HomeMy WebLinkAboutWorksession 8 Downtown Study Report w/o AppendixPrior Lake
Downtown South Study
December 2012
TAC Recommended Concept -
Not Approved by the Council
as of Decemeber 10, 2012
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PRIOR LAKE DOWNTOWN SOUTH STUDY
CERTIFICATION
I hereby certify that this report was prepared by me or under
my direct supervision and that I am a duly Registered
Professional Engineer under the laws of the laws of the State
of Minnesota.
By:
Bryan T. Nemeth
License No. 43354
December 20, 2012
Date:
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Prior Lake Downtown South Study
PRIOR LAKE DOWNTOWN SOUTH STUDY
ACKNOWLEDGEMENTS
TRANSPORTATION ADVISORY COMMITTEE
REPRESENTATIVE AGENCY TITLE
Larry Poppler City of Prior Lake City Engineer/Inspections Director
Katy Gehler City of Prior Lake Public Works Director/Natural Resources Director
Dan Rogness City of Prior Lake Community & Economic Development Director
Tony Winieki Scott County Traffic Engineer
Craig Jensen Scott County Transportation Planner
Sheila Kauppi MnDOT South Area Manager
Diane Langenbach MnDOT South Area Engineer
David Sheen MnDOT South Area Traffic
Bryan Nemeth Bolton & Menk Consultant
Gina Mitchell Bolton & Menk Consultant
CITIZENS AND BUSINESS GROUP
Bernard Carlson Mary Korthour John Siskoff
John Diers John Parrish Charles Sunder
Patrick Heaney Dave Rech Gerald Ziskovsky
Al Imholte Dawn Schulberg
Michelle Imholte Gregory Schweich
Thank you for your time commitment and comments throughout the study.
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Prior Lake Downtown South Study
PRIOR LAKE DOWNTOWN SOUTH STUDY
EXECUTIVE SUMMARY
The proximity of the downtown area in Prior Lake to County Highway (CH) 21 and
Trunk Highway (Hwy) 13 creates the need for a well-planned network of City streets and
trails to efficiently move vehicle and pedestrian traffic in and through the downtown area.
Highway traffic projections coupled with the development and redevelopment
opportunities in the south downtown area result in a potentially significant traffic
increases in the area.
The City, in cooperation with the Minnesota Department of Transportation and Scott
County, has undertaken a study of the roadway network in the Downtown South Area.
The following are the goals of the study.
1. Assemble the findings and recommendations from the previously completed
projects, plans, and studies into one plan for the Downtown South Area.
2.
Develop a plan for a future street network in the Downtown South Area that is
consistent with the CH 21 Plan, provides connectivity and facilities for multiple
modes (i.e. pedestrians, and bicyclists) between Downtown and other
destinations, provides access to Downtown South businesses, and provides
access for traffic between Duluth Street and the intersection of CH 21 and
Arcadia Avenue.
3. Develop a street network for the Downtown South Area that reduces right-of-
The study included work by both a Transportation Advisory Committee (TAC) and a
Citizen and Business Group (CBG) that helped to form the study process, develop the
alternatives, and the review and comment on the evaluation process and measures.
Two Open Houses were held during the study. The first Open House occurred at the
beginning of the study to review the study goals, recognize community issues and
concerns, and develop alternatives. The second Open House occurred at the end of the
study to review the concepts, evaluation, and comment on the TAC recommended
alternative.
A total of seven alternatives were developed into design concepts and evaluated using
criteria established through the study. The evaluation criteria included technical
feasibility, environmental compatibility, economic viability, and compatibility with
existing plans. Information was provided regarding costs, traffic impact, impact to
homes and businesses, as well as additional criteria for the evaluation for each option. A
summary matrix was created to display and compare the evaluation criteria.
After reviewing the costs, the technical information, comments from the Citizen and
Business Group, and public meetings, the Technical Advisory Committee recommends
Option 9C. Option 9C provides the following advantages:
More direct access to downtown businesses from Hwy 13
Creates ¾ access at Highway 13 and a realigned Pleasant Street consistent with
the County Road 21 Corridor Study
Opens the Transitional Town Center area (Colorado to Pleasant)
Provides direct connectivity from Arcadia to Duluth and between the signals
Reduces traffic on Duluth Avenue
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Adds pedestrian and bicycle connections to downtown
Can be implemented incrementally
Provides a plan to handle future growth
Provides a future roadway network plan that provides Developer guidance
Provides opportunity for future sewer alignment
Maintains a southbound Hwy 13 connection to Franklin Trail
The CBG and community provided comments that ranged from support for only the
Baseline option which includes improvements to Hwy 13 and CH 21 to support for the
TAC recommended option 9C.
The Prior Lake City Council was presented the information on December 10, 2012, but
no decision on a preferred alternative was made. The Council asked City Staff to
complete additional details on specific costs, private access configurations,
environmental impacts, and complete conversations with potentially directly impacted
residents before making any approval of a concept. Much of this work is typically
completed in a Feasibility Study.
Prepared by: Bolton & Menk, Inc. T42.104814 Executive Summary
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PRIOR LAKE DOWNTOWN SOUTH STUDY
TABLE OF CONTENTS
............................................................................................ 1
I.INTRODUCTION & BACKGROUND
A.Introduction ............................................................................................................................ 1
B.Study Location ....................................................................................................................... 1
C.Study Goals ............................................................................................................................ 3
D.Public Involvement Process ................................................................................................... 3
................................................................................................ 5
II.PREVIOUS PLANNING EFFORTS
............................................................................................................. 9
III.ISSUES IDENTIFICATION
A.Traffic Analysis ...................................................................................................................... 9
B.Historical Literature Search ................................................................................................. 14
C.Wetland Delineation............................................................................................................. 15
D.Hwy 13 Access Spacing ....................................................................................................... 15
...................................................................................................... 15
V.IMPROVEMENT CONCEPTS
A.Description of Concepts ....................................................................................................... 15
B.Evaluation of Concepts ........................................................................................................ 27
C.Public and Agency Comments ............................................................................................. 36
D.Recommended Concept ....................................................................................................... 37
E.City Council Decision .......................................................................................................... 37
..................................................................................................................... 39
VI.IMPLEMENTATION
.............................................................. 42
VII.ADDITIONAL CONSIDERATIONS and NEXT STEPS
A.Additional Considerations .................................................................................................... 42
B.Next Steps ............................................................................................................................ 42
FIGURES
............................................................................................................................... 2
FIGURE 1 Study Area
........................................................................................... 8
FIGURE 2 Downtown South Study Timeline
................................................................................................ 10
FIGURE 3 Planning Considerations Map
........................................................................................ 12
FIGURE 4 Existing Turning Movements Map
.............................................................................. 13
FIGURE 5 2030 Baseline Turning Movements Map
................................................................................................................... 20
FIGURE 6 Baseline Concept
............................................................................................................................... 21
FIGURE 7 Concept 1
............................................................................................................................... 22
FIGURE 8 Concept 4
............................................................................................................................... 23
FIGURE 9 Concept 6
............................................................................................................................. 24
FIGURE 10 Concept 9
.......................................................................................................................... 25
FIGURE 11 Concept 9B
.......................................................................................................................... 26
FIGURE 12 Concept 9C
........................................................ 30
FIGURE 13 Technically Feasible: Safety and Mobility Evaluation
.......................................... 31
FIGURE 14 Technically Feasible: Connectivity and Feasibility Evaluation
............................................................................ 32
FIGURE 15 Environmentally Compatible Evaluation
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......................................................................................... 33
FIGURE 16 Economically Viable Evaluation
................................................................................. 34
FIGURE 17 Adopted Plans and Vision Evaluation
................................................................................ 35
FIGURE 18 Comparison of Alternatives Summary
...................................................................................... 40
FIGURE 19 Proposed Implementation Phasing
.......................................................... 41
FIGURE 20 Possible Funding and Timetable for Implementation
APPENDIX
Appendix A - Traffic Analysis Technical Memorandum
Appendix B - Historical Literature Search
Appendix C - Concept Alternatives Considered for Evaluation
Appendix D - CBGMeeting Minutes and Comments Summaries
Appendix E - City Council Work Session Presentation
Appendix F - Public Open House Summaries
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PRIOR LAKE DOWNTOWN SOUTH STUDY
I.INTRODUCTION & BACKGROUND
A.Introduction
The proximity of the downtown area in Prior Lake to County Highway (CH) 21 and
Trunk Highway (Hwy) 13 creates the need for a well-planned network of City streets and
trails to efficiently move vehicle and pedestrian traffic in and through the downtown area.
CH 21 is the major east-west artery through the City of Prior Lake. CH 21 carries
significant traffic from TH 169, CH 42, Hwy 13, and Interstate 35 (I-35) to and from
Prior Lake. Traffic volumes on CH 21 are expected to significantly increase with
projections of 27,000 to 28,000 vehicles per day in 2030. Highway traffic projections
coupled with the development and redevelopment opportunities in the south downtown
area result in a potentially significant traffic increase at the access points along CH 21
and TH 13 to the area.
Over the past eight years, there have been numerous studies that focused on the needs of
the arterial roadways surrounding the Downtown South Area but there has been limited
review focusing on the needs and configuration of the internal network of city streets
within the area. The City, in cooperation with the Minnesota Department of
Transportation and Scott County, has undertaken a study of the roadway network in the
Downtown South Area. The previous studies looked into mobility and access spacing
needs of the arterial roadways to safely and efficiently accommodate traffic. These
previously adopted plans modify how traffic accesses the Downtown area. This study
considers the local internal street network alternatives for moving traffic and ability to
implement any changes.
The purpose of the study is threefold:
1. Establish a long term plan for the roadway network for the Downtown South
area;
2. Expand upon previous studies that did not fully consider the local roadway
network; and
3. Account for the Prior Lake 2030 Vision and Strategic Plan to prioritize economic
development in the City.
B.Study Location
Figure 1
illustrates the study area which is defined as the area bound by Duluth Avenue
on the west, Hwy 13 on the east and south, and Downtown Prior Lake on the north. These
previously adopted plans modify how traffic and pedestrians access the arterial system in
the downtown area. This Downtown South Study will look at internal street network
alternatives for effectively moving pedestrian and vehicle traffic in and through the area.
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C.Study Goals
The goals of the Prior Lake Downtown South Study are to:
1. Assemble the findings and recommendations from the previously completed
projects, plans, and studies into one plan for the Downtown South Area.
2.
Develop a plan for a future street network in the Downtown South Area that is
consistent with the CH 21 Plan, provides connectivity and facilities for multiple
modes (i.e. pedestrians, and bicyclists) between Downtown and other
destinations, provides access to Downtown South businesses, and provides
access for traffic between Duluth Street and the intersection of CH 21 and
Arcadia Avenue.
3. Develop a street network for the Downtown South Area that reduces right-of-
are three options for how the roadway network could be implemented.
A. Developer Driven: Developers would complete the roadway network as
they assemble properties and develop/redevelop the area adjacent to or
impacted by the proposed roadways. It may be difficult for developers to
assemble properties prior to access changes in the area. This would
result in delayed roadway improvements. This delay could potentially
negatively impact existing properties and businesses in the mean time.
B. City Led: to support properties and businesses in the Downtown South
Area, the City would acquire land necessary for the roadway network
and construct roads.
1. Option B1: City Acquisition of Property for Sale: The City
would assemble properties required for the roadway network as
they come up for sale. The roadway network would be
completed after all properties needed have been obtained by the
City, or may be able to be completed incrementally in logical
segments. Acquisition of properties as they go on the market
would likely result in some of the roadway segments being
constructed in the long-term.
2. Option B2: City Acquisition of Property & Potential Use of
Eminent Domain: The City would actively pursue acquisition of
properties necessary to complete portions of the roadway
network. If a negotiated settlement could not be reached with
landowners, the City would acquire the land through the use of
condemnation. The roadway network would be completed after
all properties needed have been obtained by the City.
D.Public Involvement Process
Public involvement was a key component of the Prior Lake Downtown Study. Several
opportunities were provided for public input and feedback throughout the study process.
Transportation Advisory Committee (TAC)
A was organized consisting of
representatives from the City of Prior Lake, Scott County, Minnesota Department of
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Transportation (MnDOT) and the study consultant. The TAC met throughout the study
to review project elements including analysis, public comments, concepts, and
evaluation.
The responsibilities of the TAC included:
Guide the overall study direction
Discuss study progress
Develop network concepts
Review and provide input on technical analysis
Review and discuss public input
Review and consider study recommendations; and
Determine recommended option
The TAC met five times over the course of the project.
Citizens and Business Group (CBG) Meetings
were held at three points throughout the
study. The CBG consisted of 13 community members in addition to the TAC members.
The responsibilities of the CBG included:
Review and discuss the Open House materials, sketch concepts, and develop
additional concepts
Review and discuss the alternatives for further analysis and the evaluation
criteria and measures
Review and discuss the concepts and evaluation
Represent the interests of all property owners and businesses in the City; and
Communicate with other residents and businesses in the City about the
Downtown South Study issues, alternatives and recommendations
Appendix D.
Summaries of the CBG input from each meeting are included in
Open House Meetings
Two were held at key points throughout the study (June 5, 2012
and November 27, 2012) to review and solicit input on present existing and anticipated
future issues, roadway concepts, and preferred alternatives. A direct mailing was sent to
property/business owners directly impacted by the proposed improvement and was also
for anyone else interested in attending the meeting.
Summaries of the public input received at each of the public open house meetings are
Appendix F
included in .
City Council MeetingsCity
Study material was presented at a total of three and one
Council Work Session
throughout the study process to present the planning
considerations map, study background, goals, concept alternatives, final concepts with
evaluation, and preferred/recommended alternatives to the council members. A
presentation of the study elements at the City Council Work Session in included in
Appendix E
.
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II.PREVIOUS PLANNING EFFORTS
As previously mentioned, several studies have been conducted within the study area. One of the
goals of this study is to assemble the findings and recommendations from these previous efforts
into one plan for the Downtown South Area. In order to understand the range of relevant previous
Figure
studies and plans and their recommendations, a timeline was developed. 2 illustrates the
timeline and the main points of each plan are also summarized below.
Downtown North Main Avenue Rehabilitation
The purpose of this project was to reconstruct Main Avenue north of CR 21 and Dakota St. in
Downtown Prior Lake. Recommendations were made to establish a streetscape design and
lighting for the Downtown and to develop pedestrian bump outs. The City Council approved the
Main Avenue and Dakota Street improvement project on March 1, 2004.
Highway 21 Corridor Study
The purpose of this study was to address existing and future safety and operational issues as well
as determine the long-term vision of CH 21. Recommendations were made to:
Move Downtown access from Main Avenue to Arcadia Avenue
Open Arcadia Avenue from CH 21 to Colorado Street
Remove the all-way stop and convert Main Avenue to a right-in/right-out at CH 21
The Highway 21 Corridor Study was approved and an alternative was recommended on April 18,
2005. This study set up a vision that also includes the following; a new intersection at Arcadia is
to be signalized when justified, a median or closure at Duluth is to be determined through a study,
and close the right-in/right-out from Pleasant to Hwy 13 and open a ¾ access at a realigned
Pleasant Street on Highway 13 further south of CH 21.
City of Prior Lake Comprehensive Plan Update (2030 Comprehensive Plan)
The purpose of a Comprehensive Plan is to provide a guide for development and redevelopment
of the City and is a legal document required by Minnesota Statutes. The Plan provides a vision
-
making. Overall, it is intended as a guide to the overall future development of the community.
The Plan is composed of different sections including: a mission statement, goals, objectives, and
policies; community demographics and socioeconomic forecasts; land use; housing;
transportation; parks and trails; surface water management, sanitary sewer, water system plan;
community facilities; and an implementation program. Some of the primary issues being
developed through the Plan applicable to this study included promoting sound land use, provide a
planned transportation system, and establish and maintain a Capital Improvements Program for
development and maintenance of infrastructure. Recommendations applicable to this study
include the recommendation to consider the future expansion of the Town Center with a new land
use designation of Transitional Town Center west of the existing Downtown South area and
explore community retail shopping south of Downtown.
The plan update was approved on May 2, 2005
Arcadia Avenue at CR 21 Intersection Feasibility Study
The purpose of this study was to develop geometric and streetscape plans to enhance Arcadia
Avenue at CR 21. Recommendations were made to:
Incorporate pedestrian crossings, sidewalks, and trails into the design
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Incorporate turn lanes on all approaches
Comply with the CR 21 Corridor Study
The Arcadia/CR 21 Intersection Feasibility Study was approved on June 16, 2008.
Downtown Area Parking Study
This study was initiated to analyze potential for parking expansion along the Pleasant Street
Corridor. It was recommended that a decision should be made between additional street parking
on Pleasant Street, parking lot construction on MN Nails/Joes Pizza, additional lot option, or a
large parking ramp.
The parking lot at the former MN Nails/Joes Pizza was approved and staff was directed to
evaluate expanded parking on Pleasant Street on October 6, 2008. Construction of a parking lot
on the site was approved on November 17, 2008.
Main Ave/CR 21 Intersection Feasibility Study
The purpose of this study was to develop crossing alternatives for CR 21 at Main Avenue and TH
13 at Pleasant Street. An interim recommendation was made to construct an at-grade pedestrian
crossing at CR 21/Main Avenue. The long-term recommendation was to construct a grade
separated crossing at CR 21/Main Avenue and a pedestrian underpass of TH 13 at Pleasant Street.
No action was taken on recommendations given on March 1, 2010. It was recommended to
conduct an additional study of Downtown connectivity options.
CR 21 Realignment Study and Maxfield Market Analysis
The purpose of this study was to determine if a realignment of CR 21 would better connect
Downtown and also to investigate the market potential of the proposed CR 21 improvements.
The market analysis looked at the market potential for new development or redevelopment with
the CR 21 alignments proposed.
Recommendations were made to:
Develop a baseline option which is the lowest cost, provides the most safety, and impacts
the least number of properties
CR 21 Realignment Option provides the greatest overall economic benefits
The Plan provided a base consideration of a market potential for an additional 29,000 square feet
of retail and commercial development within the South Downtown with no realignment.
The Baseline Option (no realignment or Main Avenue grade separation) was approved on
October 7, 2011.
Prior Lake 2030 Vision and Strategic Plan
The Prior Lake 2030 Vision and Strategic Plan is a long range plan to effectively guide the City
of Prior Lake into the year 2030. The mission statement of the Plan is:
ding quality services which
result in a safe and healthy community, recreation and leisure opportunities; preservation and
effective use of lakes, parks, and other natural resources; economic vitality; and the promotion of
partnerships, volunteerism and ci
Thi developed
seven strategic elements to make the vision possible and 12 key characteristics that make Prior
Lake unique. Elements related to Downtown South include: maintaining Downtown as a hub of
the City, offering a walkable destination, specialty shopping, dining, entertainment, and services;
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and connecting the trail system to parks, residences, and Downtown. The Plan also provided
recommendations for future development and approval of plans for redevelopment and safety and
interconnectivity.
The 2030 Vision and Strategic Plan was adopted on February 21, 2012.
Arcadia Avenue Extension
This project was to reconstruct CR 21 at Arcadia Avenue to accommodate a full signalized
intersection. Recommendations were made to:
Install median on CR 21
Account for future installation of traffic signal
Keep Duluth Avenue open until a decision is made on Duluth/Arcadia realignment
No median on Arcadia Avenue due to right-of-way concerns
Construction of Arcadia Avenue Extension was approved on March 19, 2012.
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III.ISSUES IDENTIFICATION
An important element of the study was the identification of key existing and anticipated future
challenges within the study area. Below is a brief summary of each key issue documented during
Figure 3
the study. illustrates the Planning Considerations for the study area developed with
input from the TAC, Citizens and Business Group and the general public.
The planning considerations include features to consider when developing the concepts:
Wetland delineation noting environmental features,
Land Use designations for the Transitional Town Center and Community Retail
Shopping within the study area as designated in the City land Use Plan,
Existing sidewalk and trail locations,
Existing all-way stop control at Duluth/Colorado and Duluth/Pleasant,
Existing signal control at Hwy 13/CH 21 and Hwy 13/Duluth,
Intersection construction being completed on CH 21 from Duluth to Arcadia and
Arcadia extension from CH 21 to Colorado,
Planned signal control at CH 21/Arcadia consistent with CH 21 Corridor Study,
Planned median closure at CH 21/Main consistent with CH 21 Corridor Study, and
Planned ¾ access on Hwy 13 at a future realigned Pleasant Street consistent with the
CH 21 Corridor Study.
A.Traffic Analysis
A traffic analysis of the study area intersections was completed and is included in full in
Appendix A
.
Existing Traffic Conditions
A traffic operations analysis was completed for existing conditions at key intersections
within the study area. Turning movement volumes, Annual Daily Traffic volumes
(ADT), and Annual Average Daily Traffic volumes (AADT) were collected from field
studies and information from the Minnesota Department of Transportation (MnDOT).
Traffic data collection efforts occurred before and after construction on CH 21 for AM
(6:30 to 8:30 a.m.) and PM (4:15 to 6:15 p.m.) peak periods with a number of PM counts
beginning at 2:00 PM to include school traffic considerations. Peak hour traffic volumes
were collected at the following intersections:
Duluth Avenue and Pleasant Street
Duluth Avenue at Colorado Street
Duluth Avenue at County Highway (CH) 21 (Eagle Creek Avenue)
Highway 13 at Pleasant Street
Highway 13 at Anna Trail/Franklin Trail
Highway 13 at Duluth Avenue
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Additional turning movement counts were attained from the City of Prior Lake and
MnDOT for the following intersections which were collected in the fall of 2011:
CH 21 at Arcadia Avenue
CH 21 at Main Street
CH 21 at Highway 13
Figure 4
illustrates the existing traffic volumes for the area, which have been balanced
Currently the only intersection operating at an unacceptable level of service is County
Highway 21 at Highway 13 during the PM peak hour. This is primarily due to the high
volumes in combination with the current split phase signal operation for east-west
movements. The intersection of Franklin Trail with Hwy 13 has unacceptable operations
for the westbound left in the PM peak hour, but is not of significant concern with the low
volume making the movement.
2030 Build Conditions
2030 traffic forecasts were developed and the estimated future traffic volumes were then
applied to the baseline roadway network to determine delay anticipated for each of the
existing intersections. Future traffic volumes account for:
County growth projections on CH 21
MnDOT growth projections on Hwy 13
29,000 square feet of commercial/office development in South
Downtown/Transitional Town Center
41,000 square feet of commercial/service development on the Loren Gross and
Diggers properties
Housing development potential south of Downtown as
Comprehensive Plan
The baseline roadway network includes the following baseline improvements:
Right-In/Right-Out at CH 21 and Duluth Avenue
Traffic Signal with turn lane improvements at CH 21 at Arcadia Avenue
Right-In/Right-Out at CH 21 and Main Avenue
Geometric Improvements at Highway 13 at CH 21
¾ intersection at Highway 13 at a realigned Pleasant Street
Geometric Improvements at Highway 12 at Duluth Avenue
Figure 5
illustrates the forecasted turning movement volumes and service levels for the
Baseline option. Intersections with unacceptable service levels include Colorado Street at
Arcadia Avenue in the PM peak hour, Hwy 13 at Pleasant Street in the PM peak hour,
and Hwy 13 at Franklin Trail/Anna Trail in the AM and PM peak hours. The
unacceptable service levels at the Hwy 13 intersections is due to the high traffic volumes
on one through lane of Hwy 13 in the peak direction which results in few gaps for traffic.
The unacceptable service level at Colorado/Arcadia is due to the high traffic volume
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coming from CH 21 in the PM peak hour and causing delay to the traffic wanting to get
to CH 21.
The roadway network concepts developed resulted in a change in traffic pattern. Traffic
forecasts were developed to account for alterations to existing travel patterns in each
design concept and analyze study intersections to determine whether mitigation is
required to adequately accommodate future traffic volumes. The traffic volumes and
Appendix A
results are included in .
While all intersections operate at an acceptable level within each design concept,
numerous side street stop controlled movements are anticipated to experience
unacceptable delay during the AM and PM peak hours. An unacceptable movement is
classified as any that displays a LOS E or F. Intersection failure analysis is typically
based upon the overall operations of an intersection as a whole, but in analyzing the
individual movements, excessive delay for vehicles attempting to enter a high volume
roadway can be noted and accounted for. An unacceptable LOS for a side-street
movement at an unsignalized intersection is considered to be unacceptable whereas a
minor movement with unacceptable LOS at a signal or all-way stop may be considered
acceptable.
The majority of failure occurring on individual movements can be attributed to the
amount of delay experienced by the minor street traffic attempting to complete a
movement against the major street movements. As an example, the delay experienced for
the eastbound right and westbound right turn movements at Pleasant Street, Anna Trail,
and Franklin trail all exceed acceptable levels due to the large number of thru movements
on Highway 13 during the AM and PM peak hours. The elevated traffic volumes on
Highway 13 reduce the number of available gaps between vehicles on the mainline
roadway, causing difficulties for side street traffic to enter into the flow of traffic. This is
also the case at the intersections of Colorado Street and Pleasant Street at Arcadia
Avenue. Consequently, these intersections are displayed as being unacceptable.
The intersection of Highway 13 at Duluth Avenue displays a significant number of left-
turn movements exceeding a LOS D due to the amount of time that must be allocated to
the Highway 13 thru movements. Increased wait times are anticipated for individual
movements at signalized intersections and motorists are generally more accepting of
elevated delay when a dedicated movement is known to be coming. Extended wait times
at side street stop signs, as mentioned in the previous paragraph, are of higher concern
because motorists have the ability to enter into the flow of traffic when an acceptable gap
is not available, causing a safety issue.
All of the alternatives have some intersections that have unacceptable delay for some
movements but are essentially equal in terms of operations.
B.Historical Literature Search
The City of Prior Lake is within an area of the County that is home to numerous
historical and archaeological sites. A historical review was determined to be necessary to
determine if there are historical structures or known archeological sites within the area
that may impact the location of a new roadway. It was also important to note what steps
will be needed in future work to make any recommendation a reality. The full literature
Appendix B
search is included in .
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A historical literature search was conducted to provide background on the inventoried
standing structures within one half-mile of the proposed project area and the inventoried
archaeological sites within one mile of the proposed project area. Three archaeological
sites are located within a mile of the project area and thirteen structures are located within
one half-mile of the proposed project area. Archaeological sites include an effigy mound
suggests that the area surrounding Upper and Lower Prior Lakes appears to have
undergone significant use for, likely habitation, during prehistoric times. Of the thirteen
inventoried structures, only three structures, residential homes, are located within the
study area. None of these homes had been determined eligible for listing on the National
Register and it is likely that they have not undergone any formal evaluation for eligibility.
Of the three structures left in the area, one of the structures may be impacted by every
one of the alternatives as it is directly south of Colorado Street on the Arcadia Avenue
alignment.
Based on the number of know archaeological sites within the vicinity of the project area,
it appears that the study area played a significant role in the lifeways and activities of
prehistoric peoples. Proposed alternative routes that cross undisturbed land may require
an archaeological review by the State Historic Preservation Office (SHPO) pursuant to
the Minnesota Field Archaeology Act. If federal funds or permits are used for this
project SHPO may request an architectural survey prior to any proposed affects to the
setting of or demolition of any structure, given the concentration of homes that area older
than 50 years.
C.Wetland Delineation
Wetland delineation was provided by Copper Creek Developers for the two wetlands
south of Pleasant Street. This provided a better understanding of the wetland impacts of
the options and is updated on all of the figures. A wetland delineation still needs to be
D.Hwy 13 Access Spacing
The Minnesota Department of Transportation (MnDOT) is the roadway authority for
Hwy 13. Hwy 13 is functionally classified as an A-Minor Arterial Connector south of CH
21. Based on MnDOT access spacing guidelines, full intersection spacing and signal
spacing for the roadway is at ½ mile, while secondary access is at ¼ mile. The existing
full movement signalized intersection spacing between CH21 and Duluth Avenue is 0.6
miles. Discussions with MnDOT indicated that they will not allow another signal
between CH 21 and Duluth based on the spacing. One ¾ access will be allowed between
the existing signals and all other accesses will be right-in/right-out. This sets up the basis
for the options of access along Hwy 13.
Hwy 13 north of CH 21 and CH 21 through Prior Lake are functionally classified as A-
Minor Arterial Expanders. Based on MnDOT access spacing guidelines, full intersection
spacing and signal spacing for the roadway is at ¼ mile, whil
mile.
V.IMPROVEMENT CONCEPTS
A.Description of Concepts
Concepts were developed based on the goals established for the study, as well as input
received at the first Open House, from the Technical Advisory Committee and Citizens &
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Business Group. Originally 13 study concept options were developed as shown in
Appendix C
and then reduced to five due primarily to significant property impacts for
minimal improvement, roadway configuration and access concerns, intersection spacing
concerns, and development of intersection skew which impacts safety. Two additional
options were developed during the study process to allow for additional access along
Hwy 13 while still being acceptable to MnDOT access spacing. Each of the seven
alternatives brought forth through evaluation are described below.
Baseline Concept
Figure 6
illustrates the Baseline Concept which was developed as the no-build
alternative. The Baseline concept does include some regional network improvements but
does not include any changes within the local roadway network. The baseline
improvements include the proposed changes at the intersections of:
Hwy 13/CH 21
additional lanes and modified signal phasing,
R
Hwy 13/Duluth Avenue
additional lanes on Duluth Avenue approaches,
R
Hwy 13/Franklin Trail
modify to a right-in/right-out,
R
Hwy 13/Pleasant Street
realign Pleasant to the south and modify to a ¾ intersection,
R
CH 21/Duluth Avenue
modify to a right-in/right-out,
R
CH 21/Arcadia Avenue
traffic signal added, and
R
CH 21/and CH 21/Main Avenue
modify to a right-in/right-out
R
as consistent with previous studies, but does not include any additional plans with the
Downtown South area beyond what was constructed in 2012 or described above. The
concept:
Must be evaluated to determine a baseline condition,
Maintains the access configurations on CH 21 and Hwy 13 consistent with
previous studies,
Wetland impacts limited to Pleasant St access
Does not require acquisition of properties beyond the Hwy 13 and CH 21
regional improvements, and
No connection is made between Arcadia and Duluth.
Concept 1
Concept 1 was developed to consider a concept that offers a simple option for new
Figure 7
roadway connections within the Downtown South area. illustrates Concept 1.
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Concept 1 maintains the same intersection changes as the baseline, but also adds an
Arcadia Avenue roadway connection between Colorado Street and Pleasant Street. The
concept:
Provides a direct connection through the Transitional Town Center,
Provides an alternate route for traffic to access Downtown South from Arcadia
Avenue,
Allows access to Arcadia Avenue from both Colorado and Pleasant,
Maintains the access configurations on CH 21 and TH 13 from previous studies,
Wetland impacts limited to Pleasant St access, and
No connection is made between Arcadia and Duluth.
Concept 4
Figure 8
Concept 4 meets the goals established for connectivity (see ) through the
addition of a roadway alignment of Arcadia that sweeps to the west, connecting to Duluth
Avenue just north of the wetlands and east of St. Michaels. The concept:
Meets goals for connectivity,
Moves traffic away from Duluth Avenue north of Pleasant and adjacent to the
church and school,
Maintains the access configurations on CH 21 and TH 13 from previous studies,
Avoids the west wetland,
Has a potential impact to many properties,
Includes a potential skewed intersection at Pleasant Street,
Results in strangely shaped parcels, and
May be too far west to be useful as a Downtown connection.
Concept 6
Figure 9
Concept 6 is illustrated in . Concept 6 includes a direct connection of Arcadia
Avenue to Hwy 13 through the Loren Gross and Diggers properties. The concept
replicates the concept brought to the City by Copper Creek developers and modified to
meet geometric and design standards. The concept includes the same regional
improvements as the Baseline along Hwy 13 and CH 21, except:
Hwy 13/Franklin Trail
modified as a ¾ intersection and Arcadia Avenue connects across from
R
Franklin Trail,
Hwy 13/Anna Trail
closed, and
R
Hwy 13/Pleasant Street
Pleasant realigned to the south as a right-in/right-out.
R
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The concept:
Provides a clean grid system of roadways,
Results in good sized and shaped parcels for potential redevelopment,
Opens the Loren Gross and Diggers properties for development/redevelopment
with a direct connection to CH 21 and Hwy 13,
Closes Anna Trail but provides a right-angle intersection to Hwy 13 with Arcadia
Avenue,
Would not match the desire of potential developers as full access on Hwy 13 is
not provided, and
Is predicated on wetland impacts.
Concept 9
Figure 10
Concept 9, shown in , also meets the goals established for connectivity through
the development of a roadway that directly connects Arcadia Avenue to Duluth Avenue
through the Loren Gross and Diggers properties, south of the wetlands, at Anna Trail.
The concept includes the same regional improvements as the Baseline along Hwy 13 and
CH 21, except:
Hwy 13/Franklin Trail
modified as a ¾ intersection and a new roadway connects across from
R
Franklin Trail between Hwy 13 and Arcadia Avenue,
Hwy 13/Anna Trail
closed, and
R
Hwy 13/Pleasant Street
Pleasant realigned to the south as a right-in/right-out.
R
The concept:
Provides a direct connection from Arcadia to Duluth,
Provides good sized and shaped parcels for potential redevelopment,
Opens the Loren Gross and Diggers properties for development/redevelopment
with a direct connection to CH 21 and Hwy 13,
Closes Anna Trail but provides a right-angle intersection to Hwy 13 with
Franklin Trail,
May include need for additional operational/capacity improvements on the north
side of Hwy 13/Duluth, and
Is predicated on wetland impacts.
Concept 9B & 9C
Figures 11 and 12
Concept 9B and 9C (see ) were developed based on comments and
evaluation from the CBG and Watershed District. The concepts are based on Concept 9
and include access changes on Hwy 13. This includes:
Hwy 13/Pleasant Street
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maintains a Pleasant Street realignment with the ¾ access consistent with
R
Highway 21 Corridor Study,
Hwy 13/Franklin Trail
in Concept 9B, right-in/right-out,
R
in Concept 9C, ¾ access SB (Franklin Trail east of Hwy 13) and right-
R
in/right-out access from the west side of Hwy 13.
The roadway alignment through the local network is the same. It connects Arcadia to
Duluth south through the Loren Gross and Diggers properties.
The concepts:
Develop a connection between Hwy 13 and CH 21, Duluth to Arcadia,
Maintain the right-in/right-out access from the west side of Hwy 13 near or at
Anna Trail, and
Includes a right-in/right-out access at Hwy 13/Franklin Trail as shown in
Concept 9B or
Adds a southbound ¾ access at Hwy 13/Franklin Trail as shown in Concept 9C
which was based on additional discussions with MnDOT.
MnDOT prefers that the northbound ¾ access be located at Hwy
R
13/Anna Trail rather than Pleasant with this option, but will support the
northbound ¾ access at Pleasant. MnDOT has stated the following for
their position on access on Hwy 13.
No other signals will be allowed. The northbound ¾ access at
Anna Trail provides a secondary access evenly spaced between
the signals at CH 21 and Duluth Avenue.
The northbound ¾ access at Anna Trail serves the local
supporting roadway network rather than convenience of access
with a ¾ at Pleasant.
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B.Evaluation of Concepts
Evaluation criteria was developed based on the goals established for the study, based on
the goals from the 2030 Vision and Strategic Plan, and input received from the TAC and
CBG in order to assist the community and decision makers in understanding the tradeoffs
between the alternatives being studied. Each alternative is measured based on its ability
to meet or its likelihood to meet the specific objective identified.
In most cases qualitative data will be available; in other cases, subjective information
may be used for comparison purposes.
Does Not Meet Measure (-)
Minimally Meets Measure (o)
Meets Measure (+)
Some Measures will not use the above system, but will instead just be a listing as
identified below.
Evaluation criteria used in consideration of the developed concepts includes:
Figure 13
1. Technically Feasible: Safety and Mobility ()
Safety
R
i. Reduces vehicle-vehicle conflict points
Based on number of conflict points in comparison to the
existing number
ii. Reduces pedestrian-vehicle conflict points
Based on number of conflict points in comparison to the
existing number
iii. Reduces pedestrian-vehicle incident potential for specific
locations
Based on traffic volume of adjacent street to:
a. St. Michaels Church and School
b. Ballard-Sunder Funeral Home
c. Premiere Dance Academy
Mobility
R
i. Acceptable potential future Level of Service (LOS) at
intersections. LOS E and F is considered unacceptable while
LOS D is considered to be the acceptable limit and LOS A to C
is considered acceptable.
Figure 14
2. Technically Feasible: Connectivity and Accessibility ()
Create South Entrance to Downtown (Duluth to Arcadia connection)
R
Connects Business Districts (Connection between Hwy 13 to CH 21
R
Signalized Intersections)
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a. Supports connections and access to existing businesses (compared to
today) from each direction on Hwy 13 and CH 21
b. Improves pedestrian and bicycle connections (compared to today) from:
i. CH 21/Arcadia to South Downtown
ii. South lake Village to South Downtown
iii. Hwy 13 and CH 21 to St. Michaels Church/School
iv. South Downtown to North Downtown
Figure 15
3. Environmentally Compatible ()
a. Built Environment
i. Property acquisition
Number of full and partial property acquisitions
Number of residential and business relocations
ii. Possible historic structures impact
b. Natural Environment
i. Wetland impacts
ii. Preserve parks, trails, and natural resources for recreational
activities
Figure 16
4. Economically Viable ()
a. Ability to make incremental improvements
i. Parcel by parcel (usable portion of the roadway can be
constructed with only one parcel)
ii. Street to street (usable portion of the roadway can be constructed
from one street to the next)
b. Opens areas for business opportunities
i. Within the Transitional Town Center
ii. Within Prior Lake beyond the Transitional Town Center and
Downtown
c. Likely potential funding source for constructing the roadway: either the
City or a Developer if built today or in the future
d. Estimated cost. Originally this was construction and right-of-way cost
only but was updated to include engineering costs.
e. Limits infrastructure investment: allows for money to be saved from a
programmed project by reprogramming the location of the needed
improvement based on the alternative
Figure 17
5. Compatible with Adopted Plans and Vision ()
a. Consistent with adopted plans
i. Highway 21 Corridor Study
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ii. Transitional Town Center
iii. MnDOT access on Hwy 13
b. Preserves the Downtown streetscape
i. Ability to implement the North Downtown Streetscape in the
South Downtown area
c. Provides a plan to handle future growth of the City
i. Residential and business
Figure 18
A comparison summary () is provided to compare the alternatives directly
against one another based on the information provided in Evaluation Tables 1 through 5.
The alternatives summary consolidates some of the categories to one category for this
comparison. Concepts are rated from 1 to 7 based on their ability to best meet the
measures identified. Rank 1 identifies concepts that best meet the measures while a rank
of 7 would be considered least able to meet the measure. Concepts get the same rating if
they are equal and the next ranking is based on the number ranked higher. For example if
three alternatives are tied for Rank 1 then the next ranking will be Rank 4 as there are
three alternatives ranked higher.
A low ranking does not indicate that an alternative does not meet a measure, but only
identifies if there are other alternatives that are better able to meet the measure. Similarly
a high ranking does not indicate that an alternative fully meets the measure, but indicates
that it best meets the measure when compared to the other alternatives.
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Pleasant at Arcadia
at DuluthPleasant
Colorado at Duluth
Colorado at Arcadia
CH 21 at Duluth
CH 21 at Arcadia
CH 21 at Main
Hwy 13 at CH 21
13 at PleasantHwy
Anna/Franklin
13 at Hwy
Hwy 13 at Duluth
Academy
Dance
Premiere
Funeral Home
Sunder-Ballard
Church/School
St.
to Vehicle Conflicts
Reduces Pedestrian
Vehicle Conflicts
Vehicle to Reduces
Alternatives
Downtown
to North
Downtown
South
School/Church
CH 21 to
Hwy 13 and
Downtown
to South Village
Lake South
Downtown
to South
CH 21/ Arcadia
CH 21
East on
CH 21
West on
Hwy 13
South on
Hwy 13
North on
CH 21 Signals)
Hwy 13 to Districts (
Business Connects
Duluth to Arcadia)(
Downtown
to Create South Entry
Alternatives
Activities
Recreational
Resources for
Trails, and Natural
Preserves Parks,
to Wetland
Minimizes Impacts
Impacted
Structures
Historic Potential
Historic Structures
Preserves Potential
Relocation
Business
Relocation
Residential
Acquisition
Partial Property
Acquisition
Full Property
Alternatives
Opportunities Provided
Infrastructure
Investment
Limits Infrastructure
millions)*(in
Estimated Cost
Future
Today
Downtown)
(Beyond TTC &
Prior Lake
(TTC)
Town Center
Transitional
BasisStreet
Street to
Parcel Basis
Parcel by
Alternatives
Business
Residential
Streetscape
Downtown
Preserves the
Access
Hwy 13
CenterTown
Transitional
CH 21 Plan
Alternatives
Growth
Ability to Handle Future
Streetscape
Preserves Downtown
Plans
Consistent with Adopted
Investment
Limits Infrastructure
Lowest Estimated Cost
Opportunities
for Business Opens Areas
Improvements
Ability for Incremental
Recreational Use
Opens Areas for
Environment
Natural Reduces Impact to
Environment
Reduces Impact to the Built
Connections
/BikePedImproves
Businesses
Supports Existing
Connectivity
13 to CH 21 Provides Hwy
Connectivity
Provides Duluth to Arcadia
Improves Service Levels
Safety Conflicts
/Bike PedReduces Potential
Safety Conflicts
Vehicle Reduces Potential
Alternatives
PRIOR LAKE DOWNTOWN SOUTH STUDY
C.Public and Agency Comments
Comments on the alternatives were provided by the CBG and the Watershed District. The
Appendix D
full comments are provided in . Additional Open House comments are
Appendix F
provided in .
CBG Comment Summary
¾ access is needed for South Downtown access and is consistent with previous
studies and Hwy 13/Pleasant Street
Connection from Colorado to Pleasant is needed to distribute traffic
Support an incremental approach
Open areas for development/redevelopment
Need connection from Anna to Pleasant to make Arcadia Avenue functional
Focus on the current Downtown businesses
Preserve existing homes, businesses, and neighborhoods
Oppose options that will cost the city money or impact properties
Fix what is wrong today, not what could be wrong in the future
Safe pedestrian crossings are needed at intersections along CH 21 and Hwy 13
There are traffic and pedestrian issues along Colorado Street that need to be
rectified
Speed limits need to be lowered on Hwy 13, CH 21, Colorado Street, Duluth
Avenue
Watershed District Comment Summary
A wetland delineation is needed for the wetland furthest south adjacent to Anna
Trail
A topographic survey is needed
Minimize the wetland impacts
Need to develop an overall plan for the area including transportation, zoning, and
parks and open spaces
Community Comment Summary
Sidewalk, trail, and crosswalks need to be added everywhere
Clean up the intersection configuration at Duluth/Anna/Arcadia in 9C. Consider
other options including a roundabout
Address the safety concerns on Colorado at Premiere Dance Academy caused by
the opening of Arcadia
Support alternative 9C
Maintain the existing connection of Anna Trail to Hwy 13
Keep the south Anna Trail access open to Duluth Avenue (located just north of
the Duluth and Hwy 13 intersection)
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What is the cost? What is the cost share?
Improvements needed at Hwy 13/Duluth first
Reduce traffic on Duluth Avenue
Close Duluth near Priorwood Street or south of St. Michaels Church and
R
School to move traffic to new Arcadia connection
What is real purpose? Money for land developers?
Proposed Arcadia is too close to existing roads
Omit Arcadia through the wetlands
Open up Anna Trail/Franklin Trail
Reduce the proposed dead-ends
¾ access to Pleasant into south downtown is the most important
Pedestrian crossing needed at Main/CH 21
Speed limits need to be reduced on CH 21, Hwy 13, Duluth, Colorado
D.Recommended Concept
Figure 12
The TAC has identified Concept 9C as illustrated in since it seemed to best
meet the goals and objectives established for the study. This option was favored due to
the following criteria:
Weighted initially on maintaining the existing South Downtown
More direct access to existing downtown businesses
R
¾ access at Hwy 13/realigned Pleasant consistent with CH 21 corridor
R
plan
Opens Transitional Town Center (Colorado to Pleasant)
R
Provides direct connectivity from Arcadia to Duluth and between the signals
Reduces traffic on Duluth Avenue near the church and school
Adds pedestrian and bicycle connections to Downtown
Can be implemented incrementally over time
Provides a plan to handle future growth
Provides a future roadway network plan that provides Developer guidance
Provides opportunity for sewer alignment
Maintains a southbound Hwy 13 connection to Franklin Trail
E.City Council Decision
The City of Prior Lake Council was presented the information for a final time on
December 10, 2012. While there was some support for Concept 9C from some members,
there was some opposition to options that took homes or ran through the wetland from
other members. The Council did not make a decision on an approved concept but did ask
for further analysis and details from City Staff. Much of the work defined by the Council
would normally be completed through feasibility studies. The approval of any concept
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was tabled into 2013. Since no concept was approved, Scott County and MnDOT will not
provide a letter of support for any option.
The following statements about the concepts were noted.
Need for improvements to be built concurrently:
¾ at Hwy 13 and Pleasant Street
R
Median at CH 21 and Main Avenue
R
Signal at CH 21 and Arcadia
R
Currently scheduled by the City for 2019
R
County has not committed to a definite schedule at this time
R
County has the ability close the median on CH 21 at Main Avenue before
R
2019. Closure will likely be due to safety and/or operational issues. CH
21/Main is expected to fail in 2016.
One-Way street westbound on Colorado Street is an option if needed
Not as acceptable for traffic with the current configuration
R
Most acceptable with Colorado to Pleasant connection
R
Concept 9C provides:
Connection of South lake Village to South Downtown
R
Opens areas for development
R
Concept 9C is:
Expensive
R
Disruptive
R
Desire to have a signal at Hwy 13 and Anna Trail
Violates MnDOT recommended access spacing
R
Not acceptable to MnDOT since other signals are accessible
R
Hwy 13 and CH 21
Should be completed in 2019 along with other Hwy 13 and CH 21
R
changes
Local driveway access
Public parking lot on Colorado needs alternate entrances
R
Hwy 13 and Duluth Avenue should be a separate improvement
As shown in this study
R
Coordinate with the MnDOT signal improvements
R
Baseline concept changes
Move to 2019 CIP
R
Need to improve traffic flow and access to Downtown
Colorado to Pleasant
Would require the taking of homes
R
Needed?
R
If median is closed at CH 21/Main before other improvements are
R
completed, need connection
The following is a list of outstanding questions and issues stated by the Council.
Commercial development projections
Return on investment
R
Additional public involvement
Specifically, directly impacted residents
R
Develop a long term acquisition plan
R
Continue to respond to comments
R
Wetland crossing
Environmental review
R
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Wetland replacement location and costs
R
Type of structure to cross the wetland
R
Anna Trail
Access needs to be clearly laid out
R
At Hwy 13
At Duluth Avenue
Hwy 13 and Duluth Avenue
Needs additional analysis
R
Discuss with Traffic Safety Committee
R
Determine/consider a workable and legal access into South lake Village
R
Developer Guidance
Spell out role of City with a future Developer
R
Developer is the driver for getting the roadway through the wetland
R
Plan for area
R
City funding or no City funding? 100% Developer cost?
R
Feasible for a Developer?
Baseline improvements
Hwy 13/CH 21, Hwy 13/Pleasant, CH 21/Main, CH 21/Arcadia, CH
R
21/Duluth
Work with MnDOT, submit a letter to the state looking to add 13/21
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VI.IMPLEMENTATION
Figure 19
The recommended option will likely be implemented in phases as shown in . Possible funding
Figure 20
and timetable for implementation is shown in .
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VII.ADDITIONAL CONSIDERATIONS AND NEXT STEPS
A.Additional Considerations
Pedestrian Crossing Concerns
Throughout the study, pedestrian crossing concerns across Hwy 13 and CH 21 have been
mentioned by several members of the community. A previous study was completed that
looked at the crossing options at the intersection of CH 21/Main Avenue and Hwy
13/Pleasant when the right-in/right-out is implemented at Main and the Pleasant Street ¾
access is constructed. Through that study, multiple options for developing pedestrian
crossings at Main Avenue were evaluated. The study was approved with the Baseline
roadway option (keep CH 21 on current alignment with no grade separation) and an at-
grade staggered pedestrian option across CH 21 at Main would be implemented in the
future. An underpass option was also looked at in conjunction with the Pleasant Avenue
realignment but it is recognized that the wetland impacts in the area may not make that a
feasible option.
e to not allow pedestrians to cross mid-block and direct
pedestrians to the adjacent signalized intersections at Hwy 13/CH 21 and CH 21/Arcadia
Avenue when the right-in/right-out is implemented. Pedestrians should be directed to use
the signalized crossing locations.
A fence may be needed in the median to prevent pedestrians from
crossing at mid-block locations.
The Transitional Town Center may add commercial property west to
promote Arcadia as a crossing location.
Promote the signalized crossings through landscaping, lighting, and
signing.
The previous study looked at the feasibility of fitting an underpass or overpass into the
area. Further study of overpass and underpass options could be completed but without
other measures the underpass/overpass options may not be used.
B.Next Steps
1. Answer Council questions
2. Council approval of a concept
3. Scott County and MnDOT review and possible approval
4. Determine what segments of the roadway should be implemented within the next CIP
5. Develop an implementation schedule
6. Review CIP and funding options
7. Complete a survey of the proposed alignment
8. Publish an official map of the roadway alignment
9. Feasibility Studies
10. Preliminary and Final Design
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