Memo- Draft Traffic PlaSuperValu Redevelopment ProjectMemorandum
To:
From:
Date:
Subject:
Purpose of Memo
The Honorable Mayor and City Council
Jim Kerrigan, Planning & Economic Development Director
January 5, 1998
Draft Traffic Plan-- SuiperValu Redevelopment Project
PLANNING &
ECONOMIC DEVELOPMENT
On the January 13 work session agenda, staff has scheduled a follow -up discussion of the
draft traffic report that was prepared by Benshoof & Associates. This will include an update on
the discussion that occurred at the January 8 Zoning & Planning meeting. Representatives
from Benshoof & Associates will be present at the meeting.
Overview
In conjunction with SuperValu's potential redevelopment of the Hennepin County Public Works
property, staff has contracted with Benshoof & Associates to analyze the traffic impacts and
provide recommendations how they might be addressed. A a draft traffic report has now been
prepared (this document was previously provided to the Council).
Prior to preparing the report, both SuperValu and Benshoof met with the East End and Park
Valley neighborhoods to secure their input. Based upon concerns expressed about the impact
of the project on Fifth Street, four different alternatives were reviewed by Benshoof &
Associates (they are detailed as Alternatives A -D on the enclosed summary report).
At a special Zoning & Planning meeting, staff recommended approval of the draft report as
prepared by Benshoof & Associates, subject to the following:
•
•
•
Improvement to the intersection of Milwaukee Avenue, Jackson Avenue, and Excelsior
Boulevard to be completed at a future date as determined necessary and appropriate
Reconstruction of Fifth Street from west of Seventh Avenue to Second Avenue to be done
in accordance with Alternative D
Extend current truck restrictions west on Fifth and Sixth Streets to 11th Avenue and north
on the new frontage road west of Highway 169 to Third Street, except for trucks serving
immediate existing businesses
This recommendation was adopted by the Commission with the additional condition that staff
return to the Z & P Commission with options to better ensure compliance with the speed limit
on the newly designed Fifth Street.
Primary Issues to Consider
• What are the specific staff recommendations?
• What is being recommended for Fifth Street?
Memo to The Honorable Mayor and City Council
January 5, 1998 - Page 2
Primary Issues to Consider
• What are the specific staff recommendations?
+ The first phase of roadway improvements would include the following:
Vacation of the following streets:
- Sixth Avenue and Railroad Boulevard between Fifth Street and Third Street
- Third Street between Railroad Boulevard and the new west frontage road
Construction of the following new streets:
- Milwaukee Street from Fifth Avenue to Washington Avenue
- West frontage road from Second Avenue to Milwaukee Street extension
Reconstruction of Fifth Street from west of Seventh Avenue to Second Avenue
• The second phase roadway improvements would include the reconstruction of
Milwaukee Street east of Washington Avenue, the extension of Jackson Avenue north of
Excelsior Boulevard and the consolidation of access to Excelsior Boulevard at Jackson
Avenue. Staff is recommending that these improvements be undertaken at a future date
as determined necessary and appropriate.
• What is being recommended for Fifth Avenue?
The majority of the discussion at the two neighborhood meetings concerned the impacts of
the project on Fifth Street and how they would be addressed. The analysis completed by
Benshoof & Associates determined that the proposed SuperValu project would not
substantially increase traffic volumes on Fifth Street. As a result, their recommendation in
the December draft report is to undertake certain improvements to the existing Fifth Street
that will adequately accommodate the project traffic volume and address concerns raised
by residents.
At the neighborhood meetings, however, some residents of Park Valley expressed
disagreement with this recommendation and suggested an alternative, which would involve
the following:
• Cul -de -sac the existing Fifth Street at Buffer Park so that it serves only the immediate
Park Valley neighborhood
• Construct a new Fifth Street directly north of existing Fifth Avenue to serve
through- traffic in this area
As detailed in the attached summary report, there are a number of concerns that have
been identified concerning the dual Fifth Street alternative (see Alternative C, Traffic
Analysis Summary).
As a compromise between what was identified in the December draft traffic report by
Benshoof & Associates and the dual Fifth Street alternative advocated by some of the Park
Valley residents, staff recommended a roadway improvement project, which is identified in
Memo to The Honorable Mayor and City Council
January 5, 1998 - Page 3
the Traffic Analysis Summary as Alternative D. This would involve rebuilding Fifth Avenue
approximately 25 feet north of its existing alignment. This would provide for a substantially
increased buffer between the adjacent residential properties and the roadway. SuperValu
proposes to undertake berming and fencing on the north of the roadway to provide
additional screening. The specifics of this screening and landscaping would need to be
done in accordance with the design standards which will be prepared for this project. They
would be reviewed and approved as part of the Conditional Use Permit process.
As part of its recommendation, staff has also proposed the following:
Conclusion
Attachments
• Improvement of Milwaukee Street at the intersection of Jackson Avenue and
Excelsior Boulevard, to be undertaken at a future date, as determined
necessary and appropriate. This work could be included either as part of the
Excelsior Boulevard improvement project or at the time the North Annex
property is redeveloped.
• Another item that is detailed in the recommendations concerns additional
traffic restrictions adjacent to the proposed SuperValu redevelopment
project. With the vacation of Third Street and Sixth Avenue, there will be a
problem in routing trucks to this area. Benshoof recommended two
alternatives (see page 49 of the draft traffic report). Staff is recommending
the alternative of extending truck restrictions west on Fifth Street and Sixth
Street to 11th Avenue and north from Second Avenue on the new frontage
road to Third Street.
Based on the discussion at the work session, the Council has to decide if there is any
additional information required to adequately address this matter. From a procedural
standpoint, the action staff would be looking at having the Council take in the near future is to
formally adopt the draft traffic plan. It is important that this action be completed as soon as
possible, so SuperValu has an agreed -upon future roadway system on which to finalize a site
plan budget and complete other necessary tasks to move this project forward.
• Traffic Analysis Summary
• Project schedule dated January 6, 1998
• Minutes of Zoning & Planning Commission meeting January 8, 1998
TRAFFIC ANALYSIS SUMMARY FOR THE SUPERVALU
REDEVELOPMENT PROJECT
Supervalu plans to build a new facility on the current Hennepin County Public Works site. Several
roadway changes, primarily west of Highway 169, will result from redevelopment.
RECOMMENDED FULL DEVELOPMENT ROADWAY SYSTEM
49 an.
VACATED STREETS
on RECONSTRUCTED STREETS
NEW STREETS
Features of the recommended full development roadway system:
— Vacated streets
— 6th Avenue and Railroad Boulevard between 5th Street and 3rd Street
— 3rd Street between Railroad Boulevard and the new west frontage road
— New streets
— Milwaukee Street from 5th Avenue to Washington Avenue
— West frontage road from 2nd Avenue to Milwaukee Street extension
— Reconstructed streets
— 5th Street from west of 7th Avenue to 2nd Avenue
— Milwaukee Street from Washington Avenue to Excelsior Boulevard
All roadway system changes west of Washington Avenue need to be completed in the initial
project phase (proposed for late 1998 or early 1999). The reconstruction of Milwaukee Street
east of Washington Avenue, the extension of Jackson Avenue north of Excelsior Boulevard,
and the consolidation of access to Excelsior Boulevard at Jackson Avenue are not part of the
initial phase and will be done at a later date.
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IMPORTANT ITEMS REGARDING 5TH STREET
Concerns Expressed By Residents Regarding Supervalu
Project Impacts on 5th Street
a) Increased traffic volume past houses and park.
b) High speed traffic past houses and park.
c) Lack of sidewalk on south side of 5th Street to connect neighborhood with Buffer
Park and with other areas of the City.
d) Street width too narrow for parking.
Vehicular Traffic Use on 5th Street With Completion of Supervalu
Development Project and Roadway Changes
Daily Volume By Year
Location on 5th Street Existing 2000 2020
West of 6th Avenue 5,600 4,250 4,700
East of 6th Avenue 3,450 4,950 5,450
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RECOMMENDED PLAN FOR 5TH STREET
After careful consideration of the four alternatives considered for 5th Street, City staff will recommend
Alternative D to the Planning and Zoning Commission and the City Council as the design concept for 5th
Street. Shown below is a plan view of 5th Street Alternative D at mid -block between 6th and 5th Avenues
in relation to existing 5th Street. PROPOSED NORTH
- - -- RIGHT -OF -WAY UNE
PROPOSED NORTH CURB
EXIS77NG NORTH — - -
RIGHT- -OFWAY LINE
EXISTING NORTH CURB
EX1S77NG SOUTH CURB
EX/S77NG AND PROPOSED
SOUTH RIGHT-OF-WAY LINE
MO
1914 It
29 It
14 ft
1 1
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Reasons For Recommending Alternative I) Improvements to 5th Street
1) It meets the concerns residents have raised regarding 5th Street
Concern of Residents How Alternative D Meets Concern
a) Increased traffic volume past houses and park.
b) High speed traffic past houses and park.
c) Lack of sidewalk along 5th Street
d) Street width too narrow for parking
A
ft.
30 ft.
28 tt.
$ 15 ft.
NEAREST HOME
PROPOSED SOUTH CURB
PROPOSED SIDEWALK
Future volume west of 6th Avenue wilt be lower
than existing volume.
Future volume east of 6th Avenue will increase
over existing volume, but will be lower
than existing volume west of 6th Avenue.
Traffic effects on homes will be mitigated by
25 foot increase in separation between
homes and south curb line.
With recommended shoulder stripes, travel lanes
are narrowed to better control traffic speeds
Sidewalk constructed on south side of 5th Street
Parking bay provides safe parking at Buffer Park
2) The street design meets applicable traffic engineering design standards and is consistent with
standard cnteria for this type of street.
3) It does not require as much nght -of -way as Alternauve C (dual 5th Street). yet offers residents
considerable buffer area south of 5th Street.
4) The cost for constructing Alternative D is less than the cost for constructing Alternative C.
5) With alternative D, the entire length of 5th Street would be eligible for Municipal State Aid
(MSA) funding for maintenance. The City would need to bear additional maintenance costs
associated with a second parallel 5th Street in Scenario C because the existing 5th Street segment
would strictly be a local road and would not be eligible for MSA funding.
6) Alternative D will allow Supen•alu to redevelop the Hennepin County Public Works site in a
manner consistent with current development goals.
5 of 8 12/29/97
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OTHER RECOMMENDATIONS
Future Truck Traffic on 5th Street
City staff recommend that the current truck prohibition on 5th Street be modified to
prevent trapping trucks in the Park Valley neighborhood. The modifications proposed
would extend current truck prohibitions west on 5th Street and 6th Street to 11th Avenue
and north on the new west frontage road to 3rd Street. Exceptions would need to be
granted for trucks serving the Westside Business Park and businesses along 2nd Avenue.
FUTURE ACTIONS
Consideration of the draft traffic plan and the staff recommendations for this project will
be on the agenda at the Planning and Zoning Commission meeting on January 8, 1998,
at 6:30 p.m.
The City Council will take action regarding the proposed traffic plan for this project based
on the review comments received from the above meeting. No date for this action has yet
been established.
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SUPERVALU REDEVELOPMENT PROJECT - January 6, 1998
ACTIVITIES EST. COMPLETION DATES
PRELIMINARY APPROVALS
- Council work session, revised concept plan Completed
- SuperValu submits application for Z & P concept review Completed
- Council authorizes preparation of preliminary development
agreement Completed
- Z & P concept review Completed
PRELIMINARY DEVELOPMENT AGREEMENT
- Council approval Completed
- City undertake negotiations with County In progress
- Execution and SuperValu payment of initial $5,000 fee to
cover City costs and agreement to reimburse for additional
City costs as incurred Completed
- Application by City to MNDOT /county /railroad for access /crossing Not required
- SuperValu undertakes negotiation for purchase /lease agreement In progress
- Land use review, preparation of design standards In progress
- SuperValu meeting with neighborhood In progress
- SuperValu elevations prepared for Phase I, refine timetable
and minimum improvements for various construction phases.
Prepare project budget detailing source of funds. In progress
DEVELOPMENT AGREEMENT
- Council approval February 28, 1998
- City executes option agreement with Hennepin County- -
SuperValu reimburses City for option payment February 28, 1998
- Execution and SuperValu payment of initial $5,000 fee to
cover City costs and agreement to reimburse for additional
City costs as incurred February 28, 1998
- SuperValu executes necessary purchase option /lease
agreements
- Approval by MNDOT /county /railroad of access /crossing Not required
- Submission of required information for land use approvals February 27, 1998
- Comp. plan revision - -Z & P 1 February 27, 1998
- CUP, street vacation approval - -Z &P March 31, 1998
- Approval of building plan Phase I and project financing May 1998
- Assign option agreement to SuperValu June 1998
JK010688