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WMITE - C�TV CLERK
PINK - FINANCE COUnCII
BI.UERV - MAVORTMENT GITY OF SAINT PAUL File NO. ���/���
�o ncil Resolution --
�
Presented By ---
eferred To ������ �/�� �� Committee: Date �`°�5��
Out of Committee By Date
WHEREAS, concern for public safety in parking facilities has been heightened
by recent tragic events and mandates a reevaluation of ineasures and practices
which may enhance safety in said facilities; and
WHEREAS, the Governor's Blue Ribbon Commission on Parking Ramp Safety has
issued its fina3� report containing information and recommendations pertinent to
Saint Paul parking facilities; and
WHEREAS, said Blue Ribbon Report indicates that 42 serious sexual assaults
occurred between January of 1981 and January of 1988 in the City of Saint Paul and
that 38 of those assaults occurred in surface lots, while four occurred in parking
ramps; and
WHEREAS, the economic health of our community, as well as the physical safety
of citizens, is at state in our providing parking environment� in wTiich users
experience a sense of safety and comfort; now, there�ore, be it
RESOLVED, that the Saint Paul City Council does hereby request that the
Administration review the report and recommendations of the Governor's Blue Ribbon
Commission and any information available through the Attorney General's Task Force
on Violence Against Women, as part of our ongoing commitment to the safety,
convenience, and attractiveness of our community; and be it further
RESOLVED, that the recommendations of the Blue Ribbon Report be evaluated in
the context of particular circumstances in Saint Paul, including the recent
historical preponderance of surface lot crime as compared with ramp crime; and be
it further
RESOLVED, that the Administration report to the City Council with appropriate
recommendations in the following areas:
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COUNCIL MEMBERS Requested by Department of:
Yeas Nays ��' �
Dimond ��'�� ;1,�'
�� � � � In Favor
Goswitz --.
Rettman �"�s
scheibe� � '�`. '�" A gai n s t BY
Sonnen �'`'�--
Wilson ��
- Form Approved by City Attorney
Adopted by Council: Date
Certified Passed by Council Secretary By
By,
Approved by Mavor. Date _ Approved by Mayor for Submission to Council
gy — BY
.
WHITE - C�TV CLERK
PINK - FINANCE COUILC11 G/y�
BIUERV - MAYORTMENT GITY OF SAINT PALTL File NO• V v /���
� Council Resolution
Presented By
Referred To Committee: Date
Out of Committee By Date
1. Safety features and crime deterrents in existing and planned
parking ramps;
2. Safety features and crime deterrents in surface lots, including
hospitals and other medical facilities, shopping centers, parks
and recreational grounds, multi-housing complexes, and business
lots;
3. Public information and participation;
and be it
FINALLY RESOLVED, that said recommendations shall be presented to the City
Council no later than December 31, 1988.
COUNCIL MEMBERS Requested by Department of:
Yeas Nays
Dimond
t.o� In Favor
Gosw;tz
Rettman B
sche,bet _ Against Y
Sonnen
Wilson
Form Approved by City Attorney
Adopted by Council: Date
Certified Passed by Council Secretary BY
g�,
t#pproved by Mavor: Date _ Approved by Mayor for Submission to Council
gy _ BY
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OFFICE OF THE COMMISSIONER
211 Transportation Building �
Telephone: '�yr,
STATE O F M I N N ESOTA R`C
�
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DEPARTMENT OF PUBLIC SAFETY
SAINT PAUL 55155 JUC �� �8
J u 1 y 25, 1�8$ �AM�g S���reAN
'g��,
TQ: B!I)E R:i?EJ?V GCI�;;T�STt1N ��1�M;3F��S
F���: Pdi.i� �. i�SCn i d:;,�,. ;�+
;��Chai r �
Rr: �j nal pr}���r� -- s�i ue Ri ht�or, i,�rrmi ssi on on Par���r,g R��ir�� Safei�y
�tta��hec: i s ;.he �ro���sed fi rtia� r.°e��ort of our cor�,ni t��� c;n r•�+.mL� s�fiEi.y.
We a:;i..e�:d a± our m�e�i r�y tha�; i t was �irnportai��t tc get i n�orma�:;o��i u�;f:
a� so_��i a� �os�i��le und evcryone felt thair, ��re have e,�c�gn �infior•i��ation
to f�.il�i i ; �hp cf�,����e whi ch we w�rP c�i ven.
Unless I rear, of ad�itior�a1 comments or �oncerns fram coir!rniitee m�mbers, �
? irr�.en�a to relFase the report on r=r�day morning, �ul.y �9.
Tha;�� you for your i nterest anci i nvu'I vement.
�i r�cerely,
Paul J. �l"SC��?da
Commi s s i�neri�;tia i r
PJT: bjj
En:los�,�r�
AN EQUAL OPPORTUNITY EMPLOYER
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OFFICE OF THE COMMIS$IONER
211 Transportation Building �
Telephone: '���
oF
STATE OF MINNESOTA
DEPARTMENT OF PUBLIC SAFETY
SAINT PAUL 55155
BLUE RIBBON COMMISSION ON PARKTNG RAMP SAFETY
FINAL REPORT
�7u1�1� 29 , 1�88
rI'ABLE OF CONTE:�TS
Introduction 1 '
Researck� Issues 2
Pzr..king Spaces 3
St. Paul Crime Data -- Sexual
Assaults in P�rking F'acil�ties 4
Current Efforts -- R�mp Saf�ty 5-6
Ramp Saf�ty Issues ?-8
Recomraendations g-1,�
��rd.inances �1
Bloomington Fire & Life Safety
�on,mittee Chec�cl is t 12
Il�uminatin� Engineers Society --
I�ightir.g Standards :�3
C��mmiss:�on Member�hi� 14
AN EQUAL OPPORTUNITY EMPLOYER
� � , � �-�y��
PARKING RAMP SAFETY
The recent and tragic series of crimes in buildings and parking
ramps have caused deep public concern in the Twin Cities area.
While some types of crime committed off the street affect both
sexes, women have particular fear and concern about their
vulnerability to personal assault, rape and homicide in
unprotected and hidden spaces such as parking ramps.
On June 22, Governor Rudy Perpich, along with business and
government leaders from Minneapolis and St. Paul, called for a
Blue Ribbon Commission to look into parking ramp safety. The
commission was charged with examining the physical and
operational aspects of parking ramps in the metropolitan area to
determine what has and is being done to improve security, and
what can be done to better assure safety in the future.
While parking ramp safety is not a new problem, it is a growing
one. Since the advent of parking ramps in the 1950 's and 60 's,
there have been concerns over the security of persons and
property. The problem has grown with the metropolitan area.
The Twin Cities are no longer "small" towns; they face problems
of other large urban centers. Concerns for personal safety
extend beyond downtown ramps to areas of high par7cing density
such as the university, the airport, shopping malls and
hospitals and to other areas such as bus stops.
Parking ramp owners and operators have responded in various ways
to provide a safer environment for customers, including:
architectural design to minimize dark and hidden areas; use of
technology such as closed circuit television and alarm systems;
provision of escort services; and efforts to limit access by
intruders. The current concerns in the community raise the
issue of what steps should be taken to assure acceptable levels
of security in parking ramps, now and for the future.
The perception and fear of crime is as important as the reality
of it. When brutal crimes occur and receive media attention, as
in recent events, public concern is understandably heightened.
Efforts must be made to ease public fears and reduce the
likelihood of a repeat of such tragedies.
During deliberations of the commission, some raised concerns
over the criminal justice system and sentencing guidelines.
Such questions go beyond the scope of this report. While
admittedly only a piece of the problem, the commission focused
solely on parking ramps. The Attorney General 's Task Force on
Violence Against Women will be look�.ng into broader issues.
The Blue Ribbon Commission's process resulted in the sharing of
ideas and information between metropolitan communities on
improving parking ramp safety; the report does not purport to be
an exhaustive treatment of the issue. The recommendations put
forward range from promoting personal safety education and
public awareness of ramp safety to. municipal review of the
safety fea�ures of existing and planned parking ramps.
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RESEARCH ISSUES ON PARKING RAMP CRIME
The commission process raised questions that could not be
answered either becuase of lack of data or insufficient time to
conduct the necessary research. Potential research topics are
listed below.
Basic Data Collection On a metro�olitan basis, collect and
aggregate data on parking related crimes for both ramps and
surface lots. Currently, even on the city level, crime data is
not collected in this manner. Participants in the ramp safety
working group noted that the attention has been focused on the
downtown areas, but parking related crimes also occur in the
suburbs.
Impact on Business and Emplovee Morale The recent assaults have
resulted in additional costs to business both in terms of
additional security measures and increased concern of employees
over their safety. There may be additional costs to downtown
merchants in terms of business lost to other shopping areas
which are perceived as "safer" . �
�mpact of Mass Transit System on Personal Safety Twin Cities
residents rely heavily on individual transportation and
therefore need parking spaces. Development of a mass transit
system would lessen the concern over safe parking and raise a
new set of personal safety concerns.�
Purnose and Effec� of Safety Measures There is a twofold
purpose in providing security at parking ramps: 1) to make those
using the ramps feel more secure; and, 2) to deter criminals.
Little is known about what security efforts in fact make people,
especially women, feel safer and more willing to use such
facilities. Further, little is known about what security
efforts create the most effective deterrents to crime. The
effectiveness of security measures will likely differ depending
if the criminal is an opportunist (a thief who steals car
radios) or a predator. Behavioral science research is needed in
this area.
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PARKING SPACES
Minneapolis Public Parkinq
Ramps Surface Lots Meters Total
Center Core 9,288 1,758 143 11, 189
Outer Core 7,723 5,796 666 14, 185
Frame 4,749 6, 488 1, 993 12 ,430
Riverfront 1,430 2 , 707 323 4 ,460
Total 23, 190 16, 749 3,125 43, 064
St. Paul Downtown Parkina• Public and Employee
Ramps Surface Lots Meters Total
St. Paul 13, 795 11, 000 1,891 26, 686
State Emplovee Parking in the Capitol Complex
The state operates two employee ramps, the Centennial Ramp and
the Administration Ramp, with a total of 1, 393 slots. The state
also has 17 surface lots with a total of 1,480 slots. Two
additional ramps are in the planning stages, one for the new
Judicial Building and one for the State Office Building.
University of Minnesota
� The University of Minnesota has a total of 14, 601 parking slots
between ramps, garages and surface lots. The University
Hospital parking ramp has an additional 580 slots.
Analysis
Minneapolis data, the most detailed, indicates that if you plan
to park your car downtown, the majority of parking spaces
available are in parking ramps. In downtown Minneapolis (center
and outer core figures listed above) there are 25, 374 total
parking slots; 16, 011 (or 63%) of those slots are in ramps.
Data received from Tom Duffee of the Minneapolis Downtown
Council; Paul LaPointe, St. Paul Department of Planning and
Economic Development; Captain R. C. Smith, Capitol Security; and
Sergeant Jim Verbrugge, University of Minnesota Police.
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PARKING RELATED CRIME -- ST. PAUL
The police department for the city of St. Paul researched the
incidence of serious sexual assault in parking settings between
January of 1981 and January of 1988. They found 42 reports.
The sites of these attacks were as follows.
Parking Ramps 4
Surface Lots
housing (apartments/dorms) 15
bars and liquor stores �
park and recreational 6
:�.shopping centers 5
medical facilities 2
churches 2
business lots 1
Total 38
(According to the Bureau of Criminal Aprehension, there were a
total of 1, 540 reported rapes in the city of St. Paul during the
same period of time. )
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CURRENT EFFORTS TO IMPROVE RAMP SAFETY
Minneapolis Police The department has:
o improved communications with parking ramp operators. They
will begin a newsletter to parking ramp owners to provide
information on ramp crime patterns (see attachment) .
o conducted 79 personal safety workshops for businesses,
apartment complexes and hotels. Group size averaged
between 50 and 100 people.
o distributed nearly 200, 000 personal safety brochures to
parking ramps and most surface lots in the downtown area.
Minneapolis City Council
o The Council has began discussions to establish a parking
ramp safety advisory committee with public and private
members.
St. Paul Police The department has:
o begun a dialogue with city ramp owners on police patrols
for parking ramps.
o produced a 12 minute video tape on personal safety and
distributed it to businesses and to parking lot/su�face lot
owners to help train their employees.
o distributed over 30, �00 personal safety brochures on cars
parked in ramps.
o conducted 25-30 presentations on personal safety to a total
of 2, 000 to 3, 000 people. They have requests for
additional presentations through July and into August.
City of Bloomington
o For a number af years, the city has had a fire and life
safety committee to review plans for parking ramps (see
attachment) .
State of Minnesota
o The Dept. of Administration and the Dept. of Public Safety
are coordinating efforts to improve safety in state parking
ramps. The state will promote escort service through
Capitol Security, increase visibility of security officers
in ramps (through walking instead of driving patrols) ,
improve lighting, and hold a sexual assault seminar.
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o Attorney General Humphrey will hold a task force on the
broader issue of violent crime against women.
Newspapers
o Extensive newspaper coverage of the parking ramp murders
has included articles =on improving personal safety.
Ma�or Employers
o Major employers are reassessing their employee parking ramp
security. Responses differ from site to site, but include
the provision of additional guards and escort services.
Crime Prevention Officers Association
o The Association has prepared course outlines for community
presentations on personal safety and prepared a training
course to certify crime prevention officers. The
Association also plans a symposium on violent Crime in
Minnesota. (A letter from the Association to the Task
Force on Ramp Safety is attached. )
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ISSUES CONCERNING RAMP SAFETY
Ramp Desian Regulations and Standards
o Guidelines do not guarantee safety. Individuals still need
to use good personal safety practices.
o If state or local government chooses to regulate parking
ramps, it could have an impact on the liability of a ramp
owner in the event of a lawsuit. The plaintiff would argue
that the problem should have been "foreseeable" by the
owner; the owner would argue that they met government
standards for safety.
o Crime prevention is not the sole design concern. The need
for multiple exits in the case of a fire, for instance,
conflicts with the crime prevention concern of limiting
access to the ramp. The aesthetic concern of high berms to
hide parked cars also conflicts with crime prevention.
Design review will necessitate compromise.
o Appropriate ramp safety standards may differ between high
crime and low crime neighborhoods. Reaching a consensus on
standards for a parking ramp safety ordinance may be
difficult.
o While better designs can be applied to new ramps,
retrofitting old ramps is expensive.
o One suggestion for safety -- reserved parking for women
near ramp entrances -- raises the issue of discrimination.
o Deterrent factors proposed may have minimal effect on the
types of individuals committing the assaults in ramps.
� Active Securit
� nt��,wQ� � Providing additional surveillance technologies and/or
��° ,,,Z:�_ _„p • �scort services involves additional costs.
�� �a,y��--� __�
w��,
� o Sharing of certain police information with ramp owners
violates confidentiality laws. (Police, for instance,
cannot share the name of a suspect unless a warrant has
been issued for their arrest. )
o One idea proposed -- monitoring short-term parkers (who may
enter the ramp just long enough to commit a crime) -- may
cause some inconvenience to consumers.
o Ramp attendants are also the victims of attacks.
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o Opportunities exist for better cooperation between police,
ramp attendants and ramp security. Further, individual
ramps or ramp associations may choose to share information
on criminal activity.
o Currently, no standards or licensing exists for hiring
security guards. Because of the importance of their job,
requirements such as passing a physical exam and a
background check may be appropriate.
Public Education in Personal Safetv
o Though individuals need to take responsibility for their
own safety, crime victims should not be "blamed" for being
victims. They have a right to be in the ramp.
o Public awareness -- and the current media attention -- of
the need for parking ramp safety will wane in the future.
Public education of the need for parking ramp safety needs
to be an ongoing effort.
o Crime in the downtown area is publicized in the newspapers
but problems exist in suburban shopping centers. Ridgedale
has put in a precinct station. Public education is also
needed outside the downtown area.
o Public attention is focused on parking ramps, but it is not
clear that surface parking lots are necessarily safer. -
o Different personal safety strategies are needed for
different kinds of ramps. Strategies for employee ramps --
where the same individuals use the ramp every day and enter
and leave at predictable times -- will differ from
strategies for consumer ramps. Unique strategies are
needed for places such as hospitals where a high percentage
of the employees are women and where many work odd hours.
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RECOMMENDATIONS FOR PARKING RAMP SAFETY
While it is impossible to guarantee a perfectly safe parking
ramp, improved ramp design and security measures, better
communications among ramp owners and between ramp owners and
police, and public education on personal safety can make parking
ramps safer to use.
The commission recommends the following.
1) No changes in the state building code or state law are
needed as they relate to parking ramp safety.
�t°��pa23ties should consider: x
a) Passacte of a parking ramp ordinance. (Few examples
exist around the country. They are summarized in
attached documents. )
b) Providina periodic inspections of parking ramps for
the purposes of recommending crime prevention
improvements.
2) Establish a review process for ramp design. This review
process should include not only crime prevention, but also
fire safety, handicap accessibility and aesthetic concerns.
(The checklist used in the Bloomington review process is
attached. )
3) Police and ramp emplovees should work toaether to improve
ram safet . Police departments should:
a) facilitate the sharing of information on crime
patterns and crime suspects with ramp owners and ramp
security. The police should begin to collect ramp
specific crime data. Ramp owners should also share
information on their own; they are not bound by the
same confidentiality requirements as the police.
b) provide training to ramp attendants in such areas
as monitoring short-term parkers (who may drive in just
long enough to commit a crime) , listening for
"meaningful noises" and checking the backseats of cars
as they leave the ramp.
4) Parkina ramAS should t�rovide adequate lightina. The
Pittsburgh ordinance provides one standard, the Handbook of
the Illuminating Engineering Society (attached) another.
5) Ramps should be periodicallv patrolled either by private
securitv, attendants or police
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6) Public education of t�ersonal safety measures should be an
onqoina t�rocess not a short-term response to a tragedy
a) One way to keep the issue in the public eye would
be for the Twin Cities to hold an annual Ramp Safety
Awareness Week.
b) The state has a role in producing and coordinating
materials on parking ramp safety for distribution to
other communities. -
c) Cities and employers should endorse and publicize
crime prevention programs. Ramp owners may do
something as simple as printing safety messages on the
back of parking stubs.
Other recommendations include the following.
+�` Ramp employees should have written procedures to follow for
crime prevention and response to criminal activity.
o Ramp owners should encourage communications between
attendants and ramp security. They should share
information about suspicious behavior. Further, attendants
could be in radio communication with security. Ramps could
conduct security drills to assure that their employees can
respond to an emergency. Attendants should be consulted
about changes to improve surveillance. Monitors which
change rapidly from camera to camera, for instance, can
cause eye strain. The end result may be that attendants
simply fail to monitor the screens.
o Ramps should be well maintained and have clear signs.
Ramps should be painted with light colored paint to improve
visibility. Security personnel should check and maintain
surveillance equipment. Maintenance equipment should not
be stored on parking levels; it can provide a convenient
place to hide. Signs should clearly indicate floor level,
exits and available telephones and fire alarms. Signs
should also indicate the ramp is under surveillance and
trespassers will be prosecuted.
o Ramps should provide a hotline for consumer complaints and
concerns. Consumers should be encouraged to complain so
that potential problems are addressed quickly.
o Parking spaces should be reserved for women, where
appropriate, that will provide them with easier and safer
access to tYieir cars.
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ORDINANCES ON PARKING RAMP SAFETY
Buffalo. New York
The Buffalo ordinance requires:
o signs indicating hours of operation. Signs must be visible
from the street and "measure at least three by four feet. "
, o attendants at each lot. Exceptions are mac�e for lots
serving weekly or monthly customers and for lots with
mechanically controlled entrances. Attendant should be
"honest, courteous and competent. "
o sufficient lighting to protect customers while the lot is
open.
o reports to police on vehicles left for over 48 hours.
Euclid. Ohio
The Euclid ordinance addresses the need for security guards at
apartment complex parking lots. Any complex over 400 units must
have one 24 hour/day security guard for the building and parking
lot. Complexes over 700 units require two such guards. T�e
Director of Public Safety may -- after holding a public hearing
-- require a security guard for complexes under 400 units.
Pittsburgh Pennsylvania
Pittsburgh passed a parking garage ordinance after nine reported
rapes in parking garages during a six month period in 1984 . As
of July, 1987, only two additional attacks had occurred in
Pittsburgh garages. The ordinance requires:
o uniformed security officers, at a minimum, to patrol each
area of the parking garage every 30 minutes. No one
responsible for collecting money can conduct the patrol.
The ordinance requires that patrol records be kept.
o strategically located emergency phor�es or panic alarms on
every parking level, "zoned to a central station which is
staffed at all times. Directional arrows must indicate
exits and elevators.
o minimum lighting of five foot candles at a height of five
feet.
o parking garages of three or more floors to provide escort
services to those customers that request it.
Sources: The Parkina Lot and Garaae Security Handbook, Norman R.
Bottom, Hanrow Press, Columbia, MD, 1988, pages 114-116; and the
Business Licensina code for Pittsburgh, 1988 amendments, 763 . 04
page 30B.
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C0;IDZTIO\S OF THE FI3� AAID LIFE SAFETY COi•.C4ITTEE
�
1) building(sj be totally sprinklered as approved 'oy the Fire Marshal;
2) exterior lighting and building security plans bz approved by the
Crime Prevention Officer, Bloomington Polics Department;
3) fire lanes be posted as approved by the Fire Marshal;
4) handicapoec parking be provided with standard handicapped signs as
approved by the Director of Planning;
S) handicapped access be provided to the building(s).;
6) utility plan with e�cisting and proposed water m2ins and fire hydrants,
be at locations as a�proved by the Fire Marshal and Utilities Enoineer;
7) traffic, circulation and parkin� plans be a�nroved by the Traffic
Engineer;
8) enclosed �=ash facility(s) be provided in a designated area as
� approved 'ov the Fire Marshal;
9) any standby fuel provisions be as approved by the Fire Marsaal;
10) street names be in conformance with the st�ndard street naming policy;
11) ter.�orary street signs and home addresses be provided during
consi:ruction;
12) food service be as approved by the Environnen�21 Service Section,
Building and Inspection Division;
13) handicapped toilet facilities be provided;
14) parkino structures be built in conformance with ooen parking garage
standards;
15) further review by the FLSC orior to final site plans and building
plans consideration;
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IES LIGHTING HAN0800K
14-24 ROADWAY LIGHTING t9Bt APPUCATbN VOLUME
Fig. 14-18. Recommended Maintained Illuminances for Open and Covered Parking Facilities
Open Parking Facilities
For Vehicular Traffic For Pedestrian Safety For Pedestrian Security
Level of Activity Footcan- Uniformity Footcan- Footcan- Uniformiry
Lux' dles' Ratio Lux'' dles'• Lux• dles' Ratio
Low activiry 5 0.5 4:1 . 2 0.2 9 0.8 5:1 �
Medium activity 11 1 3:1 6 0.6 22 2 5:1
High activity 22 2 3:1 10 0.9 43 4 5:1
Covered Parking Facilifies
Day Night
Areas
Lux••• Footcandles"' Lux' Footcandles'
General parking and pedestrian areas 54 5 54 5
Ramps and corners 1 10 10 54 5
Entrance areas 540 50 54 5
Stairvvays and lobbys(refer to Fig. 2-2)
• Average on pavement �
•� Minimum on pavement
Illtnninating Engineers Society Handbook, 1981.
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Blue Ribbon Commission on Parking Ramp Safety Members
Kip Lilly Mr. Tom Duffee
Vice President of Community Development Downtown Council of Minneapolis
Greater Minneapolis 12 So�ath 6th Street
Chamber of Commerce 220 Plymouth Building
15 South 5th Street Minneapolis, Minnesota 55402
Minneapolis, Minnesota 55402
Mayor George Latimer
Ms. Alice Rainville Room 347
President Minneapolis City Council City Hall and Courthouse
307 City Hall St. Paul, Minnesota 55102
Minneapolis, Minnesota 55415
Mr. William Booth
Mayor pon Frazer Building Owner and Managers Association
127 City Hall 386 North Wabasha
Minneapolis, Minnesota 55415 St. Paul, Minnesota
Councilman Jim Scheibel Commissioner Paul Tschida
716 City Hall Department of Public Safety
St. Paul, Minnesota 55102 Room 211 Transportation Building
St. Paul, Minnesota 55155
Ms. Karen Himle
St. Paul Fire and Marine Insurance Co.
385 Washington Street
St. Paul, Minnesota 55102
Commissioner Sandra Hale
Department of Administration
Room 200 Administration Building
St. Paul, Minnesota 55155
Mr. Norman Coleman
Office of the Attorney General
Suite 200
525 Park Street
St. Paul, Minnesota 55103
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