HE 203 The Implementation of . A56 Department no. •ansportation Downtown Auto- Restricted 84-33 Projects June 1984 NOTE: This report is an review of key issues associated with auto- restricted zones and downtown revitalization. Part of its content includes program and other recommendations based upon this contractor's perception of the issues involved. Recognizing that there may be many alternative approaches to resolving transportation problems, these positions may not necessarily reflect those of the U.S. Government. As such, no endorsement of these recommendations is either expressed or implied by the U.S. Department of Transportation. The Implementation of Downtown Auto- Restricted Projects Final Report June 1984 Prepared by Philippos J. .Loukissas.and Stuart H. Mann ''Community Studies Program The Pennsylvania State University University Park, Pennsylvania 16802 1 DEPARTMENT of transportation 3 0 1984 Prepared for OCT Office of Management, Research, LIBRARY and Transit Services Urban Mass Transportation Administration Washington, D.C. 20590 Distributed in Cooperation with Technology Sharing Program Office of the Secretary of Transportation DOT-l-84-33 PREFACE This is the final report prepared by the Community Studies Program at The Pennsylvania State University on behalf of the Office of Technical Assistance of the U.S. Urban Mass Transportation Administra- tion under contract project number UMTA-PA-U6-0U73. Philippos J. Loukissas, Assistant Professor of Urban and Reyional Planniny, was the principal investigator and project manager. Stuart H. Mann, Professor of Operations Research, was responsible for the conduct of research in the ARZ projects survey (Phase III) and for writing Chapter 4. John L. Mace, Jr., a Ph.U. candidate, was responsible for the literature review, the conduct of research in the CBD revitalization survey (Phase II) and for writing Chapters 2 and 3. Larry Bruwelheide, a Ph.O. candidate, participated in the field research (Phase IV) and the writiny of the case studies. Susan Knasko and Kent Simendinyer, botn yraduate students, contributed in the data collection and the review of the literature (Phase 1). Evanyelos Tri antaphy 1 1 ou , also a yraduate student, assisted with the drafting of the illustrations. Joseph Goodman, the UMTA project manager, contributed his extensive experience acquired in the admi ni strati on of the auto restricted zones demonstration program. Vince Milione, while at UMTA, provided critical support for the study. The project benefited from the cooperation of the planniny staff and other individuals who participated in the implementation of CBD revitalization projects in the studied cities. The following people were particularly helpful in providing critical feedback or contributing information about the ARZ projects in the six case studies. Martha Bailey, Boston Redevelopment Authority; Robert Flahive, New York Department of City Planniny; Thomas Gawley, Tippets, Abbett, McCarthy and Stratton; Penrose Gearin, Church Street Marketplace Commission; Carla Fleaton, Transportation Systems Center; Randall Kamerbeek, Burlington Department of Planning and Community Development; Martin Nizlek, Tucson Department of Transportati on ; Ken Orenstein, Providence Foundation; Don Paight, Memphis Center City Commission; Samuel Shamoon, Providence Department of Planniny and Urban Development; and, Glen Weisbrod, Cambridge Systematics, Inc. Several Community Studies Program staff contributed to the typiny of this report. They include Randi Hetrick, Wanda Gordon, Lee Ann McClusick and Nancy Johnson. TABLE OF CONTENTS LIST OF TABLES v LIST OF ILLUSTRATIONS viii EXECUTIVE SUMMARY ix Chapter 1 INTRODUCTION 1 Some Observations on Pre-1977 ARZs in U.S. Cities . 1 UMTA's ARZ Demonstration Program . 5 Problem Definition 8 Study Objectives 9 Study Methodology 10 2 REVIEW OF THE LITERATURE 12 Definition of Implementation 12 Evaluation of Implementation Outcomes 13 Models of the Implementation Process 15 The Community Innovation Adoption Process 19 The Community Decision Making Process 21 Methodological Considerations 23 Concluding Observations 23 3 CBD REVITALIZATION PROJECTS 25 Introduction 25 Sampling Procedures 27 Description of Results 28 Analysis of Results 45 Summary and Discussion 58 4 AUTO RESTRICTED PROJECTS 63 Introduction 63 Sampling Procedures 63 Round I Results 64 Round II Results and Analysis 65 Summary and Discussion 85 5 UMTA'S ARZ DEMONSTRATION PROJECTS - SIX CASE STUDIES ... 89 Boston: The Downtown Crossing 91 Burlington, VT : The Church Street Marketplace .... 106 Memphis: The Madison Avenue Project 123 Providence: The Kennedy Plaza 127 New York City: The Broadway Plaza 143 Tucson: The Auto Restricted Zone Proposal 159 Summary and Discussion 165 6 CONCLUSIONS AND DISCUSSION 174 Summary of Findings 174 Methodological Limitations 176 Discussion 178 REFERENCES 183 APPENDIXES 189 A CBD Revitalization Survey - (Questionnaire 1) 190 B List of Contacted and Responding Cities in the 1983 and 1975 Survey by Region 198 C City Responses to Questionnaires 1, 2, and 3 202 D City Membership per Census Group 205 E CBD Revitalization Survey-List of Lessons and Comments . 206 F ARZ Implementation Survey - (Questionnaire 2) 208 G ARZ Implementation Survey-Last Round-(Questionnai re 3) . 214 hi Responses to Questionnaire 3 218 I Cost, Funding Source and Duration of ARZ Projects .... 221 J List of Interviewees 222 TV LIST OF TABLES Table 1-1 Comparison of Cities with ARZs With All Cities by Population Size 4 1-2 Comparison of Cities with ARZs With All Cities by Region 6 1-3 U.S. Cities with ARZs by Size and Region 7 3-1 Comparison of Census Groups 30 3-2 CBD Problems - Cofrequency Matrix for City Sample 32 3-3 Joint Frequencies of Census Group, CBD Problem and Location 34 3-4 Project Types: Cofrequency Matrix for Project Sample 36 3-5 Joint Frequencies of Planning and Implementation 3- Responsibilities 41 4-3-6 Implementation Problems: Cofrequency Matrix for Project Sample 43 3-7 Summary of the Relations of Project Types with other Predictor Variables 47 3-8 Summary of the Relations of Implementation Problems with Predictor Variables 50 3-9 Joint Frequencies of Nine Implementation Problems and Three Project Types 52 10 Joint Frequencies of Implementation Problems and Project Types 53 1 Response Rate to Rounds I and II 64 4-2 Fraction of "P" or "VP" Responses Impact of Event on Project Success 67 4-3 Fraction of "P" or "VP" Responses Impact of Event on Project Success 67 4-4 Fraction of "N" or "VN" Responses Impact of Event on Project Success 69 4-5 Frequency and Fraction of "P" or "VP" Responses Impact of Category of Event on Project Success ... 69 v 4-6 Frequency and Fraction of "P" or "VP" Responses Impact of Category of Event on Project Success by Size of City 71 4-7 Frequency and Fraction of "N" or "VN" Responses Impact of Cateyory of Event on Project Success by Size of City 71 4-8 Frequency and Fraction of "P" or "VP" Responses for each Event Category by Project Status and cost 72 4-9 Frequency and Fraction of "P" or "VP" Responses for each Event Category by Project Status and Transit Component ..... 74 4-10 Frequency and Fraction of "N" or "VN" Responses for each Event Category by Project Status and Transit Component 75 4-11 Frequency Distribution of Responses by 27 Cities to the Seven Problem Types 77 4-12 Comparison of Problem Types by Project Status .... 79 4-13 Frequency of Responses as a Fraction of the Total Responses by Project Status for each Project Type 80 4- 4-14 Frequency of M/W Responses as a Fraction of the 5- Total Response by Project Status and Population Size for each Problem Type 81 4-15 Frequency of M/W Responses as a Fraction of Total Response by Project Status and Census Group for each Problem Type 82 4-16 Frequency of M/W Responses as a Fraction of Total Response by Project Status and Cost of the ARZ Project for Each Problem Type 83 4-17 Frequency of M/W Responses as a Fraction of Total Response by Project Status and Transit Component for each Problem Type 84 18 Frequencies of Joint Occurrence of Event Category and Implementation Problem Type 84 1 Boston - Summary of Major Events 102 5-2 Burlington - Summary of Major Events 119 5-3 Memphis - Summary of Major Events 126 vi 5-4 Providence - Summary of Major Events 139 5-5 New York City - Summary of Major Events 156 5-6 Tucson - Summary of Major Events 164 5-7 Summary of ARZ Project Characteristics 166 LIST OF ILLUSTRATIONS 1- Figure 2-1-1 U.S. Cities with ARZs by Year of Completion .... 2 2 U.S. Cities with ARZs (Pre 1977) 5 2- 1 A Conceptual Framework for Analyzing Decision 3- Outcomes 14 2-2 A Conceptual Diagram of the Van Meter- Van Horn Model 16 3 Model for Adoption of Innovation by Bingham .... 21 1 Distribution of Projects by Type 38 3-2 Distribution of Projects by Funding Source .... 40 3-3 Frequencies of Implementation Problems 45 3-4 Joint Frequencies of Project Types and Implementation Problems 51 3-5 Joint Frequencies of Project Type and Implementation Problems and Completion Status 56 5-1 Boston Downtown Crossing 92 5-2 Boston: Washington Street 98 5-3 Boston: Winter Street 98 5-4 Burlington CBD 108 5-5 Burlington: Church Str. 1st Block East Side . 117 5-6 Burlington: Church Str. 2nd Block West Side . 117 5-7 Memphis Madison Avenue Transitway 125 5-8 Providence CBD 129 5-9 Providence Kennedy Plaza and Union Station .... 133 5-10 New York City Broadway Plaza Plan 147 5-11 New York City Sketch of Broadway Plaza 149 5-12 Tucson CBD 162 5-13 Summary of Major Events - All Cities 172 Vll 1 EXECUTIVE SUMMARY Study Overview and Methodol ogy In 1975, UMTA's Office of Service and Methods Demonstration (SMD) launcned a demonstration program of Auto Restricted Zones (ARZs) which went beyond the traditional scope of linear pedestrian malls.