REPORT TO STADIUM AUTHORITY BOARD
SUBJECT
Title
Summer 2024 Informational Report on Super Bowl LX and FIFA World Cup 2026 Updates
Report
BOARD PILLARS
Enhance Community Engagement and Transparency
Ensure Compliance with Measure J and Manage Levi’s Stadium
BACKGROUND
In 2026, Levi’s Stadium will host Super Bowl LX (“SBLX”) in February 2026 and six FIFA World Cup 2026 (“FWC26”) matches between June 13 - July 1, 2026. The events are collectively referred to as “2026 Major Events” in the report.
FWC26 Overview
The FIFA World Cup and FIFA Women's World Cup are international soccer competitions between the national teams of the Fédération Internationale de Football Association (“FIFA”), the sport's international governing body. The World Cup is held every four years and is the most prestigious association soccer tournament in the world, as well as the most widely viewed and followed single sporting event in the world. Below is a timeline of the key events that have led to the current status of FWC26:
The City first affirmed its support of FWC26 and related events in a letter signed by Mayor Gilmore on August 31, 2017.
On February 22, 2022, City Council voted in favor of a resolution to support the City’s bid to host one or more FIFA games.
On June 16, 2022, FIFA announced the 16 regions that will host matches for FWC26 across Canada (2 locations), Mexico (3 locations), and the United States (11 locations). The FWC26 Host Cities are:
• Atlanta (Mercedes-Benz Stadium)
• Boston (Gillette Stadium)
• Dallas (AT&T Stadium)
• Guadalajara, Mexico (Estadio Akron)
• Houston (NRG Stadium)
• Kansas City (Arrowhead Stadium)
• Los Angeles (SoFi Stadium)
• Mexico City, Mexico (Estadio Azteca)
• Miami (Hard Rock Stadium)
• Monterrey, Mexico (Estadio BBVA)
• New York / New Jersey (MetLife Stadium)
• Philadelphia (Lincoln Financial Field)
• San Francisco Bay Area (Levi’s Stadium)
• Seattle (Lumen Field)
• Toronto, Canada (BMO Field)
On May 23, 2023, City Council and Stadium Authority Board voted in favor of a resolution to adopt the Santa Clara City Council Guiding Principles for FWC26; to direct the City Manager/Executive Director and City Attorney/Stadium Authority Counsel to negotiate and execute an Information Sharing and Event Cooperation Agreement with Bay Area Host Committee, United States Soccer Federation, Federation Internationale de Football Association, and Forty Niners Stadium Management Company LLC, to facilitate the sharing of information on substantially the terms presented, in a final form approved by the City Attorney.
FWC26 Guiding Principles:
1. Professionally oversee FIFA World Cup 2026 events in a manner that positively highlights the City of Santa Clara and celebrates the rich diversity of Santa Clara’s neighborhoods.
2. Attain reimbursement of all event costs, including public safety (pre- and post-event costs).
3. Ensure direct benefits to the Santa Clara community and Santa Clara businesses.
4. Plan and provide for communication and engagement with residential neighborhoods adjacent to Levi’s Stadium and other venues that will be utilized for large events.
5. Ensure specific benefits to and involvement of Santa Clara youth and adult soccer programs.
6. Seek revenue generating utilization of the Santa Clara Convention Center and other event and recreation spaces (including college and school facilities) in the City of Santa Clara without any impact to the General Fund.
7. Seek mitigation of City and Stadium Authority financial risks and liabilities.
8. Engage in transparent communication on pre-planning efforts, with periodic progress reports to the City Council, including reports published on the City’s website to promote engagement and awareness for residential neighborhoods adjacent to the Stadium and the City as a whole.
9. Pledge that the Santa Clara City Council, Stadium Authority Board, and City staff will follow the law, act ethically and transparently with the expectation that other parties do the same.
On February 4, 2024, FIFA announced the match schedule for FWC26. Levi’s Stadium will host matches on June 13, 16, 19, 22 and 25 and July 1, 2026. The June matches are “group” matches and the July 1 match is considered a “knockout” match which represents a round of 32 teams.
Super Bowl LX Overview
The Super Bowl is the annual championship game of the National Football League (NFL). It serves as the final game of every NFL season and is generally played on the second Sunday in February.
In 2018, The Super Bowl bidding process shifted from a competitive approach to a more streamlined method. Now, the NFL selects a city and presents the terms for hosting. The city can accept or decline, and if declined, the traditional bidding resumes. This change aims to minimize disappointment and resource waste for cities, while giving the NFL greater control over hosting conditions.
Article 4 of the Stadium Lease grants Forty Niners Stadium Company, LLC (“StadCo”) the right to use stadium for the operation of NFL Games, including the Super Bowl, and any and all other activities which are customarily conducted by, or are related to the operation of the business of an NFL Franchise or to any NFL Events or Incidental Uses, which collectively are referred to as “Permitted Uses.”
On May 22, 2023, the NFL announced that Super Bowl LX will be played at Levi's Stadium.
March 5, 2024 Major Events Informational Report
On March 5, 2024, City Staff, Santa Clara Stadium Authority (Stadium Authority), and the Bay Area Host Committee (BAHC) presented an Informational Report on Super Bowl LX and FWC26 Updates.
Staff made two recommendations that were unanimously approved by City Council/Stadium Authority Board:
• Note and file informational report on Super Bowl LX and FWC26 updates; and,
• Adopt the Super Bowl LX Guiding Principles, which are as follows:
1. Professionally oversee the Super Bowl LX in a manner that positively highlights the City of Santa Clara and celebrates the rich diversity of Santa Clara’s neighborhoods.
2. Attain reimbursement of all event costs, including public safety (pre- and post-event costs).
3. Ensure direct benefits to the Santa Clara community and Santa Clara businesses.
4. Plan and provide for communication and engagement with residential neighborhoods adjacent to Levi’s Stadium and other venues that will be utilized for large events.
5. Ensure specific benefits to and involvement of Santa Clara youth and adult football programs.
6. Seek revenue generating utilization of the Santa Clara Convention Center and other event and recreation spaces (including college and school facilities) in the City of Santa Clara without any impact to the General Fund.
7. Seek mitigation of City and Stadium Authority financial risks and liabilities.
8. Engage in transparent communication on pre-planning efforts, with periodic progress reports to the City Council, including reports published on the City’s website to promote engagement and awareness for residential neighborhoods adjacent to the Stadium and the City as a whole.
9. Pledge that the Santa Clara City Council, Stadium Authority Board, and City staff will follow the law, act ethically and transparently with the expectation that other parties do the same.
Additionally, Staff and Stadium Authority committed to providing a quarterly Informational Report on planning efforts for 2026 Major Events.
March 5, 2024 Major Events Informational Report Summary
Major Events Key Stakeholders - Staff provided information on the stakeholder structure, roles of key stakeholders, and their responsibilities and relationship with the City and Stadium Authority for the 2026 Major Events. Key stakeholders include:
• Bay Area Host Committee (BAHC)
• NFL
• FIFA
• Stadium Authority
• City of Santa Clara
• Forty Niners SC Stadium Company, LLC (StadCo)
• Forty Niners Stadium Manager Company LLC (Stadium Manager)
• Regional, state, and federal government partners
Recent and Current City and Stadium Authority Work Efforts
Staff’s presentation included updates on recent and current City and Stadium Authority work efforts related to:
• Acquisition of key FWC26 documents
• Negotiations for Assignment and Assumption of FWC26 responsibilities and costs
• City infrastructure and resources
• Additional personnel in the special operations division
• Stadium capital project oversight
• Information Obtained from Participation in Programs at this Year’s Super Bowl (Super Bowl LVIII in Las Vegas)
• Conferences and meetings with key stakeholders
Planned and Anticipated City and Stadium Authority Work Efforts
Staff’s presentation will also describe planned and anticipated City and Stadium Authority work efforts related to:
• Emergency management planning
• Public safety planning
• Negotiation and execution of an Assignment and Assumption Agreement FWC26 and other relevant agreements required
• Negotiation and execution of a League Event Agreement and other relevant agreements required for SBLX
• Community partnerships and outreach
DISCUSSION
FIFA World Cup 2026 - Overview of Current Status
The City and Stadium Authority are currently in active negotiations with BAHC, Stadium Company/Stadium Manager (“Niners Entities”), and FIFA regarding the costs for World Cup events. BAHC has agreed to reimburse the city for public safety costs, which include eligible planning, training, equipment, and direct event costs, through several agreements, including an Interim Funding Agreement, which was fully executed on August 20, 2024 (attached to this report), and the Assignment and Assumption Agreement and Government Services Agreement, with the details of terms still under negotiation.
The Interim Funding Agreement, which is effective July 1, 2024, and will terminate the earlier of (i) December 31, 2024, or (ii) upon the execution of the Assignment and Assumption Agreement, provides for the reimbursement of City costs for the event planning work conducted by the BAHC for the FIFA World Cup. This is a limited-time arrangement to ensure that the City costs have been covered as we finalize an Assignment and Assumption Agreement and the Government Services Agreement for the event.
The Interim Funding Agreement stipulates that BAHC shall reimburse the City for expenses related to the Event Planning Work, which expenses shall include police, fire, and public works staffing costs and expenses associated with the planning, coordination, and preparation of FIFA World Cup 2026 from the Effective Date (collectively, the “Eligible Costs”). The maximum amount of Eligible Costs to be paid by BAHC to the City under the terms of this Agreement is One Hundred Fifty-Two Thousand Five Hundred Dollars ($150,000).
In budgeting for the Event Planning Work, the City has developed an initial estimated allocation of staff costs into categories (“Initial Estimated Cost Allocation”). This Initial Estimated Cost Allocation is attached to this report (see Interim Funding Agreement - Exhibit A). The City shall track the amount of Eligible Costs actually incurred in relation to the Initial Estimated Cost Allocation and shall provide BAHC with written reports of expenditures against the Initial Estimated Cost Allocation together with a summary of activities undertaken.
Eligible Costs, including staff time, will be tracked from July 1, 2024 until the conclusion of the FWC26 and SBLX events in 2026 through a series of new payroll codes that codify planning, training, and direct event costs. Staff updated CMD Number 136 entitled “Stadium-related Time Reporting and Reimbursement for City Services”, Attachment 2, to include this new time reporting process.
With respect to tracking staff time prior to July 1, 2024, (“Pre-Interim Funding Agreement Costs”), City and Stadium Authority staff reclassified general Stadium Authority-related staff time into specific FWC26 and SBLX-related staff time that was spent on those activities, dating back to May 22, 2023, and through June 30, 2024, by month, and by staff member.
There were approximately 1,330 staff hours spent during the timeframe of May 22, 2023, and through June 30, 2024 for Major Events, which represents a total cost of approximately $328,281:
• 743 hours were spent on SBLX activities, which represents $187,265
• 584 hours were spent on FWC26 activities, which represents $141,017
When reducing the hours/costs for City personnel already budgeted to work on Stadium oversight and management within the Stadium Authority’s Annual Budget, the costs Pre-Interim Funding Agreement Costs during the timeframe of May 22, 2023, and through June 30, 2024, for Major Events are reduced to approximately $150,000.
City and Stadium Authority are in active negotiations with BAHC to determine the reimbursement amount for the Pre-Interim Funding Agreement Costs during this timeframe.
In addition to the negotiation of agreements and timekeeping activities, City and Stadium Authority have conducted Emergency management planning, Public safety planning and City permitting activities to ensure readiness and resiliency. City and Stadium Authority have also attended FIFA-led working group planning meetings where representatives from all the FWC host cities exchange planning progress updates, share best practices, and discuss challenges.
Super Bowl LX - Overview of Current Status
As previously stated, Super Bowl LX is an NFL-event that will be managed and operated by the Niners entities. Section 4.5.1 of the Stadium Lease grants the Niners Entities the sole and exclusive right to host and exhibit professional football games in the Stadium, including the Super Bowl.
Staff and Stadium Authority have prepared and sent the BAHC an initial term sheet for the League Event Agreement to the BAHC for review and comment. The League Event Agreement will address the reimbursement of the City’s costs for the planning and deployment efforts to support these events.
Listed below is an itemized summary of the recent and Current City and Stadium Authority Work Efforts - for FWC26 and SBLX
• Fully executed Interim Funding Agreement with BAHC (August 2024) - The Interim Funding Agreement provides for the reimbursement of City costs for the event planning work for FWC26. This is a limited time arrangement to ensure that the City costs have been covered as we finalize an Assignment and Assumption Agreement and the Government Services Agreement for the event.
• Updated City Manager’s Directive (CMD) 136: Stadium-related Time Reporting and Reimbursement for City Services (“CMD 136”), and updated Stadium payroll codes sent to staff (August 2024) - The purpose of the CMD is to provide updated Stadium payroll codes for staff who have worked on FWC26 and SBLX-related activities to ensure proper timekeeping. As background, Measure J prohibits using City funds for Stadium Authority costs, including operating and maintenance expenses. CMD 136 outlines staff’s timekeeping responsibility and City-wide reimbursement procedures to ensure full cost recovery and accurate reporting of City services provided to the San Francisco Forty Niners entities, Stadium Authority, or otherwise in support of Levi’s Stadium. CMD 136 has been updated to provide additional clarification of City services that should be tracked and reported and is attached for reference.
• Levi’s Stadium Bowl Modifications Meeting and Status (August 2024) - City and Stadium Authority representatives met with representatives from BAHC and Niner’s Entities to discuss the status of FIFA capital projects at Levi’s Stadium, including the modification to the inner bowl, specifically Quadrants A, B, C and D. These modifications are required by FIFA to allow for an expanded field “pitch” area as required by FIFA. The field regulations cover more than just the size and layout of a pitch. It also takes into account various other components such as area and line markings, goal post dimensions, and other elements that make up the playing environment. Niners entities have submitted a permit for the bowl modifications, which will remove 3 rows of general seating (Quadrants C and D) and a full row of ADA seating (Quadrants A and B), which will be moved to a slighter higher position in the same general section. Importantly, the sections will be replaced with demountable steel structures that can be removed and reinstalled, allowing for greater flexibility for future events. During the FWC26 matches, the bowl modifications will result in a net gain of 4 wheelchair and 4 companion ADA seats, while the total seat count will be reduced by 527 seats, to 27,685 seats. The target date for construction of all CIP projects at Levi’s stadium, including the bowl modifications, is slated to begin in late January, 2025. Importantly, the costs of the bowl modifications will be fully reimbursed by the BAHC.
o The size and layout of a FIFA-approved soccer field must meet certain specifications in order to ensure fair competition between teams.
o The overall length should measure between 100 yards (90 m) and 130 yards (120 m), while the width should fall somewhere between 50 yards (45 m) and 100 yards (90 m). international Quadrants A and B, located in the NE and NW section of the lower bowl will be demolished and replaced with demountable structures that can be removed and reinstalled, allowing for greater seating flexibility.
• SBLX/FWC Emergency Management Planning update was provided to the Emergency Operational Area Council (“EOAC”) (August 2024) - The Emergency Operational Area Council is a council made up of Operational Area elected officials, executives, and public safety leaders which receives reports on past and future threats, hazards, and special events and prioritizes grant funding for Operational Area emergency management projects. Council-woman Karen Hardy and Fire Chief Ruben Torres currently sit on the EOAC as two of the over a dozen multi-jurisdictional council members.
• City representatives from the Office of Emergency Services and the City Manager’s Office attended the annual 2024 National Homeland Security Conference, which was held in Miami Beach at the Miami Convention Center (July 2024) - Staff attended many seminars on public safety best practices relating to large event lessons learned from Tampa Florida public safety practitioners, Victim Assistance Center management, AI use in Emergency Management, and other informative seminars. Additionally, the FIFA Safety and Security North American offices and their lead planners hosted a 2026 FWC Host City planning meeting and a large seminar on the planning efforts. City of Santa Clara, City and County of San Francisco, and City of San Jose representatives attended both of these meetings to represent the San Francisco Bay Area FWC planning effort. Additionally, City of Santa Clara reps met with Bay Area Urban Area Security Initiative (“UASI”) executive staff to discuss City public safety planning, training, exercise, and grant funding priorities. Lastly, the City Manager’s Office representative attended and received a certification for a Senior Officials Incident Management course.
• Office of Emergency Services (“OES”) assisted in the leadership of an Operational Area Emergency Management FWC26/SBLX Kickoff Meeting (July 2024) - This was done in partnership with Santa Clara County and several regional emergency management partners, such as the San Francisco Department of Emergency Management, the National Weather Service, Pacifica Gas and Electric, the County Mutual Aid Coordinators from the Sheriff’s Office, the County Fire Department, County EMS, and the various City Emergency Managers. This meeting was a kickoff meeting for the respective Super Bowl Emergency Management and FWC Emergency Preparedness planning focus groups. An overview of Super Bowl 50 (hosted on February 7, 2016 at Levi’s Stadium) planning and operational timelines and structures, and a comparison with expected planning timelines and operational process for Super Bowl LX and FIFA World Cup were discussed, as well as general roles and responsibilities.
• National Center for Sports Safety and Security Conference (July 2024) - In July 2024, members of the PD Special Operations Division attended the Annual National Center for Spectator Sports Safety and Security (NCS4) Conference. NCS4 is the premier US academic organization for sports venue safety and security research and training. The conference included a presentation from FIFA’s Chief Safety and Security Officer, as well as a session regarding FWC26 planning and preparation. The conference included numerous other training modules regarding major event public safety planning and operations.
• Police Department SBLX/FWC26 Planning Committee (July 2024) - Members of PD staff were identified to be temporarily assigned to the Special Operations Division through July 2026 to support planning and operational needs for SBLX/FWC26. An internal kickoff meeting was also held in which working group/subcommittee leads were identified and provided an overview of their roles and responsibilities.
• Annual NFL Safety and Security Conference (May 2024) - Members of the PD Special Operations Division attended the Annual NFL Safety and Security Conference. The conference included various training modules, but also collaboration opportunities with NFL administrative and security leads, including those responsible for Super Bowl LX planning and operations.
• Human Trafficking Conference (May 2024) - Members of PD staff attended the annual Human Trafficking conference. This topic is an important recurring public safety consideration, but will be a particular focus area for SBLX/FWC26. The conference included numerous training modules and strategy discussions to combat human trafficking.
• City OES and Dispatch Center representatives attended the DHS Dallas FWC Host City Emergency Communications Symposium (May 2024) - At this event, tactical radio communications, Operations Center communication and coordination strategies, and cybersecurity best practices, plans, and DHS expectations were discussed and presented. This planning effort will help to ensure that a common method of strategic and tactical coordination and communication will occur amongst all of the 2026 FWC host cities.
• Super Bowl LX Master Planning Session (April 2024) - Representatives from the NFL and NFL-related agencies and vendors hosted a SBLX Master Planning Session at Levi’s Stadium with key stakeholders, including Staff from CMO, PD and PW, Bay Area Host Committee, and Niners Entities. This meeting was a highly collaborative planning session/workshop to explore security perimeter, hospitality, media, ride share and other SBLX-related initiatives that require logistics planning and coordination with the City, Stadium Authority, Niners Entities, BAHC, the NFL and NFL agencies and vendors.
• City OES in collaboration with the Department of Homeland Security (DHS) hosted a Cybersecurity Tabletop Exercise (TTX) at the City Emergency Operations Center (April 2024) - Senior staff from every city department were in attendance in addition to representatives from the County, the Northern California Regional Intelligence Center (NCRIC), the State Cybersecurity Division, DHS Cybersecurity reps, the Federal Bureau of Investigation (FBI), and the Secret Service. The scenario for the exercise was that the city, in the lead-up to hosting its large 2026 events, was targeted for a Cybersecurity attack, and a full day of discussion on preparedness, mitigation, response, and recovery measures from a city-wide and regional perspective was had. Additionally, critical relationships were established between critical partners, which will be leveraged during our 2026 events. Lastly, this event kicked off the process of identifying critical city staff for EOC training and familiarization for any future EOC activation, inclusive of the impending 2026 events.
• Federal Assistance - As part of the federal Special Event Assessment Rating (SEAR) Rating and NSSE rating process, the Department of Homeland Security Cybersecurity and Infrastructure Security Agency (DHS CISA) conducts specialized mandatory critical infrastructure assessments on key facilities and infrastructure related to the stadium and City, inclusive of Silicon Valley Power (SVP) and City Water and Sewer Department infrastructure and other stadium-neighboring facilities. These assessments have begun with City SVP and Water/Sewer utilities and will progress over the coming months. Access to these assessments requires a federal clearance rating.
• Selection/Assignment of Staff for FIFA Planning - Key city staff and regional public safety partners have been identified and assigned to FWC and Super Bowl planning focus areas as leads and have begun attending FIFA-led working group planning meetings where representatives from all of the FWC host cities exchange planning progress updates, share best practices, and discuss challenges.
• BAHC Assignment Negotiations - On-going negotiations for Assignment and Assumption of FWC26 responsibilities and costs which will be further addressed in a Government Services Agreement.
• SBLX Government Services Agreement Negotiations - On-going negotiations for a League Event Agreement and other relevant agreements required for SBLX.
• Bloomberg Harvard City Leadership Initiative - The City of Santa Clara and Mayor Lisa Gillmor have been selected to participate in the 2024-25 Bloomberg Harvard City Leadership Initiative <https://cityleadership.harvard.edu/>. The Bloomberg Harvard City Leadership Initiative aims to equip mayors and senior city officials to tackle complex challenges in their cities and improve the quality of life of their residents. As a part of the City’s participation, mayors select key priority areas of focus. Mayor Gillmor has identified community engagement, transparency, and accountability related to the 20126 major events. Specifically, in 2026, Santa Clara will host Super Bowl LX as well as six matches as part of the FIFA Men’s World Cup. As the center of what’s possible, Santa Clara needs to collaborate with the community and other key stakeholders in a transparent manner that ensures that voices are heard and that the 2026 major events benefit the community to the greatest extent possible.
Mayor Lisa Gillmor, Assistant City Attorney Elizabeth Klotz, and City Manager Jovan Grogan are representing Santa Clara in the Bloomberg Harvard City Leadership Initiative. Over the next few weeks, we will work to define and roll out initiatives related to the key priority topic.
Planned and Anticipated City and Stadium Authority Work Efforts - FWC26 and SBLX
• Emergency management planning
• Public safety planning
• FIFA-led Permit meeting - September 4, 2024
• City infrastructure and resources
• Stadium capital project oversight
• Execution of an Assignment and Assumption Agreement for FWC26 and other relevant agreements
• Execution of a League Event Agreement for SBLX and other relevant agreements
• Community partnerships and outreach
ENVIRONMENTAL REVIEW
The action being considered does not constitute a “project” within the meaning of the California Environmental Quality Act (“CEQA”) pursuant to CEQA Guidelines section 15378(b)(5) in that it is a governmental organizational or administrative activity that will not result in direct or indirect changes in the environment.
FISCAL IMPACT
There is no fiscal impact associated with this item other than administrative staff time.
COORDINATION
This report was coordinated between the Executive Director and Stadium Authority Counsel’s Offices.
PUBLIC CONTACT
Public contact was made by posting the Council agenda on the City’s official-notice bulletin board outside City Hall Council Chambers. A complete agenda packet is available on the City’s website and in the City Clerk’s Office at least 72 hours prior to a Regular Meeting and 24 hours prior to a Special Meeting. A hard copy of any agenda report may be requested by contacting the City Clerk’s Office at (408) 615-2220, email clerk@santaclaraca.gov <mailto:clerk@santaclaraca.gov> or at the public information desk at any City of Santa Clara public library.
RECOMMENDATION
Recommendation
Note and file the informational report on FWC26 and Super Bowl LX updates.
Staff
Reviewed by: Chuck Baker, Assistant City Manager
Approved by: Jovan D. Grogan, Executive Director
ATTACHMENTS
1. Interim Funding Agreement for World Cup Planning between the Bay Area Host Committee and the City of Santa Clara
2. CMD 136 - Stadium and Special Event Time Reporting and Reimbursement for City Services