Sport Facilities III

Planning and design

Facility Planning, Design, and Management of Mobility Assistance Programs: Review and Recommendations of

Accessible Routes From Super Bowl XLV

Michael P. Mahoney John D. McMillen

California State University, Fresno

Abstract

This mixed-methods qualitative case study and legal research analysis evaluates Super Bowl XLV’s Mobility Assist program. This study expands venue Mobility Assist research (Mahoney & McMillen, 2011) and develops recommended policies and procedures to accommodate people with special needs or mobility limitations. This paper is based on the Americans With Disabili- ties Act (ADA) and the Americans With Disabilities Act Accessibility Guidelines (ADAAG), which require at least one continuous, unobstructed route be provided to and from public facili- ties. Findings indicate Super Bowl XLV’s Mobility Assist program met the ADA and ADAAG requirements. Super Bowl XLV’s Mobility Assist program demonstrates how other public venues and events may manage access to public entertainment, recreation, and leisure events.

Keywords: accessibility, ADA, mobility, Super Bowl

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Michael P. Mahoney is an associate professor and coordinator of the sports and entertainment facility management emphasis, Department of Recreation Administration, California State Uni- versity, Fresno. John D. McMillen is the sport administration coordinator, Department of Kine- siology, California State University, Fresno. Please send author correspondence to mmahoney@ csufresno.edu.

Journal of Facility Planning, Design, and Management

Vol. 2, No. 2, pp. 69–80

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According to the U.S. Department of Commerce, more than 40 million Americans are 65 years and older (Vincent & Velkoff, 2010). By 2050, that number will increase to 88.5 million people. Moreover, disability increases with age, and the relationship between disability status and reported health status is strong. Among persons 65 or older with a severe disability, 64% re- ported their health as fair or poor, whereas among persons who reported no disability, only 10% reported their health as fair or poor (U.S. Department of Health and Human Services, 2011).

The Americans With Disabilities Act (ADA) of 1990 was enacted to ensure that people with disabilities have the same opportunities available as persons without disabilities. Referred to as the 20th century emancipation proclamation for people with disabilities (Harkin, 2008), the ADA mandates that public facilities comply with strict building requirements to ensure that public services are accessible for people with disabilities. This research investigated the Mobility Assist program at Super Bowl XLV, which was hosted by AT&T Stadium (formerly known as Cowboys Stadium) and drew a crowd of 103,219 (91,060 paid), the second largest attendance for the Na- tional Football League’s (NFL) championship game (Mosier, 2011).

AT&T Stadium is a $1.2 billion public assembly facility and 2010 Sports Facility of the Year (“Cowboys Stadium wins,” 2010). Opened in 2009, it was designed to comply with the ADA, host a multitude of events, including concerts; religious ceremonies; business meetings; tradeshows; sporting, recreation, and leisure events; and non-event day paid venue visitation tours available to the general public.

This research was conducted via an on-site observation of Super Bowl XLV, a hallmark event. A hallmark event, also known as a mega-event, is defined by Goldblatt (2011) as a “one- time or recurring event of major proportions, such as the Summer or Winter Olympic Games, the Super Bowl, or other event projects of similar size, scale, scope, and budget” (p. 13).

The purpose of this research was to expand upon prior Mobility Assist research (Mahoney & McMillen, 2011) and develop recommended policies and procedures to accommodate peo- ple with special needs or mobility limitations, including the elderly. This research reviewed the Americans With Disabilities Act Accessibility Guidelines (ADAAG), which require at least one continuous, unobstructed route be provided to and from public facilities. The accessible route must comply with a multitude of ADAAG provisions, including Sections 207, Accessible Means of Egress; 502, Parking Spaces; and 503, Passenger Loading Zones, the foci of this study. Compli- ance with ADAAG is essential to providing a basic level of access for people with disabilities so they may enjoy equal access to public entertainment, recreation, and leisure events.

Methodology

This research used a mixed-methods qualitative case study and legal research analysis to determine ADA compliance. Data for this study were collected from December 2010 to August 2012 by direct observation, face-to-face interviews, e-mail correspondence, telephone calls, and review of supplemental Super Bowl XLV Mobility Assist (MA) documents. Prior to the on-site evaluation, researchers developed a legal audit checklist based on the 2011 Mahoney and Mc- Millen study and provisions of Chapter 4, Accessible Routes, and Chapter 8, Wheelchair Spaces, of the ADAAG. Researchers used this checklist during non-event day access of the venue and during participant interviews.

In February 2011, researchers conducted a 4-day on-site evaluation. During the first day, researchers observed the Super Bowl XLV MA program at a specialized Wounded Warriors tour of the facility. Researchers observed three phases of the Super Bowl XLV MA program: drop-off and loading points, access routes, and wheelchair assistance. Researchers recorded field notes, took photographs, and interviewed randomly selected Super Bowl XLV MA staff. On the second day, researchers interviewed Super Bowl XLV MA personnel, measured four randomly selected checkpoint entries with magnetometers, and measured 10 randomly selected accessible seat- ing locations and pathways and compared these measurements to current ADAAG mandates.

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Researchers measured wheelchair seating spaces, companion seats, and designated checkpoint entries by width, depth, and approach. On the third day, researchers observed the Super Bowl XLV MA program at a live event (Super Bowl XLV). The fourth day consisted of post-mega- event interviews with Super Bowl XLV MA personnel, collection of remaining Super Bowl XLV MA program collateral materials, and a final walk-through of the venue.

The researchers interviewed six venue and Super Bowl XLV MA personnel face to face. The interview pool consisted of venue and event management industry administrators with sub- stantial experience as senior-level venue and association management, the Super Bowl XLV MA manager, guest services management, NFL transportation, logistical operations, and contracted vendor administration, since these areas were essential to administering and operating the Super Bowl XLV MA program. Participants were purposely selected and interviewed due to their ex- pertise and knowledge of the MA program and facilities. For example, the Super Bowl XLV MA manager worked closely with NFL transportation and was responsible for all aspects of the Super Bowl XLV MA program. Venue and association management participants worked in adminis- trative positions and were responsible for components of the Super Bowl XLV MA program. The contracted vendors worked closely with guest services management and logistical operations and were responsible for implementing the aspects of the Super Bowl XLV MA plan.

Interviews followed a semistructured interview guide and were developed based on provi- sions of Chapter 4, Accessible Routes, and Chapter 8, Wheelchair Spaces, of the ADAAG. The first area concentrated on wheelchair and seating accessibility. The second area involved accessi- ble routes to and from mega-events. The third area investigated wheelchair spaces and the needs of elderly guests with disabilities. Researchers probed participant responses to pursue in-depth information concerning these areas.

Researchers independently recorded notes during interviews and recorded responses on the legal audit checklist within the three focus areas. They worked inductively and iteratively to give meaning and structure to the data. Researchers independently read the interview notes, legal audit checklist, field notes, supplemental data, and observations. They then collaborated and compared and contrasted their individual records for consistency, meaning, and interpreta- tion. They attained full agreement in all cases. They coded and categorized data within the ADA and ADAAG focus areas (wheelchair and seating accessibility, accessible routes, and wheelchair spaces). Data analysis involved three strategies: direct interpretation of the individual instance, categorical aggregation of multiple instances, and a legal analysis. Categorical aggregation al- lowed meaning to emerge from the repetition of themes. Direct interpretation allowed meaning to emerge from a single instance of data, such as a participant’s specific comment regarding the ADA.

The ADA requires new stadiums to be accessible to people with disabilities. To determine accessibility, researchers conducted a legal analysis of the Super Bowl XLV’s Mobility Assist pro- gram to investigate whether it accommodated wheelchair, seating, and checkpoint accessibility of ticketed guests, credentialed media (i.e., TV, radio, photographers, reporters, and so forth as approved by the National Football League), and staff with special needs, including elderly, with and without disabilities or mobility limitations according to the provisions of Chapter 4, Acces- sible Routes, and Chapter 8, Wheelchair Spaces, of the ADAAG.

Overview of the ADA and ADAAG

In 2010, the Americans With Disabilities Act celebrated its 20th anniversary as a public law designed to eliminate barriers for people with disabilities. Prior to the legislation, people with disabilities faced numerous challenges outside of their disability. Irregular walking paths, stairs, parking stalls, and concrete curbs are a few of the significant obstacles that limit access to and from public venues. To remove these barriers, the ADA requires elevators, ramps, curb cutouts, and other route-specific guidelines for newly constructed and altered public accommodations.

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Title II and Title III of the ADA are most applicable to sport and entertainment venues (Grady & Ohlin, 2004). Title II mandates that public entities give people with disabilities an equal opportunity to benefit from programs, services, and activities (42 U.S.C. § 12132). Title III requires that “places of public accommodation” be designed, constructed, or altered to be acces- sible (Chapman v. Pier 1 Imports, 2009). A place of public accommodation is a facility operated by a private entity whose operations affect commerce and fall within at least one of 12 categories including stadiums, such as AT&T Stadium (42 U.S.C. § 12186(b)(5)).

To ensure compliance with the ADA, Congress charged the U.S. Access Board (Board) with establishing guidelines for accessible design and construction. Subsequent to publishing the first ADAAG in 1991, the Board determined that its guidelines would be more effective if they re- flected the current requirements of the model building codes and standards (Access Board, n.d.). Therefore, the Board appointed a federal advisory committee to draft a new ADAAG patterned after the model building codes of the Building Officials and Code Administrators, International Council of Building Officials, and Southern Building Code Congress International, the “legacy” code organizations that later combined to become the International Code Council (ICC; Black, 2006).

The ADAAG were developed under a rule-making process that invites public comment through publication in the Federal Register (Access Board, n.d.). Changes and additions to ADAAG also are published through the same rule-making process that provides public notice and the chance to comment. In 1991, the Board called on the U.S. Department of Justice (DOJ) to establish construction regulations that apply to commercial construction, public accommo- dations, and state and local governments (Black, 2006). Future changes the Board makes to the ADAAG do not become enforceable until they are adopted into the standards maintained by the DOJ (Access Board, n.d.).

Because the ADA is a civil rights law, enforcement of its design requirements are not over- seen by a local building code official (Access Board, n.d.). Instead, when discrimination is al- leged, ADAAG requirements and other provisions of the law are enforced through private suit or by certain federal agencies. To prevail in a Title III lawsuit, the plaintiff must prove (1) he or she has a disability, (2) the defendant’s facility is a place of public accommodation, (3) and the plaintiff was denied full and equal treatment because of his or her disability (Pascuiti v. New York Yankees, 1999).

Some states have adopted ADAAG as their accessibility code and implement its provisions through state and local building code officials in the same way they apply, review, and enforce other applicable building regulations (Access Board, n.d.). The DOJ (n.d.) may file lawsuits in federal court to enforce the ADA, and courts may order compensatory damages and back pay to remedy discrimination if the DOJ prevails. Under Title III, the DOJ may also obtain civil penalties of up to $55,000 for the first violation and $110,000 for subsequent violations. In ad- dition, private individuals may bring lawsuits or file a complaint with the Attorney General, who is authorized to bring lawsuits in cases of general public importance or where a pattern of discrimination is alleged.

Since the ADAAG was published in 1996, the Board and model code community have sought to harmonize the differences between their respective accessibility requirements, with the latter having the stated goal of meeting or exceeding the federal ADA and Fair Housing require- ments wherever possible (Black, 2006). This has been an ongoing process, with what is now the ICC making amendments to the International Building Code (IBC) based on interim drafts of the new ADAAG and the Access Board modifying its provisions in light of new developments in the IBC and the ICC standards. In 2010, the Board published its most recent ADAAG. These standards were adopted by the DOJ and went into effect March 2011 with compliance required in March 2012 (Access Board, 2010).

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The ADAAG includes separate scoping sections for facilities covered under the ADA, but references a single set of simplified technical requirements. Scoping provisions spell out the spaces and elements that must meet the technical criteria of the ADAAG (Access Board, 2010). For example, the new ADAAG establishes one set of accessible reach ranges and maneuvering clearances to which all other sections refer.

Scoping provisions for privately owned facilities that are open to the public are different from those owned by federal, state, or local governments, but technical requirements for acces- sible elements are the same. For example, privately owned facilities that are less than three stories or less than 3,000 sq ft per floor do not require an elevator (Access Board, 2010).

ADAAG and Super Bowl XLV MA Access Routes

Although the ADA and ADAAG mandate strict design procedures for new or altered sta- dia, they also require sport and entertainment venues to provide an accessible route to and from the event. According to Chapter 4, Accessible Routes, of the ADAAG

accessible routes shall consist of one or more of the following components: walking surfaces with a running slope not steeper than 1:20, doorways, ramps, curb ramps excluding the flared sides, elevators, and platform lifts. All components of an ac- cessible route shall comply with the applicable requirements of Chapter 4. (Access Board, 2010)

In other words, the ADAAG requires accessible routes to and from a public sport and en- tertainment venue to comply with standards based on the location, width, passing space, head room, surface, slope, changes in level, doors, egress, and areas of rescue assistance, unless other- wise modified by specific provisions outlined in the ADAAG (Access Board, n.d.). Specifically, according to Section 502, if parking spaces are provided, accessible spaces for cars and vans also must be provided. Restrictions apply as to the number of spaces, width of parking stalls, access, and passenger loading zones (Access Board, 2010). Furthermore, accessible parking spaces must be the closest parking spaces to the accessible entrances and must be on an accessible route to the entrances.

Under the advisory provision 502.3, accessible routes must connect parking spaces to ac- cessible entrances. In parking facilities where the accessible route must cross vehicular traffic lanes, marked crossings are designed to enhance pedestrian safety, particularly for people using wheelchairs and other mobility aids. Where possible, the accessible route should not pass behind parked vehicles.

Under the ADAAG scoping guideline 206.2.1, Site Arrival Points, at least one accessible route must be provided to the site from accessible parking spaces and passenger loading zones, public streets and sidewalks, and public transportation stops to the building or facility entrance they serve (Access Board, 2010). In addition, the accessible routes must serve all of the accessible entrances on-site. Similarly, under Section 503, Passenger Loading Zones, if passenger drop-off areas are provided, they must be accessible and an accessible route must connect each acces- sible drop-off area with the accessible entrance. Where load and unload areas have more than one loading or unloading position, at least one loading and unloading position must be on an accessible route. Ramps must be provided if the drop-off area is next to a curb (Access Board, 2010). Due to security concerns, no traditional drop-off points were available within the AT&T Stadium footprint for Super Bowl XLV (Super Bowl XLV Accessibility Guide, 2011). Drop-off points for the Super Bowl XLV accessible shuttle service tents and the mega-event staff shuttle buses were the foci of researchers.

Providing an access route to a sport and entertainment venue is only part of a sport organi- zation’s legal obligations under the ADA. The ADAAG also includes specifications for “accessible means of egress,” emergency alarms, and signage (Savage v. City Place Limited Partnership, 2004).

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An accessible means of egress is a continuous and unobstructed way of egress travel from any point in a building or facility that provides an accessible route to an area of refuge, a horizontal exit, or a public way (Access Board, 2010). Most of the criteria for accessible routes, such as width and the treatment of elevation changes, also are applied to accessible means of egress to ensure access for people with disabilities, including mobility impairments. Multistory buildings, such as AT&T Stadium, may pose a particular challenge to accessible means of egress because the stan- dard means of access between floors are typically taken out of service in emergencies for safety reasons (Grady & Andrew, 2007).

Super Bowl XLV and ADA Access Route Compliance

The host venue for Super Bowl XLV, AT&T Stadium, encompasses 73 acres with an overall footprint of 140 acres (Wood, 2009). Architects and engineers designed, and construction per- sonnel built, the multiuse facility using over 26,000 tons of steel and 19 million pounds of truss work. The venue has over 1,600 toilets, 22 escalators, 18 elevators and 10 major stairways, 10 bars or clubs, 15,000 club seats and 300 luxury suites, and a 70 ft x 160 ft center-hung video board (Cowboys Stadium, 2010).

To accommodate guests, AT&T stadium has approximately 12,000 on-site parking spaces. Thirteen of the 15 numbered parking lots are paved and two are non-paved (grass/terrain). Sta- dium seating is configured with 1,201 wheelchair platform seats or limited mobility seats for a traditional AT&T football game. As of August 2012, the largest single-event attendance recorded for the stadium is 108,713 for the 2010 NBA All-Star Game, the largest attendance ever for a bas- ketball game. The occupancy certificate issued by the city of Arlington, Texas, lists the maximum capacity for the venue at 111,947 (Mosier, 2010).

NFL requirements predicated approximately 6,000 of the innermost parking spaces (Lots 1, 2, 3, 4, 5, 6, 7, 10) reappropriated for a required security perimeter exterior of the host venue. This secure perimeter included concrete barricades, nine security checkpoints with magnetom- eters, and generators to power the state-of-the-art checkpoint security and surveillance systems. Within the footprint of the security perimeter were the TV compound, NFL tailgate party (pri- vate), plaza party (private), and 2 game day fan plazas (east/west). Immediately adjacent to the security zone perimeter was the security compound inclusive of FBI, multiple local police juris- dictions, public safety, and other credentialed first responders.

To achieve ADA and ADAAG compliance, AT&T Stadium previously instituted an MA program (Mahoney & McMillen, 2011). The safe and timely transport of guests with disabili- ties and mobility limitations from 11 “official” event parking lots to the venue (inbound) and post-mega-event reversal (outbound) is the primary charge of the MA plan. This MA program consists of three distinct entities: senior-level stadium management, logistical operations and administration by Central Parking System (CPS), and contracted transport coordination servic- es (CPS, 2010). According to the MA plan, transportation is provided for any constituent group needing assistance, including VIPs, media, staff, volunteers, teams, team families, sponsors, gen- eral spectators, and people who have special needs as determined by the person.

Super Bowl XLV’s MA program consisted of three distinct entities: (1) overall planning, lo- gistical operations, and administration; (2) transport coordination services; and (3) senior-level venue administrators (Kitts, personal communication, February 4, 2011). Hosting Super Bowl XLV required AT&T Stadium MA management and NFL Transport to cohesively develop a Su- per Bowl XLV MA program inclusive of specialized services to enhance access for people with disabilities despite 6,000 of the innermost parking spaces being reappropriated into checkpoints to secure the perimeter. According to the Super Bowl XLV MA plan, transportation is provided for ticketed guests, credentialed media, and staff needing assistance, and people who have special or mobility needs as determined by the individual. Guests and staff with special needs or mobil-

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ity limitations ranged from elderly and pregnant guests, to guests with temporary or permanent physical limitations.

Under the ADAAG scoping standard 208.3.1, General, parking spaces complying with Sec- tion 502 that serve a particular building or facility must be located on the shortest accessible route from parking to an entrance and comply with Section 206.4 (Access Board, 2010). Where parking serves more than one accessible entrance, parking spaces complying with Section 502 shall be dispersed and located on the shortest accessible route to the accessible entrances. How- ever, parking spaces are permitted to be located in different parking facilities if substantially equivalent or greater accessibility is provided in terms of distance from an accessible entrance or entrances, parking fee, and user convenience.

Prior to serving as host venue for Super Bowl XLV, AT&T Stadium parking guidelines met or exceeded ADAAG Sections 502 and 503 parking and passenger loading zone requirements (Mahoney & McMillen, 2011). For this mega-event held at AT&T Stadium, Lot 11 with approxi- mately 2,100 parking spaces was designated for talent, police vehicles, and 700 ADA accessible parking spaces (i.e., striped, painted, and marked with required ADA signage). On Super Bowl XLV event day, researchers noted additional ADA parking spaces reserved in each of the other 11 paved and striped lots with movable cones, thereby increasing accessible parking (Super Bowl XLV Event Day Staff Notes, 2011).

Accessible parking spaces were available in Lot 11 and the remaining 11 NFL-controlled lots and were issued on a first-come, first-served basis and therefore met ADAAG Section 502 (Access Board, 2010). Cash and permit parking were enforced and guests were required to have a parking pass for designated lots to park in an accessible parking space (Super Bowl XLV Ac- cessibility Guide, 2011).

Parking lot staff directed any vehicle arriving at one of the lots with the proper state-issued disability plate or placard to an accessible parking space. Once parked, the guests with disabilities or mobility limitations were directed to the Super Bowl XLV MA accessible shuttle service load zone provided in Lot 11 and the remaining NFL-controlled parking lots. These designated areas were appointed with the International Symbol of Accessibility and Super Bowl XLV MA signage. Upon arrival of the Super Bowl XLV MA accessible shuttle, guests were transported from the parking lot to the assigned security checkpoint magnetometer following a dedicated path of travel per ADAAG advisory provision 402. Once guests passed through the magnetometers, Su- per Bowl XLV MA personnel were available to assist/transport them to their stadium entry gate, again following a dedicated path of travel per ADAAG advisory provision 402. Interior Super Bowl XLV MA personnel also were available to assist guests from stadium entry gates to their respective seating location as necessary.

According to ADAAG scoping standards 213, Toilet Facilities and Bathing Facilities, where toilet facilities are provided, they must comply with Section 213 (Access Board, 2010). Porta- ble toilet units must be identified by the International Symbol of Accessibility to comply with 703.7.2.1. NFL-controlled parking lots for Super Bowl XLV were compliant with Section 213, and portable toilet units were provided in the respective lots according to 703.7.2.1.

Dependent upon guests’ needs upon arrival at gate entries A, D, G, or J of the host venue, Super Bowl XLV MA staff escorted guests who requested assistance to their respective seats via wheelchair assistance (Super Bowl XLV Accessibility Guide, 2011). Within the venue, one Super Bowl XLV MA program assistant manager orchestrated eight program coordinators, four guest services desk assistants, one dispatcher, and 80 accessibility escorts, each responsible for accom- modating guests with disabilities or mobility limitations. Services provided included document- ing requested services by specific guests, processing a reservation, and coordinating logistics for post-mega-event transports from the guest seating area to one of the four exterior designated outbound Super Bowl XLV accessible shuttle service tents adjacent to the security checkpoint magnetometers nearest exits B, D, G, and J.

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The Super Bowl XLV MA program also incorporated global positioning system (GPS) tracking of all shuttle carts and radio communication between the three phases of the program: (1) NFL-controlled event parking lots to magnetometers (checkpoints at secure perimeter), (2) magnetometers to venue gates, and (3) venue gates to seats (inbound) and post-mega-event re- versal (outbound).

Sector specific channels (exterior security perimeter, interior security perimeter, interior of stadium), as well as sector-to-sector and command post-to-sector coordinators, were incorpo- rated into the radio communication plan. Communication was essential to orchestrate shuttle drivers, parking lot attendants, sector coordinators, and wheelchair escorts with the Super Bowl XLV MA manager and NFL Transport Command Post for guests with disabilities to be served efficiently. The Super Bowl XLV MA manager was responsible for on-site monitoring of Super Bowl XLV MA requests and timely deployment of shuttles to areas requiring assistance. Guests with disabilities or mobility limitations who used the Super Bowl XLV MA shuttle were provided with a locator card by the shuttle driver indicating the location to return after the event for Super Bowl XLV MA shuttle pick-up (Super Bowl XLV Accessibility Guide, 2011).

The Super Bowl XLV MA shuttle was available on event day from each of the 22 NFL-con- trolled parking lots to the appointed security checkpoint/magnetometer and then to the facility. Shuttles were staffed and operational upon the opening of NFL-controlled parking lots, running continuously after completion of the Super Bowl until the MA manager determined that services were no longer needed (Super Bowl XLV Mobility Assistance Program Training, 2011). The Su- per Bowl XLV MA service was limited to guests (and one companion), credentialed media, and staff needing the service.

Post-event (outbound) Super Bowl XLV MA shuttles were staged at Super Bowl XLV ac- cessible shuttle service tents adjacent to the security checkpoint magnetometers nearest exits B, D, G, and J. Guests with disabilities or mobility limitations were shuttled from these designated pick-up zones located outside of the stadium, following a “dedicated path of travel” back to the Super Bowl XLV accessible shuttle service tents and ultimately to the respective NFL-controlled lot (printed on their locator card) where their vehicle was parked.

According to Super Bowl XLV MA program documents, 50 MA carts were assigned to Super Bowl XLV (10 with wheelchair assist), including wheelchair accessible transport for guests requesting assistance (Super Bowl XLV Mobility Assistance Program Training, 2011). Event day requirements of Super Bowl XLV MA transportation staff included reporting to the Super Bowl XLV MA manager of guest needs; checking out required equipment (e.g., radio, headset, blue flags, shuttle cart, and key); attending event briefing; collecting event and log sheets, locator cards, and reservation forms; deploying to assigned guest services desks, exterior security perim- eter lots, or Super Bowl XLV accessible shuttle service tents adjacent to the security checkpoint magnetometers; and reversing the process at completion of mega-event. Super Bowl XLV MA coordinators were responsible for collecting shuttle log sheets and wheelchair escort reservation forms and providing copies to Super Bowl XLV MA management. They also coordinated the time, resources, and personnel required for program logistics and parking for guests with dis- abilities.

Risk management and transportation requirements of the Super Bowl XLV MA service included criminal history background check of Super Bowl XLV MA program staff, appropriate sector credentialing (i.e., coordinator dual-access/pass-through at magnetometers, staff exterior of magnetometers, interior of security perimeter/exterior of stadium, pre-event zones, pre-event compounds, Super Bowl stadium access, Super Bowl game day zones, Super Bowl postgame zones), personnel and staff training, maintenance of equipment and shuttles, use of safe travel routes, sector patterned travel (i.e., transit from designated load zones within the parking lots to the magnetometers, designated wheelchair transfer points from the magnetometers to desig- nated gate entries, media circulator zones, etc.), aerial surveillance from stadium control room,

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GPS tracking and surveillance of Super Bowl XLV MA shuttles from the NFL Transport Com- mand Post, radio communication, and documentation of Super Bowl XLV MA transport log (Kitts, personal communication, February 4, 2011).

Discussion and Recommendations

The primary charge of the Super Bowl XLV MA plan was to provide safe and timely trans- port of ticketed guests (plus one companion), credentialed media, and staff with special needs or mobility limitations to and from the event (Super Bowl XLV Event Day Staff Notes, 2011). During normal event operations, AT&T Stadium meets or exceeds ADAAG Sections 207, Ac- cessible Means of Egress; 502, Parking Spaces; and 503, Passenger Loading Zones (Mahoney & McMillen, 2011). AT&T Stadium also was found compliant during Super Bowl XLV; however, accessibility improvements still could be made. For example, not all guests could afford to pay the Super Bowl XLV parking fee ($71.40 for Car/Van/SUV including ADA) and park in one of the 22 NFL-controlled lots, thereby forcing some guests to find alternative entrepreneurial park- ing that did not always provide an accessible path to the venue. Also, due to security concerns, three traditional guest drop-off/pick-up and one taxi stand point were not available within the site footprint for Super Bowl XLV. Taxi services were repositioned approximately three quarters of a mile from the nearest secure perimeter checkpoint and magnetometer.

Additionally, although the host venue had NFL-controlled parking spaces, cohesive public transit did not fully meet the needs of older adults and people with physical impairments who parked outside of the mega-event footprint. Researchers also questioned whether patrons with special needs or mobility limitations were able to withstand a prolonged wait period in the queu- ing zones for outbound Super Bowl XLV MA carts since several ran out of fuel and others were rendered inoperable due to mechanical issues. Planned refueling/recharging would eliminate some of mechanical concerns.

Furthermore, the four Super Bowl XLV accessible shuttle service tents adjacent to the secu- rity checkpoint magnetometers nearest exits B, D, G, and J, although compliant with ADA stan- dards, should have incorporated different colors (i.e., blue to contrast the white magnetometer tents) and multifaced signage to expedite awareness of the Super Bowl XLV MA program. The researchers also recommend that all tents or similar structures be located on a flat, stable, firm, and slip-resistant surface.

The Super Bowl XLV MA shuttle log used to document MA arrivals included the following categories: driver, Super Bowl XLV event, date, lot, guest need, number of people, and com- ments section (Super Bowl XLV Mobility Assist Shuttle Log, 2011). However, researchers rec- ommend adding a time indicator, cart number, and mobile application data entry system that the driver may use to enter information prior to each guest transit. Timely data input could aid MA programs in storing and evaluating information, better forecasting outbound MA transport demand, and providing data for future MA programs at the venue.

The wheelchair escort reservation form for Super Bowl XLV MA included the following cat- egories: Super Bowl XLV event, date, guest name, parking lot, seat location (section/row/seat), and pick-up time at conclusion of event/other (Super Bowl XLV Mobility Assistance Program Training, 2011). Researchers suggest adding an ingress/egress gate to the form to monitor the staging of wheelchairs and the appropriateness of zone-specific outbound MA carts. This would improve efficiency of the MA program to better meet the needs of waiting guests.

To comply with the ADAAG, mega-event organizers and tourism, recreation, entertain- ment, and sport organizations are advised to review their current access routes and determine whether they meet ADAAG and implement staff training to ensure compliance. Furthermore, when a security perimeter barrier is implemented within a mega-event footprint, access routes for all stakeholders (i.e., guests and staff with disabilities, security, public safety, VIPs, athletes/ entertainers, event and organization officials) must be planned to incorporate security check-

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points, credentialed access sectors (i.e., pre-event zones, pre-event compounds, exterior of mag- netometers, interior of security perimeter/exterior of stadium, Super Bowl stadium access, Super Bowl game day zones, Super Bowl postgame zones), and queuing for an efficient flow and es- sential event functioning. Regardless of planning and overall design of MA programs, training remains critical to success (Skulski, Bloomer, & Chait, 2002).

For Super Bowl XLV and its multiple security and transport sectors and corresponding lev- els of credentialing and access, MA staff were required to undergo training per their respective job responsibilities regardless of prior experience at the host venue or other mega-events. MA training should be conducted at all levels and include disability awareness, appropriate termi- nology, and sector-specific “walk-through” (Mahoney & McMillen, 2011). From the front-line parking attendant and auditor, to the MA driver and wheelchair services event staff, to the facil- ity director and (NFL) transportation services manager, training is an essential component to ef- fectively serve guests with disabilities. As such, training should be tailored to job responsibilities (Huston-Wilson, Dunn, van der Mars, & McCubbin, 1997). For example, MA programs should be detailed with specific procedures, such as taking requests for accommodations at the guest services center, greeting patrons with disabilities when entering a passenger drop-off zone at the security perimeter magnetometers, accessible shuttle service tent, or the host venue parking lots. Credentialing must consider the pre-event job function, pre-event zones, pre-event compounds, event day job function, event day zones, venue access, and post-event zones for respective per- sonnel. Researchers noted concern within the magnetometers (checkpoints at secure perimeter), as MA staff were not able to cross over to this particular (inbound) area, with a guest with special needs, thereby relying upon radio communication to notify the second phase MA personnel (magnetometers to venue gates) that assistance within the checkpoint was needed. Multizone credentialing would enhance MA program efficiency and service.

Outbound traffic flow, both vehicular and pedestrian, proved to be a logistical challenge. As shuttles transited back and forth from the stadium, another Super Bowl XLV MA team trans- ported guests to the parking lots. This process took longer than guests anticipated, and some became restless awaiting the next accessible shuttle service. This potentially could be problematic for passengers with special needs.

To differentiate mega-event MA transports from other venue and event day carts, MA carts should be outfitted with a visual cue, such as a blue flashing light, and all MA staff should wear coordinating apparel to improve visibility of the program. Organizers, ADA coordinators, and venue personnel should monitor queue line (waiting lines) arrival rate and service rate per- formance to minimize wait times. Wait time performance measures include average number waiting in line and in the system, average time spent waiting and the average time spent in the system, and system use rate (Reid & Sanders, 2012). Further suggestions include conducting a detailed post-evaluation of components of the MA program with respective stakeholders, des- ignating how and where records are maintained, making available sheltered areas, using power chair charging stations, and using a dedicated path of travel for MA wheelchair escorts that parallels the exterior security perimeter and magnetometers queues.

Conclusion

The Super Bowl XLV MA program accommodated patrons according to the provisions of the Americans With Disabilities Act and Chapter 4, Accessible Routes, and Chapter 8, Wheel- chair Spaces, of the ADAAG. The MA program not only accommodated ticketed guests, creden- tialed media, and staff with special needs or mobility limitations, but also served as a model as to how access at public events and venues may be enhanced for individuals so they, their families, and friends may enjoy equitable access.

Based on this research, the researchers recommend that event organizers and venue manag- ers adopt 13 core principles for similar events and venues: (1) publish a mission statement ad-

Accessible Routes 79

dressing the event and its commitment to equality services for all persons, including the elderly and people with special needs or mobility limitations; (2) involve key stakeholders in planning, including venue and facility personnel, the ADA manager, and disability and equity advocates and patrons; (3) plan for MA transport throughout the entire event—from build-out to tear- down—as some events involve “non-event” day activities (e.g., meetings, half-time rehearsal); (4) create a journey planner on the mega-event website and publish information on accessible parking and the MA program; (5) provide event staff, security, parking, admissions, ADA and MA program personnel, and guest services personnel with disability etiquette and access aware- ness training; (6) use only MA staff who have successfully completed MA program training requirements; (7) commission an MA program manager to oversee the MA program; (8) require that mobility assistance be provided upon the guest’s request, not venue or MA staff determina- tion; (9) use an ADA or MA shuttle log to monitor guest requests and needs; (10) make sure all mobility transports (shuttle carts, wheelchair escorts) have an accessible inbound and outbound dedicated path of travel; (11) use appropriate credentialing; (12) implement MA program sig- nage that is visible; and (13) designate an independent access auditor to conduct an accessibility audit of the host venue, services, and temporary facilities planned within the event footprint. By implementing and monitoring these recommendations, organizers of similar events and venue managers may ensure that their guests have full access to their venues and events.

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