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Memo- Hennepin Cty Public Works PropertyMemorandum To: Honorable Mayor and City Council Copy: Steve Mielke, City Manager From: kJim Kerrigan, Planning & Economic Development Director Date: July 25, 1997 Subject: Hennepin County Public Works Property JK07257A PURPOSE OF DISCUSSION II. OVERVIEW PLANNING & ECONOMIC DEVELOPMENT The purpose of this discussion is to review a revised plan that has been submitted by SuperValu for redevelopment of both the Hennepin County Public Works site and adjacent property. Based on the discussion, the Council needs to decide how they wish to deal with this proposal and whether staff should begin preparing a preliminary development agreement. At the May 13 work session, SuperValu provided an overview of the warehouse /office project they are interested in constructing on the Hennepin County Public Works property. SuperValu has stated that they need to complete this expansion in order to make their operation more efficient and meet increased market demands. Based on this discussion, the Council expressed an interest in working with SuperValu to facilitate their project, but only if there were assurances that such a project would ensure the future redevelopment of the 28 -acre SuperValu north annex property. The Council concluded their discussion by requesting that staff send a letter to SuperValu reiterating the need for the north annex property to be part of the "deal" (see attached letter). The revised plan that has now been submitted by SuperValu is in response to the Letter. III. PRIMARY ISSUES TO CONSIDER 1. SuperValu Site Plan The revised redevelopment plan that has been submitted to staff by SuperValu, involves, in the short -term, construction of a warehouse building on the Memo to Honorable Mayor and City Council, July 25, 1997 - Page 2 JK07257A. Hennepin County property and, in the Tong -term, vacation of their north annex operation with the moving of all their operations south of Excelsior Boulevard. The specifics of this project would involve the following: • Demolition of SuperValu's older building located just east of Washington Street, which presently is occupied by their truck maintenance facility. Within this area they would expand their existing freezer operation. In this area they would also construct some additional off - street parking. • Acquisition and removal of the industrial property located at the southwest corner of Excelsior Boulevard and Highway 169 (building truss property). Although SuperValu has not finalized how this property would be utilized, discussions have indicated they would probably construct additional warehousing space at a future date. • Construction of an approximately 700,000 square -foot warehouse and 30,000 to 60,000 square -foot office on the Hennepin County Public Works property. This building could be moved somewhat to the north with acquisition of the property in this area. • Construction of an approximately 90,000 square -foot addition to the perishable warehouse building on the former Country Club warehouse property. SuperValu would lease the property from the present owner. • Vacation of the following streets: • Sixth Avenue South from Fifth Street South, north to Third Street South • Third Street southwest from Washington to its connection with Sixth Avenue South • Washington Street west of the SuperValu dry goods warehouse operation • Construction of the following roadways: • Just west of Highway 169 south from Excelsior Boulevard to Second Avenue South • Extension of Milwaukee west of Highway 169 • SuperValu would agree to vacate the north annex property four years after completion of construction on the Hennepin County property. This property would then be placed on the market for sale, with the City having either an option or first right of refusal. Memo to Honorable Mayor and City Council, July 25, 1997 - Page 3 JK07257A • Construction to be phased, with the first building erected on the Hennepin County property. 2. Issues to Consider In reviewing the SuperValu proposal, the Council should consider the following issues: • The project as proposed, when fully constructed, would probably generate more property taxes than most of the other projects that were previously considered for this site as part of the RFP process. • If SuperValu cannot accommodate their future growth needs in Hopkins, they may be forced to look at relocating all or a portion of their operation out of Hopkins. If the Hopkins operation were closed, the result would be a loss of 1,230 jobs for the City, of which 133 are filled by Hopkins residents. • The Park Valley neighborhood appears to be supportive of SuperValu locating on this property. In the past, SuperValu has done a good job of buffering their development from residential properties and dealing with traffic issues and concerns. • SuperValu has stated that with the new addition they would be able to accommodate all truck traffic on -site. This would remove the long line of trucks that are usually on Milwaukee Street each day waiting to be loaded. • In a meeting with Hennepin County, they stated they would be willing to work with the City on an option agreement to try and facilitate the SuperValu project. The specific terms of the option agreement would need to be negotiated. • Availability of the 28 -acre north annex property would allow for a redevelopment project to take place at a future date in somewhat the same scale that has been envisioned previously by the Council for the County Public Works property. Tax increment or some other type of public assistance may be necessary to actually facilitate redevelopment on the north annex property. • The project would facilitate the removal of some older, blighted buildings. • The specifics of financing both the public and private improvements have not yet been addressed. SuperValu has stated it may be necessary to utilize tax increment to assist with project implementation. Memo to Honorable Mayor and City Council, July 25, 1997 - Page 4 • The specific size of the buiding within the different places of construction need to be more clearly defined. This would be done by Super Valu once a preliminary development agreement was approved. JK07257A 3. Traffic Issues Benshoof and Associates has reviewed the project from a traffic perspective. (Attached is a letter detailing their comments.) Although they see a number of issues that will need to be addressed, their feeling is that there is nothing that should prevent the project from moving forward to the next step if the Council so desires. 4. Future Actions If the Council is willing to try to facilitate the SuperValu project, the next steps would involve the following: • Prepare a preliminary development agreement detailing the basic parameters of the project. Such an agreement does not obligate the HRA to undertake the project, but does allow completion of certain actions in order to determine the appropriateness of entering a development agreement. Consideration of such a document could be on the August 5 HRA agenda. It is proposed this agreement would require SuperValu to complete the following: • Detail the scope of project (Le. building sizes, street improvements, landscaping, etc.) • Payment of $5,000 administrative fee, with agreement to provide reimbursement for City costs related to the project • Timetable for completing various improvements • Budget and source of funding for public and private improvements • Review the project with the Zoning and Planning Commission on a concept basis allowing for neighborhood input. • Undertake negotiations with owners of property adjacent to the County site concerning acquisition or leasing. Besides the above, City staff would undertake negotiations on an option agreement with Hennepin County. If the Council does not wish to proceed with the SuperValu proposal, the following options would be available for the redevelopment of the County Public Works property: Memo to Honorable Mayor and City Council, July 25, 1997 - Page 5 • Allow the County to sell the property through its bid process. They would probably undertake this process in late 1997 or early in 1998. Staff feels that, based on discussion with developers, there will be substantial interest in the site for construction of a 'high quality" development. Under this option, it is important that the City have the necessary land -use controls in place (i.e., business park zoning). • Work with a developer on a specific project which meets Council objectives for this property, besides the developers that responded to staff as part of the RFP process. Proposals for redevelopment of the County property have recently been submitted by Stan Koch and Sons Trucking, Inc. IV. CONCLUSION Based on the discussion staff has had with SuperValu, they seem very committed in moving forward with their proposed project. They have stated that they clearly need to undertake this construction in order for their Hopkins operation to meet customer demands. If they are unable to build the facility in Hopkins, it will be constructed on other property that they presently have under option. If the Council wishes to pursue the SuperValu proposal, there needs to be a decision at some time in the not too distant future so that negotiations can be completed with the County prior to when they would need to undertake a public marketing of the public works site. V. ATTACHMENTS JK07257A • SuperValu's revised site plan • Letter from SuperValu • Letter from Stan Koch • Letter to Gary Zimmerman dated 5/16/97 • Memo from Benshoof and Associates • Project timetable prepared by City staff May 16, 1997 City of gCopk,ins Office of the .Mayor 1010 First Street South Jfopkins, fk4.9V 55343 -7573 • phone: 612 -935 -8474 • 'Fax 612 -935 -1834 Mr. Gary Zimmerman SuperValu Stores Inc. 101 Jefferson Avenue South Hopkins, MN 55343 Re SuperValu Proposal, Hennepin County Public Works Property, City of Hopkins Dear Mr. Zimmerman: On May 13, 1997 the Hopkins City Council held a work session to review and discuss the SuperValu proposal to construct a warehouse /office facility on the current 42 acre Hennepin County public works property in Hopkins. I am writing to inform you that there was a strong consensus on the Council that the proposal in its current form is unacceptable. Following the presentation by the SuperValu staff, the Council reviewed the proposal and determined that a key to winning support from the Hopkins City Council rested on the redevelopment of the 28 acre north annex property. As a bit of background, the City's comprehensive plan proposes a business park for the 42 acre Hennepin County property. The business park zoning district, which is being considered by the City, would house primarily office showroom uses with a smaller percentage of warehousing uses. We found great developer interest in the Hennepin County property for this type of development. We have also found that the property could allow for a significant influx of employees and development investment beyond a warehousing project such as SuperValu is proposing. When SuperValu re- entered the picture by indicating its renewed interest in the Hennepin County property, the Council indicated a willingness to consider that proposal, predicated on an ability to place a business park on the 28 acre north annex property. SuperValu has now taken the position that the 28 acre parcel is needed for flexibility within the long term plans for SuperValu, and therefore, if the Council is to achieve its goal of building a business park in the community, it is left with only the Hennepin County property as its option. The Council has indicated a willingness to work with SuperValu on the Hennepin County property so that SuperValu can achieve its goals, but is looking for SuperValu to help the City to achieve its goal by making the 28 acre parcel available for redevelopment within a reasonable time period. .1n Employes May 16, 1997 Page 2 We understand the needs of SuperValu to be flexible and to keep its options open for its future growth, and that the 28 acre parcel represents that flexibility. If there is a possibility of redeveloping the 28 acres and meeting the needs of SuperValu at the same time, we would be to that suggestion. The Council has stated that they need to receive your response on whether SuperValu is willing to reconsider its proposal by no later than July 1, 1997. This time constraint is necessary in order to allow the Council time to look at other development options for the county property if we are unable to come to terms with SuperValu. I would enjoy meeting with you to discuss this issue further, and to look for mutually beneficial answers to the needs of both the city and SuperValu. Sincerely, C-0 Charles D. Redepenning Mayor Copy: Members of the City Council Steven C. Mielke, City Manager Jim Kerrigan, Economic Development Director Lloyd Johnson, SuperValu Debra Carlson, SuperValu Jerry Steiner, City Attorney John Vector, SuperValu Reuben Johnson, SuperValu Joe DeWitt, SuperValu ziimnermansupervalu r) I col i ...a r) § 9 w O 9 1 I ;10, in NORTHERN REGION 101 JEFFERSON AVENUE SOUTH HOPKINS, MN. 55343 a ca" " P„< 07 u 97 u.0 r . T OO' EP �- E!)�" MEU3� ARCHITECTURE t ENGINEERING 65„ R� ««lo DRWG x $OTQ ,00. mEx PRAxec �,. ���. lEP XO NE: (6 7T) 914-59 tT /S. 0 - FAX (61 T 9 -58 7EtEPNE: (9 -AX (6) 9.-5850 �,.t�Ra ,.. P PRELIMINARY �r NOT FOR CONSTRUCTION 41:4 Ion . Irons mar. aa, N CONCEPT SITE PLAN SUPERVALU REDEVELOPMENT PROJECT ACTIVITIES PRELIMINARY APPROVALS - Council work session, revised concept plan - SuperValu submits application for Z & P concept review - Council authorizes preparation of preliminary development agreement Z & P concept review PRELIMINARY DEVELOPMENT AGREEMENT - Council approval City undertake negotiations with County - Execution and SuperValu payment of initial $5,000 fee to cover City costs and agreement to reimburse for additional City costs as incurred - Application by City to MNDOT /county /railroad for access /crossing - SuperValu undertakes negotiation for purchase /lease agreement - Land use review, preparation of design standards - SuperValu meeting with neighborhood - SuperValu elevations prepared for Phase 1, refine timetable and minimum improvements for various construction phases. Prepare project budget detailing source of funds. DEVELOPMENT AGREEMENT - Council approval - City executes option agreement with Hennepin County- - SuperValu reimburses City for option payment - Execution and SuperValu payment of initial $5,000 fee to cover City costs and agreement to reimburse for additional City costs as incurred - SuperValu executes necessary purchase option /lease agreements - Approval by MNDOT /county /railroad of access /crossing - CUP, street vacation approval, comprehensive plan revision - Approval of building plan Phase I and project financing - Assign option agreement to SuperValu ESTIMATED COMPLETION DATES August 12, 1997 August 13, 1997 August 19, 1997 August 26, 1997 September 2, 1997 September 5, 1997 September 5, 1997 September 5, 1997 September 5, 1997 September 30, 1997 September 30, 1997 October 30, 1997 January 5, 1998 January 8, 1997 January 8, 1998 February 28, 1998 February 28, 1998 February 28, 1998 May 1998 June 1998 John Vegter Vice President Logistics S PERIALU Northern Region PO Box 1451 Minneapolis, MN 55440 612 932 4372 March 3, 1997 James D. Kerrigan City of Hopkins Planning & Economic Development Director 1010 First Street South Hopkins, MN 55343 Re: SUPERVALU Long Range Facility Planning Schedule Dear Jim, The following is a proposed schedule of events if SUPERVALU were successful in purchasing the Hennepin County Public Works property. These dates are tentative and subject to change, however, they are our best projections todate of how the project might come together. If you have any questions please call me at 932 -4372. Obtain control of site August, 1997 Begin site and facility design January, 1998 Bid construction work July, 1998 Begin construction October, 1998 Place North Annex Property on market for sale January, 1999 Complete construction June, 1999 Start-up DC operations in new facility July, 1999 Phase out North Annex operations August 4 October, 1999 North Annex vacated November, 1999 Sincerely, John Vegter cc: Deb Carlson Lloyd Johnson Mike Daly Joe DeWit STANI1a)Ch & SONS TRUCKING, INC. 5871 CEDAR LAKE ROAD • MINNEAPOLIS, MINNESOTA 55416 • (612) 593 -1300 US WATS 800 -445 -0079 MN WATS 800 - 228 -0176 June 26, 1997 Honorable Mayor Charles Redepenning RE/ COUNTY PROPERTY This letter will attempt to give you and the City Council a brief overlay of our proposal for the purchase of the 43 acres of land, known as the County Shop Property. As we have discussed previously, we would be willing to pay the price of $4,300,000.00 and we in turn, would give back to the city approximately 15 to 18 acres. Our other proposal that we would like for you to consider is that if we can have all of the 43 acres in order for us to bring more of our operation to Hopkins, we would do the following: #1. We would pay $4,300,000.00 for the property and we would use all 43 acres for our operation and bring with approximately 400 jobs. #2. We would in turn make a donation of $1,000,000.00 to the City of Hopkins to be used as the City Council sees fit with no strings attached other, than we would be able to use the pl-cimises for basically the same purpose as it is now being used. We would appreciate if you would advise me if this type of an offer would be of interest to the City. Needless to say, we are very interested in moving to the Hopkins area and would look forward to working with the City Council as well as being a good neighbor in your community. 4 Sinc r ly yours, Stan Koc Koch TRUCKING, INC. 5871 CEDAR LAKE ROAD • MINNEAPOLIS, MINNESOTA 55416 • (612) 593 -1300 CARRIER PROFILE CORPORATE OFFICERS: Dave Koch - President OPERATION & DISPATCH: Pat Pettey - E. V. P. SALES & MARKETING : TELEPHONE NUMBERS: CONTRACT RIGHTS: PRIMARY TRAFFIC LANES: TYPE OF TRAFFIC HANDLED: WAREHOUSE CAPABILITY: EQUIPMENT: John Tidquist - Vice President Jim O'Brien - Director National Accounts Corporate Office : Shop Fax Toll -Free (612) 593.-11300 (612) 623 -3220 (612) 593 -1314 (800) 445 -0079 To operate as a contract hauler to transport general commodities (except classes A & B explosives) between all points in the 48 contiguous United States and the District of Columbia. Central States, Southeast, Southwest and West United States. Truck Loads on a drop trailer or live load basis with stop -off. Capability to handle LTL orders. 150,000 square feet of storage space available for general commodities or food product. BANK REFERENCE: National City Bank - Minneapolis, MN Trailers: 1200 53' x 102" Air Ride Vans Tractors: 400 Company Drivers TRAILERS SPO'i"i ON DEMAND EQUIPMENT POOLS AT MINNEAPOLIS. MN.. CHICAGO IL, AND LOS ANGELES, CA., ARDMORE, OK., MCALLEN, TX., EL PASO, TX., STAUNTON, VA., AND FINDLAY, OH. STANIL &SONS TRUCKING, INC. 5871 CEDAR LAKE ROAD • MINNEAPOLIS, MINNESOTA 55416 • (612) 593 -1300 US WATS 800 -445 -0079 MN WATS 800-228-0176 STAN KOCH & SONS TEZTJ G , (K- S- `=' - - ) The company started in the mid 1950's as a manufactures representative of chain, cable, rope, twine and other related products. Stan Koch started and managed this business and included his son's into the business as the company expanded nationwide. The company entered into the transportation industry in the mid 1970's as a common carrier. The main purpose at that time was to handle their own product outbound from Cosmos, MN and return with exempt commodities. In 1980 the Koch family saw an opportunity after deregulation of trucking to expand the truck operation. Since that time, the company has continued to grow and remains committed to service and reliability to our customers. We have the latest technology for E.D.I. for our customers. We are a financially strong company for continuing growth. Our equipment has satellite tracking. All of our drivers are company drivers. Our fleet age is about two (2) years old. All of our trailers are 53' air ride. We try to maintain one of the newest and cleanest fleets nationwide. Our success and growth has been developed from great customer support. We thank our customers for their help and continued support as we look to the future. STAN IS 1 ch & SONS TRUCKING, INC. 5871 CEDAR LAKE ROAD • MINNEAPOLIS, MINNESOTA 55416 • (612) 593 -1300 US WATS 800 -445 -0079 MN WATS 800 - 228 -0176 HISTORY STAN KOCH & SONS TRUCKING, (K - S -T-S- ) The company started in the mid 1950's as a manufactures representative of chain, cable, rope, twine and other related products. Stan Koch started and managed this business and included his son's into the business as the company expanded nationwide. The company entered into the transportation industry in the mid 1970's as a common carrier. The main purpose at that time was to handle their own product outbound from Cosmos, MN and return with exempt commodities. In 1980 the Koch family saw an opportunity after deregulation of trucking to expand the truck operation. Since that time, the company has continued to grow and remains committed to service and reliability to our customers. We have the latest technology for E.D.I. for our customers. We are afinancially strong company for continuing growth. Our equipment has satellite tracking. All of our drivers are company drivers. Our f fleet age is about two (2) years old. All of our trailers are 53' air ride. We try to maintain one of the newest and cleanest, fleets nationwide. Our success and growth has been developed from great customer support. We thank our customers for their help and continued support as we look to the future. a"-- • 0 11- O O 1 =01 ki) z W 0 0 0 0 z 0 a a Pim INC �f1 • Flom Pim C T 0, 0 CY N m A 0 m CO) n � 4 X A z a ;3 A alviv7 A lg Z ‘171 GO ; • imm Z D Z 61 1.0 0 V � � Q Q Q eso � W Q . ‘m) I: O is ;A Ism C O Z 40 I• N V N pia F W tin W 'O O IC r-- . - o F- N N.-. 0 0 N 00 O w w . 0 Q ,U et z W cn 2 cn • • • 0 O f 0 1- _ ' ' 1- p N • O co z a J lq? BENSHOOF & ASSOCIATES INC. TRANSPORTATION ENGINEERS AND PLANNERS 7301 OHMS LANE, SUITE 500 / EDINA, MN 55439 / (612) 832 -9858 / FAX (612) 832 -9564 August 8, 1997 MEMORANDUM PURPOSE INITIAL REVIEW DR TO: Deborah Carlson, Supervalu, Inc. Jim Kerrigan, City of opkins FROM: James A. Benshoo and Peter A. Hultgren P4 REFER TO FILE: 97 -61 RE: Review of Traffic Feasibility for Preliminary Supervalu Development Plan Supervalu, Inc. is planning to construct new office and warehouse facilities in Hopkins. The proposed new facilities would be located west of Highway 169 and south of Excelsior Boulevard (County Road 3). Supervalu intends to eliminate operations at its current north annex site, located east of Highway 169 and north of Excelsior Boulevard, within four years after occupancy of these new facilities. The present facilities east of Highway 169 and south of Excelsior Boulevard will remain in place. City of Hopkins staff requested that we conduct a comprehensive overview of the preliminary development plan to determine whether it is feasible from a traffic standpoint and to identify all pertinent traffic issues. This memorandum provides our overview comments and identifies those traffic issues that need to be analyzed further in order to develop effective solutions. Our initial review of the development plan identified four topics which we determined were important to address: a. Impacts on surrounding residential neighborhoods. b. Impacts on street intersections. c. Impacts on transit and trails. d. Accessibility for Supervalu. Ms. Carlson and Mr. Kerrigan Our review focuses on these four topics and identifies the basic traffic implications for each. In the conclusions portion of this memorandum we identify traffic issues that need further investigation during the next step in planning for this development. IMPACTS ON SURROUNDING RESIDENTIAL NEIGHBORHOODS There are three residential neighborhoods which could potentially be affected by the current Supervalu development plans. These three neighborhoods are the Park Valley neighborhood located south of 5th Street and west of Highway 169, the Harley Hopkins neighborhood located east of Monroe Avenue and south of Excelsior Boulevard, and the Edina neighborhood located south of 3rd Street and east of Highway 169. Comments on the impacts for each neighborhood follow. Park Valley Neighborhood -2- August 8, 1997 This neighborhood is situated immediately south of the Supervalu site. The current Supervalu site plan would improve neighborhood access to /from the north by way of the proposed road that fronts the west side of Highway 169 between the east end of 5th Street and Excelsior Boulevard. The awkward "T "- intersection of 5th Avenue/Railroad Boulevard /3rd Street would be eliminated. The current plan would eliminate the existing truck route through 5th and 6th Avenues to Excelsior Boulevard. This would impact truck trips to or from the Cornerstone Business Park. Another issue is that a "dead end" situation would be created for trucks at the existing intersection of 5th Street S. and 6th Avenue S. Trucks approaching this intersection from the west on 5th Street would be unable to proceed in any direction because 6th Avenue to the north would be closed and trucks are prohibited from using 5th Street to the east. Two alternatives for resolving this issue are: a) require all trucks to and from the Cornerstone Business Park to use 1 lth Avenue or b) allow trucks to use 5th Street east to the new west frontage road and 2nd Avenue. Supervalu truck traffic would be limited to 1 lth Avenue, 5th Avenue, and the west frontage road. There would be no Supervalu truck traffic on any neighborhood streets, including 5th Street. Traffic volumes likely would increase on 5th Street S., particularly east of 6th Avenue S. Two reasons for this expected increase are: a) Some trips between the Highway 169/Excelsior Boulevard interchange and the Westbrook area will use 5th Street S. and the new west frontage road because 6th Avenue will be closed south of Excelsior Boulevard and because this route will seem more attractive to some motorists than using 1 lth Avenue. Ms. Carlson and Mr. Kerrigan b) The plan shows that 5th Street S. would be a straight westerly extension of the new west frontage road. Under the current concept, 2nd Avenue S. would "T" into the 5th Street S./West Frontage Road route. One option to reduce the traffic increases due to the second above factor would be to realign the intersection of 5th Street S., West Frontage Road, and 2nd Avenue S. so that the West Frontage Road is continuous with 2nd Avenue S. Harley Hopkins Neighborhood This neighborhood is located immediately east of the existing Supervalu south annex. We foresee no increase in Supervalu truck and employee traffic through the neighborhood resulting from the current Supervalu plan. Potential exists for some increase in Milwaukee Street traffic through the Monroe Avenue intersection. This increase would result from Park Valley and Supervalu employee traffic using Milwaukee Street and the west frontage road to bypass the two traffic signals on Excelsior Boulevard at the Highway 169 east and west ramp intersections. Edina Neighborhood IMPACTS ON STREET INTERSECTIONS 1 lth Avenue and Excelsior Boulevard -3- August 8, 1997 This neighborhood is located immediately south of the present Supervalu south annex. The Supervalu plan would improve neighborhood access to /from the north via 3rd Street under Highway 169 and the new south leg of the west ramp intersection. This is a shorter, more direct route than the current 5th Avenue access to Excelsior Boulevard. The Supervalu plan would confine truck and employee traffic to Milwaukee Street and the area west of Highway 169. Supervalu truck traffic would be diverted from the current Washington Avenue /3rd Street intersection area to Milwaukee Street and its westward extension. Neighborhood residents would benefit from this diversion when traveling to /from the west on 3rd Street. We foresee no increase in through traffic in this neighborhood as a consequence of the current Supervalu plan. There are six intersections along Excelsior Boulevard which could potentially be affected by the current Supervalu development plans. Comments on the impacts for each intersection follow. The plan could cause some increase in traffic at this intersection due to the elimination of the 5th Avenue /6th Avenue connection to Excelsior Boulevard for the Cornerstone Business Park and the Westbrook neighborhood located along 11th Avenue south of 6th Street. However, there could be a reduction in traffic as a portion of existing traffic Ms. Carlson and Mr. Kerrigan Highway 169 West Ramp and Excelsior Boulevard between 1 l th Avenue and Excelsior Boulevard to /from the east would be diverted to the west ramp intersection via 5th Street. Further study is needed to determine the net effect of these two diversions on intersection volumes and performance. 5th Avenue and Excelsior Boulevard -4- August 8, 1997 The plan would divert existing traffic to /from the south either to the west ramp intersection or the 11th Avenue intersection. New Supervalu traffic to /from the south, especially truck traffic to /from the Supervalu loading docks, would be added to this intersection. Further study is needed to determine the specific effects. There would be significant increases in traffic and changes in traffic patterns resulting from the construction of the south leg of this intersection. Traffic to /from the south would be added as a result of Supervalu traffic generation and the diversion of neighborhood trips and other traffic. There are constraints placed on the geometry of this intersection in the current plan. Two points of concern pertain to the westbound left turn lane and stacking distance south of the intersection. For the westbound left turn lane on Excelsior Boulevard, about 290 feet are available between the current westbound stop line at this intersection and the bridge pier on the west edge of the Highway 169 overpass. Subtracting out a typical left turn lane taper of 120 feet leaves only 170 feet for deceleration and stacking. This distance is quite short. Currently, there is about 170 feet of separation between the south pavement edge of Excelsior Boulevard and the pair of railroad tracks paralleling Excelsior Boulevard. The proposed separation between these tracks and the north pavement edge of the Milwaukee Street extension would be about 70 feet. Three vehicle stacking issues pertain to these separation distances: a) For northbound traffic between Excelsior Boulevard and the railroad tracks, sufficient stacking distance must be provided so that vehicles in the end of queues do not extend onto the railroad tracks while waiting at the west ramp signal. b) For southbound traffic between Excelsior Boulevard and the railroad tracks, sufficient stacking distance must be provided so that vehicles in the end of queues do not block Excelsior Boulevard while waiting for a crossing train. c) For southbound traffic between the railroad tracks and Milwaukee Street, sufficient stacking distance must be provided so that vehicles in the end of queues do not extend onto the railroad tracks while waiting to enter the Milwaukee Street intersection. Ms. Carlson and Mr. Kerrigan 5 August 8, 1997 Milwaukee Street and Excelsior Boulevard Whether sufficient stacking space would be available for the three queues needs to be determined. To resolve these issues, traffic forecasts will need to be determined to account for the diversion of 5th Avenue traffic and Supervalu trip generation. Highway 169 East Ramp and Excelsior Boulevard We do not foresee that the proposed Supervalu plan would have any major impact on this intersection. Currently, this intersection provides access only between Milwaukee Street and Excelsior Boulevard to /from the east. This situation hinders access for the Supervalu development and forces more traffic to use the west ramp intersection on Excelsior Boulevard. Traffic volumes on Milwaukee Street likely would increase because some motorists traveling to and from the east on Excelsior Boulevard would use this route in order to avoid the traffic signals at the west and east ramp intersections on Excelsior Boulevard. This traffic increase applies to both Supervalu trips to /from the area west of Highway 169 and other trips to /from the south which use 5th Street and the west frontage road. This increase could cause capacity or safety difficulties at the intersection of Excelsior Boulevard and Milwaukee Street. Currently, some westbound Excelsior Boulevard traffic uses Milwaukee Street to bypass railroad gates in the down position when a train crosses Excelsior Boulevard. Westbound traffic bypassing the gates will at times use the eastbound lanes on Excelsior Boulevard to turn left to Milwaukee Street, creating an unsafe condition. This difficult situation would continue under the current development plans. St. Louis Street and Excelsior Boulevard The current plan would not alter the existing intersection. Limitations due to the current partial access will become more serious when redevelopment plans are prepared for the north annex site. IMPACT ON TRANSIT AND TRAILS The County trail system and Metro Transit have plans for the depot site located east of Highway 169 and south of Excelsior Boulevard. The County would like to establish the depot as a trail head for trails to the south and west. Metro Transit would like to establish a bus transit hub at the depot site. Both uses require improved parking and public facilities, and could operate in tandem with each other. Metro Transit plans to provide parking east and west of the depot. Parking would extend westward under Highway 169. Ms. Carlson and Mr. Kerrigan Metro Transit would desire to have full access for this parking lot and bus operations at the west ramp intersection on Excelsior Boulevard, but such access probably is not feasible due to the high volumes expected to use the West Frontage Road and the close spacing with the railroad tracks. A trail crossing of the west frontage road would need to be established at an intersection crosswalk location either on the south leg of the west ramp intersection or on the north leg of the west frontage road/Milwaukee Street extension intersection. ACCESSIBILITY FOR SUPERVALU -6- August 8, 1997 The Supervalu plan would provide a high degree of mobility between Supervalu facilities on either side of Highway 169. Effective access opportunities are provided for trucks and employees. Truck traffic For Supervalu operations west of Highway 169, truck traffic would be concentrated at the 5th Avenue/Excelsior Boulevard intersection. For Supervalu operations east of Highway 169, truck traffic would be concentrated at the west ramp intersection and the Milwaukee Street intersection. Truck traffic between Supervalu buildings within the development would be confined to the internal roads on the site and on Milwaukee Street and its extension under Highway 169, thus keeping such internal truck movements off Excelsior Boulevard and out of the surrounding neighborhoods. The Supervalu plan would provide a large truck trailer parking area near the loading docks. This area would be accessible directly from 5th Avenue and the Milwaukee Street extension. Sufficient area would be provided so that all Supervalu truck staging operations would occur on -site, thus avoiding any truck staging operations on Milwaukee Street or any other public street. Employee traffic Employee traffic would be concentrated at the west ramp intersection, the Milwaukee Street intersection, along the west frontage road to the employee lot, and along Milwaukee Street. We expect that employee traffic will not affect neighborhoods. CONCLUSIONS The current Supervalu plan is compatible with the improvement plans for Excelsior Boulevard that have been approved for initial construction. Supervalu's plan retains flexibility for future improvements on Excelsior Boulevard, including the ability to Ms. Carlson and Mr. Kerrigan -7- August 8, 1997 construct a four leg Jackson Avenue/Excelsior Boulevard intersection and possibly to connect Milwaukee Street with this intersection. Based on this initial comprehensive traffic review of Supervalu's plans, we conclude that the proposed concept is promising and merits further consideration. We have identified the following issues that require further examination: • The west frontage road intersections with Excelsior Boulevard and Milwaukee Street. — Provision of a westbound left turn lane at the west ramp intersection. — The overall level of service at the west ramp intersection. - The adequacy of stacking space for southbound and northbound traffic between Excelsior Boulevard and Milwaukee Street. - The type of traffic control and the resulting level of service at the west frontage road and Milwaukee Street intersection. - The feasibility to accommodate transit access on the west frontage road south of Excelsior Boulevard. • The Milwaukee Street and Excelsior Boulevard intersection. - The increased difficulties in the current plan due to increased left turns from the east on Excelsior Boulevard to Milwaukee Street and increased right turns from Milwaukee Street to the east on Excelsior Boulevard. — The increased needs for full access between Milwaukee Street and Excelsior Boulevard. • Traffic effects on 5th Street and 2nd Avenue. — Needs to preserve adequate truck access for the Cornerstone Business Park, including the possibility of allowing truck traffic on 5th Street between 6th Avenue and the west frontage road, and on 2nd Avenue south of 5th Street. - The geometric layout of the west frontage road /2nd Avenue /5th Street intersection.