HomeMy WebLinkAbout9C Hwy 21 Corridor StudyMaintenance Center
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Prior Lake, Minnesota 55372
CITY COUNCIL AGENDA REPORT
MEETING DATE:
AGENDA #:
PREPARED BY:
AGENDA ITEM:
DISCUSSION:
April 18, 2005
9C
Bud Osmundson, Director of Public Works
CONSIDER APPROVAL
COUNTY HIGHWAY
RECOMMENDATIONS
OF A RESOLUTION ACCEVI'ING THE
21 CORRIDOR STUDY AND
County highway staff and the consultant SEH, Incorporated are here to provide
an overview of the County Highway 21 Corridor Study. The Study is now
complete and the City Council is being requested to adopt the study.
The purpose of the study was to provide the City and the County a concept plan
which would address existing and future deficiencies along CH 21 between CH
82 and CH 87. The City Council was provided an overview of the planned
study in November of 2003. An open house was held on October 8, 2003 to
provide an opportunity for the public to assist in identifying issues along the
corridor. Two more open houses were held over the course of the last year to
provide opportunities for the public to comment on alternative concept designs
and on the final recommendations. A Citizens Advisory Committee was formed
consisting of business owners and residents in the vicinity of CH 21 to work
with the County and City staffs and consultant to assist in determining the issues
and the plans to address these issues. A workshop was held on April 4 with the
City Council to answer their concerns regarding the study, and the Council was
provided copies of the executive summary and drawings showing the final
recommendations.
The major point of concern for the entire study is the Main Avenue and CH 21
intersection. Due to its close proximity to the CH 21 / TH 13 intersection and
the resulting traffic perplexities, the final recommendations show a median
through this intersection. To mitigate the impact of the median, the report
includes recommendations that the median on CH 21 only be installed
simultaneously with the installation of a signal light and full access at the
Arcadia / CH 21 intersection and the installation of a left turn lane at Pleasant
on northbound TH 13, while still allowing a fight in from south bound TH 13.
Another point of concern identified in the study is the Fish Point Road / CH 21
intersection. Major improvements including channelization of turn lanes and a
signal light are needed very soon at this intersection.
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Phone 952.440.9675 / Fax 952.440.9678
It should be emphasized that this study provides a long range concept plan for
the corridor. It should also be emphasized that the County and City have only
considered improvements to the Fish Point Road intersection in both of their
capital improvement plans over t he next five years. A t t his time t here i s n o
funding identified for the Main Avenue / TH 13 intersection improvements until
at least 2012.
Staff recommends that the City Council adopt the attached resolution which
accepts the report. The report will be sent on to the County for their adoption at
a May meeting.
The improvements contemplated in the study will be incorporated into the Prior
Lake and County capital improvement programs for completion in the coming
years and as traffic conditions and funding allow.
ALTERNATIVES:
RECOMMENDED
MOTION:
REVIEWED BY:
There are three alternatives for the City Council to consider: 1. Approve a Resolution Accepting the County Highway 21 Corridor
Study.
2. Deny this item for a specific reason and provide staff with direction.
3. Table this item until some date in the future.
Frank Boyl~ M~ager
U:\Osmundson~Scott County\CSAH 21~21 Corridor Traffic Studyka. genda Adopting Study 4-18-05.DOC
Maintenance Center
17073 Adelmann Street $.E.
Prior Lake, Minnesota 55372
RESOLUTION 05-
RESOLUTION ACCEPTING THE
SCOTT COUNTY HIGHWAY 21 CORRIDOR STUDY
MOTION BY:
SECONDED BY:
WHEREAS, the County and City identified the need for a long range concept plan for the
County Highway 21 corridor between CH 82 and CH 87 within the City of Prior
Lake, and the County contracted with a consultant to complete the study, and
· .
WHEREAS, the Study identifies a recommended alternative for Highway 21 through Prior
Lake (combination of Concepts W1 on the west end, D4 in the downtown area,
and a general 4-lane concept and subaltemative Concepts F2 an A2 on the eas0;
and,
WHEREAS, the recommended alternative identified in the Study Report provides safety
improvements for local and regional vehicular trips within the Highway 21
Corridor and enhances safety for pedestrians and bicyclists using local crosswalks
and trails along Highways 21 and 13; and,
WHEREAS, the recommended alternative in the Study Report has received support as the best
plan to serve the long-term transportation needs in Prior Lake.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF PRIOR LAKE,
MINNESOTA, that
,
The recitals set forth above are incorporated herein.
The City Council hereby accepts the Study Report as submitted.
Passed and adopted this 18th day of April, 2005.
YES NO
Fleming Fleming
Haug.en Haugen
LeMair LeMair
Petersen Petersen
Zieska Zieska
Seal}
Frank Boyles, City Manager
www.d~ofpdodake.com
Phone 952.440.9675 / Fax 952.440.9678
Draft Report
Scott County Highway 21 Corridor Study
Prior Lake, Minnesota
SEH No. A-SCOTT0304.00
April 15, 2005
Executive Summary
Background and Purpose of Study
Scott County, in cooperation with the City of Prior Lake, initiated this study to address existing and future
safety and operational issues on Scott County State Aid Highway 21 ("County Highway 21" or "CH 21")
from CH 82 to County Road (CR) 87, in Prior Lake. The goal of the study is to develop a long term vision, or
plan, for CH 21 that defines long term right of way needs and establishes an access plan that provides safety
and operational improvements simultaneously with reasonable accessibility for residents, businesses and their
customers. Acceptance of the "plan" by the City and the County will allow the investment of public dollars
for infrastructure improvements to be made, right of way within the corridor to be preserved, and will allow
for private development initiatives with setbacks and accesses configured in accordance with the long term
plan.
Scott County State Aid Highway 21 ("County Highway 21" or "CH 21") is one of only a few east west minor
arterial routes traversing central Scott County. As a minor arterial, CH 21's "mobility" function is to serve
trips between communities and to provide connections to other minor and principal arterial routes in the
regional roadway network. While providing t he "mobility" function, t he minor a aerial should also serve
"access" needs of communities through the corridor. In practice, mobility and access often compete against
one another. High levels of access, or poorly located access points tend to reduce safety and mobility. This
conflict became the single most important issue addressed within the study area. Of specific concern is the
desire to improve safety and traffic operations along CH 21 while maintaining a reasonable level of
accessibility to Prior Lake's central business district.
The study area extends 2.75 miles from Highland Avenue on the west to CR 87/Revere Way on the east.
Throughout this area, CH 21 is currently a four lane undivided roadway without exclusive left or right mm
lanes. Prior Lake's central business district is situated near the mid-point of the study corridor adjacent to the
intersection of CH 21 with Minnesota Tnmk Highway 13 (TH 13). Posted speeds on CH 21 west of TH 13
range from 35 mph to 40 mph while posted speeds east of TH 13 are 50 mph. Left mm safety is a key
concern throughout the study area. TH 13 is a two lane highway serving north-south traffic demands through
the downtown area. Safety and capacity at the intersection of CH 21 and TH 13 is a key issue for the study
area. Access to/from TH 13 at Dakota Avenue and Pleasant Avenue is also an important study issue.
Population, housing and employment growth forecasts through 2 025 for Scott County and Prior Lake are
expected to double the existing traffic demands through the study corridor. To serve the increasing demand,
Scott County is planning for roadway capacity improvements on several roadway segments connecting to CH
21. CH 21 between CH 27 and 1-35W is being expanded from two lanes to four lanes. CH 82 (intersects CH
21 near the north end of the study area) is planned for expansion from two lanes to four lanes between CH 21
and CH 17. CH 21 from CH 82 to CH 42 is a four lane divided roadway. Scott County is engaged in an EIS
for potential extension of CH 21 from CH 42 to CH 18. The current undivided four lane configuration of CH
21 in Prior Lake is inconsistent with the planned divided four lane configuration of connecting roadway
segments. This inconsistency may contribute to exacerbation of existing safety and operational issues within
the corridor.
Study Team and Public Involvement
The study process has been steered by a Project Management Team (PMT) which has been lead by Scott
County, facilitated b y t heir consultant, S EH, I nc., with active representation from t he City o f Prior Lake,
Mn/DOT and thc Prior-Lake Spring Lake Watershed District.
Public involvement for the study process was designed to reach out to the community to generate responses
and to establish a continuous dialogue with representatives most concemed about potential changes. A
Citizen's Advisory Committee (CAC) was formed which included five downtown area business owners and
two residential property owners. In addition, elected officials participated on the CAC including the Mayor of
Draft Report
Scoff County Public Works Division in cooperation with the City of Prior Lake
A-SCOTT0304.00
Prior Lake and the Scott County Commissioner representing the area. The role of the CAC was to identify
study-related issues, comment on potential solutions brought forward by the PMT and to serve as liaisons to
other property owners. Public involvement efforts beyond the CAC included three open houses, four targeted
area workshops and many meetings with individual and groups of property owners. Meetings were held in
the issue identification phase, the concept evaluation phase and the preferred alternative selection phase of the
study process. Distinct issues arose related to proposed changes or impacts within the corridor based upon the
roadway segment.
Corridor Issues and Findings
The most important issues learned from the public or resulting from alternatives evaluation are described for
each sub-area as follows:
West End (Highland Avenue to Duluth Avenue)
Area is generally residential; neighbors expressed preferences to route traffic, especially macks,
elsewhere.
Residents felt that actual vehicular speeds, especially through curves on CH 21, are too high. The
posted speed limit is 35 mph. Warning signs are posted through the curves advising a 30 mph speed.
Replacement of the 15 year old Wagon Bridge would be necessary to treat entire segment uniformly.
Bridge replacement could be deferred until its condition warrants replacement.
· Multiple driveways provide access to the Wagon Bridge peninsula area. Most have sight line / safety
issues making it desirable to combine accesses to safe locations.
· Limited parking opportunities near the DNR fishing pier and the bridge channel generate pedestrian
crossings of CH 21 at multiple and unexpected locations.
Some residential uses (driveways and garages) on Eagle Creek Boulevard west of Lakeside Avenue
(frontage road paralleling CH 21) encroach in public right of way. Residents expressed concern for
roadway widening and a desire to maintain a physical buffer from traffic. In addition, reducing the
number of accesses along this segment is desirable for roadway safety.
Downtown Area (Duluth Avenue to Franklin Trail)
The all-way stop at Main Avenue operates in close proximity to the traffic signal at TH 13. This
situation affects the behavior of drivers in both directions on CH 21 generating unexpected stops, roll
through stops, and other driver behaviors that result in vehicular conflicts that degrade intersection
safety.
Some downtown business owners fear that altering access at Main Avenue would negatively impact
the viability of their business. Concern has been expressed for convenient vehicular access and for
pedestrian crossing safety.
· Access from TH 1 3 to Dakota Street and Pleasant Street is highly valued by businesses served-
especially those with highest visibility.
· Safety and capacity needs on CH 21 can be met without adding through-lanes. Turn lanes are
desirable for safety and would add capacity by reducing delays at intersections.
· Forecast growth on TH 13 indicates the need for an additional through lane in each direction on TH
13. This is being shown as a need based on performance targets for this type of roadway in the
Draft Report
Scott County Public Works Division in cooperation with the City of Prior Lake
A-SCOTT0304.00
Mn/DOT Metro District's 2004 Transportation System Plan. However, given current levels of
transportation funding, it is not being shown as a funded project in their fiscally constrained plan.
Double left turn lanes from CH 21 to TH 13 require that two lanes be provided on TH 13 going away
from the CH 21 intersection in both directions. TH 13/CH 21 intersection operations require that two
through-lanes be provided on all approaches to the intersection to reduce delays.
The width of CH 21 needed at the TH 13 intersection impacts commercial property on the southwest
corner of intersection and residential property in the northeast quadrant. Impacts to both quadrants
cannot be avoided, but should be minimized to avoid total takes.
CH 21 with a signalized access at Arcadia Avenue performs better in conjunction with the signal at
TH 13 than does a situation with a signal at Main Avenue and at TH 13 providing the following
advantages:
o Lower vehicle delays on CH 21 and on TH 13 result in acceptable corridor level of service
and a higher vehicular capacity.
Improved safety through longer spacing between full access intersections.
Shorter vehicle queues on Main Avenue. Fewer blockages of driveways, alleys or streets
near CH 21.
o Reduced interference with angle parking in front of businesses on Main Avenue.
East End Area (Franklin Trail to CR 87/Revere Way)
Higher posted speeds (50 mph) east of TH 13 were raised as an issue by the public.
Credit River Road residents west of Franklin Trail generally agree that loss of left turn access from
CH 21 would be desirable compared to loss of homes that would be necessary to connect Credit River
Road to Franklin Trail.
· The Franklin Trail intersection has experienced crashes that may be remedied with mm lanes and left
mm arrows on CH 21.
· The Fish Point Road intersection should have left mm lanes to improve safety and a traffic signal to
reduce delays.
Access from C H 2 1 t o A delmann Street t o t he south i s important to businesses served (including
Public Works facility). R/W impacts to provide similar access at Adelmann to the north make full
access undesirable as long as alternative access can be provided.
170~ Street and CR 87/Revere Way are offset across CH 21.170~ Street should be realigned to match
CR 87. Left turn lanes on CH 21 should be installed. As traffic conditions change, a traffic signal may
need to be considered.
Development and Evaluation and of Alternative Concepts
The PMT developed and evaluated four major concept alternatives for the west end, four distinct alternatives
in the downtown area, five east end sub-alternatives near Franklin Trail, three sub-alternatives near Adelmann
Street, and one sub-alternative each for the Fish Point Road and CR 87 (Revere Way)/170~ Street
intersections. The evaluation process acknowledged all relevant public input from open houses, workshops
and included extensive consideration of CAC and downtown business owner concerns regarding access to
downtown from both CH 21 and TH 13.
Draft Report
Scott County Public Works Division in cooperation with the City of Prior Lake
A-SCOTT0304.00
Recommended Alternative
The PMT assembled components from each sub-area into a recommended alternative for the entire corridor.
The recommended alternatives are included in Appendix J as Figures Jl, J2, J$, and J4.
West End PMT recommendation: Concept Wl and W3
Concept Wl provides lef~ turn access at major intersections and at minor intersections where
reasonable alternative routes are not available. The center median and reduced number of access
points reduces vehicular conflict points and improves safety. The 18 foot wide center median
provides a pedestrian sanctuary allowing crossings of lanes from only one direction at a time.
Concept Wl consolidates the south side access points serving parcels on the Wagon Bridge peninsula
eliminating those that have inadequate sight distance. Full implementation of Concept W1 would
require expensive replacement of Wagon Bridge. Overall width required from the outside edge of the
walk or trail on each side is approximately 96 feet. Right of way widths required will need to be
greater than 96 feet to accommodate utilities and to grade slopes appropriately.
Concept W3 retains the existing Wagon Bridge deferring up to $1 million in cost until its condition
requires replacement but still allows for a westbound left turn lane to the consolidated Wagon Bridge
peninsula driveways including the Wagon Bridge Marina.
· Downtown Area PMT recommendation: Concept D4:
Downtown access from CH 21 is refocused from Main Avenue to the Arcadia Avenue intersection.
Arcadia Avenue is re-opened to the south of CH 21. Main Avenue is restricted to fight tums in and
right roms out only. Realignment of Duluth Avenue from a common intersection with Arcadia could
be planned in conjunction with redevelopment of the area.
A new access from northbound TH 13 to westbound Pleasant Street is provided to mitigate loss of
access from westbound CH 21 to southbound Main Avenue. Existing right mm access to/from TH 13
at Dakota Street and Pleasant Street is retained.
East End Area PMT recommendations:
Recommendations for the east end include a general concept plus three sub-alternative concepts with
specific frontage road accesses, intersection configurations, and/or local street connections.
General Concept: A four lane divided roadway with full access at Franklin Trail, Fish Point
Road, and CH 87, and with full access to Adelmann Avenue south of CH 21. The concept
includes lef~ mm lanes and right turn lanes at each intersection.
o Sub-alternative Concept F2: Frontage road and local street connections at Franklin Trail
north of CH 21.
Sub-alternative Concept A2: Frontage road and local street connections at Adelmann Street
north of CH 21. Thc frontage road would be extended to Fish Point Road and to 170~ Street
where full access to CH 21 would be provided.
The above described recommendations were shared with the CAC in July, 2004. Continued discussion with
the CAC identified the need to explore interim operational measures to determine the viability of temporary
signalization for access from CH 21 to the downtown area (at Main Avenue or at Arcadia Avenue) coupled
with a long term plan to reconfigure the downtown access to be served at Arcadia Avenue. Short term
analysis findings are described in the following section.
Draft Report
Scott County Public Works Division in cooperation with the City of Prior Lake
A-SCOTT0304.00
Short Term Operational Analysis Findings
The PMT reported findings of the interim operational concepts in October, 2004 to the CAC. Findings of
significance are:
.
Perpetuation of the all-way stop condition at Main Avenue will increase delays and exacerbate
existing operational issues on CH 21, TH 13 and on Main Avenue as traffic volumes grow.
Temporary signalization of the Main Avenue intersection does not provide operational or safety
benefits superior to the all-way stop condition.
A temporary signal at Main Avenue would serve today's traffic demands but would increase
delays and exacerbate existing operational issues on CH 21, TH 13 and on Main Avenue as traffic
volumes grow. Level of Service failure (based upon vehicular delay) would occur within a three
year period of traffic growth.
,
A temporary signal at Main Avenue would disrupt on-street parking on Main Avenue and will
block access points on Main Avenue within approximately 200 feet of CH 21.
A temporary signal at Arcadia would be consistent with conditions that have been recommended as
part of the long term solution. However, the following factors that make implementation of this
change difficult would need to be considered:
Adding left turn lanes on CH 21 at Arcadia at the same time as signalization would be the most
effective way to operate the intersection. This would require roadway widening that may not be
practical as part of a short term solution.
Without left turn lanes on CH 21, a temporary signal at Arcadia would need to operate under
"split phase" control serving eastbound and westbound movements independently. This type of
operation would serve existing traffic demands and traffic growth but only through approximately
2010.
Main Avenue at CH 21 would be restricted to right in and right out only. Businesses in the
southwest quadrant of TH 13 and CH 21 are opposed to access restrictions at Main Avenue unless
a northbound left mm access from TH 13 to Pleasant can be provided simultaneously. The
northbound access cannot be provided without widening on TH 13.
Arcadia Avenue south of C H 21 would be reopened to Colorado Street with two northbound
lanes. Arcadia Avenue north of CH 21 would need to be widened to allow two southbound lanes
approaching CH 21.
Short term or temporary measures considered to improve traffic operations and safety along CH 21 while
maintaining acceptable access to the downtown area have not been found to be effective or affordable.
Therefore, continued planning for implementation of the long term recommendation appears to be the most
practical approach.
Conclusion
Long term transportation needs in Prior Lake are best served by the recommended alternative for CH 21. The
recommended plan provides safety improvements for local and regional vehicular trips within the corridor as
well as enhances safety for pedestrians and bicyclists using trails along CH 21 or crossing CH 21 or TH 13.
The plan includes a center median with left turn lanes at major intersections and at minor intersections if
reasonable alternative local routes are not available. To maintain safety and operational efficiency with the
CH 21 corridor and also on TH 13, the center median would remove left tums to/from CH 21 at Main
Draft Report
Scott County Public Works Division in cooperation with the City of Prior Lake
A-SCOTT0304.00
Avenue. The Arcadia intersection would be improved to provide an alternative signalized left turn access
location from CH 21 to downtown areas both north and south of CH 21. Additional mitigation for loss of left
mm access from CH 21 includes maintaining existing right-in/right-out access points from TH 13 at Dakota
Street and at Pleasant Street and revising the intersection of TH 13/Pleasant Street to allow northbound to
westbound left tums.
The recommended transportation plan for CH 21 will allow the City, County and State to be supportive of
development proposals that are consistent with it in terms of access, site circulation and building setbacks.
The City's 2020 Vision Plan can evolve in concert with implementation of this vision for CH 21.
Upon approval of the corridor study by the City, County and State, staff from each agency will have an
agency endorsed plan to support solicitation of funding opportunities and program components of the corridor
plan in future Capital Improvement Plans.
City, County and State representatives generally concur that funding constraints will defer the opportunity to
implement recommendations made as a part of this study. The following opportunities and constraints related
to funding or implementation planning have been identified:
Improvements to CH 21 through the downtown area are not currently programmed. Unless funding
becomes available from outside sources (i.e. Federal appropriation), improvements are not expected
to occur prior to 2012.
The recommended access changes in the downtown area should be implemented simultaneously. The
NB access from TH 13 to Pleasant needs to be in place when left turn access at Main is restricted.
Similarly, full access at Arcadia should be in place prior to changes at Main Avenue.
Operating double left turn lanes from CH 21 would require that TH 13 be expanded near the CH 21
intersection to accept two lanes of turning traffic. Therefore improvements on CH 21 at TH13 should
be made in concert with improvements on TH 13.
Safety and operational improvements on CH 21 at Franklin Trail and at Fish Point Road should be a
high priority. The City has included improvements at Fish Point Road in their 2006 - 2010 CIP. Scott
County has included a project in their TIP and is actively pursuing avenues to secure a Federal
appropriation. The earliest timeframe to deliver a project would be 2007 if funding efforts are
successful.
In recent years there has been roughly $20 million of public and private investment in the downtown
area in the form of new buildings, faqade improvements and streetscape improvements. Continued
vitality of the downtown requires a roadway system that will be safe and efficient in the long term.
Planning recommendations made in the corridor study compliment the investment that has been made
in the downtown. Future local investment decisions can be made knowing the future vision for the
roadway system.
The Prior Lake City Council will be asked to approve the findings of the corridor study and concept plan in
April, 2005. The Scott County Board of Commissioners will be asked to approve the findings of the corridor
study and concept plan in May, 2005. Mn/DOT will be asked to provide a letter in support of the concept
plan.
Draft Report
Scott County Public Works Division in cooperation with the City of Pdor Lake
A-SCOTT0304.00