Center for Urban and Regional Affairs Cavanaugh Politics and Freeways and Politics Cavanaugh Politics and Freeways: Building the Twin Cities Interstate System by Patricia Cavanaugh Used with permission of Minnesota Historical Society Used with permission of Minnesota Historical Society Horses and wagons, bicycles, automobiles, and Cars in front of the St. Paul Cathedral, Summit streetcars cause traffic congestion at Nicollet and and Dayton, St. Paul Sixth, Minneapolis Center for Urban and Regional Affairs University of Minnesota University of Minnesota 200 Transportation and Safety Building 330 HHH Center 511 Washington Avenue SE 301—19th Avenue S. Minneapolis, MN 55455 Minneapolis, MN 55455 Phone: 612-626-1077 Phone: 612-625-1551 Fax: 612-625-6381 Fax: 612-626-0273 E-mail: [email protected] E-mail: [email protected] Website: www.cts.umn.edu Website: www.cura.umn.edu Used with permission of Henry Benbrooke Hall, Minnesota Historical Society Used with permission of Metropolitan Design Center, © Regents of the University Minnesota Used with permission of Metropolitan Design Center, Used with permission of Norton & Peel, Minnesota Historical Society Ce Interstate-35E construction, St. Paul View of downtown from Interstate 35, Interstate 35W with Minneapolis skyline nter for U for nter Minneapolis in background rban and Regional Affairs Affairs Regional and rban Politics and Freeways: Building the Twin Cities Interstate System Prepared by Patricia Cavanaugh University of Minnesota for Center for Urban and Regional Affairs (CURA) and Center for Transportation Studies (CTS) at the University of Minnesota October 2006 Center for Urban and Regional Affairs A joint publication of the Center for Urban and Regional Affairs (CURA), an all-University applied research and technical assistance center at the University of Minnesota that connects faculty and students with com- munity organizations and public institutions working on significant public policy issues in Minnesota; and the Center for Transportation Studies (CTS), a multidisciplinary center at the University of Minnesota that serves as a catalyst for transportation innovation through research, education, and outreach. The content of this report is the responsibility of the author and is not necessarily endorsed by CURA, CTS, or the University of Minnesota. Publication No. CURA 06-01 (500 copies) © 2006 by The Regents of the University of Minnesota. This publication may be reproduced in its entirety (except photographs or other materials reprinted here with permission from other sources) in print or elec- tronic form, for noncommercial educational and nonprofit use only, provided that two copies of the result- ing publication are sent to the CURA editor at the address below and that the following acknowledgment is included: “Reprinted with permission of the University of Minnesota’s Center for Urban and Regional Affairs (CURA).” For information regarding commercial reprints or reproduction of portions of this publication, contact the CURA editor at the address below. This publication is available in alternate formats upon request. Printed with agribased inks on recycled paper with minimum 20% postconsumer waste. Center for Urban and Regional Affairs (CURA) Center for Transportation Studies (CTS) University of Minnesota University of Minnesota 330 HHH Center 200 Transportation and Safety Building 301—19th Avenue South 511 Washington Avenue S.E. Minneapolis, Minnesota 55455 Minneapolis, Minnesota 55455 Phone: (612) 625-1551 Phone: (612) 626-1077 Fax: (612) 626-0273 Fax: (612) 625-6381 E-mail: [email protected] E-mail: [email protected] Website: www.cura.umn.edu Website: www.cts.umn.edu The University of Minnesota is committed to the policy that all persons shall have equal access to its programs, facilities, and employment without regard to race, color, creed, religion, national origin, sex, age, marital status, disability, public assistance status, veteran status, or sexual orientation. Table of Contents List of Tables ........................................................................................................................iv List of Figures ......................................................................................................................iv Foreword................................................................................................................................v Acknowledgements................................................................................................................vi Introduction ..........................................................................................................................1 1. Leading Up to the 1956 Federal-Aid Highway Act............................................................5 Federal ....................................................................................................................5 State and Local ......................................................................................................10 2. History of the Twin Cities Area Interstate: Mega-Projects (1956 to the Late 1960s) .......13 Introduction ..........................................................................................................13 Interstate 94 from St. Paul to Minneapolis ............................................................14 Interstate 35W/Highway 62: Crosstown Commons ..............................................18 Discussion ..............................................................................................................23 3. History of the Twin Cities Area Interstate: Expanding the Debate (1970 to the mid-1990s) ................................................................................................25 Introduction ..........................................................................................................25 Interstate 335, the North Ring ..............................................................................29 Interstate 35E ........................................................................................................34 Interstate 394..........................................................................................................44 Interstate 94 from Interstate 494/Interstate 694 to Trunk Highway 95 ..................54 Discussion ..............................................................................................................60 4. History of the Twin Cities Area Interstate: Falling Behind (1990s)..................................63 Introduction ..........................................................................................................63 Interstate 35W Expansion.......................................................................................65 Discussion ..............................................................................................................87 5. Epilogue ..........................................................................................................................91 6. Discussion and Conclusions ............................................................................................97 Federal Government ..............................................................................................98 State and Local Government ..................................................................................99 Business Community............................................................................................100 Citizens.................................................................................................................101 Professionals..........................................................................................................103 The Role of Experts in a Representative Democratic Government........................105 Leadership ............................................................................................................107 Tensions and Mismatches ....................................................................................108 Conclusions ........................................................................................................110 Appendices ........................................................................................................................113 Appendix 1. Minnesota Governors, Highway/Transportation Commissioners, and Metropolitan Council Chairs 1955–2005..................................................113 Appendix 2. Municipal Consent Laws ................................................................115 Appendix 3. Important Dates in Minnesota Highway History ............................119 Appendix 4. Significant Federal Legislation Related to Highways ........................121 Appendix 5. Development of the Metropolitan Council .....................................123 Appendix 6. 1975 Moratorium Bill .....................................................................125 iii LIST OF TABLES Table 1. Construction of Freeways in the Seven-County Twin Cities Area ............3 Table 2. Interviews by Type of Respondent ..........................................................4 Table 3. 1975 Design Year Volumes for Interstate 35W ......................................66 Table 4. Minnesota Driving Statistics Summary, 1965–2004 ..............................91 LIST OF FIGURES Figure 1. Freeway Construction Completion by Era ............................................2 Figure 2. Freeway Segments Selected for Study ....................................................4