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CITY COUNCIL AGENDA REPORT �i
MEETING DATE: OCTOBER 28, 2013
AGENDA #: 8B
PREPARED BY: LARRY POPPLER, CITY ENGINEER / INSPECTIONS DIRECTOR
PRESENTED BY: LARRY POPPLER
AGENDA ITEM: CONDUCT A PUBLIC INFORMATIONAL MEETING TO CONSIDER
APPROVAL OF A RESOLUTION APPROVING A ROADWAY ALIGNMENT
FOR SOUTH DOWNTOWN
DISCUSSION: Introduction
The purpose of this agenda item is to receive public input on south downtown
roadway alignments and approve a resolution selecting the appropriate
roadway alignment for south downtown to be included in the city's
comprehensive plan.
Hi StOry
Prior Lake's 2030 Vision and Strategic Plan prioritizes economic development
as one of the City's most important goals. In fact, in 2012 the City Council
made community and economic development one of its top three goals. At the
same time the 2030 Vision and Strategic Plan places high priority in �
developing our downtown. Similarly, the EDA Business Plan identifies goals
related to redeveloping key areas in Prior Lake including the downtown, which
would include the Digger's site.
The City has already invested millions of dollars into street systems to serve
our downtown area including Arcadia and CR 21 and Ridgemont/Th13/Main
intersection. Other significant investments include the fa�ade improvement
efforts and a streetscaping project in the north downtown. We have also
invested a considerable amount in consultants to conduct a thorough and
public evaluation of thirteen different street alignments for south downtown.
This study has been protracted because it has been public in nature,
encouraging the participation of business owners, customers and residents
and because numerous alternatives have been analyzed.
Adequate transportation access is particularly important in our downtown
which is relatively small and is divided by County Highway 21 which will
eventually carry 27,000 vehicles per day. This means that traffic must flow
smoothly into, through and out of the downtown via north and southbound
TH13, east and westbound County Road 21 and local roadways like Arcadia,
Franklin Trail, Colorado, Pleasant and Duluth.
The City has sought to finalize a downtown transportation plan for eight years
now. Commencing in 2005, the City and County finalized a 1.5-year study
which selected the alignment of County State Aid Highway 21 through Prior
Lake from County State Aid Highway 82 to Revere Way. This study identified
several improvements necessary to maintain adequate access to the Prior
Lake downtown. Based on intersection spacing, downtown access, right-of-
way impact, TH 13 / CR 21 operation, and community involvement, a concept
was chosen. This option keeps County Road 21 at its current location (rather
than completely reroute the roadway) with Main Avenue having right-in/right-
out access only so the intersection does not fail as the result of added traffic
over time. A full signalized access would be and now has been provided at
Arcadia Avenue. Additionally, a 3 /4 access would be provided at Pleasant
Street from TH 13.
This configuration, approved by the City Council in 2005, has commonly been
called the "Baseline Option." Since south downtown is guided in the City
Comprehensive plan as "Transitional Town Center," the alignment for County
Road 21 contemplated a"developer driven" connection of Duluth to the full
access intersection at Arcadia.
Since 2005 there have been three complete phases of the study which, as
stated above, evaluated 13 different roadway configurations. For sake of
brevity, a summary of those study steps are included as attachment 1 rather
than repeating them at length here. For those who would like a more thorough
information see www.citvofpriorlake.com, look for News and the subheading
South Downtown Informational Meeting.
Current Circumstances
Three concepts remain under consideration. Option 6, Option 6 modified and
Option 9C.
Concept 6 keeps the Duluth/TH13 intersection as is, places a new 3 /e
intersection at Franklin Trail and TH 13 across from the Digger site. A roadway
then proceeds through this site for access purposes and northerly through the
Gross property meeting Arcadia, the main access to downtown, at Colorado.
The Pleasant Avenue access at TH13 remains a right in and right out.
Concept 6 modified is identical to six except the Duluth/TH13 intersection
becomes 3 /4 and the new intersection at Franklin and TH13 becomes a full
access intersection.
Concept 9C utilizes a different approach in connecting the Duluth Signal to the
Arcadia signal through an alignment similar to Concept 6. The Franklin Trail
connection would be a 3 / access to the east and a right in / right out to the
west. Pleasant would be a 3 /4 access.
It is critical that MnDOT and the County support the option chosen. MnDOT
and Scott County support all three of the remaining options.
MnDOT is suggesting that if concept 6 were considered with a northbound 3 /4
access at Arcadia, the Pleasant Street northbound 3 /4 access would not be
allowed (but would instead remain right-in/right-out). MnDOT cites access
spacing and the lack of space to develop three left turn lanes in close proximity
to each other for this tradeoff. The County appears to concur with this position.
MnDOT points out that patrons to the south downtown can use a new 3 /4 or full
access intersection at Arcadia to visit south downtown. Since the previously
proposed 3 /4 access at Pleasant would be several hundred feet south of the
existing right in/right out, impulse buying will not a factor. MnDOT also points
out that since any movement into the south downtown is a destination visit,
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using Arcadia to access the south downtown should equally serve the function
of the 3 /4 access at Pleasant street.
With the eventual closure of Main Avenue at County Road 21, a northbound
access from Highway 13 is important to the economy of the south downtown.
The northbound access at Arcadia could serve as this south downtown access
as well as serve as a supporting roadway for northbound TH 13 to westbound
County Road 21. Both design concept 6 and 6 modified result in a right in and
right out intersection at Pleasant and TH13. The rationale for this is the fact
that the new roadway will provide access to the south downtown area that
does not need to be repeated.
The EDA met on October 21, 2013 to discuss the roadway alignment and
provide a recommendation. The EDA discussion focused on benefits of these
options to support future development and redevelopment in the area.
Business access to local roadways, visibility, and linkage were themes of the
discussion. Each option was discussed relating to these themes. Ultimately
the EDA recommended that the City Council choose Concept 6 because of the
following criteria:
1. Short term development of the Digger's site which would build TH 13
intersection and roadway through this property and add jobs and tax base.
2. Future development of multifamily on the Gross property completing a
portion of the road, adding jobs and tax base.
3. Future development within the Transitional Town Center Properties to
commercial, increasing tax base and jobs.
4. Redevelopment of the old Easy Stop site and perhaps Velisheks, adding
tax base and creating additional jobs.
5. Provide better access to downtown south via northbound TH13 which will
avoid the need to improve the TH13/Pleasant Intersection to 3 /e.
6. Provide support road around the TH13/CR 21 Intersection.
7. Continue to provide a fully signaled intersection access to in place
businesses at Duluth and TH 13.
8. Provide better access and egress opportunities for persons living in the
Anna Trail/Duluth area.
9. Reducing traffic demands and hazards on Duluth Avenue.
10. Connect Downtown to South Lake Village.
Conclusion
The study of our downtown south has been extensive and included business
and citizen input, traffic analysis, cost estimating, and a decision matrix.
MNDOT's perspective as recited in their recent letters to the City have been
helpful in framing the access options to Highway 13. Based on this
information, Staff is recommending Option 6 or 6(modified) be chosen. Each
option includes tradeoffs, however either of the option 6 alternatives provide
the best transportation links for the region. The northbound TH 13 to the
Arcadia future signal movement is of great importance as it relieves pressure
on the CR 21 and TH 13 intersection. Either of the option 6 alternatives with a
northbound TH 13 access to Arcadia provides the best way for this traffic
movement. The disadvantage of Option 9C in this regard includes residential
driveways on Duluth as well as the congestion at the Duluth/TH 13
intersection.
ISSUES: The City Council's decision tonight is limited exclusively to the roadway
alignment. Once that is chosen then other issues can be addressed. It should
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be assumed that these roadways will be constructed in the conventional way.
The developer will build them. The developer would be eligible for oversizing
for roads which are larger than residential streets. This is how the city's
roadways have been developed for the most part for decades. Any change
from that practice would be subject to the approval of the city council seated
whenever the roadway is developed.
Whether we are aware of it or not, the City has, for some years now made
significant investments to develop roadways which support TH 13 and County
Road 21. On the south east we have invested in Park Nicollet Drive, Franklin
Trail, Duluth and Arcadia Duluth and Main—all of which are constructed and
operating. The single remaining support road is Arcadia/ Franklin Trail
extended south and east to TH13. This roadway will complete the downtown
transportation routes.
On a more short term note, The Digger's site is and has been for sale for some
time. TOLD Company and Gonyea Land Development are contemplating the
purchase of the property. However, prior to doing so, they need to know the
city council's final position on the new Arcadia/Franklin Trail intersection on TH
13. Without that intersection (either full or 3 /4), they believe that the property is
not developable for the retail project they contemplate on the Digger's site.
Existing downtown south businesses may believe this concept is not in
keeping with the 2005 concept which called for a 3 /4 access at Pleasant. On the
other hand, one could argue that the new Arcadia/TH13 intersection serves
that purpose and the right-in/right-out further supplements access and egress.
This question has received considerable investigation and discussion over the
last eight years. The City has adopted a strategic plan which says we value a
robust downtown. Over the years we have invested literally millions to serve
our downtown in the long term. We have invested in consultants to facilitate a
complete and public evaluation of in excess of 13 design alternatives
FINANCIAL Each of the Concept 6 options cost approximately $5.6 million. Concept 9 is
IMPACT: approximately $5.9 million. Funding options include: State Aid, street oversize
fund, developer contributions, 429 bonding, assessments, and tax abatement
bonding.
ALTERNATIVES: 1. Approve a resolution approving roadway alignment 6 as proposed by the
EDA or one of the other alignments for south downtown.
2. Deny this item and provide direction to City staff.
3. Table this item and provide direction to City staff.
RECOMMENDED Alternative #1
MOTION:
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4646 Dakota Street SE
'�fNxfiso'��' Prior Lake, MN 55372
RESOLUTION 13-xxx
A RESOLUTION APPROVING A ROADWAY ALIGNMENT FOR SOUTH DOWNTOWN
Motion By: Second By:
WHEREAS, The City of Prior Lake identified a need to study the internal street network within the
south downtown; and
WHEREAS, A portion of south downtown City of Prior Lake is zoned "transitional town center" and is
anticipated to be converted into commercial properties over time; and
WHEREAS, Access considerations on TH 13 as well as the downtown south study report have
provided the necessary information for the City Council make a decision which serves the
best interest of the community.
NOW THEREFORE, BE IT HEREBY RESOLVED BY THE CITY COUNCIL OF PRIOR LAKE,
MINNESOTA as fol�ows:
1. The recitals set forth above are incorporated herein.
2. The City Council declares that the roadway alignment shown in option six be selected as shown in in
the downtown south study and directs City staff to incorporate the roatlway alignment into the City's
Comprehensive Plan, State Aid System, and the Capital Improvement Program.
PASSED AND ADOPTED THIS 28TH DAY OF OCTOBER 2013.
YES NO
Hedber Hedber
Keene Keene
McGuire McGuire
Morton Morton
Souku Souku
Frank Boyles, City Manager
http:(/splashlteams/am/October 4 2010/October 28, 2013/Downtown South - Res.doc
ATTACHMENT 1
Prior Lake South Downtown Study Summary
On January 3, 2012 the City Council held a work session to discuss County Road 21 in the
downtown area. The City Council reviewed several long term transportation alternatives for this
area and directed staff to initiate a study of the south downtown to lead a process to determine
the ideal street connections. The Council felt, in the interest of long term planning and to
increase the involvement of downtown businesses and residents, that a study be undertaken
now.
The recommendations from this study are to provide the framework for future downtown
development by defining proper street configurations for access/egress purposes so existing
and new residents and businesses can plan with some degree of certainty.
On April 2, 2012, the City Council approved a professional services contract with Bolton & Menk
for the completion of the downtown south traffic study and on May 7, 2012 the Council provided
direction on the study goals as follows:
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 Street.
3) Develop a street network for the downtown south area that reduces right-of-way
acquisition and considers the City's options for implementation.
On October 8, 2012, the City Council held a work session to review the options. Progress had
been made as identified road alternatives were reduced from 13 to 5. One of these options is
the Baseline option, which includes the proposed changes at the intersections of Hwy 13/CH 21,
Hwy 13/Duluth Ave, Hwy 13/Pleasant Street, and CH 21/Main Avenue, as consistent with
previous studies, but does not include any plans within the downtown south area.
Two additional options (9B & 9C) were added after comments were received from the Citizens
and Business Group. Each of the seven alternatives are shown in the downtown south study
report. An open house was held on November 27, 2012; comments from the public were
included within the downtown south report appendix.
On December 12, 2012 the City Council discussed the Downtown South Study. At the time, the
Technical Evaluation Panel was recommending option 9C. The City Council felt additional
information was needed before a decision could be made on the alignment and directed that
staff identify what information remained to be collected based upon Council comments and how
such information should be assembled. Understanding that several of the downtown south
options changed access to TH 13, further study of TH 13 accesses was needed.
On May 28, 2013 the City Council commissioned Bolton & Menk to perform an access
management study along the entire length of Trunk Highway 13 from the city's south boundary
to County Road 42. The access study had three objectives:
1. Identify and evaluate access management scenarios showing access locations between
CSAH 42 and CR 81.
2. Solicit public and agency input in developing the plan to ultimately gain support/buy in for
a preferred corridor access vision from the public, elected officials, MnDOT and Scott
County.
3. Provide a plan to guide future access vision along TH 13 to be used in the City's
downtown planning work, the Comprehensive Plan, and the Capital Improvements
Program.(emphasis added)
On August 15, 2013, the City held an open house regarding the access study. The open house
was well attended as over 100 persons. The City Council reviewed the access study options at
a work session on August 26, 2013.
Segment 2 of the access study (TH13 between Panama Avenue and County Road 44) included
five alternatives referred to as options 2A-2E within the downtown area and evaluated each as
follows:
• Options 2A and 2B - Adding a signal at Franklin Trail appears unlikely due to intersection
spacing, signal warrants, and TH 13 mobility. Additional study of Franklin Trail would be
needed to determine if it would meet signal warrants. Even if it met warrants, MnDOT
has concerns with intersection spacing along TH 13 as it would reduce mobility through
the corridor. Preliminary analysis shows delay of traffic through the corridor as a result
of the added signal on TH 13.
• Options 2C and 2D — Swapping the Duluth Signal for the Franklin Trail signal seems
more likelv. Additional study would be needed to determine if Franklin Trail would
warrant a signal if Duluth Avenue would be converted to a three-quarter access.
Intersection spacing would be offset due to the conversion of the Duluth Avenue signal.
The removal of the Duluth signal could be perceived negatively by the existing
businesses near this intersection. In reviewing traffic movements, the conversion of the
Duluth intersection would restrict cross movement at Duluth and left turn movements
from Duluth back onto TH 13. Vehicles traveling to these businesses would not be
restricted by this conversion. However, vehicles exiting these businesses may require a
modified route to achieve access back to TH 13. In addition to this change, pedestrian
crossing at Duluth would not be allowed with the three-quarter access.
• Option 2E — Approval by MnDOT of this option is most likelv. The TAC for the downtown
south study had recommended this option. This previous study included representation
from MnDOT and Scott County.
• Another option was discussed by the TAC at the latest meeting. This option involved
modifying Option 2E to include a northbound left turn lane at the Franklin Trail
intersection. This northbound left turn would allow westbound traffic to use Arcadia
signal and avoid the TH 13 and CR 21 intersection.
Charlotte Green ;
From: Kelly Meyer
Sent: Monday, October 28, 2013 123 PM
To: Charlotte Green
Subject: FW: South Downtown Informational Meeting
From: Rod Ammerman [mailto:rod.ammerman@gmail.com]
Sent: Monday, October 28, 2013 12:28 PM
To: Dan Rogness; ken.hedberg@mchsi.com; Larry Poppler; Kelly Meyer; Frank Boyles
Subject: South Downtown Informational Meeting
Ladies and Gentlemen:
I am unable to attend the informational meeting on October 28, but I would like to share my views
with Mayor Hedberg, staff and the rest of the council. Since the email addresses of council members
were not available, I am hopeful that my comments will be passed on.
From my viewpoint, concept 6 modified makes the most sense. Some thoughts regarding why:
- Efficient alternate flow of traffic to Franklin Trail - concept 9 is not an efficient travel path as an
alternate route.
- Potential business growth along the new route
- Least overall impact on current residents
- Traffic at Franklin and Park Nicollet will need some additional planning. I personally like the idea of
a round-about.
Additionally, it is my understanding that business development typically shoulders the cost of this
type of city enhancement, and nullifies the tax burden. Prior Lake needs a broader and stronger
business community. If this South Downtown construction is a business draw and requires my tax
dollars to enhance Prior Lake's "offer", I am willing to help pay that forward. No gain without pain.
'The needs of the many outweigh the needs of the few". I belong to the group of the "many" who
are seldom heard from. Be respectful and courteous to the "few", but make the right decision for the
"many".
Regards,
Rod Ammerman R.Ph., M.S.
15849 Island View Road
Prior Lake, MN 55372
ComSult Enterprises, LLC
952-440-7707 (office)
612-803-5206 (cell)
888-268-3811 (Fax)
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