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269869 WHITE - CITV CLERK � - � PINK - - FINANCE COUIiC1I �� CANARY - DEPARTMENT� � C I T OF SA I NT PAiT L 1 � BLUE - MAYOR . Flle NO. �cil Resolution Presented By Referred To Committee: Date Out of Committee By Date WHEREAS, Pursuant to Minnesota Statutes 1974, Section 462. 353, a municipality may carry on comprehensive municipal planning activities for guiding the future development and improvement of the municipality; and WHEREAS, Pursuant to l�tinnesota Statutes 1974, Section 462. 355 , the City Council may adopt and amend a comprehensive plan or portion _ thereof after recommendation by the Planning .Commission; and WHEREAS, The Planning Commission has adopted and recommended adoption by the City Council of a plan entitled "Transportation Control Plan" , (a copy of which is attached hereto as Exhibit A) as a portion of the comprehensive plan; and � WHEREAS, The following action by the City Council to adopt this "Transportation Control Plan" in no manner evidences an intent to adopt the Comprehensive Plan of 1963 or other portions thereof as recommended by the Planning Commission; now, therefore, be it RESOLVED, That the City Council adopts the plan entitled "Transportation Control Plan" as an amendment to the comprehensive plan, subject to approval by the Metropolitan Council. COUNCILMEN Requested by Department of: Yeas Nays � Butler ,��, [n Favor Hunt � Levine __ Against BY Roedler . Sylvester Tedesco � �g�7 �CT Form Approved by City Attorney Adopted by Council: Date Certified P s d y Cou cil S tar BY � � By, Approved by a ` Date � Approved by Mayor for Submission to Council gy By �uBt�ISHEO_ 0�T 15 1977 _ _ _ _ - _ �T'I CLERK rq,., 7¢ 7T COlIRCIl �� ' ��EPAaTti1cN T C �� j �Yl wJ� � ��'! 1. 1�21 v � Fite /V O. - M?.Y J Ff � . . `� �'�� -�� 're�ented B;,� - — Re��rred To � Cornm�itte�: Date OuT of Corlmittee By — Date W�R�S, Pursuant to MinnPsota Statutes 1974, Section 462.353, a municipality may carry on comprehensive municipal planning activities for guiding the future development and improveme�t of the municipality; and WHEREAS, Pursuant to Minnesota Statutes 197�, Section 462. 355, the City Council may adopt and amend a compreh�nsive plan or port.ion thereof after Yecommendation by the Planning Commission; and YJrLREAS, The Planning Commission i-�.as adopted`+�d�re�co��,� g� ado tion b t,�e Ci��.y Council of a plan entitled �«_ coN7- L,,.. Pc N , " �a i copy of which is attached 'n�reto as Exhibit A) as a portion o� the co��prehensive plan; and -__ � �/ �' j��,, Th� following action by the City Council to adopt this � `� TI�'A�tls or��T7�M '!G� TY�r".G, �L ` !�i '" ` , in no manner evidences an intent to adopt the Comprehensive Plan of 1963 or other portions thzreof as rec- commen3ed by �he Planning Co_mmission; now, therefore, be it Y��1FaA.+�f�-etL7'.r RGSOLVE�� Tha��he City Council. adopts tha plan entitled "�^ t�7 ON 4 �e. Twm�" as an amendment to the comprehensive plan, sub�ect to approval by the Metropolitan Council. CO(JNCII..'�1E:V Requested by D°pactment of: Yeas :�a5'S Butler In Fat•or Hozza Eiunt g Levine _ Against y -- -- -- Roedi,r S vlvesier - { T��=�� Form Approved by Ci.y Attorney ; � - � .r�nrvd bti Cou�cil: Date -- -- I —`------- - C��:;iEie:? Y.��ed by Cuuncit �ecreta:5' BY ` F� ------------- ---- ------ --- � ppproved by ;ttaycr for Subnission to Council ' " -� 1),�t e � _ _- ----------------------- ----- -------_ AE'r -o�ed ;r, ,��ct'o._ --..----------------------- P>�. ., i . , ... ,, , , , r, ;, .. . . . �-;. , . . . . . . . , .. , . �� . �,.,..,, �;. - . . �.� ,.. . � . . . . � � . . � � � . . ' .. ' ! ��m�� - . - . � � - } , ' � � . . ;'; . �+� ��.; � . �. .. .i _ � . • �. . � . . � .. . . . . � . � � _ . . . . � . . .. . . . .. � . . � . . . . . . �� . . .:� . . . �. � : .. . . . . . � � � . � � ' � . . . � . .. . . .. . �„: . . , . . .. , . . � . . . . �_ . � . . . ' � . . . . .. . .. .. . . ' . . ., � . . . .' . . � . �. � . � .'� , . . � . ' . ,. � . . . . . _ .. . ... . . . . . , . .1 . , j �ti '. . . . . . , . .. . . � r.. . . . . _ �. . ' . . � . . . . . . . . . � � . .. . 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ST. PAUL TRANSPORTATION CONTROL PLAN � � Adopted by the Planning Comnission of the City of Saint Paul as an amendment to the � � Comprehensive Plan, Mdy 13, 1977. Resolution 71-16 � 77-830-CPS-R77-16 �. � ■ , � , , � „� � ' ' ' ' ., , ,' ENVIRONMENTAL PLANNING ST. PAUL CITY PLANNING 421 WABASHA STREET . � ST. PAUL, MINNESOTA 55102 � � � � � ' � � i:e( . al��.u��j 4 . i 1 D o � � D 1 i - . TRANSPORTATION CONTROL PLAN �TCP� �� , ' pRpgL.EN1 A I R POLLUT I ON I N DOWNTOYJ�I ST� PAUL a t t i me s exc ee d s s t a n d a r d s s e t f o r p r o t e c t i o n o f h uman heaith and welfare. Carbon monoxide, especially, reaches levels in violation ' of Minnesota and Federal air quality standards. SOLUTI�VS � THREE OF SIX POTEM'IAL STRATEGIES FOR ATfACKING this � problem will together lower carbon monoxide emissions to acceptable leveis within the �hortest time: -Increase mass transit ridership and carpooling, , -Develop fringe parking .lots with shuttle bus service for long-term parking, and -Implement CBD street network improvements. , � • ADDITIONAL LONGER-TERM STRATEGIES INCLUDE; -Develop fringe parking ramps with either people mover or ' shuttie bus service -Compietion of a ring route around downtown and resolution of the (-35E route � -Develop a CBD computerized signal control system -Study of, and action on, a comprehensive parking program � RECOM�IENDATIONS GUIDELINES SUGGESTED BY TFIE PLAN; � Implement transit system improvements and encourage ' increased bus use Promote increased car and van pooling by downtown employees � Discourage long-term downtown parking ,� ` Maintain an adequate short-term and executive parking supply ' Expand the skyway system Improve pedestrian and bicycle safety and convenience in � the downtown 1 Provide for efficient goods movement � SAINT PIAUL CITY PLANNING, 421 WABASHA STREET, SAINT PAUL, MINNESOTA 55102 , SUMMARY <��',_;,�:� ' � ' This is a revision of the second part of a two part report. The Part II report concluded the formal planning effort to identify the extent of the carhon , monoxide (CO) pollution problem in downtown St. Paul and addressed how the city could and should improve air quality. , Part I identified several general strategies to reduce CO emissions. This report refines the level of analysis used to critique the major strategies and ' defines specific programs which should be implemented to achieve the desired strategy objective. ' The major constraint on the strategies which can be applied to the St. Paul CBD is the required deadline for implementation. Compliance must be achieved by , mid-1977. Expediency is therefore reauired for imple- mentation of the Transportation Control Plan (TCP) to meet the required compliance deadline imposed by the Minnesota Pollution Control Agency and the Federal � � Environmental Protection Agency. However, with or without the requirement to meet air quality standards, St. Paul should strive to make the downtown a healthy ' place for all people. Because of this constraint only three strategies are ' of immediate benefit to the St. Paul CO problem: Increased mass transit and car pool usage, a fringe parking program, and street network improvements. , The necessary programs to implement these strategies are discussed in 4.3. Implementation of many of the programs intended to increase mass transit ridership ' and increase the average auto occupancy will be accomplished with the assistance of the Metropolitan Transit Commission and the Minnesota Department of ' Transportation. The city will have responsibility for developing the frjnge parking tystem. City financing will be required for much of the program. , The parking program is, by far, the most cost-intensive of all recommended programs for the City of St. Paul . However, this is a program that has been discussed for , many years and is now being heavily encouraged by concerned downtown businessmen, developers, and planners to alleviate much of the short-term parking problem in ' the CBD. The Transportation Technical Advisory Group (TTAG) provided conceptual and technical review of the Part I ' and Part II report. The TTAG program recommendations i ' ' ' as revised, are described in detail in 4.5. The ' resulting Transportation Control Plan is : 1 .Programs recommended for implementation in 1977: a. Improve transit ridership to 30 percent of peak ' hour person trips to the CBD. 1 .Assist in the implementation of the recommen- dations of the MTC Report: Improving Transit , Operations and Facilities in Downtown Areas- City of St. Paul . 2.Establish additional park-and-ride facilities. , 3. Implement and promote an employee transit ride subsidy program. b. Increase auto occupancy to a daily average of 1 .45 ' _ persons per vehicle. ' 1 . Implement an on-going multi-employer car pool matching system. 2.Provide preferential parking, in cost and location, ' to multi-occupant vehicles. c.Parking Programs. 1 . Implement an interim fringe parking system. , ' 2.Apply for federal orants for applicable fringe parking ramps. d.CBD street network improvements which provide better traffic flow characteristics and attract some ' traffic from core streets. e.Other helpful programs. 1 .Design and implement a consolidated advertising ' and promotiort program for all TCP programs. 2.Develop an ongoing program to monitor the effect- iveness of TCP programs and traffic trends. ' 2.Recommended programs which require additional study to determine implementation feasibility. a.Passenger waiting shelter expansion ' b.Park-and-ride facility expansion c.Preferential treatment for multi-occupant vehicles in roadways. ' d.Staggered hours, flexible hours , and four day work week e.Multi-employer van pooling , f.Computerized signal control system g.On-street parking. 3.Recommended Long Range Programs. ' a.Completion of street network changes which facilitate the routing of non-CBD orientated trips around rather than through the downtown; and resolution of the , I-35E route ii ' ' ' ' ' b,Develop permanent fringe parking ramps or lots for all major directions of approach to the downtown. ' Several ste�s ar2 r��uired to implement this Trans- portation Control Plan. These steps are outlined in Chapter 5. Preliminary ciirection for implementation ' will lie with the St. Paul City Council because of necessary commitments of staff and financial resources. Councii act��n w;1� t�Q required f�r concept approval , , as ��li �s c��tr�nnys `�r the designation of a progr�m cQOrc��nator, deci qnatic�n of responsi bi 1 i ty for detailed program design and for obtaining outside ' agency commitments to Transportation Control Programs mentioned herein. The program coordinator should examine sources of available funding for individual , programs. The completion of detailed program designs will require the continued involvement of City Planning staff as ' . well as staff from other city departments. These detailed designs will then be submitted to the City Council for approval and funding. ' ' � 1 ' ' � ' , iii � R�� ..: .� �ti , PREFACE , ' This is a revision of the second part of the two-part report St. Paul Transportation Control Plan. This plan is required by the state and federal law to comply ' with the carbon monoxide standards set for the protection of the health and welfare of the citizens of Minnesota and the United States. A Transportation ' Control Plan is required for any city which violates carbon monoxide standards. This plan must indicate what strategies the city will use to lower its total carbon monoxide emissions to "safe" levels. Generally, ' these programs either reduce the total number of vehicles operating within the area, in this case, the downtown area, or increase the average speed of those ' vehicles. In the case of dawntown St. Paul , programs were examined using both conc2pts as well as combinations of the two concepts. ' St. Paul Transportation Control Plan - Part I was completed in November of 1975, and described the extent of the emissions problem and reviewed various strategies, or programs, to reduce carbon monoxide levels. This � report is the revised Part II report which analyses the strategies and the recommended programs to be imple- , mented by St. Paul to achieve the strategy objectives and reduce carbon monoxide to "safe" emissions levels (E safe). ' ' � ' ' ' ' , iv � � _ ' TABLE OF CONTENTS ' � . N D N , . U NS USED I ' 9 TCP DEVELOPMENT 2.1 ASSUMPTIONS USED IN THE DEVELOPMENT 0 P RT I 9 2.2 ASSUMPTIONS USED IN THE DEVELOAMENT 0 PAR II 0 ' . E ALYSIS ' 3.1 PROCEDURE USED IN STRATEGY ANALYSIS 1 3.2 ANALYSIS RESULTS 3.3 QU LIFIC TIONS NAL SIS RESULTS 4 , 3.4 CONCLUSIONS , 15 .0 N R T ON CONTROL » , PLAN 4. INAL 977 TRANSPORT ION C NTROL STR TEGIES 7 4.2 PROGRAM NEEDS �� ' , 4.3 DISCUSSION OF ALTERNATIVE SHORT-TERM PR GRAMS 9 .3. INCRE SED M SS R NSIT USE 4.3.1,1 Employee Ride Subsidy Program 19 � 4.3.i�.2 Increased Visibility and Convenience of Park-and-Ride Facilities 21 4.3.1 .3 Increased Provision of Passenger Waiting Shelters 23 � 4.3.1 .4 Adjust Vehicle Scheduling 25 4.3.1 .5 Work Scheduling Changes 25 4.3.1 .6 Preferential Treatment for Multi-Occupant � Vehicles 30 4.3.1 .7 Better Defined Routings and Transfers 33 4.3.1 .8 Promotion Through Advertising of Both � Transit Use and TCP Efforts 34 .3.2 INCREASED AU 0 CCU N Y H U H N , VAN POOLING OR OTHER PARA-TRANSIT EFFORTS 35 4,3.2.1 Develop an Ongoing Continuously Updated Car ' Pooling Program 36 4.3.2.2 Increased Use of Van Pooling 37 4.3.2.3 Preferential Parking for Multi-Occupant � Vehicles 38 4.3.2.4 Promotion and Advertising to Increase Vehicle Occupancy by Car Pooling or Van Pooling 39 , 4.3.3 PARKING 41 4.3.3.1 Develop and Designate Interim Fringe Parking Lots Around the Downtown Area 41 ' 4.3.3.2 Establish Additional Park-and-Ride Facilities 46 4.3.3.3 Prepare Final Designs for People Mover System to Connect Ultimate Fringe Parking to the ' Core Area and Determine Final Fringe Ramp Site Locations 48 v ' ' ' 4.3.4 CBD STREET NETWORK IMPROVEMENTS � 48 � ' 4.3.5 OTHER BENEFICIAL PROGRAMS 48 4.3.5.1 Skyways 49 4.3.5.2 Changes in the Method of Urbam Goods Delivery 49 ' 4.3.5.3 The Development of Plans for Discouraging Through Traffic 49 4.3.5.4 Complete Feasibility Study of Computerized Signal Control System 49 ' 4.3.5.5 Improvement of Safe Pedestrian and Bicycle � Access to the Downtown Area 49 4.4 DISCUSSION OF LO G-T�RM PROGRAMS 50 ' .4. INCREASED MASS TRANSIT USE 50 . .2 IN REASED AUTO OCCUPANCY 50 � .4.3 PARKING 50 ' 4.4.3.1 Implement Phase Two o'f the Fringe Parking Program 50 4.4.3.2 Implement Phase Three of the Fringe Parking Program 52 ' _ . . � 4.4.3.3 �Stud On-street Parkin 52 ':._. __ . .4 STREET NETWORK TMPROVEMENTS 53 4.4.4.1 Resolution of the I-35E Route 53 , _ . _ � . ' _ 4.4.4.2 Implement a Minor Arterial Ring Route for The Downtown Area 53 4.4.5 IMPLEMENTATION OF A COMPUTERIZED SIGNAL CONTROL SYSTEM 53 ' 4.5 TECHNICAL COMMITTEE REVIEW AND RECOMMENDATIONS 53 4.5.1 RECOMMENDED PROGRAMS FOR IMMEDIATE IMPLE ENT- ATION--TO YIELD BENEFITS IN 1977 55 � 4.5.1 .1 Increase Tnansit Ridership to 30 Percent of Peak Hour Person Trips to the CBD 56 4.5.1 .2 Increase Auto Occupancy to 1 .45 Persons Per ' Vehicle 56 4.5.1 .3 Parking Programs 56 4.5.1 .4 Street Network Improvements 57 4.5.1 .5 Other Pro rams 57 � 4.5.2 RECOMMENDED ROGRAMS WHICH REQUIRE ADDITIONAL STUDY TO DETERMINE IMPLEMENTATION FEASIBILITY 57 4.5.2.1 Passenger Waiting Shelter Expansion Study 58 , 4.5.2.2 Park-and-Ride Expansion Study for St. Paul . Destined Work Trips 58 4.5.2.3 Preferential Treatment for Multi-Occupancy Vehicles Study 58 ' 4.5.2.4 Staggered �Hours, Flexible Hours, and Four Day Work Week Feasibility Study 5� 4.5.2.5 Multi-Emp1oyer Van Pooling Feasibility Study 59 , 4.5.2.6 Computerized Signal Control Feasibility Study 59 4.5.2.7 On-streetl Parking Study 59 ' , vi ' ' � , ' ' 4.5.3 RECOMMENDED L NG RANGE P OGRA S 59 4.5.3.1 Completion of Street Network Changes Which Facilitate the Routing of Non-CBD Oriented Trips Around, Rather Than Through, the ' Downtown 59 4.5.3.2 Develop Permanent Fringe Parking Ramps or � Lots for All Major Directions of Approach ' to the Downtown 59 ' 5.0 IMPLEMENTATI N 6 5. IMPLEMENTATION NEEDS 6 5.2 IMPLEMENTATION ACTION 63 , . .0 CONCLUSIONS 65 ' . M JOR FINDINGS 65 6. C END TI N ' 6.2.1 �QAL 66 6.2.2 OBJECTIVES 66 .2.3 POLICIES 6� . . REC ENDED TRANS ORT TION ONTROL L N 68 ' APPENDICES 69 I . ET I ED EX LE � B.LETTER FROM M.P.C.A. 75 ' C.H.U.D. 701 ENVIRONMENTAL ASSESSMENT 81 D.MEMORANDUM OF INTENT 95 E.HEALTH EFFECTS OF AIR POLLUTANTS 103 � GL SSARY 109 ' EDIT �3 ' ' ' ' vii t j ' TABLE OF MAPS AND ILLUSTRATIONS ' b ' FIGURE PAGE TITLE ' 3-1 13 Strategy Analysis Summary Table 4-1 18 Transportation Control Strategies and Programs 4-2 27 Staggered Work Hours - Existing ' 4-� 28 Hourly CO Emissions 4-4 42 Interim Fringe Parking Lots ' 4-5 45 Internal Shuttle Bus System 4-6 51 Fringe Parking System 4-7 54 Recommended Street Network Changes 6-1 68 Recommended Transportation Control Plan , , , ' ' ' ' ' , ' ' ' ' viii ' 1 .0 INTRODUCTION ' , , Downtown St. Paul air quality is in violation of federal and state carbon monoxide (CO) standards. Because of this violation, St. Paul has been ' required to complete a Transportation Control Plan to remedy those violations and render the downtown safe for all users. The primary problem, ' however, is not that St. Paul is simply violating air quality standards, but rather air pollutant levels in excess of standards is a public health hazard. It is this public health hazard that , provides the foremost impetus to enhancing air quality. ' St. Paul , because it is in violation of PCA standards, obviously has some type of pr�blem with its transportation system and/or the move- ment or lack of movement of the emissions within ' the downtown air mass. However, since man is unable to affect regional meteorological chara- cteristics, St. Paul must alter the transpor- ' . tation �system, lower the -number of pollution generators or lower the emission rate of auto- mobiles to affect CO emissions. The purpose of , the Transportation Control Plan is to define programs and to improve elements of the trans- portation system within the central business district which will bring carbon monoxide levels , into compliance with state and federal standards in 1977, and maintain CO levels within these standards thereafter. tThis report is a revised edition of the report published in August 1976 entitled St. Paul , � Transportation Plan - Part II. Revision of the report became evident when serious local objec- tions were raised against the short-term strategy of restricting on-street parking. , Because the benefit to carbon monoxide improve- ment by this strategy is relatively small (3,4% maximum) and the local support of the Transpor- ' tation Control Plan (TCP) is very important, the report has been revised accordingly. Also, a number of questions and comments were received, ' verbally and written, which indicated that the report could be updated and more comprehensive. Therefore, additions and updated information are included in this report. ' 1 ' � , ' ' High alr pollution levels become a public , problem adversely affecting human welfare and the environment. Air quality degraded by concentrations of air po11utants may ' contribute to human disfunction, disease, disability, even death. Many citizens have experienced adversity ' because of poor air quality. For example, becaus� physical activity must be limited during high toxicjty levels of carbon monoxide, ' the Los Angeles school system averages three to five yearly school closings. Studying the effects of poor air quality on the citizens ' of St. Louis, researche�s have revealed that breathing St. Louis' air during high pollution days is as deleterious to human health as smoking two packs of cigarettes. The most ' fatal pollution episodes occurred in London, England (1955) , and Denora, Pennsylvania (1962) , where hundreds of deaths were directly attrib- , ut�d to air pollution. Other deleterious results of air pollution aside from human health hazards include: ' - unaccountable damage to natural vegetation; - millions of dollars in damage to our nation's crops; ' - degradation of� urban aesthetics; - possible adverse long-term climatological repercussions. ' The United States Environmental Protection Agency (EPA) and the Minnesota Pollution Control Agency (MPCA) have established air pollution standards in ' response to the need to protect the public health and welfare. A Memorandum of Intent, in the matter of the implementation plan to achieve carbon ' monoxide air quality standards in the State of Minnesota, was entered by the Minnesota Highway Department (now part of the Minnesota Department ' of Transportation) , the City of Minneapolis, the City of Sto Pau,l , the Metropolitan Transit Commission, and the Metropolitan Council on January 22, 1974, to achieve the national carbon ' monoxide standard in the Minneapolis central business district and to maintain the standard in the St. Pau1-Minneapolis Air Quality Control ' Region (see Appendix D). 2 , ' � ' ' The standard pertaining to carbon monoxide is nine parts per million (9 ppm) not to be exceeded in an eight-hour average more than once per ' year. The number of violations per year depends upon the interpretation of the data. City staff was instrumental in changing the interpretation ' of the number of times CO exceeded S ppm average in an 8 hour period from: a separate occurrence for each successive hour that has an 8 hour ' average over 9 ppm (theoretically possible to have 24 violations in one day) ; to: a single occurrence for non-overlapping 8 hour averages over 9 ppm. A number of people have expressed ' concern about the empha sis (and eventual cost) placed on a problem that occurs so infrequently. Due to the change in interpretation, the downtown ' St. Paul CO violations during the five year period of 1972 through 1976 averaged 2.2 per year; which would have been 18.2 per year under the origir�al interpretation (both for exceeding ' • the 8 hour average of 9 ppm more than once per year). F�o matter what the interpretation of the number of violations, the magnitude of the ' problem (deleterious effect on health) remains unchanged. , The primary contributor of carbon monoxide to the urban environment is the internal combustion engine. The internal combustion engine emits carbon monoxide through its exhaust in varying concen- , trations d?pending upon the types of emissions controls on the vehicle, the age of the vehicle, and the maintenaace of the emissions control ' system. The density of CO emissions or the con- centrations of CO emissions depends on the number of vehicles, the degree of congestion that may , occur within a certain area, and the meteorolgy of the area. Reducing CO emissions from vehicles may be accom- ' plished through federal , state and local efforts. Under normal circumstances these efforts are assumed as federal auto industry emission control , requirements, state automobile inspection programs and local transportation control plans. An obvious exception is California, which has vehicle ' emission requirements more stringent than those of the federal government. The federal government, through the EPA, does not designate who is to solve the CO problems, but rather only requires ' that the problem be solved. If the U.S. Congress 3 , ' ' ' and state legislatures do not solve the problem, ' then the cities must undertake the task. There- fore, the City of St. Paul , as with cities across the country, must prepare a plan to ' define programs which will reduce carbon monox- ide emissions, A recent U. S. Court of Appeals decision ordered the City and State of New York ' to implement their transportation control plan to reduce dangerous levels of air pollution caused by vehicles in the New York City region. It forces New York to carry out the clean air plan , designed and adopted by the city and the state in 1973. Current po11ution levels in New York City and its suburbs far exceed federally set health ' standards. The plan, including bridge tolls to subsidize mass transit, reductions in mid-town taxi cruising and vehicle parking in the business district of Manhattan, and a study of ways to ' reduce truck deliveries during working hours. , Wind currents in the downtown area are very ' irregu1ar because of its built-up nature. It is, therefore, very unlikely to have a uniform dispersel of air pollutants downtown. Placement of air ' monitoring devices thus becomes quite critical to co1lect representative (average) samples. Concern has been expressed that St. Paul may have a situa.�ion simi�ar to that discovered last , spring in Roches�Cer, Minnesota. There, an air quality monitor was located underneath an over- hang, which trapped air pollutants and registered ' much higher 1evels of carbon monoxide than existed in the surrounding area. This situation does not exist in St. Paul , To test and prove , this fact the MPCA canducted mobile monitoring tests throughout our downtown during the surrrner of 1975. Six different locations other than the one presently monitored were tested by the MPCA. ' The resu1ts showed that there were several locations downtown which registered much worse conditions than the existing monitoring sites. MPCA concluded ' that a case could be made for moving the monitors to the worst lodations. This would indicate that the air po1lution problem in downtawn St. Paul is much more severe than presently shown by existing ' monitors. However, the MPCA decided that the existing monitors represent average conditions and an excessi4e constraint on the city would not serve ' any useful purpose. Therefore, we should be 4 ' � � ' � satisfied with the existing monitor `locations and thankful that they have not been moved to unfavor�ble locations. ! St. Paul City Planning began its transportation control planning effort in June of 1974 with research and data gathering. It was determined � that St. Paul must reduce carbon monoxide emissions by 25.2 percent to meet the safe emissions level described by state and federal � standards. In November of 1975, City Planning staff completed ' the Revised Transportation Control Plan - Pa!^t I. That report defined the extent of the St. Paul carbon monoxide (Cfi) pollution preblem and calculated the reduction to CO emissions that � could be expected by the implementation of various general strategies. Strategies examined were the improvement of mass transit ridership, increased ' . use of car pooling, improvements in the street network system, construction of additional central business district housing, parking controls, � including reduction of on-street parking and establishment of a fringe parking program, computerized signalization, staggered work hours and the skyway program. � Through analysis of these strategies and calculation of the resultant reduction in CO emissions upon � implementation, it was estimated that of the alternative strategies, the expansion of mass transit ridership and use of car pooling, the ' implementation of a fringe parking system and the implementation of improvements to the existing street network would yield the greatest benefit to emissions reduction in downtown St. fauZ. � This planning process did not analyze the accuracy of federal and state standards or the base infor- , mation provided by those agencies. Specific program designs, detailed cost estimates, and any possible implementation problems, respecting City budgetary � problems, were not analyzed. It was the function of this planning pt•ocess to define how compliance with standards and the pro�ection of the health of downtown users could be accomplished in 1977 ' and maintained into perpetuity. The function was not to specifically define how these programs were going to be carried out or funded. i5 � � � , The purpose of this report is to analyze each � of the strategies discussed in Part I to determine which are feasible to partia1ly or fully implement in 1977 and to determine what programs are , needed to imp1ement strategy objectives. The purpose is also to supply city decision-makers with a listing and analysis which, if implemented, ' would ensure protection of the hea1th and welfare of citizens' visiting or working and living in downtown St. Paul . This report was prepared with existing data, � supplied by numerous agencies, and with data generated by staff of City Planning and the ' Department of Public Works, Traffic Division. Among outside agencies giving assistance and information are the Metropolitan Transit Commission, the � Metropolitan Council , the Minnesota Pollutation Control Agency, the Region V office of the U. S. Environmental Protection Agency, and the Minnesota . Department of Transportation. Any data generated , by staff was discussed with the agency having primary responsibility in the area of concern to obtain their particular thoughts on the methodology � used and the accuracy of the data. Because of the original nature of this plan, care was taken in projections and without exception data used was � thought to be accurate and based on sound method- ology by agencies involved. The remainder of this plan will be divided into � five chapters. The subject of each additional chapter is: the assumptions used in the TCP devel- opment, the analysis of Transportation Control � Strategies, a discussion of alternate and recom- mended programs to be used to implement final strategies, the implementation needs and process, � and the conclusion, respectively. Each of these chapters played a key role in the process of developing the final TCP. The assumptions formulate the parameters and the guidelines for emissions , estimates and the final strategies used in the TCP. The strategy an�lysis chapter discusses eech strategy with respect to several criteria. This ' chapter lead to the strategies that will be used in the final TCP. The next chapter, the Trans- portation Control Program, first discusses all the alternate programs explored and finally develops , the recommended programs to be implemented by 6 � � ' � ' St. Paul . The implementation chapter describes the implementation steps necessary to start the TCP and stresses the need for immediate action. Finally, the conc1usion Swt�narizes the process ' and presents a deseriptive table il1ustrating all the recommended progr�ms, ' ' , � , , , � � ' ' i 1 � ' � � 2.0 ASSUMPTIONS USED IN THE DEVELOPMENT OF THE TRANSPORTATION CONTROL PLAN , � ' The development of both Part I and Part II of � the Transportation Control Plan was contingent on several assumptions which affect the base ' calculations of the carbon monoxide problem as well as the potential benefit of each of the a1ternative strategies. The assumptions used ' for Part II also established the policy frame- work for the Transportation Control Plan. If these policies or assumptions are invalid it ' may jeopardize the conclusions of this report. • ASSUMPTIONS USED IN THE 2.1 .1 The first assumption is that the traffic , DEVELOPMENT OF PART I. characteristics used in�the report to estimate total emissions are accurate. The primary information used in the description of hourly ' arrivals and departures by vehicle type was the Transportation Behavior Inventory completed by the Metro Council in 1970. City Planning staff ' then updated this information for the base year 1974 and related this data with the 1970 and more recent traffic counts taken in and around the downtown area. ' 2.1 .2 The second assumption used in the Part I report relates to the method of calculating total ' person trips for 1974 and 1977. The total person trips relate to total vehicle trips and total CO emissions in the CBD. Staff assumed there is a � 2 percent per year increase in daily person trips in the St. Paul CBD. This assumption was used to adjust the 970 information to 1974, as well as from 974 to 1977. This is an average annua ' increase representing a historic trend used in several past planning documents. , 2.1 .3 The third assumption in the Part I report is that the calculation of the percent reduction in carbon monoxide emissions resultin from each ' strate is based on full im lementation o t e strategy. It is obvious that the u implemen- tation will not be possible with all of these strategies by 1977, and, therefore, one must ' assume that all the percent reductions indicated will also not be possible by 1977. However, partial implementation toward the goal may be ' possible in 1977. This is further described in this report. 9 ' ? f � � � ' 2.2 ASSUMPTIONS USED IN THE 2.2. Rather than an assumption, this �rst point ' DEVELOPMENT OF PART II was used as a statement of fact by staff in the completion of this report. There is a CO roblem in downtown St. Paul , ind�cated violations of ' the federa and state carbon monoxide pollution standards. The standards must be met by mid-`�7. This is a given that will be followed in the , development of recommended strategies to be used in the reduction of carbon monoxide emissions in downtown St. Paul . 2.2.2 For health reasons, the City of St. Paul , desires to eliminate any future violation of standards and, therefore, must reduce CO emissions ' b 25.2 ercent. This reduction will result in comp iance wit standards. 2.2.3 The element of the trans ortation s stem ' which contri utes the reatest uantit of carbon monoxide emissions should be the e ement p�imari y . impacted by trans�ortation control strategies. , This element would be the work trip. 2.2.4 If secondary transportation control strategies ' are necessary to meet short and long range carbon monoxide emission requirements, the element of the trans ortation s stem which is the second ar est contri utor to C emissions shou e impacte y ' the im lementatioh of additiona� strate ies. This e ement wou be t roug tr�ps. 2.2.5 The implementation of transportation control � strateqies shall be in compliance with the goals, ob'ectives, and olicies of the St. Paul downtown , p an. Strategies shal not impede t e implementation of the St. Paul Downtown Plan, but rather should assist this implementation. 2.2.6 The City will continue to pursue the imple- ' mentation of programs to maintain compliance with CO standards. ' , , 10 , ' , 3.0 STRATEGY ANALYSIS ' ' This chapter will define, through the use of several criteria , whether or not the strategies listed in the Part I report would, in fact, be , feasible for implementation in the downtown. The analysis of each strategy will also reassess basic assumptions used in the Part I report to determine if the assumptions were accurate and , whether or not implementation was possible by 1977. ' Strategies to attack the problem at its source - the automobile - were suggested. One suggestion was to encourage a changeover from large cars to ' small cars, especially for company fleets. Although this suggestio� provides for the conser- vation of gasoline, we could find no substantia- tion that small cars emit less CO than large cars. t This suggestion would be more appropriate for the Energy Policy Plan for St. Paul being prepared by City Planning staff. Another suggestion was ' , for the City to initiate its own vehicle inspection program to test emissions from vehicles using downtown streets. This program is impractical t because of its cost and limited impact. In order for this program to yield positive results, it would have to be conducted statewide. ' . E USED N THE our criteria were use in t e ana ysis o trans- STRATEGY ANALYSIS portation control strategies. These four criteria ' are: 3.1 .1 The earliest possible date of full imple- ' mentation or possibilities of phasing the devel- opment of the strategy. 3.1 .2 The amount of CO reduction in the central , business district by 1977 generated by each strategy. This point is, in effect, a reassessment of the projection indicated in the Part I report. ' 3.1 .3 Estimated costs of the strategy. 3.1 .4 Other potential spin-off or side benefits ' for the downtown area as a result of implementing the program. ' Projections ofi costs, benefit, and the date of implementation are based on a survey analysis and data generated by staff or collected from other ' agencies. 11 i , , 1 The final strategy design and available ' financial resources will dictate the actual detailed cost and the implementation date. These two factors will be finalized after the review and approval of the recommendations of ' this report. All agencies involved in the strategies discussed ' in the Part I report were consulted further in this analysis process to obtain additional available information. In many cases, however , the strategies discussed in the Part I report ' were either long-range programs for which it is difficult to project actual estimates of benefits or were newly conceived, programs for this region ' of the U.S. for which no detail information was available. The strategy of increasing mass transit and car pool usage was one whose benefits ' were particularly difficult to estimate accurately. Agencies involved in these programs do not have • precise projections of the actual modal split or ' the auto occupancy rate for mid-1977. There is a general region-wide estimate and there are many personal opinions, however, there is no concrete ' data on which to base an estimate. Therefore, staff completed its own analysis and estimates based on regional trends and on indications by ' agency representatives having knowledge- i-n the . .. .-.- subject area. These estimates were then revipwed" by projessionals involved in the implementing ' agencies. ' .2 N LYSIS RESULTS Each of the transportation control strategies , discussed in the report Transportation Control Plan - Part I was further analyzed according to the four criteria for analysis described above. ' The results of this analysis are surr�narized in the table on the following page (Figure 3-1 ). Staff conclusions and recommendations are: 1 .Only three strategies can yield substantial t benefits in reducing CO emissions in St. Paul in 1977: ma,ss transit and car pool use , improvement,l fringe parking development, and street netwark improvements. 2.The total estimated CO reduction from the , programs is adequate to meet standards for CU 12 � ' t � ' , ' FIGURE 3-1 STRATEGY ANALYSIS SUMMARY TABLE Approx. Date of Percent Committed (c) Percent Agency ' Implementation Benefit to CO Degree or Benefit Responsible of Program Improvement of Approx. Previously to CO for Necessary Discussed in of Full Other Cost Proposed (p) Improvement Imple- City Strategy Part I Implementation Benefits* to City Project by 1977 mentation Action ' Surtmer Winter Summer Winter Street 1977-1985 23.8 20.0 2 Construction Partially Negligible Mn/DOT .Cooperation Network $6,000,000 (c) & (p) City of .Transpor- Improvements Acquisition St. Paul tation Plan ** $5,000,000 Completion , & Approval Fringe 1977-1980 23.1 31.4 4 $1,750,000 (p) 9.2 12.5 City & .Develop Parking (5,000 spaces @ full occup.Mn/DOT Program, ' Lots @ $350/space) 4.6 6.3 .Arrange @ 50% occup. Financing, .Implement Fringe 1980-1990 5 48,000,000 City � Parking (12,000 spaces Ramps @ $4,000/space) Mass Transit Continuous 17.2 31.6 5 � Continue Tax Continuous @ A.O. 1.45 MTC & .Joint Car Pooling (calculated @ Payments, 12 22 City Planning (1977) 1.5 auto occup) Fund City @ A.O. 1.4 ', Improvement 7 13 & Programs Computerized 1979 6.0 5.7 1 $1.5 million (p) 0 0 City .Determine , Signal need, fund, Control .Design system System .Construct CBD Continuous 3.6 5.0 5 (p) Negligible Private .Encourage ' Housing private development, .Assist through Tax Incentives, � Financing Assistance, Etc. Advertising Continuous General 3 $20,000 City .Develop ' Assistance , Programs, to all .Fund, Programs .Implement Staggered Continuous Will Assist in 2 Program City/ .Work with ' Working Transit Program Design & Private Private Hours Implementation Implemen- MTC Company's tation Costs & MTC on (Staff) Program , Study of *** 3.2 3.4 3 Nominal (p) 3.2 3.4 City .Develop On-Street (loss of Program, Parking revenue) .Implement ' * Degree of Benefits to St. Paul 1 . . Low 3 . . Moderate 5 . . High Other than CO Reduction 2 . . Low to Moderate 4 . . Moderate to High ** For West Seventh Street Realignment, Sixth Street Relocation, Eighth-Ninth Streets Switchback and ' Shepard-Chestnut Interchange. Acquisition costs overlap with HRA programs. *** To be studied after construction of fringe parking ramps. ' 13 � 1 ' ' emissions in 1977 if an auto occupancy rate of 1 .45 persons per vehicle is attained. The ' totals are not indicated at the bottom of the table for two reasons. First the column describing present benefit at full implementation ' can not be accurately totaled. The percent benefit indicated beside each strategy indicates the benefit if only that strategy were imple- ' mented. Therefore, when all are implemented several strategies may tend to counteract each other, reducing the total . Second, the column describing percent benefit by 1977 indicates , percentage benefit ranges. This would be confusing if shown on the table. These ranges will be discussed below in 3.3. ' 3.3 QU LIFIC TI NS F ANALYSIS n t e process o ana yzing t e various strategies � RESULTS and quantifying the percent benefits as indicated ira the strategy analysis surranary table, staff realized several qualifications must be made about , the percent bene'fit figures. The first and largest , difference is in the strategy of increased use of mass transit and car pooling. Under the column "percent benefit to CO improvement by 1977"- there ' is a range of benefit reflected. It could not be precisely identified what the auto occupancy would be in 1977 or other years thereafter. With the ' implementation of several programs to assist a change one cou1d be optimistic and project a 1 .45 auto occupancy rate; however, an auto occupancy of 1 .4 would be a significant improvement over ' today's average of 1 .3 persons per vehicle. We are suggesting several programs to increase auto occupancy. However, the city should periodically t monitor the actual improvements in auto occupancy rates. If auto occupancy is less than 1 .45, other strategies and methods should be implemented very quickly to reach the estimated percent reduction ' levels. The second qualification relates to the fringe t parking program. The percent benefit shown in the Part I report is realized only when the entire downtown s�+stem in fringe parking ramps and the ' shuttle system is completed and operating. This is obviously not pot possible by 1977. However, the construction of three interim fringe parking lots is feasible. This program is reflected in ' the percent figures represented under the 1977 14 ' ' ' ' percent benefit column. Approximately 5,000 ' lot spaces could be developed on available space surrounding the downtown area and, at full occupancy, would yield a 12.5 percent t reduction of carbon monoxide emissions. However, full occupancy is very unlikely during the first few months of operation, therefore, a 50 percent occupancy figure is also shown. This 50 percent ' occupancy figure is estimated to be the more accurate for achievement in 1977. ' When both of these qualifications are considered the total percent reduction possible by 1977 results in a range, depending on which figures ' are used. CO reduction may range from 14.3 percent to 34.5 percent'. Staff feels the 1 .45 percent auto occupancy figure should be strived for and that the 50 percent occupancy figure ' for fringe parking program is feasible. If these figures are totaled, the percent reduction is then 28.3 percent. This figure is larger than ' , the required 25.2 percent reduction. It should be cautioned that the percent reduction figures are contingent upon the achievement of the strategy ' objectives. The time period is very short which presents implementation difficulties. Therefore, staff feels a slightly larger percent reduction should be made to provide leeway for the city. ' 3. C NCLUSIONS ND The conclusions an recommendations resulting ' RECOMMENDATIONS from the strategy analysis process are shown below: 1 .That the estimates of percent benefit by 1977 ' are dependent on several factors: (a) the speed at which the programs are implemented; (b) the public willingness to make desired changes; and ' (c) available financial resources. 2.That the desired reductions in CO emissions can ' be realized in 1977 if the modal split is increased to 70/30, if a 1 .45 auto occupancy rate can be achieved and if a 5,000 plus spaces fringe lot program can be implemented. The West ' Seventh Street realiqnment (connection tn Ninth Street) and Sixth Street relocation should provide for smoother traffic flow into and out of the CBD. ' 3.That a concerted advertising program (promotion, public relations) should be initiated. ' 15 ' 4.0 TRANSPORTATION CONTROL PROGRAM ' ' �.1 FINAL 1977 Two assum tions of this report 2.2.1 and 2.2.2 were P TRANSPORTATION intended to determine the strategies for downtown Saint t COIVTROL STRATEGIES Paul . Final strategies were to result by applying these assumptions to the list of strategies that could yield some CO reduction in 1977. This list was generated in ' Chapter 3. These two assumptions were: (1 ) the element of the trans- ' portation system which contributes the greatest volume of carbon monoxide should be the primary element impacted by transportation control strategies, and (2) programs must be feasible to implement by 1977. ' The strategy analysis discussed in the previous section and summarized in Figure 3-1 , indicated that the only ' strategies possible for implementation in 1977 were mass transit and car pooling usage i►�provements , a fringe parking program and street network improvements. It is fortuitous that the programs which would satisfy the first ' criteria were, in fact, the programs which were feasible for implementation in 1977. Since there are only three strategies which can be pursued in the process of reducing ' . carbon monoxide levels in the downtown areas , these strategies and the associated programs will be the subject of the remainder of this report. t 4.2 PROGR M NEEDS None of the identified strate ies are, in and of them- 9 selves, the description of the actual programs or tasks , that are necessary to achieve emissions reduction. There are several programs which must be implemented to achieve a decrease in vehicle trips , primarily the work trip, to , the downtown area. Therefore, Figure 4-1 will identify the three final strategies and the alternative programs which can be used to achieve the objective of each strategy. The street network improvement strategy in the short range ' programs consists of the CgD street projects currently under construction. , A discussion of the primary strategies and a description of each alternate program is presented in 4.3. Th� implementation of several programs will be necessary to ' achieve any significant change in commuting habits. Some programs are more feasible and probably more beneficial than other programs. The decision of which to use will • be made on the basis of ease of implementation, cost and ' willingness of private industry to participate in the programs. ' ' 17 � ' FIGURE 4-1 ' ALTERNATE SHORT RANGE TRANSPORTATION CONTROL PROGRAMS- t FOR COMPLIANCE WITH CO STANDARDS IN 1977 Primary Strategy Programs ' Increased Mass Transit Usage - employee ride subsidy program ' - increased use of park-and-ride facilities - provide passenger waiting shelters - stagger working hours and promote four-day work week - better define routings and transfers ' - adjust scheduling of buses - promotion Increased Auto Occupancy - develop an ongoing continuously updated car pool match- t ing program - provide preferential parking for multi-occupant ' vehicles ' - increase use of van pooling - promotion - remove legislative restrict on shared ride taxi use ' Parking Program - develop Phase I fringe parking program (interim fringe parking lots and shuttle bus system) ' - establish additional park-and-ride facilities - prepare plans for final fringe parking system - adjust parking pricing ' - prepare funding applications for fringe ramps Street Network Improvement - complete the West Seventh Street realignment and Sixth Street relocation (both under construction) t LONG RANGE TRANSPORTATION CONTROL PROGRAMS - FOR MAINTENANCE OF CO STANDARDS ' Increased Mass Transit and - continue short range programs Car Pool Usage Parking Programs - implement Phase II fringe parking program - develop , primary fringe parking ramps and in�tiate ban on further parking development in CBD core area without ' proven need - implement Phase III fringe parking program - construct remaining needed fringe parking facilities , establish ' downtown parking fee controls , implement people mover system Street Network Improvement - resolve I-35E route ' - implement minor arterial ring route for CBD Computerized Signal Control ' System _ 18 ' t � � � . D CUSS ON F L ERN TE is section wi iscuss the a ternate programs whic SHORT-TERM PROGRAMS can be used to implement the final TCP strategies ; in- creased mass transit usage, increased use of car pooling, , and parking. Each of the programs descriptions will include the following: 1 . The program concept � 2. The implementation needs 3. The estimated costs 4. The available technology ' 5. The agency or agencies responsible for implementation of the program 6. The summary and critique ' 4.3.1 INCREASED MASS TRANSIT USE The primary emphasis of the eight programs included in � this strategy discussion is to increase transit use by increasing availability and convenience of transit by providing incentives to transit use and by decreasing ' , overall transit travel time. 4.3.1 .1 EMPLOYEE RIDE SUBSIDY PROGRAM , Concept The concept of this program is the subsidization of the cost of the employees transit ride by his employer. In this program the employer will pay for some or all of the transit ride of its employees. This is an employee bene- � fit program where the employer is stating as policy that he encourages transit use over the use of the private automobile for transportation to the place of employment. � Increased use of mass transit reduces parking demand and reduces downtown congestion to name just a few. Implementation Needs The implementation need of this program is to make , employers aware of the idea, the problems and the opportunities. � Costs The costs of this program are the fares of the users and the city's or employer's costs of setting up and admini- tering the program. At full subsidy, the employer pays � a 60 cent round trip fare each working day, or a total of $150.00 a year, assuming a five-day work week through 50 weeks. � Technology The technology is not a problem. The program is being used in several locations in the metropolitan area. The most widely publicized example is the Midwest Federal program. � There is a description of the project f rom Transit News , Vol . 5, April 1975, on the following page. � 19 � � CITY BANK TRIED IT, EMPLOYEES LIKE IT � (Editor's note: Piidwest Federal is one employer fully convinced of the advantages of encouraging its employees to come to work by bus. � Sufficiently convinced, at least, to pick up the entire tab for those who do. The firm's personnel director, Keith Frost, described to other business leaders the advantages of the pro9ram, at a recent symposium sponsored by the Dietropolitan Clean Air Committee. His remarks follow.) By Keith Frost ' Personnel Director, Midwest Federal You have to die...to appreciate Life Insurance. You have to be sick...to appreciate Hospitalization. You have to break a leg...to appreciate Long Term Disability. , You have to have a tooth-ache...to appreciate Dental Insurance. You have to retire...to appreciate a Pension Plan. You have to spend money...to enjoy a Vacation Plan. You have to be sued...to appreciate Legal Insurance. But anyone living near Metropolitan Transit Commission lines... � can surely appreciate bus fare reimbursement: It is our most popular fringe benefit: Most employers complain about money spent for fringe benefits ' for three reasons: (A) They are expensive. (Thousands spent every year.) (B) They are not appreciated. (Low visibility). (C) Th?y do not motivate people. (They are part of what is expected.) Bus fare reimbursement in our experience has three advantages: ' (A) It is one of the least expensive: (B) It has high visibility, (every mo�th) with nearly three-fourths of our employees being reimbursed. (C) It is much appreciated. In face of rising costs of everything, this helps the average employee with an assist on a daily budget item. It has been a hiring plus in swaying new employees to come to work � for us. I believe that people are more motivated to come to work, because they hate to miss that free transportation. On December 14, 1973, Harold Greenwood, President of Midwest Federal announced to his employees, that effective the following Mo�day, all ' employees who used public transportation would be reimbursed for their Eus fare to and from work. Also, to encourage the formation of carpools, those employees who were in, or formed car pools of 3 or more persons were entitled to the same reimbursement. This was, to the best of our knowled9e the first such plan instituted as an energy conservation � measure. It has proved to be significantly successful. At the beginning of the program, we surveyed our total pe�sonnel and found that 187 were bus riders and 63 were in car pools, a total of 250 of our 442 employees or 56.5 per cent. At the close of the � year 1974, 263 were ridin9 the bus and 89 were in car pools for a total of 352 out of 490 employees or 72 per cent (nearly three-fourths of our total staff). The tost for the first year of operation was $42,000, the expected ' cost for 1975, about 550,000. This is about 5 per cent of our total fringe benefits. But let's look at the benefits: Each month nearly' three-fourths of our total staff enjoys a reminder that their employer cares about them. It is the most popular and the � most visible employee fringe we have. We are getting n�ore mileage out of bus reimbursement than a majority of our other fringe benefits combined: How does it work? A simple form which includes all of the months of the year. Each employee keeps track of the days the bus was used. � At the end of each month, they compute the number of rides, times the cost per ride, complete the form and turn it in to their supervisor. The supervisor verifies the accuracy and sends the forms to personnel for reimburserient. Personnel also keeps track of each employee's total reimbursement on a small ledger card. This is necessary, as � such reimbursement must be reported as income to the Internal Revenue Division. Legislation to exempt a modest monthly reimbursement would greatly help. The advantages again: (1) It is simple and easy to administer. � (2) It is an effective method of combating the energy crisis by making riding on public facilities more attractive. (3) It is relatively modest in cost. (4) It has high visibility and great appreciation by the majority of @mployees. (5) It is a positive option for employers who wish to make a $ignificant contribution to the problems of the � energy crisis and the nation's air pollution problems. Mr. Greenwood started it, we have had great success with it, and we urge all of you to try it: 2� � � ' � Agency Responsible for There are two possible approaches to the responsibility Implementation for the implementation. First, would be a private company such as Midwest Federal program or a public agency, such as the City of St. Paul . � If implemented by St. Paul , the City would establish the process, paper work, and accounting procedures and co- ' ordinate through a central employer organization, such as the Downtown Council . If employers are cooperative and set up a process for reimbursement, employees would come � to a central office to receive their coupons, bus tickets or tokens , and return to the central office with verifi- cation of use to receive another token, coupon or such. Staff believes a rigid form of verification of number of ' rides would be necessary; one method could be the MTC commuter tickets, which are punched upon each boarding of the bus. Once the card is totally punched, the employee ' could exchange it for a new card at the central office. Summary and Critique This is a high incentive program for increasing transit use by downtown workers. The program would apply whether , used from home to work, or from a park-and-ride facility. Although many employers may be unwilling to assume the expense, this program directly satisfies one of the � , primary objectives of this report, i .e. , decreasing auto work trips. , No obstacles appear to inhibit the implementation of this program. Effectiveness will depend on employer willing- ness to assume expense and on whether additional auto � users change to transit. To promote the use of this program, the City would have to advertise and possibly establish a central downtown � office for transit ride reimbursement. 4.3.1 .2 INCREASED VISIBILITY AND CONVENIENCE OF PARK-AND- ' RIDE FACILITIES Concept The concept of this sub-program is the expansion of transit use by individuals not riding on an existing transit line. Conceivably, with the provision of conven- , ient park-and-ride facilities, individuals would drive their cars to a nearby or enroute park-ride facility and ride a bus to the downtown area. This would eliminate � that auto from downtown streets and decrease the parking demand. � Implementation Needs The implementation needs for this sub-program would be the determination of needed locations and the acquisition of land space for the lot through fee title, lease, or free use agreement with the land owner. If the land space is ' not presently used as a parking lot, some improvement would be necessary. , 21 � ' , Another improvement that may be necessary for the success ' of this program is the use of express bus service to key park-ride sites. This may increase park-and-ride use because total trip time would then nearly equal auto only � travel time. Costs Costs would include lot improvement at approximately ' $350 per space for paving, striping , and barriers. Many of the park-ride lots are appropriated at little or no ex- pense through shopping centers , churches , schools, � municipalities , Mn/DOT and others. For outlying areas, an estimate of $450 per space may be used to include site acquisition. Present�y, park-ride facilities are not obviously visible to drivers and staff feels that if , visibility were increased, use would be increased also. Technology Technology is not a problem in providing parking, even ' though locating these facilities is an inexact science. The MTC at this time Mas approximately 50 park-ride facilities located in and around the Twin City area. A general lack of knowl�d�e of the park-ride service exists. ' In all likelihood the availability of relatively cheap convenient parking in downtown St. Paul is a major deter- , rant to increased use of this service and transit in ' general . Several route ridership improvement projects have been conducted by the MTC, with the city participating in those projects witliin St. Paul . Each pertinent report ' identifies transit potential between downtown St. Paul and St. Paul neighborhoods and suburbs, and recommends specific park-ride sites to serve downtown St. Paul . , The current MTC Regional Express Bus Network Study recommends 35 major remote-intercept parking facilities , 20 of which would serve downtown St. Paul . The MTC has ' requested Federal Aid Urban (FAU) funding for the design and construction of 23 of these sites starting in 1977 , and in addition is preparing a request to include 11 sites ' in the Interstate Funding Program. In the Memorandum of Intent for the Implementation Plan to ' achieve CO ambient air quality standards (Jan. 22, 1974) the MTC indicated its intent to operate a bus service from f ringe parking facilities to downtown Minneapolis, operate an expanded express bus service to downtown Minneapolis , � and continue to modernize and upgrade maintenance of its bus fleet to enable a longer vehicle life and reduce bus exhaust emissions. When the various parties entered the � above agreement, Minneapolis CBD was the only area in the state to have recorded violations of air quality standards. Therefore, the focus of air quality improvement was on the Minneapolis CBD, but the MTC demonstrated its willingness � to cooperate with all Goncerned parties to improve air quality through innova�ive services. See Appendix D. 22 ' ' , ' Staff is analyzing journey to work information to assist � in the location of future park-ride facilities. Prelimi- � nary review of information on the place of residence of ' downtown employees indicates that a major concentration exists on the East Side of St. Paul and Washington County. Therefore, the addition of park-ride facilities in this , area may be warranted. Agency Responsible for The responsible agencies for the implementation of this � Implementation program would be both the City of St. Paul and the MTC. The City of St. Paul will assist in the provision of land, funds , or planning assistance. The MTC has been diligently expanding its park-ride program and should be encouraged ' to continue the implementation and marketing of this worth- while program. Continuation of this program is dependent upon funding from external sources. Therefore, St. Paul , tmust assist with this program if MTC funds are unavailable. Sumnary and Critique Although precise data are currently unavailable on the , market of the park-ride program, it is assumed many would be attracted to transit travel if they knew park-ride locations and knew transit travel from the park-ride facility was competitive with auto travel time. This ' '• analysis leaves several questions unanswered: - What is the potential park-ride market for St. Paul CBD , workers? - What is the current park-ride use? - What can be done to promote increased use of park-ride � facilities? - Is MTC willing to experiment with alternate types of transit service to park-ride sites? � This program requires additional research and study regard- ing work trips and park-ride technology. The Office of City Planning is currently attempting to gather place of ' work data to assist in planning efforts. The MTC should also be encouraged to answer several of these questions to resolve this program's actual feasibility and usefulness. , 4.3.1 .3 INCREASED PROVISION OF PASSENGER WAITING SHELTERS Concept The concept of this strategy is to provide increasing convenience and comfort for transit patrons. ' ntation Needs The implementation needs of the program are the identifica- Impleme tion of candidate locations for the erection of passenger ' waiting shelters, the identification of the type of shelter needed, and the appropriation of funds and the development of these shelters. ' . , 23 1 ' ' Costs The cost of the shelters curr�ntly in use is approximately ' $2,700 per shelter without electricity or slab and approxi- mately $3,500 with slab` and electricity. The cost of these ' facilities can be partially, or wholly borne by the MTC, depending on the eriteria met by each site jointly agreed to by the MTC and the City and whether funds are available. ' Technology Technology does not appear to be a problem with this program. Several designs for shelters do exist. Some question does exist about which locations are "best" for shelt�r facili- t ties. Criteria for determining shelter locations should be re-examined periodically. Candidate sites were originally selected using the following criteria: Number ' of transfer patrons , number of boarding patrons , frequency of service, elderly pnpulation in the area, proximity to hospitals and proximity to medical clinics and centers. Subsequently, patrons made wri�ten and verbal requests for ' shelters. MTC made passenger loading counts at these locations and erected shelters where the counts j�stified. their installation. ' The MTC with city cooperation, completed Improving Transit , 0 erations and Facilities in Downtown Areas - Cit of St. , au in cto er 9 6. is stu y inc u e an extensive investigation of shelter design, capacity and location for the downtown area. ' Agency Responsible for The responsible agency for the implementation of this Implementation program would continue to be the Metropolitan Transit Commission with the coop�eration and assistance of the City ' of St.Paul . The MTC has a program for the provision of shelters. Their funding'' is limited, however, and any ambitious program would require financial assistance from ' St. Paul . Summary and Critique Shelters may increase ridership as an adjunct to the pro- vision of comfort and convenience. A determination of the ' actual cost/benefit of this program has not been done. Further analysis or study should be completed by the City to supply MTC with suggested locations for the construction ' of additional shelters. A request for the construction of these facilities, if substantial benefit is anticipated, should then be submitted to the MTC. Because shelters are ' in demand presently, this report adds further encouragement for the expansion of the shelter program., l�,;p-�o.�ram ,which could be initiated immediately by St. Paul is to require the provision of shelter$ with all developments creating ' significant transit demands. Examples of these develop- ments would be an elderly high rise, a low income housiny project, a new commercial area, and an apartment or other ' multi-family development of greater than a certain number of units. 24 ' ' ' ' The MTC and the City should actively expedite the recom- mendations made in Im rovin Transit 0 erations and Facilities in Downtown reas-City of St. Pau . , 4.3.1 .4 ADUST VEHICLE SCHEDULING Concept The concept is to schedule vehicles to more closely meet with the demands of the riders. The Metropolitan Transit ' Commission is currently completing a study of a computer- ized evaluation for schedules. Implementation Needs Any implementation needs would revolve around the avail- ' able finances and other demands of the Metropolitan Transit Corr�nission. ' Costs The cost factor will be one of the restrictive features of this program. Actual costs are not available at this time. Estimates will depend on the degree of sophistica- t tion, the type of computer system used, as well as other factors. � Technology The technology does currently exist in both manual ' techniques and computerized systems. Current manual scheduling procedures are extremely slow and inefficient. Automation of this procedure would improve the frequency ' . and thoroughness of the schedule analysis. Agency Responsible for The MTC would be responsible for any implementation of ' Implementation this program, which involves constant monitoring of transit service. Summary and Critique The cost, hardware, and technical expertise needed make ' this approach justifiable only on a total metropolitan level . The city could recommend that this program be explored by the MTC but involvement by the City is not � recommended. 4.3.1 .5 WORK SCHEDULING CHANGES ' Conc�pt The concept calls for staggering work hours , instituting flexible hours , or utilizing a four-day work week. Alter- ing the present work start and end times would reduce the peak transportation system demand, thereby alleviating , pressures on transportation systems. By reducing peak hour pressures , existing system capacity would be increased and be capable of serving larger future demands without ' increased capital outlay. The most visible benefit would be less crowding on peak hour buses and, therefore, increase comfort and speed. From the evidence, it appears that a , more efficient transit and overall transportation system might be realized by the implementation of this program. Implementation Needs The primary implementation needs would be organizing of ' employers and employees in large enough numbers to effect the desired results. ' 25 S ' , Costs The costs to business or the City of St. Paul would be , slight, if any. The costs would primarily be personnel for organization and management. The Downtown Lower ' Manhattan Association spent $50,000 implementing the staggered work hours prqgram which impacted and changed the schedules of approx�mately 60,000 employees. The program for St. Paul would not involve as many employees. ' It is assumed costs would be proportionately lower. The other cost factors for this sub-program would be the cost to the Metropolitan Transit Commission. The changed work ' schedules would necessitate changing bus scheduling to accommodate the longer peak period. However, the longer peak period would not demand nearly the volume, nor the ' f requency of bus operations as is required by the present short peak period. The four day work week also wou.ld stagger the peak period. ' Also, because of the four day week instead of five, each individual driving to work would accrue a work trip energy savings of 20 percent per week. Weekly transit demand ' would also decrease. . Technology The technology for staggering work hours or implementing a ' � four day work week does exist. Literature is available on methods of implementing staggered work hours programs. Atlanta, New York, Washington, and Crystal City all have staggered work hours in operation as a low cost transporta- ' tion alternative to expansion of existing facilities. As shown, several St. Paul companies are using staggered ' work hours as a method of reducing their in-hour employee service demands , such as cafeteria or lunch facilities. This can be applied to city services to extend their , usefulness without additional investment. Figure 4-2 indicates the employers in the downtown which were surveyed by phone and whether or not they presently ' have staggered work hours programs. The staggered work schedules presently in use involve minor alterations to the 8:00 to 4:30 day, i .e. , primarily 15 minute intervals ' one way or the other. Figure 4-3 presents the relative emissions by hour in the downtown area and, as indicated, one can readily see that ' the emissions build toward the p. m. peak and substantially drop after the peak hour. Therefore, staff would recommend that substantial changes in the peak hours shoudl be pushed ' to later than 5 p. m. rather than earlier. i t 26 ' 1 , ' FIGURE 4-2 STAGGERED WORK HOURS IN C. B. D. ' Would Some form o Future Staggered Number of Employees ' Name Staggered Plans for Work Hours Staggered or Mode of Remarks of Quality of Work Hours Staggered be a Not Staggered Transportation and Future Firm In Effect Work Hours Hardship (start at 8 A.M. Estimate Possibility 0 Sta ered Sta ered Shared Alone ' St. Pau Yes Continued No 1,742 , oo ys em Companies Flex. Hours N. S. P. Yes Continued No 800 X X Good System ' Am. Hoist No Possible ? 1,250 X X No System and Derrick Possible Cort�nut-A-Van West No Against Yes 2,000 X X No System ' Publishing , Resist Change Burlington Yes Continued No 4,000 employees Some Bus X Fair System - Times Northern Flex. hrs. not all staggered & Carpool Too Close Together ' Gillette Yes Continued No 1,000 total employees X Good System, bit Company not all staggered Increasing Departmentalized American Yes Continued No 150 total employees X X Departmentalizedng Time ' Bakeries lst Nat'1 Yes Continued Initially 70 630 X X Inc�ease in Bus and little Bank Car nol (Gas Price) actual staggering ' Minnesota Yes Continued No 350 350 Some Bus+ X n y a use sys em rying MuLual Carpooling to increase bus, carpool use Econ. Yes Increasing No 800 total employees Some Bus+ X Sign up Available Lab. Flex. Hours not all use flex. Carpooling Drive Last Fall '74 ' Northwestern Some None Yes 500 750 Carpooling� X Majority not staggered Bell Bus , X = No Available Information ' ' t � ' ' 27 S ' ' ' FIGURE 4-3 . ST. PAUL CBD CARBON MONOXIDE EMISSIONS ' ' VMT in thousands Kg of Co ' 15 4000 ' 14 3500 ' 13 30U0 ' 12 � - ::: . :;��;��„; 2500 `�� '. f ' �� a,��r..x�?>:::,rg,. :�." �>�:»> >.: '� � _�;�� s.>' '�"'�`��:�:. ::�;K�'%�'�>:�:>`� � 2�� 10 �� ?;`';:: :. ' �,�?.,:.,�::»; . <:.;:. �. <"4:`:>.>:��:;��`::::>:::::: v ;:: � ::. �� ' � ..,��:,`�;`•::.::<�-,:; ,h ,:�::>: � 9 ��`�;;: � >i;� .. t.;�..: �`'��`, � , 1500 , < ,� : �.Y,.':...::,.;,r,v�A��,.�,C....�::....::::3..F' ��:: � ::. l :::�;:Y' .:::C�.::�;<:::::.r.. o:.... ::<::�::.:. y :;.:k..�:+, C:Y<: : :: .::.:s::5'.:.: .••:d.i �::::.::::. ..�..,:::::'. :.::::?>%.i" '. 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' �':` �..:ffi..i::�.::;:';.. �:�" :::?€,'.::'r::o::i#'.:>: 7 t 500 6 ' 5 p 6 7 8 9 10 11 12 1 2 3 4 5 ' HOURS CO Emissions in Kilograms � Vehicle Miles Traveled ' . ' 28 ' ' ' Agency Responsible for The responsible agency for implementation of this program Implementation would be the City of St. Paul . However, the Metropolitan Transit Commission has retained Barton-Aschmann Associates ' to analyze the feasibility of varying work hours in St. Paul and Minneapolis. ' Summary and Critique The draft of Variable Work Hours in the Twin Cities Metro litan Area, prepared for the MTC by Barton-Aschman ssociates , nc. , February 1977 , may be surnmarized as follows: ' - The most significant impact variable work hours could have on transit operations, is the reduction of bus ' fleet size. - It would be extremely difficult to get employers and ' employees to voluntarily accept the work hour staggering needed to achieve even distr�bution of buses. - If a voluntary program were utilized, only a few in- ' dustry groups (finance, insurance, real estate, govern- ment offices) have the potential for participation. ' , - If a mandatory staggered work hour program were imple- mented, a situation which is not likely to occur unless a national emergency were declared, efforts should be ' concentrated on achieving an even distribution of vehicle leave times as opposed to an even distribution o�emp��oyee leave times. ' - Selective, individual employer variable work hours programs to reduce local traffic congestion or to improve transit service, appear to have the best chance for ' current implementation. - Assuming government control over start/leave times , some savings in capital costs and petroleum utilization appears ' likely from the implementation of the variable work hours program. , - Because of the general lack of employer support for the area-wide variable work hours program under current conditions, it would be extremely difficult to implement ' such programs without substantial incentives. - An area-wide variable work hours program would have a better chance of implementation under times of extreme ' national concern (such as a petroleum crisis. ) The four-day work week and staggered work hours appear to ' offer substantial reduction in commuter peaking at an extremely low cost, but the above study indicates a number of implementation difficulties and lower benefit than ' originally envisioned. 29 � � � The above study utilized Minneapolis CBD information; ' therefore, changing work schedules in downtown St.Paul may be feasible and beneficial . The City Planning Office should initiate a study of changing work schedules in ' downtown St. Paul and sMould request the participation of the MTC. Any evaluation of work scheduling changes should consider 1 these key questions: - Is there a single large employer (the federal , state or ' local government) , or a strong merchants ' association within a specific portion of the central business ' district favorable to the system and, therefore, willing to take a lead in implementing such a plan? - Is the area one in which most offices are to be newly ' opened, such that employee scheduling and arrangements are disrupted anyway? With anticipated major new ex- pansion downtown , this is a favorable aspect for St. ' Paul . - Is the plan one which union officials will accept? (Note � that unions generally oppose longer daily hours as well ' as four day work week in which the three days off are not consecutive. ) In any �urther study of staggered work hours , the most important question is the extent ' that hours can be changed without interfering with the function of the affected businesses or public agencies. Without this data, campaigns to persuade reluctant ' employers and employe�s would be premature. 4.3.1 .6 PREFERENTIAL TREATMENT FOR MULTI-OCCUPANT VEHICLES Concept The concept is to donate a roadway lane to the exclusive ' use of multi-occupant vehicles and is intended to improve travel time and overall appeal of transit use as well as other multi-occupant modes of travel . Ideally, this in- ' creased appeal would induce a mode change from auto to bus. The majority of the information presented here on preferential treatment of multi-occupant vehicles is from ' the Department of Transportation publication, Low-Cost Urban Trans ortation Alternatives , Volumes I and II. Most o t e materia app ies to ine aul use but application can be made for collection and distribution centers , such ' as the CBD. The phrase "preferential treatment to multi-occupancy ' vehicles" can claim manyi definitions and applications ranging from simple freeway ramps to lengthy stretches of limited access roadways dedicated to the exclusive use of ' 30 ' ' � � buses and other multi-occupant modes of travel . Al1 definitions have these operational characteristics in common: (1 ) only buses, taxis, car pools , van pools , and � emergency vehicles, may use the facility and (2) they are primarily oriented towards relief of peak period congestion. Frequently, these facilities are in operation only during the peak hours. In some cases, twenty-four hour operation , reflects the more extensive round-the-clock congestion ex- perienced in that particular environment. (3) The facility is usually intended to provide the bus rider with a trans- � portation advantage over commuting by auto. Implementation Needs The recently completed report Im rovin Transit 0 erations ' and Facilities in Downtown Areas - Cit of St. Pau con- c udes that no exclusive faci ities , either bus streets or reserve lanes , should be implemented in downtown St. , Paul through the 1980's even though bus loadings during the peak hour are expected to increase from about 200 loadings in 1975 to between 300 and 350 in 1985. The number of persons using autos for canmuting will decrease , because of increased bus patronage. When this is con- sidered along with the proposed street improvements for Eighth and Ninth streets no congestion should result and, � , therefore, no exclusive facilities should be provided in downtown St. Paul . A determination should be made as to the desirability and feasibility of providing preferential � treatment for multiple occupancy vehicles on roadways leading into or out of the downtown area. Costs Implementation costs for the preferential lanes would be � incurred primarily for signs indicating that only multi- occupant vehicles are allowed in the lane or that the buses will be moving opposite the flow of traffic or � striping of the special lanes. Other costs are assocaated with prohibiting general traffic ' from using certain portions of the steet system. This may not be a real loss if under-utilized streets are used for these lanes. In addition, arterial lanes may generate interference with left turns. Arterial lane service may � provide the indirect economic savings associated with shortening transit rider travel time. ' Technology Multi-occupancy vehicle lanes may be implemented without requiring application of sophisticated technology. The City of Minneapolis has a working example of CBD XBL's � (Exclusive Bus Lanes) . The following is a summary of the results and recommendations taken from the Bus Lane Study Committee Report, A Study of Alternatives to Reverse Flow � Bus Lanes in Downtown Minneapolis , February 1976: � 31 . , � - Bus travel time on Marquette and Second Avenues was re- ' duced 20 percent during peak periods. - A seven percent increa�e of bus system patronage was � recorded and traffic volumes decreased by 10 percent on these streets. The potential for increasing the person movement capacity was felt to be available especially � when considering the 1980 bus volume increase projected by the MTC. - �'he reverse flow transit ]anes were concluded to be an � obvious extension of the I-35W project. A MTC transit ridership survey found that'63 percent of the riders felt the exclusive lanes to be an improvement to the ' system. - Reverse flow bus lanes improved efficiencies of transit, taxi and truck operations. This was attributed to the , fact that trucks and taxis could utilize the bus lanes during off-peak periods. - Average .automobile speeds increased from 11 .2 miles per ' hour to 11 .6 miles per hour on the two streets. ` - Recommended that the reverse flow bus lanes by made , permanent by installing a one-foot wide mountable median separating opposing traffic flow. - Recommended the implementation of a bus/traffic signal � pre-emption priority system and installation of mid- block signals to increase the people movement capacity � of these streets. Agency Responsible for If perferential treatment for multi-occupancy vehicles is � Implementation found desirable in the future, the agency responsible for implementation of this program would be the MTC with the cooperation of the City of St. Paul . The City of St. Paul , would have to designate the streets to be used for XBL's and would possible have to bear costs of signing and striping. _ Summary and Critique The city and the MTC should not pursue this program during � the next decade. The city should analyze the use of preferential treatment on non-CBD arterial streets and' on ` � the main access and exit routes of the CBD. Staff should research the potential impact on downtown business by the formation ;of car pools and van pools. � � 32 ' � ' ' 4.3.1 .7 BETTER DEFINED ROUTINGS AND TRANSFERS Concept The concept of this program is to better inform riders of route locations and transfer points. The result of this � ' program would be to make people aware of routes and destinations and of how efficient connection can be made. Implementation Needs The primary implementation need is a system of signing and ' information dissemination for transit users. The study Im rovin Transit 0 erations and Facilities in Downtown reas - Cit o St. Pa� e ines an recommen s a system, ' inc uding an imp ementation program, which would signifi- cantly improve the ease and usefulness of transit travel . , Costs Costs estimated in the above study to design, purchase and install the signs and information system are $72,000 in 1976 dollars. , Technology The above study defines signs and three functional classifications , regulatory, warning and informational . The major emphasis was placed on informational signs and � displays. The study made six recommendations for signs and information systems as follows: , 1 . Freestanding bus information display structures at several busy downtown locations , not necessarily bus stops. 2. Bus route and principal stop identification maps at ' each bus stop. 3. Description of fare collection procedures at both the bus information display and the bus stop. � 4. Better identification of the dime zone and the way in which it operates. 5. Identification of services between downtown destinations ' and fringe park-ride facilities. 6. Identification of arriving buses by route number at busy bus stops and in nearby waiting areas. This requires the use of the Electronic Bus Idarttification ' System. The Electronic Bus Identification System provides visual ' displays in bus waiting areas to indicate the distance away of specific buses through the use of automatic equipment. This equipment is either available or currently under ' development, although the "System" has not been assembled as such. , Agency Responsible for The responsible agency for this program would be the � Implementation Metropolitan Transit Commission with cooperation by the City of St. Paul . ' 33 � � , Sumnary and Critique This highly corr�nendable program is scheduled to be in- ' stalled in 1977 and 1978. : The schedule for the Electronic Bus Idegtification System , is to design, build prototype, demonstrate and modify from 1977 through 1980 and to install the system from 1980 through 1983. , The city should support the MTC in the implementation of the above recorrnnendations. ' 4.3.1 .8 PROMOTION THROUGH ADVERTISING OF BOTH TRANSIT USE AND TRANSPORTATION CONTROL PLANNING EFFORTS ' Concept The concept of this program is to increase transit use through advertising. It is also the create an overall awareness that both St. Paul is violating standards and ' is attempting to resolve the problem. This program would and could take many forms. It is anticipated that this would coincide with any overall downtown public relations efforts to be undertaken by the Chamber of Commerce. The � benefits .of riding transit could be heavily stressed and encouraged for employees of the downtown area. The , positive benefits could be expanded upon much more than , the Metropolitan Transit Commission is doing in its advertising program, such as cost savings, park-and-ride facilities, ease of entrance and exit, etc. Implementation Needs One intriguing technique is an employee handout package. � The personnel office would disseminate information packages to all new employees which would include transit � schedules for his place af residence. Car pool matching forms and f ringe parking 'information could also be included. , Several tasks must be completed before actual advertising takes place. The MTC may be willing to assist in these efforts, or may have already explored these tasks: , - Determine information to be conveyed. - Determine how best to disseminate information ' with greatest effectiveness. - Develop graphic displays, brochures , commercials , ads , etc. , Costs Costs of this program depend on whether a private adver- tising company is used, or� the lavishness of the program, on the coverage desired, dn the number of displays , and � on others. ' 34 � � � � ��;��?�� ' Technology Technology is not a problem in the implementation of this program. ' Agency Responsible for The agency responsible for this program would be the City Implementation of St. Paul . Summary and Critique Although not quantifiable, benefits are expected to be ' substantial . Staff and technical committee members feel the current MTC advertising is not adequately selling all transit benefits. Several different levels of adver- ' tising are felt to be necessary, i .e. , information booths , phones, employee handouts with paychecks , and television. ' Detailed discussion should take place with MTC in this regard to determine if mass transit advertising is only a metropolitan function, or if a local community could assist MTC efforts and stress the local function and ' benefits. Actual cost and possible cost sharing will await final program definition. I4.3.2 INCREASED AUTO OCCUPANCY THROUGH CAR POOLING, VAN POOLING OR OTHER PARA-TRANSIT EFFORTS ' There are many possible para-transit programs. There are also programs that encourage the use of para-transit. Staff has pared down the list of possibilities to four programs: car pooling, van pooling , preferred parking ' for multi-occupant vehicles, and promotion and advertising. The MTC, Mn/DOT and others sponsored a recently completed ' study entitled, Total Commuter Service Demonstration, conducted by Public Service Options a non-profit research organization) . This study addresses and analyzes the , issues involved in increasing auto occupancy programs. A shared-ride multi-employer demonstration program is plan- ned for South Hennepin County, starting in September 1977. The study and the demonstration program should resolve � most of the problems associated with implementing and con- tinuing a total commuter service. Both the study and the demonstration program should be very useful to the city ' for the implementation of shared-ride programs for downtown employees. Staff recommends that the city closely monitor this demonstration program and participate, if ' possible, and that the city should not undertake any shared-ride study of its own until the demonstration program is completed. ' Auto occupancy is critical to yielding any benefit from the increased mass transit and car pool use strategy. This fact contributes to the importance of the following , programs. ' 35 � ' 4.3.2.1 DEVELOP AN ONGOING CONTINUOUSLY UPDATED ' CAR POOLING PROGRAM Concept The concept of this program is to provide a car pool matching system that would be used by downtown employees , and a system that would be run on an annual , or semi-annual basis. This car pool matching program would not be a one shot project, such as completed by the Highway Department ' in 1975, but rather would be a program that could be con- tinually tapped by new e�nployees , or an individual choosing to try car pooling as a method of commuting. Staff has reviewed the concept with the Mn/DOT and City ' personnel having knowledge of car pool matching systems and has concluded that it is feasible for the City to utilize existing computerized systems on an annual or , semi-annual basis. Implementation Needs The implementation needs for this type of program are ' standard to all car pool matching systems - canvas employees with a common questionnaire form, and match through the use of a computerized system. The Ntin�nesota DOT has agreed to run the computer program if the city would pro- ' vide the keypunch information and conduct the surveys , collecting forms, etc. A program could easily be designed , which would make forms available to employees through , their employer to allow them to receive names of possible car pool matching individuals. Access to the system could be provided at any time by using forms printed in news- , papers or newsletters. These forms would be collected during a period of six months or 12 months , keypunched, and run through the program. Matches would then be re- turned to the requesting individuals. Staff does not , anticipate any problem with dissemination of the forms. This could also be accomplished through payroll check attachments. ' Costs The cost should not be substantial . It will include print- ing of forms, administration , and assistance in collecting and keypunching forms. One staff inember within the , existing city structure could probably administer this program. Technology The technology for the implementation of this program is ' readily available. The City�has undertaken car pool match- ing efforts in the past. This program would invariably be ' a continuing effort. Agency Responsible for It would be the primary responsibility of the City to Implementation design and administer the program, collect forms , and ' disseminate matches to the requesting individuals. � 36 ' � � ' The City could receive assistance from other interested agencies. The Mn/DOT will run the computer program at no expense to the City. The Metropolitan Transit Commission ' is concerned with increasing auto occupancy and may be willing to provide staff or monetary support. , Summary and Critique Even though this program appears to generate mixed response as to its possible success , the staff proposes success be analyzed through use, not conjecture. This program is feasible in the short-term with minimal expense. Questions ' left to be answered are below: - Should the City use the Mn/DOT car pool matching ' program with its limitations , but larger data base, or a formerly used City system (designed in 1973) which has a larger percentage of matches and ' implemented car pools? - Should the system be run every six months or every year? - Should all downtown employees be canvassed (recom- , mended by staff) or should the program be merely advertised? - Will program success be enhanced by the implementa- ' tion of additional incentive programs, such as allowing car pools on future busways and giving car pools preferential parking? ' 4.3.2.2 INCREASED USE OF VAN POOLING Concept The Minnesota Energy Agency, in cooperation with Mn/DOT, has been exploring the expanded use of van pooling through- ' out the metropolitan area. One program is the multi-employer van program. The concept behind multi-employer van pooling is to have a common pool of vans used and matched by the ' employees of several firms. The primary qroblem with this type of system is the difficulty in coordinating employers into a mutually usable van system. ' Implementation Needs Besides the need for a program coordinator, the primary need is to explore the feasibility of this program in downtown, either on a multi-employer basis or with several , large single employers. Costs One major drawback to multi-employer programs at this time ' is the insurance rates (approximately four times more ex- pensive than for single employer programs. ) Mn/DOT will provide technical van pooling expertise for the City. Other costs of capital expense and administration would ' be borne by the program sponsor. ' 37 ' • ' � Technology Although there are very few multi-employer programs operating, it appears t�echnology is not a problem. ' Agency Responsible for The probable responsible agency would be the Mn/DOT and Implementation the the interested employers. The City will probably pro- ' vide car pool data and play a coordinating role in the initial stages of the program. Federal funding is avail- able for van pool programs. Staff feels if adequate , interest is generated by a forthcoming program, that federal funding should be requested. Surrunary and Critique Van pooling has been successful with individual large t employers (3M, Honeywell , General Mills) in reducing park- ing demand and congestion. It appears by utilizing the entire downtown area as a potential van pool user source, ' an extensive multi-employer program is possible. Several issues will require research in the detail program design stage: - How many employers would be willing to financially sup- ' port a cooperative van pool program? Are there sufficient numbers of employers who would wish to ' cooperatively sponsor a program? Are ther sufficient numbers of interested employers to warrant a city operated program? ' - What are the financial figures behind van pooling programs , i .e. do they pay for themselves , or is subsidization re- quired? Can the program be financed without federal ' funding? - Are the increased multi-employer costs prohibitive from ' either a business association or public agency stand- point? - Can reserved parking be provided for program vans? ' These questions can be answered relatively easily and staff concludes this program is well worth exploring after , the Total Commuter Service Demonstration program has pro- vided practical working knowledge. Concept 4.3.2.3 PREFERENTIAL PARKING FOR MULTI-OCCUPANT VEHICLES ' The concept of this program is to provide incentives to car/van pooling. Although this program appears incon- ' sistent with the desire to minimize long-term core parking , it provides increased auto occupancy for trips not adequately served by transit. The MTC expects this to be a successful program. T,he provision of more convenient ' and less expensive parking spaces for vehicles with three � or more individuals may encourage the use of car/van pooling. This program has been used in other areas with t some success. 38 ' ' 1 ' Implementation Needs The implementation needs are not entirely known; however, the general need would be for convenient parking at a subsidized rate for vehicles with three or more individuals. ' The parking attendant would record the number of these vehicles and then be reimbursed for the difference between the normal rate and the subsidi2ed rate. A fund , estab- ' lished to cover this subsidization, could be supported by employers or could be a part of a total city parking financial package. ' Technology The technology for this program is not a problem. Agency Responsible for The responsible agency for the implementation of this ' Implementation program would be the City of St. Paul . The Metropolitan Transit Comnission has expressed interest in the implemen- tation of this program to reduce demand on transit vehicles tand there may be interest in a cooperative venture. Sumnary and Critique Although the success or benefit of this program cannot be substantiated, it is felt that an experimental program ' could be implemented easily. Questions to be resolved in program preparation are: ' - Where should the parking space be provided? - Should it be consolidated or spread throughout the CBD? t - What rate should be charged? - How will the subsidy be reimbursed to lot operators? - How should the subsidy be financed? ' 4.3.2.4 PROMOTION AND ADVERTISING TO INCREASE VEHICLE OCCUPANCY BY CAR POOLING OR VAN POOLING Concept The concept of this program would be to develop mechanisms ' which promote the use of car pooling and van pooling, and expound its general benefits to the individual and to the city. Newspaper ads and high traffic area information booths are two ideas. Along with this information could ' be car pool matching forms used to enter names into the computer system. This would, hopefully, convince some individuals to explore the use of these commuting alterna- , tives. Implementation Needs Implementation needs would be the design of literature ' (one example of which is shown on the following page, printing, designation of information areas , and limited administration. ' ' 39 ' ' 1 1 SEE HOW MUCH MONEY YOU CAN SAVE BY CARPOOLING— ANNUAL COSTS ANO SAVINOS OF ORIVINO ' t TO WORK FOR A 20-MILE ROUND TRIP COBT OF IN A IN A ' qRIVINO ALONE COMPACT STANDARD Qewllne and Oi1 i178 i294 Maintenance and repalr 109 1 SO ' ParkHq 145 1a6 �� 1 T6 188 ' Deproolatlon 148 Y50 • i749 f948 � SAVINOS PER PER80N IN Two-member oer pool ES9Y �427 TMreeyeember oar poot 427 568 ' • • pqwyesmber ear pool 074 B i 7 fiYe+nember ex pool SOt 661 � •carpooling saves ener�+ ' � •less ene'r�a+ means Iess vollution ' • ht at's good for your lungs! • • • • � • w...b.........i Nw�..,.e�w�w..» ' . ' Costs The costs of promotion depend upon the degree to which the City wishes to advertise and promote car pooling, van pool- ' ing , and the other programs. As with the mass transit promotion effort, the lavishness and whether a professional advertising firm is used are only a few of the factors that ' can influence cost. Staff has made a rough approximation of an initial budget for all promotion efforts of twenty thousand dollars. ' Technology Technology is not a problem with implementation of this program, however, advertising expertise will be needed. The Total Commuter Service Demonstration program will test ' promotional and informational material and techniques. Summary and Critique The Total Commuter Service Demonstration program should be ' monitored by the City to obtain useful information for an increased vehicle occupancy promotion in St. Paul . As in the mass transportation promotion effot, the advertising ' material should be tailored to St. Paul programs and to the benefits of car pooling and van pooling. Because of MTC interest in expanding the use of "pooling" programs , , assistance may also be available in the implementation of this program. The same tasks or issues apply to this promotion effort that apply to the transit ridership t promotion program. 40 t � � ' 4.3.3 PARKING Fringe parking has been discussed for many years and 'is ' ' one of the primary strategies for reducing carbon monoxide emissions in the downtown area. The program must be initiated quickly to realize any short-term benefits and ' to begin the development of the ultimate program. Any short-term or interim f ringe parking will require a system of parking lots on available land in fringe areas and a ' people mover or shuttle system. Concurrent with these efforts must be the continued planning of the ultimate fringe parking system of ramps and lots. Other parking programs discussed in this section are park-ride facilities ' and adjusting parking fee structure. 4.3.3.1 DEVELOP AND DESIGNATE INTERIM FRINGE PARKING LOTS ' AROUND THE DOWNTOWN AREA Concept The concept of this program is 'to attract long-term (all day) core area parkers to the fringe of the CBD. The designation and construction of interim fringe parking ' lots and the implementation of a shuttle bus system could initiate acceptance of fringe parking. During this period of interim fringe parking lot use, the preparation of ' , final plans , siting , and appropriation of funds for fringe parking ramps could be completed. Fringe parking has two interdependent parts of which neither can exist alone and ' achieve the intent of this program. 1 . RECOMMENDED FRINGE PARKING LOTS SHOULD BE DEVE�bPED FOR USE DURING THE INTERIM PERIOD FROM THE PRESENT TO THE ' CONSTRUCTION OF PERMANENT FRINGE PARKING RAMPS AT THE LOCATIONS INDICATED ON FIGURE 4-4. ' Implementation Needs The implementation needs for this program would be appro- priation of necessary funding for the development of lots , and the management of these facilities. It would be ' anticipated that the facilities would operate at a deficit by using a subsidized rate to encourage individuals to park in these fringe areas. t Harriet and Navy Island "free" city parking lots are fully occupied most working days. This illustrates that lower cost parking is in demand. Due to the fact that downtown ' parking areas average one dollar per day and more, the City should be able to attract large numbers of parkers to a fringe facility if offered at approximately 50 cents per day. ' ' 41 ' • ' 1 ' FIGURE 4-4 INTERIM FRINGE PARKING LOTS . � � � �� ., . _ . , - ,,. �; ; �� ; , , � ; : _ ._ .. ,,., � _ ; � .__ �. ^ ,� , _ � � ; � - � _ ; �� i �� _ �� ; � � �_ „ .� , �� { _� _ � � .. ��- � � , . �. _ _ � �� , ,•, , , ' �� . . �a t . ��.. ..k� • � . � � � i . , ... . _.. .. . . . - . .._ , �—_'". ... . ... -, . . ` . . . . - � � ` « _ .. .-. . � r ,' .. � ' i.._ , � .,'_ `e. ". - -- ; , � � � :A�. ��" '•," � „ � � �> , � .. _ 7 -, 1 . .; .. � % - � . . � �. `� � , �� _. . . �, . � ., � " � r .. . . � � , .� . ., „ � „ . . � ._ . ' � � . . . . . ' � � ... . - . . . . . � . ..` ' . , � . . .. . � .. . . 1 . . .. , � ., . . ,� \ / ' . , ., . r , . .. , /- .. �. �. � , . . � , .. � i � ' . . ..� �.� �. V � +� J � � .. . � . � . . . 1 -�; . ,,. :..: . � . . . ' . � .� � . , � � ., ' - ,f' , � ,. . .. � . .. �. . . . . ... .. ' ' INTERIM LOTS � HOSPITAL ' ' 42 ' � � ' The present Harriet Island-Navy Island parking area will shortly be eliminated due to new expansion and rehabilita- tion of Harriet Island Park. Replacement parking will � have to be provided before the closing of these lots if downtown CO problems are to improve and not grow worse. � The lots indicated on Figure 4-4 should provide space for approximately 5,000 vehicles if existing topography presents no problem to the optimum use of these land areas. , Costs Approximate cost per lot space is $350.00. The appropria- tion of necessary funds for parking, paving , curbing, protection, screening, construction of waiting shelters , � and attendant shacks and attendants will be necessary. The exact cost of construction and annual operating income or deficit has not been determined at this time. A fringe ' parking system appears to be a.desire of the City. This is the first step toward implementing that policy. � Technology Technology is not a problem in the implementation of this program. Agency Responsible for The City of St. Paul will be responsible for the implementa- i • Implementation tion of these fringe parking areas. Sumnary and Critique The development and use of fringe parking facilities will � assist in reducing carbon monoxide emissions within the CBD. This program is implementable in the very short term and should yield relatively immediate benefits if combined � with a shuttle system discussed below. Lot design and finance projection could be provided by HRA and Department of Public Works. ' A parking program funding arrangement will be necessary to accomplish any of the needed parking changes. Although the most expensive short-term strategy for the City, ' fringe parking is a badly needed program for CO reduction and the maintenance and enhancement of a viable downtown. Financing methods include parking district assessments , � surcharging, development district, and other possibilities. Lot design can be initiated as soon as financing is arranged. This will be further covered in the CBD Parking Plan to be completed; in 1977. I2. DEVELOPMENT OF AN INTERIM INTERNAL CIRCULATION SYSTEM � Implementation Needs Fringe parking cannot succeed without an efficient cir- culation system to connect the fringe parker to his work destination. This circulation system can take many forms � including: an automated people mover, a shuttle bus system, a shuttle bus on exclusive lanes , an aerobus system, a shuttle loop system, etc. , or may utilize the existing bus system (specifically, the dime zone. ) f43 � � Staff considers the exis�ing bus system as inadequate to , meet the level of service demanded by fringe parking facilities (with or without the dime zone) . Transit ser- vice from fringe parking facilities to work destinations � have proven to be the reason for the failure of acceptance of fringe parking in numerous American cities. During the morning peak, which is the highest demand time for fringe ' parking, all existing routes are extremely crowded. Also, the existing MTC routes do not provide the required high level of service to the proposed fringe facilities. It is possible that modifications could be made to the � existing MTC routes to provide more constant service to fringe facilities; however, the possibility of providing preferential treatment to the fringe facilities would � still be a problem. Therefore, the staff considers that the success of a f ringe parking program depends upon pro- vision of a separate shuttle system at least during peak � periods. ' Time, cost and other restrictions require that a short- term program be restricted to a shuttle bus system in � St. Pau] .. The shuttle system discussed here should not be confused � � with the former MTC operated Civic Center QT. The pro- posed system would resemble that defined on Figure 4-5 which indicates only one of several routing schemes de- veloped by staff. This system differs from the former � Civic Center system in that: (1 ) the system operates on two distinct routes ; (2) the system operates with shorter headways , thereby more convenient service; (3) the system � is recommended to be ope�*ated by the City and not con- strained by the restrictive union agreements which exist with the MTC; and (4) the system is coordinated with ' existing bus service. It is estimated that 10-12 buses would be required at peak hours and 6-8 during off-peak hours. This would give approximately 5 minute headways during peak periods and 7 minute headways in off-peak � hours. The operation of this sytem by St. Paul as presented above � may involve some legal difficulties. The MTC is currently involved in arbitrations concerning the desire or legality of having private operators within the MTC service area. � This issue may be resolved very soon. Staff believes an arrangement must be made to avoid the problems which occurred with the Civic Center QT shuttle. The only method which currently appears possible is separate city � operation. If these problems are resolved, MTC operation is a preferable alternative. � 44 � � , � , FIGURE 4-5 INTERNAL SHUTTLE BUS SYSTEM ' -: i . . - -- , '� ( L_ � � ` � � ` I � ;,� �-- 1 , , �. �.._ _ _..I� , l_::: --� '--- i r- _ '��} ,,,, a� � r ��.. ', . . ......� r --, ' ; i �: �� I ' _. .. I \� i , i� � i_ Jr _; ' ; � =. _- ' 'f� �l �` - � , j. � }': � ,, I � �. � i _-- -- - ��,- ; ' _ � . .� t - l ..J L._ �- 4� I , - ��i(i l. _�.. i� . t � . L..__ ^, ...... � .�..., Q r " � . . ._ ._� � . . _....,. ��- � r� � �-�� ,; � ¢�� i .' , . � ,, ,� � � r �. �L ` � l �`� � ; ,6 � > - - �, , , � --- -_� ,- , . ,,. ,.. - , , , , . , , � ; � � `i �, �_..�.. , ,1 �� ,� . � � � �I- � � � �� "��^ `' �r � /��/ ��` ` , � - I --� --.._ . _ t � ! : ' � � � �� l = ` , �� i � � '� ..._.�' .�\�\ Y �1 . '. i � .' : � �� r)�..�.` � � �� \ � �✓ / , i \ ' - '•i�i :/ � \�. � \ l 1 `� S ��\\, �/ A/� ' , I i i.. . � � . � J�..'. �. }' �� '�4� �\ / '� � > � _r �� ' � , � �� . � _ � , . f � j � _. > '�" � > < , , . � t "�,_._,_ r' � ;, _ ' � �_: ° - - , _ -_: � --- r `.` �,� , i _ _ . . :� ..,� < , � _.,. .. - � , , _� . .. � � � �� ;,\\ � li ,� '��l. C `.i �� y � �� , � : � `> > � �_<�� ; v ``�� ^ _'� �/ �\ '` . � . \� �n� /� � .. _ , .. .. \ � � ,, ..._... _! • • !\� \:.' / '.• .... , ... ' .. . . .. . . G �' � ' i � � � �-� ,. - ; ,, __ _ ._ // , � ' - _..� . � � . , . �� , . , ' ; �� .._.. _ � _ : � _ , , J . �" ' ., � - , , , � ;. � , . , � / � - i � .�� n � � l �.. / ^� . � . r' � � , _; .., ��. i . .._.- ,,..� ;.,= c .�:.� _. _ - � . _ _ � � '�A �� / . ..-� . �.� ��'�� i , � �� . ,� , � � �. � � � � � � � � / �� ,� , �� ; ; �✓/ � � � / \ l � � _. , ��_ ,, i _ '� /,. �. u%^�./� ��, � �� : ✓�/� �C ,. , , ' , � � , , , � � � � / �< �'�i% � . �� , , , , ,, , � , _ 1_ _, � , ��. � � �� > � �� , . , . _ �% � � � ) � �� ' ' � �� r�' '" � � , . , ;,, , -. � �'�.._. � ��% ,� �/� �� r � � �� ; �,,__ . � ,_ , �� ;/ , �. �� , i �� '��i� � _ . �� l_, � � � � _ , _ � _, _ ,_ ,�� '� ,%" J ,. ' � �� %� �� , ,, <, ,., ,, ,, �� :' .,, , ,,, / , , ��' ' � � � � i �� _ ; , . . . , . , � � . � . . , � ,. . _� ,�: � _ � t � 1 ' 45 , ' Costs An approximate cost estimate was solicited for purchase ' and lease of 12 twenty-eig.ht passenger buses. The purchase cost was approximately $15,000 each. These figures would have to be expanded to include the salaries of drivers , ' , supervisors , mechanics; operating expenses; main finance costs , if purchased; insurance; yards , shop, and any other system improvements necessary. , In the lang term this system could continue, if operating efficiently, or be altered or changed into a more automated system as discussed in the current shuttle loop discussions. , Technology Technology is no problem with the provision of a shuttle bus system. � Agency Responsible for The responsibility, if owned and operated by St. Paul , Implementation will belong to the City. If separate operation is not ' possible, both MTC and St. Pau1 will have responsibility. Summary and Critique A `circulation system is an essential element for a success- ful fringe parking program. The shut�Gle bus is also a ' fairly effective interim solution fo.r f�inge parking. The shuttle bus system could be fi'nanced through a parking , program financing package as an element of the parking � system. One of the major purposes of the downtown -people mover (DPM) is the connection of fringe parking facilities with ' the downtown area. �he sh`ort-term solution to compliance with carbon monoxide standards is the provi�ion of shuttle buses to fringe parking lots and the long-term solution � could be the DPM which could not be implemented any earlier than 1980. If the DPM is constructed it would be hig'hly desirable to connect it to the permanent fringe � parking ramps. The circulation system should be implemented simultaneous- ' ly with the opening of the lots. The remaining issues to be addressed are: - What should be the minimum headway between vehiclesduring � on and off peak periods? - What should be the vehicle capacity? � - Are there any other functions the system should perform i .e. , internal circulation , connection to the Capitol , filling voids in the DPM routing, etc? 4.3.3.2 ESTABLISH ADDITIONAL PARK-AND-RIDE FACILITIES � Concept The concept of this program would be to intercept vehicles destined for the downtown at park-and-ride lots and trans- � fer the auto passengers to MTC buses. 46 , ' I 1 � ■ Several improvements can be made to existing park-and- � Implementation Needs ride facilities. Analysis of journey to work information will generate recomnendations for the location-of additional park-and-ride facilieieark and-r�dedfacilities � direct express routes with thes P ro riate and will also enhance their use. More app p visible signing of park-and-ride facilities would also increase their effectiveness. I endin upon several factors. If exist- Costs will vary dep 9 churches can be Costs ing lots , such as shopping centers and 1 used, the cost will be minimal . If land must be purchased or leashd 450 spaceng TheseVCOStssmaydbetbornesbymthe MTC approac $ ' the city, or both. ' is not a problem in.providing parking; however, Technology Technology locating park-and-ride lots is an inexact science. I The implementing agency for this program will be the MTC Agency Responsible for The City will supply Implementation with cooperation by the city. reco�rrnendations. and input to the process through the_ City � Rrr Planning Office, as well as possible fund some of the recommended facilities. (See 4.3.1 .2, Increased Visibility � and Convenience of Park-and-Ride Facilities.) ' The park-and-ride concept is attractive to the commuter Summary and Cr�tique and to the public for several reasons• ' - Park-and-ride facilities intercept cars at distant locations from the GBD, thereby reducing fringe parking space needs. ' . - Park-and-ride facilities concentrate commuters into multi-passenger buses which have lower CO emissions per person trip. , - The use of these facilities , along with properly planned transit service, can rival travel times of the private automobile. roaching - These facilities reduce vehicle loads in app ' roadways. - The use of these facilities will save the commuter , money. Questions left to be answered before implementation of this program are: ' - Where are concentrations of CBD warkers who are not provicted current convenient transit service and what is their route of travel to the CBD?Plannings currently , being studied in the .Office of City - What transit improvements could be made to increase park-and-ride use? ' 47 ' , I . r 1 _ � 4.4 DISCUSSION OF LONG- The City is required to alleviate not only the short-term TERM PROGRAMS problem of carbon monoxide violations by 1977, but the , City is also required to maintain compliance with carbon monoxide standards. Accordingly, staff has defined the long-range programs which will substantially improve the , , overall transit operation and improve the transportation a. The rimar rograms are system in the downtown are p Y P 1 w. discussed be o 1 .4. INCRE �SEC MASS TRANSIT USE Tr�e staff encourages the continuance of the programs � defined in the short-range transportation control plan. The continuance of these programs should increase the modal split beyond the 70-30 modal split goal for 1977. The goal of the Metropolitan Transit Commission is a 50-50 I peak hour modal split by 1985. 4.4.2 INCREASED AUTO OCCUPANCY I The described subprograms under the short-range plan should also be continued into the future. These subpro- ' grams should be continuing and ongoing for energy ' conservation purposes and other reasons. 4.4.3 PARKING ' As defined in the short-range program, the fringe parking system is very necessary for the alleviation of carbon monoxide violations in dowrrtown area. The short-range ' proqram included phase one, the interim frinqe parking system. The long range program would attempt to imple- ment the complete fringe parking system, the long range ' goal of the downtown area. The downtown parking plan will further define the exact phases of this program, but it will also be briefly discussed here. , 4.4.3.1 IMPLEMENT PHASE TWO OF THE FRINGE PARKING PROGRAM The phase two program includes the development of rimar ' (those serving the greatest demand) fringe parking ramps (Figure 4-6) and the initiation of a ban on additional core area long-term parking development. With �the devel- opment of primary fringe parking ramps and the attraction ' of long-term parking, the core area parking would be free for short-term use. Projections of demand and supply show that current downtown' parking space supply is more than ' adequate to meet short term parking in the downtown area; therefore, additional parking development would be an inefficient use of city resources. , 50 ' ' �'�� _,�_;v�: ' ' FIGURE 4-6 FRINGE PARKING SYSTEM . . , . . : � . � �� ,N ,. � , ..� , , ��_ , � _. � , r__ , � � � � � , , � � � ; � ! ; ; � ! � . . . __ � �� ]� , . _ � , � � � � � -- � � , �� . � � �� ; , � 4_ b, , ; , � _^ _, , .� — _ � _>� ` ` r , —�,...... —, - . , , � �� , �;�� . ,I.. ._ ., .--.... ,_. , . i —� � —� � �� I i_._ .. i � s ; . .._ .-. ! > / �� i: ' �\ ' . _.._ �.\� �' ��;2� �� ./(' ``�. , . � ..,.. � � . � � � � 1 ti . f� < � , , ,:� - , �� ; . , y , , . , , _ , ,. � �� - ., . _ , . , , . -° ;r_ F , q . . _. , ... , -- � ° > � � � � - � - , ,. . _ .. __ , . .. , , ,, � � ,� _ . � � - ; �:� �_ - � ' � _. , � y ' _ \ ' ;< � " ` �� . ' �;�� , ; .. , , , , � �,� , �; �� _.. .� r _ _ ., , � � � .� �, �� _ `' �' . ' _ , , a� / >�� . ^ � � � �� `' � ,A �� __ _ � � � i � i � : �� % � . . - , ,� °"�' ti � . , �, , � , i, _ � , � ,.,. �. . . . ,,.�r� �' � � , , i � i �, ., � '• ' ` � , �., �'i ",'-, , , � �i _.� .^. i - � ' _ � � � . ,.. � � � , - , v � ,: , `� � r / � �. � i ' / � � i,r t � , �� . � . � , �., - . � , „ _ ,. __ r .... , i _ e, „� �� , � ... / �� ' ..�." �:�._ � :. ,,. �� . . .. . . . � � ; � , � ., . , ,j . r . i � �� . �, , � .. rr /,- �/ �/ �' � "�� ;� � _ � ' ,� ... i � ALTERNATE FRINGE PARKING AREAS ' ............ RECOMMENDED PRIMARY FACILITY LOCATIONS ' , 51 . ' ' 4.4.3.2 IMPLEMENT PHASE THREE OF THE FRINGE PARKING ' PROGRAM Phase three would include the development of the remaini�ng ' necessary fringe ramp facilities to replace inadequate fringe lots and to serve additional directions of approach (Figure 4-6) , the establishment of a system for parking ' fee structure control and the implementation of a people mover system. Financial deterrents to long-term parking within the downtown area should cultivate the use of fringe parking. ' Substantial numbers of parking spaces wil� ;be available in the core area after long-term parking is t.ransferred to , the fringe areas. With less use, parking sho�ild decrease in cost without control . The economic viability of oper- ating parking facilities in the downtown area may suffer ' and the city may be required� to compensate the owners of these facilities through a tax deterrent or subsidization program. ' It is a�nticipated that the shuttle bus system will not adequately serve all fringe facilities and some sort of . automated people mover will be required. The proposed ' Downtown People Mover (DPM) would very adequately serve three major facilities. Provisions should be made to con- veniently connect this system with fringe parking � facilities and expand sery�ce to other ramps at a future date. 4.4.3.3. STUDY ON-STREET PARKING ' After the implementation of the long-range fringe parking program, the city should study on-street parking to identify problem areas. Parking meters are banned within ' , the Capitol Centre area where development or redevelop- ment takes place. As long as a whole side of a street is not redeveloped, parking meters remain on that side of the , street. The City Council made this decision at a public hearing on February 26, 1971 . By this action the City Council displayed their concern for the dependence that ' small businessmen place on parking meters to provide inexpensive, convenient, short-term parking. In any study the entire parking situation should be examined under full operating conditions considering the needs of small busi- ' nessmen, air pollution, safety, parking rates, parking subsidies, surplus parking spaces, street space competi- tion (auto vs. pedestrian) , traffic congestion, and demand variation (hourly, for parking and traffic volume) . One of , the recorranendations of the forthcoming CBD parking plan is to retain existing on-street metered parking spaces because of their present effectiveness in serving small ' retailers, businesses and institutions. 52 ' ' ' FIG�IRE 4-7 MAJOR STREET SYSTEM. CHANGES ' . _ . . _ _. , , . , ; , _ ' : � , . .; ; � - .. � ,�_ E _ � . -, . � � , � _ , ,.. -, � . �� _ � � � , � k 1 � . . ��Wonnector , 4:-. " �`� , ; , _ � ' arner Rd. ;.; � - - �" ' `� � �, i �� To I-3 5 E. �t �___. _ .�' i _ , u� - :>`'".,� j, '` LofayeTte Extension -,, ... , .. __ � - - � __ I e � _ , � � , �, � �� i i .. . � _ i �`� � i �. � � _ ,_... �. � _ � -- --., --- __ � � _ � � , . _ � i L._ i ( j i � ,.^ �.. ��.�� i/� ,l �� A _" ' .. ° '"\ � / �/ \\ < .� . ��\ �` L` - < . ; ..\;� � ;' � �\z� , . . � f • _ �' �. 7 l �� l jf� .�� ., ._ , ,. � r �� TH ��t. � � �� g 8� �9TH St� � �i �� ) / r .... ".�- ..�' � ,.p� ' � � . _ � ,Sy : � � ,. , Sw+t hbach , __ - r- ,.� , • � ,�_-� :;�, _ „ _ � ;�, � , �� ,� _ . ,. 1 , �,� , �' �r` � �; .,... � ,�� _ �. , ..�. ,`• �$ r,'�` ,`, �-35 E. Cornpleti_on�%�4� , W. 7TH. St. RealignmeM 't " ; . � � , � � �;��., i�` � �, r � � � � 5TH - 6TH St. � ° � _ _ _ , , � Connector ',�.." � , �r�. � � - � � 5 _ -, �� .: � . �. � � �t �� , �' � �p. � � : ' �� ^ � �� e< ; s), � _ ,�,o , �� ,� � � � � �� , � � ��o°�� , „ . �°. ,� � �� a,,, . ��.�� , � . �� . 6TN St. Relocation �.�'- � �d � � � , �., , , � `"��r n . �;: �' � � . � `. ��. /. ; � � Under� Consl�uction eQ � � ; , .. i ` , . , � � � �� _ �' �,�.' f! ��C . . � ' ,- , ,. �i , , r I��'� % Shepard - Chesinut Interchonqe , : ,- , , � . r `' �� ( ' . / . , , — .._ .� � �,� ,- , � - � - , � , ,�j� � � r' ; � , ,. r � '�� _ . � ,,�� ,, . � i � , , ;,, � " �� , . _ ' . , ' _ , 54 ' ' , ' . S REET NETW RK MPROVE EN S ` Various street netwol^k improvements are necessary in the , downtown area to divprt present through trips around the downtown'. Several streets or new connections are neces� sary to reduce the through trip activities. There are ' other improvements also indicated on Figure 4-7 which will improve overall traffic flow in the downtown area. Two of the major program el�ments are: ' 4.4.4.1 RESOLUTION OF THE I-35E RQUTE Although the design and location of I-35E have not been ' finalized, the compl�tion of this freeway in any form will divert many through trips around, ratMer than through, the downtown area. ' 4.4.4.2 IMPLEMENT A MINOR ARTERIAL RING ROUTE FOR THE DOWNTOWN AREA This minor arterial ring route will include completion of at least three street construction improvement projects. ' (See Figure 4-7. ) Tt�e first is the conr�ection of the Lafayett�e freeway to I-35E at Arch-Penn or;at.a, di rect ' connection into I-35E south of Maryland Aver�ue. The sec- ond project is the construction of�the bypas�, from Warner Road to Arch-Penn and I-35E for truck tra:ff�c. The third project is the completion of the Chestnut Street improve- � ment and interchange at Shepard Road. 'These improvements will allow a driver to more easily bypass the downtown. ' L SYSTEM Although jt is not anticipated that the percent reduction ' of CO will still be a problem after the implementation of the programs outlined above, a computerized signal control system is a long-rang program option. If the feasibility study shows that the �omputerized signal control system ' would be of benefit to the downtown area, the system should be pursued and implemented. ' . E T e ransporta on ec m ca dvisory Group , with REVIEW AND the assistance of planning staff, has reviewed all the , R�CONMENDATIONS alternative programs discussed above and has made a pro- gram recommendation. Their recommended programs and comments are presented below, as modified by this revision. , The representation of an agency staff inember on the TTAG does not signify the agency approval of this plan. The recommendations will be presented in three sections: the ' programs for immediate implementation, these recommenda- tions will be organized according to the strategy with which it applies; the programs needing additional study; ' 53 1 ' ' 4.5.1 .2 INCREASE AUTO-OCCUPANCY TO 1 .4�5 PERSONS PER VEHICLE ' 1 . IMPLEMENT AN ONGOING MULTI-EP1PLOYER CAR POOL MATCHING SYSTEM ' The computer program and the car pool matching form should be carefully designed to achieve maximum effec- tiveness, and should be conducted periodically. ' 2.PROVIDE PRfFERENTIAL PARKING, IN COST AND LOCATION, TO MULTI-OCCUPANT VEHICLES ' This is a low-cost program to implement. As with the transit subsidy program, monitoring total use, persons ' per vehicle, whether the car" pool formed before or after program implementation, and other. �actors should be undertaken. Financing lot or ramp operator fee subsidy should be from a parking fund which needs to be ' establi.shed for all parking programs discussed. , 4.5.1 .3 PARKING PROGRAMS ' 1 . IMPLEMENT AN INTERIM FRINGE PARKING SYSTEM As demonstrated in the Part I TCP, long-term parkiny ' vehicles contribute twice the CO emissions per mile of travel as short-term parkers. St. Paul could absorb over three times its present short-term downtown traffic ' if long-term parking occurred on the fringe of or out- side the dawntown area. Four primary points were identified by the TTAG in regard to this program. ' • Compliance with CO standards may not be possible unless the fringe parking program is implemented soon. , • This interim program could initiate the ultimate fringe parking program. • The implementation and development of the three large lots and the shuttle bus system must occur simultane- ' ously to achieve anticipated success. , • The initiation of this program will require the estab- lishment of a parking funding procedure and sources ' for this program. Current parking revenues are in excess of $300,000 per year. With an augmented fund this could very adequately finance all the parking strategy programs. ' 2.APPLY FOR FEDERAL GRANTS FOR APPLICABLE FRINGE PARKING RAMPS INDICATED ON FIGURE 4-6 ' 56 ' , , ��,�� . ;t.,. :.., •�+_i'F✓�� t ' add the programs r�ecommended for implementation as soon as ' possible. � ' . . REC MMENDED R GRAMS FOR IMMEDIATE IMPLEMENTATI N-- TO YIELD BENEFITS IN 1977 4.5.1 .1 INCREASE TRANSIT RIDERSHIP TO 30 PERCENT OF PEAK ' HOUR PERSON TRIPS 1�0 THE CBD 1 .ASSIST IN IMPLEMENTING THE RECOMMENDATIONS OF THE MTC ' REPORT: IMPROVING TRANSIT OPERATIONS AND FACILITIES IN DOWNTOWN AREAS--CITY OF ST. PAUL. ' This study (completed in October 1976) addressed many of the transit programs discussed in 4.3. Recorr�mendations regarding bus routes, shelter locations, shelter designs, information systems, and other passenger amenities are ' all scheduled to begin implementation in 1977 and to be completed by 1983. All of these activities will be implemented by the MTC with the cooperation of the City ' , of St. Paul . The TTAG would encourage the City to be receptive to the programs recommended by the study, to encourage their speedy implementation, and to assist the ' MTC in its implementation. 2.ESTABLISH ADDITIOMAL PARK-AND-RIDE FACILITIES WITH COORDINATED TRANSIT IMPROVEMENT TO SERVE THE ST. PAUL ' CBD WORK FORCE. Nearly all park-and-ride facilities will be located ' outside the City of St. Paul . Nowever, this does not negate the possibi�ity of City involvement. This pro- gram will be the responsibility of both the MTC and the City. Financial and planning agreements will have to be ' made with the MTC in this regard. 3.PROMOTE THE USE OF AN EMPLQYEE TRANSIT RIDE SUBSIDY ' PROGRAM BY OOWNTOWN EMPLOYERS AND IMPLEMENT A TRAPdSIT SUBSIDY PROCEDURE FOR CITY GOVERNMENT Eh1PLCYEES AS A GOOD FAITH DEMONSTRATION. ' An employer transit subsidy program was enthusiastically supported by the TTAG and has also been supported and recommended recently by a business representative com- ' mittee of the MTC. Detailed monitoring can determine ridership before and after program implementation, per�- cent change over time, and future program justification. ' ' 55 � � ' 4.5.2.1 PASSENGER WAITING SHELTER EXPANSION STUDY � The MTC has a continuing program to expand passenger waiting 'shelters in the Twin Cities. The MTC uses several criteria in determining eligibility for MTC financing of the structures in St. Paul non-CBD areas. � Present shelter planning is primarily by request only. A more detailed Comprehensive Passenger Waiting Shelter Location Study is required to determine needed shelter � locations in nan-CBD areas. This study must be coordi- nated with and involve the MTC. After study completion the City and MTC can arrange financing and construction. , This would provide a comprehensive analysis of shelter needs and become a tool for evaluating requests. Fortunately, "Improving Transit Operations and Facilities � in Downtown Areas--City of St. Paul ," one of the most comprehensive downtown shelter studies in the U. S. , was completed in October 1976. � 4.5.2.2� PARK-AND-RIDE EXPANSION STUDY FOR ST. PAUL DESTINED WORK TRIPS � � As with the Passenger Waiting Shelter Program the MTC has an ongoing expansion program for park-and-ride facilities. Again, a more detailed planning effort for St. Paul trips is needed. This should be completed by St. Paul staff but � coordinated with MTC efforts. City Planning is currently analyzing place of work data which will be used in the study. � 4.5.2.3 PREFEREN�IAL TREATMENT FOR MULTI-OCCUPANCY VEHICLES STUDY Preferential treatment can take many forms. One of the � primary programs would be lanes reserved for use by multi- occupancy vehicles only. As noted in 4.3.�.6, Freferen- tial Treatment for Multi-Occupany Vehicles, the City and , the MTC should analyze the use of preferential treatment on non-CBD streets and on the main access and exit routes of the CBD. � 4.5.2.4 STAGGERED HOURS, FLEXIBLE HOURS, AND FOUR DAY WORK WEEK FEASIBILITY STUDY This study must determine whether a staggered work day , would significantly lower peak hour demands on the trans- port�tion and transit system. St. Paul already has some modified staggering of work hours. The MTC is interested , in lowering the peak demand on their vehicles, and have recently received the final draft of "Variable Work Hours in The Twin City Area" by Barton-Aschman Associates, Inc. ' St. Paul should remain cognizant of this effort and util- ize its recommendations and conclusions in making a 58 , ! 1 1 4.5.1 .4 STREET NETWORK, IMPROVEMENTS � CBD street network improvements which provide better traffic flow character�istics and attract some traffic from core streets. Thle Seventh-Ninth street connection will be completed in 1'977 and will allow the conversion ' of Seventh Street to a� pedestrian mall . 4.5.1 .5 OTHER PROGRAMS � 1 .DESIGN AND IMPLEMEN7 A CONSOLIDATED ADVERTISING AND PROMOTION PROGRAM F4R TRANSIT RIDERSHIP IMPROVEMENT, ' CAR POOLING, VAN PO�LING, AND FRINGE PARKING. The TTAG identified promotion and advertising (employee handouts, promotional displays, and conventional � advertising) as essential to the success of these programs. , 2.DEVELOP AND IMPLEMENT AN ONGOING PROGRAM TO MONITOR THE EFFECTIVENESS OF TRANSPORTATION CONTROL PLAN PROGRAMS AND GENERAL TRAFFIC CONDITION AND VOLUME CHANGES. i � This transportation control program should lower CBD CO concentrations to safe levels; however, readings at one monitoring station will be our only indication of � whether we are meeting TCP objectives. To substantiate the data in this report, the TTAG recomnends the City implement a monitoring program which includes the � establishment of additional CBD air quality monitoring stations and a yearly detailed cordon count of the down- town area. The cordon count should address all those � variables used in the calculation of our CBD CO emis- sions density (i .e. , autos, taxis, buses, light duty truck, heavy duty trucks--diesel and gasoline) auto occupancy and bus ridership. The additional air quality ' monitoring station� are unlikely to be provided by the MPCA; however, the � MPCA would probably install and read city funded stations upon request. , 4.5.2 REC MMENDED PR GR MS WHICH RERUIRE ADDITIONAL STUDY TO DETERMINE IMPLEMENTATION FEASIBILITY � Several of these programs have a definite effect in reducing CO levels. However, the programs either require a determination of their actual benefit in St. Paul with � its particular characteristics (staggered, flexible or 4- day work week, van pool program, computerized signal control system, preferential treatment for multi-occupancy ' vehicles) or require additional study to determine the actual extent and cost of the program (bus shelter expan- sion, park and ride expansion). The studies needed are listed and discussed below. ' 5� , ' ' determination of usefulness. St. Paul , through the City � Planning Office, sho�ald initiate its own variable work hours study for downtown St. Paul and request MTC participation. , 4.5.2.5 MULTI-EMPLOYER VAN POOLING FEASIBILITY STUUY This program has tne potential of increasing average auto occupancy. Unfortunately, the multi-employer methods, , which would bes� apply to a CBD, have not been used in many other locations throughout the U. S. The City would, therefore, have to determine the ingredients necessary for ' a successful program and its potential success in downtown St. Paul . Mn/DOT will assist St. Paul in this determina- tion. This study shauld be coordinated closely with tl�e. car pool matching program and utilize the knowledge gained , from the Total Comm�ter Service Demonstration Program. 4.5.2.6 COMPUTERIZED SIGNAL CONTROL FEASIBILITY STUDY ' This study has been initiated through designation of funds under CDBG Year II . A consultant is currently being chosen. When completed, the City should examine its ' usefulness according to the objective of reducing trip travel time and handling periodic pressures caused by foul weather and large downtown events. ' 4.5.2.7 ON-STREET PARKING STUDY After construction of the fringe parking ramps on-street parking should be studied in relationship with fringe all- ' day parking, core short-term parkirig, vehicular traffic patterns and pedestrian traffic patterns. As shown on Figure 3-1 , and discussed above in 4.4.3.3, CO may be , reduced up to 3.4 percent by restricting on-street parking. . 5.3 RECOMMENDED LONG RANGE PROGRAMS ' Although these pro�rarns cannot be completed by the compli- ance deadline, they do satisfy primary policies and are necessary for the maintenance of CO standards. These pro- , grams should be implemented by 1985. 4.5.3.1 COMPLETION OF STREET NETWORK CHANGES WHICH FACILI- TATE THE ROUTING OF NON-CBD ORIENTED TRIPS AROUND, RATHER ' THAN THROUGH, THE DOWNTOWN These street n�twork change�, shown on Figure 4-7, are also recommended by the draft report "Tomorrow's Framework � From Today's Foundation: Planning for powntown Saint Paul . " They provide a minor arterial ring route and call for the resolution of the I-35E route. , 4.5.3.2 DEVELOP PERMANENT FRINGE PARKING RA�1PS GR LOTS FOR ALL MAJOR DIRECTIONS OF APPROACH TO THE DOWNTOWN. ' S9 . , � , There will be a substantial effort needed in the imple- mentation of the fringe parking system. The citywide ' parking plan will define several other concerns which will need to be addressed by the individual (s) respon- sible for parking in the downtown area.� Several groups ' in the downtown have stated a parking administrator is absolutely necessary. City Planning feels that the parking administrator concept is a good idea if the ' administrator follows the guidelines of the established downtown parking plan. This individual would then be responsible for the implementation of the parking plan including the parking strategies defined here. , It has also been suggested that the parking coordinator also act as the coordinator for implementing and ' monitoring the strategies presented in this plan. This individual would function as the Downtown Transportation Services Coordinator, responsible for the implementation ' of the Parking Plan and the Transportation Control Plan. The Downtown Transportation Services Coordinator role could be assigned to one individual or a group of several . individuals. Authority should rest with an operating ' department and City Planning staff would be available for any needed additional planning or background. The fourth implementation step is to obtain commitments , STEP 4: of agency resources to the overall effort. Agencies may not be able to assist the city in the manner or within ' the time period desired. It appears from informal conversations, that much of the cooperation indicated in this plan is possible, but formal commitments should be solicited. Agencies involved include the MTC, the Mn/DOT, ' downtown employers and businesses. Step five is the completion of additional studies and the , STEP 5: development of detailed sub-program designs. This involves refining the concept described in Section 4.3 into precise tasks necessary to implement the sub-program ' (Appendix A is an example of a detailed sub-program design format) . This process will provide the detailed information needed to project staff time and financing requirements and to devise an implementation schedule for ' each project. - ' � 62 ' ' a 5.0 IMPLEMENTATION ��,•��°y �. �,�_ � , 5.1 IMPLEMENTATION NEEDS The implementation of this plan is a major undertaking , involving eight steps, each of which must be carried out without delay. These steps are identified below. ' 1 .Approval by the City Planning Commission. 2.Approval of the plan strateg�es and programs by the ' City Council . 3.Define coordination responsibility. ' 4.Obtain necessary commitments from cooperating agencies to planned strategies and programs. ' 5.Complete necessary additional studies and develop detailed program designs. � 6.Obtain detailed prog�ram approval and funding authori- ' zations. 7.Initiate program dev�elopment. ' 8.Implement monitoring system. , This plan requires City approval of the plan concept, of STEP 1 : the specific programs, and of the funding of those programs. This first step in the implementation process, after approval by the City Planning Commission, is the ' presentation of this plan to the City Council for review STEP 2: and approval of the goal , objectives, policies, and recommended programs �o implement these policies and , achieve the objectives. Approval will recognize need for the commitment of city financial resources and the continued city staff commitment to this effort; this step ' also signifies City Council approval to solicit commit- ments from other agencies identified within this plan. After approval by Coumcil , the responsibility for ' coordinating implementation of the remaining steps should STEP 3: be assigned or completion will be fragmented, uncoor- dinated, and in all likelihood, ineffective by the ' required compliance date. The coordinator(s) should also have the authority and the capability of developing precise programs and tasks, requesting information from , other departments, identifying fundireg needs and pre- senting these to the City Council . After program author- ization, the coordinator(s) should be responsible for carrying out the program and monitoring its effect. ' ' 61 t � , As indicated in Number six, the detailed program design , STEP 6: will then be submitted ta the appropriate agency or organization for apprpval and funding authorization. The St. Paul City Council wou1d have to approve city staffed ' and/or funded prograr�s, STEP 7: Following approval ar,d funding would be actual develop- ' ment or implementatian of the project. STEP 8: The last item shown is monitoring. Essentially, this involves various ongoinq methods of determining if, in ' fact, bus ridership is increas�ng, auto occupancy is increasing, tatal trips are decreasing, etc. Through traffic monitoring, staf� can estimate whether the TCP ' strategies are achievinc� the d�signed objectives. If objectives are nat reached an� CO concentrations continue to violate standar�s, it would indicate additional transportation con�rols are necessary. ' 5. IMPLEMENTATION CTION As indicate throughout this report, the sc edu e for ' , program implementation is extremely tight. Compliance by mid-1977 is required by law; therefore, immediate action is necessary. Many or all of these programs require City ' Council approval before discussion and implementation. We have already experienced considerable delay as mani- fested by this revision. Obviously, we cannot comply by mid-1977, but we car� implement the short range programs ' in 1977 if all of the above steps are closely monitored and actively expedited. , ' . ' ' ' ' ' 63 I' . ' ' 1 . Additional long-term (implemented before 1985) programs will be necessary to maintain standards. ' . The achievement and maintenance of compliance with CO standards is heavily dependent on MTC programs to improve ' bus transit service in the metro area and on the creation and use of a fringe parking system for all day parkers. . The completion of a ring route around the downtown and ' the resolution of the I-35E route will greatly reduce CO emissions in downtown by reducing through trips. ' .2 RECOMMENDATIONS Based on the above findings and others included in this report the. goal , objectives, policies, and program � recorrgnendations were prepared: These goals, objectives and policies are listed below. The program recommen- dations are shown in Figure 6.1 . The programs shown are recommended by staff and the Transportation Technical ' Advisory� Group (TTAG). For further discussion of the programs, refer to Chapter 4.0 Transportation Control , Program. ' . G L , A�safe, health environment for all users of the St. Paul downtown area by achieving and maintaining compliance � with state and federal carbon monoxide standards. ' BJECTIVES To comply with CO standards in 1977 through the 25.2 per- ' cent reduction in CO emissions. To achieve a daily average auto occupancy rate in the ' downtown of 1 .45 persons per vehicle in 1977. To achieve a peak hour modal split of 30% transit use and 70% auto use (70/30) in 1977. ' To develop and implement a promotion, public relations program to assist the implementation of major TCP ' strategies. ' ' 66 ' ' 6.0 CONCLUSION ' ' ' This is an aggressiv�e report of recomnended strategies ' and programs for the' reduction of CO emissions in down- town St. Paul . The Part I report defined the general areas of concern and` the general strategies which would ' reduce carbon monoxide emissions. Through a re-analysis of the results of Part I , and a definition of policy as to wh�ch strategies should be emphasized, various pro- ' grams have been chose�n which will , in staff and technical committee's opinion, yield the necessary benefits in the least amount of time. ' . M JOR FINDINGS T e major fin ings of the Transportation Contro P an Part I and Part II are: 1 . St. Paul 's downtown area has Violated state and federal Carbon Monoxide (CO) Standards on several occasions. ' . Violations are primarily in winter months. . CO emissions must be reduced by an estimated 25.2 percent ' , to meet compliance levels. . The work purpose trip in the downtown contributes the ' greatest volume of CO emissions (32.1 percent of the total ). . The through trips, those trips having no origin or ' destination in the downtown, contribute the second lar- gest volume of CO emissions (28.1 percent of the total ) . ' . Only three of the potential six strategies will yield immediate benefit to CO reduction in 1977. These stra- tegies are increased mass transit ridership and carpool ' usage, fringe parking and street network improvements. . That auto occupancy (average number of persons in each vehicle) plays a very important role in yielding any ' benefit from the increased mass transit and carpool usage strategy. ' . The development of an interim fringe parking system of approximately 5,000 parking spaces is possible in 1977. ' . A shuttle bus system for the fringe parking sites is necessary to yield any substantial program success. . A promotional advertising program will probably greatly , assist the achievement of CO standards by drawing atten- tion to our efforts and advertising the availability and the benefits of our programs. ' 65 . , � FIGURE 6-1 6.2.4 RECOMMENDED TRANSPORTATION CONTROL PLAN , , AGENCY(S) RESPONSIBLE FOR ESTIMATED STRATEGY PROGRAMS IMPLEMENTATION COST � SHORT RANGE TCP - IMPLEMENTATION IN 1977 Increased Mass Transit 1. Employee ride subsidy program City/Private $150/employee Usage: (increase from per year ' 75/25 modal split 2. Provide bus shelters MTC/City $2,000/shelter to 70/30 modal split) 3. Promotion MTC/City ? Pro rams Needin Further Stud . Give preferentia treatment to multi- MTC/City � occupant vehicles . Increased use of Park-and-Ride facilities MTC/City ? . Staggered work hours, flex hours, City/Private $20,000 4-day work week , . Better defined routings and transfers MTC 7 Increase Auto 1. Develop an ongoing continuously updated City $10,000/year Occupancy: (increase multi-employer carpool matching system � from 1.3 to 1.45 2. Provide preferential parking for multi- City $65,000/year persons per vehicle) occupant vehicles for 500 spaces Pro rams Needin Further Stud . Increase use of vanpoo ing - City ? � multi-employer vanpool program . Promotion � City ? --------------------------------------------- ' Parking Program 1. Develu�, .�iterim fringe parking lots and City Lots approx. ' shuttle bus system $1.75 million; Shuttle System $675,000 with no federal � funding 2. Adjust parking pricing City ? Pro rams Needin Further Stud � . Esta sh a itiona park-and-ride facilities MTC ? . Prepare plans for final fringe parking City --- system and prepare funding applications --------------------------------------------- � Street Network l. Construct West Seventh Street Realignment City $850,000 Impro�ements and Sixth Street Relocation (construction _ _ only) � LONG RANGE TCP - fOR MAINTENANCE OF CO STANDARDS Increase Mass Transit Continue Short Range Programs City/MTC ? and Car Pool Usage � Parking Programs l. Implement Phase II fringe parking program - City Approx. development of primary fringe facilities and $48 million initiate ban on further long-term parking plus circu- development in core area. lation system � 2. Implement Phase III fringe parking program - construct remaining needed fringe facilities, establish downtown parking rate controls to discourage long-term parking, implement , people mover. . Study on-street parking Street Network 1. Resolve I-35E route Mn/DOT ? Improvements 2. Implement minor arterial ring route for CBD City & Mn/DOT ? � , Increase Traffic Computerized Signal Control System City $1.5 million Speeds i ' _ . ,.� 68 � i ' � ' To develop a 5,000 car space interim fringe parking � supply with an efficient shuttle system in 1977. To decrease through trips in downtown St. Paul . ' To maintain compliance with CO standards through the implementation of long-term programs. � 6.2.3 POLICIES Develop convenient, low cost, long-term parking facili- ' ties on the fringe of downtown. Encourage and promote the expanded use of bus transpor- � tation. , Promote increased car pooling and van pooling for down- � town employees. Develop a shuttle system to transfer fringe parkers to downtown work locations. ' Discourage long-term parking in the core area. � Develop an arterial s�reet system which would carry through-traffic around rather than through downtown. Increase safety and convenience of pedestrian and bicycle , use in the downtown a�*ea. Maintain an adequate $hort-term and executive parking � Supply� Expand the skyway system. ' Provide for efficientlgoods movement. � ' , ' , 67 � � ' , , � � ' APPEfVDICES , A. Detailed Program Example B. Letter from MPCA ' C. H.U.D. 701 Environmental Assessment ' D. Memorandum of Intent, January 22, 1974, fflr the Implementation Plan to achieve CO ambient air quality standards , E. Health Effects of Air Pollution � ' ' , � � ' � 69 , � ' ' ' ' . , i � ' APPEPdDIX A Detailed Program Example ' , ' � � ' ' i 1 i 1 „ . ' 2. Improvement Costs: ' I-35E Lot Third Street Lot , Riverview Lot 3. Maintenance (Lots) 4. Shuttle Vehicle System ' 5. Shuttle and Lot System Operation Costs (includes staff, fuel , ' vehicle maintenance, advertising) : Shuttle Vehicle Lease Cost Vehicle Maintenance Street Alterations ' Shelters B. Financing Alternatives: ' 1 . General Obligation or Revenue Bonds 2. CIB Bonds ' 3. Revenue Sharing " 4. Parking District Assessments 5. Parking Revenues (piscussion of each would follow. ) � . III . Design ' A. Lots: 1 . I-35E Lot: ' Description Layout-Design 2. Third Street Lot: , Description Design ' 3. Riverview Lot: Description � Design B. Shuttle System: l . Vehicles ' Description Picture , 2. Shelters At Lots Downtown ' 3. Traffic Handling--Street Alterations ' 74 ' ' , ' Detailed Program - Example (this is only an example, cost figures are estimated, some sections are not completed but are identified as necessary) . ' FRINGE PARKING PROGRAM ' I. Program Description This program requires the leasing of three major parcels of land for use , as fringe parking lots. These areas are d�scribed below: . A. I-35E vacant property lying between Kellogg Boulevard and lOth Street. ' Lease is available from the Minnesota Highway Department for use until the construction of I-35E or alternative. This date is estimated as post 1980. The St. Paul Civic Center would also like this area developed for overflow parking (approximately 1 ,500 ' potential spaces). B. South side of Third Street below and east of the Lafayette Bridge. ' This area was formerly used for parking and is used on a limited basis at present. Land is owned by JaGk Geller and could be operated by him or leased and operated by St. Paul (approximately 1 ,300 ' potential spaces). C. Southwest corner of Wabasha Street and Plato Boulevard in Riverview Industrial Park. The parcels intended for use are sub-areas G and , part of H. This land is currently owned by the St. Paul Port Authority. This land could serve ultimate long term demand from the south. However, if the land is in demand for industrial development at some ' future date, a less land consumptive ramp may have to be constructed (approximately 1 ,650 spaces) . Improvements necessary are excavation and leveling, paving, curbing, ' striping, fencing (security) , construction of attendant shacks, bus shelters, and bus loading and turning areas. These costs are approximately $125.00 per space yielding a total cost in the area of $556,250. ' Also, an integral part of this program is the shuttle bus system. The cost of this and lot development would be funded through parking revenues of lots ' and other funds which can be collected through several means discussed later. The intended system would operate on two routes, one serving the Riverview lot and one serving the I-35E and Third Street lot. A total of 8 to 10 shuttle vehicles is recommended. This would yieTd approximately five minute ' headway at the lots. The recommended routes are shown on the attached map. The total yearly cost estimated using leased vehicles and yearly maintenance and fuel costs is for one year. ' II. Financing ' A. Itemized Costs: l . Lease Costs: ' I-35E Lot Third Street Lot Riverview Lot 73 ' ' , ' . ' ' ' ' , ' APPENDIX B ' , Letter from MPCA of January 31 , 1975 , ' ' ' ' ' ' ' ' 75 ' ' ' `i•i�e Honorable Lawxence Cohen ' Mayor Page N2 January 31, 1975 --------------------------------------------------------------------------^ 1 This new data, which has been discussed with repreaentatives of the St. Paul Planning Department, shows that carbon monoxide levels in St. Paul ' will' exceed ambient air quality standards after the May 31st compliance date. Air quality calculations indicating noncompliance with the standards vera developed by the very capable and cooperative members of the Planning Department's staff, headed by Mr. Donald Spaid and his assistant, Mz. RichaYd ' Schnarr. HrieflY, the monitoring data shows that in 1974 there were 23 violations of the eight-hour C0 standard of ni.ne (9) parts per million (ppa►) . The ' highest valu of 14.3 ppm was zecorded on January 16, 1974, and the second highest value of 13.0 ppm was recorded on December 11, No vinlations were r�corded at the oriqinal monitorinq site ovez the a�ne period. Ir.addition, a special air quality team recently condt�cted t five-wee}: �tv�j ' in aelected portions of the St, Paul central business district during the zvsh-hour period. Generally, it was found that local concsntrations of CO are significantly higher at these locations than levela recorded for the , same periad at both of the permanent monitori.ng locations. This special study ' confirms that CO levels in the central business district are generally high. Pbr your information, similar special studies by the I�PC'A staff are undexway ia downtown Minneapoli.s. As I mentioned previously, the l�CA air quality staff has been workinq ' ' r,losaly with the St. Paul Planninq Departm�ent to detera+ine the full natura, anA the implicatiens, of the new CO data. Ca2culations bg your Flanniny Department indicate that a 14 percent reduction in CO emissions is naceasary ' to achieve standards. In addition, the Planning Department staff already haR begun, aci its own initiative, to study alternative transportation control etrategies that would reduce CO leveles. Some of the strategies have tha additioz�al advantaqe of reducing congestiaai and othen,rise improvir�g the down- ' tov�n► eavirona►ent. �e O. S. Environmental Protection Aqency has been notified of the results of CO mor►itoriag in St. Paul. To date, the EPA has not given any indication� ' of the kind of enforcement action it may consider reasonable in this case. Fw. our part, we believe that the circwnatances warrant some time-extensior ac:�id�rations for 8eveloping solutions to the prablema outlined here. It is my underetmdinq that the Planninq Department has, in tha oourse of ' it� di�cussions with the t+�CA staff, developed a preliminary schedule for outiiniaq c�ntrol strategy alternatives. The planninq Departynent aaya that by May Lt ot this year, it could com�lets an asalyaia of the problem, and ' looic at �srious.�osttrol strateqies that may be emplayed in St. Paul. ey 8�ptrbez 'Lt, your sta�f sqys that specific contzol strateqies oould bA N1�cC�d �nd schsduled for imQlam�ntation. . 1 , �8 ' ' ' ' ' . . ''\ 1+11NNESOTA E�OLLUT14td CONTROL AGENCY ' 1935 W. CouMy Ruad B2, / Roseville, Minnesoro SSi13 "�'` .._ • ,�,��' ...,y'..��.,.yt'r ' 612-296-7301 ' Jrnuary 31, 1975 ' `P:�e Honorable Lawrence Cohen I'r.yo 1• City of St. Paul St. Paul, Minnesota 55110 ' Dear Mr. Mayor: I.Z 1972 and 1973, representatives of your city participated with the ' ' Minnesota Pollution Coa._.-o1 Agencg+ and representatives of other govern- mental agencies in preparing a tr�r►sportation control plan to achieve ambient air quality standards for carbon monoxide i.n the Twin Cities erea. As you know, the U.S. Environmental Protectze.^. n�o.,l, r,�_ �o� ' May 31st of this year as the deadline for complying with all ambient air quality standards. At tie time the transportation control plan was prepared, carbon monoxide samplinq capability in St. Paul con,sisted of a single permanent monitor ' �ocated on the fringe of the central business district, at 100 E. lOth St. Based on data irom this monitor, St. Paul was not required to implement a transportati.on con�ol plan because it was believed no CO-reduction effort was necessary. Data from the monitor in downtown Minneapolis, however, ' showed that carbon �onoxide levels were sufficiently high to require i��.e�entation of transportation controls. The oriqinal St. Paul monitor, however, was located h�;gh above street level ' and was othe naise poorly situated to give a representative sample cf air quality conditions in the downtown area. In July, 1973, a second permanent monitor was situated in St. Paul behind the Federal Courts Building at Jacksor. and Kellogg Streets, This ground-level monitor has recorded carbon monoxida , levels in excess of the limits allowed by the eight-hour ambient air quality atandards. . ' , , AN F_qUAL OPPORTUNITY EMPLOYER ' �� ;�, ' � ' � The Hor.orab7.e Lmw'rence Cvhen Mayor Prge A3 J: t+ary 31, 1975 � Ths air quality at.�ff advises that the schedule proposed by youxN;epreaeoia- tives is satisfactory, anc� t2ie U,S. EPA will be asked to concur. The air quality staff also says that it will continue to work closely with the St. � Paul Planninq De�partment in conducting the analysis on alternative �raneport- ation control strategies. These strategies, by the way, include meaaures that have the r�sultiple ad�antage of reducing congestion and otherwise lnakinq tha downtown urban areas aiore enjoyable zor workers and shoppere. ' At the core of the prablen, of course, is the need to retain the tough but reamonable auto emission standards of the Clean Air Act, As you laia�r, President � Ford recommencia that Congress postpone most emiesion standards from 1977 to 1982. I am going to Washi.nqton Tu�esday to,testify at an EPA hearing against this insult to ouz air quality which, if allowed, will force the city and the atdte governments to such disciplinary measures as hiqh parkinq fees and pro-• hibitions against downtoWn parking in order to meet federal air quality requiie- � ments, This atteaq�t by Washington to unload the whole burden on us at the �ocal and state levels must be stopped, I look fozward to your z,eactions and support of the above, as well as continued ' cooperation vith you and your staff. Rliank you for your continuing leadership and cooperation in correcting environ- mental abuses wherever they may occur. � B�.at reqards, � GRP,NT J. MERRITf • Fbcecutive Director Minnesota Pollution Control Agency , �h cc: rt��y Hunt, Pr�gideat 1 .�'.`.. '-�:rl. �tg Co•�.ci_ Danald �aid, St. Paul City Planninq Coordinator � , � � ' 7g , � ' ' ' ' ' , ' � APPENDIX C H.U.D. 701 Environmental Assessment , � , ' Prepared by the City of Saint Paul City Planning Office in accordance with H.U.D. regulations for ' the comprehensive planning assistance program. ' , � � 81 . , Recommended Transportation Control Plan ' Strategy Proqrams Short Ranqe ' ' Increased Mass Transit Usage. 1 . Employee ride subsidy program 2. , Provide Bus Shelter ' 3. Promotion Programs needinq further study . Give preferential treatment-to multi- ' occupant vehicles < . Increased use of Park and Ride facilities . Staggered work hours, flexible hours, ' 4-day work week . Better defined routings and transfers Increased Auto Occupancy 1 . Develop an ongoing continuousl.y: vpdated ' multi-employer carpool matching system. 2. Provide preferential parking �for multi- occupant vehicles ' Proqrams needinq further study � : . Increase use of vanpooling. - multi- ' employer vanpool program � • . Promotion - • Parking Program 1 Develop interim fringe parkingTlots and ' shuttle bus system - 2. Adjust parking pricing , : Pro rams needin further stud ' . Establish additional park. and -ride facilities ' . Prepare plans for final fr�nqE parking system and prepare funding applications Lonq Range ' Increased Mass Transit and Continue Short Range Programs Car Pool Usage ' Parking Programs 1 . Implement Phase II fringe parking program - development of primary fringe facilities and initiate barr on further .long-term , parking development in core area. 2. Implement Phase III fringe pa;rking program - � construct remaining needed fringe facilities� establish 'downtown parking rate �controls to ' discourage long-term par�king;; :amplement people mover. ' . Stud.y on-street parkin4 Street Network Improvements 1 . Resolve I-35E route 2. Implement minor arterial ring route for , CBD Increase Traffic Speeds Computerized Signal Control System � ' 84 � � An Environmental Assessment of Saint Paul 's , Transportation Control Plan - Part II ProjeGt Identification and Abstract ' An cit vio1atin federal carbon monoxide standards is required by law to y y 9 prepare and implement a transportation control plan. Several such violations , have been registered in the St. Paul central business district and the St. Paul Transportation Control Plan, Parts I and II, has been prepared in response to the U. S. EPA and Minnesota PCA requirements. , Part I, completed in November, 1975, described the extent of the city's carbon monoxide problem, identified sources of CO pollution, and outlined broad strategies that might be employed to reduce CO emissions in the downtown. , Part II develops more specific programs aimed at lowering emissions to acceptable levels by the mid-1977 compliance deadline. Long range measures to maintain air quality gains are also proposed but have not been analyzed at the same level of , detail . . Short range proposals are built around three basic strategies. These include , measures to increase mass transit ridership and carpooling, which should lower the �otal number of commuter vehicle trips, and a system of fringe parking lots desigr�sd to intercept work-desti�ned autos before they reach the critical downtown area. ' Long range proposals extend and supplement the short range solutions. Transit and carpooling incentives are to be continued and temporary parking areas , replaced by permanent ramps. A people mover system would cqnnect the fringe ramps to the downtown and facilitate internal CBD traffic. Street network improvements are proposed to route through traffic around the downtown. A ' computerized signal control system would help move the remaining through town traffic more efficiently. Specific program proposals are summarized in ta'bular form on the following page. ' Enviranmental Setting ' The St. Paul cen�ral business district is the target area for carbon monoxide control . In order to effectively reduce CO in the CBD, traffic and parking must be shifted to surrounding areas; so these, too, w�ll be impacted. ' The CBD is the city's primary retail and financia1 center, its government seat, and the location of its greatest employment concentration. It has the greatest concentration of trip destir�ations and, consequently, is the one area of the city , with a sign�ficant traffic generated air pollution problem. It is also the area where the greatest number of people would be exposed to the pollution. Some 60,000 people inhabit the downtown every weekday. The resident population is much lower - , 2166 persons in 1970 - but is composed largely o�f old people who are sensitive to ait^ pollution effects. Thirty-six percent of thle CBD residents are 65 or older, the highest percentage of elderly by census trac�t in the city. ' The downtown commercial core is bordered on the east and south by industrial and to th� north and west by institutional uses. 0� particular interest in relation to the air pollution problem is the location of 5everal hospitals on the downtown ' periphery. Hospitals are what is known as sensitive receptors; that is, their 83 �. � �� , � �,1 , � _ � ► "�1 . �•-1 ,d ", '• �� ,�'��/a�,,� . � -��e�=--�__— -�-- • ,� �� - _... ,..-----�--.. o�; ,. _ i�w�w�w�v�� n��r�R►� I! �' /? . � �'��r�"ww��. �m��rr,:r.. � / rwwA�'��EI,J7RN`��• � �� / , � �� !�,`� , a��%�vt1.l:� �� ,`�,� / r 7 �' ...��i��n n��nci��1 t'� , � . ._'�I'�1��1��v�CL7r r��f` �� ' I'...�', �u��'!q\��iD?�/1k7��\� ^ 1'� � /� /w" I:......-' ��I��i�:�r��V��l.� �{� ��.� � ��/�"� �. ��v�u�=�i��wo��cn.�.� `L '+�..� ��B�Re��wi��rr.�� `/� �� -�' .�� ai��r��r�w�.��: �� t�I"� � Ii✓� i ��.�.�� r��.�..�.��►r. .��1�.,�� ;�. � / / !� �� a��rr��er��r��✓ �'A1��' '��1�� ' � ��.� r�r�s��as��r�.�►�r�•� ` ♦��JI��:��1��♦ � � �� I .-ti..,.�--_.��.�� y�v`��1♦ ♦�� I�� r�•�iiiiiiiiiiii-'� i�•��/i��`�I��1��0,� ��' �� `GV A-�.� -�1��=�- \\ 'V�Y��'t��AO��'��v�, oi I�i♦ / ♦ � / / ��1�� ♦�♦ o ��'• � � \ -- ��:�I!�;��,0�'��!�� i . ♦ � ♦w� . ♦��!.,�a��,1.�♦ �� i i.� �"�♦ Y�'�� or i:��La��,l��.,'.�`��5'��'`� � � '��j��!i��i.'��t��•>6� ��` � .� � �� , I��y1 ♦♦ ��►1��'1!��'��j '•. , .�, ♦� :A��1�4•,r� ��' �� / ��3, -..! ♦OCO.�7ro��,A r �,.�C��♦ ♦ � � �� ,� ♦��l�Otrl�A�i,��♦ ;IA. `� ` �//� ', �;1 '�' .�t��1��0��•�.��♦I�b� . < .� /�c7��0��1��°�v�1• ♦i., , ' ��, . r � �� . i��;t��I�,S��J�''�1�f��y�V��►��./ / ""�T •,J� � � ��v • �tr�P��'�.'p�0< �`v/ �w ��G�<•��10��'»��lj��,,♦ / 1+.. I,.._- �, . . I ��i IO��y��t��r��!��yC��Jj � / � �, �. -�r ►��'�►�11�� ,��ii<'��♦ ♦"*��', � �� ♦ i� � A��I1• ♦•i�� ..� � �� P�1��`��``��y�O��i��'��:'�t�� .� , .� O�a.•=,,�.� .�;.��►y.<�a.. �,�+ . ��,.r+�t' ►.�t��„��o<•a .�•.�.��c,�o�,. ��.♦ -.��.��;i��,d�.,.,Cr ..----��+ '�p� o.��•�;�� ,s�,��,o.'��' � i ✓"—�� .r►....��,';o!.�..��,.>•.��s� ,,.<��e�'` ,/./ �� \ , �"'. �r��♦ �i► �-•r,,��, ♦ ♦ `1'.� ♦ ♦ r�.� ��,i�� i �,� � �' \ . ��,:i+1,,�:��;��w,��040.�♦��.,,• �� . I ��/ � �, �c. �.i� `'��.��'��J/*�y1�'•� �� /•��\ / � ^ �a �!��i♦ —!i� `+'� � � �, � I /,� � �, �/ � Y 'r! ��`' ,��,�i. �� ^�/ /� � ' � . . � . �/ � / .� ,. � .�►�:t_,��,, ,�r�,� �//��' �/ �\ �� r / // � - ��.�� ; >� .�t��t,l1 � �/ .��, � �"f� �' � ,} � �-� ��• � � - � � ,� �/ ,�.� � ��•� E , �� I.� . �,. � � �. � /�/ � .., _ , �� i , � i . , , /. i ,/ � �,, ...�,- i ,� � � .�- . � /,� , � I�-� I,� � /� ,�j� �� / __ �e � � , /. / .�,,.i./.� „ . . , . . : , . , � , � . . ��; • - . - . ..... ..... ::::: ......•.� ..... _._._ . ..... . - % . � . , . : , : . . . ' I � atients are more susceptible to harm from air pollution than is the general p population. Exposure to carbon monoxide can aggravate heart and respiratory ' conditions. Hospitals are also "sensitive" to noise and vibration disturbances that can be caused by street traffic. ' The land use configuration in and near the downtown, including hospital location, is illustrated on page 4. Environmental Impacts , For the purpose of analysis, program proposals will be grouped into two broad categories based on similarities in anticipated impact characteristics. , The first group is comprised of economic and convenience incentives designed to encourage mass transit and carpool use. These do not generally involve substantial ' physical development. Programs in this category include: employee ride subsidies, bus shelter expansion, exclusive bus lanes, carpool matching, preferentiaT parking for car or vanpool vehicles, staggered work hours, bus route and transfer point identification, bus schedule adjustment, parking price adjustments, shuttle bt�s t service to proposed fringe parking lots, and advertising. All are short range proposals which, if successful , could be continued as part of the long term trans- portation control program. Several long-term proposals, including park'ing .rate ; , controls, and a ban on development of additional long range parking 'facilities in the CaD, would also fall in this category. A second category is comprised of physical improvements to the: transportataQn.� s,�stem ' � designed to divert traffic and long term parking from the downtown and to speed� the flow of remaining through traffic in the CBD. the interim and final fringe parking programs, construction of Interstate 35E and thQ minor arterial ring route; internal � street improvements, computerized signalization, and the down�own people mover. would fall in this category. These long-range proposals were not originally deve.l,oped for pollution contrml purposes, but they were borrowed from other plans. The �ranspor- ' tation Control Plan endorses these complementary proposals in concep`t,< but sp�cific alignments and other details are not necessarily included in that endorsemen�'.� � Probable environmental effects are summarized in the Matrix of Environmental ' Parameters and discussed below. Separate matrices have' been prepared for the ' incentive and physical improvement categories. ' Probable Effect of Plan Proposals on the Env�ronment . In general , programs in the incentive category change human behavior without , first changring the physical environment. Their impacts are measured in terms of reduced vehicle use on the existing transportation network, with a -resulting reduction in the emission of carbon monoxide and other harmful or malodorous contents of auto exhaust. Congestion, traffic noise and energy consumption ' would also be reduced. Other possible benefits include: 1 ) a boost to down- town retail business as short term parking is made available and hourly rates are lowered; and 2) increased service for captive as well as voluntary transit ' riders. The potential for adverse impact is slight. Car pool and transit users may be ' somewhat less willing to do shopping errands in the downtown; bus shelters may, but probably will not, become eyesores; and bus lanes may s1ow other traffic. These appear minor in comparison to the benefits derived. ' $5 MHI FiIX Vt' ' , impact ot impact ot ENVIRONMENT�rL PARAMETERS Proposa�s or►�Envi ronment II . Physical Improve- Environment on Proposals �+ Ber�eficial Environmental Impact ments to the Transportation � � � � � _ � Adverse Environmental Impact S stem °' � � � � r � y ;' °+►' a�, b �' i' � a�, � s�.� +� � t� L � 7 +� 1 U L t3�� ❑ No Impact or Not Appl i cabl e �' °1•r'r � � °J •r •r � o c s--a +� Rs o c � v +� �s t O r C•r C1 t O r- C •r , ►-� tn J ►-y Air Quality: Odors + + + Dust - - Chemical content + + + Ground Water: Recharge capability Percolation or leaching of harmful substances Excessive withdrawal Surface Water: Appropriation Discharge - physical characteristics - chemical/microbiotic characteristics Runoff leachin , erosion, floodin Vegetation: Disruption � Alterations to lant succession or habitat Fauna: Disruption Habitat alteration or removal Endangered species , Pest species Game s ecies fish, birds , mamnals Noisei'� Intensity t �- t ` Duration Fre uenc Land: Erosion Flood plain, shoreland, wetlands Soil suitability 7opographic alterations Parkland, recreational areas Compatibility of uses - - - Critical areas Aesthetics: Physical : land, air, water Bioica Visual content ' - ' " Structures Apparent access + Harmon area and structural coherence Socioeconomic: Conformance with comprehensive plans and zoning + Public health and safety Natural and man-made hazards , nuisances Employment, income patterns - + - + Demographic or social character alterations Provision of public services Historic or archeological sites ' Social fabric and community structure Energy onsum tion Congest�on - �access � — Transportation $$ + + r ��^� � �� impact ot lmpdCt Of ENVIRONMENTAL PARAMETERS ProPosa�s on Env�ronment ' I. Incentive Programs Environment on Proposals � Beneficial Environmental Impact v� rn Q Adverse Environmental Impact °�,' � �� '; � ' +� �' c� � v+� +� �`i u �.' v>> ❑ No Impact or Not Appl i cabl e o c s°_'v ++ b � c � zs '� v � .c o � c�- z J �-- c •r- Air Quality: Odors + + Dus t � Chemical content + + Ground Water: Recharge capability ' Percolation or leaching of harmful substances Excessive withdrawal ' Surface Water: Appropriation Discharge - physical characteristics - chemical/microbiotic characteristics � Runoff leachin , erosion, floodin Vegetation: Disruption ' Alterations to lant succession or habitat ' Fauna: Disruption Habitat alteration or removal ' Endangered species Pest species Game s ecies fish, birds , mamnals ' Noise: Intensity + Duration � Fre uenc Land: Erosion Flood plain, shoreland, wetlands ' Soi1 suitability Topographic alterations Parkland, recreational areas , Compatibility of uses Critical areas ' Aesthetics: Physical : land, air, water gi o�ca Visual content Structures , Apparent access Harmon area and structural coherence ' Socioeconomic: Conformance with comprehensive plans and zoning Public health and safety + Natural and man-made hazards , nuisances ' Employment, income patterns Demographic or social character alterati�ns Provision of public services + Historic or archeological sites ' Social fabric and canmunity structure Congestionsump�ccess ' + + ' Transportation 87 + . ' Temporary lot development has been proposed at three locations: 1 ) the I-35E � right-of-way between lOth and Kellogg; 2) a property south of Third Street below and east of the Lafayette Bridge, near the railroad yard and; 3) a site ' in the Riverview Industrial Park. All sites are currently undeveloped. The Third Street site is used for parking on a limited basis. The proposed lots range in size from 1300 to 2000 spaces and would normally require an air ' quality assessment or indirect source permit under Minnesota Pollution Control Agency rules. Indirect sources constructed as part of the Minnesota Implementa- tion Plan to Achieve Carbon Monoxide Ambient Air Quality Standards are, however, exempted from the permit requirements. � While this indicates that air pollution may be a problem at any of the three fringe parking lot locations, the I-35E site is of particular concern. Not ' only is this the largest of the three sites, it is also the most sensitive. It is located immediately adjacent to both Miller and St. Joseph's hospitals. The impact of carbon monoxide emissions would be more significant at triis ' location than would an effect of similar magnitude at either of the other proposed sites. The site would also be more sensitive to traffic noise. Fortunately, impacts would be pretty much confined to the morning and afternoon ' peaks and would not be continuous throughout the day. Because of the cold start phenomenon, the problem would be greatest during the afternoon rush hour. It is not expected that the interim parking program will have any effect on ' long term development patterrrs. . Probable Effect of the Environment on the Success of Plan Proposals ' Human variables, not environmental ones, will iargely determine program success. Will people respond to incentives, use fringe parking facilities, take the bus, ' join a carpool? Will Congress relax Clean Air Act compliance deadlines? The one area where the environment could possibly interfere with proposal success is physical transportation system development. Environmental variables may ' pose engineering design problems and affect locational decisions for such projects. Again, these will be discussed in other plan and project level reviews. Mitigating Measures ' Where there is question about the impact or effectiveness of a program in the St. Paul setting, further study is suggested in the plan recommendations. Specific mitigative ' measures have not been identified, however, and should be addressed in the project location and design phase. Adverse Effects Which Cannot be Avoided ' Most of the adverse effects outlined above are, to a degree, unaviodable. Construction activity will generate a certain amount of dust, noise, and erosion. Increased ' traffic on approaches to fringe parking facilities and to the proposed freeway and bypass will result in increased emissions, noise, and congestion in those areas. Concentrations of long-term parking will also result in local increases in CO and ' other auto-borne contaminants, especially during the afternoon peak. Size, location, and design of the proposed facilities should be sperified so as to minimize the incidence of impact. ' 90 ' ' t � Parking and transportation network improvem�nts have a much greater potential for impact, both beneficial and adverse. Impacts would result from the ' construction and use of new facilities, as well as from reduced pressure on the existing system. Impacts general to this second program category include: ' 1 . Reduction in tota) emissions. Higher thlrough traffic speeds and the transit component of par and ride progriams result in lowered vehicular � emissions. Effects should be greatest in the downtown, where emissions should be reduced by over 50 percent at full implementation (TCP II, p. 8). 2. Energy conservation. Increased system efficiency also reduces fuel ' consumption. . 3. Reduced emissions, congestion, and noise in the downtown. Fringe ' parking and bypass routes divert traffic from the downtown reducing traffic generated effects. , 4. Creation of a more favorable atmosphere for retail business in the downtown. Long term parking on the downtown fringe should free core parking for short term shopper use and reduced traffic flow make driving to downtown destin- ' ations less troublesome. 5. Shift of traffic enerated roblems to areas outside the CBD. It is the the concentration of traffic which create5 t e fam� iar problems of air ' . pollution, noise, and congestion. The dispersal of CBD traffic to surrounding areas should lessen the chance Qf producing damaging environ- mental effects at any one location. tIt is also true that areas bordering fringe parking lots, major bypass routes and entrance ramps may experience increases in these traffic- t generated problems. These faeilities may also detract from the visual environment or conflict with adjacent land uses. 6. Shift in develo ment atterns. Changes in access characteristics may ' �fiect t e ocation of new levelopment in the CBD, on the downtown fringe, and in proximity to bypass routes. 7. Construction related dust, noise, and erosion. Some short-term disruptions ' are inevitable with any construction projeCt. These can be controlled on the job to minimize impact. - t The impacts listed above are general to the physical improvement pr�grams as a group should be considered in the future assessments of plahs �pecifying their development.* Only the fringe parking program, which has the greatest ' air quality impact controllable 'by the City, will be discussed in greater detail here. ' The fringe parking program is presented in three parts. Phase I i,nvolves construction of interim or temporary lots, and Phases II and III follow with the construction of permanent lot and ramp faci1ities. Phase II would provide "primary facilities" and Phase III, any additional facilities ' necessary. Phases II and III will be incorporated into St. Paul 's Parking Plan and will be assessed at that time. Phase I is of immediate concern. ' *Thoroughfare Plan for St. Paul and Proposal for a Downtown People P�over System. 89 ' Irreversible Comnitment of Resources ' All of the proposed short-range programs are reversible. Parking price structures, ' bus route changes, carpool matching, and other incentive programs could all be dropped if they prove ineffective. Surplus busses could be sold, bus shelters dismantled, and temporary parking lots converted to another use. There might be some loss in dollars and material but little irreparable damage. No indigenous � environments would be destroyed. Parking ramps, roadways, and the proposed people mover would be much more permanent. The investment in dollars, materials, and land is so great as to make removal impractical . Moreover, spinoff developments � would serve to reinforce the pattern, making it all the more permanent. For this reason, environmental impacts should be carefully assessed when long-range programs are specified. ' Alternatives Alternative strategies for reducing carbon monoxide emissions were examined in � Part I of the Transportation Control Plan. Six major strategies and several minor ones were presented. Major strategies included: increased mass transit ridership and carpooling, transportation network improvements, housing construction in the ' CBD, parking controls and computerized signalization. Minor strategies included restrictions on idling and drive-in banking, skyway expansion, staggered working hours, and advertising. Because of the violation of air quality standards, the ' "no action" alternative is unacceptable and was not included in the plan. Part II narrows the focus to those strategies which could show results by mid-1977-- � mass transit, carpooling, fringe parking, and advertising. CBD housing, idling � and drive-in banking restrictions, and skyway expansion were dropped �from the roster as impractical or as insignificant in reducing emissions. Remaining strategies are identified as recommended for long range implementation by 1985 or as deserving � further study. Part II then develops and analyzes programs which could be used to implement each , of the recommended strategies. It does not, however, present these as alternatives, with a clear choice between programs and strategies. No one of the proposed short range strategies is, by itself, sufficient to reduce � CO emissions to acceptable levels by the compliance deadline. In fact, emissions reduction calculations indicate that implementation of all recommended short term strategies will be required if CO standards are to be met (TCP II, pp. 7-9). � Emissions reduction estimates are not available at the program level . Because of the limited possibility of adverse impact, the immediacy of the need for ' program solutions, and an inevitable degree of trial and error, this treatment of alternatives is acceptable for the short range. Long term alternatives present a different picture. It is not clear that all recommended long term strategies are necessary to meet the � plan objectives. Estimated long term emissions reductions total to 76.9 percent (summer) and 97.1 percent (winter) (TCP II, pp. 7-9). A 25.2 percent reduction is � needed for compliance with standards. Even allowing for an interaction effect, which might result in a total reduction that is less than the sum of the parts, this would seem to allow room for choice. Because impacts of long term physical development solutions tend to be significant and irreversible, real alternatives should be , presented at both the strategy and the program levels. 92 , ' " r t ' . . � , . . . . . .. . INTERIM FRINGE PARKING LOTS � _ - ' i __ � � . , � 'T _.. � ..._ � -_ . \ �. ; . � ,r , - ` � ,.''., , _, � � �� ,', I i- �, � ; � { � .. _ i � - -_ �, . _� �. - _ . _ _ . .- - . , - , � ' � , , � , -, - _ ' _ _ ' �t . _ ' ,. -- � � � i� _ . �1; � � � .. � , ._7 - '� � > > `A \ � ,� � „� � �` � .i _ ,_.__ � , . � ....,. �,. .. , � r ,.. _.. .___.. _. . � �- 1 _ ' t !I [ �" . //� i . __ , % � t _ _/ � _ ,. 4 � , . , ?'r - :. .- \ i \\ . , l: ( �. � " � � ... . . � . � ' . _... .... . ..__ ".... �`,. :� � . .'�. �' .�'� . � � a . ... . �. , r. . . . ♦ . �. ` Y '� __.. ..�. e ;. . r � � \ '\'. .. , _ . . . � s ` ! � � ..� 1 . O,�F - �� ^ w ... ....� Y � . . . .� � � �� ... � , ... . ...... . i . . . , . . \ � .... .... � . � � ' ... �.., � � . . . . . � �. � r' " . .� . . . � !,.�,��'�. . . . " - � i , . , ,. ;.�� _ �� . , : ., _ �, �, ,; _ 1 � �� . � y ` � �., � 2°� �A, � � � � , ir _ ��" i 3 � ; ; , , � INTERIM LOTS , HOSPITAL � ' ' 91 , � ' Conclusions ' In general , short-range Transportation Control Plan proposals are not expected to have significant adverse environmental effects. The construction of an interim fringe parking lot between Miller and St. Jaseph's hospitals is one possible , exception and should be studied further. Long term parking and transportation network improvement strategies, by contrast, are expected to have a strong effect on future development in the downtown and ' on the character of surrounding neighborhoods. Some of these may be adverse, others will be beneficial . These impacts should be considered when long range program designs are specified. � Applicable Federal , State, and Local Environrroental Controls ' Minnesota Pollution Control Agency regulatiorrs will be the primary means of control . They include: APC I Ambient Air Quality Standards. These reflect U. S. Environmental Protection ' Agency standards. By agreement between the City,of St. Paul and the PCA, compliance with carbon monoxide standards must be achieved through the implementation of a Transportation Control Plan by mid-1977. , APC 6 Preventinq Particulate Matter From Becoming Air-Borne. Dust control measures may be necessary during construction. , • NPC 2 Noise Standards. Noise control measures may be required during construction activity and for proposed highway .projects. ' Future Reviews Reviews of plan elements "borrowed" from the Thoroughfare Plan and the Downtown ' People Mover System and those to be developed in the Parking Plan will be included when those plans are assessed under the HUD reWiew procedure. The Mri/DOT is currently preparing a draft environmental Impact Statement for the I-35E project. An assessment may also be required for the people mover, should it be approved. ' , , , � ' � 93 � � � � � � � � � � APPENDIX D ' Memorandum of Intent, January 22, 1974, for the Implementation Plan ' . to achieve CO ambient air quality standards. ' ' ' Note: Although the Minneapolis CBD was the only area in the state that had violated air quality standards at the time this Memorandum of Intent was entered, this document is imcluded as an appendix to ' indicate: ' 1 . The MTC's willingness to cooperate with all concerned part�es to improve air quality through innovative services, and ' 2. The City of St. Paul 's intent to perform various matters in order to maintain air quality standards. ' ' , t 95 . 1 � ' ' NOW THEREFORE, in order to attain and maintain the national ambient air quality standard for carbon monoxide in the St. Paul - ' Minneapolis Air Quality Control Region, the parties execute this Memorandum as an expression of the efforts and functions each party ' shall perform in implementing the transportation control strategies selected by the State of Minnesota to attain and maintain the t standard. 1. The City of Minneapolis does intend to perform the fol- ' lowing functions: , a. Install a traffic surveillance and control system to ' regulate tra£fic on city streets in the central busi- ness district by 1975. � b. Construct parking facilities on the fringe of the cen- tral business district to handle 2,200 vehicles by May 31, 1975, with an additional 4,800 fringe-lot spaces , to be built in 1977. c. Promote enforcement of existing idling, parking, loading, ' and pedestrian ordinances. d. Promote adoption of new ordinances "restricting idling ' and the availability of additional downtown parking spaces. ' 2. The Metropolitan Transit Co:nmission does intend to perform the following functions: ' a. Operate a bus service from the fringe parking facilities to downtown Minneapolis in conjunction with tlie comple- ' tion of the facilities. b. Operate an expanded express bus service to downtown ' Minneapolis, contingent upnn construction of park-and- , 98 ' ' � � t , MEMORANDUM OF INTENT In the matter of the Implementation Pl.an to achieve Carbon , Monoxide Ambient Air Quality Standards in the State of Minnesota. � This memorandum, executed this �-��x� day of /"izr7=ctriy , i/ 1974, between the Minnesota Pollution Control Agency, the Minne- ' sota Highway Department, the Cit� of Minneapolis, the City of St. Paul, the Metropolitan Transit Commission, and the Metropolitar� ' Council. ' ' 1. The State of Minnesota is required by section 110 of the Clear Air �ct of 1970 (P.L. 91-604) and the regulatior�s of the ' � United States Environmental Yrotection Agency promulgated there- under to ado�t an implementation pian to acYiieve and maintain ttie ' natio:�al ambient air. quality standard for carbon monoxide i�z i•9inne- sota. � ' 2. The central business district of N,inneapola_s is the only area. in the State which exceeds the standa.rd. ' 3. The parties are desirous of adopting a plan to ac?ii��ve the national r.arbon monoxide standard in the tdinneapolis r_.ei.t-r�l busin s- ' district and to maintain the st�ndard in the St. Faul - Miiir.eapoli.s Air Quality Control Region. ' 4. The parties recognize that impl�mentation of any plan to achi.eve and maintai:� the national carbon monoxide standard rea�:iras ' the caoperat.ion ar.d participat:ion of all concerned goveY.?uvent�l bod5.es. 5. The parties recognize that air quality is a concern cf_ all ' citi.zens �f the State of Minn•�sota and th�t attainmenc and maintenan�e of the carbon monoxide standard is vital �o the health and welfare of ' Minnesota's citizens. ' 97 ' � ' 1 ' ride facilities by appropriate public works agencies. ' �, Continue to modernize and upgrade maintenance of th� transit bus fleet to enable a longer operating life of ' the buses, ancl to help ensure a reduction in bus exhaust emissions by following all proper maintenance procedures. ' 3. The Minnesota Highway Department does intend to perform the following functions: ' a. Oversee the completion of construction and opening of I-35hT north from I-94, around the Minneapolis central ' business district, to East Hennepin Avenue b;� May 31, 1975, and tq I-694 by July 1, 1976. b. Promote the adoption of car-pooling programs by major temployers. 4. The Minnesota Pollution Control Agency does intend to ' perfo�m the following functions: a. Support and assist the efforts of the various govern- tmental bodies to obtain federal and state money needed for implementation of the major strategies. ' b. Act as li.aison for all governmentai bodies including the United States Environmental Protection Age;�cy. ' c. Conduct tzaffic and air quality surveillance and moni- toring programs to determine the effectiveness of the ' strategies. d. Adopt a regulation providing for the issuance of permits ' for the construc*_ion and operation of complex sour.ces. e. Analyze up-dated motor-vehicle CO emission 3ata from ' recent federal and institutional reports and studies. f. Recommend mid-course changes in control strategies as , ' 99 , ' 1 ' ' needed to attain tk�e CO standard. g. Encourage appropriate action by other governmental ' bodies to insure implementation of the control strategies. ' 5. The Metropolitan Council does intencl to review the plans of the various metropolitan governmental bodies for attaining and ' maintaining the carbon monoxide standard and to advise the bodies of the effect of such plans on the coordinated and harmonious de- , ' velopment of the metropolitan area. 6. The City of St. Paul does intend to perform the following ' functians: � a. Continue plans to construct fringe parking lots and ' operate shuttle buses. b. Conti.nue investigation of the feasibility of an auto- ' free mall in downtown St. Paul. c. Continue plans to install a traffic control system. ' 7. In addition the parties state the following intentions: a. Cooperate with each other in their endeaver to achieve ' and r.iaintain the CO standard in th2 St. Paul - Minne- apoli_s Air Quality Control Region. ' b. Cooperate in efforts of surveillance and monitoring to determine tYle effectiveness of the various control strategies. ' c. Continue on-gaing programs and implement new ones beyond :iay 31, 1975, to maint3in CO standards in ' � St. Paul - Minneapolis Air Quality Control Rcgion. ' 1 100 ' ' � � ' t �,.-....-.-;r, , — �,«...:.L ! � � �...... — — Title:_�p� Title. _ ' CITY U,: i�lI.v:3LlY0L1S METROPOLITAiV T'2Ai1SIT COA•lt-iISSTON Date: r"��. �7� Date: ��h�"�?1 , -----__-- --- ---- --- �. �� ° �b� �°°-:.'�_,� �� . , '.., � — ' - � w ,/•..� - TiL-le ` -- • Titl��:_{' °"•°`. f".��;��',�V'' '� -- t � r1I�lNrSQ1'1� H.iGIi47AY DLP�1F.�'N�IIT MINNESOTI� FUL�,UTIOi�J CONTROL / AGENCY �r �' Datc�: � 2•r�L(,�(71 Date: �:��T,a„p. � �• /`1'.� � . --- -�. � ^ �\\ � � �1/� �' . ��/ ,<l� \�/? k� ��Y/!�; �/l �' l �-' "� c °_C� ' ��_ 1 =,_', ° T� ,.— � - — — Titl i �`{•'.n, r,.�._� _ Title /�i�; 4f—t----- -- � METROPOLITlN COiJPdCIli CITY OF S'P. PAUL I I i/? �-, /-:� :-• Date:�,!�,� I'i ; -- Date:�—�---`—� /.---- � � � � ' � � � �� ' ' ' ' � ' � , , ' APPENDIX E � Health Effects of Air Pollution , � � � � ' � � � 103 , ' ' Hydrocarbonsz HC (78�) ' Motor vehicles are the ehief' source of hydrocarbon emissions, with the remainder. ; coming from evaporation of industrial solvents .in painti�ng, dry cleaning, and so on, and from gasoline marketing and incineration. , , ' No adverse effects on human health are directly attributed to hydrocarbons. However, this pollutant does react under sunlight to form photochemical oxidants ' which do affect people, causing respiratory irritation and the stinging, water.y ` eye reaction associated with urban smog. Nitrogen Oxides , fV�x (56%) ' Oxides of nitrogen usually originate in high-temperature combustion processes , and to a lesser extent in chemical plants. ' Although measurement of this pollutant in the atmosp�ere is difficult, experience has shown that in various forms , oxides of nitrogen can affect humans as well as ' materials and vegetation. Based on occupational exposures to nitrogen dioxide by firemen, welders , silo fillers, miners , chemists , and other industrial workers , we know that at high" ' concentrations this pollutant can be fatal to humans. At lower levels of 25 to . 100 parts per million, it can cause acute bronchitis and pneumonia. The rou of ollutants known as nitrogen oxides also can affect lung tissue. ' 9 P P Oxides of nitrogen also can react with hydrocarbons in the presence ,of surrlight,. to form photochemical oxidants which can affect human lungs and eyes as well as ' c�use respiratory irritation. Photochemical Oxidants � , ,Photochemical oxidants are not emitted directly into the atmosphere but are pro- duced by a complex series of chemica1 reactions initiated when certain emissions ' by autos and other sources--hydrocarbons and oxides of nitrogen--are exposed to sunlight. Ozone, peroxyacyl nitrate (PAN) , formaldehyde, acrolein , nitrogen peroxide, and organic peroxides are all formed in this manner. The presence of these pollutants in the atmosphere is dependent on sunlight, so after nfghtfall ' their concentrations are very low. This type of pollution first gained attention in the 1940's as the main cause of smog in Los Angeles. Since that time photochemical smog has .become corranon in ' many cities. Photochemical oxidants are responsible for a number of health �f�ects ira humans, , They can affect the lungs and eyes. They may cause respiratory irritation and even changes in lung function. They may result in eye irritation with the familiar symptoms of tears and inflammation. At certain concentrations they have ' been shown to impair the performance of athletes , and to affect persons with asthma. , 106 ' � e ' HEALTH EFFECTS OF AIR POLLUTANTS ' The following are excerpts from Health Effects of Air Pollutants, June 1976, United States Environmental Protection Agency with the percentage of these air pollutants in this region which are attributable to transportation sources shown , in parenthesis after the name of the pollutant (1970 data from MPCA for four pollutants) : , Most of what we know about the effects of air pollution on human health we have learned in the last decade. And only in the last five years we have begun to understand t�e way in�ividual pollutants react with other chemicals to affect our ' health. Scientists are convinced that air pollution is a very real contributing factor to the three major types of diseases that cause sickness and death in our society-- , heart disease, lung disease, and cancer. Research has shown that air pollution will accelerate the rate of disease in those persons already afflicted, and earlier death is a very real possibility. , The problem of air pollution is not limited to those persons who live in the cities or near the sources of pollution. Studies have shown that air pollution can , actually be hazardous to people who live fifty or a hundred miles away from the po1lution source. This is because some common pollutants are transformed, v�hile moving through the atmosphere, by Chemical ra�ac�ions with sunlight, into more hazardous pollutants, such as photochemical oxidants, which attack our lungs ' • and respiratory system. Carbon Monoxide, CO (97%) , Carbon mpnoxide (CO) is a colorless , odorless , tasteless gas commonly found in our urban atmosphere in concentrations that can be harmful to people. It is a by- , product of combustion, and the greatest single source of this pollutant is the automobile. Carbon monoxide is inhaled through the lungs and �nters the blood stream by combining ' with hemoglobin, the substance that normally carr�es oxygen to the cells. CO com- bines with hemoglobin much more readily than oxygen does. The result is that the amount of oxygen getting to the tissues is dras tically reduced in the presence of ' CO and this can have a profound effect on our health. CO also impairs heart function by weakening the �ontractions of the heart which supply blood to the various parts of the body. The effect of this on a healthy person is to reduce , significantly his ability to perform exercise, but in a patient with heart disease, who is unable to compensate for the decrease in oxygen, it can be a life-threatening situation. A person who has a heart attack in the presence of heavy carbon monoxide air pollution is more likely to die than if the attack had occurred in clean air. ' And carbon monoxide is also harmful to persons who have lung disease, anemia, or cerebral-vascular disease. ' Carbon monoxide can also affect mental function at relatively low concentrations. Visual perception and alertness can be affected. ' ' 105 ' � ' Ozone, the main constituent of photochemical smog, is a severe irritant to all ' mucous membranes, and its main health effects are on the respiratory system. It is virtually intolerable at levels of 1 part per million. At considerably lower concentrations (.1 to.2 ppm) which often occur in the air of many American cities , ozone in conjunction with other photochemical oxiaants causes a variety ' of health effects which are aggravated by exercise. Ozone also has an increased effect on respiratory function in the presence of sulfur dioxide. , Particulate Matter 10% Total suspended particulates (TSP) is a term for the measurement of all particles ' in our air, including soot, mists, and sprays , TSP includes a wide range of non- toxic materials such as dust and dirt, and many other materials that we know or suspect to be toxic, such as beryllium, lead, asbestos , certain hydrocarbons which ' may be carcinogenic, suspended sulfates and nitrates, and possibly radioactive elements. The effects of particulate air pollution on health are related to injury to the ' surfaces of the respiratory system, that is, to the linings of the lungs and throat. Such injury may be temporary or permanent. It may be confined to the surface. However, by weakening resistance to infection , such pollutants may , affect th� entire body adversely. Chemicals carried into the lungs by particu1ates for example, may cause cancer to develop on the lung lining, which then may spread throughout the body and prove fat�l . Inhaled lead particulates may cause lead poisoning--manifested by nervous and blood symptoms--while causing very little '• damage to the lung itself. Eye irritation from dust particles also can be a problem in many areas. tSulfur Oxides , S02 Approximately 95 percent of pollution-related sulfur oxide emissions in this , country are in the form of sulfur dioxide, a by-product of combustion of fossil fuels such as oil and coal . The remaining 5 percent are in the form of a variety of sulfur compounds that eventually are transformed into sulfuric acid, another ' pollutant. Coal or oil-burning power plants produce most of the sulfur dioxide emissions , while autos account for only about 1 percent. Suifur dioxide oxidizes in the ' atmosphere to form sulfates , a particulate form of sulfur, the effects of which depend on particle size, dispersion by weather conditions , and the presence of other pollutants which may magnify the effects. ' Sulfate cancentrations greater than 9 or 10 micrograms per cubic meter of air will aggravate asthma, lung and heart disease, and the lung function in children. ' The effect of sulfur dioxide is magnified by the presence of other pollutants such as photochemical oxidants and by-products such as sulfuric acid and hydrogen sulfide. The combination of these is known to affect the respiratory tract. ' Many scientis also believe this exposure to sulfates may be cumulative, causing or increasing the likelihood of respiratory illness such as bronchitis , emphysema, ' and asthma. Studies show that children exposed to continuous high S02 concentra- tions are more likely to develop respiratory illness when high concentrations of particulates are present. ' 107 , ' Throu h Trip - a vehicle trip passinc �h��^�ugh the CBD but having neither an ' origin or destination withi� the CBD. Transportation Control Plan (TCP) - a plan which is required to be prepared by , a unit of government violating federal and state carbon monoxide standards. This plan must define transportation controls which will reduce the CO emissions of that area to levels which would maintain compliance with standards. This ' plan must be approved and signed in an agreement between the local unit and the State Pollution Control Agency. Vehicle Miles Travel (VMT) - the average number of miles traveled by vehicles , wit in the Central Business District during the time period described. The average number of miles traveled per vehicle is presently approximately .98 ' miles per vehicle trip. Winter emissions - that total emissions density or total emissions for the Central Business District calculated at 0 degrees Fahrenheit. , Work Trip - a vehicle trip connected with the work purpose, that is, the home to work trip and the work to home trip or other post work destination. ' ACRONYMS: ' CBD - Central Business Distric� � CO - Carbon Monoxode ' E-safe - Safe emissions level for the Central Business District EPA - Environmental Protection Agency ' Mn/DOT - Minnesota Department of Transportation ' MPCA - Minnesota Pollution Control Agency MTC - Metropolitan Transit Commission ' TBI - Travel Behavior Inventory TCP - Transportation Control Plan ' VMT - Vehicle Miles Traveled ' QUANTITY DESCRIPTIONS: 9/mi - grams per mile ' g/24 hr. - grams per 24 hours ' Kg/24 hr. - kilograms per 24 hours Kg/mi2/12 hr. - kilograms per square mile per 12 hours , 110 ' , � ' ' GLOSSARY t Auto driver - synonymous with number of cars or automobiles. Expressed here in the person-trip sense, the driver of the auto. Auto occupancy rate - average number of persons occupying each vehicle. ' Carbon monoxide - a colorless, odorless poisonous gas. Primarily a product of the combustion of fossil fuels or their derivatives. ' Central Business District (CBD) - The St. Paul downtown area. Boundaries shown on Figure 1 , page 4 of the Part I report. ' Cold start factor - a numerical figure showing the number of times more CO is emitte y an automobile after a period of non-operation or idleness. An engine temperature equal to the ambient air temperature is considered 100% cold and , emits on the average 2.4 times more CO than a vehicle.at normal operating temperature. ' Com uterized si nal control s stem - a comput�rized system which controls the p asing of traff�c signals in response to charoging traffic flows. It is used to speed up traffic flow throughout congested areas. Synonymous with traffic management system. � Emissions densit - refers to the amount of carbon monoxide emitted within an area, expressed as a weight of CO) in an area (expressed in square miles) , ' during a certain time period. (Kg/mi2/12 hrs. ) Emissions factor - a numerical figure expressed in grams per mile of CO emitted ' y an average automobile operating at a certain speed. Modal split - a numerical description of the percent of individuals riding in automobiles versus the percent of individuals riding on mass transit. Generally , expressed in a number with a slash and another number; for example, 75/25. Peak hours - the hours of the day between 6 o'�lock a.m. to 9 o'clock a.m. and ' o c occ p.m. to 6 o'clock p.m. I Safe emissions level (E-safe level ) - a figure of total emissions density which ' is arrived at through a mathematical formula which reflects a calculated level of Carbon monoxide emissions which would maintain an area such as the St. Paul Central Business District within federal and state CO standards. ' Strategies (syn. transportation controls) - programs which would decrease the tota amount of carbon monoxide emissions. Gen�rally these programs would result in the decrease in the numbers of automobiles operating downtown or increase the ' average speed of those automobiles, or a combination of both. Summer emissions - an emissions density or total emissions figure estimated for summer months. This is calculated at an average ambient temperature of 70 degrees ' fahrenheit. t ]09 ' e BIBLiOGl�NPHY 1 ' Alan M. Voorhees and Associates, Inc. , The Future Role of Buses in the Twin Cities Area. , McLean, Virginia, 1968. ; Center of Urban Regional Affairs. Catchin U : Bus 0 erations and Potential in the ' Twin Cities Metropolitan Area. Minneapo �s, une . Downtown Minneapolis Bus Lanes Study Committee. Committee Report: A Study of Alter- ' natives to Reverse Flow Bus Lanes in Downtown Minnea olis. inneapo �s, e ruary Environmental Protection Agency. Com ilation of Air Pollutant Emission Factors, Second ' Edition. Pu ication No. AP-42. Research Triangle Park, 1T�.,7�pri 1 1973. ' Environmental Protection Agency, Office of Public Affairs. Health Effects of Air Pollutants. Washington, D.C. ; June 6. ' Environmental Protection Agency, Office of Transportation and Land Use Policy and Office of Air and Waste Management. Policies for the Inclusion of Carbon Monoxide and Oxident Controls in State Im lementation Plans. Washington, D.C. , January '. 6. Frost, Keith. "City Bank Tried It, Employees Like It." Transit News, 5: l , 4, April ' 1975. Metropolitan Council . A Summar Re ort of Travel in the Twin Cities Metro olitan Area. ' St. Pau , pri 974. Metropolitan Councilo Interim Transportation Systems Management Plan for the Tw�n Cities Metropol�tan Area. St. Paul , March 1976. ' Metropolitan Transit Commission. Bus Service Ex ansion Pro ram, Pro ress Re ort. St. Pau , Fe ruary 975. ' Metropolitan Transit Commission. Multi-Occupancy Vehicle Usage in the Metropolitan Area. St. Paul , November 1975. ' Minnesota Highway Department. Carpooling, The Minnesota Experience. St. Paul , 1974. Olin, John G. and Ronald L. Way. Ex erience with Minnesota's Trans ortation Plan. ' Rosevi e, innesota Po ution ontro gency, . Pratt, R. H. and Associates, Inc. , for U. S. Department of Transportation. Low Cost ' Urban Transportation Alternatives: A Study of Ways to Increase the Effectiveness of Exist�n Trans ortation Faci ities, Vo umes I and II. Kensington, January 973. ' t111 . ' ' , St. Paul , City of. St. Paul TOPICS. St. Paul , 1973. St. Paul City Planning. A.General A raisal of Parkin in the Central Area of St. Paul , ' innesota. St. Paul , February 966. St. Paul City Planning. Revised St. Paul Trans ortation Control Plan - Part I. ' St. Pau , November 1975. St. Paul Department of Public Works. The Circulation of Peo le in the St. Paul Central ' Area. St. Paul 19 4. St. Paul Department of Public Works. Trans ortation Plan for the St. Paul Core Area. ' St. Paul , . Wilbur Smith and Associates. Forecastin Im acts of Transit Im rovements and Frin e ' Par in Deve o ments on Downt wn Park�n Needs. January . ' . ' ' ' 1 ' ' ' ' , 112 ' � 1 ' ' , Jerry Smrcka, St. Paul Department of Public Works, ' Traffic Division Tom Whear, former MPCA staff ' RESE RCH ND C i ton Aichinger, Author PLANNING Donald Hancock, Reviser ' Gary Hurd, Research and Development Wendy Fearnside, Environmental Assessment H CS Erik Muller, Graphic Artist , Thomas Ashworth Donald Brau , ' Louise Langberg ' . 1 ' 1 ' ' ' ' t Preparation of this report was financed in part through t a comprehensive planning grant from the Department of Housing and Urban Development 1 114 ' e ' CREDITS ' ' PLANNING COMMISSION * Martha Norton, Chairman James Bryan ' Carolyn Cochrane Harold L. Feder Sam Grais ' *Carolyn Grittner Rev. Glen Hanggi Otto H. Hummer ' **Mertyce Mayne *David G. McDonell Jean McGinley Deborah Montgomery ' Joseph Pangal Catherine Piccolo Joseph Prifrel ' Austin J. Sherwood *Dr. Harvey Stegemoeller Adolph T. Tobler ' Robert F. Van Hoef Richard Willits **Chairman, Environmental Committee ' *Member, Environmental Committee , TR TI N ND ona L. pai , P ann ng Coordiantor POLICY DIRECTION Kenneth Dzugan, Principal Planner-Environmental Planning , TECHNICAL ASSISTANCE MEMBERS OF THE TRANSPORTATION TECHNICAL ADVISORY GROUP Joseph Prifrel , St. Paul City Planning Comnission member Otto H. Hummer, St. Paul City Planning Commission member ' Robert Roettger, St. Paul Department of Public Works , Traffic Division Gary Grefenberg, Capitol Area Architectural and Planning , Boa rd Chuck Ewert, Ellerbe Architects, Operation '85 Steve Alderson, Metropolitan Council Transportation ' Section Ray Thron, Metropolitan Council Environmental Section Barry Engen, St. Paul Housing and Redevelopment Authority Bill Marshall , Metropolitan Transit Commission ' INDIVIDUALS William Butz, St. Paul City Planning staff , Donald Hancock, St. Paul City Planning staff Steve Medole, MPCA staff Robert Roettger, St. Paul Department of Public Works , Traffic Division ' Richard Schnarr, St. Paul City Planning staff 113