Chapter 7. TRANSPORTATION

CHAPTER CONTENT The Transportation Chapter is a continuing, Introduction 96 comprehensive plan for the future transportation Guiding Principles 97 system. The Chapter provides a blueprint to guide Existing Transportation Conditions 98 the ever-evolving process of setting goals, analyzing Existing Transit Service 109 deficiencies and identifying solutions. The future 2040 Non-Motorized Transportation Plan 112 transportation system will evolve as the City’s 2040 Transit Plan 117 priorities and conditions change, demographics shift 2040 Traffic Analysis 120 and new technologies develop. These changes will be 2040 Roadway Needs 123 reflected in future updates to the Plan. Freight 135 Aviation 136 Implementation 137 7 INTRODUCTION This chapter, which is a summary of a larger Transportation Plan that was prepared for the 2040 Comprehensive Plan, is designed to meet Metropolitan Council requirements while also providing direction and guidance on future transportation needs. The Transportation Plan provides more information on the methodologies used to determine future needs and provides guidance on emerging transportation trends, best practices and various issues. These topics include: »» Context sensitive solutions and guidelines »» Roadway corridor design principles »» Younger driver safety, including teen driving laws »» Safe/healthy aging • Aging motorists • Providing transportation alternatives »» Intelligent Transportation Systems (ITS) • Flashing Yellow Arrows (FYA)

TRANSPORTATION • Rectangular Rapid Flashing Beacons (RRFB) • High-Intensity Activated Crosswalk Beacon (HAWK) • Dynamic Speed Display Signs (DSDS) • Video vehicle detection systems • Dynamic Message Signs (DMS) • Red-Light Running (RLR) camera enforcement • Enforcement lights »» Emerging trends affecting transportation • Ascent of autonomous vehicles • Electric vehicles and charging stations • Drones or unmanned aerial vehicles • Advanced telecommunications • Resilience/sustainability »» Transportation demand management

96 Woodbury 2040 Comprehensive Plan August 2019 GUIDING PRINCIPLES 7 The City commits to the following guiding principles, which highlight community values and technical expertise regarding transportation in the City. They also provide a long-term vision for the ongoing implementation, reinvestment, management and use of the City’s transportation systems. Safety and Efficiency Provide safe and efficient movement of people and goods in and through the City by planning and designing transportation facilities to meet projected travel demand for all modes. Effective planning, design and implementation of transportation projects will reduce congestion and increase safety. Annual updates to the City’s Capital Improvement Plan, performing Traffic Impact Studies and conducting regular traffic counts indicate operational needs of the City’s transportation systems. The City will coordinate with the Minnesota Department of Transportation (MNDoT), Washington County, Metro Transit and other agencies to ensure planning for transportation systems under their jurisdiction are properly implemented. TRANSPORTATION Multi-Modal Approach Support alternative modes of travel, including transit, pedestrian, and bicycle travel, to help Woodbury residents access jobs outside the City, non-residents access jobs and services within Woodbury, and local trips within the City and surrounding area. A diverse array of transit options can not only offer convenience and accessibility, and encourage healthy lifestyles, but can also reduce the need to expand roadways and limit fuel consumption and air pollution. Support will be provided for existing transit services and new development of transit systems will be encouraged. Trails will be designed on both sides of all major roadways to increase pedestrian and bicyclist mobility and safety.

Livability Definition Address social, environmental, and economic impacts associated with Roadway Corridor Design the transportation system using effective planning. Timely planning for Principles: transportation system improvements to limit congestion and avoid overbuilding The Roadway Corridor Design Principles the network ahead of need provides a sustainable transportation system approach. were created with an interdisciplinary Transportation planning efforts will support guiding principles in the 2040 approach to better align roadway corridor Natural Resources chapter. Woodbury is committed to reducing contributions design and construction practices with the City’s values and emphasis on all of greenhouse gases, promoting clean energy opportunities, protecting and users and stakeholders. Included in the enhancing air quality, and protecting and improving water quality. According to the report are design templates for the City’s 2014 Regional Indicators Initiative Report and Xcel Energy’s Community Energy roadway corridors and recommendations regarding the elements of the templates Report transportation makes up 40 percent of total greenhouse gas emissions; this and how to use them in corridor design. is almost exclusively attributable to car and truck travel. Utilizing the Roadway Corridor Design Principles will address functionality while limiting impacts to livability. Livability impacts will be limited by applying emerging technologies, electric vehicles and intelligent transportation system applications to reduce congestion and promote alternative transportation.

August 2019 Woodbury 2040 Comprehensive Plan 97 Integration and Coordination 7 Coordinate transportation and land use planning such that transportation facilities efficiently match land use requirements, and vice versa. Transportation planning is a collaborative effort among the City of Woodbury, its residents and businesses, and other government organizations. Using this approach will ensure a context sensitive solutions process. EXISTING TRANSPORTATION CONDITIONS Roadway Network Woodbury’s most important links to the regional roadway network are through two interstate facilities: I-494, which runs generally north-south through the northwest corner of the City; and I-94, which runs east-west along the northern border of the City. In addition to these facilities, a number of key roads are important in terms of their connection or relationship to the interstate network. Examples include major north-south routes (Woodbury Drive and Manning Avenue) to I-94 and major east-west routes (Tamarack Road and Valley Creek Road) to I-494. TRANSPORTATION Jurisdictional Classification Roadways are classified by which level of government has jurisdiction over a given facility. Three levels of government have roadway jurisdiction in the City: MnDOT, Washington County and the City of Woodbury. MnDOT owns/maintains the Trunk Functional Roadway Classification Highway (TH) system. Washington County owns/maintains the County State Aid Diagram Highway (CSAH) and County Road (CR) system. The City owns/maintains the local streets, including Municipal State Aid (MSA) streets. Cities in Minnesota receive federal funding through the state MSA program to improve and maintain MSA streets designated by each city. Typically these facilities are collector or arterial roadways. MSA design and maintenance requirements are established by MnDOT. Figure 7-1 shows the jurisdictional classification of roadways in Woodbury. Existing Functional Classification The functional classification system is used to categorize a roadway and street network which distributes traffic from neighborhood streets to collector roadways, then to arterials and ultimately to the metropolitan highway system. Roads are placed into categories based on a combination of the degree to which they provide access to adjacent land and the degree to which they provide movement of “through” Metropolitan Council Roadway traffic. Functional classification is a traditional cornerstone of transportation Classification Standards Diagram planning. Within this approach, roads are located and designed to perform their designated function. The functional classification system used in the City of Woodbury conforms to the Metropolitan Council standards (Figure 7-2). These classifications address the function of all state, county and city streets from a standpoint of the safe and efficient movement of traffic through the City, while providing satisfactory access to residents and businesses. The primary classifications with brief definitions are:

98 Woodbury 2040 Comprehensive Plan August 2019 Figure 7-1 Existing Roadway Jurisdiction Classification Landffallll Oakdalle Lake Ellmo ¨¦§94 Figure 7-1. ExistingHudson Road Roadway Jurisdictional Classification

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100 Woodbury 2040 Comprehensive Plan August 2019 Principal Arterial The metropolitan highway system is made up of the region’s principal arterials, 7 which include all Interstate freeways. Interstate freeways connect the region with other areas in the state and with other states. They also connect the metropolitan centers to regional business concentrations. The emphasis is on mobility as opposed to land access. Principal arterials connect only with other Interstate freeways, other principal arterials, and select minor arterials and collectors. Minor Arterial For minor arterials the emphasis is on mobility as opposed to access in the urban area; only concentrations of commercial or industrial land uses should have direct access to them. Minor arterials should connect to principal arterials, other minor arterials or collectors. Connection to some local streets is acceptable. The Metropolitan Council has identified “A” minor arterials as streets that areof regional importance because they relieve, expand, or complement the principal arterial system. Collector Streets The collector system provides connection between neighborhoods and from

neighborhoods to minor business concentrations. Mobility and land access are TRANSPORTATION equally important. Direct land access should predominately be to development concentrations. To preserve neighborhood integrity while still providing direct access to business areas, these streets are usually spaced at half-mile intervals in developed areas. Neighborhood Collector Neighborhood collector system provides connection between neighborhoods and access to arterial and collector roadways. Mobility within neighborhoods is an important function as is access to residential land uses. Local Streets The primary function of local streets is to provide access to local land uses and individual parcels, including individual homes, shops, and similar traffic destinations. Through traffic should be discouraged by using appropriate geometric designs and traffic control devices. Private Streets Within Woodbury there are several miles of private streets, which serve both residential and commercial development. These facilities are owned and maintained by development associations and individual property owners. Private street access on a public road is administered by the governmental agency with jurisdiction over the public road.

August 2019 Woodbury 2040 Comprehensive Plan 101 7 Existing Traffic Conditions Existing Capacity In general, the capacity of a roadway is a measure of its ability to accommodate a certain volume of moving vehicles. Segment level of service (LOS) refers to a quantitative comparison between an existing traffic volumeFigure ( 7-3) and the maximum volume of traffic the roadway can accommodate in its present configuration. The maximum volume is determined by the number of existing roadway lanes (Figure 7-4). The results of a traffic operations analysis are typically presented in the form of a letter grade (A to F) that provides a qualitative indication of the operational efficiency or effectiveness. By definition, LOS A conditions represent high- quality operations (i.e., motorists experience very little delay or interference) and LOS F conditions represent very poor operations (i.e., extreme delay or severe congestion). Table 7-4 illustrates the level of service categories, approximate volume-to-capacity (V/C) ratio, and a general description of the traffic operations.

ROADWAY SEGMENT LOS DESCRIPTION VERSUS VOLUME / CAPACITY LOS V/C Description TRANSPORTATION A <0.65 Low volumes and no delays B 0.65-0.75 Low volumes and speeds dictated by travel conditions C 0.75-0.85 Speeds and maneuverability closely controlled due to higher volumes D 0.85-0.95 Higher density traffic restricts maneuverability and volumes approaching capacity E 0.95-1.05 Low speeds, considerable delays, and volumes at or slightly over capacity. F >1.05 Very low speeds, volumes exceed capacity, and long delays with stop-and-go traffic. Table 7-4. Roadway Segment LOS Description versus Volume / Capacity

102 Woodbury 2040 Comprehensive Plan August 2019 Figure 7-3. Existing Traffic Volumes 7 TRANSPORTATION

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104 Woodbury 2040 Comprehensive Plan August 2019 For the purposes of this plan, a planning level of service was used. Planning level of service compares volume-to-capacity (V/C) ratios, which correlate to the LOS letter grade. When the V/C ratio is below 1.00 the roadway is considered to be 7 operating at an acceptable level of service. When the roadway is operating at or over 1.00 the roadway is considered to be operating at capacity or over capacity. The more the V/C ratio exceeds 1.00 the greater the traffic congestion. Table 7-5 contains a summary of generalized traffic thresholds for specific roadway types, levels of service and number of traffic lanes.

GENERALIZED AVERAGE DAILY TRAFFIC THRESHOLDS FOR CAPACITY Facility Type Number of Lanes Daily Capacity Metered Interstate Freeway 8 147,000 6 110,000 4 73,000 Un-Metered Interstate Freeway 6 99,000 4 66,000 Expressway 6 62,000 4 41,000

Divided Arterial 6 54,000 TRANSPORTATION 4 36,000 2 18,000 Un-Divided Arterial 6 48,000 4 32,000 2 16,000 Collector 4 21,000 2 10,000 Note: These capacity thresholds are based on the Highway Capacity Model and the Twin Cities Regional Travel Demand Model. Estimated based on freeway daily capacity in HCM and hourly capacity in the Metropolitan Council Activity Based Model (ABM). The City of Woodbury is designated as developing area type in the Metropolitan Council’s System (along with developed, rural, business and residential cores) Table 7-5. Generalized Average Daily Traffic Thresholds for Capacity In roadway planning and design, it is undesirable to either overbuild or under build a facility. The goal is to build a facility that effectively and efficiently moves traffic. The design of a roadway should reflect its location. In general, people in more urban environments expect to incur some congestion during the peak hours, hence the LOS D/E capacity threshold is considered acceptable. In rural environments, LOS C is often used as the basis for roadway planning and design as people typically have a lower tolerance for traffic congestion. Woodbury falls into the urban environment category. Therefore, the LOS D/E threshold represents the appropriate design capacity for roadways. At this level of service, traffic is generally expected to experience congested flow only during the peak travel periods. During off-peak periods, traffic flow generally operates at a much higher LOS (A to C).

August 2019 Woodbury 2040 Comprehensive Plan 105 The LOS for non-local roadways in Woodbury was estimated by comparing the most recent available daily traffic counts for each facility (2016) Figure( 7-3) to 7 the traffic volume LOS thresholds. Based on this evaluation, most of the roadway system in Woodbury currently operates well (Figure 7-5). However, there are 3.39 miles of roadway that operate at or near capacity and another 6.2 miles that are approaching their design capacity. The roadway segments that are approaching, at, or over capacity are listed in Table 7-6.

PLANNING LEVEL ROADWAY SEGMENT CAPACITY DEFICIENCIES ANALYSIS (EXISTING) Route and name Location LENGTH V/C LOS (MILE) RATIO

S of I-94 0.60 0.95 D I-494 N of Valley Creek Road 0.87 0.87 D S of Valley Creek Road 1.40 0.91 D E of Woodbury Drive 1.47 0.90 D I-94 W of Woodbury Drive 1.53 1.06 F W of Radio Drive 1.11 0.80 C CSAH 13 (Radio Drive) S of I-94 0.55 1.01 E

TRANSPORTATION Bridge Over I-94 0.16 1.03 E CSAH 19 (Woodbury Drive) S of I-94 0.17 0.92 D MSAS 109 (Woodlane Drive) S of Valley Creek Road 0.17 0.75 C MSAS 101 (Weir Drive) S of Valley Creek Road 0.51 1.00 E W of Woodbury Drive 0.42 0.84 C MSAS 117 (Hudson Road) E of Lake View Drive 0.63 1.22 F TOTAL 9.59 Table 7-6. Planning Level Roadway Segment Capacity Deficiencies Analysis (Existing)

Existing Roadway Safety Figure 7-6 presents the locations and frequencies of crashes throughout the City. Crash data was obtained from MnDOT’s crash mapping analysis software (MnCMAT) for the period 2011 – 2015. Crash rates for each intersection that experienced 10 or more crashes were calculated. The crash rate is a value that represents the number of crashes that have occurred for every million entering vehicles. The crash rate can then be compared to the statewide average rate for intersections that operate with the same type of traffic control. The critical crash rate is a statistical value that is unique to each intersection and is based on vehicular exposure and the statewide average crash rate for similar intersections. An intersection with a crash rate above the critical rates indicates a sustained crash problem at the intersection. The intersections in Figure 7-6 are color coded to indicate whether either the average crash rate or the critical rate has been exceeded. Intersections that have crash rates higher than their critical rates should be further reviewed to determine causal factors contributing to the crash experience. Problem locations will be monitored and further evaluated as deemed appropriate by City staff. Intersection geometric changes and/or traffic control changes can often be identified to reduce the frequency, or possibly the severity, of crashes that will occur in the future. Intersection safety is routinely addressed as part of larger corridor construction or reconstruction projects.

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3 Created: SEH Source: City of Woodbury 0 0.5 1 Updated:January 2019 3 Created: SEH Cottage Grove E Source: City of Woodbury 0 0.5 Mil1es Updated:January 2019 Cottage Grove E Miles Intersection Crashes Int(!ersCercastiho Rna tCe rBaeslohwe Sstatewide ! CrAavsehr aRgaet ea nBde Clorwiti cSatla Rteawteidse ( AvCerraasghe R aantde ACbriotivcea lS Rtaatteewside (! Average and Critical Rates Crash Rate Above Statewide (! AvCerraasghe R aantde ACbriotivcea lS Rtaatteewside (! Average and Below Critical Rates Crash Rate Above Statewide (! AvInetreargse catinodn BWeiltohw L eCsrsitical Rates (! Than 10 Crashes Intersection With Less (! Number of Crashes (XXThan 10 Crashes at Intersection Number of Crashes (XX 108 atWoodbury Intersection 2040 Comprehensive Plan August 2019 EXISTING TRANSIT SERVICE 7 According to the U.S. Census Bureau Decennial Census and American Community Survey data, the percentage of Woodbury residents, age 16 and up, using public transportation as a means for traveling to or from work was approximately two percent from 2011-2015. However, the ridership numbers on Metro Transit routes serving Woodbury have been increasing as the community’s population increases. Although private cars are the most commonly used mode of transportation for Woodbury residents, public transit is an important alternative to automobile use and serves as one leg of a multi-modal transportation strategy for the community. Transit can also play a key role in achieving sustainability by reducing the need to expand roadways and limiting fuel consumption and air pollution. Transit Link Service For all communities in Washington County, Transit Link Service provides flexible, personalized transit service to the general public. Service hours are Monday-Friday from 6 a.m. to 7 p.m. Fares are based on distance traveled. Transit Link is a shared-ride service, which must be reserved before the trip – the same day or up to five business days in advance. Where regular Metro Transit TRANSPORTATION routes are available, Transit Link Service rides may be restricted and riders will be directed to use regular Metro Transit bus service. If a public transit trip involves a combination of Transit Link and regular Metro Transit route service, transfers can occur at a number of designated park-and-rides including Woodbury Lutheran Church and the Woodbury Theatre. Fixed-Route Service Scheduled transit service for Woodbury’s residents is provided by Metro Transit and the Metropolitan Council. Transit service is primarily delivered through weekday express routes from Woodbury to downtown Saint Paul and downtown Minneapolis. Connections may be made with other routes traveling to the University of Minnesota, MSP International Airport, and many other destinations. Currently, the following express bus service routes (Figure 7-7) are available within Woodbury: »» Route 351 provides weekday rush hour express service to downtown Saint Paul. Buses leave Woodbury from the Woodbury Lutheran Church Park-and- Ride on Afton Road east of Queens Drive »» Route 353 provides weekday rush hour express service to downtown Minneapolis via downtown Saint Paul. Buses leave from the Woodbury Lutheran Church Park-and-Ride on Afton Road east of Queens Drive and the Woodbury Theatre Park-and-Ride in Woodbury Village. »» Route 355 provides weekday rush hour express service to downtown Minneapolis. Trips originate approximately every 10 minutes from the Woodbury Theatre Park-and-Ride in Woodbury Village during rush hour.

August 2019 Woodbury 2040 Comprehensive Plan 109 »» Other route options in close proximity to Woodbury include: 7 • Route 375 which provides weekday rush hour express service to downtown Minneapolis, with service originating from the park-and- ride lot at Guardian Angels Church in Oakdale, just north of I-94 off Inwood Avenue/Radio Drive. • Route 350 provides limited stop service between southern Maplewood and downtown Saint Paul, terminating on Century Avenue and Lake Road at Woodbury’s western border. • Route 70 offers several trips daily that terminate at the Ramsey County Correctional facility on Century Avenue, along Woodbury’s western border. Park and Ride Facilities Commuters have the option to “park-and-ride” in Woodbury. There are four park- and-ride lots serving the Woodbury area (Figure 7-7): »» Woodbury Theatre, 1470 Queens Drive (north of the Target store at Woodbury Village). The lot accommodates 550 cars. Route 353 and 355 buses bound for downtown Minneapolis depart from this lot.

TRANSPORTATION Definition »» Woodbury Lutheran Church, 7380 Afton Road (south of Valley Creek Road Transit Market Area III and IV: and east of Queens Drive). Route 351 bound for downtown St. Paul departs Transit Market III identifies areas where from this lot. Routes 353 and 355 bound for downtown Minneapolis also there is relatively moderate densities but the non-grid development pattern depart from this lot. limits the effectiveness of transit. Transit service is primarily commuter express »» Christ Episcopal Church, 7305 Afton Road (southeast corner of Afton Road bus service with some fixed-route local and Queens Drive). Express buses bound for downtown St. Paul (Route 351) service or general dial-a-ride.Transit and downtown Minneapolis (Route 353 and 355) depart from this lot. Market IV is applied to those areas with lower concentrations of population and »» Guardian Angels Church in Oakdale, 8260 Hudson Boulevard. Route 375 employment.Transit service is generally bound for downtown Minneapolis departs from this lot. focused on peak-period express bus service if there are enough commuters. See Figure 7-7 and page 87 for more information.

110 Woodbury 2040 Comprehensive Plan August 2019 Figure 7-7. Existing and Planned Transit 7 TRANSPORTATION

August 2019 Woodbury 2040 Comprehensive Plan 111 7 2040 NON-MOTORIZED TRANSPORTATION PLAN Woodbury has developed over the last 30-plus years primarily with an automobile- oriented suburban land development pattern. However, historically, the City has also provided for a system of recreational trails and, with its commitment to transportation sustainability, has embraced the challenge of enhancing this system to more fully meet non-motorized transportation needs. Enhancing the non-motorized elements of Woodbury’s transportation system is a key goal in terms of improving transportation sustainability. This approach gives residents an alternative to driving, and encourages healthy activities and lifestyles. The Transportation Plan discusses in greater detail programs and projects to promote and enable non-motorized transportation and provides guidance and best practices on ways in which development can support pedestrian- and bicycle- friendly environments. Overall, Figure 7-8 shows the long-term vision for expanding the existing multi-use trail network serving the City. The basic approach to the planned expansion of the trail network is twofold: 1) expand the network coverage along all arterials, collectors,

TRANSPORTATION and certain local streets into newly developing areas; and 2) close gaps in the existing network. The discussion below outlines this approach for both regional and local levels. Regional Network Figure 7-8 highlights three corridors identified as part of the Twin Cities Regional Bicycle Transportation Network (RBTN) within the City of Woodbury. RBTN corridors are intended to serve as “trunk arterials” of the overall system of bikeways that connect to regional employment and activity centers. The City of Woodbury has identified several local trails that could connect to the Tier I and Tier II RBTNs. As noted by the Metropolitan Council, non-motorized (bikeway) projects that complete segments of, or connect to, the RBTN are given priority for federal transportation funds through the Transportation Advisory Board’s biannual regional solicitation. »» A Tier I RBTN has been identified in proximity to the Valley Creek Road (CSAH 16) corridor. This corridor stretches from Woodbury Drive (CSAH 19) on the east to the western City limits. While the RBTN does not have to be located within a roadway corridor, it would require crossing I-494 in the area of the Valley Creek Road interchange. »» A Tier II RBTN has been identified along Bailey Road (CSAH 18) from Woodbury Drive (CSAH 19) on the east to the western City limits. »» A Tier II RBTN has been identified along Woodbury Drive (CSAH 19) from I-94 to the south City limits. In June 2017, Washington County completed the Central Greenway Regional Trail Master Plan: South Segment from I-94 to Cottage Grove Ravine Regional Park. Within the City of Woodbury, this regional trail runs north-south along Woodbury Drive (CSAH 19). The overall goals of the Central Greenway Regional Trail are to: a) enhance the region’s multi-modal transportation and recreation system by providing a safe and accessible trail connection between Big Marine Park Reserve, Lake Elmo Park Reserve and Cottage Grove Ravine Regional Park; and b) provide direct connections for people living in Lake Elmo, Cottage Grove and Woodbury to vital employment, retail, and recreational sites in the east metropolitan area – providing safety, economic development, mobility, and environmental benefits. 112 Woodbury 2040 Comprehensive Plan August 2019 Figure 8 Existing and Proposed Trails Figure 7-8 Existing and PropoFiguresed Tra 7-8.ils Existing and Proposed Trails Landffallll Oakdalle Lake Ellmo 7 ¨¦§94 Hudson Road

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CreatCedre: SatEeHd: SEH SourcSeo: uCritcye o: fC Witoyo odfb uWryo, oMdebt uCryo,u Mnceilt Council 0 0.5 0 1 0.5 1 UpdaUtepdd:Jaatneuda:rJya 2n0u1a9ry 2019 CottaCgoe t Gtargovee Grove E E Miles Miles Existing & Planned Trail Network Existing & Planned Trail úNetwork ParPkas raknsd a Onpde On pSepnac Sepace Traúil UnTdrearipl aUsnsd/Oevreprapsass/sOverpass Existing Trails in Adjacent Communities XXXX Park Name Existing Trails in Adjacent Communities XXXX Park Name Future Trails in Adjacent Communities Schools Future Trails in Adjacent Communities ChSurcchhools Tier 1 Regional Bike Transportation Network Alignment Tier 1 Regional Bike Transportation Network Alignment GoCvehrunmrcehnt Tier 2 Regional Bike Transportation Network Alignment HoGspoitvael rnment Tier 2 TRiegr i2on Rale Bgiikoen Tarla Bniskpeo rTtarationns pNoerttwaotirokn C Noreritdwoor rk Alignment LibHraoryspital Tier 2 Regional Bike Transportation Network Corridor ExiLsitbinrga rTyrails ProEpxoissetidn gTr aTirlsails PrioPrritoyp Torsaeil dR eTtrraoiflist Corridors August P2019riority Trail Retrofit Corridors Woodbury 2040 Comprehensive Plan 113 Local Network 7 Woodbury is served by an extensive trail network (see Trail and Bikeway Connectivity of Chapter 8) featuring more than 160 miles of off-street paved trails. This system provides important linkages between various areas of the City and associated land uses with trails located adjacent to most arterial and collector roadways on at least one side of the corridor. Figure 7-8 highlights the existing and planned local network, which builds upon the RBTN network. The planned system has been designed to provide connections between neighborhoods and key destinations. For connections within neighborhoods, the City’s policy is to require sidewalks or trails on at least one side of the street for all through streets (those that are not cul-de-sacs). This practice results in the development of neighborhoods with much improved pedestrian and bicycle connections. Pedestrian and bike links should ideally be provided even where the road does not connect, as is the case in many cul-de-sac type developments. While there are several examples in Woodbury where cul-de-sac connectors link subdivisions to the trail network (see photo below), there are also situations where connectivity could be improved.

TRANSPORTATION For areas that have not been developed but are being planned for urban residential development, pedestrian and bike accommodations will be provided in accordance with the following goals and policies in the Land Use Plan: »» Low Density Residential – Use pedestrian and open space connections to achieve a relationship with the larger community rather than as stand-alone or buffer elements. »» Medium Density Residential – Provide sidewalks and trails that allow safe and convenient movement consistent with smaller lots and narrower streets. »» High Density Residential – Improve pedestrian and bicycle connections between high density residential and community destinations such as jobs, shopping, parks and civic facilities.

This neighborhood near Wedgewood Park in Woodbury shows how trail connections can provide important pedestrian and bicycle linkages within, and between subdivisions.

114 Woodbury 2040 Comprehensive Plan August 2019 Roadway Corridor Design Principles The City’s adopted Roadway Corridor Design Principles address transportation 7 functionality needs while limiting local impacts to livability. One of the key aspects of the design principles is the accommodation of bicyclists and pedestrians within the roadway corridor. For all arterial/collector construction and reconstruction projects, Definition the design guidelines recommend off-street multi-use trails. It is the City’s objective Roadway construction: to provide off-street multi-use trails on both sides of all major (collector and above) Refers to a roadway that did not roads. previously exist, or the expansion of an All transportation construction/reconstruction projects will reference and use the existing roadway to increase capacity by adding lanes, turn lanes, widening, etc. Roadway Design Principles guidelines regarding lane widths and configuration, accommodation of non-motorized travelers, and other design-related issues. If Roadway reconstruction: conditions dictate that these guidelines cannot be followed, justification will need Is the removal and replacement of an to be demonstrated and documented. existing facility without adding capacity. The City of Woodbury Roadway Corridor Design Principles establish standards and Roadway rehabilitation: requirements for future roadway corridors as well as for roadway rehabilitation, Includes projects beyond general reconstruction or new construction. The 2040 Comprehensive Plan anticipates maintenance practices utilized to extend the life of the existing roadway facility direction from these guidelines will be applied as opportunities arise when which includes milling, reclaiming, existing roadways are rehabilitated or reconstructed. Existing collector and overlays, partial reconstruction, residential roadways within neighborhoods not currently served with pedestrian infrastructure renewal and repairs. TRANSPORTATION facilities will be considered for designs including these facilities at the time of rehabilitation planning within neighborhoods. The roadway rehabilitation process will determine the appropriate design for collector and neighborhood streets by accounting for existing right-of-way, tree impacts, property impacts, topography and other considerations. This methodology is consistent with the design process and application of the Roadway Corridor Design Principles, most recently updated in 2015. Existing and Planned On-Street Facilities Accommodating advanced bicyclists separately from pedestrians, slower riders and other trail users improves overall safety conditions and makes for a more Woodbury’s Roadway Corridor comfortable environment for all non-motorized users. Ensuring that arterials and Design Principles include collectors have paved shoulders is an important way to accommodate advanced pedestrian and bicycle facilities riders, whose trips are typically longer and higher speed. These trips may be and landscape elements as recreational or they may be commuter trips to and from work, which can reduce integral components of each of the number of vehicular trips on roadways. the roadway templates, while not necessarily including on-street A number of arterials in the City are under the jurisdiction of Washington bicycle lanes. As of the drafting County, and one, Manning Avenue, is under the jurisdiction of MnDOT. The of this 2040 Comprehensive Plan, City will continue to coordinate with Washington County and MnDOT to ensure there are no existing or planned improvements to these routes take into account non-motorized users of all ages on-street bicycle facilities. Any and abilities. proposal for such on-street bicycle lanes or bicycle routes will be evaluated on a case-by- case basis by the City.

August 2019 Woodbury 2040 Comprehensive Plan 115 Right-of-Way Preservation 7 Right-of-way preservation is the coordinated application of measures to obtain control of or protect the right-of-way for a planned future transportation improvement and/or facility. The City’s 2009 Roadway Corridor Design Principles Task Force Report and 2015 Roadway Design Principles Amendment define typical roadway designs and associated right of way width needs for a range of corridor templates for residential neighborhood and commercial district roadway settings. Each template defines a typical width for travel lanes, turn lanes, shoulders, planted boulevards, sidewalks and trail widths as well as an overall right-of-way corridor width. The templates are defined based on general land use, recognize high, medium and low traffic demands and variations in the number of travel lanes and turn lanes and/or shoulders. The templates are loosely correlated to roadway functional classifications as shown in Table 7-7.

RIGHT OF WAY WIDTHS (ROW) FUNCTIONAL LAND USE CORRIDOR CONFIGURATION RIGHT OF WAY

TRANSPORTATION CLASSIFICATIONS TEMPLATES* WIDTH (FEET)

Arterial Commercial A1 6 lanes 180 areas near interstates A2 4 lanes 180

Arterial or Major Commercial or B1, B2 4 lanes (B2 with dual left turn lanes) 150 Collector residential 3 lanes 100 Major Collector Residential D1 – Option 1 2 lanes with trail 66 or Neighborhood D1 – Option 2 2 lanes with trail and sidewalk 75 Collector D1 – Option 3 2 lanes with no trail or sidewalk 60 D2 – Option 1 3 lanes with trail 70 D2 – Option 2 3 lanes with trail and sidewalk 80 D2 – Option 3 3 lanes with no trail or sidewalk 70 Commercial E1, E2 3 lanes with trails on both sides (E2 has right turn lanes) 95 areas with high E3 Divided 4 lane with trails on both sides 120 driveway density E4 Divided 4 lane with right turn lane and trails on both sides 120 Local Residential 2 lanes with sidewalk on 1 side 60 Note: * Source: City of Woodbury 2009 Roadway Corridor Design Principles Task Force Report and 2015 Amendment

Table 7-7. Roadway Right of Way (ROW)

116 Woodbury 2040 Comprehensive Plan August 2019 2040 TRANSIT PLAN 7 Transit and transit planning are subject to the constraints of existing funding levels and the uncertainties associated with future funding. Funding levels are determined to a large extent on decisions made at the State Legislature and by the Federal Transit Administration, well beyond the City’s direct authority. Thus, the Metropolitan Council has established a series of Transit Market Areas (TMAs) throughout the metropolitan area as a guide for the provision of appropriate transit service. There are five market areas, I through V, defined by demographic, urban design and unique market area features. Woodbury falls within two market areas (Figure 7-7) with the more highly developed areas of Woodbury classified as TMA III and the less developed areas (southern half of Woodbury) classified as TMA IV. »» TMA III areas are primarily Urban areas along with portions of the Suburban, Suburban Edge, and Emerging Suburban Edge. They are generally characterized by overall lower density and less transit-supportive urban form along with some pockets of denser development. The primary emphasis of transit service in this area includes peak-only express, small vehicle dial-a- ride, mid-day circulators, special needs para-transit (ADA, seniors) and ride- sharing services which are, generally, tied to park-and-ride lots and hubs.

»» TMA IV areas are primarily Suburban Edge and Emerging Suburban Edge along TRANSPORTATION with portions of Suburban. They are generally characterized by consistently low-density development and an urban form that does not support frequent local transit service. Transit service in Market Area IV is primarily peak-period express and commuter service oriented to park-and-ride facilities that can effectively capture the lower density transit demand. Local trips are provided by general public dial-a-ride services.

Figure 7-9. Map of METRO Gold Line BRT and Green Line LRT (as reflected in the Gold LinEnvironmentale Routing as reflected Assessmentin Environmental - Ass Sept.essme 2018)nt (Sept. 2018) e e v v y A o A m dl e l a e H e H d v e A v 35E r d A Blv a o s ay nd t Be y wo w u t S a n 694 OAKDALE o a ite n R ple ee ST. PAUL M h u a r Earl S Etn W S M G L ANDFALL Helmo Ave 94 94 MISS ISS e I v PP MAPLEWOOD 494 I

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August 2019 Woodbury 2040 Comprehensive Plan 117 Metro Gold Line 7 The METRO Gold Line is a planned nine-mile dedicated Bus Rapid Transit (BRT) line that will connect Woodbury to Saint Paul and other eastern suburbs (Figure 7-9). The Gold Line will provide frequent, all-day service in both directions, seven days a week and will connect with the growing regional transit system (e.g. METRO Green Line/Light Rail Transit and existing bus routes.) Gold Line service will offer new opportunities for residents, employees and business owners by strengthening connections between eastern suburbs and Saint Paul. The Gold Line corridor is proposed to generally run east-west along the north side of I-94 from the Union Depot in Saint Paul to Oakdale, then cross over I-94 on a new bridge connecting Helmo Avenue and Bielenberg Drive. The City will coordinate with Metro Transit, Washington County and the City of Oakdale to include two general purpose lanes, plus a trail on one side of the bridge. Once the Gold Line enters Woodbury, it would run north-south following Bielenberg Drive, then turn onto Guider Drive toward Woodlane Drive and I-494, where the corridor ends. Three station areas have been identified in Woodbury. Two stations (the Tamarack and Woodbury Theatre stations) would be walk-up stations and the third station (the I-494 station) would include a park-and-ride lot. Additional route operation TRANSPORTATION and station area planning and design will occur as part of the project development and engineering phases. The Gold Line is scheduled to begin service in 2024 at the earliest. Express Service and Facilities The City of Woodbury understands that demand for commuter express service and facilities will continue to grow. Accordingly, the City will continue to coordinate with Metro Transit, Washington County and adjacent communities to support the expansion of new and enhanced transit service and facilities along the I-94 corridor. Local Circulator Service and Reverse Commute In a desire to explore options to improve transportation sustainability, the City of Woodbury assessed the option of local circulator service and reverse commute service. Circulator Service In 2005, Metro Transit discontinued circulator service routes in Woodbury due to funding reductions and low ridership. At this time the capital and operating costs of reintroducing circulator service in Woodbury is not cost-effective as a significant ridership demand has not been established.

118 Woodbury 2040 Comprehensive Plan August 2019 As has been discussed previously, paratransit service is currently provided as Woodbury Dial-a-Ride by Transit Link Service. Service levels are generally consistent with similar Metro Mobility 7 paratransit operations contracted by the Metropolitan Council throughout the metro The Metropolitan Council region. An inconvenience with paratransit services is that rides must be reserved in administers the Metro Mobility advance, although in Woodbury these reservations can be made the same day as the program which is a shared ride. In addition, service is only provided within Woodbury, with some exceptions. public transportation service for Specialized transportation services are provided for seniors and disabled persons by certified riders who are unable to Canvas Health and Metro Mobility. Completion of an Americans with Disabilities Act use regular fixed-route buses due (ADA) application is required for disabled persons. to a disability or health condition. As part of the creation of this Comprehensive Plan, City staff has reviewed the Rides are provided for any Metropolitan Council’s findings from Appendix G of the 2040 Transportation purpose. Metro Mobility serves Policy Plan and finds that low ridership still exists. Further discouraging a Woodbury residents who meet circulator service is the emergence of ride-sharing services, such as Uber and the program’s requirements. Lyft, which offer mobility options for residents as ‘dial-a-ride’ alternatives. As Eligibility requirements are additional technology and services are developed, the use of transit and passenger available online via: vehicles changes. Transit plays a role in ensuring residents have reliable options for https://www.metrocouncil. mobility within the City and region. The City commits to regularly monitoring and org/transportation/services/ metro-mobility-home/ evaluating programs that serve our residents to ensure the transportation needs of eligibilitycertifications.aspx those without vehicles are met. Specifically, this monitoring and evaluation shall include frequent dialogue with the Metropolitan Council to review the feasibility of future circulator systems, whether as part of the proposed METRO Gold Line or TRANSPORTATION on a standalone basis. Reverse Commute The basic premise of reverse commute service is to use the empty capacity of buses returning to Woodbury during the morning rush period and of buses returning to Minneapolis/St. Paul during the afternoon rush period. The City’s rapid growth as an employment hub warrants reverse commute service to facilitate work trips for lower-income, transit-dependent individuals seeking to access jobs in Woodbury. Transit riders currently can travel from the two primary downtown areas to Woodbury in the morning, and back in the late afternoon, on existing express routes. A key for successful reverse commute operations is for businesses to become involved by promoting the availability of jobs in the suburban community and by working with the transit provider to identify appropriate service options to maximize ridership. At the most general level, the ability to promote effective reverse-commute transit ridership depends on an unmet local need for a pool of workers. Woodbury businesses have expressed labor shortages for entry and service type jobs as one of their most pressing issues. The City will continue to monitor this issue and work with transit authorities to appropriately serve the City’s transit needs.

August 2019 Woodbury 2040 Comprehensive Plan 119 7 2040 TRAFFIC ANALYSIS The Metropolitan Council Travel Demand Model was used to determine future travel conditions (year 2040) on the roadways in the City of Woodbury. This section highlights the assumptions and findings from this assessment. The Transportation Plan provides more detail regarding the methodology and findings. Traffic Analysis Zones The use of the regional model required the allocation of socioeconomic (SE) data (i.e. population and employment) to individual Transportation Analysis Zones (TAZs) based on the proposed land uses. Future land use plans and development proposals were used to assign future population and employment values to all the TAZs within the City of Woodbury. Figure 7-10 illustrates the location of the various TAZs contained within Woodbury as defined by the Metropolitan Council. It also illustrates further breakdown of the Metropolitan Council TAZ structure to facilitate refined forecast results within the City of Woodbury. Table 7-8 summarizes the allocation of population, households and employment data for existing, 2020, 2030 and 2040.

TRANSPORTATION Future 2040 Roadway Network The regional model included the existing roadway network plus the planned transportation system improvements in the Twin Cities area, including I-94 managed lanes between the downtowns. The future roadway network also assumed committed roadway capacity improvement projects identified in the City’s and County’s latest Capital Improvement Plan (CIP). Furthermore, the future roadway network assumed the projects shown in the Current Revenue Scenario of the 2040 TPP. However, these projects do not add any capacity to the network. The projects identified under this revenue scenario include pavement preservation work for portions of I-94 and TH 95 (Manning Avenue) in 2019 – 2024. Committed roadway improvements that add capacity to the network are highlighted in Table 7-9 and in Figure 7-11. 2040 Traffic Forecasts and Capacity Deficiency Analysis The future roadway needs are based upon a comparison of forecast traffic demands to the design capacity (Table 7-5) for collector roads and above. The assessment also used a “volume to capacity” ratio as an indicator of future roadway performance (Table 7-4). Figure 7-13 illustrates the traffic forecasts results and Figure 7-12 identifies the number of lanes on Woodbury roadway both currently and in 2040. A comparison of results of existing congested mileage (previously provided in Table 7-6) to 2040 results are shown in Table 7-10 Findings show that the level of congestion on the roadways in Woodbury will continue to increase due to increased traffic levels. This result is expected as the community continues to develop while opportunities for new or expanded roadways may not increase commensurately due to funding or right-of-way constraints. The interstate freeways are the roadways that will be most affected by increased traffic levels. The majority of County and City roadways are projected to operate at acceptable levels in 2040 although traffic levels will continue to increase.

120 Woodbury 2040 Comprehensive Plan August 2019 Figure 10 Transportation Analysis Zones (TAZ) Figure 7-10 Transportation AFigurenalysis Z7-10.ones Traffic(TAZ) Analysis Zones (TAZ) Landffallll Oakdalle Lake Ellmo 7 ¨¦§94 Hudson Road

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August 2019 Woodbury 2040 Comprehensive Plan 121 CITY OF WOODBURY SOCIOECONOMIC DATA SUMMARY IN THE REGIONAL MODEL 7 TAZ 2015 2020 2030 2040 CHANGE (2015-2040) POP. HH EMP. POP. HH EMP. POP. HH EMP. POP. HH EMP. POP. HH EMP. 2416 2,264 959 890 2,378 1,020 1,081 2,640 1,122 1,185 3,121 1,277 1,801 857 318 911

2417 1,530 565 446 1,607 601 542 1,784 661 594 1,574 581 446 44 16 0

2418 1,251 615 1,873 1,314 654 2,276 1,459 720 2,493 1,255 617 2,721 4 2 848

2419 738 314 1,357 775 334 1,649 861 367 1,807 738 314 1,586 0 0 229

2420 1,003 448 20 1,054 476 24 1,170 524 27 1,011 451 20 8 3 0

2421 3,249 1,402 327 3,413 1,490 397 3,789 1,641 435 3,783 1,600 602 534 198 275

2422 4,323 1,392 574 4,541 1,480 697 5,042 1,629 764 4,326 1,393 574 3 1 0

2423 4,271 1,682 1,090 4,486 1,788 1,324 4,981 1,968 1,451 4,302 1,694 1,090 31 12 0

2424 699 234 216 734 249 262 815 274 288 700 234 216 1 0 0

2425 2,263 842 1,199 2,377 895 1,457 2,639 985 1,596 2,268 844 1,199 5 2 0

2426 593 261 1,488 623 277 1,808 692 305 1,981 593 261 2,399 0 0 911

2427 1,802 756 3,953 1,893 804 4,803 2,102 885 5,262 1,802 756 4,228 0 0 275

2428 1,450 621 2,337 1,523 660 2,840 1,691 727 3,110 2,033 837 3,713 583 216 1,376

2429 2,642 1,111 354 2,775 1,181 430 3,081 1,300 471 3,441 1,407 2,175 799 296 1,821

2430 3,676 1,205 115 3,861 1,281 139 4,287 1,410 153 3,676 1,205 115 0 0 0

2431 3,155 1,107 681 3,314 1,177 827 3,680 1,295 907 3,155 1,107 681 0 0 0

2432 974 552 891 1,023 587 1,082 1,136 646 1,186 974 552 891 0 0 0

2433 1,241 459 264 1,303 488 321 1,447 537 351 1,241 459 264 0 0 0

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2440 1,618 581 28 1,699 618 34 1,887 680 38 2,872 1,045 1,447 1,254 464 1,419

2441 4,050 1,351 127 4,254 1,436 154 4,723 1,581 169 5,370 1,840 199 1,320 489 72

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2456 1,448 551 14 1,521 586 17 1,689 645 18 9,672 3,523 14 8,024 2,972 0

2457 69 30 14 72 32 17 80 35 19 115 47 14 46 17 0

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2475 49 21 29 51 22 35 57 25 39 80 33 29 31 12 0

Total 69,024 25,209 19,833 72,498 26,802 24,094 80,498 29,500 26,403 87,810 32,094 28,709 18,515 6,858 8,876

MC Statement for City N/A N/A N/A 72,500 26,800 24,100 80,500 29,500 26,400 87,800 32,100 28,700 N/A N/A N/A Table 7-8. City of Woodbury Socioeconomic Data Summary in the Regional Model

122 Woodbury 2040 Comprehensive Plan August 2019 2040 ROADWAY NEEDS 7 The focus of this section is to identify potential roadway improvement projects to Definition mitigate the impacts associated with the 2040 Land Use Plan and to respond to Current Revenue Scenario: local and regional travel demand changes. The primary areas of roadway network The 2040 Transportation Policy Plan has planning addressed in this section are: two funding scenarios for highway and transit improvements to the metropolitan »» Recommended improvement projects system. The Current Revenue Scenario includes affordable improvements, »» Jurisdictional classification changes whereas the Increased Revenue Scenario includes regional projects that could be »» Functional classification revisions implemented if additional revenues are made available. »» Access management »» Design considerations

COMMITTED ROADWAY IMPROVEMENT PROJECTS ID PROJECT RESPONSIBLE LOCATION LOCATION ACTIVITY AGENCY (TO) (FROM)

1 Eastview Road City of Settlers Ridge Manning New Facility Extension Woodbury Parkway Avenue (3 lanes) TRANSPORTATION

2 Bielenberg Metro Transit North of I-94 South of I-94 New Facility Drive I-94 (2 lanes plus Overpass BRT guideway)

3 Century Washington current Bailey Road New Facility Avenue (CSAH County southern (CSAH 18) (2 lanes) 25) Extension terminus

4 Pioneer Road City of Dale Road Jamaica Drive New Facility Extension Woodbury (2 lanes)

5 Tamarack City of Upper Afton Weir Drive New Facility Road Woodbury Road (2 lanes) Extension

6 Nature Path City of Bielenberg Tamarack New Facility Woodbury Drive Road (2 lanes)

7 Bailey Road Washington Woodlane Radio Drive Expansion County Drive from 2 lanes to 4 lanes

8 Woodbury Washington I-94 Tamarack Expansion Drive County Road from 4 lanes to 6 lanes

9 Woodbury Washington Dale Road Bailey Road Expansion Drive County from 2 lanes to 4 lanes

10 Radio Drive Washington Military Road Hargis Expansion County Parkway from 2 lanes to 4 lanes

Table 7-9. Committed Roadway Improvement Projects

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124 Woodbury 2040 Comprehensive Plan August 2019 Recommended Improvement Projects Based on the roadway deficiency analysis, the roadway capacity improvements 7 identified in Table 7-11 will be needed to serve projected 2040 traffic volumes and still maintain a minimum of LOS D. Figure 7-4 depicts the number of lanes required to meet these needs. Roadway improvements not specifically pertaining to operating capacity and adding lanes are not addressed in this chapter. For the most part, these types of improvements are roadway upgrades from rural to more urbanized settings as more of Woodbury becomes developed. For example, various roadways in the southern portion of the City will have to be paved and otherwise upgraded to meet needs associated with development. The City will evaluate the need to upgrade these roadways as development occurs on an on-going basis. Right-of-way needs will also be evaluated as part of this effort. The facility type identified in Table 7-11 will be compared against the City’s Subdivision Ordinance to determine the amount of right-of-way required to accommodate the widening of a road. MnDOT Roadways For I-94 between I-494 and Manning Avenue, traffic projections show increases of approximately 10-15 percent from current conditions to 2040. This increase will exacerbate the congestion already experienced in this corridor and reinforces the TRANSPORTATION need for the Gold Line BRT service planned for implementation by Metro Transit in 2024 as an alternative transportation choice. The City will continue to coordinate with MnDOT to reinforce the need for improvements to Manning Avenue and to secure funding.

2040 ROADWAY CAPACITY DEFICIENCIES BY FACILITY TYPE ROADWAY CLASS ROADWAYS AT OR NEAR CAPACITY ROADWAYS APPROACHING CAPACITY LEVEL OF EXISTING 2040 LOS LOS EXISTING 2040 LOS SERVICE LOS (MILES) (MILES) LOS (MILES) (LOS) Freeway E 0.00 4.34 C 1.11 0.00 F 1.53 1.53 D 4.34 1.11 Subtotal 1.53 5.87 Subtotal 5.45 1.11 Arterial E 0.71 2.15 C 0.17 3.64 F 0.00 1.16 D 0.17 0.00 Subtotal 0.71 3.32 Subtotal 0.33 3.64 Collector Road E 0.51 0.00 C 0.42 0.42 F 0.63 1.14 D 0.00 0.82 Subtotal 1.14 1.14 Subtotal 0.42 1.24 All Roadways Total 3.39 10.33 Total 6.20 5.99 Note: LOS E /F roadways operate at or over capacity; LOS C/D roadways operate near or approaching capacity. Table 7-10. 2040 Roadway Capacity Deficiencies by Facility Type

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Created:C SrEeaHted: SEH Source: SCoituy rocfe W: Cooitdyb oufr yW, Moeotd Cbuouryn,c Mil et Council 0 0.50 1 0.5 1 UpdatedU:Jpadnauateryd :2J0a1n9uary 2019 CottaCgeo tGtarogvee Grove E E Miles Miles NoteN: oDtaei:l yD caaiplya ciatipesa cfoitri erosa fdowr aroyas dawrea eyst iamraet eeds tbimasaetde do nb tahseed on the numnbuemr obfe lar noef sl aanneds f uanncdti ofunanlc ctiloanssa li nc ltahses o irnig itnhael Roreigionnaal lR Meogdioenl al Model CoCnognesgteiosnti oLenv Lele -v Leel v- eLl eovf eSle orvf iSce r(vLiOcSe) (LOS) LOSL OA Sor A L OorS L BOS B LOS C LOS C LOS D LOS D LOS E LOS E LOS F NewL ORSoa Fdway #### 2040N AeAwD RT;o Baadsweda oyn 2017 Activity Based Regional Model August#### 2 2019040 AADT; Based on 2017 Activity Based Regional Model Woodbury 2040 Comprehensive Plan 127 Washington County Roadways 7 The City will coordinate with Washington County to further evaluate and facilitate the improvements identified on County roadways (Table 7-11). The primary roadways that are projected to require capacity improvements include: »» Woodbury Drive (CSAH 19): Washington County and the City of Woodbury are currently engaged in a design study of Woodbury Drive from Tamarack Road to I-94. It is anticipated that expansion from four lanes to six lanes for all or a portion of the study segment will be recommended. Construction is anticipated in 2020. »» Bailey Road (CSAH 18): Washington County and the City of Woodbury are currently engaged in a design study of Bailey Road from I-494 to Woodbury Drive. It is anticipated that expansion from two lanes to four lanes will be recommended from Woodlane Drive to Radio Drive. Construction is anticipated in 2019 - 2020.

FUTURE ROADWAY IMPROVEMENT NEEDS PROJECT JURISDICTION LOCATION (FROM) LOCATION (TO) ACTIONS TO CONSIDER*

TRANSPORTATION I-94 MnDOT I-494 Manning Ave Widen to 8 lanes** I-494 MnDOT City limits I-94 Widen to 8 lanes Manning Ave MnDOT I-94 Hudson Rd Widen to 6 lanes** Manning Ave MnDOT Hudson Rd Brookview Rd Widen to 4 lanes Woodbury Dr Washington Co. I-94 Hudson Rd Widen to 6 lanes Bailey Road Washington Co. City limits Radio Dr Widen to 4 lanes Hudson Road City of Woodbury Rivertown Rd Woodbury Dr Intersection improvements Hudson Road City of Woodbury Lake View Dr Settlers Ridge Widen to 4 lanes Weir Drive City of Woodbury Valley Creek Rd Pouliot Pkwy Widen to 3 lanes Note: * Need is identified but not all projects are funded or approved by appropriate road authorities. ** Identified as a 2019-2024 Pavement Project in the Metropolitan Council 2040 Transportation Policy Plan. Table 7-11. Future Roadway Improvement Needs

128 Woodbury 2040 Comprehensive Plan August 2019 Jurisdictional Classification Changes The following roadways have been identified for jurisdictional transfers: 7 1. Lake Road / I-494 interchange – after construction of the I-494 interchange at Lake Road, it was the City’s expectation that the interchange would be transferred to MnDOT; however, this has not yet occurred. MnDOT and the City have agreed in principle to the transfer of this interchange to the State. 2. Valley Creek Road from Woodbury Drive to Manning Avenue – this segment is currently owned, operated, and maintained by the City. The proposed jurisdictional transfer would be to Washington County. The City and County have agreed that transferring this segment from City to County jurisdiction is an appropriate action, but the specifics of the agreement have not been finalized. Functional Classification Revisions The function of given roadways or roadway segments can change over time as surrounding land use evolves and/or as new roadways are constructed. For minor arterials and above, the Metropolitan Council determines functional classification for individual roadways. Local authorities may request changes (either from arterial to collector or from collector to arterial), but must provide sound justification for TRANSPORTATION the request, and the Metropolitan Council makes the final determination. For revisions in functional classification not involving arterial roadways, the unit of government that has jurisdiction over the facility has the authority to determine the functional classification. Thus, Woodbury has the authority to designate a municipal street as a collector or to change from collector to local street classification. The City proposes to make several changes to the current functional classification network (Figure 7-14). Note that the Metropolitan Council map may not represent all of the City’s proposed changes from previous planning exercises. These proposed changes will be coordinated with the appropriate roadway agencies and through the Metropolitan Council process. These revisions are summarized in Table 7-12 and depicted on Figure 7-14. In addition to the revisions proposed in the previous paragraphs, Settlers Ridge Parkway from I-94 south to Valley Creek Road should be monitored for a potential upgrade from collector to minor arterial status. As part of the northeast area development, an interchange may be needed at I-94/Settlers Ridge Parkway for access and to relieve the existing interchanges at Woodbury Drive and Manning Avenue. Under these circumstances, the use and importance of Settlers Ridge Parkway would be elevated, as it would provide direct access from the south to I-94.

August 2019 Woodbury 2040 Comprehensive Plan 129 PROPOSED FUNCTIONAL CLASSIFICATIONS 7 ROADWAY SEGMENT CLASSIFICATION CLASSIFICATION REMARKS (EXISTING) (PROPOSED) Weir Drive Tamarack Road to Local Major Was planned as A-Minor Reliever due to previously Ashwood Road Collector planned extension over I-94. Weir Drive Valley Creek Road to Local A-Minor Reliever route for I-494 between adjacent interchanges Lake Road Reliever on each end. Lake Road Pioneer Drive to Local A-Minor Provides continuity for long east-west trips through the Woodbury Drive Expander City Tower Drive Valley Creek Road to Local Major Well utilized connection between minor arterials Radio Drive Collector Spring Hill Drive Hudson Road to Local Major Well utilized connection between minor arterials Tamarack Road Collector Rivertown Drive Hudson Road to Local Major Gathers and distributes trips to sites in commercial Commerce Drive Collector district Commerce Tamarack Road to Local Major Gathers and distributes trips to sites in commercial Drive Rivertown Drive Collector district Settlers Ridge I-94 to Eastview Road Local Major Part of a continuous north-south route through the City. Will Parkway Collector serve new development traffic in northeast part of the City Cottage Grove Bailey Road to south Local Major Will distribute new development traffic in southeast part Drive city limits Collector of the City; Provides north south route connectivity Dale Road Radio Drive to Manning Local Major Provides east-west continuity and facilitate development

TRANSPORTATION Avenue Collector Hargis Parkway Benjamin Drive to Local Major New road providing access to developing area Radio Drive Collector Hargis Parkway Radio Drive to Pioneer Local Major Serves East Ridge High School and HealthEast Sports Drive Collector Center Interlachen Tamarack Road to Local Neighborhood Serves as an existing neighborhood collector through a Parkway Valley Creek Road Collector developed area St Johns Drive Eastview Road to Local Neighborhood Serves as an existing neighborhood collector through a Valley Creek Road Collector developed area Conifer Pass St Johns Drive to Local Neighborhood Serves as an existing neighborhood collector through a Settlers Ridge Parkway Collector developed area Conifer Pass Settlers Ridge Parkway to Local Neighborhood Serves as an existing neighborhood collector through a future north-south collector Collector developed area Dancing Waters Valley Creek Road to Local Neighborhood Serves as an existing neighborhood collector through a Parkway Settlers Ridge Parkway Collector developed area Colby Lake Valley Creek Road to Local Neighborhood Serves as an existing neighborhood collector through a Drive Leyland Trail Collector developed area Leyland Trail Wimbledon Drive to Local Neighborhood Serves as an existing neighborhood collector through a Hillingdon Road Collector developed area Wimbledon Leyland Trail to Lake Local Neighborhood Serves as an existing neighborhood collector through a Drive Road Collector developed area Hillingdon Road Leyland Trail to Park Local Neighborhood Serves as an existing neighborhood collector through a Crossing Collector developed area Park Crossing Hillingdon Road to Local Neighborhood Serves as an existing neighborhood collector through a Woodbury Drive Collector developed area Eagle Valley Woodbury Drive to Local Neighborhood Serves as an existing commercial collector through a Drive Lake Road Collector developed area Eagle Creek Eagle Creek Drive to Local Neighborhood Serves as an existing commercial collector through a Lane Valley Creek Road Collector developed area Sherwood Road Woodlane Drive to Local Neighborhood Serves as an existing neighborhood collector through a Commonwealth Avenue Collector developed area Commonwealth Sherwood Road to Local Neighborhood Serves as an existing neighborhood collector through a Avenue Radio Drive Collector developed area Wyndham Way Lake Road to Local Neighborhood Serves as an existing neighborhood collector through a Sherwood Road Collector developed area Benjamin Drive Bailey Road to Hargis Local Neighborhood New road providing access to developing area Parkway Collector Table 7-12. Proposed Functional Classifications 130 Woodbury 2040 Comprehensive Plan August 2019 Figure 7-14. Proposed Functional Classifications 7 TRANSPORTATION

August 2019 Woodbury 2040 Comprehensive Plan 131 Roadway Design Standards 7 The City recognizes that proposed improvements and changes to the system will need to consider engineering design standards and best practices. In that respect, access management guidelines and context sensitive solutions must be considered. Access Management Guidelines Access management is a technique or process of providing adequate access to adjacent land development while maintaining acceptable flow of traffic on higher level roadways. Management consists of carefully controlling the spacing and design of public street intersections and private access points to the public roadway system. Arterials, being designed for higher speed and longer distance trips generally have restricted access, while local streets can accommodate much greater access. Collector roadways fall in between arterials and local roadways regarding the amount of access that is permitted. The government agency that has jurisdiction over a given roadway defines the applicable access management guidelines. Thus, MnDOT defines the access management guidelines for Manning Avenue, which is a state Trunk Highway. MnDOT’s access management guidelines can be found in the Appendix to the Transportation Plan. Washington County has adopted MnDOT’s access TRANSPORTATION management guidelines, with some minor changes. Generally, the County allows quarter-mile spacing of full movement intersections on their Minor Arterial roadways. The City and Washington County have adopted a Memorandum of Understanding (MOU) that identifies planned access locations for Bailey Road, Radio Drive and Woodbury Drive. The County has jurisdiction over the following roadways within the City: »» CSAH 13 (Radio Drive) »» CSAH 16 (Valley Creek Road - west of Woodbury Drive) »» CSAH 18 (Bailey Road) »» CSAH 19 (Woodbury Drive) »» CSAH 20 (Military Road) »» CSAH 25 - I-94 (Century Avenue) to Lake Road The City has adopted access management guidelines that establish intersection spacing requirements for roadways under the City’s jurisdiction (Table 7-13). These guidelines are intended to reduce the negative effect of incremental, uncoordinated access decisions by providing a consistent policy for the installation of roadway access points. The application of these guidelines during the transportation planning and design stage should produce a fully integrated roadway system that supports the travel needs associated with both regional and local travel. The City may allow deviations from the below guidelines on a case-by-case basis. Mitigating circumstances may include, but are not limited to, roadways having low traffic volumes, geographic and topographic constraints including natural resource considerations, and factors associated with reconstruction of existing roadways.

132 Woodbury 2040 Comprehensive Plan August 2019 ACCESS SPACING GUIDELINES 7 MINIMUM SPACING ALLOWED BETWEEN EACH TYPE OF ACCESS ON DIFFERENT ROADWAY FUNCTIONAL CLASSIFICATIONS TYPE OF ACCESS MINOR ARTERIAL (1) COLLECTOR (1) & RESIDENTIAL (1) COMMERCIAL >7,500 ADT (2) <7,500 ADT (2)

A) Private Residential Driveways No direct access (3) (3) (3)

B) Commercial Driveway & Commercial Streets 1/8 mile 1/8 mile No direct access (3) (660’) (660’)

C) Non-continuous Residential Streets 1/8 mile with no 1/8 mile 1/8 mile median opening (150’) (660’) (660’) (660’)

D) Continuous Residential Streets 1/4 mile 1/4 mile 1/8 mile (150’) (1,320’) (1,320’) (660’) TRANSPORTATION E) Collector Streets 1/4 mile 1/4 mile 1/8 mile 1/8 mile (1,320’) (1,320’) (660’) (660’)

F) Minor Arterials 1/2 mile 1/2 mile 1/4 mile 1/4 mile (2,640’) (2,640’) (1,320’) (1,320’)

(1) See Functional Classification Map for classification of each roadway (2) Traffic volumes refer to 20-year forecasts (3) Determination based on other criteria (sight distance, speed, traffic volumes, lot size, etc.) (4) Distances are minimums (5) “Non-continuous” streets refer to cul-de-sacs or short length streets, typically less than one-half mile in length, which do not cross the roadway providing access (three-legged intersections) (6) The City reserves the right to increase the minimums based on other criteria (sight distance, traffic volumes, etc.) Source: City of Woodbury Table 7-13. Access Spacing Guidelines

August 2019 Woodbury 2040 Comprehensive Plan 133 Context Sensitive Solutions 7 The City uses a context sensitive solutions (CSS) approach to roadway design. This approach will allow vehicular transportation needs to be met in a manner which limits impacts to the greatest degree feasible and effectively addresses livability factors as defined by the Roadway Design Principals Task Force (DPTF). The following CSS guidelines are recommended to be used on individual transportation projects: »» For each transportation project define a clear purpose and need of what the project is to accomplish. This approach guards against facilities being over- built or improperly designed due to an unclear understanding of the project’s purpose. »» Define and implement a public involvement process appropriate to the scope and sensitivity of the project. This process will be structured and will affirm the City’s ultimate decision-making authority, but will allow citizens to have meaningful input to the planning and design process. It will also allow citizens to be informed regarding the City’s decision-making process and considerations. »» Assemble a multi-disciplinary team consisting of staff from participating TRANSPORTATION agencies early in the planning and design phase to discuss and establish baseline parameters. This team would address factors such as transportation functionality objectives, aesthetic considerations, environmental impacts, noise, neighborhood impacts and other social factors. This team would meet periodically as needed through the course of the project to review the development of the design concept. »» For all transportation construction/reconstruction projects, reference and use the DPTF design guidelines regarding lane widths and configuration, accommodation of non-motorized travelers, aesthetic treatments and other design topics. Rehabilitation projects will consider roadway retrofits to the current design standards if petitioned by residents based on the Neighborhood Traffic Calming Policy petition guidelines. Neighborhood context and retrofit cost-effectiveness with the necessary project scope will be considered. If conditions dictate that these guidelines cannot be followed, sound justification needs to be demonstrated and documented. The City may allow deviations from the above guidelines on a case-by-case basis.

134 Woodbury 2040 Comprehensive Plan August 2019 FREIGHT 7 Woodbury is home to several businesses that generate freight movement. This type of movement is depicted on Figure 7-3, which highlights heavy commercial traffic counts on the arterial network. Specific land uses in the City that generate large volumes of heavy commercial vehicles include manufacturing and warehouse facilities (e.g. Target Distribution Center, EcoWater Systems and Llewellyn Worldwide, Dean Foods/Land O’Lakes, and Hohensteins). These types of land uses are generally concentrated in the western portion of the City along Wooddale Drive and Woodlane Drive between Valley Creek Road and Courtly Road/Lake Road. This part of the City provides convenient truck access to I-494, with nearby interchanges at Valley Creek Road and Lake Road. Once on I-494, there is good access to regional freight corridors including I-94 directly to the north and TH 61 directly to the south and west. Retail locations (e.g., Woodbury Village, Tamarack Village, Woodbury Lakes, Woodbury Marketplace, Woodbury Commons, City Center and City Place) also play a major role in the movement of goods throughout the community. Some of the major shopping areas are located along the I-94 and I-494 corridor, providing convenient access to the interstate system for goods delivery. There is also significant retail development along the larger corridors, such as Radio Drive and TRANSPORTATION Woodbury Drive. These retail areas also have good access to the regional roadway network using those arterials. There are no known local roadway issues or problem areas for goods movement, such as weight-restricted roads or bridges, bridges with insufficient height or width clearances, locations with unprotected road crossings or active rail lines, or intersections with inadequate turning radii. Transportation freight needs will continue to be monitored and addressed with the appropriate agencies. There are no railways, river ports, barge facilities, airports, or intermodal freight terminals within the City of Woodbury.

August 2019 Woodbury 2040 Comprehensive Plan 135 7 AVIATION There currently are no existing or planned aviation facilities within the City of Woodbury, but each community has a responsibility to include airspace protection in its comprehensive plan. The closest airports to Woodbury are: »» Downtown St. Paul Airport (Holman Field), approximately 3.3 miles to the west »» South St. Paul Municipal Airport, approximately 2.4 miles to the west »» Lake Elmo Airport, approximately 3.1 miles to the north-northeast Any person or organization who intends to sponsor the construction or alteration of a structure affecting navigable airspace as defined in Federal Regulation Title 14; Part 77 needs to inform the Federal Aviation Agency (FAA) of the project. This notification is accomplished through the completion and submittal to FAA of Form 7460. In the case of Woodbury, this requirement applies to the following circumstances: »» Any construction or alteration exceeding 200 feet above ground level

TRANSPORTATION »» Any construction or alteration of greater height than an imaginary surface extending outward and upward at a slope of 100 to one from a) Holman Field, and b) South St. Paul Municipal Airport Woodbury is not within the Influence Area of any of the airports identified above, and therefore is not subject to the associated land use restrictions. Woodbury is home to a non-directional radio beacon/tower that is used for navigational purposes by aircraft flying to nearby airports. The Terminal Doppler Weather Radar (TDWR) system building and 109-foot tower are under the jurisdiction of the FAA and are located between Dale Road and Military Road approximately a quarter mile east of Radio Drive. The City of Woodbury has identified a future water tower site approximately one-eighth mile east of the TDWR tower. The exact location has yet to be determined. The City will coordinate with the FAA regarding future construction of a water tower and/or potential future residential development in the area to ensure that these projects do not interfere with the operations of the TDWR. There currently are no heliports in Woodbury or any known plans to construct one.

136 Woodbury 2040 Comprehensive Plan August 2019 IMPLEMENTATION 7 Implementation Actions The implementation action items represent opportunities to address the transportation needs and constraints recognized throughout this chapter and the Transportation Plan. These are summarized in Table 7-14 and broken into the following time horizons: »» Short-Term: 0-2 years »» Mid-Term: 3-5 years »» Long-Term: 6-15 years Funding Sources The City of Woodbury will have varying degrees of financial participation in future roadway related projects, whether they are local, county, or state projects. The City can obtain funding for transportation improvements and programs from a variety of sources: »» General Ad Valorem (Property) Taxes

»» Municipal State Aid TRANSPORTATION »» Federal Transportation Funds »» Cooperative Agreements with MnDOT and/or Washington County »» Tax Increment Financing (TIF) »» Property Tax Abatement »» Development Participation »» Assessments »» Grants Sustainable Transportation System Woodbury is committed to reducing contributions of greenhouse gases, promoting clean energy opportunities, protecting and enhancing air quality, and protecting and improving water quality. Transportation makes up 40 percent of total greenhouse gas emissions and is almost exclusively attributable to car and truck travel. The following transportation planning efforts will support guiding principles in Chapter 9. Natural Resources of the 2040 Comprehensive Plan: »» Support and plan for transit options to reduce single occupant vehicle travel; »» Implement a context sensitive solution approach to transportation planning and design using a multi-modal approach; »» Timely planning for transportation system improvements to limit congestion and avoid over-building the network ahead of need; »» Use recycled materials as appropriate when executing transportation projects; »» Review intelligent transportation system technology applications to reduce congestion, promote alternative transportation and apply emerging technologies. »» Plant trees and vegetation in right-of-way as appropriate. »» Advocate and plan for electric charging stations.

August 2019 Woodbury 2040 Comprehensive Plan 137 IMPLEMENTATION OF IMPROVEMENTS 7 SHORT- MID-TERM LONG- IMPROVEMENT TYPE TERM (0-2 (2–5 TERM (5–15 ONGOING YEARS) YEARS) YEARS) Transportation Demand Management (TDM) X Non-motorized Transportation Evaluate and implement bike lanes or shoulders on City roads X Work with Washington County to evaluate and implement bike lanes or shoulders on X County roads Work with developers of new residential areas to accommodate bicycle and X pedestrian access/facilities as discussed in the 2040 Non-motorized section

Work with developers of new commercial areas to accommodate bicycle and X pedestrian access/facilities as discussed in the 2040 Non-motorized section

Transit Coordinate with Metro Transit on Gold Line Bus Rapid Transit (BRT) project X guideway and station area improvements Coordinate with Metro Transit to identify circulator service routes and stops X complementary to the Gold Line BRT. Periodically track demand for circulator service and/or enhanced dial-a-ride X

TRANSPORTATION service Coordinate with Metro Transit regarding expanded park-and-ride facilities X Roadway/Traffic Coordinate with Metro Transit and adjacent cities on Gold Line BRT project X X roadway and bridge and trail improvements Periodically update the crash location map. Analyze locations that have crash rates above X X X the statewide average and/or critical rates to determine safety improvement measures. Formalize context sensitive solutions design process and procedures X Prepare program to address young driver safety issues (e.g. educational outreach X X related to the risks of distracted driving) Incorporate design considerations for aging drivers in project designs X X Monitor evolving requirements and design standard related to the American X X Disabilities Act and incorporate appropriate treatments in project designs. Track legislation concerning initiatives that will promote roadway safety including red light X running camera programs and municipal use of administrative fines for traffic violations Monitor roadway segments approaching (LOS D/E) or exceeding (LOS E/F) their X X design capacity thresholds and program for improvements as appropriate. Periodically review City access management guidelines to update as needed X Periodically meet with Washington County to discuss access management issues X Apply to Metropolitan Council for roadway functional classification revisions X summarized in Figure 7-14 Coordinate with MnDOT regarding transfer of jurisdiction of interchanges on I-494 X at Lake Road.

Perform/review site specific traffic studies X Construct committed roadway Improvements per Table 7-9 X X X X Plan and construct non-capacity upgrades to roadways X Coordinate with MnDOT and Washington County to plan and construct capacity X X upgrades to roadways Table 7-10. Coordinate pavement rehabilitation projects with safety and operational X X improvements when appropriate. (e.g. implement Lake Road Study recommendations for three lane operation and pedestrian crossing treatments) Table 7-14. Implementation of Improvements

138 Woodbury 2040 Comprehensive Plan August 2019