then be regarded more as an index of surface railway operations, although possibly in- eluding some rapid transit development. Footnote; Explanation of Graphical Analysis. Tliis study, Fis". VII. cliffer.s from the ordinary metliod in tliat tiie relation l^elween tlie two varialjles — earnings and population— is plotted on losrarithmic c".o.=s-KPctinn paper instead of tlie usual rectilinear section paper. Tliere is this difference: Assuming- that earnings increase as the square of the increase in population, tliis relation on linear section paper would show a rapidly ascending curve of earnings; but on logarithmic section paper the curve becomes a straight line, with a slope of two to one. And any other relation between two variables tliat plots out with a slope of two to one may be recognized at once a.s conforming to this law of the squares. Simi- larly a relation with a slope of three to one conforms to the cube. ?Tence. on logarithmic paper it is only necessary to focus attention on the slope of the line to determine accurately the mathematical law: and anv line parallel to the guide line shown on Fig. VII — i. o., having the same slope — follows the law that doub- ling the population quadruples the earnings. Although it is to some e.xtent unsafe to applv a law rigidly so far into the future that a complete revolution in transit methods might occur, it is at least safe to follow this law for a decade hence. The fact that the law of the squares has been approximated in the past with four different '.nethods of motive p.>v.-v indicates tlie reasonableness of this con- clusion. GROWTH OF CITY AND DISTRICT 15 100 1 00.000 looopoo FIG. VII— ANALYSIS OF MATHEMATICAL LAW OF GROWTH. L^pon this law rests the future of the city in respect to transit earnings and • investment in the necessary railway properties. It answers the question, How fast will earning-s and investment grow with reference to the population? San Fi-ancisco has exceeded many other cities in the past, with earnings gi-owing faster than the scjuare of the population; and valuation of property somewhat 'below this late. This means that when the population doubles, property valua- ■ tion more than triples, and earnings (luadruple. The broken guide line indicates the square relation. A line parallel thereto conforms to tliis law. For the distant •future tlie rate of earnings has been conservatively decreased, as this study refers lai'gely to surface transpoi-tation, and not including expensive rapid transit projects. 16 SAN FRANCISCO TRANSPORTATION PROBLEM On this modified basis the predicted earnings then stand as fol- lows, with the approximate traffic resulting therefrom, which may be taken for this purpose on a basis of a flat 5-cent fare: PREDICTIOX- -MODIFIED LAW OF THE SQUARES. Population. Earningfs per Capita. Earnin.e;.s per Year. Revenue Passeng'ers pel Year. Total Passengers per Year.* Approx- imate, Year. 200,000 400.000 800.000 $ S.75 iT.r.o ai.25 $ 1, 7.50, 000 7,000,000 25,000,000 .•{5.000.000 140,000.000 500,000,000 52.500,000 210.000.000 750.000.000 1876 1909 1934 *Assu-.nlns: 50'/{ transfeiis. Increase in Equipment. It has been impossible to obtain complete official records of equipment prior to the fire, as accurate utility records were not then compulsory. While the records here presented do not en- tirely agree with recent official data, they will suffice to illustrate in a general way the development in this city. Track Mileage. The record of total track construction, Fig. VIII, indicates a uniform growth from 1868 to 1889 of about six miles per year, then an extremely rapid increase from 1889 to 1896 of 16 miles per year, during which period the Market street consolidation took place. No further increase is recorded up to 1902, when rapid building again eu.sued until stopped by the great fire of 1906. Since the fire, extensions have about offset abandon- ments, so that the total track has remained practically constant. Summarizing, an average of 8.1 miles per year was maintained from 1868 up to the time of the INIarket street consolidation, and since then only al)0ut 3.6 miles per year. Thus, the last 15 years of growth has been slower than any previous considerable period of time in the history of the city, even during the original horse ear days. Whatever the cause, this can only be interpreted as a retrench- ment of that natural growth essential to the welfare of the city which finds its logical result in the present necessity for a very large increase in mileage to compensate for the delayed expansion. Analyzing this growth with reference to population, it appears that the track mileage increased faster than the population from 1860 up to 1896. since when it has fallen behind. It is not an un- reasonable conclusion that if transportation companies found it possible, up to the time of consolidation of the properties, to ex- tend their lines at a miuch faster rate, than the population, that a rate at least proportional to the increase in population can now ])e maintained until such time as surface extensions have reached their limit. According to this basis of normal increase, a total of 100 miles would be required for the next decade. But this assumes that the present trackage is adequate, whicli is not the case. As a matter of fact, the extension schedule is from 6 to 9 years behind. And moreover, to carry out the program GROWTH OF CITY AND DISTRICT 17 BION J. ARNOLD ' "■■■ 'I 1 TTT"' 1 I 1 I III __ 1 _^ _ . ,] 1 _^. ^' -1- i-^- -4! riKri ;**^i m nf'ti A^' t itLiii!fA<^il' Cil?-\J ni N 1 R>^Cr 5 IfKM.L/vGt it \^ ^^^^ 1 ^ir T;^_rT X-X- A^ ALL ^li^hll^AMIEln aoA X I ~ rc:]ii: 'I 300 _ ^ ^ \ L 1 -^/""S, 1 i 1 ' i \^ yC3JL: C^:£ i[iaiilt4dlf ."POJM^TjI-. / ]|^ . wiaR5 ! MANuUiL pi pErcRc^ddsj.r%, yJYf "x5l -l" ^l"'i ^ "■ 94n 1 \ CO\i t 1 i ~triti it -.t it ' " ' / -4-11-- 7 _L ITlll A- t 4-^ ^ T It -it ^, X ^ ^ If CCCZTIIEI i I _ J ^ IT 7 iLiE 0/)A , , I 1 ZOO / ftr / ' E ' f\ \ M i C V \ ' ! ' •^ ! ^ \ 1 ' 1 K ' J ' ' ' ' CM 17 ' ' ' r 1 / *\. i ' ' ' jf ! ^ 150 I , 1 / S ' i '*" H / I ' i ' ' IS 1 j/n 1 \ I'M z 1 ^^li >.'i'i! 7 i y ' ' "^ Tt r iL .^ i ^^ r^ 1 T 1 ' \ 1 1 / ' 1 v 1 i i it -^^.m isT'-- lon 9 ^ ^4 100 j^l 1 1 --L Sl 1 1 ■^^\V - +!["!"' — ^ — ^, ' ■ ■ r^i^^>^^^--K"rts. ' ' ' y\ CA ip^NOAR ^*-p<\\ ' r M M ^ \! — ki ^ 1 M 1 ri Mill 1 1 M 1 1 h 1 '\-^ 1 ia60 1670 FIG. VIII— RECORD OF I860 GROWTH OF TR CISCO 1690 1900 esio ACK MILEAGE IX SAX FRAX- Tliis record shows three decades of normal and continuous growth, followed by a period of extremely rapid growth with the introduction of electric traction. But since the consolidation of the Market Street system the growth has been erratic and on the average comparatively slow. The almost complete revolution in the metliod of railway propidsion is clearly shown for the last two decades. Data prior to the fire may be subject to slight error, but are sufficiently accurate for indicating general tendencies. 18 SAN FRANCISCO TRANSPORTATION PROBLEM ■ ION J. ARNOLD 1 1 1 ~~ i 1 ' 1 1 1 1 1 1 le^igbv^t^i \ik\\ Hi\Jf^ tH lii Pmi f|jk-]^f[4fl-H 1 ' ' ' 911^ CCI^E^iJ^Eua " 1 1 i -n-^ : : f?on - - 1 i I^WU -\-^^ 4^ ^-^^ icr:^c^ . oHHtt—it X C it T M i 1 T lioo / > ll 7 ^ ' 111 loofL . .. ^ \ T] r ? . ! ! 1 /" '^ > 1 1 1 i, — — — — ' ^ 1 i 900 -*:- " S ILEI^CEac^ J ~^ ±lL K "^ ih ^ ^-- ± i ± r _. _ , I ! 800 \ I i J 1 I \ ■ it r it L \ I ' . i^^ 70ot I It /^ S '"•■* 1 / S 1 ^J / eoo "^ ^^^^ ■""" ^^ 1 ; 1 t 1 lit ^oo iv I 1 1 ! ' ' 1 r r.<.Ri..f- 1 ! 1 L^ ' ! i 11 III ACid 1 1 i i ' ' ' 1 1 ** ^ ^"■" — — ^ ^ 1 ' 1 i 300. ^^ - -iitiiir: ^^° \ 1 _^ ^,. V 4 ^^ tt - - H^ Itn- -■- _J 200 V — . 3 ^ EHJ13£iEZ L. ^^ -t \ -^ — \- J. 1 i ^^^-^ it It ia<;'^">^±t . ^ -T^ ^11 '°*^ it 5 „ ^^ Itit 'I2:i^i:si3:i^^^::^3!: it^j 1 -^ „ "sT -h4- = — =■--' Stfi7^5~ ^ ^T= = = "^ +-H-r 1889 ladi 1886 I90I I906 1911 FIG. IX— RECORD OF GROWTH IN CAR EQUIPMENT. Based upon eciulpment reported as owned prior to the flre, this record pi-ob- ably does not represent cars actually operated. The enormous decrease in equip- ment is due to the retirement of several hundred cable cars, either worn out or obsolete, by rea.son of the change in motive power. Since the fire the record covers, in general, only cars available for service. The average seating capacity per car probably increased during thi.opulation. the seating capacity is noAV practically the same as before the fire. But in this period 66,000 residents, nearly one-half of the popu- lation of the "inner city" or Avalking district, moved to other parts of the city, thus becoming dependent upon car service. This addi- tional traffic represents 15% of the population of the entire city. 20 SAN FRANCISCO TRANSPORTATION PROBLEM On the other hand, the United Railroads system has increased in schedule speed within the same period 12'/^ . with a correspondin l^ ft -^ ^^ f ^ l- i i ^1 v. .> V 1 V •m T \ \ I ^3 \ s ■^ ^ /I P fk ^ \ ''a I V \ ** ^> > \ U ^ \ i "^ ^ / I a 10 *^ K— \ - S i^ ._ __ r— -=-J "=-J« J vi < \ .u ,£ »•" '■'■ ..- -'' ^N Vi- / % •—' >-». ._ ? 1 '^, N z « / ^•x , /. \ \ \ \ 1 / l), ■— ■ h-~ ' — ' |V. \ S ^^ 3 SI J V I o a o J < ^ ^. a. to ^ u H O DC Q ^ r o z < z i3 —- -^ 'x. 'x ki "^ \ ;{s n^ ] i Tl N ^j V , 9 y v^ X A i" ''•^. 10 •^^ \ X s, \ I I \ / / '■" "" \ 1 y li V >v (/ r f :;■ -:. --> i 3 ^ ^ 1 1 s u 10 I \ \ as 1 n Z o^ i / / 5 2S ■> . \ A / i i^ 1 \ J I ? 1 / <. 1 J 1 \ \ 1 '1 ^ r \ V V z n □ y \ i \ < * u s \- \ ^ 1 1 J uj. • ^ \ r uz i i§ 1 \ f < s^ \ / '»r — — — ^. =1= rJ ..i — ..— ^ \l i— — — — — — — — — — — — ^ — ^ ■f' \ •<' / — — > \ ^\ •3 JOI vn IVA IIX IQl nv w ^■5 m -t?l =s^v IV VOL > \ y ^ 3 g s S ? If 8 \ s 1 a in o TJ VI =! T 1 VIC 1 n JV QNC uv llrt ) e NIO" me \ < o 10 S u bl ■♦ " 6i •*•> £l \ - c (J m C SO MS -bv. IDff MN '9f S S ,.- '•' c \f s 6 E IV ri " ■-.. .._ — . -\. — .. S IN'o enc >HJ. Nl ^ lOIJ, V"! lao d \ i FIG. VI— EVIDENCES OF COMMERCIAL GROWTH OF SAN FRANCISCO. To plan consistently for the future, a knowledge of the past is essential in order that erratic growth may not lead to false conclusions. This study presents the most important indices of the underlying- commercial strength of the com- m^unity, which alone determines the future of the city, both in population and resulting transit development. In spite of the depressions of 1906 and 190S. San Francisco is again moving forward at a satisfactory rate. GROWTH OF CITY AND DISTRICT 25 Commercial Grow^th. Incidental to this stndy. the o-raphic record of commercial grrowth. Fip-. VI, has an important hearinc:, as follows: Population by census years, bank clearing, assessed valuation of property, real estate assessed, real estate sales, building opera- tions, telephone calls, post office receipts. Property valuation reflects the fundamental underlyinj? wealth of the conmiunity, bank clearings measure its major financial operations, and post office receipts oflfer a fair indication of the general prosperity of the average citizen. A general review of these records shows a period of great activity in San Francisco from 1900 up to the depression of 1906. But by 1910, the city had practically recovered, and is now pro- gressing at an encouraging rate. Bank Clearings have maintained a normal increase since 1896, and are now 47 per cent above 1905. It is a significant fact that although bank clearings suffered a temporary check during a fcAV months after the fire, the total clearings for the year 1906 actually increased at a normal rate and were only checked by the wide-spread financial depression of 1907-8. since when the previous rapid increase has taken place. Property Valuation remained fairl>' constant up to about 1888 (with the exception of a temporary increase in 1880) and has since increased at a normal rate up to 1905. Since the fire the valuation has increased at about the same rate as before the fire. Fig. VI indicates the relative amount of operative property exempt from city taxation. Real Estate Value, as assessed exclusive of improvements, shows that the fundamental basis of land is barely as high as be- fore the fire, and that the assessment is hardly keeping pace with the total property assessment upon which the purchasing power of the City is based. Real Estate Sales show a sudden increase from 1900 to 1905 with the exception of two intervening years. Since the fire, prog- ress has been slow, but the last year indicates a renewed growth. BuilclitHj Operations followed a normal growth from 1898 to 1905. Naturally the tremendous building activity resulting from the fire could not be maintained. Since 1910, however, building operations have again gone forward at a normal rate. Telephone Calls are increasing at a consistent rate, having practically doubled since the fire. 26 SAN FRANCISCO TRANSPORTATION PROBLEM Fostoffivc Rcccipis sliow the most uniform and healthy growth, with only eomparativel.N' small depression as a result of the fire, and have more than douhled in the last decade. Mann far lures. Finally, an examination of the Census reports of the operation of the industrial district of San Francisco before and after the tire indicates some .startling facts, detailed in Tal)le IV. Comparino- the three years 1900, 1905, and 1910. it is found that both the number of factories and persons employed were less in lOlO than the year before the fire, although the value of products had slightly increased. On the other hand, a very rapid increase in manufactures had taken place during the five years preceding the fire. Furthermore, it appears that what San Fran- cisco has lost as a result of the fire has been a direct gain to the Bay cities of the industrial district. If these records are analyzed on a per capita basis, it appears that while the percentage of popu- lation employed in San Francisco in manufactures has decreased by nearly one-fifth, that of the Bay cities has increased by about the same amount, but also that the per cent employed for the entire industrial district was lower in 1910 than in 1905 or 1900. The total value of products per capita has also decreased. This record clearly indicates the serious fact that up to 1910 manufacturing has not kept pace with the growth in population, and that the industrial district must become more united in developing the man- ufacturing facilities which the Bay shores afPord. This furnishes an additional argument for the establishment of a Metropolitan District Control in such matters of common interest as utilities and industries. GROWTH OF CITY AND DISTRICT 27 TABLE I— CO^IPARATIVE GROWTH IX POPULATION COAST CITIES. OF 1910. 1900. 1890. 1880. Popula- % In- Popula- % In- I'opnla- % I"- Popula- % lu- tioii. crease. tiou. crease. tion. crease. tion. crease, SAX FRAXCISCO.. 416.912 21.6 342.782 14.6 298.997 27. S 233,959 56.5 San Francisco .iiTcl traction district. 728,000 56.2 458,000 12.0 409.000 Los Angeles 319,198 211.5 102,479 103.4 50.395 350.0 11.183 Seattle 237,194 194.0 80,671 88.3 42 837 1,113.0 3,533 Portland 207.214 129.2 90,426 94.9 46"385 264.0 17.577 Oakland 150.174 124.3 66.960 37.5 48.6'82 40.9 34,555 Taconia 83,743 122.0 37.714 4.7 36.006 Does not account for area annexed during aboA-e periods. Authority: V. S. Census. 194.5 68.6 212.0 329.0 1900. 1890. 1880. 1870. 1860. 342.782 16,464 298.997 11.165 233,959 5,708 149,473 1,557 56.802 460 434 2,751 13.214 2,361 5,101 1,794 1.016 1,965 228 1,419 1,231 504 1,380 1,600 66.960 4^,682 34,555 10,500 1.658 634 1.653 1,572 1,383 727 21.500 18,060 12,567 9 089 2.253 1,369 426 1.832 3.879 3,290 2.276 841 3.650 2.891 1,628 1,334 7,965 6.343 .987 1,543 TABLE II— GROWTH OF SAX FRAXCISCO CO:\DIUTER DISTRICT BY DECADES. 1910. SAX FRANCISCO 416,912 Alameda 23.383 Albany 808 Belvedere 481 Benicia 2,360 Berkeley 40,434 Burling'anie 1,565 Emeryville 2,613 Haywards 2.746 Larkspur 594 Martinez 2.115 Ma^^eld 1.041 Mill Valley 2.551 Oakland 150.174 Palo Alto 4.486 Piedmont 1.719 Redwood Citv 2.442 Richmond 6.802 Ross Valley 556 San Anselmo 1,531 San Jose 28,946 San Leandro 3,471 San Mateo 4.384 San Rafael 5.934 Santa Clara 4.348 Sausalito 2.383 South San Francisco. . 1.989 Vallejo 11.340 Unincorporated places. estimated at 200 each 2.000 Total 730.108 Per cent increase 48.0 Commuter district only 313.196 Per cent increase 108.7 Authority: U. S. Census. 492,984 403,677 300,829 173.117 58,805 22.3 34.4 73.3 194.5 150,202 104.680 66,870 23 644 2.003 43.6 56.4 183.0 1,080 TABLE 111— DENSITY OF I'Oi'LLATION BY ASSEMBLY DISTRICTS, 1890-1910. 1890. Asseiii'lilv Distiut. Population. Density per Acre. 29 7,211 34.6 :]0 9,932 108.0 31 26,838 224.0 32 16,588 120.0 33 13,448 76.4 34....; 12,229 37.1 35 9,748 114.3 36 9.081 96.0 37 11,890 142.0 nS 12,424 109.3 39 13,149 109.7 40 14,967 73.8 41 *15,253 9.6 42 20,975 13.7 43 15,882 16.8 44 22,046 12.3 45 14,200 20.2 46 11,593 20.6 47 18,386 3.3 48 20,157 2.7 Presidio (estimated) . . . 3,000 2.3 *L,ess Presidio, .3.000 (estimated). 1900. Assemiblv District. Population. Density per Acre. 28 " 15,731 64.1 29 15,299 125.0 30 15.347 127.0 31 15,871 92.0 32 14,037 13.7 33 18,758 6.3 34 21,841 58.0 35 17,647 6.1 3G 27,836 3.7 37 23,923 18.7 38 19,977 21.2 39 19,905 89.7 40 22,472 15.3 41 *21,235 14.8 42 15.472 89.0 43 23,003 140.5 44 18.631 63.3 45 12,797 46.8 Presidio (estimated) 3,000 2.3 *Less Presidio, 3.000 (estimated). 1910. Assembly District. Population. Density per Acre. 28 .■ 11,373 42.2 29 5,537 34.8 30 7.558 36.8 31 18,787 16.4 32 31,879 10.8 33 44,688 8.2 34 36,970 34.3 35 22,388 57.3 36 12,844 40.5 37 35,250 69.7 38 27,92.5 68.5 39 *4S,210 5.6 40 23,075 G8.0 41 25,372 26.8 42 8.810 39.0 43 9,379 47.5 44 21.307 66.0 45 22,206 64.6 Presidio (estimated) .... 3,354 2.6 *Lress Presidio, ,",354. GROWTH OF CITY AND DISTRICT 29 s^ t>- O 00 5- (m' id tH ^ o 50 M ^ O --1 Oi t- t~ -N 05 CT5 t- lO CO O M< -^ l-H CO -* 05 O 05 OS O OJ CC o o^ o_ o_ i-T c^" co" ■^ CO t^ O CO CO C<1 lO c— l-H OS o os^oo oo COOOlft I— I CI T»< Tti esq i;D OS -^ '*< oo -"ii t>^ 5 :« d t~ 10 C5 o oo_ "too ^ LO flJ r? 00 lo (v» oo' oq ^lo" §^co -co •coo Ai oo' oi *' Ol 1-1 C/2 o o 05 05 iH © (M to t- CO lO t— CD T— I oo C3 CO j^" CO C <35 O Tji CO T-l r-t OO CTS c- cq o O 1-1 1-1 i-T cT < CO o •«** •*' U5 e>j t^ rH 00 CO 00 tK U^ f-- CO ^ co" co" o" cq O c^ Tj< O ■*! CO iH ■"*! H .- .^ ^1 Q fl.2 CO o Q M — X cS O feO 3 2 CO ^ a ^ fa ¥ (3 2 P S.2 co-^-g g CO- I " a> cs o ^3 o) cs 5 — -pi fc. CO .-« — I cs .-^^ _J- a S-, +^ t- rt t« 't> CO Oh Q ^ CO ,jp « a: eg r* 5 s a CO CO ocu Q 3 .2 . P H H '^ 2 ;-5 'fc^ g § o CO ti-i fa « tn ^J3 t^^^^-^S'-^t; CSr3CUt(SC!3gtL] 30 SAN FRANCISCO TRANSPORTATION PROBLEM TABLE V— PREDICTION OF POPULATION AND STREET RAILWAY EARNINGS. (U. R. R. System.) Year. Population. Earnings per Capita. Earninss. 1910 417,000 $18.35 $ 7,653,489 1911 430,000 18.35* 7,886,136 1912 443,000 18.96 8,400,000 1913 457,000 19.53 8,930,000 1914 471,000 20.11 9,480,000 1915 485,000 20.51 9,950,000 1916 499.000 21.11 10.530,000 1917 513,000 21.70 11,130,000 1918 528,000 22.26 11,750,000 1919 543,000 22.84 12,400,000 1920 558.000 23.48 13,100,000 1921 574,000 23.96 13,750,000 1922 589.000 24.60 14,480,000 1923 605,000 25.12 15,200,000 1924 621.000 25.63 15,920,000 1925 637,000 26.18 16,670,000 1926 654,000 26.66 17,440,000 1927 670,000 27.21 18,230,000 1928 : . 687,000 27.67 19,000,000 1929 705,000 28.22 19,900,000 1930 722,000 28.80 20,800,000 1931 739.000 29.38 21,700,000 1932 757,000 29.86 22,600,000 1933 776,000 30.29 23,500,000 1934 794,000 30.72 24,400,000 1935 813,000 31.12 25,300.000 1936 831,000 31.52 26,200,000 1937 850,000 31.90 27.100,000 1938 870,000 32.20 28.000,000 1939 889.000 32.63 29,000,000 1940 909,000 33.00 30,000,000 1941 929,000 33.38 31,000,000 1942 950,000 33.80 32,100,000 1943 970.000 34.23 33,200,000 1944 991,000 34.61 34,300,000 1945 1,012,000 34.99 35,400,000 1946 1,033,000 35.31 36,500,000 1947 1,055,000 35.61 37,600,000 1948 1,077,000 35.92 38,700.000 1949 1,099,000 36.21 39,800,000 1950 1,121,000 36.57 41,000.000 ♦Earnings per capita, all companies, $20.00. GROWTH OF CITY AND DISTRICT 31 O in u O m c3 ^l c c , . >> 1—1 'S m « - s<« c t-o ^ a ^ • a fl " I r^ -= " ' 2 .H ■-■ 55 s^ . CS 02 !" ^ .2 e i; •i! O t- aj o - O ^ rf Co >-. S O M o o a; 1—1 "O CO tn' -53 rt . o >§ o ^ 0) o lA •-< t^ CO "^^ - .2 « Oi (h ^) ;^ bc a; cS g cd s- g o 00 5; 0) o lis O 32 SAN FRANCISCO TRANSPORTATION PROBLEM TABLE V]I— GROWTH OP CAR EQUIPMENT. (San Francisco.) Number of Operating- Car I'nits ITpon "Which License Taxes Were Paid. Total for Total for Year. Cit.v. U. R. R. 1898 600 1899 598 1900 541 1901 610 1902 674 600 1903 687 600 1904 687 600 1905 737 650 1906 737 650 1907 417 375 1908 485 425 1909 554 475 1910 589 500 1911 621 530 1912 676 585 ♦Statement to Assessors. tStatement to State Board of Equalization. Number as Reported Prom Poor' 3 Manual. Total for Total for City. U. R. R. 1,146 1,057 1,038 1,055 1,065 905 1,046 898 1,098 917 921* 1,052 871 665 484 665 484 609 484 737 612 709 612 669t TABLE VIII— GROWTH OF STREET RAILWAY TRACK MILEAGE. (San Francisco.) Sing-le Track. Miles. 3.0 30.0 45.0 80.0 Year. 1860 1868 1871 1875 1887 142.0 1889 156.5 1890 183.5 1891 179.5 1894 239.5 1895 248.4 1896 269.8 1897 270.2 1898 262.7 Single Track, Year. Miles. 1899 260.5 1900 271.0 1901 265.9 1902 270.2 1903 289.1 1904 293.5 1905 298.4 1907 298.4 1908 293.3 1909 285.3 1910 289.6 1911 294.5 28 Montgomery Street, San Franclsoo RETURN TO ^ Harnner E. Davis Transportation Library Institute of Transportation Studies 41 2 McLaughlin Hall ALL BOOKS MAY BE RECALLED. Overdues are subject to replacement charges. Renewals may be made by phone: (510) 642-3604 iHU(^ t^w^l^^. id' 1 DUE S^Tt STAMPED BELOW | J ' ' im f^\ • J mm mmm !s; ',: ■:V'r'. .',':, UNIVERSITY OF CALIFORNIA, BERKELEY FORM NO. 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