CITY OF WOODBURY, MINNESOTA

Office of City Administrator

Council Workshop Letter No. 04 -

August 17, 2004

The Honorable Mayor

And

Members of the City Council

City of Woodbury

Council Members:

BACKGROUND

In October 2002, Century Avenue (from Woodbine Avenue to Valley Creek Road) and Valley Creek Road (from Century Avenue to Woodlane Drive), formerly known as Trunk Highway 120, were transferred to Washington and Ramsey Counties for operations and maintenance purposes by the Minnesota Department of Transportation (MnDOT).

Because the majority of the roadway transfer is in Washington County, they have agreed to be the lead agency in planning for the reconstruction of Century Avenue, Valley Creek Road, and the I-494 / Valley Creek Road interchange. Washington County formed a Project Management Team (PMT) which is comprised of members from Washington and Ramsey Counties, the Cities of Woodbury and Maplewood, MnDOT and the Federal Highway Administration (FHWA) to act in a review and advisory role. Washington County retained the services of SRF Consulting Group, Inc. to assist with the development and evaluation of design alternatives and to perform the preliminary design for the reconstruction project(s). The PMT has been meeting on a regular basis to discuss alternatives and issues, review public and business comments, and to add guidance to the selection of alternatives. A Project Advisory Committee (PAC) was also formed which is comprised of numerous agencies and departments that have a stake in the alternatives selected.

PUBLIC INVOLVEMENT

From the inception of this project it was decided that public involvement would need to be a primary consideration. To that end the PMT has attempted to seek input and comments from the widest affected audience of residents and businesses. The extensive notification area within Woodbury extends from I-94 on the north to Lake Road on the south (west of I-494) and basically Woodlane/Weir Drive on the east. However the business community north of Valley Creek Road all the way to Bielenberg Drive and south of Valley Creek Road along both Woodlane and Wooddale Drives was included. This extensive mailing area included nearly 2000 total addresses in both Woodbury and Maplewood.

Numerous meetings have been held including two neighborhood meetings and three meetings with the business community:

First neighborhood meeting @ Woodbury City Hall May 29, 2003

First small group meeting with the business community meeting @ Ponds of Battle Creek Golf Course July 28, 2003

Second business community meeting @ Woodwind's Health Campus July 24, 2003

Second neighborhood meeting @ Lutheran Church of Peace Aug 5, 2003

Meeting with South Century Avenue residents Sept 8, 2003

Third business interchange meeting @ Woodwind's Health Campus July 1, 2004

The small group meetings were focused more towards the business community that will be predominantly affected by the

I-494 / Valley Creek Road interchange reconstruction.

ENVIRONMENTAL REVIEW

The original 1990 EA (Environmental Assessment) covered the Valley Creek Road interchange with I-494, as well as the Courtly Road and Tamarack Road interchanges. Since some of the information has changed since the original EA was approved it is necessary that an EA Re-evaluation be prepared and approved. The EA Re-evaluation proposes a six lane roadway across the Valley Creek Road bridge with a loop in the northwest quadrant to augment a typical diamond interchange. The I-494/Valley Creek Road interchange (EA) Re-evaluation and the Century Avenue and Valley Creek Road EA are being finalized for a September 2004 submittal that would begin the 30-day comment period. A public information meeting is tentatively set for October. Draft responses to the comments will then be prepared. By November the findings of fact are expected to have been prepared, and together with the final comments, be presented to the Washington County Board for consideration of a Negative Declaration.

The EA does make mention of the estimated costs for Century Avenue and Valley Creek Road projects. However more importantly, the EA mentions federal funding as one source of funding. The EA goes on to say "The remainder of the cost will be funded by Washington County, Ramsey County, Maplewood, and Woodbury State Aid and local funding.

CENTURY AVENUE and VALLEY CREEK ROAD RECONSTRUCTION

MnDOT and Washington County are proposing the reconstruction of the I-494 Valley Creek Road interchange in 2007-2008, including the portion of Valley Creek Road between Woodlane Drive and Weir Drive. This proposal calls for reconstruction of Valley Creek Road as a six lane roadway across the bridge with walkways on both sides, addition of a loop in the northwest quadrant, and relocation of the ramps. Because there are two existing bridges at two different elevations, Weir Drive will need to be relocated to accommodate the northwest ramp and loop construction, and the relocation of the east side ramps is required, it becomes difficult at best to keep the bridge or interchange open during construction. MnDOT has estimated it will take two years if construction needs to occur while keeping the bridge and/or interchange open. By closing the bridge and interchange, MnDOT estimates that the reconstruction can be accomplished in one year’s time, starting in March and ending in November.

The attached Exhibit A is a map showing the various projects that are collectively referred to as the Century Avenue and Valley Creek Road reconstruction. Also enclosed for reference is Exhibit B is the estimated cost summary for the various projects. This summary shows the most current City cost participation in the various projects. The interchange and Weir Drive project estimates are detailed and reflect the best estimate of the City’s participation, while those for Century Avenue and Valley Creek Road are preliminary at best AND DO NOT INCLUDE ROW COSTS.

PROPOSED SCHEDULE

The currently anticipated schedule for construction of each roadway segment is:

2005 Weir Drive north of Valley Creek Road

2006 Valley Creek Road Interchange including Valley Creek Road from Woodlane Dr. to just west of Weir Dr.

2007 / 2008 Century Avenue

2007 / 2008 Valley Creek Road from Century Ave. to Weir Dr.

SUMMARY of ISSUES

There are three major issues which staff seeks direction from the Council. Those issues are:

1. Appropriateness of the bridge and interchange closure during construction
2. Direction regarding the level of Valley Creek Road bridge aesthetics
3. Costs and Funding

1. Weir Drive
2. Interchange
3. Century Avenue and Valley Creek Road
4. ROW

A business community meeting was held at Woodwinds Hospital on July 1, 2004 to solicit input from the business community regarding possible construction staging alternatives for the reconstruction of the I-494 / Valley Creek Road Interchange. The three alternatives presented were:

In addition, a survey was mailed to the business community soliciting their input regarding the three alternatives. A total of 300 surveys were sent out with 25% having been returned. A tabulation of those returned shows a clear-cut 63% in favor of Alternative C. This alternative would completely close the interchange and bridge to allow the construction to be completed most expeditiously in one year with work beginning in March and lasting into November. Washington County Public Works favors this closure. A definitive decision remains to be made regarding whether the interchange and bridge are to remain open or be closed during construction.

Council direction is sought regarding the appropriateness of the bridge and interchange closure during construction.

The Valley Creek Road interchange is the major gateway to Woodbury from I-494 and therefore should receive special treatment and be aesthetically pleasing. Woodbury’s other two interchanges on I-494 are not aesthetically consistent. The Lake Road interchange utilizes colored concrete to differentiate it from other interchanges. However the effect is minimal. The Lake Road interchange also lacks sidewalk lighting.

For consistency it may be desirable to follow the aesthetics applied to the Tamarack Road interchange. Those aesthetics included utilizing two colors in bands across the bridge piers and bridge, the addition of bridge heads to each end of the bridge, application of an ornamental metal railing, and overhead lighting along the length of both sides of the bridge.

Due to the close proximity of the ramps to the east side of the Valley Creek Road bridge and sight line considerations, it has been determined that bridge heads are not possible on the east side of the bridge. Inclusion of bridgeheads on only the west end would create an unbalanced effect. No sidewalk lighting currently exists on the Valley Creek Road bridge, which also currently has a sidewalk on only the north side. The proposed bridge includes sidewalks on both sides of the bridge.

A design option would be to replicate the simulated cut stonework that is an integral and reoccurring part of the bridge abutments and pier bases of the Wakota bridge project. However this option is expected to add substantially to the cost and MnDOT would look to the City to pay for the cost difference.

Based upon providing some continuity to the bridges on I-494, staff would suggest that the color treatment and lighting applied to the Tamarack Interchange bridge be duplicated. The inclusion of lighting on both sides of the bridge, similar to that applied to the Tamarack Road bridge, is estimated to add $75,000 to the cost. MnDOT is expected to pay for the majority but not all of the aesthetic treatment of the bridge, if it is similar to the Tamarack road interchange, not including the lighting cost.

Staff suggests that aesthetics similar to the Tamarack Interchange bridge be utilized, excepting the bridge heads for which there is not adequate room available.

Washington County and MnDOT are actively pursuing the reconstruction of Weir Drive in 2005. The I-494 ramp relocation will require Weir Drive to be relocated and reconstructed to the west. Completing the Weir Drive reconstruction prior to the Valley Creek Road interchange reconstruction will greatly assist traffic by allowing Weir Drive to be used as a frontage road during construction of the interchange. Washington County will only be responsible for replacing the roadway in kind due to the ramp relocation.

The City will be responsible for right-of-way, the center median, any widening or addition of turn lanes, and storm sewer changes. Washington County is expected to be pay approximately 60% of the cost with the City paying for the remaining 40% of reconstructed Weir Drive, between Valley Creek Road and Afton Road. If the two lane section of Weir Drive north of Afton Road is not reconstructed, Weir Drive will need to be tapered from four lanes to the existing two lane roadway north of Afton Road. If funding were available, it would be desirable to reconstruct Weir Drive from Afton Road north to Tamarack Road to its full ultimate section.

If funding were available, it would be desirable to reconstruct Weir Drive the entire length from Valley Creek Road to the Tamarack Road interchange. This would negate the need to expend $300,000 for tapers north of Afton Road.

As can be deduced from the above table, an additional $1.32M with contingency would be needed to complete Weir Drive north of Afton Road. THIS DOES NOT INCLUDE ROW COSTS. The city currently has only $1.802M budgeted within the CIP for Weir Drive.

Staff would recommend trying to reconstruct Weir Drive all the way to the Tamarack Interchange if the Council is comfortable that the approximately $250,000 construction shortfall can be funded. Council also needs to realize that ROW COSTS ARE NOT INCLUDED currently for Weir Drive north of Afton Road.

Per the estimated cost summary, the City is being asked to pay $1.41M towards the cost of the interchange reconstruction.

This cost is substantially more than the $0.265M that has been budgeted within the CIP. The $0.5M cost of the I-494 auxiliary lanes is a capped amount per an MOU (Memo of Understanding) between the City and MnDOT and this amount is contained within the CIP, over and above the $0.265M. A major contributing difference between what the City is being asked to pay for with the interchange and our funding is $0.625 of ROW costs that become the City’s responsibility based upon the County’s cost participation policy.

Staff does not believe the City should be responsible for the entire interchange ROW cost and perhaps should not be responsible for any of the costs responsible for the interchange. Staff believes a compromise position might be that the City be responsible for the ROW that the City purchased many years ago with the Metropolitan Council’s help for the southeasterly ramp relocation. The estimated cost of this entire parcel is $250,000. About one half is thought necessary for the ramp relocation. The remainder could possibly be sold to the adjacent vacant property owner to allow for a larger development on his property.

Washington County and MnDOT have been attempting to finalize the costs and funding associated with the interchange and Weir Drive (north of Valley Creek Road) construction. This is necessitated by MnDOT’s need to begin design work in 2004 that will allow the timely acquisition of the ROW and easements to accommodate a 2006 project. Similarly, the Weir Drive design and funding need to be finalized to allow for the acquisition of ROW and easements to accommodate a construction project in 2005.

Due to the priority of this work, the costs and funding associated with the Century Avenue and Valley Creek Road (west of Weir Drive projects) projected for 2007 / 2008 construction have not been further refined. Therefore the construction estimates for these projects should be considered preliminary at this time. THESE ESTIMATES DO NOT CURRENTLY INCLUDE ROW AND EASEMENT COSTS !

No attempt has been made to date to estimate and allocate the ROW and easement costs that would be associated with these roadway projects. It is known that ROW, permanent and temporary easements, and drainage areas (for storm water ponding) will be required. The drainage areas required for Valley Creek Road will be in Woodbury. Similarly, it is likely that all drainage areas for Century Avenue may be in Maplewood, due to being located "downstream" from the project.

It is also likely that Woodbury would be asked to pay for a portion of the areas required for Century Avenue storm water ponding, even though they are physically located within Maplewood.

The Century Avenue design has attempted to minimize ROW impacts. This has included the use of eleven-foot driving lanes, elimination of right turn lanes, and the accommodation of a portion of the pathway length be located on existing city streets i.e. Willow Lane and Ridge Drive. However even with this minimization, it may be necessary that between one and four residential properties in Woodbury may need to be acquired. Because Century Avenue will be relocated closer to the residences this ROW acquisition may become a total taking of the property and residence that would include a payment for relocation expenses. Each of these total takings including relocation costs as estimated could cost between $250,000 and $285,000. These total takings alone would be a substantial project cost. Washington County believes that MnDOT turnback funds would cover the majority of this cost. However the extent is currently unknown.

Since pathways are being extended or added to both sides of the Valley Creek Road project at the City’s request, it appears appropriate that the City pay for these pathways. ROW, costs as stated above, have the potential of being a substantial portion of the City’s cost for Valley Creek Road.

Similarly, an off road pathway is proposed for Century Avenue from Lake Road north to Willow Lane, where one does not currently exist. From Willow Lane to Ridge Drive, due to space constraints, this pathway connection by necessity will need to be an on-street pathway. Therefore because of the benefit to Woodbury of having this pathway, it may be appropriate for the City to pay for the cost of this pathway. However similarly as with Valley creek Road, ROW costs as stated above, have the potential of being a substantial portion of the City’s cost for Century Avenue.

Based upon Washington County’s cost participation policy the City would be responsible for the ROW and easement costs associated with these projects. Based upon possible total takings of property, storm water ponding needs, and general ROW and easements along these roadways these ROW costs could be substantial !

Because of these unknown and potentially substantial ROW costs, staff does not believe that the Council should agree to pay for the ROW costs associated with Century Avenue and Valley Creek Road. The cost summary shows a collective cost of $6.251M construction cost WITHOUT ROW COSTS and only $5.391M budgeted within the CIP. Therefore staff believes the Council needs to inform the County that Woodbury is not proposing to pay for the ROW costs associated with Century Avenue or Valley Creek Road.

An alternative position, that the Council may wish to pursue, might be to limit the City’s cost participation for ROW via a cost cap, assuming the Council desires to fund any portion of the ROW cost.

RECOMMENDATION

Staff seeks Council concurrence on applying the Tamarack Interchange bridge aesthetics to the Valley Creek Road bridge. Council direction regarding the appropriateness of the Valley Creek bridge and interchange closure during reconstruction. Specific Council direction is sought regarding the appropriate level of funding by the City for the Century Avenue and Valley Creek Road reconstruction. Particular direction needs to be provided regarding the amount of cost participation for ROW that the Council deems appropriate.

Respectfully submitted,

Clinton Gridley

City Administrator

By: John Luckfield, Engineering Technician II

Through: David R. Jessup, Public Works Director

Attachments: Exhibit A –Map of Proposed Projects, Exhibit B –Estimated Cost Summary

File No. 7-2003-03