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Tuesday, November 30th, 2010

Taking Chicago Transit from Good to Great, Part One – Building the Vision

[ Last year I ran a five part series called "Good to Great" about how to fundamentally change the game on transit in Chicago. I guess you could sum it up as, "We need a Chicago2016 for transit." In the lead up to the mayoral election, I am re-running this series over the next month. Virtually all of the material is relevant to any US city with an existing major transit system, so please check it out.

I will add one thing by up front offering the new mayor a suggestion. As much as I might covet the job for myself, he should try to keep Richard Rodriguez as CTA president. I don't even know if Rodriguez wants to keep this tough and thankless position. But given the constraints and pressures he's operating under, I think he and the team there have done a very good job at managing the agency in some difficult circumstances. He's a keeper. If you need to see an example of why, read this article. ]

Earlier this year, I won first prize in a global transit competition sponsored by the Chicagoland Chamber of Commerce. So perhaps it is past time that looked at transit in Chicago. While this article is about that city, the techniques are applicable to most places.

Both the current and former CTA presidents, Richard Rodriguez and Ron Huberman, said that Chicago has a good transit system (I agree) but deserves a great one (I also agree). So with apologies to Jim Collins, this article kicks off a multi-part series on taking Chicago area transit from good to great.

The Problem: No Public Demand

Why doesn’t Chicago have a great transit system? I’m going to make a rather contrarian and controversial indictment. Namely, I think Chicago doesn’t have a great system because its citizens don’t want one. If there were greater citizen demand for a better system, that’s what we would have. Absent that demand, we get at best a good system. That’s because it is impossible to create a great, world class regional transit system without more money – a lot more. This might sound a lot like blaming the victim, but please bear with me.

The numbers are stark. According to a joint promotional site run by the region’s transit agencies, Moving Beyond Congestion, Chicagoland needs $10 billion in funds just to bring the current system up to a good state of repair. Even if the city wanted to simply keep the system at current levels, spending at $1 billion per year would be required. The 2007 strategic plan says that $57 billion is needed over the 30 years to give the city the system it wants and needs. The stimulus funds and monies provided under the state’s recently passed capital program are only a minimal start. Even if you think these numbers are inflated – and I don’t – they are certainly not orders of magnitude too high.

Without significant new dollars being made available, it simply isn’t possible for regional transit agencies to create a transit system worthy of Chicago. It’s just not going to happen. I actually think regional agencies do a pretty good job considering the financial and regulatory constraints they operate under. As they say, “You can set your watch to Metra”. The CTA too has improved service markedly in recent years, and has proven that you can accomplish a lot when you take a “can do” attitude despite not getting more money. The CTA has done a lot to reduce the number of slow zones, roll out passenger friendly services like bus tracker, and experimented with things like iGo car integration.

So why do I say that the people of Chicago don’t want a great system? Because it’s true. People in Chicago like to grouse about the CTA the way they complain about the weather. But that doesn’t translate into anything more than amusing newspaper columns and blog postings. Like the weather, the problems of transit underinvestment are viewed as simply the “background noise” you have to put up with to live in Chicago.

Contrast public reactions to the state of transit investment with that on other controversial affairs of the day – parking meters, the Olympics, crime, or whatever. Heck, there are more people out there pounding the table about how upset they are about the pending demolition of Michael Reese Hospital than there are people demanding more money for transit. If tens of thousands of angry citizens were marching, publishing blogs, and writing letters to Springfield and Washington to express their unhappiness about this state of affairs, we’d see action. If politicians thought they would lose their jobs in the next election if they didn’t do something about transit, well, they’d do something about it.

So much of the writing on transit futures focuses on what we ought to do functionally and technically. But that’s irrelevant if we don’t have the money to pay for it. So this series will focus on how we build public demand for transit investment, elevating its status in our civic priority list. And give an idea of how to actually get the money. This will be a five part series:

Part 1: Building the Vision (this article).
Part 2: Raising the Bar on Design
Part 3: Cost Control and Governance
Part 4: Paying For It
Part 5: Getting It Done

This installment focuses on building a shared civic vision of the future of the city and its transit system.

Why a New Vision Is Necessary

Frankly, it is pretty easy to understand why the public views investing in transit with all the enthusiasm of a dose of castor oil. It’s what I call the “Rusty Furnace Effect”. Imagine you’ve got a gas furnace in your house that is pushing 20 years old. It’s been poorly maintained, is badly rusted, and has an alarming tendency to break down. You open the door to your utility closet and stare at that thing for a while and contemplate a choice: spend $6000 on a new furnace, or pay $250 every time it breaks down. I think most people are going to defer shelling out $6K as long as they can. It’s the same reason I put off getting my wisdom teeth removed until I was in college and had a particularly bad infection. Until the pain of the disease outweighs the perceived pain of the cure, we aren’t going to act.

Transit is in the same boat. We are told that we need to spend $10 billion to “bring the system in a good state of repair”. This will no doubt involve much inconvenience as well, including station closings, three track operation, etc. Why would anyone want to pay $10 billion to get a system that is basically the same as the one we’ve got today, only a bit spiffier? Until, for example, trains start derailing, people don’t perceive the need.

This is basically the problem with all “plumbing replacement” type operations. I don’t think it is any accident that the people selling furnaces tout their potential to reduce heating bills through energy efficient operation. You’ve got to have a hook to convince people that they are getting something.

That’s what we need for public transit in Chicago. We’ve got to have a hook to show people how they are going to get something for all this money. We have to create a vision not just of how transit will be better – though we should do that – but how life in Chicago is going to be different and better when we execute the capital plan. We have to make it real to people and inspire an emotional connection so that they say, “Yes – we’ve got to have some of that!” to the point they support the fund raising necessary to see it happen. That’s the piece we are missing today.

Why Transit Advocates Are Often Poor Marketers for Transit Spending

One thing I’ve noticed is that pro-transit advocates are ofter poor at selling the need for public transit to the public at large. Indeed, except where the public is already primed to support it – places like Portland and Seattle – opponents of transit are generally more effective at making their case. I recently noted this, for example, in the case of Cincinnati’s proposed streetcar system.

I think part of the problem is that the case is obvious to us, thus we are unable to conceive of others who don’t think or feel the same way, which creates a blind spot on selling. Pro-transit activists tend to view people who oppose it as Philistines or representatives of nefarious forces. The idea that people have to be convinced seems foreign.

We see this problem in the Moving Beyond Congestion site. It relies heavily on facts and figures to make its case, as if the mere fact that we need $10 billion to repair regional transit stands on its own. Well, people like me read that and think, “Seems pretty straightforward to me. How much can we afford to spend now and where can we go start raising the money?” But to others those are just numbers. The facts are not in dispute. The numbers on the MBC site are what they are. But facts don’t inspire. Because many of us live and breathe in this space every day, we don’t need the sales job and thus don’t appreciate the need for it.

Also, as we well know, political decisions aren’t always made on the basis of facts and rational analysis. The numbers elected officials really care about are the vote totals, the number of constituent letters and phone calls, etc. So we’ve got to make sure we create that public demand so that politicians see the numbers that matter.

I’m not going to be prescriptive as to what that contents of the vision should be here, but rather talk about some of the elements and techniques that should be brought to bear, including some that were used to great success in Burnham’s Plan of Chicago.

Learning from High Speed Rail

A commenter in one of my blog posts described a lecture at one of the Burnham Plan celebration events, and how the section on high speed rail seemed to really get people excited. This person was wondering why that was. Why has high speed rail captured so much of the public imagination and gotten so much federal funding when we can’t mobilize similar results for metro transit?

It is actually pretty easy to understand why. High speed rail would be a major new transportation system that doesn’t exist at all today, unlike fixing up the CTA to “bring the system up to a good state of repair” which merely lets us keep what we already have. Again, do you want to replace your rusty old furnace or get a shiny new kitchen?

Also, high speed trains tap into a deep romantic streak in the human psyche. The best description of this is Jonathan E. D. Richmond’s paper, “The Mythical Conception of Rail Transit in Los Angeles. This is actually written as an anti-rail tract (metro rail, not high speed), but also provides the playbook in favor of it. I can’t do it justice here, but this is an absolute must-read paper. Among other things, he clearly explores the idea of the fast train as sex symbol. Per Richmond:

Arnold Pacey (1983) writes about the “virtuosity values” of technology, the enjoyment of:

having mechanical power under one’s control, and of being master of an elemental force. The teenage enthusiasm for motorcycles reflects this. Many farmers, it is said, buy larger tractors than they really need, to the detriment of soil structures, because of the pleasure they get from using such powerful machines… Dennis Gabor talks about “archetypal human desires” which include the wish to communicate at a distance, to travel fast, to fly [p.84-85]

It is the meanings related to power, virtuosity and sex which the train appears to symbolize which most convincingly seem to focus attention on the technology. The technological power of the train was often equated to sexual potency by those interviewed. A train as both genders: it is referred to as “she” and as a penis. According to LACTC Commissioner and Mayor of Santa Monica, Christine Red:

There was an intense amount of ego over the fact that San Diego had whipped a trolley system out, kabloom, like that. They just did it. And I mean everybody else was like, oh my God, you know, what an affront that this little city could do that, and here we are – a big county – powerful, two-thirds of the population of the state, blah, blah, blah, and we can’t do this [my emphasis]

The fact that San Diego got their bright red cars in working order before Los Angeles even got off the market left LA feeling impotent or even castrated. The metaphorical sexual imagery – of penis envy – in this account is unmistakable. When the LACTC (1991) publication Metro Moves announced the opening of the Blue Line tunnel into downtown Los Angeles, furthermore, it headlined: “A tunnel just waiting for a train.” A picture of the tunnel was contained within the outline of a heart (Fig 4)

Clearly, as the ultimate fast train, high speed rail is also high on the sexiness factor. Also, the idea that the United States is falling behind, and that the world’s super-power is being humiliated by much smaller countries (and major competitors like China) with rail investments plays a role.

There’s a lot more in there, and clearly tapping into the lessons Richmond teaches is important. Chicago is a city with a long history of massive civic pride and boosterism. A city that refused to be anything other than #1. This is something that can be leveraged to good effect in selling transit investment. Likewise Richmond’s “social connections” metaphor (investing in disadvantaged communities to connect them to opportunities) would appear to be a good one to leverage.

Learning from the Plan of Chicago

The most viewed article ever in this blog was called “What Made the Burnham Plan Successful”, which outlined nine items that contributed to the plan’s success. A few of these are highly relevant to this effort as well.

  1. A mix of the practical and conceptual. Burnham’s plan both included things like a Michigan Ave. bridge – a practical and concrete item – with items like the harbors and ring road diagrams that were more just ideas. We need something similar here. A mix of practical items like “build this rail station here” with more forward looking items like high speed rail integration or airport express service.
  2. A mix of both work in progress and new items. Burnham wisely glommed onto things that were already in the pipe or partially completed. The Michigan Ave. bridge and the lakefront park came to mind. By mixing these with the new, the forward looking items were associated with recent successes. Plus, by having near term items included, they could demonstrate rapid progress on the plan. The CTA could do the same. Today, projects like the Brown Line expansion or the Douglas L rehab are presented as standalone projects, not part of a larger program of renewing Chicago’s transit system. Similarly, the three new L extensions that were approved are likely to be viewed as ho-hum. Unless it affects you directly, why would you care? I’ll likely never take the Red Line to 130th. Having discrete projects instead of a program means each individual one is of mostly parochial interest. What Burnham did was draw the big picture and showed how the pieces fit in. That’s what we need to do. Actually, a lot has already been done. Combine the past projects with near term items and longer terms with an overarching vision to show the public that we are marching towards a better future. Then you also build a coalition in support of an overall program, instead of just having different groups and neighborhoods who care mostly about their own local project.
  3. High quality renderings and design in the plan document. This is examined below. But the quality of design in the plan itself excited the public, made the vision real to them, and gave it an authoritative feel.
  4. Sustained follow-through on sales and marketing. The plan didn’t sell itself. There was a big, consistent push behind it. This famously included the Wacker Manual, a condensed version of the plan taught to children in the public schools.

Planners today could learn a lot from the techniques of success used by Burnham and his team.

I’ll conclude this post with a look at three examples of efforts that have done this right, focusing on visualizations, to show the type of effect we need to be aiming for: Burnham’s original Plan of Chicago, the “Imagine KC” project from Kansas City, and Louisville’s 8664 initiative.

Burnham’s Artwork

One of great things about the Plan of Chicago is that its backers spared no expense in creating a high quality output. They commissioned an artist to do bespoke artwork to literally show a conceptual picture of what the Chicago of tomorrow would look like, drawing on the legacy of the World’s Columbian Exhibition. These were gorgeous, full color plates in the output. Even children could appreciate them. Here are a couple of samples:

It’s easy for us to take Chicago for granted today. But in 1909 it was a crowded, filthy, dangerous, and rather ugly place. For people to see these gorgeous renderings of a clean, beautiful, well-ordered, spacious city, with gorgeous parks and boulevards must have prompted amazement, perhaps even disbelief. This is Chicago? The city could really be like this? Ultimately, it whetted people’s appetites to actually get it.

Imagine KC

Here’s another example, this one transit specific. It comes from Kansas City. Kansas City does not have rail transit today. A proposal to fund the construction of a light rail system was voted down last November. Frustrated that people did not really understand what light rail would do for the city, a local design agency created this video for Kansas City Public Television to try to make it very clear visually. Some of you may have seen it since I’ve linked it before, but if not this three and a half minute video is well worth watching.

The video shows the time wasted in cars, followed by a demonstration of benefits of dense, mixed use development, then an example of transit creating this very type of environment in Kansas City.

One cautionary note here. This video would makes Kansas City look like a nearly 100% white city. Plus the development featured – fitness clubs, sushi bars, etc – are oriented towards yuppies. This feeds into criticisms of transit in small cities as being gentrification tools and subsidies to the already well-off. This is a common failing in small city transit advocacy. Of course, Chicago is nothing like Kansas City. The value of transit is clear to the whole community.

The techniques of this video are very applicable to Chicago.

8664

Lastly, I’ll mention again a movement out of Louisville, Kentucky called “8664”. This is a grass roots movement that wants to stop a major new downtown bridge and expressway widening in favor of tearing down an elevated waterfront freeway, replacing it with a park.

8664 tapped into a powerful idea of recapturing the rivertown heritage of Louisville. They’ve relentlessly touted the benefits – financial, recreational, environmental, etc – and have really captured the public imagination. Without any official backing, they have totally changed public opinion. While many many not be sold on the idea of tearing down I-64, they clearly have soured on the idea of the huge Spaghetti Junction reconstruction and new bridge.

Part of 8664 has been a series of wonderful drawings and videos, some of which I’ve shown before. Here’s their compare and contrast of the state’s plan:

with their plan:

Extremely effective. Their marketing is running rings around the state DOT’s. They are rigorously on message, repeatedly touting a more livable future for Louisville, and enumerating the benefits of the project, while continuing to generate quality collateral like this.

Conclusion

To really capture the public imagination and build demand for public transit is going to require the creation of a compelling vision, an emotionally resonant picture of what life will be like in our new and better future, and a strong and sustained marketing plan to sell it. As the examples above show, the vision can be conceptual at some level, as long as it is generally honest and there is a real, credible plan behind it.

More Chicago

Chicago Transit: From Good to Great
Part 1: Building the Vision (this article)
Part 2: Raising the Bar on Design
Part 3: Cost Control and Governance
Part 4: Paying For It
Part 5: Getting It Done

Other Transportation Related Articles
The Urbanophile Wins Chicagoland Chamber of Commerce Transit Competition
Transportation and the Burnham Plan
Metropolitan Linkages (high speed rail benefits case)
High Speed Rail (implementation)

This post originally ran on August 19, 2009.

7 Comments
Topics: Transportation
Cities: Chicago
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7 Responses to “Taking Chicago Transit from Good to Great, Part One – Building the Vision”

  1. Ed Sanderson says:

    A simple-minded suggestion: if you want to know the difference between Burnham’s Chicago of the early 20th century and the Chicago of early 21st century, go visit the northeast corner of Graceland Cemetery. They’re all there, Field, Palmer, Pullman and Ryerson, and Chicago was their home.

    Let’s face it, Chicago has a tourist/convention business and the futures market gambling dens, but everything else is owned by outsiders — read, if you will, lower Manhattan.

    Grand and glorious plans for the city? Flyover country? You joke, of course…

  2. Wad says:

    Ed, don’t sweat the locations of ownership. In the grand scheme of things, it doesn’t matter.

    A company with its headquarters far away can have great subsidiaries if the operations people do a great job.

    Conversely, you can have global industries that don’t care about crapping where they sleep. See the entertainment industry in L.A. or the energy industry in Houston.

  3. Ed, I think one of the thing that distinguishes Chicago is that it still has a local leadership community that is incredibly committed to the city and its success. I think that’s a big asset.

    Yes, there is one big difference versus those earlier days. Much of that generation was self-made entrepreneurs whose personal fortunes were tightly linked to the city or had grown in tandem with it. Today’s leaders are either mostly corporate executives or scions of older generations. It’s tough to complain too much about that, however. It’s the times we live in.

    I still think Chicago’s leadership is one area that sets it apart positively.

  4. Aaron Brown says:

    I re-read your CTA competition entry and I still like a lot of what I see. However, it does seem at odds with your “dream big” post above. Focusing on things like a Brown Line flyover and repairing Red Line viaducts are worthwhile (and at times critical) improvements, but they are definitely not the plans to inspire Chicagoans and build support for public transit.

    One area that I think could be both visionary and realistic (which you mention) is a BRT system. It’s a much cheaper way to expand capacity, and – if it proves successful on one or two corridors – a BRT network could easily be expanded into a great complement to the rail system.

    I’m still skeptical that this will ever happen though – Chicago’s got entrenched car owners, timid politicians and the parking meter sale working against it. And I still haven’t heard anything more about the downtown BRT-light that was supposed to come with the federal grant earlier this year…

  5. Tim says:

    Aaron – I could not agree more with the point about the marketing of transit, and the importance of out-smarting the opposition with the key public messages.

    I currently live in Auckland, New Zealand, and have recently worked (confession time) on motorway projects currently progressing through consenting (my contribution has been around visual and multi-modal integration with the surrounding urban places, trying to minimise the impacts and maximise opportunities).

    It has become abundantly clear to me through these projects that the state highways agency here is very good at shaping it’s message, and manipulating the process of engaging with the public / spreading their word. In contrast the pro-transit lobby, which tried pushing for a bus transit line in the median of the highway, really still operates at a very simplistic manner when it comes to PR and marketing of how these ideas impact the citizens of the city. The few recent successes in low-key marketing have seen successes, but they don’t seem to tackle the strategic planning of transit well.

    http://www.maxx.co.nz/information/how-to-travel/take-the-bus/bline-services.html
    http://transportblog.co.nz/tag/b-line/

    In contrast, I recently returned to where I grew up in the UK, and was struck by the boldness of advertising now used by transit companies over there. Virgin Trains’ “Zombie” campaign was everywhere, with even an online game to support it – see:

    http://www.youtube.com/watch?v=q-Q3csqy60s

    http://www.virgin.com/travel/news/don-t-go-zombie-go-virgin-trains/

    http://www.google.com/images?hl=en&biw=1158&bih=689&tbs=isch%3A1&sa=1&q=virgin+trains+zombie&aq=f&aqi=&aql=&oq=&gs_rfai=

    http://www.dontgozombie.com/

    Now, while this campaign has a strong streak of negativity-based attack on it’s competitors, it did occur to me that the strengths of the campaign were based on:

    a) Strong visual identity
    b) Appealing to lifestyle outcomes

    The specifics of the Virgin campaign are worth noting:

    On the visual identity issue, I think people have had their fill of photoreal or loose sketchy ‘visions’ typically associated with urban development proposals. They are too easily oversold and people tend not to believe them. The genius of the Virgin look is to create a strong look which uses metaphorical illustrations rather than visualisations – everyone understands and gets the suggested outcomes without being over-commital on details and reality.

    Secondly, the lifestyle issues are handled with humour, a tool particularly effective in Britain and therefore a good targeted choice. Again this avoids trying to be over-sincere about the reality that might ensue (Virgin trains were PACKED when I visited the UK last month) while exposing the degree of contrast between the choices available.

    As ever, thanks for the observations…

  6. Wad says:

    Aaron B., one of the advantages and disadvantages of BRT is that transit agencies can wish it to be whatever they want it to be.

    In L.A., we have three different BRTs. One is the Orange Line, which is an at-grade busway with a self-contained line. There are two freeway BRTs, in which buses will run along an HOV lane and serve freeway stops and then serving park-and-rides or local streets off the freeway. Finally, we have our Rapid (red bus) network.

    The last one is called BRT, although in practice it is just our limited-stop services that have midday service and red buses. Rapids are talked up to the point that this service is equivalent to the more capital-intensive BRT services.

    Chicago can follow from Los Angeles and talk up its limited-stop and express buses to be BRT themselves.

  7. Aaron, that entry was in response to a contrast brief that said we should not assume any material increase in funding. I told them that wasn’t realistic, but still tried to stay in the spirit of things with a “capital light” solution. That’s why I’m low on “big dreams” in that paper.

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