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05/14/1996 - City Council SpecialAGENDA SPECIAL CITY COUNCIL MEETING Tuesday May 14, 1996 5:00 P.M. L ROLL CALL & ADOPTION OF AGENDA II. VISITORS TO BE HEARD .NTRAL MAINTENANCE SPACE NEEDS STUDY tE DEPARTMENT BUILDING ANALYSIS DESTRIAN CROSSWALK POLICY RK BOND REFERENDUM UPDATE VIEW SPECIAL TASK FORCES, i.e.: pital Budget, Charter, Comp Guide Plan Update, etc.) HER BUSINESS JOURNMENT F eagan HONORABLE MAYOR & CITY COUNCILMEMBERS CITY ADMINISTRATOR HEDGES DATE: MAY 10, 1996 SUBJECT: SPECIAL CITY COUNCIL MEETING/TUESDAY, MAY 14, 1996 MEMO A Special City Council meeting was scheduled for Tuesday, May 14, to discuss several items as listed on the attached agenda. A light dinner will be served. CENTRAL MAINTENANCE SPACE NEEDS STUDY A space needs study was completed by TKDA that reviews the City's land and building needs required to provide ongoing services through the year 2020 when it is anticipated that Eagan will reach "full development." The study included mainly Public Works and Parks Departments of the City. The Fire and Police Departments were also studied for land sharing. Enclosed on pages d through � is a memo from the Director of Public Works forwarding an Executive Summary of a study analyzing the future space and land use needs at the Central Maintenance Facility. Enclosed under separate cover is a copy of the study. This study is being presented to the Council for consideration of providing direction for land acquisition for the long-term needs of the community. FIRE DEPARTMENT BUILDING ANALYST At the October 24, 1995 Special City Council meeting, the City Administrator was given specific direction to work with the Fire Department to provide an analysis and needs assessment for the Fire Administration building, traini29 facility and la d acquisition for future capital building needs. Enclosed on pages through is a copy of a memo regarding that meeting. Also enclosed on pages ' ' through A!1 is a copy of a memo from Fire Chief Jensen that addresses the needs as presented. The draft 1997-2001 C.I.P. will be modified to include capital items the City Council directs as future fire building projects. PEDESTRIAN CROSSWALK POLICY Enclosed on pages through ' for Council review are memos from the Director of Parks & Recreation and the Director of Public Works regarding this item, along with a copy of the Draft Pedestrian Crosswalk Policy. PARK BOND REFERENDUM UPDATE Enclosed on page,� is a copy of a memo from the Director of Parks & Recreation providing a brief update on this item. SPECIAL ADVISORY COMMITTEES [TASK FORCES) During a recent retreat, the City Administrator was directed to prepare language for the possible future consideration of the following special advisory committees: 1) City Charter Committee 2) Community Vision Committee 3) Capital Budget Committee 4) Zoning & Comprehensive Guide Plan Update Study Committee 5) Youth Committee Enclosed on pagesq ? e-& through . is a City Administrator Hedges regarding this item. /S/ Thomas L. Hedges City Administrator copy of a memo, with attachments, from —city of eagan MEMO TO: THOMAS L HEDGES, CITY ADMINISTRATOR e} FROM: TOM COLBERT, DIRECTOR OF PUBLIC WORKS DATE: APRIL 19, 1996 SUBJECT: PUBLIC WORKS & PARKS SPACE & LAND USE STUDY (PROJECT 683) The 1996 Utility Enterprise Budget incorporates an appropriation of $400,000 for the potential acquisition of land from Blue Cross/Blue Shield to accommodate an expansion of the current Central Mainteance and Water Treatment Facility campus. This was a carry- over from a similar appropriation in the 1995 Budget. Before proceeding with such a significant expenditure, the Public Works Department commissioned a study to be performed to determine what the ultimate long-term needs of the City would be for maintenance operations, how and where these operations should be situated, and determination of the quantity of land to be acquired, if appropriate. Attached to this memo is a copy of the Executive Summary of that report along with the recommendation that 13.5 acres of land be acquired from Blue Cross/Blue Shield west of and adjacent to the current Central Maintenance Facility. This report was prepared with input and review by the Police, Fire. Parks. and Public Works Departments. It is now ready to be forwarded to the City Council for their review and consideration of authorizing the acquisition of land. Mr. Peter Brozak and myself will be at the Council Workshop Session on in 14 to further present the details of this report and respond to any questions the Council may have. Respectf6ily submitted, Director of Public Works TACIjj Attachments: Executive Summary & Detailed Report Executive Summary TKDA has been commissioned by the City of Eagan to review the City's land and building needs required to provide ongoing services through the year 2020 when it is anticipated that Eagan will be at full development. This study involved primarily the Public Works and Parks departments of the city. The needs of the Fire and Police departments were also studied with respect to possible land use sharing. In order to project the land and building needs for the year 2020, the study included a review of four other cities which were of the approximate size Eagan will be at full development- 72,000+. The cities studied were Bloomington,MN., Fargo,N.D., Racine, WI. and Rochester,MN. We found that each city had its own list of responsibilities, methods of operating and space constraints. An extensive questionnaire was developed by TKDA and filled out by each city, including Eagan. The survey provided the information needed for comparing the functions, building areas and site sizes. In addition, we evaluated five sites in the City of Eagan for their ability to provide the additional land needs. The sites included Coachman Pt.(primary Public Works and Parks facility) and the adjacent Blue Cross Blue Shield property, the "River Bottoms"(recently purchased by the City), the South Water Treatment Plant site, the Cliff Road reservoir site next to the South Water Treatment plant, and a city owned site at Diffley and Rt.#3. The Coachman Pt. site will not handle the additional needs of the future without some additional land and/or the use of satellite sites. The needs presented by the Eagan Study group are close to the average of the cities studied except for exterior storage required which includes space for recyciying street sweepings and nursery area for Parks. The storage area need not necessarily be at the Coachman Pt. site. The needs is for approximately 27,000 square feet of building and 67,000 square feet of exterior storage in addition to what currently exists. While the addition of some space to the main facility can be done, an additional 12-15 acres of the BCBS property is needed to keep all functions at the one location and to provide for both the expansion of the WaterTreatment plant and for ponding site and stormwater runoff. Adequate space exists at a combination of the other city sites to accommodate the needs. There is 62,500(+-) square feet available at the "River Bottom" site after the needs of the Fire and Police are taken into consideration. There is 10+ acres at the South Water Treatment plant, 1.3 acres at the reservoir site and 1.5+acres at the Diff ley site. Recommendation: Purchase 13.5 acres of land from Blue Cross Blue Shield, if economically viable, and keep the other sites in reserve. If not viable, put cold storage at the South Water Treatment site, salt/sand at Diff ley and exterior storage at the "River Bottoms". TKDA 41 Comm. No. 11032 s MEMO —city of eagan TO: FIRE CHIEF NELSON FROM: CITY ADMINISTRATOR HEDGES DATE: OCTOBER 31, 1995 SUBJECT: CAPITAL BUDGET/GENERAL GOVERNMENT FACILITIES A special thanks for your attendance and participation at the City Council workshop on Tuesday, October 24. Regarding the capital budget items proposed for 1996, the City Council seemed to be in general agreement with land banking for the training facility, Fire Station #6 and land for the northwest quadrant. We also learned from the Director of Finance that the City has received a title conveyance for the land adjacent to the shooting range and can now be used for public purpose. He did qualify public purpose as non structure until either six years has elapsed and the former owner cannot reclaim the property or the former owner waives his right to the property or we go through some type of court action. The property can be used for storage and training operations that do not require an actual structure. It will be necessary to coordinate Public Works and Fire Department needs for this property. It will also be necessary for Community Development and Public Works Engineering to determine the best use of the property, any permitting requirements, access, utilities, etc. In terns of land banking for Fire Station #6 and an area in the northwest quadrant, I would suggest that we work with Community Development to identify specific sites and whether those sites have access to either city or county roads, research the cost for the land, other pertinent information or eventually City Council approval. It would be helpful if one person be designated to negotiate land prices, options and other issues relative to land acquisition. Regarding construction of the training facility and construction of the Fire Administration building, the City Council is asking for additional information before these items will be given further consideration in the Part I CIP. Regarding the training facility, there is a definite need to develop a program addressing the following issues. Why the Fire Department is proposing a training facility? How are those training needs being met at the present time without a facility? The needs require quantification beyond a matter of convenience and frustration. What will be the components of the training facility? Is it feasible for other communities to share in the use of the training facility as a revenue producer? Could a training facility be built in Eagan as a partnership with other communities similar to the police and shooting range that was a joint cooperative partnership with Apple Valley or the fire training tower that Eagan, Burnsville and Apple Valley jointly constructed in the City of Burnsville? Regarding the operation of a training facility, will there be necessity for specialized equipment and are there numbers associated with an operating budget? Construction of the Fire Administration building was also discussed at the work session. There is a question in the City Council's mind as to exactly what program needs the Fire Department has for the Fire Administration building. City Councilmember Wachter has asked for an analysis of the square footage for both the existing Fire Administration property and 40 acre municipal campus to help the City Council determine how and what public facilities might be expanded on those particular sites. That information has been completed by Engineering and will be shared with the Fire Department and Councilmember Wachter. There was also a question at the work session as to how we envision ambulance service in future years and whether that facility should be upgraded as part of Fire Administration and, if so, who will pay for that capital construction? I would suggest that a program be drafted for the Fire Administration building that discusses reasons for expanding the present Fire Administration building and any alternatives to constructing a new building. In other words, is the community room or new City Council Chambers adequate for Monday evening and Tuesday morning training needs? Could the community room space at the present Fire Administration building be remodeled to accommodate an additional conference room and office space, etc.? Some of these thoughts were examined at the time the City Council gave consideration to the new Police facility project and Municipal Center remodeling. There were various scenarios, including adding on to the south of the Police facility, using the lower level space of the Municipal Center building as Fire Administrator offices, etc. I am certain some of the information exists and could be re -presented as a program for City Council review. 1 commend the Executive Committee for the work they have done to date on the long- range planning for the Fire Department facility needs. On behalf of the City Council, I would be happy to attend an Executive Committee meeting to discuss further with its members the type of information and program needs the Council would like to further analyze construction of a training facility and Fire Administration building as a part of our capital improvement budget. Although the City Council did not specifically discuss construction of Station #6 and equipment, I would suggest that a program also be developed for that capital request. The project cost needs to be substantiated along with reasons for constructing Station #6. Eventually, the same need for information will exist for Fire Station #3 expansion and construction and equipment for the northwest station. Since those are future facilities beyond the five year CIP, energy should be concentrated on the first five years. 2( No I look forward to working with you and the Executive Committee to help prepare information for a future City Council work session. City Administrator TLHJvmd Jty of cagan 3795 PILOT KNOB ROAD EAGAN, MINNESOTA 55122-1318 PHONE (612) 681-4770 TDD: (612) 454-8535 FAX. (612) 681-4777 DATE: 11aN 6. 1996 fire department CRA: JE' SE y DAVE WARK A -,A% THOMAS EG.4% Mcyc. PATRICIA AWADA SHAWN HUNTER SANDRA A MASIN THEODORE WACHTE,< COunc;1 Membe•;,, T0: Tom Hedges. City Administrator THOMAS HEDGES Eagan Fire Department Executive Board Members Cr*v Ac�minfnslratc, EUGENE VAN OVERBEKE FROM: Craig Jensen. Fire Chief City CierK SUBJECT: Fire Service Future deeds As requested in the October 24. 1995 memorandum from Tom Hedges, the Fire Department has formulated the folio« ince data to present to the City Council in regards to the future needs of the fire service. Cost figures were supplied by the firm of Arthur Dickey Architects, Inc. These costs DUCE NOT include am land preparation'grading. contingencies, landscaping, or utilities. FIRE ADMINISTRATION Bi:'ILDING The Present Fire Administration building could fulfill the needs of the fire department until the year 2010 provided it is remodeled to meet the space needs of 10.500 sq. ft. as determined from the previous space needs analysis. This remodeling project, as proposed. would resolve the present state of overcrowding and would consist of the following necessary improvements: 1. Creation of a main entrance on the south side of the building to allow for a more user friendly (visible) access for the public and, at the same time, provide a quicker response to emergency vehicles fOr firefighters who are attending trainings and/or meetings. 2. Design office space and work stations for the department heads, their assistants, and officers of the Eagan Fire Department. The present office space is barely adequate for all the fire department staff (10 department heads. 3 Chiefs. 2 clerical staff, and the Relief Association). Presently, staff members share very crowded office space which is occupied by at least two department heads per office. 3. Establish public and private restrooms. Establish locker rooms/showers for HealthEast. The restrooms (f,' total) %� ould have to be consolidated and brought up to ADA (American Disabilities Act) standards 9 THE LONE OAK TREE ... THE SYMBOL OF STRENGTH AND GROWTH IN OUR COMMUNITY Equal Opportunity/Affirmative Action Employer 4. Update the training room (,old community room). Currently it is, at best, tolerable for present trainings. Large group trainings are not possible although needed. These large trainings consist of hazmat. apprentice. first responder, general meetings. officer trainings/meetings, and classes that sometimes require outside guest speakers. 5. The heating and air conditioning system would need to be upgraded to be more energy- efficient. At present. every room varies dramatically in temperature from extremely cold to extremely hot. At no time is there a consistent temperature level throughout the building (furnaces are scheduled for replacement in 1996), 6. Creation of a central receiving, storage area so the clerical staff would not have to handle (carry) large deliveries (up to 10 boxes delivered at one time) and often heavy packages (up to 300 pounds) of hose. SCBA items. truck equipment. etc. to the appropriate department head's office, storage closet or garage area. Storage areas for supplies are in great demand by all department heads and the clerical staff. 7. The HealthEast ambulance Service (presently residing at this location) should remain housed here even if some sa.:rifices were necessary. HealthEast's services are a GREAT benefit to the CITY OF EAGAN and every effort should be made to retain their service for the best interests of the community The building_ cost associated with space for HealthEast is an estimated $133.980.00 based on square foota2e need. S. The 3 95 Pilot Knob Road site may. however. encounter some problems with a future expansion and parking due to Dakota Counn 's requirements on set backs and the Wescott Road continuation. The continuation :)f Wescott Road will eliminate a large portion of the existing parking lot. Staff parking %i ould be adequate. however. additional parking space would have to be obtained if the fire department %%er.- t�.:ontinue to utilize the Fire Administration building for trainings and,; or meetings. advanta,_,e,� of thr Fir;. administration at the present location are: 1) the close proximity to the City Hall campc� (it is zentrall_: located). and 2) provides for a cit -wide quick arrival time of fire department vehicles personnel to emergence scenes which are in attendance at meetings andior trainings. Arthur Dickey Architects. Inc. has provided the following cost estimates for options associated with the present and future needs for Fire Administration: Option 1: Remodel and add on to the existing Fire Administration Building: S 934.115.00 Option 2 Build a new Fire Administration Building (demolish present facility and build on existing site): S 24,000.00 (demolition of existing building) $1.155.000.00 (new construction) $1.179.000.00 TOTAL Option 3. Build a new facility on a new site - S1.155.000.00 (plus land) The relocation of Fire Administration to an on -campus location would provide one-stop service to the public and improve convenience to both the public and fire personnel. The size of the building would have to be no les` than 10.500 sq. ft. However. road access and parking needs would not make this location fusible for fire department apparatus and regular day trainings/meetings but evening trainings meetings might be possible when staff and Council are not in session. The reason for this is because fire apparatus would have to remain at their designated stations during trainings/meetings due to the design of Civic Center Drive. This would cause a great delay in response to emergencies due to the fact that fire personnel would have to respond back to their assigned stations to obtain the fire apparatus. The 4th alternative would be to incorporate the Fire Administration building together with a new fire station to be constructed some time in the near future. The disadvantage to a combined Fire Administration fire station would be the additional acreage necessary to house the facility and the required parking. The other disadvantage would be the off campus location, although still within 1 mile of the Cite Hall campus. It is the Executive Board's assumption that the combined construction of Fire Admintstranon and a new fire station would prove to be more cost effective than remodeling the existing Fire .administration. In addition to the cost effective advantage of the combined Fire Administration/fire station. the new facility would be constructed so as to blend in with the community. The present Fire Administration is veru outdated and more than likely would require extensive (and expensive) cosmetic improvements to blend in xvith the surrounding structures. The estimated costs associated xvith constructing a new Fire Administration /2 -bay Fire Station on a new site would be - S 1.155.000.00 (Fire Administration building) .00 (2 -bay Fire Station) S 1.818.000.00 TOTAL TRAINING FACILITY It is the Eagan Fire Department Executive Board's understanding that the City has received a title conveyance for the land adjacent to the shooting range that can now be used for public purpose. Public purpose land has been defined as. "non -structure until either 6 years has elapsed and the former owner cannot reclaim the property or the former owner waives his rights to the property or we (the City of Eagan) go through some type of court action." In the meantime, the property can be used for storage and training opet atoms that do not require an actual structure and necessitates a joint venture between Public Works and the Fire Department. A training facility at this site would not duplicate any facilities that we presently have joint ownership in or take part of with other communities outside of the City of Eagan. This facility would allow us to maintain skilled fire service personnel and could decrease the liability to the Cite for injuries to fire personnel. It would allow us to keep our firefighters and department equipment within our own city limits which better serves the citizens of Eagan during required �veeklx training sessions. At the present time we are sending our firefighters outside the city limits for same specific types of trainings which. at times. does not provide us with the proper manpower on hand to suppress fire and emergencies within the city during these training sessions. /D f f Advantages to the land site at the river bottoms is that it is readily available and is quite cosmetic for the needs of the fire department and citizens, and would also provide a good public image during training sessions. The land size is also adequate for any future expansions. In addition, this site would allow us to conduct hazardous materials drills. With the railroad line running next to the facility, we may be able to obtain a railroad spur off the railway to conduct tanker car evolutions. Additional clear advantages to a training facility at this location include the possibility of building a future training room or a structure which could be utilized by Public Works, Parks, Police, and other outside agencies. The Minnesota Street Superintendent's Association could also use the facility for their equipment operator's ichool which is held annually. Then. as funds permit, the incorporation of an additional structure for in climate u-eather for training. pump evolutions. and pump panel iequipment operation trainings. ;•herein we could actually bring the piece of apparatus inside the building, could be constructed. At the )resent time. indoor trainings of this type are done (very minimally) inside the fire stations. The fire iepartrnent could also share this facility with other neighboring departments. Aspects of the training 'acility would be a serpentine driving course. cul-de-sacs. a concrete area for live car burns. a structure 'or confined spate entry evolutions and. in the future, possibly a burn building or tower similar to what 3urnsyille presentl_ has. This entire facility would be, as much as possible, a clean burn facility. The 'ire seri ice is under strict regulations .early from EPA and PCA insofar as what can and cannot be )urned. XA ithout ha% in :a structure of this magnitude. the fire department is not able to follow current and future :FPA and OSHA requirements. Currently. the scheduling of trainines at the Burnsville training facility does not meet the fire department s entire needs. There are additional trainings that cannot be met such as training for hazm at to meet ? FPA standards and confined space entre training without acquiring addinonal traininc, spa.e. The .:uection %%as raised by the Cite Council as to the high cost of building the training facility along \X ith a tie« *'ire station. It is the Eagan Fire Department's Executive Board's opinion that this would not be :.ost effecti v e due to the amount of prime land that would be required to be purchased. In addition. the purchased Iand \N ould have to be centrally located within the city- to meet the required needs for fire service emergent:\ response and parking needs for a facility of this size. One of the problems arising in not constructing a new training facility (with the loss of our parking facilit\ at our present location) means the fire department will have to find alternative locations to condu.t qualitx trainings for large groups. As a result, a lack of good trainings could result in more workman's comp injuries. and we would run out of room for more hands on trainings such as search and rescue. types of building constructions and confined space entre, which we could acquire with the river bottom facility. With regards to the cost of the training facility. the dollar burden could be shared throughout other City of Eagan departments. Additionally. the City could also lease andlor rent the facility to other fire department agencies to offset the costs. It was asked if it was feasible for other communities to share in the use of the training facilitN as a revenue producer? Yes, as stated above, it is possible to lease out or rent the space to other municipalities for such uses as fire trainings and public works trainings. Police departments could also possibly use it for trainings with traffic stops, etc. Another question was, could a tramirr_ facility be built in Eagan as a partnership with other communities similar to the Police shooting range a hich i!, a joint cooperative partnership with Apple Valley. and the fire training tower in Burns, it e a h1,:h i� jOiatly constructed with the Burnsville. Apple Valley, Eagan and Lakeville? Yes. this is possible. but the Fire Department believes it would be more beneficial to the City of Eagan to build it themselves and lease out the property as a revenue producer to offset the everyday operating costs. Regarding the operations of the training facility and if there will be a necessity for specialized equipment and whether these numbers are associated with the operating budget? At the present time, the fire service is looking to install a curb and gutter and a looped 8" water main to supply water with the entire area secured. All other anticipated aspects could be phased in over a period of time as budget needs allow. The Fire Department has met with the Police Department to determine the needs for both departments at the river bottom site. After determining the space needed by both departments the square footage was forwarded to Arthur Dickey Architects. Inc. to put together some cost estimates for the project: Training and Storage Building $ 1,782.000.00 To,-ver'Burn Building & Confined Space $ 1.410,000.00 4 -car Burn Area $ 50.400.00 Blacktop & Curb $ 846.700.00 TOTAL $ 4,089,100.00 Additional costs for a new 2-bav Fire Station would be: I . Interior Furnishing Fire Station $ 27.757.00 2. Fire Trucksipumper. etc.: $ 400,000.00 Command/Rescue Truck $ 250.000.00 �. Appliance and Equipment: $ 8,500.00 4. Land Cost N/A 5. Site Preparation N/A 6. Sewer Lift Station $ 40,000.00 7. Sever & Water ($120/ft.) ? LAND ACQUISITION Funds have been made available in 1996 to purchase two sites with total dollars of $200,000.00. After some research on land availability around the City, it doesn't seem as though this is going to be enough money. Also. without direction as to the whereabouts of Fire Administration, it is difficult to pursue land near Lexington and Wescott Road. The Fire Department is not looking for an open check, but seeking some direction. The Fire Department knows their need to supply the best service possible to the citizens of Eagan and realizes the financial burden this will cause the City. If a bond referendum is to be obtained. an Aerial apparatus should also be incorporated at an estimated cost of $750,000.00 and SS00-000.U0 for signal pre-emption. The phasing in of all fire department needs is very possible over the next 5 years. /0) 0 In conclusion. it is the Eagan Fire Department Executive Board's opinion regarding the Fire Administration building, the training facility, and land banking as follows: NNI*ith regards to the Fire Administration building. Option 2 be considered. It should be noted, however. that additional land may be required to build on the present site. It is also the Executive Board's opinion that an additional apparatus bay be included with Option 2 at the Fire Administration buildine: With regards to the training facility. proceed with a training and storage building facility of 3,500 sy, ft.for an approximate S400.000.00. a 4 -car burn area (120' x 120') for $50.400.00, the installation of blacktop curb. gutter and storm sewer for $846.700.00, and the installation of sanitar% scxx er and water for $120.00 per ft. Then, within the next 10 year time frame, construct a tower burn building and confined space entry facility for $1,410,000.00; and With regards to land banking. pursue the purchase of land at the corner of Lexington Avenue and WeS ott Road for future fire station needs and. also. pursue the purchase of land at the corns of Coachman Road and Yankee Doodle Road for future fire station expansion (additional station construction may be required within the next 10 years, depending on the growth of the City). All pries as sef forth do not include land costs. site preparation. contingencies, landscaping. or public utithilc!, Although the fire department has stated many additional items that could be forseen in the fire seri ice. out of [lie total S7.900.000-00 cost for all ticketed items. the Executive Board believes that the aforementioned is the most cost effective wa\ to address the needs of the fire service and result in a final estimated cost tk, the cite of •4.000.000.00 (a savings of $3.900.000.00). It is not the intent of the Eagan Fire Department Executive Board to give the impression that all items within this memorandum are not needed. but has prioritized each item to stay within the budget restraints of the City of Eagan. Respectfully submitted. ��91 /---- Craig Jensen. Fire Chief CJlkmk 3 •`4 city of eagan DATE: MAY 10, 1996 TO: TOM HEDGES, CITY ADMINISTRATOR FROM: KEN VRAA, DIRECTOR OF PARKS AND RECREATION SUBJECT: PEDESTRIAN CROSSWALK POLICY MEMO At Council's request, staff has completed a review of the development of a Pedestrian Crosswalk Policy. The development of standard guidelines will help staff and the Council respond to citizens' requests. (The draft policy was initiated as the result of a request from residents near Walnut Hill Park). The draft was reviewed by the Advisory Parks, Recreation and Natural Resources Commission, which made four recommendations for consideration. The memo addresses these recommendations, as well as the recent legislation passed by the State and signed by the governor into law. Staff will encourage the Council to complete a crosswalk policy to also limit the City's liability exposure. KV:cm MEMO —.city of eagan TO: THOMAS L HEDGES, CITY ADMINISTRATOR FROM: THOMAS A COLBERT, DIRECTOR OF PUBLIC WORKS DATE: MAY 7, 1996 SUBJECT: PEDESTRIAN CROSSWALK POLICY PURPOSE The Pedestrian Crosswalk Policy for the City of Eagan will provide standard guidelines for: 1) Identifying proper locations for marked pedestrian crosswalks; 2) installing the appropriate level of protection; and; 3) a procedure for responding to citizen requests. With this standard manual and its uniform application, the City will be able to prioritize the community's needs in relationship to pedestrian safety, annual operation and maintenance budgets and long-range capital improvement programs. With a standard uniform policy adopted and implemented, the City's liability under its authority of Discretionary Immunity, will be greatly reduced. HISTORY In 1993, the Public Works Department initiated a Pedestrian Crosswalk Study which incorporated an inventory, survey of similar communities, and the application of the Manual On Uniform Traffic Control Devices (MUTCD) as it pertains to pedestrian crosswalks. In 1994 and 1995, this study was expanded to a policy document establishing criteria to justify the installation of pedestrian crosswalks based on location and type of crosswalk protection along with a 4 -year pedestrian accident analysis, updated inventory of existing crosswalks, requested installation response procedure, and cost estimates for various types of crosswalk protection. On May 15, 1995, the City Council approved the Draft Pedestrian Crosswalk Policy and requested the Advisory Parks, Recreation and Natural Resource Commission (APRNRC) for further review and comment. On June 19, the APRNRC reviewed the Draft Policy in general and its application to the petitioned request for a flashing light at the existing crosswalk of Wilderness Run Road at Wedgewood Drive. The APRNRC requested the Public Works Department to look into the effectiveness of Rumble Strips for advanced warning prior to pedestrian /5� crosswalks. The APRNRC then forwarded the Policy to the Recreation Subcommittee for review relative to crosswalks as they apply to access to City parks. On June 22, the Recreation Subcommittee reviewed the Policy in general and provided 4 recommendations for the APRNRC to forward on to the City Council. On July 19, the APRNRC reviewed the Recreation Subcommittee's discussion and concurred with the following 4 recommendations being forwarded to the City Council: 1. A separate section addressing crosswalks to City parks be written for the Pedestrian Crosswalk Policy. An objective matrix of safety warrants be developed based on vehicular speed, volume, width of street, visibility and pedestrian demographics. 2. A pedestrian study be conducted. 3. Consideration be given to creating a safety review ad hoc committee whose purpose would be to review neighborhood requests for crosswalk safety devices of a higher level than warranted by the objective matrix. 4. The City's' Sidewalk Policy be utilized as the standard for neighborhood financial participation for installation of pedestrian crosswalk devices that supersede the objective matrix level of protection. On August 14, an intern with the Parks & Recreation Department conducted a Pedestrian Crosswalk Study of 8 crosswalk locations (5 neighborhood collector and 3 community collector street crossings): • Wilderness Run Road @ Wedgewood • Northview Park Road @ Savannah • Johnny Cake Ridge Road @ Highline Trail • Elrene Road @ Northview Park Road • Coachman Road @ Quarry Park • Rahn Road @ Highline Trail • Johnny Cake Ridge Road @ Covington Lane • Lexington Avenue @ Wilderness Run Road On September 12, 1995, the Public Works Maintenance Division completed a sound level test of the experimental rumble strips trying to identify the impact to adjacent residential properties if installed. In March of 1996, the State Legislature passed a Bill, which was signed by the Governor, that "requires drivers to stop at crosswalks when a pedestrian is crossing, whether or not the walker is in the drivers lane of traffic". The Bill becomes effective August 1,1996, and has the same force and effect of stopping traffic in both directions of travel whenever a pedestrian is in a designated properly marked crosswalk. 2 /6 ISSUES Through this process, there did not appear to be any major issues associated with the Pedestrian Crosswalk Policy as presented. The majority of the discussion tended to center around dealing with those situations where a particular crosswalk was not warranted or the type of protection was less than desired by the users. The APRNRC's recommendation #1 pertaining to a separate section for park access with specific safety warrants is very difficult due to the wide variety of parks, access points, type of use, etc. It is felt the present policy provides the guidelines and criteria that can be used to evaluate any individual park situation as needed. The APRNRC's recommendation that an ad hoc committee be created would provide the opportunity for an interpretation (or modification) of the standard policy for any particular location as needed with a recommendation being forwarded to the City Council for final consideration. It was recommended that this committee be made up of the City Engineer: Risk Manager, Police Chief, and an APRNRC Commission member. The results of the Rumble Strip field test indicate that it is a very effective device in alerting the driver of a change in road conditions. It did not prove to be detrimental to the structural integrity of the pavement or maintenance operations. However, it did verify a 15+ dba increase in what may be considered constant irritating noise to adjacent residential, property owners. Another issue centered on the financing of flashers (approximately $7,000) or other devices that do not meet the warrants or criteria of the policy. The City's Sidewalk Policy has been whenever a sidewalk is requested that is not on the City's trailway system, the requesting and/or benefitting property owners finance the improvement cost. This could be an option left to the discretion of the Council or included as a specific statement in the Procedure Section of the Policy. OPTIONS The City Council may wish to consider any of the following options: 1. Adopt the Pedestrian Crosswalk Policy as presented on May 15, 1995. 2. Adopt the Pedestrian Crosswalk Policy incorporating some/all of the APRNRC's recommendation from July 19, 1995. 3. Discard the Draft Pedestrian Crosswalk Policy and provide direction regarding future applications. 4. Provide specific modifications to the proposed Draft Policy. 5. Other. 3 /i ADDITIONAL_ INFORMATION A copy of the Pedestrian Crosswalk Policy (18 pages) is being forwarded to the City Council. However, it does not include the five appendices (approximately 200 pages), which was previously forwarded to the City Council. These appendices are as follows: Appendix A - Inventory of Existing Crosswalk Appendix B - Manual On Uniform Traffic Control Devices (MUTCD) Guidelines • Appendix C - American's With Disabilities Act (ADA) Rules Appendix D - Survey of Surrounding Communities • Appendix E - Pedestrian Accidents Copies of these appendices, the Pedestrian Crosswalk Study (August 14, 1995,) and the Sound Level Tests of Experimental Grooved Rumble Strips (September 12,1995) will be provided at specific Council request. Copies of past City Council and APRNRC minutes are also included for reference. SUMMARY A significant amount of information has been compiled, research performed, and the merits of a formal Pedestrian Crosswalk Policy has been discussed by various staff, Commission members, and City Council. Consideration of adopting the Policy should be discussed on its own merits. Any future requests for crosswalks and/or level of protection that do not meet the warrants or guidelines of the Policy can be discussed on their own merits, with the Policy providing a reference of conformance to required warrants. Staff would be happy to provide any additional information or research that the Council feels necessary in creating a policy that will work for the benefit of our community. Respectfully submitted, 0 � � L 4 � &, /,� Director of Public Works TACrjj Attachments: Draft Pedestrian Crosswalk Policy Historical Minutes Legislative Action News Article 4 DRAFT CITY OF EAGAN PEDESTRIAN CROSSWALK POLICY PREPARED FOR: Ci'TY OF EAGAN PREPARED BY: CITY OF EAGAN PUBLIC WORKS DEPARTMENT STRGAR-ROSCOE-FAUSCH, INC. May 9, 1995 SR= Na. 0952215 /9 City of Eagan Crosswalk StJcr TABLE OF CONTENTS Pane Nc I. INTRODUCTION............................................................................... 1 II. GUIDELINES FOR IDENTIFYING CROSSWALK LOCATION......... 2 A. At Existing Controlled Intersections ........................................ 2 B. At Mid -Block and Other Locations with No Existing Traffic Control ...................................................... 3 C. Grade Separation................................................................... 8 III. GUIDELINES FOR SELECTING APPROPRIATE LEVEL OF PROTECTION FOR CROSSWALKS ................................................ 10 A. Locations with Traffic Stop Control ......................................... 10 B. Locations without Traffic Stop Control .................................... 11 IV. ESTIMATED COSTS........................................................................ 15 V. A PROCEDURE FOR RESPONDING TO CITIZEN REQUESTS ..... 16 A. General Procedure................................................................. 16 B. Staff Research Report ............................................................ 17 APPENDICES APPENDIX A - INVENTORY OF EXISTING CROSSWALK APPENDIX B - MUTCD GUIDELINES APPENDIX C - ADA RULES APPENDIX D - SURVEY OF SURROUNDING COMMUNITIES APPENDIX E - PEDESTRIAN ACCIDENTS Strgar-Roscoe-Fausch, Inc. 1, Cry Cf Eagan Crosswak S;c I. INTRODUCTION The City of Eagan has developed a pedestrian crosswalk policy to promcte public safety where it is necessary for pedestrians to cross roadways that are designed for use by motorized vehicles. This policy has the following objectives. 1. define the criteria to be used to determine if a crosswalk is appropriate at a given Iccation. 2. define the appropriate level of protection and identification for each crosswalk. 3. estimate the cost of providing various levels of crosswalk protection. 4. review the location of existing crosswalks and the appropriate level of protection for each. 5. define a procedure for responding to citizen requests for additional crosswaiks. 0 6. define a process for the implementation of crosswalk protection. 7. provide guidance to the city engineer in the determination of current signing and striping needs and the establishment of priorities for the expenditure of limited funding to address these needs. By establishing poiicies related to the location, installation and marking of crosswalks, it is anticipated that the overall safety of pedestrians will be improved. This will resuit from the following: Increased uniformity of pavement markings and signage. - Preventing the mis-application of crosswalks which will help maintain driver respect for those crosswalks that do exist. • Guidance of pedestrians to a marked and signed crossing where safety is improved. t Strgar-Roscoe-Fausch, inc. City of Fagan Crosswalk Stucy II. GUIDELINES FOR IDENTIFYING CROSSWALK LOCATION In general, crosswalks should be located where a significant number cf pedestrians regularly cross a public roadway that has a significant volume cf traffic. The crosswalk should be located to promote the safety of both pedestrians and motorists. One of the principal means by which this is accomplished is through careful selection of locations. A. CROSSWALKS AT EXISTING CONTROLLED INTERSECTIONS Whenever possible, crosswalks should be located at existing street intersections and across intersection legs that have traffic control, such as a stop sign or a traffic signal. This is the safest location for a pedestrian to cross a roadway at -grade because motorists already have an expectation that pedestrians may be present. See Appendix A-1 for inventory of existing crosswalks at controlled intersections. 1. Traffic Signals There is a general expectation on the part of pedestrians that crosswalks should be available at signalized intersections. For this reason. crosswalks should be designated on all legs of signalized intersections unless there is a compelling reason not to. In those cases where crossing the leg of a signalized intersection is not desired or warranted, signs should be erected indicating that pedestrian crossing at that location is prohibited (see Appendix B, seciton 26-3E). Conditions which may cause the city to discourage crossing at a particular location may include (but are not limited to) the following conditions: • There may not be a safe place for pedestrians to stand or continue to walk on one or both sides of the street. • Traffic signal operations may be improved if there is no pedestrian phase. If crossing at a signalized intersection is prohibited, other provisions must be made for pedestrians to cross the roadway in the immediate vicinity. 2 Strgar-Roscoe-Fausch, Inc. City of Eagan Crosswalk Stacy 2. Stop Signs Estabiishing crosswalks at intersections with stop sign control is optierai. Pedestrians do not have the same expectations for crosswalks at saw signs as they do for traffic signals. The following guidelines will apply to the determination of where crosswalks are appropriate. Crosswalks should be provided whenever a trail or sidewalk crosses a traffic controlled intersection of a Neighborhood Collector, Community Collector, Minor Arterial or Principal Arterial. • Crosswalks are not required on streets that are designated as Local in the city's functional classification system. • Crosswalks may be provided at other stop sign locations at the discretion of the city engineer, providea there are clear pedestrian paths leading from both directions and there is pedestrian demand. The determination of pedestrian demand for this circumstance is similar to the procedure described beiow for crossings at uncontroiled locations. CROSSWALKS AT LOCATIONS AT "MID -BLOCK" AND OTHER LOCATIONS WITH NO EXISTING TRAFFIC CONTROL There are some circumstances where a mid -block crossing is appropriate. However, crossings that are located away from controlled intersections -or across an uncontrolled leg of an intersection should be avoided if feasible. In general, designation of crosswalks at locations with no traffic control tends to give pedestrians a heightened sense of security that is unwarranted by the circumstances. Painted lines and signs alone do not stop traffic. Unfortunately. studies have shown that pedestrians are more careless crossing a roadway in a crosswalk than crossing a roadway at an unmarked location. This is a very serious concern which must be taken into consideration. Most mid -block crosswalks are largely ignored by motorists despite the legal requirement to yield the right-of-way to pedestrians in crosswalks (Minnesota Statutes, Section 169). Excessive designation of mid -block crosswalks further reduces their effectiveness precisely because they tend to stand out less and don't attract the attention of the motorist. Careful consideration must be given to each mid -block crossing to ensure that pedestrians are not placed at greater risk with the crosswalk than without. •Roscoe-Fausch, Inc. a?3 City of Eagan Crosswalk Stacy See Appendix A-2 for inventory of existing crosswalks at uncortrollec (mid -block) intersections. The appropriateness of a mid -block crosswalk that is proposed for a specific location is determined through the following procedure. 1. Establish Pedestrian Volume Establishing pedestrian volume can be accomplished through manual counts or by examining the location and pattern of land uses in the vicinity of a proposed crossing. The latter approach is a more reliable indicator because of the high degree of variability of pedestrian activity. Pedestrian volume can be established by fulfilling one of the three following criteria: Conducting a pedestrian count to ensure that the minimum pedestrian volume threshold, as outlined in Table 1, is met. There is an established continuous community recreationai trail whose route requires crossing a roadway at a location with no traffic control. • There are both an identifiable generator and destination for pedestrians that requires crossing a roadway at a location with no traffic control. Generators and destinations are defined as follows: Generator—a generator of pedestrian demand is defined as a neighborhood or group of residential properties, that consists of at least 50 dwelling units serviced by a street or trail system that is interconnected and allows for pedestrians to freely move about the neighborhood. Destination—The following land uses may represent attractive destinations for pedestrians: - school - park/playground - recreational or community trail - public facility (i.e., Library, YMCA, Community Center) - retail center (i.e., neighborhood retail center, shopping center, etc.) 4 Strgar-Roscoe-Fausch, Inc. :-A City of Lagar, Cr csswalk Study 2. Establish Appropriate Spacing Crosswalks shculd be used sparingly in locations where there is no traffic control. If there is an existing controiied intersection or an existing crosswalk within 660 feet, pedestrians should be encouraged to cross at those locations or the existing mid -block crosswalk should be relocated to provide the greatest benefit. • In general, there should be a minimum of 660 feet between crosswalks if one or both have no traffic control. This is necessary provide adequate advance warning signage. The spacing guidelines do not apply when the crosswalk serves pedestrians and/or bicyclists using a community recreational trail. 3. Functional Classification No crosswalks are necessary on local streets. In an area such, as Eagan. local streets are used regularly as pedestrian, walkways. Mctors:s already expect to see pedestrians in these circumstances sc no ex:ra warning should be necessary. • Marked crosswalks should be limited to neighborhood collectors, community collectors or minor arterials. The only exception to this criteria is when a community recreational trail crosses a local street. 4. Traffic Volume and Speed The determination of the appropriate threshold for traffic volume is bases upon the roadway width and the pedestrian volume. Table 1 provides guidelines based upon these three factors. This table was developed by Strgar-Roscoe-Fausch, Inc.. The critical issue is if there are sufficiert gaps in the traffic flow for pedestrians to cross the roadway. A gap is the amount of time that elapses between the time that two consecutive vehicles pass the same point. An acceptable pedestrian crossing gap is the time that it takes an abie- bodied person to cross the roadway plus the extra time before the arrival of the next vehicle to provide a margin of comfort to the pedestrian. ausch, enc. r.� City of Eagan Crosswalk Srucy Generally, marked pedestrian crosswalks are justified when the average gap in the vehicular flow for any one hour becomes less than the acceptable pedestrian crossing gap for the street under consideration and the pedestrian crossing volume exceeds 10 percent of the number of acceptable gaps for the same one hour of the day. Table 1 lists a typical range of street widths, the associated acceptable crossing gap for that street width, the hourly vehicle volume at which the average gap becomes less than the acceptable gap, and the pedestrian crossing volume that exceeds 10 percent of the acceptable crossing gaps. TABLE 1 RECOMMENDED GUIDELINES FOR ESTABLISHING STANDARD (NON -SCHOOL) MARKED PEDESTRIAN CROSSWALKS Paved Acceptable Vehicular Pedestrian Crossing Roadway Crossing Hourly Volume Hourly Volume Width Gac Threshold ' Threshold 28' 11 seconds 328 vehicles/hour 33 pedestrians/hour 32' 12 seconds 300 vehicles/hour 30 pedestrians/hour 36' 13 seconds 277 vehicles/hour 28 pedestrians/hour 40' 14 seconds 257 vehicles/hour 26 pedestrians/hour 44' 16 seconds 225 vehiclesihour 23 pedestnans/hour 48' 17 seconds 212 vehic!esihour 22 pedestrians/hour 52' 18 seconds 200 vehicles/hour 20 pedestrians/hour Note that when both of these volume thresholds are exceeded for any one hour of the day, a marked crosswalk is justified at that location. The pedestrian crossing volume threshold may be satisfied by the determination of pedestrian demand as outlined above. 5. School Crossings Mid -block crosswalks that primarily serve school children walking to or from school shall meet all of the above criteria. In addition: • For any mid -block school crosswalk to be established, the school that serves as the destination shall, in cooperation with the City Engineer. develop a school route plan. 6 Strgar-Roscoe-Fausch, Inc. Cary of Eagan Crosswaik Study A scoicci route pian wi l outline the reccr ;mended routes tl-�at sc~cc children will take to anc from school anc will outline how this irfcrrnat,c will be communicated to the school criicren. In addition. the iccat;cns where school chiidren are requirea to cross non -local streets and the appropriate crossing protection will be identified. This may include school crossing guards posted at the crossing during the periods when school children are present. School routes should be planned to take advantage of the protection afforded by existing traffic controls. This may make it necessary for chiiaren to walk a non -direct, longer distance. Overall, the school route plan will conform to Part VII of the Minnesota Manual of Uniform Traffic Control (see Appendix B). 6. Other Considerations A pedestriar; accident history at a particuiar Iocaticn may be uses = indicate where crosswalks shouid be evaivated and to heio set anomies for improvements with limited funds. However. accident excerien.ce should not be construed as being necessary to justify a c, waik ncr should accident history by itself be justification for higher levels of protection. Instead. at locations where pedestrian accidents nave occurred. ar. effort should be made to determine if the accicent was incidentai to the characteristics of the roadway or if indeed there is a design deficiency. Many accidents cannot be prevented through traffic engineering. Appendix E provides a description of each pedestrian accident that occurred in the City of Eagan between January 1. 1991 and October 1, 1994. There must be sufficient distance to place the advance warning sign and sufficient distance for motorists to perceive the presence of this sign after turning onto the roadway from an intersecting roadway. In general.. motorists require 100 feet after turning onto a roadway before being able to comfortably adjust to any new potential hazard. Table 2 lists the recommended minimum distance from the nearest intersection for a mid - block crosswalk, except for those intersections which are immediately adjacent to the crosswalk. 7 Zoscoe-Fausch, Inc. City of Eagan Crosswalk Stucy C. GRADE SEPARATION (BRIDGEITUNNEL) The highest level of protection that can be provided at a pedestrian crossing is to construct a bridge or tunnel for pedestrian traffic. Pedestrian grade separations offer an excellent technique for improving pedestrian safety through vertical separation. They may shorten or lengthen the pedestrian's journey, depending on local conditions. Their primary disadvantage is their high initial cost. The relative permanence and capital expense of a pedestrian grade separation effectively limits its application to selected locations of special pedestrian hazard where the benefits to be derived from the structure clearly balance the costs involved. Typically, grade separation is not justified unless the roadway to be crossed is of exceptionally high volume. such as a freeway or expressway. In addition, there must be significant pedestrian volume such as might exist on a multiple purpose trailway or where a significant attraction for pedestrians exists, such as a regional mail, or regional park. To aid in screening and evaluating requests for pedestrian grade separation structures, the Institute of Transportation Engineers has developed criteria to establish the need for these facilities. These warrants are as follows: 1. A high degree of desire for the pedestrian grade separation as demonstrated by petitions or other formal requests by citizen groups, school boards, parent groups, or other qualified groups. 2. The general conditions must be sufficiently permanent to justify the grade separation structure. 3. The location must be on the suggested safest route at an uncontrolled intersection or other mid -block location along a freeway, expressway, or other arterial street where the width, traffic speed, and volume make it undesirable for pedestrians to cross. 4. Re-establishment of pedestrian routes or school attendance boundaries to eliminate the need for a crossing is not feasible. 5. Physical conditions make a grade separation structure technically feasible, including pedestrian channelization to insure that the structure would be used and that pedestrians would not continue to cross at grade. 8 Strgar-Roscoe-Fausch, Inc. F Cary of Eagan, Cresswaix S,,.! --Y Existing or proposed adjacent crossings are at least 6E0d `eet. rr:: - the propcsed grade separation iocation. Traffic signals, adult crossing guards, or other devices are ^c' practical or effective. Traffic and pedestrian volumes are above those required to warrant installation of pedestrian or school signals as outlined the Manual on Uniform Traffic Control Devices. _ 9 Strgar-Roscoe-Fausch. Inc_ Cary of Cagan Cresswaik 111. GUIDELINES FOR SELECTING APPROPRIATE LEVEL OF PROTECTION FOR CROSSWALKS Once criteria have been met to establish a crosswalk at a particular location. the extent of signage, pavement marking and other traffic control or warning devices needs to be determined. All justified crosswalks should have the following: • each crosswalk must have a defined pathway painted on the roadway (or marked with an alternative paving material) • the crosswalk area should be illuminated at night. A. Pedestrian Crossings at Locations with Traffic Stop Control 1. Traffic Signals Crosswalks that cross intersection legs that are controlled by traffic signals require, at a minimum, that the pathway reserved for pedestrians be identified with painted lines that parallel the path of the pedestrian. At the discretion of the City Engineer, the pathway may be painted with sci;c blocks or angled stripes if there is an indication that greater visibiiity ;s desired. A stop bar needs to be provided to identify the location where traffic :s expected to stop. This stop bar must be located such that traffic does nct enter the crosswalk area when waiting at light. Pedestrian indications must be provided at each crosswalk at a signalized intersection. These indications are to be coordinated with the traffic signal timing (see Appendix B, section 4B-28 to 46-35). At locations where crosswalks cross a divided roadway, a pedestrian refuge must be provided in the median. At locations where crosswalks cross a four to five lane undivided facility, a pedestrian island located half -way across the roadway should be strongly considered. �r Strgar-Roscoe-Fauscti, Inc. 30 City cf Eagan Crosswalk Stucy 2. Stop Sirs Crosswalks that cross intersection legs that are controlled by stop sic^s should also be painted with, at a minimum, parallel lines that defire tMe path which pedestrians will take. At the discretion of the City Engineer the pathway may be painted with solic blocks or angled stripes if there is an indication that greater visibility or public awareness is desired. A stop bar needs to be provided to identify the location where traffic is expected to stop. This stop bar must be located such that traffic does not enter the crosswalk when waiting for a pedestrian to clear the crosswalk. At locations where a crosswalk crosses a divided roadway, a pedestrian refuge must be provided in the median. At locations where a crosswalk crosses a four to five lane undivided facility, a pedestrian island located half -way across the roadway should be strongly considered. B. Pedestrian Crossings at Mid -Block Locations without Traffic Stop Control 1. Sianina and Stripinq Crosswalks that cross roadways away from or at uncontrolled intersections must have a defined pathway painted on the roadway ;n blocks or defined by an alternative paving material that is cleariv vis;oie :c appreac:^ing motorists. Parallel stripes will only be used at iccaticns with traffic control. This pathway must either be perpendicular to :rie roadway or foilow the shortest distance feasible. The location of the crosswalk must be marked with signs mounted on the roadway shoulders at each end of the crosswalk. These signs are W" I A-2 with an arrow mounted underneath (SP -P2) (see Appendix B. Sections 2C-31 and 2C-32). Each sign is mounted to face on -coming traffic. At the discretion of the City Engineer, signs may be mounted on both sides of the sign post such that signs are visible to on -coming motorists to mark both ends of the crosswalk. Advanced warning signs should be placed on the roadway in both directions from the crosswalk (W11-2). Table 2 specifies the distance from the crosswalk at which the advanced warning signs must be placed based upon the observed speed on the roadway. Strgar-Roscoe-Fauscrn, Inc. City of Fagan Crosswalk Stcy TABLE 2 CITY OF EAGAN CROSSWALK STUDY GUIDE FOR ADVANCE WARNING SIGN PLACEMENT Posted or 85th Percentile Soeed Distance from Crosswalk to Advance Warnin2 Sign `'' Distance to Nearest intersection 20 (b) 200 25 (b) 200 30 100 200 35 150 250 40 225 325 45 300 400 50 375 475 55 450 550 i 60 550 650 65 650 750 (a) All distances are in feet. (b) No suggested minimum distance provided. At these speeds, sign location depends on physical conditions at site. Source: Minnesota Manual on Uniform Traffic Control Devices (see Appendix S. section 2C-3). 2. Flashin ^ Beacons There should be sufficient site distance in either direction along the roadway to be crossed for a pedestrian to judge if it is safe to cross. The determination of adequate site distance is based upon the speed at whic7 vehicies are traveling and the distance that the pedestrian has to travel (see Table 2). At locations where there is a site distance issue, strong consideration should be given to relocating the crosswalk. If relocaitong the crosswalk is not possible, a flashing hazard idnetificaiton beacon may be justified (see Appendix B, section 4E-1 to 4E-6). Flashing beacons mounted at the crosswalk are justified by: restricted sight distance and/or high approach speeds Strgar-Roscoe-Fausch, Inc. 3cZ 12 f f City of Eagan Crosswalk Study Sight distance is considered restricted if a rnctcrst cannot see a 24 n�^ high object in the crosswalk when passing a properly located advances warning sign. High approach speed exists where the 85th percentile. as determined through a speed study, is greater than, 50 mph. If a flashing beacon is determined to be justified. the beacon can be set t.- flash cflash at those hours of the day during which pedestrians are mos: likely to be present or pedestrian actuated flashing beacons may be substituted for pre -timed beacons. Flashing beacons may be mounted on top of the crosswalk signs or on overhead mast -arms. Overhead mast -arms are appropriate for multi -lane roadways or in locations where the elevated height of the flashers are necessary to improve driver awareness of the crosswalk (see Appendix F). 3. Stop Sion Control For a stop sign to be Justified on the -basis of pedestrian volumes. there must be a combined average vehicuiar and pedestrian voiume cf 2::1 units per hour for 8 hours. The complete text of the requirement !s reproduced in Appendix B, section 29-6). 4. Traffic -Control Signal (Pedestrian Actuated) The installation of a pedestrian actuated traffic stop signal is covered under Warrant 3 for the installation of traffic signals as pubiisined m the Minnesota Manual of Uniform Transit Controi Devices (MUTCD;. The entire text of this section is reproduced in Appendix B. section 4C In summary, for a pedestrian actuated traffic signal to be warranted, there must be a minimum pedestrian volume, during an average day; of: 100 or more for each of any four hours: or • 190 or more during any one hour. In addition to the minimum pedestrian volume, there must be less than 60 gaps per hour in the traffic stream of adequate length for pedestrians to cross. The determination of the adequate length of pedestrian gaps is defined in Table 1. 13 Strgar-Roscoe-Fauscn, enc. NN Cay c`cagar, Cressvva,K The pedestrian volume warrant may be reduced where the predominar., pedestrian crossing speed is less than 3.5 feet per second. This may be due to a high percentage of physically challenged, senior citizen. or pre- school pedestrians. 5. School Crossings School crossings at mid -block locations without traffic stop control will conform to the above policies with the following exceptions: The crossing shall be marked with an S2-1 sign with an S2 -P2 down arrow pointing to the location of the crossing (see Appendix B. Section 7B-10). The school advance warning sign (S1-1) shall be placed between -,15c) feet and 700 feet in advance of the school grounds or school crossing (see Appendix B. Section 7B-9). The school may elect to provide a school crossing guard during the 'ours when school chiidren are present. in accordance with an approved sc!icci route plan (see Appendix B, Section 7E). The criteria for establishing a pedestrian actuated traffic signal is modifiec such that some form of traffic control is needed when the number of adequate gaps in the traffic stream, during the period the children are using the crossing, is less than the number of minutes in that same time period (i.e., less than one gap per minute) (see Appendix B. Section 7A---- and A-3and "/D). 14 Strgar-Roscoe-Fausch, Inc. ,3 Y Crty of Eagan Cresswaoik Stir* IV. ESTIMATED COSTS Tabie 3 identifies the estimated cast for each type of pedestrian crossing. TABLE 3 CITY OF EAGAN CROSSWALK STUDY ESTIMATED COST OF VARIOUS LEVELS OF CROSSWALK PROTECTION e of Crossi Intersection Crosswalk Mid -Block Crosswalk • Signed and Marked Only ® Flashers Mounted on Signposts - timec - pedestrian actuated • Flashers Mounted on Mast -Arms Traffic Signal—Pedestrian Actuates Grade Separated '1995 estimates. Sugar-Roscoe-Fausch, Inc. ,.3s Initial Construction Cost' $75.00 $400.00 $6,000.00 $7,000.00 $13,500.00 $60=0.00 $150.000 - 5350;OOv City of Eagan C,'Csswa/k St dv V. A PROCEDURE FOR RESPONDING TO CITIZEN REQUESTS One of the key purposes of this study is defining an objective procedure for dealing with citizen requests. When a citizen request action to be taken related to the establishment or improvement of a crosswalk, the following general procedure should be followed: A. GENERAL PROCEDURE 1. The first step is to determine if the requested crosswalk fits the criteria outlined in this policy regarding the establishment of a crosswalk. • If the criteria is met, staff may install signs and pavement markings as appropriate provided there are available funds for the installation. • If the criteria is not meet. staff will deny the request based upon the policy outlined herein. 2. If the criteria is not met for the establishment of a crosswalk and staff has denied the request for a crossing on that basis, the request for the crosswalk will be forwarded to the City Council with a staff report only if it is accompanied with a petition signed by residents of at least 25 dwelling units serviced by the requested location. Request for a crosswalk at a location that does not fit the criteria outlined herein will require a vote of 3 of 5 council members for approval. • Requests for crosswalks that are approved under special council action will be installed immediately if funding is available. 3. If funding is not available in the Public Works Department budget to immediately install an approved crosswalk, a vote of 3 of 5 council members will be necessary to transfer funding from another source. Otherwise, unfunded cross walks will be submitted for funding along with other eligible projects as part of the normal budgeting process. 16 Strgar-Roscoe-Fausch, Inc. City of Eagan Crosswalk Study B. STAFF RESEARCH REPORT If a staff research report is necessary, it wiil take the following format: 1. Information Collection The following pieces of information need to be collected in order to make an appropriate recommendation regarding the establishment of a crosswalk: a. Between what points (or areas) do pedestrians travel? b. What is the functional classification of the roadway to be crossed? C. What is the traffic volume? d. What is the projected pedestrian volume? e. What is the width of the roadway? f. Are there special characteristics of the people expected to use the cressing (i.e., eiderly, school-age; etc.)? g. How fast is traffic moving? h. Inventory of existing traffic control. 2. Analyze Information Once the basic information is collected, the following issues must be addressed. a. Intersection versus mid -block? If it is possible to establish a crosswalk at an intersection to satisfy the demand, this should be done. If establishing an intersection~ crosswalk would result in a walk that is enough of a diversion for pedestrians that they would cross mid -block anyway, then a mid - block crossing may be warranted. .i Sugar-Roscoe-Fausch. Inc. 3�7 City of Eagan Crosswalk Stucv b. Is a mid -block crossing warranted? Using the information collected, determine if the volume of pedestrian traffic meets the minimum threshold outlined in the guidelines. C. What type of crossing protection is warranted? Using the information collected and the guidelines outlined earlier. determine what type of crossing protection is appropriate. 3. Prepare Recommendations Based on the information collected in the field, the analysis performed above, and the guidelines outlined in this report, prepare recommendations to be made to the City Council. 18 Strgar-Roscoe-Fausch, Inc. 1` y EAGAN CITY COUNCIL MINUTES, MAY 15, INS PAGE 0 the building. He urged Council approval. There being no one else wishing to speak, Mayor Egan turned discussion back to the Council. Councilmember Masin asked If there was input from the business community when the ordinance on building standards was developed. Community Development Director Reichert indicated that input was obtained from other communities, as well as from Opus and Northwestern Mutual, but the ordinance originated in Community Development at the request of the City Council in order to place into code our Informal policies. Councilmember Masin noted that since Mr. Cossette wasn't made aware of this ordinance change, she feels the city owes an obligation to allow him to put up the second building. Councilmember Hunter noted if Mr. Remick Initiated discussions with the city before the ordinance was enacted, the city would be giving this applicant preferential treatment. Community Development Director Reichert noted that when Mr. Remick applied for his conditional use pewit, he was told there was a pending ordinance that could present a problem. In this case, he didn't know about the ordinance in November, but In early March, he was told as soon as they became aware that he was going forward to subdivide the property. Councilmember Hunter expressed a concern that If the Council approves this variance, someone can come in and say they had discussions with staff three years ago and expect to be granted a variance. Councilmember Awada concurred, stating the Council needs to treat everyone the same. Discussion followed concerning the nature of discussions with Mr. Cossette, whether a variance is warranted In this case, and what criteria should be used for variances from this ordinance in the future. Councilmember Masin stated she would be wilting to grant this variance because he has been in discussions with staff for quite some time. Councilmember Hunter suggested that if there has been active, tangible review of pians by staff before the ordinance was enacted, it would be grounds for granting a variance. Masin moved, Hunter seconded a motion to approve the variance. Community Development Director Reichert requested clarification as to what level of discussion constitutes "substantiae discussion. Councilmember Wachter indicated it needs to be serious discussion before a variance will be considered. Mayor Egan noted it needs to be something tangible and supportable. Councilmember Hunter added that the burden of proof is on the applicant to produce documentation or something tangible in the event that staff disagreed that "substantial discussion had taken place. Aye: 5 Nay: 0 PEDESTRIAN CROSSWALK STUDY After introductions by Mayor Egan and Administrator Hedges, Director of Public Works Colbert gave a staff report on this. He reviewed the process used to develop this study, the results of the study, and the proposed policy. Councilmember Hunter asked for an explanation of the manual on Uniform Traffic Control Devices and Director of Public Works Colbert gave an explanation, noting that it provides a certain amount of discretionary immunity to communities that adopt It as standards. Discussion followed conceming discretionary immunity and lability, the action to be taken on this item, whether the stop sign request should be delayed, and whether this study should be sent to the Advisory Paries, Recreation d Natural Resources Commission. Councilmember Awada expressed a concern about this study, stating she foots sometimes issues are overanalyzed when common sense could simply be used. She feels a lot of money was spent to analyze every crosswalk and put It In a book when the existing policy works. She feels It is inappropriate. Director of Public Works Colbert noted that the majority of the study is the analysis of existing crosswalks. Part of the reason for that is to detemvne how much to budget for crosswalk striping, pavement marking and signage. The actual policy Is 18 pages. Councilmember Awada stated she feels it is beyond what the EAGAN CRY COUNCIL MINUTES; MAY 15, INS PAGE G city needs to do and beyond what taxpayers should be funding. Councilmember Hunter noted a significant amount of this document is not only the crosswalks, but the code. This Information has a lot of other uses. Councilmember Wachter added that the Council requested this. Wachter moved, Masin seconded a motion to approve the draft pedestrian crosswalk study/policy. Councilmember Hunter questioned the petition process in the policy. Councilmember Awada suggested It would be easier to just put crosswalks at every major intersection instead of having to review every request. Mayor Egan indicated that putting in numerous crosswalks would put the city at substantial liability. Councilmember Hunter noted that at some intersections, the crosswalk would make the intersection less safe. Awada stated she feels this policy creates a lot of bureaucracy. Aye: 4 Nay: 1 (Awada opposed.) STOP SIGN REQUEST, WILDERNESS RUN ROAD C WEDGEWOOD DRIVE After introductions by Mayor Egan and Administrator Hedges, Director of Public Works Colbert gave a staff report on this, noting that based on the criteria, it was determined that installation of stop signs on Wilderness Run Road are not warranted. A request was then made to provide some higher level of protection at that intersection because it serves as a crosswalk from the Wedgewood Addition residential neighborhood to Walnut Hill Park playground. Patti Schilling, 4442 Wedgewood Drive, stated that the problem is the site distance to the east of Wedgewood Drive and crossing Into Walnut Hill Park from Wedgewood Drive across Wilderness Run Road. There is restricted view because of vegetation to the east. She reviewed the results of the speed study and the safe stopping distance, noting it should be based on how fast the cars are actually going rather than the posted speed limit. She also questioned the electrical costs of a pedestrian activated crosswalk. She indicated she feels this study should be redone because it Is two years old and she feels there are more pedestrians crossing now. Director of Public Works Colbert indicated he doesn't know of any significant development in this area in the past two years. He indicated he can redo the speed study if the Council wishes. Councilmember Awada noted that this intersection doesn't meet warrants, but common sense says something needs to be done there. Councilmember Hunter noted that if criteria Is set and isn't followed, there will be numerous other requests just like this. He doesn't agree with setting a precedent by allowing this. He noted he has received a couple of calls from people in the neighborhood who are opposed to this. Mayor Egan added that by inappropriately locating signs, a greater safety hazard Is created. Councilmember Wachter noted that the policy was just adopted tonight, and the Council is already looking at making an exception. Councilmember Masin stated that the unique situation here is that it Is near a park. Since the policy is going to the Advisory Parks, Recreation 3 Natural Resources Commission, perhaps they could address that issue. Councilmember Awada suggested this be continued rather than denied to give the APRNRC a chance to review the policy. Awada moved, Masin seconded a motion to continue this for 60 days. Councilmember Wachter suggested that assessments be pursued as a possible funding source. Aye: 5 Nay: 0 COMPREHENSIVE GUIDE PLAN AMENDMENT, LONE OAK AREA ORDINANCE TERMINATING MORATORIUM; REZONING After Introductions by Mayor Egan and Administrator Hedges, Community Development Director Reichert pave a staff report on this issue. Jill West, 600 Lone Oak Road, asked about the existing septic systems. Community Development Director Reichert indicated that the Metropolitan Council asked them to carry out a monitoring and Inspection and pumping program for the existing on-site systems. It is Z/O Advisory Parks, Recreation and Natural Resources Commission Minutes of June 19, 1995 Meeting Page 8 PEDESTRIAN CROSSWALK POLICY Director Vraa introduced this item explaining that the City Council has requested that the APRNRC review the draft Pedestrian Crosswalk Policy and provide any recommendations regarding modifications and that they review the existing pedestrian crosswalk on Wilderness Run Road at Wedgewood Drive connecting the Wedgewood Addition to Walnut Hill Park to determine if a higher level of pedestrian crossing should be provided beyond existing pavement markings and signage. Public Works Director Colbert explained that a petition has been submitted asking for a 4 -way stop at Wilderness Run Road and Wedgewood. In reviewing this request speed, traffic count, accident history and site distance were taken into consideration. Based on information obtained and using the uniform manual for control, Director Colbert stated there were not sufficient warrants to provide a 4 -way stop at this intersection. The residents near this area have indicated that if stop signs are not an option, they would like to see a higher level of pedestrian crossing through flashing lights, or other methods. It was noted that there have been 18 pedestrian accidents in the past 4 years with only 2 location where more than 1 accident occurred. Six of the accidents were at signalized intersections and 8 of the 18 were along Diffley Road. It was noted that there is concern for a false sense of security with crosswalks and traffic engineers caution that these should be used sparingly. If a flash:.ng beacon is to be recommended, the question would be whether it should be pedestrian activated of operational 24 hours a day. There is some concern. Colbert continued that a pedestrian activated flasher creates an even greater sense of false security. Member Vincent asked if a pedestrian activated stop had been considered. Colbert responded that that option had not been pursued. Vincent added that the City needs to be very selective in their use of crossings to avoid a false sense of security. Stephen Thompson commented that the crossing at Pilot Knob Road and Wilderness Run Road is also another very difficult one. Colbert responded that that intersection, along with Highline TrailiLexington Avenue and Johnny CakwCovington, may warrant further investigation as well. Member Wallace opined that we are in the business of getting people out and walking but expressed concern for the costs involved in stop signs and signalization for pedestrian crossings. Wallace suggested an option such as 'rumble strips' in the roadway to alert drivers to a slower speed of impending pedestrian crosswalk. Director Colbert responded that staff will pursue this option as well, however, the City Council is looking for direction and input from the APRNRC so the issue can return to the City Council on July 18. Member Wallace suggested that this issue be reviewed at greater length at the sub -committee leve' and provide input to the APRNRC on July 17 for a recommendation to the City Council for their July 18 meeting. Patty Schilling stated she had started this process in May, 1993 to try to provide a safer access to Walnut Hill Park from the Wedgewood neighborhood given the high speed of motorists in this arca and the restricted view those motorists have. She opined that the reports being referenced that establish criteria for signalization are based on a straight road for a safe stopping distance. She stated that the restrictive view on this street provide a difficult issue to resolve. Schilling explained that the residents are attempting to cross into Walnut Hill Park and find it extremely difficult and dangerous because of the speed of the traffic, and restricted view. She stated that most people crossing to the park are children or parents and their small children in strollers or on bikes requiring more time than adults alone may need. Director Colbert responded that all groups are taken into account when, analyzing crosswalk criteria with the exception of physically challenged individuals.' 91 Advisory Parks, Recreation and Natural Resources Commission Minutes of June 19, 1995 Meeting Page 9 After further discussion, Sherie Wallace moved, Michael Vincent seconded with all members voting in favor to defer this item to the Recreation Sub -committee meeting on Thursday, June 21 and that a recommendation be brought back to the full Commission at their July 17 meeting for review and recommendation to the City Council. This review will be relative to crosswalks as they apply to access to parks. DRAFT OF BEHAVIOR POLICY Recreation Supervisor Nowariak explained that after the 1994 summer programs, staff had recommended that the Commission consider adopting a uniform behavior policy for program participants. The Recreation Subcommittee has reviewed this draft policy that has been compiled following research from several other cities and public agencies. Staff is asking that the Commission make a recommendation relative to this policy so that it can be incorporated in the summer programs currently underway. Member Wallace thanked Supervisor Nowariak for her report and the research and analysis that has gone into this behavior policy. Wallace moved, Rudolph seconded with all members voting in favor to accept the Behavior Policy as presented and have it distributed to parents and participants currently enrolled in summer programs. BORCHERTANGERSOLL PROPERTY ACQUISITION UPDATE Director Vraa explained that the owner of property east of Mike Collins Drive, north or Yankee Doodle Road and west of the BorchertlIngersoll property will be developing. The owner has approached the City to see if there was interest in acquiring any or several of the lots to incorporate into North Park. Staff has reviewed the proposal and feels that Lot 7 has the opportunity to continue the trail around the wetland within North Park. After a brief discussion, Stephen Thompson moved, Jonathan Widem seconded with all members voting in favor to direct staff to pursue discussions with the land owner to attempt to acquire lot(s) and easements to provide a trail around the wetland within North Park. PARKS DEVELOPMENT UPDATE Parks Planner/Landscape Architect Lilly reviewed several park projects currently underway including, trail alignment on the south side of the BorchertiIngersoll property, landscaping and playground for Holz Farm Park, irrigation and fencing at Lexington Diffley Athletic site, refined landscaping plan for the Municipal Center/Civic Arena site and playground for Red Pine Elementary School. WATER RESOURCES UPDATE Water Resources Coordinator Brasch explained that the Natural Resources Subcommittee met May 31 relative to Pond JP -23. The issues that arose during a meeting with the residents included whether the NWL could be raised or lowered, what measures the City and residents could take to protect water quality in the pond, and the process for addressing a change in the classification of the pond. Rich explained that a written evaluation for the reclassification of Pond JP -23 will be provided at the July 17 Commission meeting. Another issue for the Commission to address is the review of the water quality management plan. Brasch suggested setting a date for a Natural Resources Sub -committee meeting to review this issue further 4 a Advisory Parks, Recreation and Natural Resources Commission Minutes of July 19, 1995 Meeting Page 3 Member Vincent questioned the rational for incorporating future lease dollars within the value of a parcel as Gopher Resources has shown. Vincent explained that the lease dollars are not relevant and should not be incorporated into the value. Mr. Tapper responded that it was felt that the composting site should remain at its present location and this provision allows the City to receive the revenue from this site over the next 3 years. Gopher Resources is taking the risk in that the compost site may not generate $12,000 per year, which is what has been projected, Tapper added. He did note, however, that this is not typically figured into the value of a parcel. Member Vincent continued that the way the agreement is set up, the City is a responsible partne! in the composting site but the revenues have been calculated into the value. He opined that this implies that the City will also be responsible for the relocation of the site once the 3 year time period has expired. Mr. Tapper explained that after 3 years the City is being asked to facilitate the move and his interpretation is that the City will 'support' the relocation of the composting site if necessary. Member Vincent again explained that he would like to see this issue clarified in the agreement. Mr. Tapper explained that he would clarify the City's responsibility with this issue, specifying that it would be simply support, with no financial obligation in the future. The City's responsibility can then be addressed at the end of the 3 year period. After further brief discussion, Jonathan Widem moved, Tom Walkington seconded with all members voting in favor to recommend that the draft agreement with Gopher Smelting for the North Park land exchange be forwarded onto the City Council for their review and action based on the recommendations made by the Advisory Parks, Recreation and Natural Resources Commission. PEDESTRIAN CROSSWALK POLICY Superintendent Peterson summarized the discussion held by the Recreation Subcommittee relative to the crosswalk policy and reviewed the four recommendations the subcommittee was suggesting for Commission review and action. Member Wallace indicated the Recreation Subcommittee had had a good discussion of this issue and had looked at a variety of park sites that may have crosswalk concerns. The subcommittee concluded that there is a need to look at each situation individually and assess the concerns and need. A study will be completed shortly addressing some of these crosswalk issues as they impact access to parks. Safety, Wallace continued, was the primary issue during the discussion. It was suggested that a representative of the APRNRC would work with other department representatives to address the safety issues. Member Rudolph stated that because this is such a new area, this issue needs to be worked on slowly and adjusted/adapted as necessary. Rudolph concluded that there was very good input from the people attending the subcommittee meeting. Member Kubik asked what staff involvement would be in this process. Member Rudolph responded that they would need to look at vehicle traffic, site lines, etc. which will be worked on cooperatively with the Engineering Department. After a brief discussion John Rudolph moved, Jonathan Widern seconded with all members voting In favor to make the following recommendation to the City Council: 1. A separate section addressing crosswalks to parks be written for the Pedestrian Crosswalk Policy. An objective matrix of safety warrants be developed based on vehicular speed, volume, width of street, visibility and pedestrian demographics. 2. A pedestrian study be conducted. 3. Consideration be given to creating a safety review ad hoc committee whose purpose would be to review neighborhood requests for crosswalk safety devices of a higher leve! than warranted by the objective matrix. + Advisory Parks, Recreation and Natural Resources Commission Minutes of July 19, 1995 Meeting Page 4 A. The City's sidewalk policy be utilized as the standard for neighborhood financial participation for installation of pedestrian crosswalk devices that supersede the objective matrix level of protection. MOSQUITO CONTROL RECOMMENDATION Parks Superintendent Olson introduced this item explaining that in February, 1994 the City Council had directed the APRNRC to review and develop a recommendation regarding mosquito control practices in the City of Eagan. The Natural Resources Subcommittee discussed this issue on October 5, 1994 followed by APRNRC discussion on October 17 wherein the Commission deferred this item to allow time for additional input from interest groups and the public. A press release was placed in the local papers in June identifying a public hearing on June 15 and soliciting public input through July 1, 1995. On June 15, 1995, Olson continued, the public hearing was held as requested by the City Council, to collect comments pertaining to this issue with 4 representatives of the MMCD, one citizen and one representative of the Human Ecology Action League present. Public comment remained open and was received through July 1 As a follow-up to the public hearing, MMCD and the Human Ecology Action League were offered the opportunity to submit written summaries of their positions which Superintendent Olson indicated were included within the packet. The Natural Resources sub -committee reviewed this issue for recommendation again on July 11 resulting in divided opinions. Superintendent Olson concluded that the issue is now before the Commission for their review and recommendation to the City Council. It is expected that the Council will be reviewing this issue on July 18, 1995. Superintendent Olson added that approximately 20 letters had been received during the public comment period with 18 indicating support for the MMCD program and 2 expressing concerns related to the use of chemicals. Options identified for the Commission to consider included 1) continuing participation in the current mosquito control program; 2) continuing the current MMCD program but not to allow the spraying of adult mosquito habitat on public property; 3) allow for adult spraying but eliminate larval treatment; 4)'opt' out of the MMCD nuisance mosquito control program and/or 5) educate the public regarding alternative control methods and their options as landowners. Olson commented that some communities have opted out of the MMCD program and individuals have also opted out of this program as well. Chairman Markell asked if there was anyone from the public present to address this issue. Jim Starke, Public Affairs for the MMCD responded that they were present to respond to any questions the Commission may have relative to this issue. He stated that the public input process is very much appreciated and was pleased that the majority of Eagan residents, based on the response from the public, have expressed support for the MMCD program as it exists. Starke did note that although some cities have opted out of the program on public land, the City of Lakeville is an example of a city that looked at the process several years ago and opted to stay with the MMCD program. tt was noted that environmental compatibility and safety are the two biggest issues the MMCD considers in working with mosquito control Issues. He indicated that park and recreation areas are posted when spraying is =oing to occur and there is a recorded message that is updated daily for residents to call for that information. Additionally, individuals can call and ask to be contacted directly when spraying will occur near their home. The MMCD, Starke continued, wants to continue protecting the health and well-being of Eagan residents and they firmly believe in the safety of their program. Member Widem, chairman of the Natural Resources sub -committee, stated that when this issue was discussed at the sub -committee level the opinions were divided. He stated that with the support of the EPA and the Mn. Dept of Health he was comfortable with the products being used by the MMCD for mosquito control. In addition, it was apparent that the response from the public to date overwhelmingly supported 3 -13- 96 evdz?; sT Nuj- VISP.4rc# Pedestrians in driver's seat j under bill sent to govemor- ■ Vehicles would have to stop at crosswalks JIM RAGSDALE STAFF w rQ,rER If you've ever tried to traverse Lake Street in Minneapolis or Cleveland Avenue in St. Paul and felt like a bull- fighter without a cape, take bean. The Legislature approved a bill Tues- day that requires drivers to stop at cross- walks when a pedestrian is crossing, whether or not the walker is in the driv- er's lane of traffic. Linder current law governing cross- walks without traffic signals, drivers are LMC, BILL T DON-IN;;EDI rR !N :e required to yield, but not to stop That means they can slow down and keep going if the pedestrian is not in their way. According to Sen. Randy Kelly, DFL -St. Paul, this looseness in the law has emboldened drivers to take a daredevil approach to crosswalk safety. A con- stituent called him last summer after a ceding driver missed her by inches in a crosswalk on White Bear Avenue, he said. "Minnesota motorists have really got- ten callous and arrogant," Kelly said.. There really needs to be a cultural, change in this state." The bill. which was passed unanimously by both houses and was sent to Gov. Arne Carlson. requires drivers to stop and yield. rather than merely slow down. when they see pedestrians in crosswalks without traffic signals. It makes a violation a misdemean- or. and makes a second violation within one year a gross misde- meanor. Kellv and the House sponsor, Rep. Jim Farrell, DFL -St. Paul, 5,7.,c4 A:11 els BILL CONIIINJED ON 4110- T B► said concern for pedestrian safety will become more important as the percentage of elderly people in the population increases. The bill calls on the Publie Safety Depart- ment to include information about the new rule in drivers manuals and public service announcements. Farrell said he became :on- vinced of the need for the law when he and his wife were cross- ing Cleveland Avenue late one night after going to a movie. He said several carloads of young people sped by, much too close for comfort. The movie the Farrells had just seen' "Dead Man Walking." MEMO city of eagan - DATE: MAY 10, 1996 TO: TOM HEDGES, CITY ADMINISTRATOR FROM: KEN VRAA, DIRECTOR OF PARKS AND RECREATION SUBJECT: BOND REFERENDUM TASK FORCE UPDATE May 9 was the sixth meeting of the Bond Referendum Task Force. At least one more meeting is planned by the group before a final recommendation is prepared for the City Council. After having visited 23 candidate sites, the Task Force is in general agreement that there is a need and desire for a referendum. The Task Force has concluded that the City should seek to acquire, by purchase or through conservation easement, between 95-125 acres but that final selection from the 23 sites not be done untilf� the referendum. If the referendum is successful, the City Council should continue the Task Force and add additional citizens who would then assist with determining the final sites to be purchased. David Szott, Chair of the Task Force will be at the workshop to further explain the status of the Task Force and the work that remains before the full presentation to the Council at their June 4 meeting. KV: cm �f6 —city of eagan TO: HONORABLE MAYOR & CITY COUNCILMEMBERS FROM: CITY ADMINISTRATOR DATE: MAY 8, 1996 SUBJECT: SPECIAL ADVISORY COMMITTEES (TASK FORCES) At a recent retreat, I was directed by the City Council to prepare a basic framework for discussion purposes regarding an assortment of special advisory committees which the City may or may not wish to establish in the future. Five different potential committees were suggested by the Council for future discussion and consideration. These include: 1. City Charter Committee 2. Community Vision Committee 3. Capital Budget Committee 4. Zoning & Comprehensive Guide Plan Update Study Committee 5. Youth Committee Attached is preliminary information regarding the first four suggestions as listed above. Nothing yet has been prepared regarding a Youth Committee, but I will be happy to draft the information if the Council still wishes to consider such a committee. At this stage, consideration would still be in the discussion stage. Given the number of projects and issues presently before the City, it would probably be impossible for staff currently to establish and perform support and liaison services to a number of additional committees. Therefore, if the Council wishes to consider the actual creation of one or more of the above committees, it would be important at this time for the Council to discuss the concepts of and needs for each of the committees in order to establish a priority order for them. s/Thomas L. Hedges City Administrator Attachments EiM0 CITY CHARTER COMMITTEE PURPOSE: To study the advantages and disadvantages of Home Rule Charter and statutory forms of government and to determine whether the City of Eagan would be better served by its current statutory form or a Home Rule Charter. OBJECTIVES: The objectives of the Committee would be as follows: 1. To determine whether a need exists to change the City's form of government. 2. To identify and analyze the advantages and disadvantages of Home Rule Charters and statutory forms of government. 3. To determine how each of the forms of government meet Eagan's current and future needs. 4. To formulate a recommendation to the City Council concerning the advisability of a change in the form of government for the City of Eagan. TIMELINE: The City Charter Committee would accomplish its work over a six month period. Month 1 Appoint Committee and hold organizational meeting. Months 2-3 Perform fact finding and compile data. Months 4-5 Interview officials of cities who have other forms of government or who have changed forms of government. Do public opinion research to determine resident attitudes about the authorities available under each form. Month 6 Formulate recommendation to City Council. Month 7 Present recommendation and schedule public hearing, if appropriate. PARTICIPANTS: The Committee should represent a cross section of public interests and people with different levels of experience with local government. A group of approximately nine (9) to eleven (11) is suggested. Appointments could include: Residents Advisory Commission Member(s) City Councilmember(s) Chamber of Commerce School District(s) MEMO TO: CITY ADMINISTRATOR HEDGES FROM: ASSISTANT TO THE CITY ADMINISTRATOR HOHENSTEIN DATE: JANUARY 11, 1995 SUBJECT: FORM OF GOVERNMENT - HOME RULE CHARTER TASK FORCE In the past, the City has done considerable research with respect to forms of government and the possible advantages and disadvantages of changing forms. Attached are some brief background items on the issue. They are somewhat dated, in part because the availability of most powers in one of the two statutory forms of government have diminished the perceived need for unique local charters. Prior to the availability of the statutory forms, city charters were very common and many older, free-standing cities have maintained and updated their charters to meet their changing needs. Some have switche to a statutory form and most younger cities use one of the statutory forms. A number of cities have studied the advantages and disadvantages of charters over the years. Burnsville and Eden Prairie had study task forces in the early 1980's, but concluded that the statutory form of government suited their needs. Eden Prairie's study in particular offers good comparisons of the relative merits of the alternatives. In the past five years, I have only been able to identify two cities which have elected to change from a statutory form to a charter, Plymouth in 1992 and Corcoran in 1994. In Plymouth's case, the primary purpose was to develop a modified ward system for Council elections and to permit initiative and referendum, alternatives not typically available to statutory cities. Corcoran instituted a home rule charter to allow initiative, referendum and recall, although these additional powers have yet to be used. City staff there said that If this power were available in statute, there would have been little reason for them to change. The essential issue is one of policy. What does the community perceive its needs to be and are there any needs so unique that the necessary controls and authorities do not exist in one of the statutory forms? It may be worthwhile to consider the creation of a Form of Government Task Force or Study Committee to review this matter and consider whether to place any question on a future ballot. There are clearly pros and cons to each alternative. A study committee would permit these to be openly debated and form a popular basis of support for any outcome. More information is on file if the Council wishes further analysis or a study committee is formed. Let me know if you have would like more background. AssVtant to the City Administrator so ADMINISTRATOR --STATUTORY PLAN' A The City of Eagan currently operates as an Optional Plan A Statutory City under Minnesota Statutes 412. Under this form of government, all legislative and administrative authority vests in the City Council. This body may appoint professional staff and administrative commissions to oversee day-to-day activities and carry out policy direction. Such cities may also appoint a professional City Administrator and delegate non - discretionary, coordinating authority for such responsibilities as supervision of workers, accounting, preparation of reports, factual determinations, and execution of Council policies. In adopting Optional Plan A, Eagan exercised this option. While the Council -Administrator form resembles the Council -Manager form in many respects, the principal difference is that in Administrator cities, discretionary administrative responsibilities such as hiring and firing and most spending decisions remain with the City Council. Under strict interpretations of this form of government, the Administrator is actually a coordinator and departments are ultimately responsible to the City Council. As cities grow and become increasingly complex, councils may find themselves involved in the details and minutia of administration rather than the policy and legislative functions which they must necessarily perform. Currently, Eagan is the largest City in Minnesota with this form of government. MA.N, AGER --STATUTORY PLAN B The City of Eagan has the option of becoming Plan B Statutory City under the same statute. The Plan calls for a Council -Manager form of government under which the chief administrative officer ' s duties are expanded to include hiring and firing and purchasing decisions within the parameters of the approved budget. The Council Is role is still one of policy and legislation, but is less involved in the minute details of administration. In practice, the City of Eagan has delegated to the City Administrator many duties comparable to those of a City Manager. While all such duties are practical in nature, some may more appropriately be performed under the statutory authority of Optional Plan B. Under this form of government, the following types of business items are handled administratively, without Council action: 1. Enforcing city ordinances and resolutions, 2. Hiring and firing of all department heads and subordinate personnel on the basis of merit and fitness (although the Council could have an advisory role in the case of department heads) 3. Appoint the City Attorney with Council confirmation, 4. Exercising administrative control over all city departments and divisions created by law or by the Council, 5. Attending all meetings of the council, 6. Recommending to the Council such measures necessary for the welfare of the people and the efficient administration of the city, 7. Making reports on the financial condition and needs of the city, s� 8. Preparing, if the council directs, an administrative code for Council adoption, 9. Assuming all duties the manager receives under state laws, city ordinances and council resolutions, 10. Acting as the chief purchasing agent for the city. As purchasing agents, managers are responsible for all purchasing. Managers may, in conformance with the budget but without prior council approval, make purchases and let contracts when the amount does not exceed $1,000. However, city councils must audit claims resulting from such transactions. Larger purchases and contracts still need council approval. Examples of actions which would continue to require Council action: 1. Public Hearings, 2. Feasibility Reports, 3. Large or unbudgeted expenditures, 4. Joint Powers Agreements, 5. Zoning, land use and piatting, 6. City Manager Salary, and 7. All other legislative and policy decisions. There are also other differences between administrator and manager plans. 1. With the exception of civil service and joint powers commissions, all boards and commissions under Optional Plan B must be advisory in nature, 2. While it is only reasonable and has been a past practice, Optional Plan B cities require the Manager to prepare an annual budget for public review and Council approval, 3. The Council as a whole and individually are legally prohibited from interfering with the Manager Is prerogative to hire employees, 4. The Council is legally required to exert all of its controls through the City Manager and is prohibited from attempting to deal with or directly control any administrative person subordinate to the manager (although this does not preclude council members requesting information pertaining to City business from employees other than the manager), 5. The Manager signs written instruments on behalf of the city instead of the City Clerk. MANAGER --HOME RULE CHARTER Another alternative would be to draft a Home -Rule Charter under Minnesota Statutes 410. The home -rule charters permit cities to define different parameters and authorities than the statutes permit. Charters can permit such things as referenda on ballots for non -capital expenditure issues, recall elections and modified roles for Mayors and other office holders. Since the development of the statutory cities legislation, increasingly few cities have drafted entirely new charters. There are instances, however, in which cities unable to cope with SA certain special circumstances in the context of the statutory framework have drafted new charters based on and enlarging upon the statute. Home -rule charter cities are typically older, free standing cities which predated the pertinent sections of MSA 412. MODIFYING THE FORM OF GOVERN EENT Changing from one form of Statutory City to another requires a petition from the public or an action by the City Council to place the issue on the ballot for adoption by the public. The change goes into effect as soon as the voters adopt it and becomes fully operable when the Council appoints the first City Manager. A home -rule charter requires the formation of a charter commission which defines the parameters of authority within the charter and then meet on a regular, infrequent basis to consider modifications to the charter as the need arises. S 3 City home rule: is it still alive in Minnesota? Stan Peskar, LMC General Counsel For the first time in the state's history, a city has abandoned a city charter. Another is considering doing the same. Since 1984, no city in Min- nesota has adopted a city charter. There appears to be a trend away from home rule for Minnesota cities. The vitality of Minnesota home rule move- ment is on the decrease from previous years, as shown by the number of cities using the concept. Why Cities use home rule Most cities adopt home rule to pro- vide for the governmental structure and powers which most appropriately fit that community. The impetus for home rule is often from people within the community who are dissatisfied with municipal activities. These people seek to limit or curb council and may- oral power as well as improve municipal performance. The situation in Moundsview illus- trates this point. After much citizen dissatisfaction with special assessment powers and policies, Moundsview saw the creation of a charter commission. The Excelsior provisions on referen- dum and recall followed community opposition to proposed city land acqui- sition and commercial development. To authorize activities and provide powers cities generally don't have another reason for home rule. Many home rule cities were promoting com- mercial and industrial development before general legislation authorized many such activities. The provisions of initiative, referen- dum, and in many cases recall, have been major reasons for cities to adopt charters, at least in recent years. Charters may provide a way for special interest groups within a community to seek redress of city governmental problems without going to the Legisla- ture to seek a solution. Since a court decision set limitations or recall elections fewer charters include this than initiative and referen- dum. Dacobsen v. Nagle). There have been successful recalls in Duluth and New Ulm since the Jacobsen decision, but few cities use the device. Initiative and referendum or the sim- ilar process to amend the charter by petition and election have on occasion proven to be troublesome, especially when the charter allows these to apply to zoning and other land use ordi- nances. It may also prove to be expen- sive now that the courts are more accepting of the concept of inverse condemnation for over -zealous land use regulation. Bloomington has just had an election on an initiated ordinance to limit high rise construction, the results of which are not known at this writing. Other examples of initiated mischief include a Rochester charter amend- ment limiting the number of consecu- tive terms the mayor can serve. In Mankato, full-time firefighters were responsible for a proposition on the ballot to replace the public safety direc- tor with separate police and fire chiefs and require that eight full-time firefigh- ters be on duty at all times. The proposition saw defeat when the city submitted a proposed levy limit increase at the same election to pay for the proposal. Structure home Wile permits cities almost unlimited latitude to design their structure. However, state law does require that there be a mayor. It also requires the people elect a council. Theoretically, a charter could provide that the council selects a mayor either 4C_V from the council, from the electors of the city, or from anywhere. Minnesota home rule charters have about four forms of government. They are the weak mayor -council (72), often with a city administrator; the city man- ager -council (30); the strong mayor council (four); and the commission form, (one). The most popular forms, weak mayor -council and manager plans with election at large, are available to statutory cities. Statutory cities have substantial latitude in addition to the three optional plans, with some choice as to council size, mayoral terms, elec- tion dates, separate boards for utilities. parks, hospitals, and planning. Minor variation are sometimes useful to meet a particular community's need. For example, the city of Springfield has an ordinance allowing the volunteer fire department to function as a separate board, choosing its own chief with council approval, keeping a separate treasury, and disbursing their own funds up to $100. The practice is similar to that in many other Minnesota cities without charters where these practices are not in keeping with statu- tory requirements. Because of the charter authority, Springfield's fire department operations are legal if they conform to charter and ordinance requirements. Other considerations Before the annual sessions of the Legislature, one of the most common reasons for home rule was the imme- diate availability of changes in powers or structure. Cities could avoid special legislation when a city wanted to make a change by using home rule. H011" ever, now the Legislature meets at least once every year so changes b` bor relations arbitrators The topic of part II of this series was the increasing inclination of cities to eliminate from their comparable worth analysis the wage rates of an essential employee group whose wage rates are based only on the market rates. Eliminating the wage rates of an essential employee group from the city's comparable worth analysis raises the question of whether such action is consistent with the city's obligations under the state comparable worth law. The comparable worth law defines an "equitable compensation relation- ship" as one where "a primary consid- eration in negotiating, establishing, recommending, and approving total compensation is comparable work value in relationship to other employee posi- tions within the political subdivision." The definition does not mention "mar- ket" wage rates. The comparable worth law defines a "reasonable compensation relation- ship" as one where the compensation for positions of comparable skill, effort, responsibility, working conditions, and other relevant work related criteria is comparable. Again the definition does not mention "market" wage rates. The original comparable worth law mentions market wage once. The mar- ket wage rates are one of three criteria determining reasonable relationship. The 1988 amendments to the compa- rable worth law diluted the market rates. These amendments said that a political subdivision's "plan for imple- menting equitable compensation for employees ... need not contain a mar- ket study." From the plait language of the law, the obligation of a Minnesota political subdivision is clear: determine the value of all job classifications within the subdivision: primarily on the basis of 10 comparable relative job value, establish equitable (reasonable) compensation relation- ships among all job classifications—use market rates (if at all) as a secondary factor; and implement the equitable compensation relationships for employ- ees not represented by an exclusive representative under the state labor relations act. If a city has equitable compensation relationships with its employee groups. except an essential employee group so that compensation for all of the non- essential employees is on the basis of relative job value, what should the city do if an arbitrator states that the essen- Home rule Continued from page 9 Ramsey county is transferred, altered or impaired by this charter." However the draft does give the county respon- sibility for coordinating county -wide service delivery and planning activities. It isn't yet clear that the draft charter provides any advantages that statutes of general or special applica- tion couldn't have provided. However it seems unlikely that the Legislature would pass the broad kind of all powers language. It is too soon to determine whether the growth of home rule in Minnesota will be in counties rather than in cities. If voters adopt the Ramsey County proposal, this could serve as a model and incentive for other counties. County -city consolidation is also another potential result of county home rule as shown by the experience of Oregon and some other states. Such tial employee group should be paid exclusively on the basis of market? Paying one essential employee group on the basis of market while attempting to pay all other employee groups on the basis of relative job value is not reasonable. The decision, therefore. of cities facing this situation by an arbitra• tion award to delete the essential employee group from the city's com- parable on -parable worth analysis is a logics one and one which appears to be q=uar defensible under the comparable worth law. ■ consolidation is specifically mentioned in the Minnesota constitution. Conclusion Home rule requires a substantia: dedication to keep the charter current. To accomplish this, the charter com- mission must function as a continuim: body. Smaller communities or those without sufficient citizen interest or talent for ongoing charter making ar'e probably wise to proceed under a stat- utory form of government. Home rule does provide bene5ts V, some communities. As long as our governmental dynamic is toward room centralized decision making, the role for home rule will diminish. At sor -- time when state policy makers perces,,, a need for more decentralization o. decision making, home rule will take or a new vitality. ■ Minnesota Cities COMMUNITY VISION COMMITTEE PURPOSE: To engage the community in a discussion of the City we would like Eagan to be twenty years from now and beyond and to prepare a vision statement which will guide decisions in that direction. OBJECTIVES: The objectives of the Committee would be: 1. To perform an evaluation of the current state of the City as it pertains to the needs of its residents, businesses, public and private institutions, other stakeholders and the metropolitan region. 2. To identify the strengths, weaknesses, opportunities and threats facing the City of Eagan as it matures and changes over the next two decades. 3. To determine what characteristics and qualities Eagan should have in the future. 4. To think innovatively about how best to achieve the preferred future for the community of Eagan. 5. To formulate a recommendation to the City Council concerning the Community Vision. TIMELINE: The Community Vision Committee would accomplish its work over a nine month period. Month 1 Advertise for interested persons and appoint Committee. Months 2-4 Hold organizational meeting, meet with facilitator and perform initial evaluations and analyses. Months 5-6 Hold community/neighborhood meetings and/or perform attitude survey to determine public perceptions of positive community characteristics. Months 7-8 Formulate recommendation to City Council. Month 9 Present recommendation. PARTICIPANTS: A group of approximately eleven (11) to fifteen (15) is suggested. Appointments could include: Residents of various age groups and backgrounds Owners of different sized businesses Arts and athletic associations Churches Service organizations Property developers Advisory Commission Member(s) School District(s) 56 CAPITAL BUDGET COMMITTEE PURPOSE: To review the City's Capital Equipment and Capital Improvements Budgets and provide input for Council and staff consideration regarding community needs and potential innovations in service provision which would affect capital decisions. OBJECTIVES: The objectives of the Committee would be: 1. To review the capital budget drafts with appropriate staff and develop an * understanding of the public service needs addressed by the major capital investments contemplated. 2. To provide feedback on Committee perceptions of public service needs and their relationship to capital investments. 3. To provide insights and perspectives on alternative service delivery methods and practices. 4. To compile findings regarding the draft budgets for consideration by the Cite Council in their deliberations. TIMELINE: The Capital Budget Committee would meet several times each year as the upcoming Capital Budgets are being prepared. Possible meeting times are 'uly, September and November to coincide with stages in budget review utd development. k mix of individuals with different areas of experience and expertise vould be appropriate. The Committee could include people with xperience in finance, fleet management, property improvements and those kith more of a general community background. A group of approximately ive (5) to seven (7) is suggested Appointments could include. Residents of different backgrounds Business owners Bankers Service organizations School District(s) ZONING AND COMPREHENSIVE GUIDE PLAN UPDATE STUDY COMMITTEE PURPOSE: To provide informed public input for Council and staff consideration regarding the City of Eagan's zoning and Comprehensive Land Use Guide Plan updates. OBJECTIVES: The objectives of the Committee would be: 1. 2. 3. 4. TIMELINE: 1996 - October, 1997 PARTICIPANTS: A group of approximately to Appointments could include: Residents of different backgrounds Business owners Service organizations Chamber of Commerce Property developers members is suggested.