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87-272 WMITE - CITY CLERK � PINK - FINANCE GITY OF SAINT PAUL Council /��n n n CJ4NARV - DEPARTMENT File NO. v � ✓_ �- ` BLUE - MAVOR ` 1 Counci esolution ,:r�-�� Presente By � �; /� Referre o �E� Committee: Date � ''-3 r�� Out of Committee By Date Wf�EtFAS, the S ' t Paul Planning Camiission, under Section 107.04 of the Saint Paul A,c�ninistra ve Code, is en�vwered with creating ad hoc advisory task forces to study echnical matters; and WHERFAS, the P1 ' g Comnissioaz established the Skyway Task Force to review and update the C ty's skyway plan and policies; and WHII2F�.S, the y Task Force carried out this mar�date in a series of meetings o�n to the public; and WHERFAS, the y Task Force reported its findings and reco�dations to the Planning 'ssiori in the form of the report enti.tled, "Saint Paul's Skyways: a Repo of the Skyway Task Fbrce of the Saint Paul P1arLn;ng C�mtission"; and Wf�,S, the P1 ' g Cannission o�ducted a public hearing on the Skyway Task Force Report, in accordance with Sectian 107.02 of the Saint Paul Administrative e; and W�S, the Pl ' g CaRnission has adapted an amended version of the Skyway Task Force Repo , entitled Saint Paul 5kyways: A Folicy Plan; NCJW, Tf�REEORE B IT RESOLVID, that the Saint Paul City Council adopts the attached Saint P ul : A Foli Plan as the policy c�overning the City's skyway system. COUNC[LMEN Requested by Department of: Yeas 5�� Nays r Drew GL Depaztment of Planning & Economic Developmez�t �M�r ��,� [n Favor Nicosia Q scnetbe� __ Against BY �o Wilson ' Form Approv City A tor Adopted by Council: Date MAR � 0 19�1 Certified Pa. y ouncil Se e BY By, Appro y �Vlavor: Date `MAR 12 1,l87 Approv Mayor for Submis ' n t ou iL By B . PUBIISHED ��x� 2 1 19 ' PED - Down�own Developmen .: � . RTMENT ��7�� _ 0�9os ' , �at;L��ndhla�d ON ACT , � �228-3224 H E . December 19 1�986 AT �r� e� ASS GN N ER FWt ROUFING 0 DER C1 i Al Locatians; for Si na ure : partment Director 4 D rector of Management/Mayor Finance and Management ervices D re tor � � C ty Clerk Budge.t Director � eputy Director 3 ity Attorney _ � WILL BE AGH EVED BX T ING ACTIO THE ATTACHED MATERI S? (Purpose/ Rationale) : Saint Paul Sk a s: _ A Pol 'c Plan s t specific actions fo the development and � governance of skywa�s., �_n int Paul . doption of tfie Plan iil establish policies on design, security, mana ment, sig a e and financing of s yways. , � R CENED � \� � � � � N � C ��c�� . OST BENEFIT BUDGETARY AND PERSONNEL IM ACTS ANTICIPATEA: ��"F"y"��+RECEI�� Not appl icable � D �� 3 � �986 � RECEIVE �AN2C �a;�al V�■ ■ ��`��„�� N��"��« . . �� • FINANCING SOURCE AND BUDGET ACTIVITY U ER CHARGED OR CREDIT D: (Mayor's signa- ture not re-. Total Amount of"Transact on: Nq quired if undEr _ � �10,000} F�r�ding Source: .Nq Activity Number: NA ATTACHMENTS List aqd Numbe All Atta 'h nts : 1. Letter from Mayor Lati er to Cit C uncil Members (for yor's signature) ' 2. Alanning Commission Re olutian a d aint Pau1 Sk a s: Polic Plan (10 copies) 3. Draft -City Council Res lution ad pting aint au a o c lan (for Mayor''s s i gna�`ure) 4. Draft City Council Res lution ad pting "Generail Policy atement for the Construction of the Saint Paul Skyw y System" ( r Mayor's signature) ` � OEPARTMENT REVIEW CITY TTORNEY REVIEW � �cYes No (.buncil Resol tion Requi e ? � Resol tion Required? Yes _ No Yes x No Insurance Req ired? , Insur nce Sufficierit? �ifes No Yes x Mo Insurance Att ched: � � (S E •REVERSE I E FOR INSTRUCTIONS) Revised 12/84 1 �'"''; / � � �7 �7� ��I CITY Of SAINT PAUL INTERDEPARTMENTAL MEMORANDUM TO: Counc President Tedesco Mem rs of the Ciry Council FROM: Katy azs Lindblad �� DATE: March , 1987 SUBJECT: Saint ul Skyways:A Policy Plan �ity C uncil Agenda Items 18, 19: March 10, 1987 At its committee meeri last week,the City Development and Transportation Committee recommended some amendments to th Saint Paul Skyway Policy Plan adopted by the Saint Paul Planning Commission on December 5, 1986. The ttached document reflects those suggested amendments and should replace the copy of the plan you received arlier. If you have any questio concerning the plan which you would like to pose prior to your meeting of March 10, do not hesitate to call m at-3224. cc: �(1� Ciry lerk Jim Hart,City ttorney A1 Lovejoy,PE Mayor's Office �� =i :v �„_.: ,, , v� - T �_- r=' . � m ;,, ��, o _=,_, _..., --�; � . �; .-`�� ,� , � ._ . . � ��- a�� SAINT PAUL'S SKYWAYS: A POLICY PLAN OF THE SAINT PAUL PLANNING COMMISSION Adopted December 5, 1986 . � . �.r �� -a�� EXECUTIVE SUMMAR The Saint aul Planning Commission formed the Skyway Task Force on February 14, 198 to address the community's concerns about the skyway system. The Skyway Task orce submitted its report to the Planning Commission in September, 1986. Following a public hearing and discussion at the committee level, the Plann ng Commission adopted this document on December 5, 1986 as the Skyway Polic Plan. Definition - The Planning Commission has defined the Saint Paul skyways as an interior p destrian circulation system, which is part of a total downtown transpo tation system. The purposes of the system include: providing comfor able, safe, pleasant and efficient transportation; facilitating eco omic development; and separating pedestrians and vehicles. Boundaries - Saint Paul's downtown is generally bounded by the river on the south, I-94 n the north, Lafayette on the east, and the Civic Center on the west. Prior ties for additional skyway links to the current system st�ould be for links whi h support a compact downtown, connect to the existing primary system and conne t activity sites with parking ramps, restaurants, retail and services. In spite o the Department of Interior's challenge to skyways in historic distric s, the Planning Commission believes that skyway bridges are the most satisfa tory way to connect Lowertown to the downtown interior pedestrian circu ation system. Desien - e skyway system's identity, design consistency and ease of orientation are ecessary if it is to function effectively. The present skyway bridge de ign, with its use of the Vierendeel truss and painted a uniform dark bro color, has served the downtown well. The City should continue to empl y this design, with variation limited to width. In considering any ther variation in the standard bridge design, the City should be extremely cau ious, with the burden of proof that such variation is essential fallin to the party proposing the change. The aesthe ic design of Saint Paul's interior skyway corridors and bridges is extre ely important. They should be light and airy spaces and create an inviti g atmosphere. Nodes, where the pathway opens up to a larger public space, sh uld be created and developed. Long, blank-walled corridors should be avoide . The City should pursue a better connection to the eaterior in its future sk ays. Securitv - As the system is expanded, developers and the City should consider the sec rity issue. New bridges and corridors should be designed to maximize securit , including surveillance cameras and monitoring stations. The existing sk ay system should be retrofitted with new electronic hardware, but in order to rovide the full range of security services, personnel should continue to play an important role. i .. T1ana�ement - It is important for Saint Paul' s S�y:�ay system to have • uniform hours of operation. Ideall�- tae system :��ould be open 24 hours a day, but until such round-the-clock operation is possible, the current policy 6 a.m. - 2 a.m. should be encou�aged a�d maintained. Saint Paul's skyway bridges ar:d corridors should experience a high and consistent level of maintenance throug�out. The Planning Commission has recommended a Skyway Governance Commit�ee to monitor skyway maintenance and take or recommend actions necessary to ensure quali�y spaces. In order to provide for smooth traffic flo�a and easier handicapped accessibility, future skyway bridges snould be designed to include automatic, preferably sliding, doors. Existing bridges should be retrofitted with automatic sliding doors, if possible, or with doors which push with the traffic flow. Advertisin� - The Saint Paul sky,aay system offers a unique opportunity to promote downtown activities and citi�ic events. Advertising and promotional activities which take place in the sk}�•�ays should be temporary and be limited to events of community interest. The Planning Commission has recommended revisions to the Skyway Conduct Ordinance to govern advertising in the skyways. Si�nage - Saint Paul's uniform sk}�•�ay signage program has been effective and should be maintained. In order to make this complex transportation system even more accommodating to its users, the existing signage program should be supplemented with signs posted on building entrances which identify entry points to the skyway system, similar signs posted in the skyway corridors to indicate skyway exit points, signs showing the skyway logo and the international information symbol to identify numerous small businesses located adjacent to skyway corridors as skyt�-a}' information centers, and signage indicating the street over which one is crossing. Financine - It is important for the City to maintain control over the sk}'way system in terms of design, hours and mair.tenance. The City should have the ability to participate in the financing of sk}��:ay bridges and use that ability based on its priorities for development in downtown Saint Paul. The City should establish a reserve fund for �he City's portion of major skyway enhancement or replacement of existing skywa}�s connecting buildings ::hich the City owns or leases . The Cit}� Budget Director should analyze the potential needs of the system snd establish the annual contribution necessary ror such a fund. The Downtown Community Development Council should develop a proposal to fund the retrofit of existing sky�;a�-s :aith automatic doors and the installation of electronic security equipment in the skyways from public and private sources. ii � � � � � �7-a�� SAINT PAUL'S SK AYS . Table of Content Executive Summar . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i I. Background. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 A. Skyways: Downtown Saint Paul's Critical Links. . . . . . . . . . . .1 B. Skyway T sk Force: In Search of Answers. . . . . . . . . . . . . . . . . .3 II. Skyway Defi itions. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4 A. Purpose, Goals, Objectives. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4 B. Boundari s, Extension. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6 III. Design & En ineering. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 A. Code Iss es. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 B. Aestheti Issues. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11 IV. Operations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 A. Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 B. Manageme t, Hours. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17 V. Programming . . . . . :. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 A. Advertis ng, Vendors. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 B. Signage. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 VI. Financing. . . . . . . . . . . . . . . . . . . . . . . . . . . : . . . . . . . . . . . . . . . . . . . . .24 Appendix A: Dra t Revision of General Policy Statement for the Con truction of the Saint Paul Sk;rway System Appendix B: Dra t Revision of Skyway Conduct Ordinance and Rul s and Regulations Governing Permitting and Use of the Saint Paul Pedestrian Skyway System Appendix C: Pos ible Locations for Skyway Entrance Signs iii � � � �-��-a>� I. BACKGROUND A. Skyways: Down own Saint Paul's Critical Links The city o Saint Paul has one of the world's most ext nsively developed skyway systems, linking 31 city locks in the downtown area. Saint Paul's sk ay network, which began development 20 y ars ago, but saw its greatest expansion during the 1970's, constitutes a climate-controll d, pedestrian circulation system that operates on -story above street level throughout the d wntown core. Saint Paul's skyway system was developed through a cooper tive effort involving public and private leadersh"p and investment; it is publicly owned, with adja ent building owners responsible for day-to-day m intenance of the systes. The major public rol in developing, maintaining and operating the sk ay system affords opportunities to maximize its ffectiveness as a public pedestrian trans ortation system. The impet for developing the skyway system was the creatio of the enclosed, suburban shopping mall a the intense competition that these malls pose for downtown retailing. Enclosed malls o fered shoppers and businesses many convenience , but in Minnesota, the birthplace of t indoor mall, it was the climate- controlled prot tion from extreme seasons that made malls part' ularly attractive. To stay alive and to counter e fierce suburban competition, downtown Saint ul undertook the development of its extensive s ay system. The skywa s have proven to be a major economic factor in downtown Saint Paul's redevelopment. fter experiencing a serious decline through the 1960's, retailing in downtown Saint Paul has " creased steadily through the past ten years spurr d by the development of a major downtown retail' g center and its relationship to the skyway netw rk. 1 The impact of skyways on downtown pedestrian traffic and retailing patterns was dramatically illustrated in the Department of Planning and Economic Development's 1984 Downtown Survey. The survey revealed that tenants on the skyway leyel paid higher lease rates (an average of $10.58 per square foot) than tenants on the first floor or street level ($8.90 per square foot) . Skyway access is today a major factor in downtown development decisions, influencing the development of retail, office, housing, parking, cultural facilities and even public space in the downtown area. While skyways have had a largely positive impact upon downtown Saint Paul, the community is full of questions about how to improve the skyways. How to make them more appealing to newcomers? How to create a more exciting and interesting skyway "streetscape" and "streetlife" during the day and the night? How to better integrate the skyways with the streets and urban landscape--returning some of what they have taken away? How to keep them secure without making them look oppressive or uninviting? How to integrate them into the downtown's historic districts? There is a belief that the skyways can offer even more and an interest in being creative about exploring their potential. 2 ' � ' � � � � � ��- a�� B. Skyway Task F rce: In Search of Answers The Skyway Task Force was formed by the Saint Paul Plann ng Commission on February 14, 1986 to address he community's concerns about the skyway system. he task force was mandated to make a comprehen ive evaluation of the Saint Paul skyway systera an to recommend revisions to the City's skyway po icies. The ten-me ber task force included representatives f downtown workers, residents, business and bui ding owners, as well as representatives f the broader community. The group met biweek y over the course of the spring and summer of 19 6 to develop the recommendations included in its eport to the Planning Commission. The Skyway Task Force submitted its report to the Planning ommission in September, 1986. Subsequently the Planning Commission held a public hearing and the conomic Development Committee reviewed oral an written testimony. On Decembe S, 1986 the Planning Commission adopted this doc ent as the Skyway Policy Plan, culminating the rocess it began ten months earlier. 3 II. SKYWAY DEFINITIONS A. Purpose, Goals, Objectives The purpose of Saint Paul's skyway system has evolved over the years. It began at a time when the viability of the downtown was being questioned. The suburban shopping mall had presented stiff competition for the retailing dollar and major employers were considering a move out of the city center. The concept of skyways originated with a University of Minnesota student project, which sought to improvE the downtown environment by minimizing pedestrian/vehicular conflict. This would be accomplished by physically separating cars and people. Pedestrians would walk at an elevated level, abandoning the streets and the minimal-width sidewalks to the cars. The impact of the automobile on the downtown would thus be minimized and a safe pedestrian environment preserved. Additionally, skyways were seen as a way of coping with a dramatic change in grade elevation, which occurs between Wabasha and Cedar Streets in downtown Saint Paul. Downtown office workers and shoppers had segregated themselves into two distinct communities, divided by topography, and seldom intermingled. Skyways were viewed as a way to bridge the gulf separating the two groups, thereby uniting the downtown community. While these early goals and objectives reflected the major concerns of the day, others have since joined them in importance. The provision of a climate-controlled pedestrian circulation network is viewed today as a key objective of the skyway system. By allowing the downtown visitor, office worker or shopper to walk throughout the downtown in comfort, no matter what the outside weather, skyways have truly transformed downtown into a regional office and retail mall. Maintenance and expansion of the system can preserve and enhance this metamorphosis. 4 � � � � � �� Skyways h e also become a powerful economic development ince tive. A skyway connection is viewed by develo ers as an essential component for successful new wntown development. Additionall_y, s ay links have made possible the rehabilitation o historic structures which otherwise would ave experienced further deterioration o demolition. Consensus: The purpose, goals and objectives of S 'nt Paul's skyway system today are reflected in the consensus statement: Sain Pau1's "skyway" system is an interior p destrian circulation system, tying toge her the downtown both verticaZly and horizo ta11y. The skyway system is part of a total downtown transportation system. Its purpos s include: providing comfortabl , safe, pleasant and efficient transporta ion; facilitating economic developmen ; and seperating pedestrians and vehicles. 5 B. Boundaries, Extension Saint Paul's skyway system began 20 years ago when the bridge between the Federal Courts and the Pioneer buildings was erected. Originally planned as part of a 12 block urban renewal project, the system has since expanded to connect 31 city blocks, linking together 1,000 hotel rooms, 1,200 apartments, 550 condominiums, and over 400 retail and service establishments. Consisting of over three miles of climate- controlled pedestrian walkways, Saint Paul's skyway system is the longest publicly owned skyway system in the world. It has expanded outward from the original Capital Centre urban renewal area and is entirely interconnected, except for three blocks in the North Wabasha Area (Minnesota Science Museum complex and St. Joseph's Hospital) . Saint Paul's downtown is well defined and relatively compact, 550 acres compared to Minneapolis' 1500 acres. Boundaries for the skyway system are therefore fairly simple to determine. However, within the 550 acres downtown there may be many opportunities for expansion of the system. The primary emphases for construction of additional links should be in support of a compact downtown, an interconnected system and connections from key activity sites to parking ramps, restaurants, retail and services. However, there may be occasions where public purpose is best served by connecting adjacent areas to the downtown in the future. Expansion of the skyway system into the downtown's two historic districts, Lowertown and Rice Park, has been challenged by the Department of the Interior, which holds approval authority over federal historic tax credits. The Department of the Interior has stated that "pedestrian bridges are dramatic and conspicuous intrusions into historic districts because they obstruct and interfere with the traditional view of buildings and their relationship to the streetscape of the historic district. " 6 ' . , � �'_ �7.�-- It is tru that skyway bridges are inappropriate f r the monumental buildings surrounding Ric Park. A combination of underground con ections and somewhat circuitous skyway bridge r utes should be promoted in this area instead. owever, the same is not true for Lowertown, wher the buildings are positioned compactly and a e quite similar in character. The most satisfacto y Way to connect Lowertown to the downtown interi r pedestrian circulation system is through the use of skyway bridges. As eviden ed by the few Lowertown bridges already in piac , they are no more "conspicuous intrusions" tha are the district's streets, and represent an ex ension of the downtown transportation etwork. Continued expansion of the skyway syst m in Lowertown is essential for the area's cont nued revitalization. Denial of skyway bridges to Lowertown's historic struct res might well cause their demise. Some buildings ould likely be left to deteriorate because rehabil tation without a skyway link would not be economic lly feasible. Other buildings would probably e demolished, as developers learn that only new b ildings can have skyway bridges. Represent tives of the National Park Service should be invit d to visit Saint Paul in the winter to be ex osed to the realities of life in a northern city. A workshop could introduce them to the downtown, i s skyway system and the historic warehouse distr ct. The skywa system, however, is no longer viewed as opera ing exclusively at the second level. Particu arly as the interior pedestrian circulation net ork approaches downtown's historic areas, undergro nd and grade level alley connections may be appropriate supplements to the "skyway" system. . Subterran an connections in particular represent a des'gn challenge. Pedestrians are not likely to utili e a "hostile" environment. Therefore, care should be taken through attention to the dimensio s of any underground corridor, as well as to its ighting and decor. 7 Consensus: The Planning Commission's definition of the skyway system's boundaries and future expansion is contained in the following consensus statement: Saint Pau1's downtown is generally bounded by the river on the south, I-94 on the north, Lafayette on the east, and the Civic Center on the west (see map) . Priorities for additional skyway links to the current system should be for Zinks which support a compact downtown, connect to the existing primary system and connect activity sites with parking ramps, restaurants, retail and services. Areas which in the future could interface with the skyway system include the Capitol District, the Riverfront District, and the Seven Corners area. Within these areas Saint Pau1's primary interior pedestrian circulation system is skyways. However, subsystems such as alleyw3ys, tunnels, covered walkways and streetscape programs are a11 potential supplements for special consideration in certain areas. Serious consideration should be given to alternatives for connecting the Rice Park area to the overall pedestrian circulation system, keeping in mind benefits and expenses involved. The City is advised to do further study of possible underground connections and should carefully consider the design of such passageways, recognizing that the width and height of any potential corridor, as we11 as the introduction of natural lighting, wi11 influence greatly the perception and enjoyment of that space. PED should organize a winter workshop for National Park Service personneZ to introduce them to the realities of Iife in a northern city. The strength and value of the slcyway system to the entire downtown, and to Lowertown in particular, should be stressed. 8 � . � � � �7-a7�- III. DESIGN & E INEERING A. Code Issues Saint Paul's skyway system is characterized by a uniform bri ge design, developed jointly by Hammel Green & A rahamson and the City. Those familiar with th Saint Paul network can easily envision the str ng vertical and horizontal lines of the Vierendee truss, the principal design element of the b idges. In addition, the exterior of Saint Paul's kyway bridges are painted a uniform dark bro (with the exception of the Galtier Plaza/Fa Credit Services bridge) . This uniformity serve multiple purposes: -it identi ies the system as a system, and not merely a conglomeration of various bridges; -it keeps he skyways neutral and allows them to "d sappear" , similar to street fixtures; -it identi ies the system as a public transporta ion network. Recently S int Paul's uniform bridge design has been challen ed by private development interests. In 1 83 the Galtier Plaza developer presented the Ci y with plans for a radically different skyway bridge, connecting Galtier Plaza to the Farm Cred t Services block. After intense negotiations, th bridge plans were altered to include the City s standard Vierendeel truss, resulting in a m dified version of the uniform bridge. � Consensus: The Planning Commission's views on the design an engineering code issues relating to Saint Paul's kyway system are expressed in the following consen us statement: As d ined, the skyways are part of a total tran ortation system in downtown Saint Pau1. As part of that transportation system, it is appropriate that the skyway bridges em asize function, consistency and neutrality, becoming a part of the urban streetscap , rather than making "architect a1 statements„ 9 Consistency allows the skyway bridges to relate we11 to the variety of building types in the downtown area. It also makes the skyway system read as a system, not just a collection of individual bridges. The present skyway bridge design, with its use of the Vierendeel truss and painted a uniform dark brown color, has served the downtown we11. The City should continue to employ this design, with variation limited to width. In considering any other variation in the standard bridge design, the City should be extremely cautious, with the burden of proof that such variation is essential falling to the party proposing the change. Since skyways are publicly owned and used by the general population, design should be in compliance with the Minnesota State Building Code in terms of door Zanding size, degree of ramp slope, inclusion of handrails, and when vertical access is required. The connection of skyway bridges to buildings is very important. The City should always be sensitive to this and consider the following when determining skyway bridge Zocation: -bridges should be Iocated between buildings, when feasible, in order to avoid disturbance of building facades; -extrerne Iength and extreme horizontal and vertical angles should be avoided, maintaining 90° angles where feasible; -unsightly, long bridges should be avoided by not placing them over open space, parking Zots or empty blocks; -visual clutter should be avoided by allowing only one skyway bridge connection for each block face; and -potential vistas from skyway bridges and the experience of the pedestrian should be considered when determining ' bridgs location. 10 � ' , �� - a7� B. Aesthetic Iss es The aesth tic design of the skyway systern's interior spaces is crucial to the overall success and viability o the system. The pedestrian's enjoyment of an propensity to use the skyways can be greatly infl nced by aesthetic elements. Saint Paul's interior skyway corridors can be generally ch acterized as having a bland atmosphere. The corridors have been treated, for the most part, a extensions of the private office space they serve, complete with vinyl wall coverings, pop-i ceilings and neutral colored carpeting. In c rtain instances long, blank- walled corridors create a particularly uninviting atmosphere. However, t e skyway corridors are not office spaces, but rath r part of the urban transportation s stem. As such, the opportunity exists to design aesthetically �leasing paths which invite and excite the pedestrian. Rather tha encountering uniform skyway corridors, pedes rians could be pleasantly surprised as the traverse the system. Variations in corridor widt , wall treatment, color and decor could be explore as the skyway system enters different areas f the downtown. Locations here two or more pedestrian paths cross represent mportant opportunities to explore such variations. Horizontal and vertical intersections co ld be highlighted and emphasized through attentio to aesthetic design details. In some ca es, existing vertical crossroads, where access to nd from the street level is possible, are al ost invisible. Strengthening the sense of interco nection between first and second levels, as well s creating a convenience between them, would cont ibute to the overall health of downtown Saint P ul. The Planni g Commission has recommended revisions to the City's "General Policy Statement ' for the Construc ion of the Saint Paul Skyway System" . These evisions can be found in Appendix A. 11 Consensus: The skyway system's design and engineering aesthetic issues should be resolved according to the following consensus statement: The aesthetic design of Saint Pau1's interior skyway corridors and bridges is extremely important. The design of these corridors impacts the way pedestrians experience the system and influences their view of downtown Saint Pau1. Saint Pau1's skyway corridors should be light and airy spaces and create an inviting atmosphere. This can be achieved through careful design and attention to color, lighting, carpet and wa11s. Greenery and plantings should be introduced where it is Iogical and appropriate. Programming can also be used to create an inviting atmosphere. Nodes, where the pathway opens up to a Iarger public space, should be created and developed in order to provide a variety of experience to pedestrians. Building owners should be encouraged to create an identity and sense of place for these node areas. Appropriate siting for such nodes is where pedestrian paths cross, either horizontally or vertically. It is very important to integrate the skyways and the streets. Therefore, building owners should be further encouraged to develop a sense of interconnection between the first and second Zevels of buildings. Creating convenience between the two Zevels is very important to the health of each and signage can play an important ro1e, especially in existing buildings where physical limitations may exist. The City should consider the addition of seating in the skyway corridors, particularly in node areas. However, any such seating should be handled very carefully and after consultation with adjacent building tenants. 12 � . . . � � ��_ay� Long blank-walled corridors should be avoided. dditions to the system, which could impr ve the experience for pedestrian , include: roving art displays, the introd ction of window shopping to the second 1ev 1, including the possibility of adding dis Iay cases to existing 1ong, blan� corridors; the painting of murals along the skyway ne ork; and the introduction of informatio a1 signs which describe points of interest. The use of public art in the skyways sh u1d be encouraged. F1oo ma.terials should not be slick, excessivel rough nor plushly padded, so as to avoid s ipping and tripping hazards and rough goin for persons using wheelchairs, crutches, anes and walkers. The kyway bridges themselves should continue t use clear glass for maximum visibility Vistas could be emphasized by the introd ction of appropriate markers along the andrails, describing visible buildings r city history. The ity should pursue a better connection to the exterior in its future skyways. he possibility of developing second lev 1, rooftop gardens should be explored. The ity should contract out for an in-depth s udy of the skyways as interior spaces. T e outside researcher should question h the skyways currently function as public aces and make design recomrr�enda ions for improving their livability. 13 IV. OPERATIONS A. Security Because of the nature of Saint Paul's skyway system, it has developed its oom set of unique security issues. The system is comprised of public easements running through private property (skyway corridors) and over public and private rights-of-way (skyway bridges) . The public/private nature of the system has demanded a public/private security response. The Saint Paul police and private security forces have together provided a system which is relatively crime-free. Ten Saint Paul police officers are currently assigned to skyway patrol. They are responsible not only for the more than three miles of bridges and corridors which make up the skyway network, but for downtown streets and parks, as well. Scheduling results in two to three people assigned to a shift, with each receiving a beat to patrol. These individuals are supplemented by other police officers, patrolling downtown in vehicles, as well as by private security personnel. Police statistics show that in 1985 there were 266 arrests on the skyway level, in the skyways and in skyway-connected properties. Of these arrests, 45� involved thefts and 35� involved warrants. The remaining 20� of arrests were principally made up of narcotics, trespassing and smoking violatioris. In spite of these relatively non-threatening figures, there remains reason for concern. Extended skyway hours have some building owners concerned about their increased security burden. In addition, late evening traffic is a particular concern, as skyway users are most likely to be traversing the system in small numbers, thereby reducing the sense of security for skyway travelers. 14 . � � ' � ��- �y� There is i creased use of the skyway system and the geograph c area it serves is growing. However, the Cit shows no indication that it plans to increas its police presence on the skyway system. nd given the City's budgetary problems, there s concern the City might consider reducing its co itment to skyway security. In order t increase the perceived and actual level of ecurity in Saint Paul's skyway system, the Plan ing Commission has considered the addition of elec ronic surveillance equipment. Some surveillanc cameras are already in place and are monitored at private security stations. By requiring the in tallation of such equipment in future skyway ex ansions and by retrofitting the existing skyway etwork, the level of system security can be ncreased. The Planni g Commission recognizes, however, that machines ca not replace people in the ability to give a sense f security to the skyway user. Security personn 1 and equipment are both important compon nts of an overall security strategy. In additio , the level of traffic flow in the skyways is a important factor in influencing how secure the p destrian feels. The heavier the traffic, the gre ter the sense of security. Consensus: The Planning Commission's recommendations security are contained in the following consen s statement: Sain Pau1's skyway system is remarkably ree of crime. Credit for this should go th to the Saint Pau1 Police Department nd private security personnel. Skyway sec ity should continue to be a public/pri te responsibility, with the city maintainin a police presence on the skyways. Incre sed usage can serve as a deterrent t crime. The City and building owners shou d encourage and promote use of the skyway ystem, particularly in the off- peak hours. 15 The design of skyways can add to the security of the system. The City should continue to use clear glass in the bridges, in order to promote visibility, and avoid tinted or reflective glass. As the system is expanded, developers and the City shouZd consider the security issue. New bridges and corridors should be designed to maximize security, including surveillance cameras and monitoring stations. The existing skyway system should be retrofitted with new electronic hardware, especially areas that have �inimal usage, but in order to provide the fu11 range of security services, personnel should continue to play an important role. The City should consider the appropriate balance of hardware and personnel, not excluding one for the other. Public and emergency telephones should be placed throughout the skyway system in order to increase security, as we11. The Skyway Governance Cornrnittee should establish a timeline and implementation strategy for a11 code, safety and security items recommended in this report. 16 � � � � � � �� -�� B. Management, H urs The manage ent o£ Saint Paul's skyway system provides a uniqu challenge. For although the system is public the responsibility for day-to- day management o the skyways (cleaning, lighting, neating and cooi ng) lies with each affected building owner. The result has been that one encounters uneve levels of maintenance as one traverses the sy tem. If propert owners are negligent in their management of th skyway system, the City is empowered by Cou cil-adopted policy and by its skyway agreement. to perform any necessary maintenance oper tions. All cost incurred in so doing may then b assessed against the building owner, using the same procedures for assessments related to sidew lk maintenance, repair and replacement. Th City has not exercised this authority, choos ng instead to attempt persuasion in dealing with ffending building owners. Hours of o eration are another sensitive area where publi and private desires are sometimes in con lict. Hours of operation of each skyway bridge an corridor were originally established in i dividual skyway agreements between the City and affected building owners. This resulted in a variety of closing times and confusion for th skyway pedestrian. Uniform ho rs are crucial for Saint Paul's skyway network. Users should be able to know if they enter the s stem they will be able to use it, without encounte ing locked doors. As Saint Paul's nightlife increases, through the addition of the Ordway Th atre, Actor's Theater, Galtier Plaza Cinemas an other attractions, extended evening hours fo the skyways become ever more important. Beginning ' March 1985, the majority of the skyways opened f om 6 a.m. - 2 a.m. seven days a week. This is a elpful beginning to what should eventually becom a 24-hour system. Building owners should be ncouraged to maintain or extend these existing h rs and the City and other downtown interes should encourage off-peak usage of the skyway sys em. 17 An additional management issue is that of handicapped access. The City's design of the skyway system addressed access for the handicapped several years before similar considerations were included in the building code. One problem that remains, however, are the skyway bridge doors. The system's manual sometimes push, sometimes pull doors are difficult not only for handicapped persons, but tend to impede the general traffic flow as well. The newest additions to Saint Paul's skyway system have included automatic sliding doors, which seem to eliminate any problems. Consensus: The Planning Commission reached the following consensus related to operations: management, hours: It is important for Saint Pau1's skyway system to have uniform hours of operation. This allows the system to function as a system and avoids confusion for the skyway pedestrian. Ideally the system would be open 24 hours a day. Future � skyway agreements between the City and buiZding owners should provide for this. Unti1 such round-the-clock operation is possible, however, the current policy of 6 a.m. - 2 a.m. should be encouraged and maintained. Saint Pau1's skyway bridges and corridors should experience a high and consistent Ieve1 of maintenance throughout. Lighting Zevels in bridges should be reviewed, updated and maintained. Climate control should be evenly regulated throughout the system. The Skyway 6overnance Committee should monitor skyway maintenance and take or recommend actions necessary to ensure quality spaces. In order to provide for smooth traffic flow and easier handicapped accessibility, future skyway bridges should be designed to include automatic, preferably sliding, doors. Existing bridges should be retrofitted with automatic sliding doors, if possible, or with doors which push with the traffic f1ow. 18 � . � �� - a7� V. PROGRAMMING A. Advertising, endors Because Sa nt Paul's skyways function as a pedestrian circu ation system, similar in many ways to the publ c sidewalks below, it is hardly surprising that endors and advertisers request access to the sy tem for their private interest. Access for purposes of temporary sales and promotions has b en governed to date by the provisions of th Skyway Conduct Ordinance, Chapter 140 of t e City's Legislative Code. In theory, skyway u e permits have been issued by a Sicyway Promotion Committee according to certain guidelines. In ractice, the committee has not met for several ears; the chairperson has been left the respons' ility for issuing permits. Skyway use ermits are limited to non-profit civic, education l, charitable, religious or patriotic organi ations or handicapped persons under the ordina e. No private, commercial activity is perm'tted in the skyway system, and no permits of any k' d are issued for use of the interior of skyw bridges. The placement of exterior banners n the bridges is ignored by the Skyway Conduct 0 inance. The Planni Commission has recommended revisions to the kyway Conduct Ordinance and the Rules and Regula ions Governing Permitting and Use of the Saint Paul Pedestrian Skyway System (see Appendix B) . Th Skyway Promotion Committee should be revive and renamed the Skyway Governance Commi ee, to reflect its role in recommending poli y to the Mayor and City Council and enforcing ado ted policies. The Committee should be staffe by the Department of Planning and Economic Deve opment. The Commit e may choose to delegate its task of issuing s yway use permits to staff or one of its members. owever, public meetings should be held at least nce a quarter at an accessible site to consider on-routine and/or policy items. 19 The ordinance should be further revised to give the Committee responsibility for permitting banners or exterior signs. The Planning Commission also recommends an addition to the ordinance which would allow for limited billboard- style or enclosed display case advertising in skyway corridors. Planning Commission members believe that several of Saint Paul's skyway corridors could be enlivened by the addition of such advertising. The Planning Commission has recommended strict guidelines to which any such advertising should adhere. These guidelines include approval by the Skyway Governance Committee and the affected building owner of the design and initial installation of such advertising. Consensus: The Planning Commission reached the following consensus related to programming, advertising and vendor issues: The Saint Pau1 skyway system offers a unique opportunity to promote downtown activities and civic events. Advertising and promotional activities which take place in the skyways should be Zimited to events of community interest and not represent a purely private inrerest. Such promotional activities should be temporary and not represent on-going competition with property tax-paying businesses. It should be clear that the subject of the advertising or promotion is civic in nature and have more than one beneficiary. The guidelines which govern the use of the skyways should be flexible and clearly publicized. Administration of such guidelines should lie with a revitalized °Skyway Governance Committee" . 20 ' - ' � � ��- ��7� B. Signage Signage an graphics which are clear and easy to understa d are essential for successful � use and enjoymen of any pedestrian circulation system. Good si nage is especially important for Saint Paul's sk ay system because it traverses the interior of uildings, where pedestrians are cut off from fam liar exterior reference points (e.g. , streets, uilding facades) . While it i not perfect, Saint Paul's pr�gram of signa e and maps has been effective and should be mainta ned. The Planning Commission approves of Sain Paul's uniform signs and consistent use o the skyway logo and "skyway blue" color. Su h consistency reinforces the pedestrian's per eption of a unified, public system. Businesses located on the skyway system frequently are a ked for directions to other destinations on he system. The Planning Commission sees n opportunity here for wider distribution of he already published skyway maps, with certain sho s being identified with a skyway information logo. The City should also ascertain that the city ho els have skyway maps available for distribution. The Planni g Commission does note that it is currently hard t identify from the street where one can gain acc ss to the system. Similarly at skyway level, it is not always clear how to get back to the stre t from the skyway. The Planning Commission has r commended additional signage to alleviate these roblems. Consensus: Planning Commission members reached the foll ing consensus on programming, signage: C1ea and effective signage is an important mponent for any circulation system. I aids users in reaching their final desti ations. Signage should be maintained n a continual basis and updated on an 'as n eded' basis as the system expands. 21 Saint Paul's uniform skyway signage program has been effective and should be maintained. The skyway Iogo and the signs' consistent "skyway blue" coZor successfully identify and provide cohesion to the systern. Strategically Iocated wa11-mounted or free- standing skyway system maps complement the suspended signs and provide essential locational information. In order to make a complex transportation system even more accommodating to its users, Saint Pau1's existing skyway signage prograrn should be supplemented with the following: Numerous small businesses Iocated adjacent to skyway corridors should be recruited to distribute skyway maps and information. These businesses should be identified at their entrances by a sma11 sign showing the skyway Iogo and the international information symbol. They should be given an ample supply of skyway maps which they can distribute upon request. Downtown hotels should be given skyway maps to distribute to their guests. Signs should be posted on building entrances which identify entry points to the skyway system. These signs should include, or be Iocated next to, an indication of the building hours and the handicapped access symbol (if the entry point does a11ow for handicapped access to the skyway Zeve1) . Wt�ere the International Symbol of Accessibility is used, the white wheelchair should appear on a blue background as required by State Statute. See Appendix C for a map of possible posting Zocations. Signs similar to the entry signs in design should be added to the skyway corridors to indicate skyway exit points and access to the street. Signs shouZd include the name of the street(s) to which access is available. 22 � � . ' � �7- ay`� An i dication of the street being crossed ov r would be a heZpful addition to the curren signage. A possible Iocation for such a sign, which could also include the names f streets between which the bridge is ocated, would be over the skyway bridge doo . Wa11 mounted or free standing maps and route dire tories should indicate accessible bathroom f cilities and points of entry and exit. 23 � 1 VI . FINANCING The City's participation in the financing of the skyway network has evolved over time. The first links in the system were paid for entirely by the City, through the use of federal urban renewal monies. More recently the City has paid for half of the cost of bridge construction, using urban renewal bonds, capital improvement bonds, tax increment and urban development action grants. As the City's financial resources become more precarious, staff has attempted to negotiate totally private financing of skyway bridges. The Planning Commission feels this strategy should be applied with caution. One of the strengths of the Saint Paul skyway system is its public nature. The ability to publicly participate in the financing of its expansion is one way to insure continued public control of skyway design, hours and maintenance. The City should, of course, participate in the financing of skyway bridges based on its downtown development priorities. The Planning Commission feels the City should have the flexibility to negotiate a "tight deal" and the proportion or timing of funding should be influenced by development priorities. While building owners are responsible for the maintenance and repair of the skyway bridges, the Planning Commission believes the City has been shortsighted in its failure to establish a reserve fund for major skyway enhancement or replacement of bridges connecting buildings which the City o�•ms or leases. In the case of such major bridge repair, improvement or replacement the Planning Commission believes that City financial participation will be mandatory. A reserve fund, established now would enable the City to plan for the system's future survival. More immediately, the City should help fund the retrofit of the existing skyways to include automatic sliding doors and additional electronic security equipment suggested by the Planning Commission. The Planning Commission has recommended that the Downtown Community Development Council submit a proposal to the City ', to accomplish this aim. 24 ' � ' � � . (��7 ��z Consensus: In discussing the points above, Planning Commissi n members reached the following consensus on fina cing: One o the strengths of Saint Pau1's skyway syst m is that it is a public system. It is impo tant for the City to rnaintain control ove the system in terms of design, hours and intenance. The p blic benefit derived from the system war nts public investment. The City's part"cipation in the financing of skyway brid es has served, and should continue to serve, as an incentive to private inv stment, when needed, resulting in an incre se in the community's tax base. The City sh u1d have the ability to participate in the financing of skyway bridges and use that ability based on its priorities or development in downtown Saint Pau1. The C'ty should establish a reserve fund for th City's portion of major skyway enhancement or replacement of existing skyways con ecting buildings which the City owns or 1ea es. The City Budget Director should anal ze the potential needs of the system and stablish the annual contribution necessary f r such a fund. The D wntown Community Development Council sho 1d develop a proposal to fund the retrofi of� e�isting skyways with automatic d ors and the installation of electronic ecurity equipment in the skyways from public and private sources. The "nancing of the skyway approach and concou e corridors should continue to be private. 25 . . . �.� ��a7� �tTt o, ' � CITY OF SAINT PAUL :�� '; OFFICB OF THE MAYOR o a � iii�i 1�� e a+ ^e 347 CITY HALL �es♦ SAINT PAUL, MINNESOTA 55102 GEORGE LATIMER (612) 298-4323 MAYOR December 29, 1986 Council President V ctor Tedesco and Members of the City Council City Hall , Seventh loor Saint Paul , Minneso a 55102 Re: Transmittal of Saint Paul Skyways: A Polic Plan Dear Council Presid nt Tedesco and Members of the City Council : On December 5, 1986 after holding a public hearing, the Planning Commission finalized its recom endations on the Saint Paul Skyways: A Policy Plan. Established by the ommission in February, 1986, the Skyway Task Force, chaired by Dr. Fran Indihar, developed recommendations on boundaries, design, security, managemen , signage and financing of skyways. Representatives of BOMA, DCDC and Down own Council were included on the Task Force. Input was also actively solicited from handicapped groups, tourist/visitor interests, architects/designer and affected City staff inembers. The Skyway Task For e Report was submitted to the Planning Commission in September and was r viewed, revised and adopted in December. The final Policy P1 n is not substantially different from the Task Force report and, therefo e, should be representative of the feelings of not only the Task Force but those groups which participated. I support the recom endations of Saint Paul Skyways: A Policy Plan and ask for your support and approval . Sincerely, 1 ` Geor Latimer Mayor GL/AL/bp cc: Peggy A. Reiche t �...s CITY OF SAINT P.E1UL C`?� �_� 7� - OFFICE OF TH� CITY COUNQIL • 1! �nE 1��tf11f � '��` � � Ddte : ��,ruary 27, 198� C MM (TT � E RE PORT TO = SQ�nt Pau i City Council F R O M � C O IY1 ir t e e O h C i ty Deve 1 opment and Transportat i on CHAIR Wi 11 iam L . Wi lson 1 . Ap eal of Planning Commission Decision - Special r Co dition Use at t374 E . 7th (Patrick Murray) (R ferred back to Planning Commission) 2. An ordinance amending Section 140.06 of the Legis- la ive Code pertaining ta skyway conduct (sates an performances) . This item wilt be cancelled out by item numbers 6 and "1 . Approved to cancel out - to be removed from committee referral tist. 3. Re olution approvina rules and regulations governing . ;_, _ -__.� pe mitt.ing .and use_ of the St: Paui Pedestrian Skyway 5v tem. This item will be cancelled out by itern nu bers �i and 7. Approved to cancel out - to be re oved from committee referral list � , 5. Re otution adopting revision to the general policy st tement for the construction of the St. Paut Sk way Systern. Passed out of committee withou� re ommendation �-, �-- . :�; _;,;� ` �.`� � r.- -: r.� r.t --� �t p _,, . � ' . , I;7 [�;:� '"�i CITY HALL SEVENTH FLOOR SAINT PAUL,MINNESOTA 55102 �� l .____--_._,_ __....__.�._._-�. ......_.� �.,�_,,,�........ � ,. - . ... ..,..,. ..�_.._��..__..�.. __ .....__._._..,.�..._.._ . _,..�.�.�,�,.. ,,