Memo- Excelsior Boulevard Reconstruction, Phase II
Public Works Department
Metnorandum
From:
Honorable Mayor and Members of the City Council
Steven J. Stadler, Public Works Director ~
To:
Copy:
Steven C. Mielke, City Manager
Date:
August 26, 1999
Subject:
Excelsior Boulevard Reconstruction, Phase II
Staff requested City Council approval of the subject project preliminary layout (layout
C2) at the August 3rd City Council Meeting. City Council had several questions and
concerns on the project and the item was continued to a future meeting to allow time to
address the issues. The attached August 4th City Manager memo lists the issues
raised at the August 3rd meeting. In addition, there were questions regarding: 1) city
representation during negotiations with owners of property to be purchased; 2) mor
detailed information on the property appraisals and expected acquisition costs; 3)
whether a city-imposed not to exceed amount could be set on the purchase of the East
End Bottle House & Barber Shop property. City and Hennepin County staff will be
present at the August 31 worksession to present additional information and answer
questions.
What follows is additional information regarding the above mentioned
questions/concerns, as listed in the City Manager's memo. The paragraph
designations refer to this memo.
1. It is necessary to schedule a neighborhood meeting when answers to the following
issues can be provided.
. A neighborhood meeting was held on August 19th. Staff presented alternative
landscaping plans both with and without a full taking of the East End Bottle Shop
property. Staff stated that the additional city cost of a full taking was estimated at
$160,000 - $180,000 and that the additidnal cost would come from the city's
municipal state aid fund. The impact of the additional expenditure would be to
possibly delay other projects on major city streets (state-aid streets). Almost all
residents in attendance voted that they preferred the city purchase this commercial
property and create a consistent landscaped buffer area as depicted in the 1995
CSAH 3 Corridor Study.
. The real estate acquisition cost breakdown based on appraisal amounts is as
follows:
TOTAL APPRAISAL VALUES FOR ALL TOTAL TAKE PROPERTIES (excluding the
East End Bottle Shop property): $1.595.900 City share: $797.950
Estimated additional city cost for purchase of East End Bottle Shop including relocation
costs: $220,000
Estimated city cost for partial property takings (project-wide): $150.000
TOTAL ESTIMATED CITY COST INCLUDING PURCHASE OF EAST END BOTTLE
SHOP: $1,167,950
TOTAL ESTIMATED CITY COST WITH PARTIAL TAKING AT EAST END BOTTLE
SHOP: $997.950
CURRENT CITY BUDGET FOR PROPERTY ACQUISITION: $1,034,000
The estimated additional city cost for total take of East End Bottle Shop property,
$170,000, could be funded from the Municipal State Aid Fund without a large impact to
future projects.
. At the August 19th neighborhood meeting the residents were unanimous in their
desire for a new Excelsior Boulevard signalized intersection within the
neighborhood area. Hennepin County staff performed traffic and pedestrian counts
and a signal warrant review at Excelsior Blvd and Jackson, Harrison and Van Buren
Avenue intersections. No warrant conditions were met at any of these intersections.
Hennepin County staff will be present at the Council Worksession to explain in
detail how these results impact the city's ability to add a new signalized intersection.
The County is against adding a crosswalk without the benefit of a signalized
intersection and the associated pedestrian-walk signal phase.
2. Commerce center/Blake Road options need to be flushed out and presented to the
Council.
Hennepin County staff have prepared two additional layouts (layout C3 and D)
which lessen the impact on the Commerce Center property. Both of the new layouts
include retaining the existing access Oust west of the bus pull-out area) which was
proposed to be closed on the earlier layout. Hennepin County staff will present and
2
explain the two new layouts. In addition, there will be shaded plans which clearly
show the Commerce Center vs. Blake School property takings. Hennepin County
staff has been working with MetroTransit regarding the bus stop near the Commerce
Center and will also report on this item.
3. A full explanation of the cost allocation under the county's formula for acquisition
and relocation.
. The first few pages of the County cost participation policy is attached to this memo.
Included in this portion of the policy is the section describing the county's
participation in right of way costs (page 3).
4. Options and justifications for raised medians versus double left-turn lanes along the
entire corridor.
The County Road 3 Corridor Study included considerable effort on analyzing
roadway alternatives. The primary roadway design alternatives were a four lane
road with a common. two-way left turn lane and a four lane road with a center
median and dedicated turn lanes. The Corridor Study Task Force analyzed these
two designs in each of the 4 corridor areas. The results were that if access could
be reasonably supplied to properties within areas 1 and 3, it was agreed that the
preferred alternative for the entire corridor should be the four lane, median divided
section. This section provides design consistency along the corridor which was an
important objective of the roadway improvements (see last paragraph of page 37
and page 38 of Corridor Study). It should be pointed out that the various roadway
options were evaluated based on 11 criteria (page 27-28 of corridor study). The top
two in order of importance were: 1.) Safety imoacts (the degree to which points of
conflict are reduced and pedestrian movements are enhanced) and 2.) Traffic
imoacts (the degree to which traffic needs are satisfied). This section of roadway
has a very high relative accident occurrence frequency. The raised center median
with. turn lanes and controlled access points is one of the best ways to improve
safety through this section of the corridor. This is especially true in areas where
there are many closely spaced driveway access points such as on the north side of
Excelsior Boulevard between Jackson Ave and Harrison Avenue. There are seven
commercial property entries within this 650' stretch of Excelsior Blvd. There is a
clear choice here between improved safety (separating the opposing traffic and
eliminating the many uncontrolled access points) and maintaining full access to all
commercial property on the north side. The City Attorney states that Hennepin
County is within their rights to reduce existing full access to right-in/right-out only in
order to improve safety and traffic flow on a County highway.
5. Provide the City Council' with a copy of the full original corridor study.
. A copy of the corridor study was included in the August 20 Council packet.
3
Additional items
1. City representation during negotiations with owners of property
. The city could participate in negotiations along with the County. However, if no
agreement is reached on a purchase price then condemnation action would ensue
and court appointed commissioners would rule on what is fair compensation.
2. More detailed information on appraisals and expected acquisition costs
This information is included on page two of this memo. Hennepin County Real
Estate Division staff has requested that city staff not disclose individual property
appraisal amounts. This could be done during a closed session, however.
3. A city not to exceed cap on purchase of East End Bottle House property
. The city could establish a cap on how much it's willing to spend to purchase this
property. However, the purchase amount would have to be successfully negotiated
with the owners. If condemnation was used the city would be obligated to pay the
commissioners' award amount regardless of a city not-to-exceed cap.
MEMO ATTACHMENTS
Attachment
Paoe/s
August 4 City Mgr Memo..................... .5,6
Landscaping concept sketches............ ..7-12
Project Plan showing alley closures... ... ... 13
Henn County Cost Participation Policy... .14-19
Traffic Signal Warrant Review............ ...20,21
Traffic Signal Warrant Description &
Ranking System.............................. ...22-24
4
I Office of the City Manager I
Memorandum
To:
Copy:
From:
Date:
Subject:
Steve Stadler, Public Works Director
Honorable Mayor and Members of the City Council
City Attorney's Office
Terry Obermaier
Steven C. Mielke, City Manager.)
August 4, 1999
Notes From the Phase II Excelsior Boulevard Discussion
Of August 3, 1999 Council Meeting
In an effort to recap and assure that the issues raised at the August 3 meeting are
addressed, I offer the following notes from the meeting. If this looks inaccurate or does
not cover all of the issues, please contact me.
/~t is necessary to schedule a neighborhood meeting when answers to the
following issues can be provided.
~Drawings or plans that depict the conditions with and without a full taking of
the East End Bottle Shop property.
b) Cost breakdown and revenue sources to pay for the additional cost of
acquiring the East End Bottle Shop.
c) Crosswalk and signalization options and costs.
2. Commerce center/Blake Road options need to be flushed out and presented to
the Council. Included in those options should be the following issues:
a) Takings or easements should be depicted on plans showing property taken or
utilized on both the north and south sides of Excelsior Boulevard.
b) Greater detail on the reasons and justifications for the proposed plan.
c) Access points to the commerce center should be depicted with details
outlining ingress and egress options from the commercial area.
d) Council clearly wishes to reopen the proposed closed access point.
e) Information regarding the bus stop with options for relocation.
S'
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3. A full explanation of the cost allocation under the county's formula for acquisition
and relocation.
4. Options and justifications for raised medians versus double left-turn lanes along
the entire corridor.
a) Report from the City Attorney on the legal implications of median placement
and its impacts on businesses that currently have full access, which would
now have restricted access.
~rovide the City Council with a copy of the full original corridor study,
stadlerphaseiiexcelsior
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HENNEPIN COUNTY
BUREAU OF PUBLIC SERVICE
DEPARTMENT OF PUBLIC WORKS
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POLICIES FOR COST PARTICIPATION
BETWEEN HENNEPIN COUNTY AND OTHER AGENCIES
FOR COOPERATIVE HIGHWAY PROJECTS
NOVEMBER 9. 1993
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INTRODUCTION
The attached policies for cost participation will be used by
Hennepin County to determine appropriate funding levels for
cooperative highway projects with the Minnesota Department of
Transportation, municipalities and other agencies.
The prior cost policies were established by Hennepin County in
1978 and are being changed primarily as a result of the fact that
County Property Tax funds are becoming increasingly limited and,
in many cases, are not available to be used on a project.
Therefore, County participation must be limited as much as
possible to those items that are eligible for State Aid funding.
A change has been made in the area of traffic signal
participation. As traffic volumes increase, the County is being
faced with an expanding number of intersections where traffic ~
signals are warranted in accordance with the Manual on Uniform
Traffic Control Devices. Installing and maintaining all traffic
signals which meet warrants places a strain on both the Capital
Budget and the Operating Budget. The County must, therefore, be
more selective in terms of which traffic signals are installed and
the extent of County participation.
A change has also been made to address the use of Tax Increment
Financing on County projects by municipalities. One reason that
County Property Tax funds are limited is that the tax base is not
expanding due to use of Tax Increment Financing. Since the use of
the Tax Increment Financing does have a negative impact on County
Property Tax funds, the established policy is intended to
discourage the use of Tax Increment Financing for the municipal
share of a project and, where used, to require a higher municipal
cost share.
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TABLE OF CONTENTS
PURPOSE .
SCOPE .
GENERAL POLICIES
DEFINITIONS . . .
Page 1
. Page 1
. Page 1
Page 2
. . . .
Page 3
Page 3
Page 3
Page 3
Page .4
ROADWAYS . . . .
RIGHT OF WAY
GRADING . . .
SURFACING . .
STORM SEWER . . . . . . . . . . . . . .
CONCRETE SIDEWALK CONCURRENT WITH COUNTY
CONSTRUCTION PROJECT . . . . . . . . . .
CONCRETE CURB AND GUTTER (NEW OR RECONSTRUCTED)
CONCURRENT WITH COUNTY CONSTRUCTION PROJECT
CONCRETE CURB AND GUTTER AND SIDEWALK FOR MEDIANS
(NEW OR RECONSTRUCTED) CONCURRENT WITH
COUNTY CONSTRUCTION PROJECT . . . . . . . .
CONCRETE DRIVEWAY ENTRANCES (NEW OR RECONSTRUCTED)
CONCURRENT WITH COUNTY CONSTRUCTION PROJECT . . Page 4
MUNICIPAL UTILITY RELOCATION OR RECONSTRUCTION. . . .Page 4
PRIVATE UTILITY RELOCATION OR RECONSTRUCTION. . . . .Page 5
TRAFFIC SIGNAL SYSTEMS . . . . . . . . . . . . . . . . . . Page 5
PERMANENT TRAFFIC SIGNAL SYSTEM INSTALLATIONS . . . . Page 5
RECONSTRUCTION OF EXISTING TRAFFIC SIGNAL SYSTEMS . . Page 6
TEMPORARY TRAFFIC SIGNAL INSTALLATIONS . . . . . . . Page 6
FURNISHING OF ELECTRICAL POWER. .page 6
MAINTENANCE FOR TRAFFIC SIGNALS. .Page 7
EMERGENCY PREEMPTION EQUIPMENT. .Page 7
COUNTY FURNISHED EQUIPMENT. . . .Page 7
INTEGRAL STREET LIGHTING. . . . .Page 7
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Page 4
Page 4 r<
Page 4
BRIDGES . . . . . Page 7
STREET LIGHTING Page 7
BIKEWAYS Page 7
LANDSCAPING Page 7
ENGINEERING . Page 8
LUMP SUM, PRO-RATA ITEMS Page 8
INVOICE AMOUNT COMPUTATION. . . . . . . . . . . . . . . . .Page 8
UTILIZATION OF TAX INCREMENT FINANCING
Page 8
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HENNEPIN COUNTY
BUREAU OF PUBLIC SERVICE
DEPARTMENT OF PUBLIC WORKS
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POLICIES FOR COST PARTICIPATION
BETWEEN HENNEPIN COUNTY AND OTHER AGENCIES
FOR COOPERATIVE HIGHWAY PROJECTS
I. PURPOSE
To establish policies for determining appropriate division of cost
participation to be used by Hennepin County in funding cooperative roadway,
traffic signal and bridge construction projects with the Minnesota Department of
Transportation, municipalities and other agencies.
II. SCOPE
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The establishment of cost policy is consistent with Minnesota Statutes,
Sections 162.17, 373.01, 471.59 and Amendments.
III. GENERAL POLICIES
A. The basic premise is that the County pays for costs peculiar to County
needs and municipalities pay for costs peculiar to municipal or local
needs.
B. The County may limit its participation to items eligible for reimbursement
with County State Aid Highway (CSAH) funds, notwithstanding the specific
policies contained in this document. However, the County will not request
CSAH funds for project costs assigned to the municipality as a result of
the approved cooperative construction agreement, in order not to preclude
the municipality from using its Municipal State Aid funds for those project
costs.
c. A greater degree of County participation is afforded municipalities having
a population of less than 5,000 because of the function of the County
roadways in these areas. It is generally true that these roadways are of
greater benefit to County-wide users and of less benefit to local users
than is the case for roadways in more urbanized areas. In addition, this
would be a form of compensation for the absence of direct State Aid
allocations to these municipalities; notWithstanding the present County
program of Aid to Municipalities under 5,000 population.
D. It is recognized that there may be occasional differences between these
policies and written participation policies of the Minnesota Department of
Transportation. In those cases, participation will be negotiated by the' .
County Engineer.
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, " III. GENERAL POLICIES - cont; nued ,,~~4QE;I'~m
E. When federal aid highway fu,- .. ~re utilized on a County highway 'project, .,..~<?'t.)(~
. these cost ~a~ti~ipation pO'1 .des will be appl ied to the non-federal share ~"-:'~~.tr;:
of any speclflc ltem of work. In the event federal or state grant funds ,:
are made available tc ~ nroject on a lump sum basis, the County will
determi ne the items f 'Ih i ch those funds wi 11 be ut il i zed.
IV. DEFINITIONS
Accident Severity Fa(~or: One element of the County's Traffic Signal
Rankins System. Thi_ factor is used to measure the relative severity of
accidents by differentiating between property damage and personal injury
accidents in terms of cost.
Bikewav: A bicycle r _:e, bicycle path, or bicycle lane.
1. Bicycle Route. A roadway or shoulder signed to encourage bicycle
use.
2. Bicycle Path. A bicycle facility designed for exclusive or preferential
use by persons using bicycles and constructed or developed separatelJ from
the roadway or shoulder.
3. Bicycle Lane. A portion of a roadway or shoulder designed for exclusive or
preferential use by persons using bicycles. Bicycle lanes are to be
distinguished from the portion of the roadway or shoulder used for motor
vehicle traffic by physical barrier, striping, marking, or other similar
device.
ContributinQ Flow: A storm sewer procedure that considers that each agency
participates in proportion to its share of the design discharge for each :~ction
of sewer between inflow points. This method is used by the Minnesota Office of
State Aid on all projects except where federal participation is anticipated.
County: Hennepin County.
Count v EnQineer: The County Engineer of Hennepin County or his design~ted
representative.
Municioalitv: Any 'municipality or township within Hennepin County.
Over 5.000: A municipality of 5,000 population or more.
Peak DischarQe: A storm sewer method that considers that each agency's share is
the ratio of its-peak discharge through each section of sewer between inflow
points to the summation of peak discharge for all agencies participating in the
sectiJn of sewer between inflow points.
Permanent Traffic SiQnal: A traffic control signal system normally consisting
of metal signal poles with mast arms and underground electrical systems with
conduit, cable and handhole installations.
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"':-</):VDEFINITIONS - continued '1 ~".~',':,,;,;,~ .;
,,:':-;}::;Y Priority Factor: A number which reflects the sum of the traffic volume fact~;',
,,/., the accident susceptibil ity factor, and the accident severity factor in the
County's Traffic Signal Ranking System.
Storm Sewer: A drainage system usually consisting of one or more pipes
connecting two or more drop inlets. The purpose is to convey surface runoff
water from the inlets to an acceptable outlet.
Street Liqhtinq: All components normally installed by a municipality for the
purpose of street illumination.
Standard Soecifications: Minnesota Department of Transportation Standard
Specifications for Highway Construction, latest edition and/or supplement
thereto.
State Aid Manual: Manual published by the Minnesoti Department of
Transportation outlining State Aid policies and procedures.
State Hiqhway: A highway under jurisdiction of the State of Minnesota.
Temoorary Traffic Siqnal: A traffic control signal system normally consisting
of wood poles with signal indications suspended on span wires and overhead
electrical systems. ~
Trunk Line: Main conveyor of storm sewer system.
Under 5.000: A municipality or township under 5,000 population.
Utilities: Water, heating, electric, storm ,sewer, gas, sanitary, telephone,
cable TV, telegraph, street lighting, fiber optics, etc.
V. ROADWAYS
The County's participation in roadway projects will be as follows:
A. RIGHT OF WAY
Under 5,000 100%
Over 5,000 50%
The County will not participate in right of way for parking lanes requested
by a municipality.
The County's percentage of participation in retaining walls constructed in
lieu of right of way will be the same as for right of way.
Right of way required for wetland mitigation and for surface water
retention basins will be at the same participation ratio as the remainder
of the project even if the locations of these facilities are not contiguous
to the project.
B.
GRADING
UnderlOver 5,000
100%
C.
SURFACING
UnderlOver 5,000
The County will
a municipality.
100%
not participate in surfacing of parking lanes requested by
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