6.9. SR 08-16-2004MEMORANDUM
Item # 6.9
TO:
FROM:
DATE:
S U BJ ECT:
Mayor and City Council
Michele McPherso~irector of Planning
August 12, 2004
Consider Approval of the Transportation Plan
The City Council is asked to consider the approval of the Transportation Plan based on the
approved Comprehensive Land Use Plan.
Attachments
· Resolution No 04 -
· Executive Summary, draft Transportation Plan
The City Council authorized work on the Transportation Plan shortly after commencement
of the Comprehensive Plan update. The Transportation Plan is based on the future land
uses identified in the Comprehensive Use Plan. While the Council made some changes to
the Land Use Plan, those changes did not create impacts to the future transportation
projections, so the assumptions in the draft plan are still valid.
The attached Executive Summary identifies the short-term, mid-term and long-term
transportation improvements that will reduce congestion and maintain appropriate levels of
service on local roads.
Recommendation
Staff recommends that the City Council adopt the attached Resolution adopting the
Transportation Plan.
S:\PLANNING\Michele McPherson\MEMOS\8 12 04 Trans Plan Appr. doc
DRAFTELK RIVER
TRANSPORTATION PLAN UPDATE
EXECUTIVE SUMMARY
Prepared for:
City of Elk River
Prepared by:
Howard R. Green Company
August 2003
EXECUTIVE SUMMARY
INTRODUCTION
Currendy, the city is undergoing an update of its Comprehensive Plan. The general intent of this
Comprehensive Plan is to establish a community-based vision of how the city should grow and
look in the future. The transportation plan is generally intended to assist the city in determining
what transportation infrastructure the city may need to serve their future vision and to maintain a
high level of traffic safety and mobility. It should be noted that the focus of this plan is on the
city's roadway system. Eventually, this plan may be expanded to include other modes of travel.
In order to help Elk River maintain and plan for a transportation system that provides a high
level of traffic safety and mobility, the following methodology was used. First, existing land use
and roadway conditions were documented. Of particular focus was the existing level of traffic,
quality of tr, affic operations, number of vehicle crashes, and current functional class system.
Next, future land use and roadway conditions were examined. Based on future land use and
socioeconomic projections found in the comprehensive plan, future traffic levels were forecast
and used to estimate the quality of traffic operations. In other words, the level of congestion Elk
River may experience in the future was estimated. Future congestion estimates were developed
assuming there were no expansions and improvements to the city's current roadway system.
Roadway improvement actions were then developed and prioritized based on the congestion,
safety, and functional class issues identified. In addition to examining the existing and future
roadway conditions within Elk River, a series of roadway planning guidelines were developed.
These guidelines are intended to assist the city in providing a high level of traffic safety and
mobility on their roadway system.
EXISTING CONDITIONS
Figure i shows that TH 10 is the only roadway that is currendy identified as congested in the
city. Other major roadways such as TH 169 and portions of Jackson Avenue, Twin Lakes Road,
and Main Street are identified in the center of the city as approaching congestion. Some key
intersections on TH 10 and TH 169 are also shown as approaching congestion. In some cases,
the level of intersection congestion on TH 10 is better than the level of congestion for the
corresponding road segment. This is because the level of intersection congestion is based on
overall delay for all turn movements at these intersections. An examination of the individual turn
movements, such as left turns, at these intersections reveals that at least one or more of the
individual turn movements operates under more congested conditions.
Existing vehicle crash data for major roadways in Elk River was obtained and reviewed. The
review of the crash data led to the recommendation that safety improvements for School Street
previously identified in an earlier safety study be implemented. It was also recommended that
certain intersections and portions of other major roadways such as TH 10, CSAH 1 (Elk Lake
Rd), CSAH 13 (Twin Lakes Rd), and CR 33 be studied further to determine if safety
improvements are warranted.
Elk River August 200t
Draft Transportation Plan Update i Howard R. Green Company
221 st Ave
NOTE: Intersection congestion estimates are from the TH 10 and
TH 101/169 corridor managrnent plans and are based on PM peak
hour conditions. Roadway segment congestion estimates are
based on average daily traffic volumes, roadway facility type, and
Level of Service bar char:s derived from the Highway Capacity
Manuat (2000).
213th
Estimated Roadway Congestion
m Uncongested (LOS A-B)
Approaching Congestion (LOS C-D)
m Congested (LOS E-F)
Estimated Intersection Congestion
Uncongested (LOS A-B)
O Approaching Congestion (LOS C-D)
Congested (LOS E-F)
Lake
'i ZOSt~h Ave
']
Viking Blvd
181 st Ave
165th Ave
0.5 0 I 2
I Miles
An analysis of Elk River's functionally classified road system (i.e. its arterials and collectors)
revealed that Elk River is overly dependent on its Principal Arterials, TH 10 and TH 169, for
vehicular movement in the city. It also revealed that the city lacks a sufficient number of miles of
Minor Arterial and Collector Roads.
Based on examination of the spacing of Minor Arterial and Collector Roads in Elk River, it was
determined that two main land areas that lack Minor Arterials. The first area runs east-west
across the northern fringe of the urban service area (water and sewered area) in Elk River. CR 33
is the major roadway running continuously through this area. The second land area lacking a
Minor Arterial is on the eastern boundary of the city. The land area has a north-south
orientation. CR 40 and Jarvis Street are the primary north-south roadways within this land area.
However, there is a gap in these roadways due to presence of the Cargill land holdings. Figure ii
displays the areas lacking Minor Arterial and Collector Roads.
A total of four different land areas were identified as lacking Collectors. Only one of the land
areas, located on the western edge of the city, has a north-south orientation. CR 72 is the
primary north-south roadway in this area. This roadway does not extend south of Elk River
however. The three remaining land areas have an east-west orientation. CR 35 in the southwest
corner of the city runs through one of the areas. One other area lacking Collectors is east of TH
169 and runs east-west to CSAH 13. Unlike many of the other areas, this area currently does not
have a continuous east-west roadway running through it. The closest candidate is 198~ Avenue.
The last land area lacking Collectors is in the southeast corner of the city. The area runs east-
west and includes 165~ Avenue. These areas are also depicted in Figure ii.
A review of city, county, and state ownership of roadways in Elk River revealed that several
county roadways in the city are not classified as an Arterial or Collector Road. The county
roadways that were not classified as an Arterial or Collector Road are as follows:
· CSAH
· CR 33
· CR 40
· CR 77
· CR 35
· CR 44
· CR 72
21 (Brook Rd, 221't Ave)
(Ranch Rd, 205~h Ave, Quincy Ave, 209th Ave)
(Cleveland Ave, Davis St)
(Proctor Rd, 213~ Ave)
(192nd Ave)
(Meadow-vale Rd, Upland Ave)
(Zebulon St)
The implication of this is that these roadways should either be turned over to the city or
upgraded in status to an Arterial or Collector Road. The city should begin discussions now with
Sherburne County regarding what future changes in ownership and classification should take
place on major roadways in Elk River.
Elk River
Draft Transportation Plan Update iii
August 2003
Howard R. Green Company
Functional Classification
..mmmm Principal Arterials
Minor Arterials
Major Collectors
Minor Collectors
Deficiency Area
~ ~'/"~ Land Area L~cking Minor Arterials
,xT~ Land Area Lacking Collectors
Blvd
Downtown Area
SchoolSt
I 0.5 0 I 2
~ Miles
FUTURE CONDITIONS
In order to forecast Year 2025 traffic conditions in Elk River, a computer model was developed.
The model was developed to forecast expected average daily tra(~c (Al)T) (rom existing and
future development based on the 2003 Comprehensive plan update. The model also assumed
only roadway improvements that are currendy funded would be constructed between now and
2025. The model was validated by comparing Year 2000 ADT counts and Year 2000 daily model
assignments.
Figure iii displays the 2025 ADT forecasts and estimated level of congestion. The figure shows
that a number of key arterials and collectors in the city are forecast to be congested or
approaching congestion. The major roadways forecast to be congested are as follows:
TH 10 through the city
TH 169 .through the city
CSAH 12 (181s' Ave) from Trott Brook Parkway to east side of city
CSAH 13/Viking Blvd (Twin Lakes Rd) from CSAH 12 to east side of city
CR 30 (Mississippi/Main St.) from Naples St to TH 10
CSAH 1/CR 77 (Proctor Rd) from TH 10 to 199~h Ave
CR 42 Bridge from CR 30 (Main St) to South City Limits
Figure iii also displays the forecast ADT's for the major roadways. A comparison of the
forecast Year 2025 traffic to Year 2000 traffic city wide reveals that traffic is expected to roughly
double on the major roadways in Elk River.
The future planned land use identified in the 2003 Comprehensive Plan Update for Elk River was
analyzed to determine where additional arterials and collectors should be located as the city
develops. The results of the analysis are displayed in Figure iv. This figure identifies future land
areas needing Arterials and/or Collector Roads in addition to the land areas shown in Figure ii.
Figure iv shows that, as rural residential development occurs in northern Elk River, existing
north-south roadways should be extended northward or upgraded. Also, a continuous east-west
roadway in the vicinity of 221't Avenue should be developed through the city. Farther south, an
east-west Collector should be added between CSAH 1 and TH 169.
IDENTIFICATION AND PRIORITIZATION OF IMPROVEMENT ACTIONS
A list of roadway improvement actions was developed for Elk River by examining the existing
and/or forecast traffic operations, safety, and functional class issues and deficiencies identified.
Improvement actions were developed that are expected to alleviate these issues and generally
improve traffic mobility and safety. Table 10 in the main document describes the improvement
actions recommended and the objectives that each action is expected to achieve.
Elk River
Draft Transportation Plan Update
August 2009
Howard R. Green Company
I Es.~tim, ated Future Roadway Congestion
Uncongested (LOS A-B)
Approaching Congestion (LOS C-D)
-Congested(LoSE.F)
4200
Ave )
2091h-~Ave,~ '
205th Ava
~OGO0
Blvd
Downtown Area
14900
School St
14900 1290(
181bt Ave
2'/00 L
175th Ave "/ "'
165th Ave
II 0.5 0 I 2 I w~=
~ Miles
209th Ave
Functional Classification
~.,m~ Principal Arterials
Minor Arterials
Major Collectors
Minor Collectors
Deficiency Area
Minor
Arterials
~t~.~ Land Area Collectors
Lacking
165th Ave
0,5 0 I 2
~ Miles
Figures v, vi, and vii display a summary of the recommended improvement actions broken out
into short-term (2003-2010), medium-term (2011-2018), and long-term (2019-2025) timeframes,
respectively. Many of the improvement actions are estimated to occur over multiple dmeframes.
For example, during the short-term (2003-2010), it is expected that a corridor alignment for
CSAH 21/221~t Avenue will be determined in northern Elk River. It is not expected, however,
that the corridor will need to be constructed prior until the long-term timeframe (2019-2025).
The timing for this particular improvement acdon could change depending on a number of
factors such as Mn/DOT funding for a future CSAH 21/221st Avenue interchange and
development plans for northern Elk River. It is important to note that the actual timing for the
improvement actions will probab[y vasy from what is identified here. Instead, many of the improvement actions will
likely be completed in conjunction with adjacent development that cannot bepredsel_y timed. It should also be noted
that the figures on[y brief[y describe each improvement action. Table 10 in the main document should be referred
to for more detailed information about each improvement action.
Figure v displays the expected short-term (2003-2010) improvement actions. Most of the
actions depicted on the figure call for identifying alignments for future roadway corridors,
completing corridor studies, and working with other parties such as the Mn/DOT and Sherburne
County to determine the specific nature of the roadway improvements. Only two roadways have
somewhat specific actions identified for completion in the short-term. School Street should have
the improvements identified in a 2001 safety study implemented. The safety improvements call
for converting School Street to a 3-lane roadway with a center left turn lane.
CSAH 1 (Proctor Rd) should be expanded to a 4-lane divided roadway with turn lanes at key
intersections from CR 77 to TH 10 in the short-term. A corridor study should be completed on
CSAH 13/Viking Bird (Twin Lakes Rd) from Zane St to the east side of the city to determine
the recommended cross-section for expanding the roadway. This expansion is recommended for
completion by 2010. Financial and project development coordination with Sherburne County
will be necessary to complete the CSAH 1 and CSAH 13 improvements.
Figure vi displays the medium-term (2011-2018) improvement actions. During the medium-
term, it is expected that improvement actions on roadways such as CSAH 12, CR 30, CR 33, CR
40, and CR 77 will be implemented. In many cases, corridor studies will first need to be
completed to determine the specific nature of the improvements on these roadways. These
studies and improvements would need to be implemented in coordination with Sherburne
County. One key improvement identified is the creation of a new CR 33 connection to Viking
Blvd. This connection should be coordinated with both Sherburne and Anoka Counties.
It is also expected that improvement actions determined in the short-term for southern TH 169
and eastern TH 10 will be implemented in the medium-term. These improvement actions will
require continuing coordination with Mn/DOT in order to develop the project and identify
funding.
The creation of a continuous east-west corridor connecting CSAH 1 to Tyler St somewhere in
the vicinity of 193rd/198th Avenue is also identified in the medium-term. This connection is even
more critical if improvements to TH 169 call for converting it to a freeway. Finally, prior to
extending it to a new CSAH 21/221~t Avenue roadway, Tyler St should be studied to determine if
its design is sufficient to act as a Major Collector connecting CSAH 13 to northern Elk River.
Elk River August: 2003
Draft Transportation Plan Update viii Howard R. Green Company
and potential
Identify future corridor
westerly connection to Big Lake Township.
J/'-~i- ~%%~, Identify corridor to
I,~' '~l connect CSAH I
i~ x~ i;,_~il,~ to Tyler St.
future connection. ] ''~ i~ .... ,
Identify corridor for
future connection.
Identify corridor for
I future connection.
~ 209th Ave
corridor for
future connection into
Anoka Count.
Identify corridor Identify corridor to
for future connect CR 44 to
connection. CR 77.
Recommended Improvement Actions
~ Roadways Identified
for Improvement
!~ .... i I~nd Area Containing Future Roadway
Note: See Table I 0 in Transportation Plan for
more detailed improvement descriptions.
Identify corridor to
connect School St
to CSAH 13.
Identify corridor for
, future connection to
Jarvis (if Cargill land
is developed).
JI 0.5 0 I 2
~ Miles
Improve roadway and develop east-west
connections into Anoka County and Big
Lake Township that were established
during short-term time frame.
221st
Ave
Implement road,
improvements
established with
Mn/DOT during
the short-term
time frame.
Expand roadway section
and add turn lanes at key
intersections. Conduct
corridor study to determine
improvements.
Create a continuous east-west roadway
connecting CSAH I to Tyler St using
I corridor identified during short term
time frame.
Examine crashes to
determine if safety
study is needed.
Classify roadway as
a Minor Collector.
Classify roadway as a
Minor Collector. Make
road section improvements
as needed.
Create connection
identified during the
short term time frame
between CR 44 and
CR 77.
Create new CR 33
connection to Viking
Blvd that was identified
during the short term
time frame.
study to identify
:ntial
Ave
Create 2-lane
paved roadway
--' with turn lanes
I, at key intersections.
~ '- Classify as Minor
-- Arterial.
Create connection identified
during the short term time
frame between School St
and CSAH 13.
Expand roadway section
and add turn lanes at key
intersections. Conduct
corridor study to determine
improvements.
Expand roadway to
4-lane divided and
add turn lanes at
key intersections
Ave
~'~Recommended Improvement Actions'~
~ Roadways Identified
..... for Improvement
i " Land Area Containing Future Roadway
Note: See Table I0 in Transportation Plan for
~ more detailed improvement d~sc__ri:tio~n.s. J
Implement road improvements
established with Mn/DOTduring
the short-term timeframe.
0.5 0 I 2
Miles
~ Rice
~ L~k, i ' Create a continuous east-west roadway
I /'~~ .' " ' using corridor identified during short term
-Create a continuous I time frame. Classify roadway as a collector
north-south roadway
~, or arterial.
connecting CR 32 to ...... ~ _I1
' ~ -221~,v~ ........ ........... '~ ....
WacoStatTH 0 ~-w Z' ~
.- ~ ... _. ~ ' i I~! ~J Create a connection
~ / "'J! - ~.reate connec:lon- ./, ~ i_ 4
v 1 ir * -- rn i~ i ~ ~ ~fromCSAH21toCR
~ J identinea au ' g J 21i3th Ave ~' ' I
~ ---~ .... J ~! J~J (~) ~ ~ 33 using corridor
X l / snort term time trame. I ' ~/ .~-
~ ~ ~ ~ I ' ~k / , ~ , identified during short
~~ Il · ~~e,, ..... ." ] ~. ~ , term t me frame. Classify
,/~,~ ~ .... ~r /'~ ~ ,--- A asaMalorCollector.
L-~o I '- ............. ~e- r ~ ' ·
~ I'~e/e ~ ~ ~J' ,,/ ~ ImP ement road imorovemen~:
~ ~ ~ -- ,~~ ? ..... ~les~b shed w~ Mn/DOT ~.
~~-"J ~-T-'[~ ~~~;~;s~;;;o '~-~ ~. x.'" J during ~e sho~-term timeframe..
Create connection ~ ClassiN roadwav as :l : .... .~ - - ~
. · ~ '1 / ~ ~gSth Ave - .... : ' - --
J ,dent fled dunng ( a Minor A~er al ' ,_. ~"[ ~ ; ~lklno
' sho~ term t me frame. .~' ...... - , -' / ~
~~Createconnecdon identified ~:_:~/' '~",, ~);~-'-'- ~ '
-.-LI . ;~ dur ng sho~ term time frame. ~ ~'-~]/ ~ implement road impr0vemen~: (-
j ~hoo St ~ es~bl shed with Mn/DOT ' ....
J "~ durin~ ~e shod-term time frame..
f~m~ Create a connection b een ~ ',X ,
~: ' 171s~Ave and 165th Ave. ~ '~ ~ ~ /
.... ~ ~ ~
Corr,dorts already,dent,fled. ~h~,'L '~ X l'',hA;.l x
Recommended Improvement Actions
~ Roadways Identified t~~ting TH I 0 t0
for Improvement
CSAH 12~~M.~ed~L,'~ ~
, ' ~nd Area Confining Future Roadway
Note: See Table ,O in T~nspo~tion Plan for '~'~ ~ :
more de~iled improvement descriptions. J ~:, -~
~~ I 0.5 0 I 2 w
..... _ - Miles
Figure vii displays the long-term (2019-2025) improvement actions. The improvement actions
identified here involve the implementation (construction) of several new roadway
connections/extensions and improvements to TH 169 north of CR 33 and TH 10 west of TH
169. Once again, it should be noted that the timing for many of these improvements is
dependent on development occurring in the vicinity of the proposed corridors. In order to
implement these improvements in the long-term timeframe, the alignments and geometric design
of the roadways will need to be determined and environmental documentation may need to be
completed during the short and medium-term timeframes. Also, funding for these
improvements will have to be identified in advance. To do this, coordination with Sherburne
County and Mn/DOT should begin as soon as possible so that these projects can be included as
part of the respective agencies short and long-range planning efforts.
In the spring of 2002, Mn/DOT completed corridor management plans (CMP's) for TH 10 and
TH 169 through Elk River. The two plans identify a number of deficiencies along the two
highways and contain project concepts for alleviating these deficiencies. In the fall of 2002, the
city council passed a resolution on each of these plans that states Elk River recognizes the
significance .of these corridors and endorses the vision for laid out for them. However, the city
documented the issues and concerns it has with both plans. These issues would have to be
addressed before the city could agree to future improvements to the two highways.
The deficiencies identified and the traffic forecasts developed in this transportation plan for TH
10 and TH 169 are very consistent with those found in the respective CMP's. This implies that
the project concepts identified in the CMP's would likely help to eliminate/minimize the traffic
safety and operational issues identified in this plan. However, these solutions cannot be
implemented without first addressing the concerns laid out by the city in their resolutions for the
respective plans.
In the fall of 2002, Sherburne County drafted a Functional Class and CSAH Assessment Study
for its county road system. The study recommends creating continuous east-west Minor Arterials
and/or Collectors at roughly 1-2 mile intervals through the city and also calls for continuous
north-south collectors and arterials at the eastern and western edges of-the city. The study also
recommends upgrading CR 33 to CSAH status along with CR 32 and 72 on the western edge of
the city and CR 40/Fillmore/Jarvis on the eastern side of the city. This transportation plan is
consistent with the findings and recommendations drafted in the Sherburne County Study.
ROADWAY PLANNING GUIDELINES
In addition to examining the existing and future roadway conditions within Elk River, a series of
roadway planning guidelines were developed. These guidelines are intended to assist the city in
providing a high level of traffic safety and mobility on their roadway system. The guidelines
cover a range of issues that the city has contended with in the past. Specifically, they cover such
topics as:
Access and signal spacing
Right-of-Way widths
Stop sign installation
Traffic Impact Studies
Temporary Dead-End Signing
Guidelines, procedures, and/or examples of the state of the practice are discussed for each of
these topics in Chapter 5.0 of the main document.
E/k River
Draft Transportation P/an Update xii
August 2003
Howard R. Green Company
GENERAL RECOMMENDATIONS
This section provides general recommendations on what Elk River should do in order to
successfully implement the roadway improvement actions identified. The general
recommendations are as follows:
Complete the corridor studies identified as part of the improvement actions. In order
to determine more precisely what types of roadway improvement actions should be
implemented, corridor studies on many of the major roadways in the city should be
completed. In general, these studies would look at environmental, land use, engineering, and
financial constraints/opportunities as well as consider public input to determine how many
lanes can be added to existing roadways and where new roadway alignments should be
located.
Work with Mn/DOT, Sherburne County, and neighboring jurisdictions. The nature of
future improvements to TH 10 and TH 169 in Elk River will likely have enormous impacts
on how. the city functions and grows. Mn/DOT, having identified these roadways in Elk
River as high and medium priority interregional corridors, has already developed future
highway improvement concepts as part of the TH 10 and TH 169 Corridor Management
Plans.
Also, improvement actions implemented on TH 10 and TH 169 in adjacent communities will
likely affect future highway improvements in Elk River. For example, TH 101 in Otsego will
be converted to a freeway by 2006. Mn/DOT has recently completed an environmental
scoping document defining a potential corridor for a future TH 10 bypass of Big Lake. The
city of Ramsey is pursuing a future alignment change and freeway conversion for TH 10. As
these actions are implemented, they begin to narrow the improvement acdons that can be
taken by Elk River. The city should be proactive and work with Mn/DOT and neighboring
communities on deciding what future improvements might take place on these two highways.
Working with Sherburne County on future roadway improvement actions is equally
important to working with Mn/DOT. Several of the major roadways identified for
improvement in the city are under county jurisdiction. It is crucial for the city to work with
the county to determine the timing, funding, and nature of these improvements. Also, Elk
River should work with Sherburne County to determine if some existing and future city
roadways should become county roadways and vice versa. Roadway jurisdiction affects how
roadways function and how they are maintained and financed.
Make the public and developers aware of the transportation plan. As developers
approach Elk River with development proposals, city staff and officials should examine the
transportation plan to see if the proposals are consistent with the plan. They should make
the plan's improvement actions visible and readily available to developers and interested
members of the general public so they can make decisions in accord with the plan. If
stakeholders know what is in the plan in advance of making key decisions, opposition to the
plan should be minimized.
Elk River
Draft Transportation Plan Update xiii
August 200.Y
Howard R. Green Company
Use available planning and regulatory tools to help implement the plan. The city's
authority over planning and zoning can help guide the implementation of the transportation
plan. For example, the city can use official mapping to identify the corridor location of
future roadways. It can also request that developers dedicate a portion of their land for
roadway right-of-way. Another example that could be used if appropriate is interchange area
planning and zoning. If it is determined that all or portions of TH 10 and TH 169 should be
converted to freeway, the city could develop interchange area plans and/or overlay zones to
guide development around future interchanges. That way, future development along TH 10
and TH 169 would have to be consistent with the respective improvement plans for the
highways.
In addition, Section 5.1 of the plan discusses access and signal spacing guidelines that should
be utilized when determining future access and signal locations on major roadways in the city.
This section also refers to sample access management ordinances that are found in Appendix
C of this plan. With this information as a guide, the city should implement an access
management ordinance so that traffic safety and mobility can be maintained on their
functionally classified road system (arterials and collectors).
As stated in the introduction to this plan, the main purpose of the transportation plan is to assist
the city in determining what roadway infrastructure the city may need to serve their future vision
and to maintain a high level of traffic safety and mobility. If the information and
recommendations found in this plan are used and followed, then that goal should be achieved.
Elk River
Draft Transportation Plan Update xiv
August 200J
Howard R. Green Company