6.8. SR 09-19-2005
Item 6.8.
13065 Orono Park"way
Elk River~ MN 55330
September 13, 2005
File: 226-074D
Mr. Pat Klaers
City Administrator
City of Elk River
13065 Orono Parkway
Elk River, :M:N" 55330
RE: SCHOOL S1REET /HIGH SCHOOL DRNEW AY SIGNALIZATION
Dear Mr. Klaers:
One of the transportation projects that has come out of the numerous discussions with the
City Council concerning transportation priorities was the signalization of the intersection of
School Street and the High School parking lot. As you are aware, the Police Department
places a community service officer in School Street at the end of each school day. The
thought is that by installing a signal system, there would no longer be a need for an officer to
place themselves in the center of the street.
We have prepared a topographic map of the area and have discussed the layout and design
with our signal design team. We have also had a discussion with MnDOT regarding whether
or not they would be involved in the review of the design of the project. MnDOT's answer
was that since it is anticipated no Municipal State Aid monies would be utilized for this
signal, there would not be a need for a MnDOT review, and therefore, the City could choose
whether or not to prepare a Signal Justification Report. It is our feeling that this intersection
may not rise to the level of needing a signal based on a Signal Justification Report. However,
it needs to be noted that the Signal Justification Report does not measure personal safety,
such as a community service officer placing themselves in the center of traffic in order to
facilitate a reasonable flow during school exiting times.
Back in June of 2001, a school safety report was prepared, a copy of which is attached. One
of the recommendations in that report was to re-stripe School Street to a three-lane
configuration. I would reconunend that this be studied as a signal project proceeds. The
center left turn lane would allow a signal to be designed with left turn arrows and operate
with more than two phases. Therefore, what I am recommending is that current turning
movement counts are gathered during a typical school day in the a.m. and p.m. peak hours,
analysis of lane configuration options be prepared and presented to the City Council for
Phone: 763.635.1000
Fax: 763.635.1090
WW\V. ci. elk - ri ver.mn. us
School StreetlHigh School Drive Signalization
September 13, 2005
Page 2
consideration and direction to staff, followed by the design of a signal system based on the
selected lane configuration. As with previous signal projects, this work could be completed
during the fall of the year with a contract being let and wire and concrete bases installed
prior to the onset of winter. Due to the delays typically experienced in receiving signal mast
arms and controller cabinets to the site, it would likely be later in the winter months that the
equipment would be available and could be installed and signal operations instituted.
It is my understanding that you have had preliminary discussions with the School District
about participating in the funding of a signal system at this intersection. Through the
preliminary discussions, I believe that they have been open to the idea of the School District
paying half of the cost with the City funding the remaining cost. Attached for the City
Council's consideration is a resolution which would order the preparation of plans and
specifications. It is implied that this would also include the traffic data collection and lane
configuration analysis prior to proceeding to final design of the signal layout.
If you have any questions regarding this project, please call.
Sincerely,
~pt~
Terry J. Maurer, PE
City Engineer
Cc: Dr. Jenson, District #728
Jeff Beahen, Police Chief
S:\EngineerImprovProj\200S Improvement Projecrs\School St Signalization\09 13 05 cc merno.doc
RESOLUTION 05-
A RESOLUTION FOR THE CITY OF ELK RIVER
A RESOLUTION ORDERING THE PREPARATION OF PLANS
AND SPECIFICATIONS IN THE MATTER OF THE SCHOOL STREET /HIGH SCHOOL
PARKING LOT SIGNALIZATION IMPROVEMENT OF 2005
\VHEREAS it has been determined that signalizing the :High School parking lot intersection with School
Street is a priority; and
\VHEREAS signalization should provide for a safer transportation environment especially at periods of
peak traffic flow;
NOW, THEREFORE, BE IT RESOLVED by the Gty Council of the City of Elk River, Minnesota:
1. Terry Maurer, City Engineer is hereby designated as Project Engineer for this improvement. The
Project Engineer is directed to prepare plans and specifications for the making of the improvement
and the solicitation of competitive bids.
Passed and adopted this 19th day of September, 2005.
Stephanie A. Klinzing, Mayor
ATTEST:
J oan M~ Schmidt, City Clerk
S:\EngineerImprovProj\2005 Improvement Projects\Schoo1 St Signalization\Resolu prep plans&specs.doc
MEMO
To:
Terry Maurer, PE
From:
Howard Preston, PE
Lynn Kiesow
Howard R. Green Company
Subject: Elk River High School Safety
Study
Date: June 8, 2001
Howard R. Green Company has completed a review of the traffic conditions surrounding the Elk
River High School. Our review included on-site observations, interviews .with faculty and staff, an
analysis of traffic operational and safety issues, as well as the development of several potential
mitigation strategies, which would likely improve traffic safety and operations.
Existing Conditions
Elk River High School is located on School Street between Jackson Avenue and Proctor Avenue
as shown in Figure 1. School Street is a four-lane collector roadway connecting Trunk Highway
169 and Proctor Avenue. Both Proctor Avenue and Jackson Avenue are four-lane undivided
roadways, and are signalized at their intersection with School Street.
The existing geometry of the area surrounding the school is included in Figure 2. Two student
parking lots divided by a baseball diamond are located directly west of the high school. Students
are only allowed to access the parking lot through one location along School Street. A pedestrian
crosswalk is located on the west leg of School Street of the student parking lot entrance. Elk
River City Arena is located to the north of the student parking lot. A bus loading zone and teacher
parking are located on a horseshoe to the south of the school. This entrance connects with a
delivery access and visitor parking located west of the school. The Arena is accessed through the
school parking lots. Vandenberge Junior High School is located directly west of the student
parking lot.
The access to the student parking lot includes a welcoming gate with one lane on the east side of
the gate and two on the west. Gates control the ability for traffic to enter or exit the parking lot in
the wrong lane. The school staffs the welcoming gate before and after school. This location was
selected as the only access to the parking lot two years ago as a means of reducing traffic
congestion on local roads surrounding the school during periods of peak traffic. Lanes at this
access experience directional changes throughout the day. During A.M. peak traffic, the gate is
lifted, and eastbound traffic is expected to enter the parking lot using one of the exit lanes. After
the peak, the lane returns to an exit lane. After school, the City of Elk River provides an employee
to control traffic. Traffic cones are placed across the westbound curb lanes the north lane of
School Street to allow students a free right leaving the parking lot. The employee stops traffic
from the east to allow student a left out.
Students pay $80 per year for parking, and are given different parking privileges depending on
grade in school and academic record. Privileges are taken away if the student shows any deviant
Howard R. Green Company
Elk River High School Safety Study
O:\PROJ\814360j\Memo.doc
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behavior such as being late for class. Violators of parking rules are given three notices before
additional measures such as locking tires and towing vehicles take place. Often these students
join students avoiding the parking fee, and park in Lion's park crossing School Street at the
pedestrian crosswalk.
Currently: an estimated 2000 students attend the High School, and 700 students parking on
school property. This number is expected to decrease to around 600 after the construction of
Rogers High School scheduled to open in 2003.
Improvements have been planned for construction this summer. The baseball diamond will be
converted to a bituminous parking lot consisting of approximately 275 additional student parking
spaces. The horseshoe located south of the school will be removed, and bus loading will be
moved north of the school to reduce bus/auto conflicts on School Street.
Evaluation Criteria
In order to evaluate the traffic operations and safety, as well as pedestrian issues surrounding Elk
River High School, the following criteria were developed: '
· Reduction of Conflicts - By minimizing potential vehicle and pedestrian conflicts, traffic
and pedestrian safety is enhanced. Conflicts can be reduced by separating operations
(bus loading, parent pick-up, and student parking), limiting access points, and merging
pedestrian traffic to one logical location.
. Capacity Considerations - Consideration should be given to keeping vehicle flow
through the school area logical while minimizing conflicts. Vehicle conflicts, non-logical
flows and improper use of traffic control devices are all contributing factors to congestion
and potential safety problems.
· Proper Use of Traffic Control- Traffic signs and pavement markings should be
consistent with those recommended by the Manual on Uniform Traffic Control Devices so
driver's expectations are not violated. Special attention should be given to labeling
pedestrian crossings correctly.
Field Observation and Identification of Operational Deficiencies
A field review was completed during morning peak arrival in order to observe the onsite
operations. Deficiencies were developed by analyzing observations using the criteria
documented above. In addition, a meeting was held with school faculty and staff to determine any
additional areas of concern. Issues identified through this process are as follows:
· Limited gaps exist for buses entering and exiting the bus-loading zone located on the south
side of the school.
· The exit for the bus-loading zone also acts as an access for delivery and visitor traffic on the
west side of the school. Motorists seem confused as to which lane to exit from. While most
drivers are aware of the schools policy on no traffic entering that location before school,
conflicts may arise for people not familiar'with the system. .
· Drivers familiar with this route assumed all westbound A.M. traffic in the right lane was turning
right to access student parking. In addition, eastbound traffic in the left lane was assumed
Howard R. Green Company
Elk River High School Safety Study
O:\PROJ\814360j\Memo.doc
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turning left into the student parking lot. Some motorists did not seem familiar with the system,
and found it necessary to find gaps to exit the queue and merge into thru traffic. Vehicle
speeds are limited during peak hour due to high traffic volumes.
. Students were using the pedestrian crosswalk on School Street to access the student parking
lot indicating proper placement. Motorists stop for pedestrians in the crosswalk as required by
Minnesota Motorist Laws.
. Westbound buses on School Street stopped on School Street to allow vehicles exiting the
bus-loading zone to turn left onto School Street.
Evaluation of Traffic Conditions
A crash analysis as documented in Figure 3 was completed for intersections along School Street
using MnDOTls Traffic Safety Fundamentals Handbook. The intersections included Jackson
Avenue, the Elk River High School parking lot entrance, the Vandenberge Junior High School
Entrance, and Proctor Avenue. Crash data were evaluated for the last three years at all locations
except at the entrance to the student parking lot from School Street. Crashes were only
evaluated for two years at this location due to the improvements made at that time. Over 75
crashes occurred on School Street from east of Proctor Avenue and west of Jackson Avenue in
the last three years, with four of these being pedestrian crashes. Most vehicle crashes included
only property damage, with only one reporting serious injuries.
Crash rates were calculated at each location and compared to average rates at similar locations
throughout the State of Minnesota. In order to determine whether or not the intersections were
unsafe, a critical crash rate was calculated for each location. The critical crash rate takes into
consideration the average crash rate and the volume of vehicles entering the intersection in order
to provide statistically reliable evaluation of safety. Intersections with crash rates under the critical
value were considered safe because the probability was high that those crashes were due to the
random nature of crashes as opposed to a deficiency at the intersection. The crash rates at
intersections along School Street that were found to operate above the critical crash rate were the
access to the student parking lot and Jackson Avenue.
Figure 3
Crash Rates
2
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Proctor Avenue School Street and School Street and School Street and School Street and
and VJHS Proctor Avenue VJHS ERHS Jackson Avenue
Location
o Average Crash Rate lil Critical Crash Rate D Intersection Crash Rate
Howard R. Green Company
Elk River High School Safety Study
O:\PROJ\814360j\Memo.doc
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The largest number of crashes occurred at the intersection of School Street and Jackson Avenue.
Both roadways are four-lane undivided segments entering this signalized intersection. Crashes at
this location were 2.5 times higher than the average for a typical signalized intersection and 1.5
times higher than the critical rate, which indicates a definitive safety deficiency at this intersection.
As illustrated in Figure 4, this number of left turn crashes was significantly higher than the average
at signalized intersections. Most left turn crashes occurred when a vehicle turned left in front of
an opposing vehicle in the far lane. This indicates poor judgment in gap selection and driver
expectations due to the four-lane undivided design.
Figure 4
Crash Type at School Street and Jackson Avenue
100
~ 80
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Rear End
Right Angle
Left Turn
Other
Type of Crash
o Average Signalized Intersection
II School Street and Jackson Avenue
Crashes at the intersection of School Street and Elk River High School also were above critical
levels. Incidents at this location were 4.6 times higher than the average for a thru/stop
intersection and 2.3 times higher than the critical rate. As illustrated in Figure 5, most crashes
were rear end crashes. In addition, over 250/0 of these rear end crashes involved more than two
vehicles. This indicates motorists are not expecting vehicles to stop along School Street.
Figure 5
Crash Type at School Street and Elk River High School
100
Q) 80
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19 60
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Rear End Right Angle Left Turn Sideswipe Other
Type of Crash
o Average Thru/Stop Intersection
II School Street and ERHS
Elk River High School has made several improvements in the past two years to aid in the
improvement of traffic operations surrounding the school. By limiting student access to one
location, motorists are queued in the parking lot rather than in the roadway network. This method
results in less confusion and conflict on the public roadway.
Howard R. Green Company
Elk River High School Safety Study
O:\PROJ\814360j\Memo.doc
- 6-
Additional improvements in traffic circulation are scheduled this summer. The bus-loading zone
south of the school will be removed. The access that currently joins with the bus-loading exit will
remain, but will be used for deliveries only. The bus-loading zone will be moved away from
student parking to north of the school. This improvement reduces current conflicts between
student motorists and buses and removes the confusing access along School Street. Separating
these operations will improve traffic operations; although, care should be taken at the new bus
loading zone entrance on Jackson Avenue. Buses making left turn movements into and out of the
loading zone may still have difficulty with gaps. Also, rear end crashes currently occurring at
School Street may be relocated to this area.
Mitigation Strategies and Recommendations
Many of the improvements made by the school have aided in improvements in traffic circulation
surrounding the school. These improvements are as follows:
1. The current system allowing students to enter on both sides of the welcoming gate before
school is in session operates efficiently to relieve queuing on School Street.
2. The pedestrian crosswalk located on the west leg of School Street is placed appropriately.
Students crossing from Lion's Park use this crossing in the manner for which it was
designed. All pavement markings and signs are placed appropriately at this location.
3. The City of Elk River should continue providing a traffic control person after school to aid
in left turn movements leaving the student parking lot.
4. The bus loading zone should be moved to the north of the school as planned in order to
reduce conflicts by separating uses.
After evaluating existing traffic conditions, consideration should be given to the following
mitigation strategies.
1. To reduce the occurrence of crashes at the student parking access, School Street should
be changed into a three-lane section with a center turning lane as shown in Figures 6-10.
An additional westbound auxiliary lane is added from the parking lot to Proctor Avenue to
allow free right exits for students after school. Also, a right turn lane has been added to
the east of the access to provide space for queuing before school. This lane along with
the center turning lane should increase motorists' expectations of stopped traffic in these
lanes; therefore, reducing the number of rear end crashes.
2. In order to reduce the occurrence of crashes at the intersection of School Street and
Jackson Avenue, left turn phasing (exclusive/permitted) should be added to this signal.
This improvement will aid in motorists' expectations and allow adequate gaps for left turn
movements. According to MnDOT's Traffic Safety Fundamentals Handbook, the addition
of an exclusive left turn signal will decrease left turn crashes by 500/0 and rear end
accidents by 10%.
3. In order to reduce the occurrence of rear end crashes at the intersection of School Street
and Elk River High School, four-lane roadways entering this intersection should be
restriped as three-lane sections with a center two-way left turn lane. School Street should
follow this pattern all the way through to Trunk Highway 169. A three-lane section on
Howard R. Green Company
Elk River High School Safety Study
O:\PROJ\814360j\Memo.doc
- 7-
Jackson would also provide safety to the new bus loading zone access. According to
MnDOT's Traffic Safety Fundamentals Handbook, conversion to a three-lane section will
decrease rear end accidents by 200/0.
4. Plans to move the bus-loading zone to north of the school should continue as scheduled.
Buses making left turn movements into and out of the loading zone should be avoided if
possible. Restriping of Jackson Avenue from a four-lane section to a three-lane section
with a center turning lane is recommended.
Howard R. Green Company
Elk River High School Safety Study
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