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276440 WHITE - CITY CLERK PINK - FINANCE n �T COU[IC11 �( . O CANARY - DEPARTMENT G I T Y O F S A I�T I A Cl L � BLUE - MAYOR - F1I@ N O. � esolution � Presented By Referred To Committee: Date Out of Committee By Date RESOLUTION ADOPTING THE TRANSIT PLAN AS PART OF THE ST. PAUL COMPREHENSIVE PLAN WHEREAS, the City of St. Paul is authorized under Minnesota Statutes, Section 462.353, to carry on comprehensive municipal planning activities for guiding the future develop- ment and improvement of the city; and WHEREAS, the City of St. Paul as a local government unit within the metropolitan area is required under Minnesota Statutes, Section 473.858, to prepare a Comprehensive Plan in accordance with Laws of 1976, Chapter 127; and WHEREAS, the Council of the City of St. Paul is authorized under Minnesota Statutes, Section 462.355, to adopt or amend a Comprehensive Plan or portion thereof after a recommendation by the Planning Cor�'nission; and WHEREAS, the Department of Planning and Economic Development has prepared a Transit Plan for the Comprehensive Plan of the City of St. Paul for consideration by the Planning Commission; and WHEREAS, the Planning Corr�nission has reviewed the Transit Plan dated February 1981 , a copy of which is on file in the office of the Department of Planning and Economic Development; and, after public hearing, has by resolution adopted February 13, 1981 , reco►�nended its adoption by the Council of the City of St. Paul ; and WHEREAS, the Council of the City of St. Paul has reviewed the Transit Plan including its relationship to other elements of the Comprehensive Plan as have been adopted ' for the overall health, safety, and welfare needs of the residents of the City of St. Paul and the metropolitan area; NOW, THEREFORE, �E IT RESOLVED, that the Council of the City of St. Paul hereby adopts the Transit Plan of the Comprehensive Plan, dated February 1981 , as recommended by the Planning Corr�nnission, subject to such review by the Metropolitan Council as may be required by law; BE IT FURTHER RESOLVED, that this action does not constitute an implicit adoption of the Comprehensive Plan of 1963 or ortions thereof as reviousl recommended b the Plannin �— COUNCILME[V R uestgd by Department of: Yeas Nays � hferrC- � Levine T In Favor ' Maddox a McMahon B snoWaiter - __ Against Y �ed�o► F E B 2 6 1981 For prove c�t ey Ad ted by Cou il: Date — � Certifie assed nc.� Secr ry B -- ...�- Approve y 14ayor: D e • FE B 2 '7 1981 Ap v by Mayor for Sub ss n to Coun ' gy BY PU�3��S�fi�D !�,fi�`�� '; 1�;�1 -.�..��;y GIT1' OF SAIl\TT PAUL „�,.: . _., � � ,�r • ^"� � OFFICE OF THE MAYOR !V� �� 0 ��y iiii�i.ii�ii , J�''�,��`• �s� 347 CITY HALL �� SAINT PAUL, b[INNESOTA 55102 , GEORGE LATIMER (612) 298-4323 MAYOR February 17, 1981 Council President Ronald Maddox and Members of the St. Paul City Council Seventh Floor City Hall St. Paul , Minnesota 55102 RE: Transmittal of the Transit Element of the St. Paul Comprehensive Plan to the City Council Dear Council President Maddox and Members of the City Council : On February 13, 1981 , after holding a public hearing, the Planning Co�nission certified the Transit Plan element of the Comprehensive Plan. This chapter is one of the last remaining in the completion of the Comprehensive Plan. Certification by the Planning Commission represents their recommendation to the Mayor and the City Council that this chapter should be adopted. I am distributing to you copies of the document for review, preparatory to your public hearing on it. This chapter has undergone an extensive review process. It was circulated to and discussed ��ith the Public Works and Police Departments and the Metropolitan Transit Commission staff who will be responsible for much of the implementation effort. Their suggestions and concerns have been addressed to the greatest extent possi6le. I am impressed by the understanding of the city and its needs and by the objectives reflected in the Transit P1an. The document clearly expresses an appropriate transit agenda for St. Paul in the years to come. I am pleased to transmit this chapter of the Comprehensive Plan to you. Sincerely, eo e Latimer May cc: Peggy Reichert s � - . . r . . , ��'� - - ��y �� s�i�� a�1 : ��r�g ��s�� soluT;� � � � �� 81-01 �� February 13, 1981 . 41HEREAS, the Transit Plan ti•ias developed as a por�ion of tne Conprehe�s�ve Plan of the City of St. Paui ; and ►dHEREAS, a publ i c heari ng ��ras hel d on :Ianuary 9, 1931 at �•rhi ch the Pl anni ng Commission considered the recommen�ation to ar^end the Com�rehensive P1an � by adding to it the Transit Plan; and . IrJNEREAS, prior to said hearing, a no�ice of tim� and place and purpose of the heari ng aras publ i shed i n the offi ci a1 Lega1 Ledge.r of the muni ci pal i ty . at least ten days prior to January 9, 1931 ; a�d - ' t�1HEPEaS, at said public hearing, the pu�lic, the P1ar.ning Division staff, � and Planning Commission r►�mbers ti•rere given the opportuni�y to cc:c�plete7y . discuss and revie�v the Transi�t Plan; and � !•��IERE,'�S, prior to the adoption of tnz e�tire Ccm�rehe�sive P1an, ��hich � is requir•ed by the rietropolitan Lanc Planning ac� a� 1976, se�ments of the P1an will be adop�ed as tney ar� Cl2V��OD2d, and s�bseQUently co�ined � into a sin�le a�zn�ed and internally consisten� Co��renersz�Je Plan; PJO;�:, T;iEREFGR�., �E IT RESOL�!`D, that the P�an�i ng Co�r+i ssion for the City of St. Pau1 hereby a�opts as a seg�:zn� oi the Com�ren�nsive Plan, � thz Trans�t P7an syhich is ati�ache� hereto and incorporated 'nerein by - �2�eren�e; and � BE IT FURTHER �CESOLVED; that copies �o� this portion or tne Comorehensive - P1an be transmitted ta the P4ayor and tine City Council of �n� City of St. Paul ; and � . BE Ii FU�THER P.ESOLVED, that the Planning Commission recor�nends to ttte - City Council adoption of the Transi� P]an as a segr�ent of the Campr2hensive Plan �or the City of St. Paul , subjec� to P"etropolitan Council revie��. . ��'�� Cochrane ��.a�� Schmi dt :- _ � �� i�� 6 � , - ��1----�.- . � PLAN j . TRANSIT t HEARING DRAFT � FEBRUARY 1981 � � . �. �� PLANNING DIVISION DEPARTMEfJT OF PLANNING AND ECONOMIC DEVELOPMENT �� CITY HALL ANNEX 25 WEST FOURTH STREET ST. PAUL, MINNESOTA 55102 � � � � D �? � D � L TRANSIT PLAN ST. PAU February 1981 � INTRODUCTION � Transit is a specific type of transportation: the transportation of volumes of people. It is a public good that serves a group of inter1ocking objec�ives: �' - To rovide qeneral mobility for people; - To Pmprove roadway safety and reduce needs for improve- � ments like street widenings, by reducing congestion; - To pravide mobility for people who have no other transporta�ion choices; � - To reduce air and noise pollution related to travel; and - To reduce energy consumption and the economic impacts of energy costs on individuals. � Since 1953, transit in St. Pau1 has been limited to buses. Decljning ridership was common, and transit was often � considered a necessary but outmoded public service. Recent1y, there have been signs of change. Sus ridership � in St. Paul has risen steadi.ly. The hlgh cost of gaso- line has 1ed more people to take advantage of alternate transpqrt�tion options. Shifts in employment in St. Paul haVe caused h�,qher concentratjons of workers in compact � office and cammercial areas easily served by transit. The coming decade will see more changes. The cost of � qasoline wi11 continue to rise. Light rail transit may become a reality. Perhaps most significant1y, more people wi11 want �o turn to transit. Latent demand for � transit services, unexp.ressed 6ecause transit has not appeared attractive enough, may De met �hrough improved service. Improving serv�ce will not be easy, however. Choices must be made arrrong competing demands. � THE PURPOSE OF THE TRANSIT PLAN IS TO SNAPE THE ST. PAUL PORTION OF THE REGIONAL TRANSIT SYSTEM TO MEET LOCAL � NEEDS AND TO HELP ADDRESS LOCAL PRIORITIES. The Plan shows how the city can take an active role in transit matters. This Plan wi11 be St. Paul 's ma�or input into the decision-making of the Metropolitan Council , the � principa1 transportation planning agency in the Twin Cities, and the Metropolitan Transit Commission (MTC), the main provider of public transportation. � On the average day in St. Paul , about 120,000 trips are made by bus. MTC provides 99� of all bus service in the city, or about 30 million passenger trips annually. MTC �\ DIVISION OF PLANNING • DEPARTMENT OF PtAIV�f11VG�KpG�ECC3NON(IiC"DE'V�lbF�IEM' • 'GITY OF SAINT PAUI. ' � CI7Y HALL ANNEX • 25 WEST FOURTH STREET,SAINT PAUL, MINNESOTA 55102 • TELEPHONE:812-298�4151 � operates 4Q o'f the 44 bus service routes in the city. � The remainder are operated privately. Paratransit is any form of collective transportation � service operated on a more flexible basis. A variety of vehicle types may be used. Paratransit is useful to supplerr�nt Pixed-route systems by providfng flexibility � in route, hours, and type of service. Paratransit can also encourage ride-sharing, which reduces travel costs and decreases fuel use. MTC and the Minnesota Department � of Transportaition operate Metro Mobility, a reqional para � transit program to �rovide transportation for the handi- capped. Other paratransit. services, like employer van- pools, are also available in St. Paul. THE TRANSIT SYSTEM Although the public transportation system in St. Paul is " IN ST. PAUL part of the Twin Cities regional transit system, St. Paul has service requirements which differ from those of other � areas. The city does not directly provide transit ser- vices, 6u� it can affect the agencies responsible for transit by identifying service deficiencies and suggest- � ing ways to e1lminate them. Transit service in St. Paul is generally good. Most � areas are well served, and service is frequent on most routes. Ideally, St. Paul would be b1anketed with frequent bus service. Realistically, however, MTC has � budget constraints that reduce its capacity to increase service. Over time, however, opportunities for improve- ments do arise. It wi11 be important for St. Paul to spot deficiencies and recomrnend improvements. � Improvements in service that can be made by P1TC include . those related to routing and schedulir�g, publicizing ,� route changes sufficiently, and providing bus shelters and adequate route information. Fares should be charged in an equitable manner, and should not become so high - that they discourage ridership. The city can implement ;� improvements to alleviate street congestio,n and turning problems, and institute regulatory controls to enhance service delivery. Joint efforts will be required to -� lnvestigate and implement other types of improvements. � A ma�or new initiative that could affect St. Paul sub- ,� stantially in the next decade is 1ight rail transit (LRT). Light rail is capable of high speeds, uses a fixed guideway, and runs on electric power. An LRT system could replace buses on. heavily traveled corridors �� The Metropolitan Council is investiqatinq faur potential corridors regionwide for light rail feasibility. Of the � four, two are in St. Paul , the University Avenue corridor, connecting the Minneapolis and St. Paul CBDS, � and the St. Paul North/Northeast corridor using railroad � lands. The Council 's findings and recomnendations will be presented to the 1981 Mi'nnesota Legislature. • _ � � � ACCESS WITHIN Downtown St. Paul is the busiest area of the city. It is MAJOR ACTIVTTY AREAS a ma�or re�ional employment, retail , cultural and govern- ment center, and home for about 2,600 people. Develop- � ment is occurring at a rapid pace. Because a Downtown People Mover will not be built, there ' are now many unanswered questions about downtown circula- � tion. Private decisions that will affect pedestrian and vehicular circulation are proceeding. Without a relevant plan for dealing with circulation, the city cannot nosi- tive7y influence these decisions. What is needed is a � comprehensive study of downtown circulation--streets, parking, skyways, shuttle service, deliveries, and possibly light rail--to determine how they fit together � and how they can work more �effectively and efficiently. Consideration of the circulation needs of "other major � � activity centers is warranted as we11. St. Paul 's Land Use Plan has identified six major retail clusters and four areas for intensifled, mixed-use development. The � . intent of the �.and Use Plan is to encouraqe construction of higher density housing and create energy-efficient nodes of activity easily served by transit. � Many things can be done to make circulation in these areas safer, more convenient and more pleasant. Study of ' each area' is uart of .the process of implementing the Land Use Plan; pedestrian amenities must be a ma�or considera- � tion in each. Incorporating such amenities wi11 enhance market values, improve business and reduce energy � cons�nption. TRANSIT FOR Even after achievement of broad transit objectives, SPfCIAL POPULATIONS consideration must be given to segments of the population 1� with special transportation problems. These groups are ' corr�nonly referred to as transit-dependent--that is, they rely on pu�lic transit for their transportation. � Transit for elderly and handicapped individuals is better ' in the Twin Cities than in most areas, due to the joint efforts of MTC and the Minnesota Department of Transpor- �' � tation. The efforts of non-profit service organizations have contributed as well . The 1980s will see some major changes in transportation for the elderly and handi- � capped; their impacts cannot yet be fully estimated. Persons with low incomes and the young are also usually � dependent on transit to get around. Ownership of an automobile can be burdensome or impossible. Adequate bus service can reduce the need for cars if it can get � people where they need and want to qo. Service to areas containing large numbers of low-income households or . young people is therefore crucial. � � � � iNCENTIVES TO USE TRANSIT For years, transit providers tried to get peop1e to ride �, transit, with little effect. Driving was too economical and convenient. Public po1icy often worked aqainst the . transit providers by funding roadway construction and � city parking ramps, and transit equipment was allowed to decline. Recently, this has changed. World petroleum shortages caused great concern, and the price of gasoline � rose dramatica�ly. What years of advertisin� could not d� is now being accomplished by cost; people are drivinq � less and 1ooking for ways to reduce expenditures on � energy. _� The enerqy situation has led many people to seek alter- natives to driving. There is now a tremendous oppor- � tunity to focus local pub1ic policy on incentives to use transit. Many possible incentives have to be provided by MTC--e.g. , subsidized fares or free trial rides. Other � "incentives" occur in the guise of improved service, like faster trips. There are also incentives which the city can provide or act as the catalyst for. • � IMPI,EMENTATION Impl+ementation activities fall into four broad groups. Intergovernmenta9 Cooperation, Studies and Plans, Regulations and Enforcement, and Actions and Programs. � Because of the nature of transit service in the Twin Cities, the most important city activity will involve maintaining good working re1ationships with metropolitan � transportation aqencies, particularly MTC. � ' � � � � � � . � , _ . � . � � TABLE OF CONTENTS � � 0.0 INTRODUCTION 1 � 0.1 INTR�DUCTION AND PURPOSE 1 0.2 BACKGROUND 2 0.2. 1 TRAPJSIT PLANNING IN THE TWIN CITIES 2 � 0.2.2 TRANSIT MODES 3 A.BUS 3 B.PARATRANSIT 3 � C.LIGHT RAIL TRANSIT 4 0.2.3 TRANSIT PROVIDERS 4 A.BUS SERVICE 4 B.PARATRANSIT 5 � 0.2.4 TRANSIT USERS 5 0.2.5 AUTOMOBILE AND TRANSIT USE AND ENERGY CONSUMPTION 6 0.3 ORGANIZATION OF THE PLAN 7 � 8 1.0 THE TRANSIT � SYSTEM IN ST. PAUL 1 .1 BUS SERVICE 8 1 .1 . 1 IMPROVEMENTS BY MTC 12 A.ROUTING AND SCHEDULING IMPROVEMENTS 12 � B.BUS SHELTERS, SIGNS AND INFORMATION 14 C.CIRCULATION AND FEEDER SYSTEMS 16 1 . 1 .2 IP�PROVEMENTS BY ST. PAUL 16 � A.STREET AND TRAFFIC CONTROL IMPROVEMENTS 16 B.REGULATORY CONTROLS 18 1 .1 .3 JOINT CONSIDERATIONS 19 A.PREFERENTIAL ACCESS 19 � B.TRANSIT PULSE POINTS 19 1 .2 LIGHT RAIL TRANSIT 20 � 2.0 ACCESS WITHIN 4 MAJOR ACTIVITY CENTERS � 2.1 ACCESS WITNIN DOWNTOWN ST. PAUL 24 2.1 .1 VEHICULAR CONGESTION AND PARKING 25 A.AUTOMOBILE TRAFFIC AND PARKING 26 B.BUS CONGESTION 28 � 2. 1.2 PEDESTRIAN CIRCULATION 30 2.1 . 3 SHUTTLE SERVICE 32 2.1 .4 GOODS DELIVERY 33 � 2.1.5 LIGHT RAIL TRAP�SIT IN THE CBD 33 2.2 ACCESS WITHIN OTHER MAJOR CENTERS 33 2.2.1 ACCESS WITHIN PIAJOR RETAIL CLUSTERS 33 � 2.2.2 ACCESS WITHIN OTHER ACTIVITY AREAS 36 � � � . � � 3.0 TRANSIT FOR 37 SPECIAL POPULATIONS � 3.1 TRANSIT FOR THE ELDERLY AND THE HANDICAPPED 38 3.1 .1 METRO MOBILITY 38 3.1 .2 OTHER TRANSPORTATION SERVICES 40 3.1 .3 CHANGES EXPECTED IN THE 1980S 40 � 3.2 TRANSIT FOR LOW—INCOME HOUSEHOLDS AND THE YOUNG 43 4.0 INCENTIVES � 45 � TO USE TRANSIT 4.1 SUBSIDIZED FARES 46 � 4.1 .1 RETAILER SUBSIDIES 46 4.1 .2 EMPLOYER SUBSIDIES 47 4.2 EMPLOYER PROGRAMS 47 4.3 JOINT PROh10TI0PJS 49 � 4.4 REDUCING UtJNECESSARY DRIVTPdG 50 5.0 IMPLEMENTATION 51 � 5.1 IMPLEMENTATION ACTIVITIES 51 5. 1 .1 INTERGOVERNMENTAL COOPERATION 51 5.1 .2 STUDIES AND PLANS 52 � 5.1 .3 REGULATION AND ENFORCEMENT 52 5.1 .4 ACTIONS AND PROGRAMS 52 5.2 AGENCY RESPONSIBILITIES 52 � CREDITS 53 � � � � � � � � � LIST OF MAPS AND ILLUSTRATIONS � � FIGURE PAGE TITLE � 1 .1-1 9 MTC Bus Routes (1981 ) 1 .1-2 10 MTC Bus Routes Serving St. Paul (January 1981 ) � 1 .1-3 15 New Housing/Employment Clusters 1 .2-1 22 Possible Light Rail Transit Corridors � ,2_2 23 Effect of Light Rail Transit on Bus Routes (Schematic) � 2.1-1 27 Fringe Parking Plan and "Super Shuttle" Service 2.1-2 29 MTC Bus Routes, Downtown St. Paul 2.1-3 31 The Skyway System � 2.2-1 34 Cluster Opportunity Areas 3.2-1 42 Distribution of Population by Income and Census Tract � (1978) 3.2-2 44 Distribution of Population Aged 5-17 (1975) by Census Tract � � � � � � � � � � � � 0.0 INTRODUCTION � � 0. 1 INTRODUCTION AND PURPOSE Transportation is a broad term referring to t e movement of people or goods. Transit is a specific type of trans- � portation: the transrortation of volumes of people usin� some type of vehicle. While the sole objective of most transportation is simp1y to get things from one place to � another, transit is a public good that serves a group of interlocking objectives: � - To provide general mobility for people; - More specifically, to provide transport to major acti- v�ty centers from residential areas ; - To improve roadway safety and reduce needs for improve- � ments like street widenings, by reducing vehicular congestion; - To provide mobility for people who have no other � transportation choice; - To reduce air and noise pollution related to travel ; and ' � - To reduce energy consumption and the economic impacts of energy costs on individuals . For years, transportation in St. Paul , and elsewhere in � the United States, has been dominated by the automobile. Federal priorities focused on construction and improve- ment of highways. Since 1953, transit in St. Paul has � been limited to buses and similar vehicles operating with other traffic on city streets. Declining ridership was common for many years, and transit was often considered a � necessary but outmoded public service. Recently, however, there have been sians of change. Qus ridership in St. Paul has risen steadily. The high cost � of gasoline has led more people to take advantac�e of options other than their own cars. Shifts in employment sectors in St. Paul , away from manufacturing ar�d toward aovern- � ment and services, have caused higher concentrations of workers in compact office and commercial areas. These concentrations of workers are more conveniently served by the bus system. They also afford enhanced opportunities � for other forms of ridesharing, such as carpooling. The cor�in� decade may see significant changes in trans- � portation in St. Paul . Cars will continue to become more efficient, but the cost of gasoline and the threat of supply cut-offs will continue to rise as well . Light rail transit may become a reality. Perhaps most sic�ni- � ficantly, more people will want to turn to public transit. St. Paul recognizes that there is a latent demand for transit services, which has remained unexpressed because � transit has not appeared attractive or convenient enough. This demand may be met through improved service. � � � • Improving service will not always be easy, however. Because funds are 1imited, improvements must often be � postponed or given up entirely. Choices must be made among competing demands. Public input is crucial to assist transit providers in deciding which demands should � be qiven priority. THE PURPOSE OF THE TRANSIT PLAN IS TO SHAPE THE ST. PAUL PORTION OF THE REGIONAL TRANSIT SYSTEM TO MEET LOCAL � NEEDS AND TO HELP ADDRESS LOCAL PRIORITIES. The Plan . shows how the city can take an active role in transit matters by anticipating local needs and changes, by � providing information to and cooperating with the major agencies involved in transit, by taking actions that enhance service, and by making transit an important � consideration in land use, housing, economic development and street improvement decisions. The Transit Plan will be St. Paul 's major input into the decision-making of the Metropolitan Council , the principal transportation plan- � ning agency in the Twin Cities, and the Metropolitan Transit Commission (MTC) , the main provider of public transportation. � 0.2 BACKGROUND The transit system serving St. Pau1 is affected by five � factors: transit planning efforts, transit modes, transit providers, transit users, and use of the automobile. 0.2. 1 TRANSIT PLANNING IN THE TWIN CITIES � The Minnesota Department of Transportation (MnDOT) has been charged by the legislature with providing a balanced � and coordinated multi-modal transportation program for the state. The Policy and Planning Bureau is responsible for preparing a statewide transportation system plan. � MnDOT coordinates efforts with local and regional author- ities and reviews their planning projects. It also pro- vides limited funds for transit imnrovements. The Metropolitan Council is the primary transportation � planning agency in the Twin Cities region. It is also the official A-95 review agency, which means that all local � applications for federal assistance for road improvements (including those that are transit-related) must be submitted to the Council for comment. The Council is responsible for preparing the Metropolitan Development � Guide, which includes a regional transportation policy plan. This plan guides the more detailed planning done by individual jurisdictions and by the Metropolitan � Transit Commission. The Council also reviews the capital budget, capital improvements and development program of MTC. � The Metropolitan Transit Commission (MTC) is responsible for preparing a Transportation Development Program as a means of implementing the Metropolitan Council 's policy � 2 � � plan. MTC, as the main regional transit provider, is � charged with planning, equipping and operating transit systems, support facilities and allied parking areas. These activities are coordinated with complementary actions taken by local governments. � Ecah local c�overnmental unit in the region has a role in transportation planning. The Metropolitan Land Planning � Act (1976) requires local c�overnments to prepare compre- hensive plans that include discussions of local trans- portation services and facilities and their relationship � to the metropolitan system. 0.2.2 TRANSIT MODES � � A.BUSES The bus is the most common type of transit vehicle. It provides a flexible form of transit that can be used in � a variety of ways: short or long-distance travel , local or express routes, line-haul or collector services. Buses can be re-routed to adjust to changing travel patterns. The major disadvantage in bus operations is � that buses move in mixed traffic, although exclusive bus lanes are becoming more common. The standard bus can carry about 70 passengers (50 seated and 20 standing). � Buses make up the core of the transit system in the Twin Cities. � B.PARATRANSIT Paratransit is any form of collective transportation service, provided publicly or privately, not generally operated on a fixed-route, fixed-schedule basis. A � variety of vehicle types may be used, including small shuttle buses, vans, limousines, taxicabs , and private automobiles. When properly coordinated, paratransit can � provide a significant and inexpensive supplement to fixed- route service by providing flexibility in route, hours, destination, and type of service. Paratransit is more � appropriate than standard bus service in a number of applications: - In reduced geographic areas, such as the central � business district (CBD) or a neighborhood; - In providing transit to persons who have difficulty using buses, such as the handicapped; � - .In areas where population densities are low and travel patterns are diverse, so that regular bus service is limited or non-existent; and - In providing transit for a limited number of people to � � a fixed destination, such as an employee vanpool . Coordinated paratransit can encourage ridesharing, which � can not only reduce travel costs, but also decrease fuel use and increase accessibility. � � 3 � Ridesharing may be accomplished by utilizing one of four � systems. The first is a demand-response system, in which the patron calls a central dispatcher who coordinate� trip needs into one route for an available vehicle. � "Dial-A-Ride systems work this way. The second system is subscription service, a pre-arranged contractual service in �►hich transportation is provided from specific locations to specific destinations at scheduled � times. Airport limousines and employee vanpools are examples of this. The third is a jitney system, or non-scheduled ridesharing, usually on a pre-determined � route using sma11 vehicles running a frequent �chedule. The fourth method is matching; people with the same trip � needs in the same general area are matched to share trip costs. Carpooling is the most familiar example. About 23% of all commuters in St. Paul participate in carpools, the most common means of ridesharing. Citywide, carpool- � ing is far more popular than any other transit option, including riding the bus. Carpooling also has tremendous potential to save enerqy resources, and reduce congestion � and parking needs; for example, if 10% of all cars cormnuting to downtown during the peak period carried one more person, the effect would be like a 66% increase in � bus ridership. C.LIGHT RAIL TRANSIT A major new initiative that could affect St. Paul substan- � tially in the next decade is light rail transit (LRT), a modern version of the streetcar. Light rail is capable of speeds up to 60 miles per hour, usually uses a separate � right-of-way, and runs on electric power. Light rail is emerging as a viable alternative to solve transit problems in many urbanized areas. Systems of this type are in place all over Europe and in some cities in the U.S. An � LRT system might be able to replace buses on certain heavily traveled corridors in the Twin Cities. (See 1 .2, "Light Rail Transit". ) � 0.2.3 TRANSIT PROVIDERS A.BUS SERVICE � The Metropolitan Transit Commission (P1TC) is the major transit operator in the Twin Cities. It provides 99% of all regular bus service, or about 30 mi1lion passenger � trips annually, in St. Paul . MTC operates 24 of the 25 local bus service routes in the city and 16 of the 19 express routes feeding into downtown St. Paul . All of the city lies in the basic fare zone. The average subsidy � per passenger on St. Paul routes is 23.6Q, compared to 26.4¢ on routes in Minneapolis. North Suburban Lines, a private company, provides the � remaining bus service to St. Paul . Its three express lines and one local line, which run 6etween the northern suburbs and the CBD, carry about 300,000 passenger trips � yearly on 10 standard buses. a � � � B.PARATRANSIT Taxi service in St. Paul is provided by two taxi companies and six independent drivers. About 125 taxicab licenses � are issued annually 6y the city. The MTC, in conjunction with the Metropolitan Council and � the Minnesota Department of Transportation (MnDOT) , operates Metro Mobility, a regional proqram to provide transportation for handicapped peorle. In addition to operating 34 vehicles of its own, MTC coordinates the � efforts of a non-profit organization and three taxi companies. In 1980, Metro Mobility carried over 370,000 passengers. � Buses account for approximately 35% of all commuter trips to downtown St. Paul . Paratransit provides another 30% of these trips. Certain private er�ployers provide � vanpools for their employees , while others have set up programs to facilitate carpooling. The Minnesota Depart- ment of Transportation sponsors Minnesota Rideshare, a � carpool and vanpool matching program. � 0.2.4 TRAPJSIT USERS On the average day in St. Paul , about 121 ,000 trips are � made by bus. Of these, roughly 113,000 are made on local bus routes; and about 80% or 90,400 are made by St. Paul � residents. These residents account for a fourth of all ridership in the region, almost twice their share of the population. � East SP West SP SP Total Reqion � Population 102,000 166,000 268,000 1 ,991 ,000 Population as % of Region 5.1 8.3 13.4 100.0 � Transit Trips 31 ,900 58,500 90,400 372,000 Trips as % of � Region 8.6 15.7 24.3 100.0 � MTC ridership by fare category is shown below. � � � 5 � �^, �� *X* . *�; r�o Pay 2.2i � Dime Zone 1 .5% � Full � Transfers Adult 36.2% 20.1% � Special * Pass 12.5% P1on th 1 y � Pass or 10-Ride Ticket 27.4% � * Youth/Student, Senior Citizen, Limited Mobility � ** Downtown Only *** Children under 6 accompanied by adult, and police, � fire and MTC employees using free passes. Survey done by MTC on weekday in May 1980. � 0.2.5 AUTOMOBILE AND TRANSIT USE AND ENER Y CONSUMPTION � MTC carries about 95,000,000 passengers annually on the entire system, and logs rouc�hly 32,200,000 miles. It does this using approximately 8,000,000 gallons of diesel fuel . i MTC's average mileage is just over four miles per gallon. ■ While this figure may seem low, several things must be kept in mind: � . MTC buses are large-capacity, heavy vehicles that must make numerous stops and starts. The typical passenger � car may average 16 miles per �allon, but under the same conditions as the bus might achieve only 12 miles per gal1on. � . MTC carries 11 .9 passengers per gallon of fuel , or about 47.8 passenger miles per gallon. The average passenger car in the Twin Cities , which gets 16 miles per gallon � and carries only 1 .5 passengers during the peak hours , achieves only 24 passenger miles per gallon, about half the efficiency of the averaqe bus. Peak-hour buses � achieve far more than 48 passenger-miles per gallon, which is an annual fleet average; therefore, peak-hour buses are more than twice as efficient in carrying passengers as private automobiles. � 6 � � � MTC buses are runnin very close to capacity during peak 9 hours in downtown S�. Paul . The only way to guarantee � increased capacity is to add buses; not only is this very costly, but may overburden congested streets. At the same time, however, there are many empty seats in automobiles � entering and leaving the downtown area. These seats offer a tremendous opportunity to provide needed ride- sharing space with little or no cost to the individual and a significant reduction in fuel consumption. � 0.3 ORGANIZATION OF THE PLAN The chief objective of the Transit Plan is to help improve � the efficiency, attractiveness and availability of transit in St. Paul . The first two ehapters address the effec- tiveness of the system. Chapter 1 , the Transit System in St. Paul , focuses on existing and potential modes of � transit and current levels of service, and suggests improvements that would result in better service. Chapter 2, Access within Major Centers, focuses on the � reduction of automobile traffic and congestion and the facilitation of pedestrian movement at major transit destinations. These two issues significantly affect over- � all transit speed and convenience. The remainder of the plan addresses two specific challenges � in transit service. Chapter 3, Transit for Special _ Populations, deals with the transportation problems of certain sectors of society which are known as transit dependent: the elderly, the handicapped, and young and � low-income people. Chapter 4, Incentives to Use Transit, discusses potential city activities to encourage increased use of transit. � The fifth chapter, Implementation, identifies the major � actions needed to impler�ent the Transit Plan. It - surnrnarizes the development activities, studies, programs, � official controls and intergovernmental coordination recommended in the policies. � � � � � � 7 1 .0 THE TRANSIT SYSTEM IN ST. PAUL � . � � INTRODUCTI N OBJECTIVE: TO ENSURE PROVISION OF HIGH QUALITY TRANSIT SERVICE IN ST. PAUL THAT IS TAILORED TO THE CHARACTER AND NEEDS OF � THE CITY. Transit systems are established for several reasons: to � provide transportation for people who do not have another means of getting around, to provide choice among modes for others, and to spur development. It has also been considered a useful way to reduce congestion. In recent � years, energy shortages have made public transit and other ridesharing options look increasingly attractive to a wider range of people. ,� The public transportation system in St. Pau1 is an impor- tant part of the T��►in Cities regional transit system. � Yet St. Paul has service delivery requirements which differ from those of other areas. Although the city does - not directly provide these transit services, it can affect � the agencies responsib1e by working with them. 1 .1 BUS SERVICE Transit service in St. Paul is genera y good. Most � areas are a quarter of a m�le or less from a bus line. Service is frequent on most routes. There is room for improvement, however. � Ideally, St. Paul �vould be blanketed with frequent bus service. Realistically, MTC is faced with budget con- straints that limit its capacity to increase service. � Replacing worn buses must �ake precedence over adding new routes or service. Over time, however, opportunities for improver�ent do arise. MTC has taken the initiative in � making service improvements when possible, particularly when the improvements do not require added buses. In the future, it will be important for St. Paul to spot defi- � ciencies and recommend improvements. The city also has the ability to alleviate problems throuQh actions of its own or through joint action with MTC and the Metropolitan Council . � The 1980 MTC bus routes are shown in Figure 1 .1-1 and their characteristics are given in Figure 1 .1-2. � � � 8 � ►'�� .. �n�� " f�'r ��iii�.�1�: �� , �� =�� . . _•��i ii"�11I �� 1 � � �►�c. � � �= 111:. ��I�'111 i��.��■�� ::. � - �.,T�i,t,, C 1 s�� " � _�� ■�i ��,:•- �,.. 1 ��IIII 1■� �� `� - � ��rN i��. !��.�� .. �1 Illu�l lll � •r r� � � 1�1IIII � �`� / „ i ' • I �111 L�� I�N �. II�:"1 r"��l ; �ii / z< � �� I� 1 ui��i��H i�_. � .� W' � �=i iiiii=i 1 i�� , � NII��i p •' , � ��o, � ; �1' �t:I', �I ' / ��r- �� _��,� ;ii , u�.��.,�� 1 � �� 1=illi iil= j �� '� �� 1►1��1111 1 �. ��.�� . .� - ■��i�i��u ��►��I tll�« .�i �� • �� u ��r� �� t�` � � ••��' � �■i��i �■��'.��♦ 3►, �� /�►;.� . ��1�11111111�1�.75 1��►�'� - ,�;i�i i■� t - " `� � �� 1:� ��'� .��•�.�■■�� ,;. li��='� �► �� / .iii�i��I� 11 � ■■ s.�l�i��■ �:; ` 1 ��!�::'�==--'•:::�� : = ��11111� 1%�ill�..�f��\��:•��I�i.�nmm � � ■��n �WI �� ..� . • ..�� n��l" �`7 .�-.�'•�.•,. � ••�'�;t`�1��...�■��7 ��ivBs�� ,4• o ��.. ! am�r.�■■ u.� � �i Nw•'�• •\� �� I�II��I I��o..� o�r . � '— .��1��\�, �, � ��.. ��1 1/��►�� r� � �`.!;•. �` • ` `��, '�1111:■■s■n 11"ml��: ��°'. '' '.�� '1°'ti�,,��I _'::R� - � � _ �_, � N �� ';��,.�� „ �I��aax=■� ��1 1 � ' � ►�'��`�. ��.��1��, �_i��r,• ,`,/ ' �11 I �w ``:=---=�� .. �-• • __., � � �� . ..��.��iI �., .�. ��;..,.,,..�„�,. �1�� iG��■ ��■ �� er ■�r■■.�,�ri�i�� ♦�� . .. o� � d� �,�.� �� _ �\ 1�� =! j, � : � ��`.' � '�\,\\■� \\��. �� \• � 1 �� ''�� . �- � ' �� ' .��■'1�� r:I=�,,�, ,1, ��r \ I� 1 � ��1 �I r� � ' ro . �1 i• ■ ■ `��1 / ■I�r , 11 �.��1 �� . � �1 11�H1■�1�'� �� ,,,1� �\11�11��\ � � �� N�� 1��♦t�t��j1�'� ��ii��1 �� '��1��t�� 1G�1�1��J' ..��►��q. n��.�� .�■ �� I� 1��11��11111 �I�II��11� ��••�, �\ I��.'�. —� � �H�� .��7 �::. ..�,. �� 1 �� _��r�1� ---�:�..�. �� ,�= 111 11111111�::I:i::i i:lll�l��ti � '��I 11:�11�� J � 1 f 1111 NII 1�■■ ■■.■��■111111��11 �'�: ==;��►!� �1 I 11111 1 1111111��11��11!r�� @III 111111►�.� ► � � ,1� I11111�1 1111111��■11��11 11111111111. 1 11 11 111 111�I II��■11��11�' � y�'� �►'� � �I�Sk,��1 � �� 1 " 1'��1' 1�1'�'1„�11„1��' /��`►\��♦ . 11111�II IIII�1 I 1111�1■I I�t�i��`_��'� � �111�11111111�� 11111��1�� ...�.::�::�� +� � 1 i 111 tlll�11 u I� �:i�/111�IIIIIII 11111111�:��t �,w � ,��.�II.��:��.��_�� :; .�_�� .�.�� ;: i� �� i �� i��i��i � ��:;:� I �� iuin�i. ��11�1�11��111��CZ�C�II ',�'��``�, • � ■n��i ■�� tl��111�� '.■ 1 1�� 1 CC I��■i�n�■� 1�1��11��1i�� / � 1� �1'14 �I��I��\� ' � ��_�� = i � ��::,::::�1��n�,��i-i�l�ll ��il►� -,��=�=�r�i :-I� •�u��::iii�iir i'iiii��.��hui;�+�. .}x1�_ �i � � �r�� I ,��!�j1� ��'�� '1� � � l:��n��,�% ��, � ��I �� ■■ /��■��'1�111?��'�'II` �� .F 1111` � /��iii°' '� 111�11111111 iil�r J�i�`' _•�� :� "/��.. .::�::I�'��I I 111�1111 �:11 II•!�I ��I I�� i ' ' � 1�� 1■ ■��111111111111�1 1111 II "''��`'T`�� •• i ,��I/I■�11��1�111111111111�1��111111 � � ' " � /� ♦ ��i �■ ■��—��1 � � ��%��e/I:��,■��r��l�il /�ie ��.�4��r�/�w= ' .�� _~� :� �► !.- .�°• ��_, � ,�� _,� ,�, � �� : �.,��' FIGURE l.l-2 MTC BUS ROUTES SERVING ST. PAUL (JANUARY 1981) � . � Route Daily Service Frequency � No. Name Ridership* Peak Off-Peak Eve. Sat. Sun/Hol 1 HarMar Mall/ 298 4 in AM � St. Paul Express 4 in PM 2 Edgerton 441 7 in AM 2 in AM � 4 in PM 3 in PM 3 E. Third/ Grand Avenue 9,658 8 Min. 15 Min. 30 Min. 15 Min. 30 Min. � 4 Snelling Ave/ 5,193 10 Min. 20 Min. 30 Min. 20 Min. 30 Min. HarMar/Rosedale � 5 Como-Stryker 5,798 15 Min. 30 Min. 30 Min. 30 Min. 60 Min. 6 Dale Street 293 40 Min. 40 Min. � 7 Thomas-Smith 4,791 20 Min. 30 Min. 60 Min. 30 Min. 60 Min. 8 Jackson-S. Robert 5,116 16 Min. 25 Min. 30 Min. 25 Min. 60 Min. � 9 East/West 7th St. 7,140 15 Min. 20 Min. 30 Min. 20 Min. 60 Min. � 10 St. Clair Ave. 2,472 15 Min. 30 Min. 60 Min. 30 Min. 60 Min. Phalen Park � 11 Arkwright/ 2,837 15 Min. 30 Min. 60 Min. 30 Min. 60 Min. Concord 12 Roseville 6,557 11 Min. 20 Min. 30 Min. 20 Min. 60 Min. � E. 6th St. Oakdale/Lake Elmo � 14 Randolph/Payne 11,710 10 Min. 10 Min. 30 Min. 15 Min. 30 Min. E. Maryland � 15 White Bear/ 1,101 20 Min. 60 Min. 2 in AM Mahtomedi 2 in PM 16 University Ave. 26,721 6 Min. 8 Min. 15 Min. 10 Min. 30 Min. � 17 St. Paul/Newport 791 25 Min. 2 in ANI � Cottage Grove 1 in PM 18 St. Paul/ 581 35 Min. 60 Min. 6Q Min. Mounds Park/ � Cottage Grove � 10 � � �19;� Eagan Ind. Area 50 1 in AM 1 in PM _ 20 W.Bear Crosstown 406 60 Min. 60 Min. 40 Min. �21 Selby-Lake 19,140 !0 Min. 10 Min. 15 Min. 10 Min. 30 Vlin. �22 Hospital Special 36 2 in AM 2 in PM 29 S.St.Paul 1,744 25 Min. 60 Min. 90 Min. � Dodd Road 31 Lakewood College 95 1 in AM 1 in PM �34 Minnehaha/ 806 4 in AM 60 Min. � 60 Min. 60 Min. Midway Center 4 in PM �35A White Bear Lake/ 115 1 in AM Birchwood Express 1 in PM �35g Wt�ite Bear/ 341 3 in AM No. St. Paul Express 4 in PM �35D Mahtornedi/ 119 1 in AM White Bear Express 1 in PM �35F Northtown Express 187 2 in AM 2 in PM 37 White Bear/3N9 Exp. 85 1 in ANI � � 1 in PM 45 Burnsville-Eagan 269 3 in AM � Express 3 in PM 46 Apple Valley/ 96 1 in AM � Rosemount Express 1 in PM 94AC Woodbury/Upper 608 6 in AM Afton Express 5 in PM �94B Mpls/St. Paul Exp. 4,248 8 Min. 30 Min. 40 Min. �94H Highland Express 791 9 in AM 3 in PM (to Mpls.) 7 in PM �94L Nlpls/St. Paul Exp. 305 3 in AM 3 in PM 94S Stillwater-3M Exp. 423 4 in AM � 4 in PM 94T Oakdale-Sunray Exp. 34 1 in AM � 1 in PM �;ti��ernber 1980 � 11 � ' 1 .1 .1 IMPROVEMENTS TO BE MADE BY MTC � During the 1970s, a Route-Ridership Improvement Project (RRIP) was undertaken in the T�Nin Cities to locate service deficiencies and to recorrenend steps to correct _ them. Participating in this effort were MTC, the counties � and municipalities involved and the Minnesota Highway Department. The project divided St. Paul into two study areas, Western St. Paul and St. Paul East/Central � Washington. Each route was evaluated and route realign- ments, alternate routes and new routes were recorr�nended. The improvements are being implemented as feasible. MTC is reviewing the RRIP recommendations, to determine how � many have been implemented, how successful past changes have been, and based on that assessment, what further changes are appropriate. � A.ROUTING AND SCHEDULING IMPROVEMENTS A number of the recommendations in the RRIP for St. Paul � have been imp1emented, including the addition of the 94 express routes, as well as Routes 34 and 9C. Other routes--35D, 4, 8, 20 and 46--have been modified by realignr�ent, extension or rescheduling. P�any of the � recommendations of the RRIP will not be implemented due to circumstances that have changed since the project was completed. There are some remaining recommendations that � shou1d be implemented, however. A few of the recorr�nendations that are still important � relate to north-south crosstown routes in western St. Paul . Existinq crosstown buses trave1 on Dale (#6) , Snelling (#4), and parts of Cleveland and Cretin (#7). MTC has already increased the frequency of service on Snelling, � and has planned to alter Route #7 to use only Cleveland, modify Route #10 (St. Clair/Phalen Park) to run down Cretin, and add a Lexington crosstown route. This scheme � requires additional buses, and budgetary constraints have so far prevented the changes. The plans for improved north-south service are still appropriate, however, and � MTC should continue its plans to implement them. POLICY 1 .1-1 : MTC SHOULD COMPLETE IMPROVEMENTS RECOMMENDED IN THE ROUTE/ � RIDERSHIP IMPROVEMENT PROJECT THAT ARE STILL FEASIBLE AND DESIRABLE AS OPPORTUNITIES ARISE. Improvements other than those suqgested in the RRIP may � also be appropriate. A number of routes in St. Paul are unnecessarily circuitous and have unduly long travel � times. Some of these routes--e.g. , Route 5 (Como-Stryker) and parts of Route 12 (Roseville-East 6th Street)--could be realigned and coordinated with each other to provide better service. These changes should be investiqated. � Another way to reduce travel times is to initiate a "skip- stop" system. On alternating runs a1ona the same routes, � or at certain hours of the day, the bus would only service every other stop. This could be especially effective on 12 � � � routes with short headways. More study of the feasibility � of skip-stop service is needed. POLICY 1 .1-Z: � THE CITY WILL WORK WITH MTC TO INVESTIGATE ROUTE REALIGN- MENTS AND OTHER METHODS, SUCH AS SKIP-STOP SERVICE, THAT COULD SHORTEN TRAVEL TIMES AtJD IMPROVE BUS SERVICE TO � ST. PAUL RESIDENTS. MTC continual1y makes minor adjustments in its routes for a variety of reasons, including improved service. A1- � though more people may have easier access to a line or the - schedule may be improved, constant changes are very frus- trating to bus users and discourage ridership. MTC � should be sure to fully publicize alterations well in advance of any change. Small changes to the same route should be implemented simultaneously to limit rider � confusion. POLICY 1 .1-3: P�TC SHOULD LIMIT THE NUMBER OF MINOR ADJUSTMENTS IN � ROUTES IN ST. PAUL AND SHOULD ADEQUATELY PUBLICIZE THOSE CHANGES THAT IT DOES MAKE. � Occasionally MTC cuts back on service, usually because the particular route does not seem to have enough riders. Unfortunately, reduced service often results in even � lower ridership. This occurred on t�lhite Bear Avenue in east St. Paul , �vhere service frequency changed from 30 to 60 minutes. White Bear has serious traffic problems, which bus service helps to alleviate somewhat. If MTC � contemplates further service reductions here or anywhere else in St. Paul , the city should be notified in advance of the change. While the city does not want to encourac�e � inefficient use of public funds, a public review process can ensure that needed service is not eliminated. POLICY 1 .1-4: � MTC WILL NOTIFY THE CITY PRIOR TO REDUCING SERVICE ON ANY ROUTE IN ST. PAUL. � The City of St. Paul is also concerned about transit fares. Transit is an essential public service, similar to schools, parks and libraries. Althouqh users may be � expected to contribute to the operation of these services, their value to society suggests that public subsidy is appropriate. Transit services many useful functions; it even benefits non-users by reducing congestion, freeing � scarce fuel resources, and being available in emergency situations. Continual raising of transit fares dis- courages ridership; this occurred in 1980, when ridership � actually declined after a decade of constant growth. The city feels stronqly that MTC should carefully weigh these factors when it considers any increase in bus fares. � � 13 � The manner in which fares are increased is also a concern � to St. Paul . Typically, the fare increase is a flat rate--usually 10¢--across all fare zones. The result of this is that bus patrons in the two central cities pay a � much higher relative increase than suburban patrons--in essence, subsidizing service to the suburbs. This policy is especially counteroroductive when service in the _ cities is reduced so �suburban service can be added. The � central cities, where greater gains in ridership can be real�zed throu�h smaller improvements, are penalized so that less efficient suburban service can be added. This � issue raises serious questions of equity and efficiency that MTC must Give grave consideration in all future - deliberations over increasing fares. . � POLICY 1 .1-5: MTC SNOULD REFRAIN FROM P1AKING FREQUENT INCREASES IN BUS � FARES THAT DISCOURAGE TRANSIT USE, AND SHOULD DEVELOP A PRICING SCHEME THAT DOES NOT FAVOR THE SUBURBS TO THE DETRIMENT OF BUS PATRO�lS IN ST. PAUL AND MINNEAPOLIS. � St. Paul 's Comprehensive Land Use Plan has identified four areas of the city as major opportunities for the location of new high-density, mixed-use developments (Figure 1 .1-3) . � These areas have been underserved by transit in the past because they generated little movement of people. 4Jhen the intensive development planned for these sites begins � to take shape, their transit needs will increase substan- tially. The city must keep MTC informed about changes in these areas so that MTC can respond to new demands for � service. POLICY 1 .1-6: � THE CITY WILL WORK WITH MTC TO ENSURE THAT NEW HIGH-DENSITY, MIXED-USE CLUSTERS (FIGURE 1 .1-3) ARE PROVIDED WITH AN ADEQUATE LEVEL �JF CONVENIENT TRANSIT SERVICE. B.BUS SHELTERS, SIGNS AND INFORMATION � Currently there are about 160 shelters within St.Paul . All the shelters recommended in the RRIP have been � installed, and downtown bus shelters are in the planning stages. There may be locations, however, where route segments have been realigned or ridership has increased substantially, that warrant additional shelters. In � certain cases, adjacent buildings may serve as shelters with the owner's consent. At major stops where this is not feasible, MTC and the city should ensure that bus � shelters are provided. MTC has proceeded over a long period to provide shelters as funding becomes available. A complaint frequently heard about the bus system is the � inadequacy of the information posted at bus stops. All shelters contain full route information. Elsewhere, however, there is often only a red MTC marker indicating � 14 � � � FIGURE l . l-3 NEW HOUSING/EMPLOYMENT CLUSTERS � � ______ L�MEMEW NE. � \ . �� I IQVT wE. � � �� `� � w w+u�c+on w�. e �� 1 " 1� .s /.pA' N� 1MfEl� E Nv 4F 1 � y+ � � Ka =�--- � �°'° � w w�m,wo wE. S �� wanwn w4 .J�'•r�°`"�' . 4 M 'a� �" � i i ;"�+ 4s W ;{ � � = c �b � � � G rnvrt s.. - use st ase s � , � ,E " � � � � � .�; y qqi�, � � C9 E M Sf � �,� � � s�MO[ � • 8 . $ � i �C.,r "� wQwwy� wc. 8� � � r,�w« e � �:-.�� . Z f . v1 �µ E M SL tF � }�y � �i � � �r � � UMER9�TV O � � E }E ST � ! � ! � '� � z $ �-a• '-�' �-w `� ' � g wws«u wa. � � ana w� ; se�er �c. _.- _ � � �,p W '� i, , E "�__ M„_ �R 4 '','� � � . ! � �- s,,.., ,� C, �,,p 8T _ . �a „� ; � � "� �� I � '� ',� ¢ P // I�' ` 0.�4 � \\\ 8 0 � � 1�� s.u.a wt � 's / 4� p1` � 1 � � _ - � � � � •� .L� �.� .._ I 1�, .EfFEi6d1 ME � � � (E()i; 51 �Q1r�_ � 1 � l(TMIP V\� � � � g- •.,rb � 1 ' I! � � � � � � G QQ yr I � l% ' �� 7 � W " �¢ � �` � ' ( -- L� 1 ' C 1 _/ 1^\ ' �. �;� _ � ` � � � ► r a°' � � ,— ,� I� �,�.�� s, � ! � � � � �xo� a�wr a k i 3 ro __�___�i w as si i�, Sl .r.�wois r __ I ' I �; � � `� � � . _\ � I �I � � �w. � � � i ;. 1\\\� � 1 E l �,",� � `a wa�a ,uE $ � \�.� I \ � � � � \_ t / \ M1 �\� � EIXLII.BE W J'S � i� \�\\ �`I` r\.� \'�� Y � .� � �,�;1. I:,j � ; `�.` i ' , / ;,,�1 `... � + ��r `'///// \,\ . _, , 1 � .,�n ' ��:. ""` ' , , ti. ---,y� �.`.`\ ` ' ', \ , - _ _ _ . ' ,: , : _ , ;� z�::�y n `�-°-�-i-�--� - ' 1 N� . � ..,. �-�.. 1 . Chestnut-Eagle Area M� � 2. Harriet/Navy Islands 3. West 7th Street Tank Farm 4. Energy Park � � � � 15 � � the existence of a transit stop, containing little or no � information regarding routes. At the very least, the bus stop sign should give route numbers, branch designations, if any, and route names. Other useful information would be the general orientation of the route (east-west, north- � south) , major attractions along the route (shopping centers, schools, etc. ), or better yet, a route map. POLICY 1 .1-7: � MTC SHOULD CONTINUE ITS PROGRAM TO PROVIDE MAJOR STOPS ON BUS ROUTES IN ST. PAUL WITH FREE-STANDING SHELTERS OR � ACCESS TO NEARBY BUILDINGS, AND SHOULD SUPPLY ADEQUATE ROUTE INFORMATION AT ALL STOPS AND SHELTERS IN ST. PAUL. C.CIRCULATION AND FEEDER SYSTEMS � The Route-Ridership Improvement Study singled out two areas of St. Paul as candidates for transit circulation systems: Highland Park and Froqtown/Surrnnit-University. � The purpose of such a circulation system would be either to respond to high volumes of internal travel demand, or to comp1ement community development objectives. Although only these neighborhoods were specified in the RRIP, � other neighborhoods in St. Paul may be equally appropriate. POLICY 1 .1-8; � THE CITY AND MTC IJILL INVESTIGATE INTEREST IN AND THE FEASIBILITY OF NEIGHBORHOOD TRANSIT CIRCULATION SYSTEMS. R E E TS H C � A.STREET AND TRAFFIC CONTROL IMPROVEMENTS In order for MTC to create a Lexington Crosstown route, � as suggested in the Route-Ridership Tmprovement Project, the ban against bus use of Lexington Parkway would have to be lifted. Throughout the city, bus service might be � improved if buses were allowed to use other parkways as well . For example, neither Como nor Phalen Parks can be served directly because each is ringed by parkway. While it is appropriate to prohibit trucks, buses are essen- � tially residential-oriented vehicles just as automobiles are. The city should, therefore, consider allowing buses to use the parkways in the interest of improving transit � service. POLICY 1 .1-9: � THE CITY WILL SERIOUSLY CONSIDER ALLOWING BUSES TO USE . CITY-DESIGNATED PARKWAYS. The RRIP made a number of recommendations regarding street � improvements. One recommendation, related to several routes in east St. Paul , was that the intersection of Payne and Maryland Avenues be modified to improve the � turning radii so that buses can turn more easily. This would involve cutting back the curb and moving some � 16 � � street hardware (e.g. , light standards). Other inter- � sections posing a simi1ar problem are at East Third Street and Maria Avenue, and at Ghristie Street and Larpenteur Aven ue. � Another street-related issue has to do with Route 76, which currently runs northbound on Edc�ecumbe Road north of Randolph, and terminates at Palace Avenue. On the � north side of Jefferson is a housing development, Wilder Park, to which ��1TC would like to run Route 7B. To do this, a bus turn-around would have to be built in the � development. This could be arranged if the city would allow the boulevard to be cut so that traffic could cross Jefferson at that point. � The city should stay abreast �of street-related issues and provide assistance to MTC when feasible. Such assistance might be low-cost, as in the case of lifing the bus ban � from the parkways. Others may involve substantial invest- ment and may have to be postponed until funds are available. Still others may be physically infeasible unless complete � redevelopment of the street occurs. POLTCY 1 .1-10: � THE CITY WILL STUDY STREET IMPROVEMENTS SUGGESTED BY MTC AND IMPLEMENT THOSE THAT ARE PHYSICALLY AND FINANCIALLY FEASIBLE. � The timing of traffic signals is crucial to the flow of traffic on major streets. If the timing of sequential lights is poor and traffic is forced to stop frequently, � fuel is wasted and travel times increased. This is as true for buses as it is for other vehicles, and is even more ir�portant because it increases public costs. There � are a few locations in St. Paul--e.q. , on Snelling Avenue north of University--where bus travel is frequent and the sic�nals are poorly timed. Correction of this type of problem is important. � POLICY 1 .1-11 ; THE CITY I�JILL STUDY COLLECTOR AND ARTERIAL STREETS THAT HAVE CLOSELY-SPACED SEQUENTIAL TRAFFIC SIGNALS TO ENSURE � THAT THE SIGNALS ARE PROPERLY TIMED TO PERMIT ADEQUATE TRAFFIC FLOW. � The city can assist MTC in the provision of adequate shelters and consumer information. One potentially bene- ficial program would be to allow private investors to � erect bus shelters containing advertising, especially downtown. This program is being implemented with great success in Minneapolis , where 200 such shelters are being � installed. The private companies are franchised by the City Council , and locations and design are submitted to � 17 � � MTC for review. In this way, a public amenity is provided � without use of public tax money. Another city undertaking might be to arrange for bus information displays in buildings containing or adjacent to bus stops; MTC would � provide the materials. POLICY 1 .1-12: THE CITY WILL INVESTIGATE AND IMPLEMENT, AS FEASIBLE, A � PROGRAM TO ALLOW PRIVATELY INSTALLED BUS SHELTERS, AND WILL SEEK APPROPRIATE INDOOR LOCATIONS FOR BUS INFORMATION DISPLAYS. � B.REGULATORY CONTROLS On-street parking can reduce the flow of traffic on major � streets. Parking restricts the space available for movinq vehicles. It may also slow or stop movement as vehicles pull in and out of parking spaces. It may inhibit turning movements by occupying space that could otherwise be used � for turning lanes. Where this problem is worst is on streets having comnercial uses on both sides. The solution to this problem, however, is not as simple � as removing parking from all commercial streets. There are areas in St. Paul , notably downtown, where adequate off-street parking exists and removal of on-street parking � may be desirable. This is not the case on other problem streets, such as Arcade. Restricting the hours of on- street parking--for example, prohibiting parking on the � outbound side from 4:00 to 6:00 p.m.--may be part of the answer. The issue requires further investigation. POLICY 1 .1-13: � THE CITY WILL WORK WITH MTC T0: (1 ) LOCATE STREETS IN ST. PAUL LJWERE ON-STREET PARKING CAUSES TRAFFIC PROBLEMS; AND (2) IP+IPLEMENT SOLUTIOP�S APPROPRIA7E TO EACH AS � FEASIBLE. St. Paul can use its development controls to ensure provi- � sion of such bus-related improvements as shelters, turn- arounds, and pu11-out lanes. The provision of these amenities should be an integra1 part of all major new � developments. POLICY 1 .1-14: THE CITY 4JILL REVISE THE ZONING ORDINANCE TO REQUIRE THAT � ALL ��IAJOR NEW RESIDENTIAL DEVELOPMENTS AND EMPLOYMENT GENERATORS PROVIDE ADEQUATE TRANSIT-RELATED IMPROVEMENTS, AND WILL INCLUDE SUCH AMENITIES IN ALL PROJECT PLANNING � IN THE MAJOR OPPORTUNITY AREAS IDENTIFICD IN THE LAND USE PLAN. One additional activity that St. Paul can undertake is � enforcement of city ordinances related to snow removal . � 18 � � � Many bus shelters are unusable during the winter because property owners do not clear snow from the sidewalks in fron� of their buildings. Neither MTC nor the city has the resources to remove snow from bus shelters and stops � all over the city. They must rely on private efforts. POLICY 1 .1-15: � THE CITY WILL MORE VIGOROUSLY ENFORCE ORDINANCES REQUIRING SIDEWALK SNOW REMOVAL BY ADJACENT PROPERTY OWfJERS TO ENSURE THAT BUS STOPS ARE ACCESSIBLE DURING THE WINTER. � 1 .1 .3 JOINT CONSIDERATIONS A.PREFERENTIAL ACCESS I The term "preferential access" , as used here, refers to any means of giving transit Vehicles priority in the use of streets and highways. Advantaqes include reduced � running times, especially during heavy peak-hour traffic, which rewards transit users, and reduced operatinq costs. � One means of providing preferential access is metering, used in Minneapolis on the ramps entering I-35W from the downtown. Two ramps enter the highway, one for buses and carpools and the other for all other vehicles. The bus � and carpool ramp is not metered, allowing free access, while the flow of cars is restricted by allowing them to proceed only a few at a time. The heavier the traffic is, � the longer the cars must wait to enter. The spacing of traffic created by this device keeps the freeway from becoming overly congested near downtown, thus allowing high-occupancy vehicles to have shorter travel times. � Another means of providing preferential access for transit vehicles is exc1usive transit lanes. Transit-only lanes � on freeways allow express buses and van and carpools to operate more efficiently because they do not have to contend with other types of vehicles. Caution must be � used in placing transit lanes to avoid causing traffic back-ups on feeder streets. Transit-only lanes can also be highly effective on other highly congested streets. � POLICY 1 .1-16: IN CONJUNCTION WITH MTC AND THE PIINNESOTA DEPARTMENT OF TRANSPORTATION (MnDOT) , THE CITY WILL STUDY THE DESIRA- � BILITY AND FEASIBILITY OF RAMP METERING AND EXCLUSIVE TRANSIT LANES AS WAYS TO PROVIDE PREFEREPJTIAL ACCESS TO TRANSIT VEHICLES IP� ST. PAUL. � B.TRANSIT PULSE POINTS A transit pulse point is a place where a large number of transit routes connect with each other. In cities that � have rail transit, rail stati�ns usually become pulse points where rail , bus and paratransit networks meet. In the Twin Cities, a pulse point is a location at the � junction of several bus routes that may also serve as a � 19 � � stop o� a paratransit collector route, as a standard destination for a shared-ride system, and as a taxi stand. � A Park-and-Ride facility may also be a pulse point served by light rail . The Route-Ridership Improvement Project identified High- � land Village, near the intersection of Ford Parkway and Cleveland Avenue, as a potential pulse center. Other � locations in St. Paul may also be appropriate for use as pulse points. For example, fjve routes having a combined daily ridership of over 40,000 people run past Midway Center, one of the major sites identified in the Land Use � Plan for more intensive development. The University Avenue corridor is one of the prime locations in the Twin Cities for light rail . Given these factors , Midway � may be an ideal spot for a pulse center. For similar reasons, other cluster areas (Figure 2.2-1 ) may also have potential . � POLICY 1 .1-17: IPJ CONJUNCTION WITH MTC, THE CITY I�JILL INVESTIGATE LOCA- TION IN ST. PAUL THAT HAVE Tf�E POTENTIAL FOR DEVELOPMENT � AS TRANSIT PULSE CENTERS. . LI H RAIL TRANSIT Light rail transit LRT is a pu lic transportation mode � that falls into the general category of fixed guideway transit. Fixed guideway systems have several character- � istics. First, they operate on tracks, rails or concrete guideways, using steel wheels, rubber tires, air suspen- sion or magnetic levitation. Second, they can function only where their guideway and power source exists. Third, � they generally run on e1ectricity rather than gasoline products or coal ; the main exception to this is the commuter railroad. � Beyond these traits, fixed guideway systems may vary greatly. They may operate in mixed traffic, like the electric bus or trolley, or in an exclusive right-of-way, � like railroads , or they may do both along the same route. Some systems are operated only with single cars, while others may be attached in trains. Car sizes vary substan- � tially. Systems may be automated or run by operators. Rail transit may be separated into "heavy rail " , like the typica1 subway system, and "light rail ", which refers to � urban transit systems with steel wheels operating on steel rails, usually at grade on a separated riqht-of-way. Light rail transit is being studied by the Metropolitan � Council for possible application in the Twin Cities region. LRT would be 6uilt along certain heavily-traveled corridors to replace line-haul bus service. Each car could hold � 150-180 passengers, compared to 70 for the standard bus, and would stop every one-quarter to one mile, depending on �he corridor. � 20 � � � Light rail can have a number of advantages. It can save fuel , especia1ly gasoline, by taking over long hauls currently served by buses and relegating the bus to a more appropriate role as a short-range collector and distributor. � Because it runs on electricity and Twin Cities electricity is generated primarily by nuclear power and coal , it would not be vu1nerable to oil shortages. LRT is quiet, � re1ative1y non-polluting, and easier and more economical to maintain than a bus system. One LRT driver can haul five times more passengers on a single load than a bus driver. This could relieve �he glut of buses on certain � streets, especjally during the peak hours, and reduce operating costs as well . Unljke heavily rail systems, like the new subway in 4Jashington, D.C. , that cost $70 to � $80 million per mile, an LRT ,system could probably be constructed for $10 to $20 million per mile. Although the initial investment is high compared to buses, the life � of a light rail vehicle is 40 years, three to four times that of a bus. Front St. Paul 's standpoint, LRT could have some bene- � ficial land use impacts. Fixed transit investment is more like1y to encourage development activity because the transit system is permanent; bus ro�tes are not visible � and can easily change. Strategically placed lines could encourage higher-density development at nodes created by stops. This development would mean re-investment and could � help draw back population and tax revenues lost to the suburbs. Opponents of light rail have raised a number of concerns. � The high initial capital investment may prove to be excessive. Energy savings may be small because buses use only 1% of all petroleum fuels in the region. LRT may � need a higher population density than that of the Twin Cities region, although Edmonton, Alberta is successfully running an LRT system and planning extensions, and Portland � and San Diego,cities of comparable size and even lower density, are moving ahead with plans for light rail . There is concern about neighborhood receptiveness to higher development densities. Overhead electrical wires � may be perceived as unattractive. The Metropolitan Council is studying four potential light � rail corridors that it considers to be representative of corridors reqionwide. The purqose of the study is twofold: to determine if LRT is at all feasible in the Twin Cities, � and if so, to develop criteria for evaluating potential corridors. Of the four corridors being studied, two are in St. Paul . the University Avenue corridor connecting the Minneapolis and St. Paul CBDs, and the St. Paul � North/Northeast Corridor using existing rights-of-way, such as underutilized rai1road lands. The Council 's findings and recommendations will be presented to the 1981 � Minnesota Legislature. St.Paul has assisted in the collection and analysis of data on these two corridors to ensure that local concerns are taken into consideration. � 21 � • POLICY 1 .2-1s THE CITY CONSIDERS LIGHT RAIL TRANSIT A SIGNIFICANT POTEN— � TIAL TRANSIT ALTERNATIVE FOR THE T41IN CITIES AREA AND SUPPORTS AN AMENDMENT OF THE TRANSPORTATION CHAPTER OF THE METROPOLITAN DEVELOPMENT GUIDE TO ALLOW FURTHER EVALUA— � TIOP� OF POTENTIAL APPLICATIOP�S. POLICY 1 .2-2: THE CITY URGES THE METROPOLITAN COUNCIL TO SERIOUSLY � CONSIDER ALL POTENTIAL LIGHT RAIL CORRIDORS IN ST. PAUL (FIGURE 1 .2-1 ) FOR FURTHER EVALUATION. THE CITY WILL ASSIST IN THIS EVALUATION AS NECESSARY. � � FIGURE 1 .2-1 POSSIBLE LIGHT RAIL TRANSIT CORRIDORS � LM1ENiEUR ME. —'_"—' y � �O/T NE. � �� i � � � � �e i �iy W NaMRIN wE. � E D � � 1 4. W � 1 :.1 T 0 ��OIrY vM1EE� ^ E Nv rvE 1 � � 2 � � I GOMD W MMfM1MD NE. � MMYIMO NE Y�l x� .A 1 I � 1�� /-1 1 � R � � � ' � y� fROMT Sl N � ' fiVE 81 i �CASE Sf � � PENCE � dn F i�wae�l �Eq p�� E lw 6f . r�� 9�CIMbE � � . � � �Y 1.N6�MM �IE. � �, ( NIpWM � I PFf�1 m � � N t , E M St 1 �� E }0 ST 1 � � � � � i-W z � w � � `� ' S NVI9VIL ME. n�� e` w�. -_._ w t ,E `�,� I�i R 1�,1 I � � bT � ��, '�I I 9U.M� �IE. rn � �� ♦ � �;_ - � � E �� Ij, �' / J y l�+ � � Si QN1 1YE � �F � �� 1'� \ O �{ � � } wyu I; � 1 � e�.� I 1�'� .[ifE1BOp ME �—� � (�<JRGE 51 � I P � � I� � 1 J a I i i 1�H�M0.R1 NF [ � l� I Sr / � /� ' 4r � � Z `p 2 p � _/� ,} �Q �¢ � I A� �I �� C �f � z I i � tl � 1 yy.� f O � � /I ��/� q' 9 � � � � " �! / 1.' � � MD RtW'/a 1 ��G W 0.5 94 1 rn �NW0.6 ��\\\�\ � �, -' � � i010 � PKWY � � I 1Yf '/ _ \\\\\ � i eS� ' \`��j /, \ � �� '2 ua��K � � , . . `� � y i \�` +� �. �v�s F e°°aweE i° i� �� v��; �L.. \. �' � ��. v�..,� � � ��`i;� ,� �,� i,�� '`��`�VC ��.; �n �� ! � L �'� \�\V� 1� I 1. � '�� . .,, ` � , ��' ' � /.�� \` `ry''-`-'�--- � ''..,3� �I , i�-"�:,.,. � 2� � � . Light rail , depending on the form it takes, could alter � the normal bus pattern substantially (Figure 1 .2-2). A light rail line would replace the bus lines or parts of bus lines serving that route. It could also cause adjust- � ments in the orientation of the remaining bus routes in its vicinity. For examp1e, when the LRT replaces the CBD-destined portions of these routes, the remaining peak- hour bus serv1ce might concentrate on feeding into the � LRT. Because of the potentia1 impact of LRT on bus service in St. Paul , MTC and the city should investigate some of the possible alternatives for transit service and � their effects. POLICY 1 .2-3: THE CITY WIL,L WORK I�JITH MTC AND THE METROPOLITAN COUNCIL � TO STUDY THE RELATIONSHIP OF BUS SERVICE TO POTENTIAL LRT SERVICE IN ST. PAUL. � FIGURE 1 .2-2 EFFECT 0F LIGHT RAIL TRANSIT ON BUS ROUTES (SCHEMATIC) � TO THE CBD � � � � � � � i �. 1 ! ' 1 1 1 1 � I 1 1 � ' . 1 � � (CR�SST�LJN �� ,a �� I �� I � � �, �� i�� — I � , , , � ' , � � ' , � � � - , , ; � - . � ONE MILE --�+ - LIGHT RAIL LINE (ALONG ARTERIAL STREET) � «..�� FORMER BUS ROUTE LOCAL STREET �� NEN BUS ROUTE COLLECTOR OR ARTERIAL STREET OLRT STOP � 2� 2.0 ACCESS WITHIN MAJOR ACTIVITY AREAS � . � � INTRODUCTION OBJECTIVE: TO FACILITATE THE CONVENIENT, SAFE AND ENERGY-EFFICIENT � MOVEMENT OF PEDESTRIANS AND VEHICLES THROUGH MAJOR ACTI- VITY CENTERS IN ST. PAUL. Transit service in St. Paul focuses on activity centers � to which 1arge numbers of people go. These activity centers are like miniature cities, each with its own system of internal circulation. Malfunctions in these � systems, especially in an area• as important as downtown St. Pau1 , can interfere with the quality of the overall circulation system. Poor internal circu1ation can also � discourage people from visiting an activity center; this can be devastating if it relies on visitors, as do retail - areas. The issues of automobile use and congestion within major � centers must, therefore, be addressed because of their effect on the efficiency of the transit system. Pedes- � train circulation needs to be considered; riders become pedestrians within the centers themselves. Although these issues are not directly related to transit service, they have significant impacts on the effectiveness and � a�tractiveness of transit. This is especially true in the CBD, but it is also important in other activity centers. � 2.1 ACCESS WITHIN Downtown St. Paul is the busiest area o t e city and is DOWNTOWN ST. PAUL a center of regional importance. It is a major employment � area, an important retail center, a significant government center, a regional cultural area, and home for about 2,600 people. Development is occurring at a rapid pace. Downtown is the transportation hub of the city; of the 40 � regular bus routes serving St. Paul , all but five pass through the CBD. Many facets of circulation in the CBD have been addressed � in separate documents--e.g. , the Downtown Development Plan and the Transportation Control Plan. Plans developed � for a Downtown People Mover (a 2.6 mile, automated fixed guideway transit system) considered all circulation ele- ments and integrated them into a unified system. Because the people mover will not be built,previous plans must be � re-evaluated. �Jew questions have been raised about park- ing, light rail transit, and deliveries. Private develop- ment decisions that will affect pedestrian and vehicular � circulation, for better or worse, are occurring. Without a relevant plan for dealing with circulation issues, the � 24 � � � . � city cannot positively influence private decisions but must accept their consequences, now and in the future. � Because the welfare of the city as a whole is affected by the welfare of the CBD, downtown circulation must be given careful attention. � What is needed is a comprehensive study of the components of downtown circulation to determine how they fit together and how t{iey can be made to work more effectively � and efficiently. These issues must be addressed irrrned- iately if the city is to be able to cope rationally with the development and activity occurring in the CBD. � POLICY 2.1-1 : THE CiTY WILL IMMEDIATELY STUDY CIRCULATION IN DOWNTOWN ST. PAUL APJD DEVELOP STRATEGIES FOR RESOLVING PROBLEMS iAND CREATING AN INTEGRATED CIRCULATION SYSTEM. There are six major components of downtown circulation: � - Street use and congestion, includinq buses; - Parking facilities; � - Pedestrian circulation, including skyways, sidewalks and the Seventh Place Mall ; - Shuttle bus service; - Delivery vehicles; and � - Potential impacts of light rail transit. � 2.1 .1 VEHICULAR CONGESTION AND PARKING Vehicuaar congestion in downtown St. Paul is caused by several factors: � - The large number of cars trying to move through narrow streets designed in the 19th century; - The large number of buses on certain streets, which stop � for passengers in the curb lane, interrupting the free flow of traffic; - On-street parking, which reduces street capacity and � interrupts the flow of traffic as cars pull in and out of spaces; - The large number of parking ramp driveways and drive-in bank facilities, where slow turning movements and � occasional back-ups hinder traffic flow; and - Delivery vehicles, which can occupy both sides of a street simultaneously, leaving only two moving lanes � (see Section 2.1 .4 below}. � � 25 � . � A.AUTOMOBILE TRAFFIC APJD PARKING � Counts of total daily traffic on downtown streets done during 1978-79 showed that Jackson, Wabasha and Robert � are the most heavi1y traveled north-south streets, while Fifth, Sixth and Eleventh are heavily traveled east-west streets. Jackson and Eleventh carry the bulk of the � traffic going to northbound I-35E. 6Jabasha and Robert, both having Mississippi River bridges, are the main links between downtown and the West Side. Fifth and Sixth Streets are the main east-west traffic carriers. Conges- � �ion is a problem on all these streets, partly caused by vehicles passing through downtown whose destination is elsewhere. As much as 40% of all CBD traffic is through � traffic. The Street and Highway Plan has proposed a CBD Ring Route that will allow vehicles not bound for the CBD to bypass � it. Part of this route would include �he uncompleted Pleasant Avenue Corridor, Chestnut Avenue and Kellogg Boulevard west of downtown St.Paul , and a CBD Bypass east � of downtown St. Paul . The Ring Route will relieve some of the congestion on downtown streets. Recent develop- ment, however, has increased the number of people and � yehicles headed for the CBD. In addition, one of the proposed alternative designs for the Pleasant Avenue Corridor would involve use of Eleventh and Twelfth Streets to move traffic to I-35E and I-94; these two streets are � already congested, and the traffic overflow could burden other streets as well . Secondary streets in the western part of the CBD are difficult to use because they lack a � rational , identifiable pattern. A partial solution to the problem of street congestion � might be the removal of on-street parking from major traffic carriers, especially during the peak periods (7-9 a.m. and 4-6 p.m. ). This action would free an extra lane through which traffic could move. To free short- � term spaces in off-street parking ramps, long-term (all- day) parkers could be relocated to fringe parking lots. This action �,►ould also keep more vehicles from entering � the core area, helping to reduce congestion. The city has begun to pursue this objective, by modifying the parking ra�e structure at several core area facilities, � and by providing some low-cost fringe parking and free shuttle service (Fiqure 2.1-1 ). � � 26 � � �' / � - � •r � •r � i� r' � U r �O N +-� LL r � N � � 7 � �•r---�� .Ql i-� t O � \ 1 � � (n •r �� Y N .� C L +� � � t0 +� � +� a tn O X � N (n W � � +� +�-� � � •r tn � � W L rt5 O O � � 'L W Z � N ' W )W.. O � Q � � Q O . � � '� QO O O -'� � I � W � O � � t� � J � 0 � � 1 � � � � O ` � OC O ` � � O � O O ♦ " N O �� - �� N Z 0 0 � , ¢ � ° �� N Q O Q a �--��-. � Q � O ' W Ol J I \ � a. / � � �� O \ � � � / ¢ � O � O � z � � a ,�-. b 'v �% O I.�i � d' N > �� ` � °' ° ° a , � � - � r �"'� � � � ) // N v � O V \ W ` / U ( � � O O Q �' (, j O � � l D \ � U � � l � �` � � � a o � � oa �a� D o a O o� - °� ¢D � � �� ao � a �D �^ a � � _v J � oaa � � o � o � � � � �� v � �v ❑ � a �❑ � � � -1 � N �� ° : � �I` n n �1 � 2� � . � A ma�or issue is whether to continue to allow a parking � ramp to accompany every major new development in the core area, or relocate all future parking to the fringe, or � some combination. Previous fringe parking plans assumed that the Downtown People Mover would take people into the core area. Without the People Mover, some other means � must be found, or the concept of fringe parking must be modified. There also remains the question of financing the fringe facilities. Rnother issue related to congestion and parking is prefer- � en�ial treatment of carpools and vanpools. Ridesharing is an important way to reduce congestion and additional � parking needs by reducing the number of vehicles entering downtown. One way to encourage people to participate in car and vanpools is to provide them with free, convenient parking. How the city might do this has not been deter- � mined. B.BUS CONGESTION � Bus congestion in downtown St. Paul is becoming a problem. MTC has estimated that its ridership will increase three to six percent annual1y in the next decade; 1980's 30 � million St. Paul riders wi11 become at least 37 million and could be 50 million to 1990. MTC's peak hour CBD- bound buses are a1ready overloaded: % of Seating � of Trips � Time Period Capacity Utilized Overloaded AM 7:00-7:30 97 46 � 7:30-8:00 100 46 8:00-8:30 84 25 � 8:30-9:00 71 15 PM 4:00-4:30 94 43 4:30-5:00 101 46 � 5:00-5:30 93 38 5:30-6:00 63 14 Some downtown streets are overcrowded with buses, espe- � cially Fifth and Sixth Streets (Figure 2.1-2). During the peak five-minute period of the evening rush hour, as � many as 21 buses may be present on Fifth between Cedar and Jackson. The buses stop frequently for passengers, making the right lane on most streets during the peak periods virtually useless. Due to tight quarters, bus � turning movements usually occupy more than one lane, further disrupting traffic flows. � 28 � � �, � � , , � 1 � � l. � - �, ' � 1 �� _.ey � , � �y��\� , � �' s�/�, . � 2- '�' � ` \� � Ol 6 .,(•.:.�f��. ,j�O�j Z `` �"' :' ,r''�::;:..d�':;:� :� � �6 �, / � y•:;:,,:o :.� �� . � 'f,J�'x�;��'r:� • o n •y`�•,•� yy;;�::�::' "F :,>j � � / J L� .� il��,2::'•::,, ;J� r , / 1 J .- � � : �� y O ¢ :�,�, ..rJ,...:::" `�o� � � :; � � � .::; ,.;:,;; ,P�,� �� •''rc'd.:.lCii:;�"' ...:::�:d�ll. � :�„�•;; :'t: ••i••,••,, ' � •••�� , �w� �•• ' ::�`:�..::i �•. .� � J . -:;;, ':'o�`� I b� :�l'�'�'�' .� 3 a ;,c�:••• � � ..��•� '•• • . 9l�� O �.::';'.•.•��:;.:,t . ;i6'•.' l.t' '��P�"�'�'��':•� / ;� :;��.• �:�;;.;. o•. � 3 ' : s;:�:S'.:;:'�;�.� �•::Y.: . � � :•�." "�: •• •• t�S.•;�•;•; O � �l �;; "•' J...•'. •• ,'::�;•.��: ' � ��.... .:s��.:b::::::::.�� .... o ..� . ��. :� :o�� ::.� : ::�:�:�:::��:::��::�::::� � .� : �:��:�::::�:::: . .� � �: ::��::�::.: .�.. � W _� .�,:f::::�: (':::::; •�`��P .. . ... ,r —M- .�' .o� ;.�.S�P;::`:::::. � • ��',•.s': :;� P . _ __ � . '�;�,' :�Q,C� . o �•-•" o, _..�l�.::i's�,.sa:..i.� ' � '�y�; . :.) . �s : �;:��,;.i �, .� �� ,p,�'',r:' � :.�'f+;.. �� . f1 � `r' ::.`o � s�, � .•: ''".� � .� . `Q�,..;;:. � ��' � �.::;: ' ::::: � m :;�s�;., ��:�'�'`•�� `y�t..:�'� ,.�(�.::� ��5�. :6��::::•• :;•1�9 ?d': U :.c� :�.� 1..,..1.'• � ��. •c� .,�1�: s :c��••. -- '�c� . l : � •'�l 1..:� . � 1..;::�•:: • �j•t � ! �•�A CJ �.(, •��• �� :'�v>� • .•'��156. � '��l��•••• eT�'11� i �ec,`� ' `�'s+tt.;.'Lp�'S,�6,;;;�, •..': r �` '�•13. • ..•7 :11: W .%� .5+� . .. , ��.�. •�✓#i;N,��.� . N d� �• `rc^..:;;::��'� ' �� •.r• ��y"y��;^:tY,.tt�!'�.� Z < �`� ��6r':i::sF ., ..,. o r �� w •��'L'�� rvi�%'t rn��L:1• N ..;::;: :� ',. „ , w � , N::�:��, ...�.. � ... :::�;� .��: � = c�,' :i�l►;::;:'�i: = E C� •S:��S�� .��t O r-+ �--a N'�' . l!' � �:CJ`•�tn:��•��•:��•• ,��: � � � •.d� li N: r •1�' �:��.••�:•.:�;::• 1 l ::.:.:� o�::,.::: ��:��::�:�:":�: C �� ^.: :;��`'!S.C''' . �� I `� s /\ _ / c� . ��1 �� /�\ \J \ J .�• V V \ � �'' Y � _ ( ' I T• .." ! 1 l G� � � ''• :�:. � �'�a `o �:� �. F s �� ''�''� ''��•� � �`�: :�. s� � E: ::::�:_:. � ��, _;}�t• -• -•�t'r'�r c? ( p � .� �`�� ! 6�� {� �o rn l��V`- ❑ IJ .�. �N � u+ �� a ' 1 . ¢ � >- �� r� ' �(w �'l.!' ��I J N . MI�� W � L'A Z � � N N N ^ I C ^� f 7 N N tA 2 � I� � � � ---� ��I �l .-, � � � �.�.� . � f� in r�� , � � �, . � � °' 29 � � One means of reducing this problem, which is being used � in other cities, is the implementation of exclusive transit lanes. Segregating bus and automobile traffic can allow the streets to handle more of both by enabling � their dtffering needs to be separated. MTC has estimated that the operational speed of buses traveling through downtown cou1d improve substantially, saving money and � energy and helping to decrease air pollution. The result- ing service improvement would also make public transpor- tation more attractive. � 2.1 .2 PEDESTRI N CIRCULATION Facilitating the movement of people within downtown � St. Paul is critica1 . A convenient, flexible and attrac- tive system of pedestrian circulation is as important as reducing vehicular congestion to a11ow people to move � freely within the CBD. Sidewalks are the most familiar means of pedestrian circu- lation. Most intersections in downtown St. Paul have � walk signals and painted crosswalks to improve pedestrian safety. For decades, sidewalks were the only way for pedestrians to get from one place to another. Many down- � town retail businesses front on these first-floor walkways. The cold, snowy winters in St. Paul make sidewalks impractical for a good part of the year, however. � The skyway system is an integrated network of second-floor enc1osed walkways connecting downtown buildings. These walkways provide convenient, year-round pedestrian access � to many but not a11 of the major employment and activity centers (Figure 2.1-3). The skyways work well to accommo- date travel needs over relatively short distances, and � �hey afford a second-floor linear retail area in many locations. Many issues related to the sidewalks and skyways are still i unresolved. The skyway plan was designed around People Mover stations; the skyways were to be grouped in clusters radiating from the stations. This must be reconsidered. � The cjty must also determine where to extend and complete the skyway system, as well as the way in which the system should be financed, designed and managed. The relation- � ship of the skyways to the sidewalks must be examined-- i .e. , the city needs to know if it can support two levels of retail business, and if not, how the skyways can be � effective without driving first-floor retailers out of business. Facilitating movement between the first and second levels is also important. � 30 � � FIGURE 2.1-3 THE SKYWAY SYSTE!�9 � ��Existing ____ Programmed ______Possible Skyway Skyway Expans�on � 1. Willard Block 18. Civic Center.Area 2. St. Joseph's Hospital 19. St. Paul Hotel 3. Gallery Bldgs/Science Museum 20. �arriage Hill/Lowry Bldg/City Hall annex 4. Arts & Science Center 21. Northern Federal/Osborn Bldgs. � 5. North Wabasha Redev. Area 22. Northwestern Bank/Northwest Crossing 6. Capitol Square Bldg. 23. American National Bank 7. Parking Ramp (Possible redev.� 24. Block 40 (redevelopment) 8. Town Square/Radisson Plaza Hotel 25. Burlington Northern/Nalpak Bldgs. � 9. Woolworth's/Former ponaldson's (redev.� 26. Union Depot 10. Metro Square Bldg. 27. Block "L" (redevelopment) 11. Control Data 28. Federal Courts Bldg. 12. Park Square Court 29. Midwest/Endicott/Pioneer Bldgs. 1 13. Mears Park Place 30. First National Bank 14. Minnesota Mutual Life 31. Kellogg Square 15. Bremer Bldg. 32. Pioneer Press/Athletic Club 16. Dayton's 33. St. Paul Radisson Hotel � 17. Hamm Bldg/Waba�j ourt 34. City Hall J u �l l�j �1 �--� � J ,;•. '�r � TW L TH _ . � � � �/� CH � lr � 2 94 , � .• , SP� � H ST. -. _ �� i,'t l : O � • � � � ` � ,� , , f,�1L5:,�f. - -J - -� �'� ,% � i TN t` T \ L._i._-. O • . i � � � ' 2 � O ' ' � �o.�" ' ' I ,. I � � EXC NG� T. �� i j` � ST. � � , �-- - N` 'H T 1 �-�- � .. 1 � Q ' 1 , : ,`�J � EI TH , 5T Q : �''\ _ � ' 'O � -- %. � �_ __i � 9 i v� �l.i�, w.s.fir� - se P�ac� � � � ys'' yo _ 14 _ /3 !2 ; _ 11 g � L �� r �� " ��i ' lS t' 1 ST. I' CJ-� Y �� J . D AI ZZ 3 � � 7� O ' U PARKS � � v _ �i •�� 9`'f n ZI p i -� �9 � \ r � D � Fi ' sr. _ /9 � �` � �` To 32 � 29 ��_-; -- a -.-�. i v ,.�� 1 ' --' n '�' • FO TH 5 , � u� I N L__ � -- 3,1° -� -�'i 3/ i -- '� - --! .-yt � . � ` 27 + � � � KEII�GG ,lvp � � --- -- _ - �-- �_-� �' �'��:..wAf7;�,'�R � �� ' / � . � Seventh Street was closed to most traffic in 1978 between � St. Peter and Jackson Streets for use as a pedestrian mall . Occupying the block between Cedar and Minnesota at � the center of the Mall is the Town Square development. Seventh Place was made more attractive by adding land- scaping, some new pavement, and temporary wooden stanchions hung with banners. Current plans call for creation of � either an outdoor pedestrian plaza or an enclosed retail mall . Th� ultimate design of Seventh'Place is closely related , to decisions made with respect to the side►�alks and skyways. In addition, Seventh Place may be an effective � way to tie the northern part of downtown to the south and to stimulate additional deve1opment to the north. Immediately adjacent to Seventh Place, development deci- sions are proceeding at a rapid pace. There is an urgent � need to resolve the design of Seventh Place. 2.1 .3 SHUTTLE BUS SERVICE � MTC has designated downtown St. Paul as a Dime Zone. A person may ride any regular MTC bus between any two � points in the CBD area (Figure 2.1-2) for only 10�. While this service is available at all times, an indivi- dual who is unfamiliar with the bus system will not take advantage of this option. Headways on certain routes at � certain times are long and inconvenient. The city instituted the Super Shuttle to carry people between the operating fringe parking facilities and the �, core of the CBD (Figure 2.1-1 ) . Headv�ays are about four minutes on the Civic Center route, and 10-15 minutes on � the Mi11er route. The buses run primarily during the peak periods and provide limited access. Service to the Harriet/Navy Island and Lafayette parking facilities, to begin in 1981 , will increase the running times of the � vehicles unless more vehicles are added. Many proposals have been made concerning expansion and � operation of the shuttle system. The city has experimented with a lunchtime (11 :30-1 :30) shuttle from the Capitol area to Town Square and Dayton's, with some success. Financing for this venture came from a group of downtown � retailers. Most pronosals for an all-day shuttle serving parkinq, offices in the Capitol and core areas, stores, restaurants and activity centers involve the use of Cedar, � Minnesota and Fourth Streets. The proposals sugqest the conversion of Fourth Street to a transit mall . The exact nature of any shuttle system, however, is dependent on � the answers to questions raised about frinqe parking facilities, transit lanes and skyH�ays. 32 � � � . � 2.1 .4 GOODS DELIVERY Very little is known about deliveries in downtown St. Paul , � except that delivery trucks cause some traffic snags and air quality problems. The Police Department has indi- cated that some vehicles using truck 1oading zones do not � have legitimate business doing so. There is evidence that through truck traffic is a problem on certain streets. The subject needs thorouqh investigation. � � 2.1 .5 LIGHT RAIL TRANSIT LRT IPJ THE CBD The potentjal for the development of light rail transit � in St. Paul (see Section 1 .2) raises a whole series of questions. Foremost among them is whether LRT would come directly into downtown, or pass by it on the fringe. If � it remains on the fringe, there must be some way to aet large numbers of riders into the core quickly and conveniently. � If LRT enters the core of downtown, would it be at, above, or below grade? What streets would be used? Where would the stops be? What are the implications for fringe � facilities, skyv�ays, shuttle 6us service? What would the traffic impacts be? � These issues shou1d be investigated soon. Sound planning can help alleviate potential difficulties in the event ' that light rail transit becomes a reality. � 2.2 ACCESS WITHIN The downtown is the most active and complex area in OTHER MAJOR CENTERS St. Pau1 . Consideration of the circulation needs of other � major activity centers is warranted as well , however, sTnce many of the same types of problems are present. The issues related to the smaller centers will require � varying solutions depending on the types of activities taking place at each center, the level of acticity, and the size of the center. � 2.2.1 ACCESS I�JITHIN MAJOR RETAIL CLUSTERS St. Paul 's Land Use P1an has identified six major retail � clusters as target areas for intensified, mixed-use development (Figure 2.2-1 ) . These clusters already con- taln large quantities of comnercial activity. The intent � of the Plan is to encourage construction of inedium-to- high density housing to provide additional support for the existing establishments and to create enerc�y-efficient nodes of activity easily served by transit. � � 33 FIGURE 2.2-1 CLUSTER OPPORTUNITY AREAS � ��.::.,4 1 �.:.�� ..::. -�-�--- • :�f l�ll/'EMEW NE. ML IIO��F. #� { � �f,� � .��! . I � � � e <r� 1t �RLl10R7N A'E. E I i f¢ 1 !W � �.. E Nv NE � :� �S, 6 IaPW � � � YMEE . � � 2 1sy .e1 1 K� I Cp.O W IAI/111M0 1YE. �a ,IYE N�'• � . .A '� � _�� YL. ` iii � I � •�. � � `�o � a � � � `k :eti;i: /, , � ��, � � - � n �� d � � � � �' �0 '°"�. �,� . � � � 3 � E. ,.,s� . Wk.� � �n � r.�[w�w w[. n � E �wM 11 � ; N . „ PENI a E M 0[ � ; '� 5 � � � E � � � � :3 , � u.�,. � `:':y��: ~ � � � :l.•: �•w � �-~ - . _ •:: ��fii"' ��`� �� O W � ••N�� wF. r e11aa AE ,,\ 9EL6Y NE. . _ �O �p • ' � i �p i�1\ � $ /� /'E illY� �bT`� 'Mr� �q 4W �� !' 1 i I' 9lIMf NE. Cn ''�4 � /, 0.� � ` �� \` 1� \ ' yT � %' r 6 �i� % �`� �// �' 8 b �n' ,; _.u.,� ,� � �s � 1 •a � �� , y y�ii 8 ��'. tiFHBOM AE �—� � �.p' � � 5� � 4 � LONtP 14tCJ� � g" 4 j I i i RAfO0.M AlE � Y � l r � � 9r / � �j� � + ';� _ � � � _ _ � ; 9 ��p W � g �� I � �-�� ;1 �� ;: � ' 6� �i �ro� ncwr � ; ono_/ +�' �w a�s 3r i� � .n.�so�s . ._,_ , 0. •�JO: vuw. rt a � ��\ /! I;' ��`:�. ..�� A a EQ � 1 �, �`', %� •�g• ,� '\ ~� r',. .ar�r�ir w� A i� \`�� ` \ � �� p ` � � , �,� � �, � � � � NS I/I '1 "i'. \t.. � ; �, , � � , � '"�. , � ' ',�� (" � , V.! a, % ��,� '� r�n ! �+�° h'�/ �.% �'.`�:, i` � � q": /� �� ' � � , ,`,, �, � ' � �" � : `� \ � _ �-- � \ ��;�... � �—� �:�9� \R" "_ . " � ' 4�� n =�- � - ,� .� . .�,. i�i�,..� f�AJOR RETAIL CLUSTERS M � l . Hillcrest Shopping Center � 2. Phalen Shopping Center 3. Sun Ray Shopping Center 4. Roseville Center � � 5. Midway Shopping Center 6. Highland Shopping Center P�EW HOUSING/EMPLOYP1ENT CLUSTERS � 7. Chestnut-Eagle Street Area � 8. Harriet/Navy Islands 9. West 7th Street Tank Farm 10. Energy Park � � 34 � i 1 � � Most of the area in these centers is occupied by parking and automobile circulation space. Pedestrians and users � of transit were clearly secondary concerns ,of the developers of these retail centers; their primary consi- deration was attracting shoppers in automobiles, and so � they provided convenient parkin� and very little else. This orientation to the automobile has resulted in some unfortunate consequences. Once shoppers leave their auto- , mobiles, they are forced to Weave among parked and moving cars. Covered walkways adjacent to bui1dings afford 1ittle protection from winter weather. Shoppers often � feel compel�ed to get back into their cars to go from one group of stores to another, wasting gasoline. Bus stops, when they exist, are on the peripheries of the centers, � making it necessary for people to cross great expanses of parking lot to reach the stores. Partly because of these inconveniences, many consumers no longer patronize the St. Paul retail centers , but go to suburban malls. � � There, bus stops are located near the entrances , and once the drivers have escaped the parking lot, they can shop in comfort. � Many things can be done to make pedestrian circulation in the ma�or retail clusters more safe, convenient and � pleasant. Parking lots can have pedestrian crosswalks. tJalkways can be enclosed. New structures can be built with protected walkways connected to existing buildings. Heavily traveled bus routes can be brought into centers; � the new stops can be supplied with shelters. Study of each of the six clusters is part of the process � of implementing the Land Use Plan. Each area has dis- tinct characteristics that will require individual treat- ment. Pedestrian amenities must be a major consideration � in these centers. Incorporating such amenities into their desi�n will enhance market values, improve business and reduce energy consumption. � POLICY 2.2-1 : THE CITY 'WILL MAKE PEDESTRIAN CIRCULATION AND TRANSIT APIENITIES MAJOR CONSIDERATIONS IN THE DESIGN AND EVOLU- � TION OF ITS MAJOR RETAIL CLUSTERS (FIGURE 2.2-1 ). � � � 35 � . � 2.2.2 ACCESS PJITHIN OTHER ACTIVITY AREAS � Access and circulation considerations are important in another group of hhgh intensity mixed-use areas, the new � employment/housing clusters identified in the Land Use Plan (Figure 2.2-1 ). The principal uses in these clusters will be medium to high density housing and labor-inten- � sive light industry. Each cluster wi11 be planned as a whole; internal circulation shou1d be an important consideration in each. In addition to a convenient and pleasant s,ystem for � pedestrian circulation, a vehicular circulation system may also 6e advisable, especially in the larger cluster � areas like Energy Park . A shuttle system circulating through the development could serve the dual purposes of internal circulation and col1ecting riders to feed into � the regular bus system, Such a system would a1so help to reduce the energy use fin the new developments. PQLICY 2,2-2: � THE CITY I�dILL GIVE THOROUGH CONSIDERATION TO THE ISSUES QF INTERNAL CIRCULATION SYSTEMS, BOTH FEDESTRIAN AND TRANSIT, IN THE PLANNING AND DESIGN OF NE4J DEVELOPMENT/ , HOUSING CLUSTER DEVELOPMENTS (FIGURE 2.2-1 ). � � � � � � . , � 36 � � 3.0 TRANSIT FOR SPECIAL POPULATIONS � � INTRODUCTION OBJECTIVE: � TO ENSURE THAT THE TRANSPORTATION PJEEDS OF TRANSIT- DEPENDENT PERSONS LIVING IN ST. PAUL ARE ADEQUATELY MET. Even after achievement of broad transit objectives-- � providing a high degree of mobility and access for city residents--consideration must be given to those segments of the population with special transportation problems. � People in these groups are commonly referred to as transit-dependent--that is, they rely heavily on public transit for their transportation. Their reliance stems � from the fact that they cannot use private automobiles, due to limited personal mobility, cost, age, or some combination. � The transit-dependent population consists of three groups. The handicap�ed, also known as "limited mobi1ity" persons, must rely on transit due to disabilities that prevent � them from driving. Although physical and mental handicaps are often accompanied by low incomes due to job discrimi- nation or inability to work, cost is not the major problem. � In fact, there is substantial demand from handicapped individuals for peak-hour, work-related transportation. The elderly also frequently have personal mobility problems , � such as reduced eyesight or the need for a walking aid. In this respect, many transportation problems experienced by the elderly are similar to those of the handicapped. � Senior cftizens face the additional 6urden of cost, how- ever. Fixed Tncomes ravaged by inflation cover fewer and fewer expenses; the private car must often be given up � because the costs of maintaining it 6ecome prohibitive. The elderly person must thereafter rely on rides from relatives and friends, or turn to public transport. � Persons with low incomes, regardless of aae, are usually dependent on transit. Ownership of an automobile can be burdensome. Frequently, the housing that low-income � families can afford is not located near the jobs available to them so that a car may be necessary. The young, especially highly mobile adolescents, have the further disadvantage of being unable to drive or of having no � access to a car. Adequate bus service can reduce the need for cars if it can qet people where they need and want to go. � � � 37 � . � � � 3.1 TRANSIT FOR THE NANDI- Transit for individuals with limited mo6ility is better CAPPED AND THE ELDERLY in the Twin Cities than in most other areas of the � country. This is due in large part to the efforts of the Metropolitan Transit Commission (MTC) and the Minnesota Department of Transportation (MnDOT). The efforts of other groups, particularly non-profit service orqaniza- � tions, have contributed as well . The 1980s will see some major changes in the provision of transportation to the - � elderly and handicapped because of federal regulations; � the impacts of these changes Cannot yet be fully estimated. 3.1 .1 METRO MOBILITY � P1etro Mobility is a demand-responsive service jointly sponsored by P1TC and MnDOT. The purpose of this regional service is to provide transportation to anyone who cannot � use or has great difficulty using reqular bus service due to some disabi1ity. An individual wishing to take advan- tage of the service must file a 6rief application explain- ing his/her disability. As of October 1980, more than � 14,000 people were certif9ed to use the service; of these about 29% use a wheelchair, 39% use some other type of � mobi1ity aid (cane, walker, crutches), and the remaining 31% use no aid. The Metro Mobility Transportation Center (MMTC), located � in St. Paul and operated by MTC, coordinates the services provided through the three components of Metro Mobility. The first component is MTC's Project Mobility, providing � 29 wheelchair lift-equipped paratransit vehicles and several small non-accessible buses that serve St. Paul , Minneapolis and parts of several suburbs. The second � component is a shared-ride taxi program, coordinated through MMTC, which operates only in Minneapolis; the taxi serves handicapped persons able to get into and out of an automobjle with minimal assistance. The third � component consists of four wheelchair-accessible para- transit vehicles serving certain suburbs, operated by a non-profit provider. � To use the Metro Flobility service, certified individuals must call the MMTC at least two hours in advance of the requested pick-up time. They may also place a standinq � order for service at the same time and day of the week. Trips are not denied or ranked according to purpose-- i .e. , social trips are no less important than trips to a � doctor. The type of vehicle dispatched depends on the disability of the ca1ler, as well as his/her origin and destination. The fare is 50Q one way for the handicapped � 38 � � � . � person, plus 50Q for the first companion, plus $1 .00 for , each individual companion. The drTVer will stop in front of the door, assist the individual in reaching the vehic1e--even in winter, if the walkway and steps are free of snow and ice--and he1p the person into the � vehic1e. Service hours are 6 a.m. to 1 a.m. on weekdays, 8 a.m. to 1 a.m. on weekends. � Demand for the service is great. During 1980 Proiect Mobility (MTC)_ vehicles prov�ded 163,100 trips regionwide, toclether with •178,280 taxi trips, and 31 ,370 trips provided � by private participants, for a total of about 372,750 trips. This was twice the number handled in 1979. The average monthly number of trips carried has increased dramatically also, from 6,500 trips in January 1979 to � 24,300 in December 1979. In 1980, the average increased to about 32,000 trips monthly; 4% of incoming requests had to be turned down due to lack of space. � POLICY 3.1-1 : THE CITY EPdCOURAGES THE SPONSORS OF P1ETR0 MOBILITY TO CONTINUE TO PROVIDE THE HIGH LEVEL AND QUALITY OF SERVICE , THAT THEY HAVE PROVIDED IN THE PAST. Pletro Mobility service in St. Paul has not been as good � as that in the remainder of the service area. Metro ��lobility was expanded into St. Paul in July 1979. Rider- ship figures indicate that use of the service in St. Paul � has remalned re1attve�y stable at 5,400-5,600 trips per month. An averaqe of 325 trips per month were denied because of space limitations; this 5.5% denial rate is much higher than the Minneapolis rate of 2.8%. This is � due largely to the lack of a shared-ride taxi component in St. Paul . � The introduction of a shared-ride taxi proqram would greatly improve service in St. Paul . In 1980, taxis carried 50% of all Metro Mobility trips. Because the , taxi service is available only in Minneapolis, taxis carried a much higher proportion of rides in that city. The taxi service was, therefore, able to take a large burden off MTC's vehicles. This allowed a qreater number of � requests to be met in Minneapolis than in St. Paul . POLICY 3.1-2: , THE CITY WILL WORK WITH MnDOT APJD THE TAXICAB OPERATORS IN ST. PAUL TO DEVELOP A SHARED-RIDE TAXI COMPONEPJT OF METRO MOBILITY FOR ST. PAUL, TO IMPROVE SERVICE DELIVERY � TO ELIGIBLE RESIDENTS. SHOULD THIS PROVE TO BE INFEASIBLE, THE CITY WILL ENCOURAGE MTC TO ADD VEHICLES TO ITS FLEET IN ST. PAUL TO ENSURE THAT THE TRIP DENIAL RATE IN ST. PAUL IS EQUIVALENT TO THE RATE IN MINNEAPOLIS. � 39 � . � � 3.1 .2 OTHER TRANSPORTATION SERVICES Transportation services are provided by a variety of � social service agencies in Ramsey County. Although not formally a part of Metro h1obility, these agencies frequently cooperate and coordinate with Metro Mobility. The agencies also provide many other kinds of support * besides transportation, thereby complementing transporta- ■ tion services provided by others. The majority of the social service agencies concentrate � on providing transportation to elderly persons with some mobility limitations, although a few do provide transpor- tation for younqer handicapped people. In general , trans- � portation is offered on1y as a supplement to other agency activities and hence trips are 1imited in destination. Social service agencies usually have some type of eligi- � bility criteria, such as age, location or income,and trips are often accepted or denied based on purpose. Most of the agencies' staffs consist of unpaid volunteers, usually � using their own vehicles; the remainder are paid drivers using agency vehicles. It has been estimated that the social service agencies in � St. Paul provide at least as many rides per month as Metro Mobility does. Therefore, although the transporta- tion services provided by these agencies are somewhat � limited, they are an essential supplement to public transit services. Without them, Metro Mobility would be signiffcantly overburdened. � POLICY 3.1-3: THE CITY SUPPORTS THE EFFORTS OF SOCIAL SERVICE AGENCIES IN RAMSEY COUNTY TO PROVIDE TRANSPORTATION SERVICES TO � PERSONS OF LIMITED MOBILITY LIVING IN ST. PAUL. 3.1 .3 CHANGES EXPECTED IN THE 1980S � In 1973, Congress passed the Rehabilitation Act, which requires that agencies receiving federal funds for their � activities provide "program accessibiljty" to handicapped persons within ten years. This section of the act, known as Section 504, has led to a variety of activities designed ��to provide accessibility to the handicapped, including � mainstreaming handicapped children in public schools and sidewalk ramp construction programs . � � 40 � r � � � In 1979, the U.S. Department of Transportation published , regu1ations under Section 504 for federally funded transit aqencies. The regulations require that 50% of the buses operated 6y each agency during the peak period be handi- capped-accessible; during the off-peak periods accessible � buses must be used before non-accessib1e buses. If this leve1 of regular-route accessibility cannot be provided by 1982, interim accessible service that is comparable , to mainline transit service must be provided. MTC has developed a plan to make 78% of its entire bus � fleet handicapped-accessible by 1989. The primary element of this plan is replacement of its o1d, non-accessible buses with new, accessible buses through jts �egular replacement program. The new buses wi19 be assigned to � routes according to a priortty system so that major routes, areas and faci�ities used heavi1y by the handi- capped will be served, and regular service wi11 be � coordinated with services provided by Metro Mobility. . h1TC's bus replacement program is contingent on an adequate level of federal financing. ' In the interim, MTC wi11 expand the Metro Mobility program into suburban Ramsey County �nd ahout half of suDurban Hennepin County. It will implement a bus driver traininc� � program to improve driver sensitivity to and ability to deal with the specia1 needs of the elderly and handicapped. MTC will also encourage enforcement of snow removal � regu1ations affecting bus stops and shelters, and encour- age private owners of park-and-ride lots to provide parking for handicapped persons. � Although it is fairly clear that accessible, regular-route service, proper1y implemented, will decrease the need for Metro Mobility service, the extent to which such service � may be curtailed is not known. The need for door-to-door service will remain for non-ambulatory individuals; the need will be much broader during Minnesota's severe � winters, which can easily make persons of limited mobility non-mobile. Those concerned with the provision of adequate transit service must keep informed about linger- ing and developing problems as MTC's Section 504 compli- � ance program proceeds. POLICY 3.1-4: , THE CITY WILL 4JORK WITH MTC TO IDENTIFY: (1 ) LOCATIONS IN ST. PAUL TO WHICH ACCESSIBLE REGULAR-ROUTE BUS SERVICE SHOULD BE TARGETED 4JHEN AVAILABLE; AND (2) UNMET AND � UNDERMET SERVICE NEEDS IN ST. PAUL THAT MAY RESULT FROM CONVERSION FROM METRO MOBILITY TO SOP1E COMBIPJATION OF MAINLINE AND PARATRANSIT SERVICE. � 41 � FIGUR� 3.2-1 DISTRIBUTION OF POPULATION BY INCOME (1978) AND CENSUS TRACT � � �:;;:: ----- - .;..�::•::::;: �'a��'.. �:��::�:�:� •:�A .'�:� , ,}�.- 307.01 30Z02 y :•::•��"• �:��. 3� ••I. :�. �:�'. 'ti� �•��•�• ;:,:�:3j.•: ;:�.�:::::;::: �� ::�;�:��:::::: ---:.:�.... ::�: � . :::�:�� ':;::::::: ::;:: :�•�i�A�?'�� :::��;:: . ....:•... ;:�;:;: '�::'3�3::�:�::� - � �?:��'' :�:�' :;::�::.: ��;' :�:3�!?�:'��:.: :;;ga;%�:��:�:;:: :;�jj��:ti �:•:::•:�:�:::�:•:�:•::r�':�::�:•:�'::�::':�':�:•:•:� � ; �:;;.�:•::.. 348 •::::',,�,,:�. •.r•::}::;:��,�•,'�� _- ___--- :.�. }�_W� :v,�•,3,�•,:�::'�::�::::�:'�: '�''•'•� ...,, � �'},'�.,9:�:• �.•.� �� :•�f.�'.:: '::.'�:;�:: . :�:::,'�,�5,f;::�:;:;•::•:: �' ;;:3�:":•.: � •.' • I � � ss2 _'��f:��;��i'�;:��:'� � . sss � ::•:•::•: : �;�� `:,��::�::� 374 � I :�:•:ti:��:' :;{:•;;�� - �:��:�'�'�.�.'�..'2:��...::7 G:::�:;:fi:, . � �;►;�:::::•.:. �'---I � F:•: :;:y \\ '� �� \�� 3�5 ; �.;:,';a�r:::;.:a � � � ' .4::;::;;�::::::;� (1970 CENSUS TRACTS) �� 1r , � � � : ..� . ,�, �.� � ;:r::�'•::; , , ,!, I , � s�s.o, ::::�''''/ `\, '�,> ; 1 ��' � , �\ .. � �_ � :� ^�:.,� ,. ., _ � , Median Income Less than 80% of Median Income in Region � Median Income at Least 80�, But ,,,,,,,,,,,,,, Less Than 100% of Median Income in Region � � 42 � � � � -INCOME Transit needs of low-income househo s an oun 3.2 TRANSIT FOR LOW y g people HOUSEHOLDS AND THE YOUNG are an important public �ssue. Because these two groups � are highly reliant on pub�ic transit, service must be provided in such a way that it is accessible to them. Service modifications should be responsive to their needs. � This is especially important in St. Paul , where median family income is lower than that of the region as a whole. � In general , service to areas containing large numbers of low-income househo1ds and lar.ge numbers of young people (Figures 3.2-1 and 3.2-2) is crucial . Certain small areas of the city, particularly in District 2 between its � western boundary and l�Jhite Bear Avenue, could be better served using this criterion. Changes in service occur with great frequen�y, however, and the needs of the � younq and poor must be constantly kept in mind when changes are made. � POLICY 3.2-1 : THE CITY WILL CONTINUE TO LJORK I�IITH MTC IN REVIEWING PROPOSED TRANSIT SERVICE MODIFICATIONS TO ENSURE THAT TNE NEEDS OF LOW-INCOME AND YOUNG PEOPLE ARE CONSI�ERED � AND CONTINUE TO BE MORE THOROUGHLY MET. 1 1 � � 1 i 1 � � 43 I � FIGURE 3.2-2 DISTRIBUTION OF POPULATION AGED 5-17 (1975) BY CEPdSUS TRACT � � .'�:i;::;: � :�:�ii::��::: � ....;;. c.:�?o'�' �:::'�:4'��'� :::�::: 319 _ �:�::{�:;�.,.'�,.,}�}};C; ..�., .•�::.;�.�;:. 316 '. � � W I.4h:tiv�:•:::'•:;• 373 r:;�,�,,:•'.''"�i�_. 318.01 � � 320 321 324 � 4ry � ----� \� �� 322i 323 —- '" 331 ,,,�.=-- 326 � 327 •/;� "�., 332 �., , ' ' 325 : 330 � �— --L— -- - ,,,.,.,,., - ---�---� 328. I .._. -�----- � ,• � � �• 334 i 335 - 336 I 337 � q 348 �' 339 �0" 342 - :�:. 355 � � '�:� :�:�::;: �,._ 4 //,. ��"�r:�'� �� 356 358 �359 .. .. ::.�.�.,,�,¢,'.;: ,. . _i. ;:;�i:.::�: � �:�:�5�:':�:`::•. ,..�i, ` �'�'• � `� 360 � '�� 369 }i�:136i3% ;:�': 365 368 '� /� �:�:;:' ;:;��i;�;; ;, �:�'d:.;. ::�:: :�::::�::::� ::� .. :, ::..::::.:: � 1 ��.:::.:::::�:�:�:��:.� .�� ::::.�,::.: { .. ::e�:�'rfei'':�.��.:: : . . . r . . . '�:;v;::::;:;;f: ::;C;:;:;;:�:��:;{::�'::ti�:::�' :t•:.,,:. . . . ��'�'�"� 970 CENSUS TRACTS) ':3�:' :;�;: �:� �� ,.�.:��;'''�::;:�::��:: � ��;�: ��:: :�:::�::::�:�:�:�:�� :;.�y ..::�:��':::��::�::::��:�:d ��:::::::::::.. :: .::::::::•:•.. :�;s:o��: :;�' �:��:::�-r'v , .:...... :::::; ; �;:;� '�'''� 376.02 �� '"� ::� 'I/ � � �11 � "i:.�':i,,,, � � More Than 1 ,000 _........ .. 790-999 , '��j Less Than 790, But Represents High Percentage of Resident Population � � � 44 � � � . 4.0 INCENTIVES TO USE TRANSIT � INTRODUCTION OBJECTIVE: � TO PROMOTE AP�D ENCOURAGE THE WIDESPREAD USE OF TRANSIT FOR TRIPS OF ALL PURPOSES, TO REDUCE TRAFFIC CONGESTION AND INCREASE ENERGY EFFICIENCY IPJ ST. PAUL. � For many years, the major transit companies and author- ities in this country tried to get more people to ride transit, with 1ittle or no effect. Automobiles were too � economical and too convenient to use; riding the bus was a distant second choice. Pub�lic policy worked against the transit providers by promoting and funding roadway con- � struction, street widenings, and central city parking ramps. Transit companies often disinvested in their equipment, so service deteriorated. � All this has changed substantially in recent years. Wor1d petroleum shortages not only caused c�reat inconven- ience and concern, but they also caused the price of , gasoline to rise dramatically--between 1973 and 1980, over 80¢ per gallon, or 200%. Federal energy and trans- portation policies have undergone a transformation; no longer are gasoline price controls and expansion of the � federal highway system in vogue. What years of adver- tising by the transit companies could not accomplish is now being done by cost: people are driving less and � looking for ways to reduce their expenditures on energy. Although the energy situation has led to high demand for � smaller cars, it has also left many people seeking alter- natives to driving. This will be reinforced by a shift in highway planning and financing, away from increased capacity and toward maintenance and rehabilitation of , existing facilities, which will cause a gradual increase in congestion. There is now a tremendous opportunity to focus local public policy on incentives to use transit � and share rides. Many incentives that could be implemented have to be , provided by MTC--subsidized fares, favorable transfer policies, or free trial rides. Other "incentives" occur in the guise of improved service, like shorter headways, faster trips, and better information dbout routes. There � are also incentives which the city can provide or act as a catalyst for, such as non-MTC subsidies, employer proc�rams, and joint promotions. � , � 45 _ � � 4.1 SUBSIDIZED FARES It is the prerogative of MTC as the transit operator to � provide reduced fares to certain groups (e.g. , senior citizens) or in certain areas (e.g. , the downtown). � Subsidies may be provided by other organizations, however. In general , the pa�^ticipating organization, usually an employer, a large department store, or a group of � retailers, pays the normal cost of the fare but resells the riding privi1ege at a reduced cost. This is a common practice in downtown parking ramps and could be extended to transit. , � 4. 1 .1 RETAILER SUBSIDIES � Some of the stores in downtown St. Paul subsidize parking for their customers. The driver's parking voucher is va1idated by the department store at which he/she has � shopped; the first hour of parking might be free or half price. The owner of the ramp turns the validated tickets over to the store, which reimburses the cost of the free parkinq time given. � The same system can be set up for transit users. A shopper riding the bus to a department store, for example, � would get a bus "voucher" good for the cost of the return fare. Receipt of �he voucher may be contingent on some minimum dollar purchase, or it may be a courtesy for ' shopping at the store. Voucher use might be restricted � to non-peak hours to prevent abuse by comnuters and addi- tional overloading of peak-hour buses. The holder of the voucher would give it to the bus driver instead of paying � part of the fare. MTC would turn the vouchers over to the store for reimbursement. A similar program could be established by a group of retailers--for example, the � bus�nesses in Midway Center. Many shopping areas already provide free or subsidized parking. It will be increasingly in their interests to � provide some transit subsidy as well . From the standpoint of public policy, subsidizing parking without subsidizing transit ridership is not only bad enerqy policy, but it , raises some issues of equity--i .e. , showing favoritism to certain seqments of the population to the detriment of others, especially those who are least we11 off, the , transit-dependent groups. POLICY 4.1-1 ; THE CITY WILL WORK 4JITH THE MAJOR DEPARTMENT STORES AND � GROUPS OF RETAILERS IN ST. PAUL, AND t�ITC, TO DEVELOP AND IMPLEMENT RETAILER-SUBSIDIZED TRANSIT PROGRAMS SIMILAR TO EXISTING PARKING SUBSIDY PROGRAMS. , 46 � � � . � 4.1 .2 EMPLOYER SUBSIDIES Employer transit subsidies work somewhat differently than � retailer subsidies. Rather than subsidizing one ride at a time, employers can more easily subsidize monthly bus passes. An employer can purchase bus passes at the � regular monthly cost. The passes may then be sold to employees at reduced cost, or given to employees as a fringe benefit, like a free parking space. Bus passes , are relatively inexpensive benefits that are attractive to many workers. They also afford good publicity for the employer because supporting transit is in the public interest. � POLICY 4.1-2: THE CITY tdILL WORK WITH EMPLOYERS IN ST. PAUL AND WITH � MTC TO ENCOURAGE, DEVELOP AND IMPLEMENT EMPLOYEE TRANSIT SUBSIDY PROGRAMS. � . E PLOYER PROGRAP�S or many people, the trip to work is t e trip most easi y taken by transit. Since it ?s also the trip made most frequently, it can generate the greatest cost and energy � savings as we11 . Trips roade by transit instead of by private car help to reduce peak-hour traffic congestion and parking needs. Employers can be instrumental in ' encouraging workers to use transit. Provision of sub- sidized bus passes is but one of several programs to accomplish this. � One of the main problems for some people with riding the bus is timing. Some workers might ride the bus except that they would get to work either 15 minutes early or � 15 minutes late. p, similar problem occurs when a bus that would get them to work on time is overcrowded; the bus before or after may be half empty. A simple way to solve � this problem is to move to a flextime system. A "core" time is �stablished, during which all employees must be at work--for example, 9:30 to 3:00. Beyond this, each employee may come in and leave when it is most convenient, � as long as he/she works a full day. In this way, bus schedules and personal schedules can be accommodated. This tends to distribute traffic more evenly throughout � the peak period, reducing traffic congestion and bus overcrowding. � POLICY 4.2-1 : THE CITY WILL ENCOURAGE EMPLOYERS IN ST. PAUL TO ADOPT FLEXIBLE WORK SCHEDULES TO ALLOW WORKERS TO FIT THEIR LJORK HOURS TO BUS SCHEDULING, IF DESIRED. � , 47 ! � . � � Employers can also establish a variety of programs to encourage workers to find ways of getting to work other , than driving themselves. These programs involve the use of paratransit. One such program is merely to match people for carpools. Even in sma11 orqanizations, people frequently do not know that others live near them. An � official program to encourage peoole to ride together takes litt1e adminis�rative effort and is often the catalyst for people to carpool . � For some employers, a vanpool program may be appropriate, esoecially jf their workers are clustered in certain � areas. This type of program arranges for nine to 15 people, living in the same area and going to the same workplace at similar times, to ride together in a van, simi1ar to those used by airport limousine services. The adminis- � trative work involved can be minimal , since MTC and MnDOT are willing to coordinate vanpooling efforts through the Minnesota Rideshare program. � A similar type of program, subscription bus service, can be established by an employer or group of employers. In � this program, the employer supplies a bus, Nihich provides door-to-door service to and from work for subscribers, The riders may each pay for part of the cost of the service, or the employer(s} may bear the cost. , POLICY 4.2-2: THE CITY WILL ENCOURAGE EP�PLOYERS IN ST. PAUL TO IMPLE- � MENT RIDE-SHARZNG PROGRAMS FOR THEIR EMPLOYEES. One important thing the city can do to encourage carpool- ' ing and vanpooling is to provide convenient parking for pool vehicles downtown. This policy gives poolers the added benefit of being close to their workplaces. An additional incentive might be the provision of vanpool , loading zones during the peak period. POLICY 4.2-3: � THE CITY WILL PROVIDE PARKING AND LOADING INCENTIVES FOR CARPOOLS AND VANPOOLS. ' � � 48 , � . � i 4.3 JOINT �ROMOTIONS romoti�nal eff�rts aimed at rub1iciz�ng t e enefits of transit ridership and the availability of transit service , can be highly effective in encouraqing use. Some people are ignorant about public transportation, while others have misconceptions about it. Promotional pro�rams often , enduce people to try transit or to use it in a different way or for a different purpose. Frequently, once the barrier to ridership has been broken, use of transit , becomes highly attractive. Other cities that have sponsored transit promotions �have reported significant gains in ridership. , Promotions may take a variety of forms. Some programs, such as free or inexpensive bus service in the downtown area, need to run over a fairly long period to encourage � use. Others, such as a Gasolineless Day program, function better as a one-day b1itz with a tremendous publicity build-up beforehand. Widespread advertising is essential if any promotion is to achieve the desired effect. , One romotion that would benefit St. Paul would be a series p of "Qowntown Days", Saturdays on which buses leaving down- , town wou1d be free to patrons holding vouchers of some sort from downtown businesses or attractions. Special events could be scheduled to attract broader participa- ' tion. This promotion would serve two purposes: drawing people to downtown for exploration, and encouraging them to take the bus instead of driving. � Another promotion that would be in keeping with city policy would be a "Gasolineless Day". This would be a weekday event designed to encourage people not to drive. ' It could involve closing downtown streets to automobile traffic, half-fare bus rides, and a bicycle promotion. This program would have to be developed in close coopera- , tion with MTC, to avoid creating severe bus service problems. � POLICY 4.3-1 : THE CITY WILL INVESTIGATE AND IMPLEMENT, IN CONJUNCTION WITH MTC AND OTHER AFFECTED GROUPS AND ORGANIZATIONS, PROMOTIONAL PROGRAMS DESIGNED TO ENDUCE USE OF TRANSIT , IN ST. PAUL. ' , , 49 . � , ien e with the cost of aso1ine as shown, ' 4.4 REDUCING UNNECESSARY s recent exNer c 9 DRIVING efforts to increase the cost and decrease the convenience of driving a prjvate au�omo6ile are more likely to have � a substantive effect now than in the past. Many drivers are beginninc� to consider alternative means of transpor- tation. Driving disincentives, 1ike transit incentives, � can hasten changes in travel habits. A major incentive �o the use of a car is provision of free � parking. This factor has had• much to do with the supre- macy of the suburban shopping center and office park. For many employers, especially those in central locations considering moving out of the city, free parking is still , considered essential in attracting employees. Although major downtown employers in virtually every city in the country have proven that this is not a law, the belief � persists. Especia1ly in downtown, St. Paul should dis- courage provision of free employee parking wherever it can and especially when no subsidies for transit are provided. The revised orientation of federal highway policy will � eventually create driving disincentives. Formerly, major highways and thoroughfares were to be designed to handle � maximum, peak-period traffic f1ow. Now, highways are to �e desiqned for off-peak traffic only; peak-period travelers can expect worsening congestion unless substan- , tial numbers of people turn to other alternatives. The modification of federal transportation policy may make preferentia1 access for transit vehicles essential , � allowing them to provide efficient service despite the congestion. One ou�Ccome of this situation could be that transit becomes significantly faster than driving and , reduces �he aggrayat�on associated with congested road- ways. There may a1so be appropriate local policies and activities to encourage peop1e to drive less, ranc�ing � from parking policies to energy conservation programs. POLICY 4.4-1 : THE CITY WILL INVESTIGATE LOCAL POLICIES AND ACTIVITIES � THAT MIGHT ENCOURAGE RESIDENTS OF ST. PAUL TO REDUCE UNNECESSARY DRIVING. , ' , 50 ' , 5.0 IMPLEMENTATION , , This chapter of the Transit Plan indicates the activities � necessary to implement the recommendations. Continued monitoring of transit service in St. Paul and of the results of imp1ementing this plan will be necessary, so that the policies and recommendations can be adjusted to ' changing conditions in the future. This process is an essential part of p1an implementation. However, the first step is to identify what is to be done and who will ' be responsible. , 5.1 IMPLEMENTATION ACTIUITIES Implementation activities described in this plan fall into four broad groups: Intergovernmental Cooperation, Studies and Plans, Regulations and Enforcement, and Actions and Programs. ' 5.1 .1 INTERGOV RNMENTAL COOPERATION , Because of the nature of transit service in the Twin Cities, the most important city activity will involve maintaining good working relationships with metropolitan , transportation agencies. This is especially true with the Metropolitan Transit Commission, but also applies to the Metropolitan Council and the Minnesota Department of Transportation. This is the only way in which St. Paul , can ensure that its concerns are heard and potentially addressed. � Activities included under this heading include: - Improving bus service by implementing Route Ridership Improvement Project recommendations, route realignments , ' adequate route information, and necessary shelters. - Investigating skip-stop service, service to new develop- ' ments, on-street parking problems, preferential access for transit vehicles , locations of pulse points, the effect of light rail transit on bus routes, a shared- , ride taxi component in Metro Mobility, and potential problems in MTC's Section 504 compliance program. - Encouraging consideration of light rail corridors in ' St. Paul , the continuation of high-quality Metro Mobility service to the elderly and handicapped, consideration of the trans�t needs of St. Paul 's 1ow-income and young , residents, and development of transit incentive programs. ' , 51 ' , ' 5.1 .2 STUDIES AND PLANS , The most important city study recorr�nended in the plan is � the study regarding circulation in downtown St. Paul . Another recommended study relates to the feasibility of neighborhood circu1atjon systems. The plan also corixnits the city to incorporat�ng transit and other circulation ' considerations into pro3ect plannin of all major cluster opportunity areas (see Figure 2.2-1�. Two further studjes necessari1y precede actions to be ' taken by the city. These relate to �ransit promotional programs, and policies and programs to encourage St. Paul , residents to reduce unnecessary driving. 5.1 .3 REGULATION AND EMFORCEMENT , The plan recommends amending the city zoning ordinance to include certain requirements for transit amenities in all major new developments. fit also recornmends viqorous , enforcement of the sidewalk snow removal ordinance. . , IONS D PR GRAMS ' City ac�ions recommended in the plan include improving the timing of sequential traffic signals, and implementing street improvements recommended by MTC where and when � feasible. The plan recomnends that the city encourage employers in St. Paul to institute flextime and employee ride-sharing programs, and that the city provide incen- � tives for those who do share rides. 5.2 AGENCY RESPONSIBILITIES In most instances, the city's Department of Planning and , Economic Development, and in partjcular its Planning and Development Divisions, will take the lead responsibility in most transit matters. The Mayor's Office, with its , wide-ranging influence, will also play an important role. However, there are three specific instances where the Public Works Department wi11 take the lead: ' - In discussions with the State Department of Transpor- tation; - In a11 actions related to streets (Streets Division); ' and - In all actions related to traffic signals and other traffic controls (Traffic and Lighting Division). , . ' 52 ' _ _ . __ __ _ __. . ..__ . .. _.. .s. .._..__. .�....__..._..�. _ __...�_, �..>� ,.,...�;, � �n� �� . �;. C�TY o�+' �.�1�zv� JP.A.vL - `,.x- . P '� ' {,•� �j `��};..� OF�+�TC� OI+` TH�: CI�Y" COTI'\iTLA� #'.` �}��j�.>y '��a. ' i�� ; � Ntst�•��i�.�•� ��:. . Y.�_ �7M!�sa['._'.r•! !�- �`i.. ��• -- ,�� Do t e : February 26, 1981 , r:�. ��_` -`.T_ �. � � �� . T0 : Saint Pdu! Ci�� Cauncil � F�OM � COCrttRit7Te'@ Qil CITY DEVELOPMENT AiJD TRANSPORTATIQN � Leonard �rl. Levine , chairman, makes the foi lowing - . report' or� C.F. � Ordir:�nce . � [� Resolution � � � Other . � ��.� : Transit Plan • � . � The Committee recommends approval of this .- � chapter of the Conprehensive Plan. . - � " � � � � : :� . _ - CI'I'Y HALI� . _ SEVEN'I� FLOOR • _ - SAINT PAUL. ,�tI�i�iFSOT�► �5102 . — __.,, r_ _