02/05/2002 - City Council Special
AGENDA
CITY COUNCIL RETREAT
TUESDAY, FEBRUARY 5, 2002
4:00 P.M.
EAGAN CITY HALL
I. CONSIDER PURPOSE OF RETREAT
II. GENERAL DISCUSSION RE: CITY
COUNCIL OPERATING POLICIES AND
PROCEDURES
III. OTHER DISCUSSION AND
ADJOURNMENT
=irs~
city of eagan MEMO
TO: HONORABLE MAYOR AND CITY COUNCILMEMBERS
FROM: CITY ADMINISTRATOR HEDGES
DATE: FEBRUARY 1, 2002
SUBJECT: SPECIAL CITY COUNCIL RETREAT/FEBRUARY 5, 2002
City Councilmembers Carlson and Fields have requested and scheduled a City Council Retreat for
Tuesday, February 5, at 4:00 p.m. in the City Hall Lunchroom. All City Councilmembers were
given verbal notice on Thursday, January 31. The purpose of the retreat is to revisit City Council
operating policies and procedures including, but not limited to, contacting, City consultants and any
other related discussion.
The retreat is scheduled to last approximately an hour and a half to two hours and will adjourn for
the newly scheduled Listening Session time that begins at 6:00 p.m. in the same room. If members
of the City Council would like to offer any topics for discussion for the retreat, they can be
distributed in advance or brought to the retreat on Tuesday.
Have a great weekend.
/s/ Thomas L. Hedges
City Administrator
mis
MEMO
City of Eagan
TO: HONORABLE MAYOR AND COUNCILMEMBERS
FROM: CITY ADMINISTRATOR HEDGES
DATE: FEBRUARY 8, 2002
SUBJECT: BACKGROUND INFORMATION FOR THE FEBRUARY 12, 2002
CITY COUNCIL WORKSHOP
A City Council workshop is scheduled for Tuesday, February 12, 2002 at 5 PM in
the Municipal Center Lunchroom.
Per the direction of the Council, a list of the Council's subcommittees has been
compiled. There are seventeen (17) Council subcommittees. In order to provide greater
efficiency and recognizing the time constraints that the Council has, it is suggested that
some of the Council subcommittees meet immediately after this Tuesday's Council
workshop.
The City Administrator has drafted a recommended schedule for the subcommittee
meetings, taking into account the time-sensitivity of some of the subcommittee issues.
The City Attorney was contacted, and holding the subcommittee meetings after the
regular agenda at the workshop is in compliance with open meeting laws. In order to
remain in compliance, the City Attorney has recommended that the meeting formally
adjourn after the subcommittees meetings are over.
Below is additional background information for the workshop agenda items:
MINNESOTA ZOO NEW MASTER PLAN/PRESENTATION BY LEE EHMKE,
DIRECTOR/CEO
The Minnesota Zoo is proposing a new master plan that includes significant changes
to the Zoo. Lee Ehmke, Director/CEO of the Minnesota Zoo, is presenting the new
master plan to both the Apple Valley and Eagan City Councils. Mr. Ehmke looks
forward to telling you about the exciting changes being made. No Council direction is
needed on this item; however, any comments or input would be appreciated by Mr.
Ehmke.
DISCUSSION ON NEXT STEP FOR THE PUD ZONING STUDY
Attached on page is a memo from the City Attorney regarding the Planned
Development Zoning Elimination Project.
Direction to be considered: 1) to direct commencement of rezonings; 2) to review any
variance that may be warranted in connection with the rezoning; and 3)determine whether
to hold a public hearing before the APC.
PEDESTRIAN CROSSWALK STUDY
City Engineer Matthys will be present to speak on a study that was conducted on flashing
warning lights at pedestrian crossings, which includes the analysis of the potential benefit
of installing flashing lights at existing pedestrian crossing locations within the City of
Eagan and the related costs. Attached without page number is the report that summarizes
the findings of the study.
Direction to be considered: To accept the report and reference it for future inquiries
regarding enhancing pedestrian safety at crossings within the City of Eagan.
STREETSCAPING/GATEWAYS
The streetscaping/gateway subcommittee that was scheduled per the direction of the
Council at the January 17 Special City Council meeting was cancelled by the
subcommittee. In order to better understand the subcommittee's vision for the
streetscaping and gateways, it is suggested that the Council as a whole wait to discuss
streetscaping/gateways until the subcommittee meeting, which has been scheduled
following the work session on Tuesday.
PHOSPHORUS FERTILIZER-CONTRIBUTION TO THE CITY OF
SHOREWOOD'S EFFORTS
Per the direction of the Council at the January 8 listening session, attached on pages
through is additional information on the City of Shorewood's
_5 lobbying efforts at the State Legislature for phosphorus fertilizer restrictions.
Direction to be considered: To determine whether to make a monetary
contribution to the City of Shorewood's lobbying efforts.
DISCUSS "CODE ENFORCEMENT OFFICER" RE: PROPERTY
MAINTENANCE VIOLATIONS
City Councilmember Bakken, with a second by Councilmember Carlson, has requested
time on the agenda to discuss the process for the enforcement of code violations. City
Councilmembers Bakken and Carlson will discuss a process that will include the
following:
1.) Code violation is called in by a citizen or notice by a City employee.
2.) Inspection Department goes out to investigate, writes up any violations.
3.) Code Violation Officer delivers the letter to the residence - STRIKE ONE. The
letter gives the time limit to fix the problem and repeat call charge information.
4.) Inspection Department makes a field inspection on a second occasion to see if the
problem has been resolved.
5.) If not, the Police Officer brings the second violation out to the residence -
STRIKE TWO. And then letter on the repeat call charge is handed over to the
violator. Now, Inspections usually give an extension because the owner says "ya,
I'll take care of it".
6.) Inspections goes out to see if it is fixed.
7.) If not, Code Enforcement Officer brings the citation for the $250.
8.) Court papers or clean up papers are drawn up.
9.) Clean up takes place, City bills the owners or court process takes place.
Also, the proposal is suggesting that consideration be given to the need for daytime
officer to change their title to "Code Enforcement Officer", similar to other major cities.
This would provide greater teeth in the enforcement process. The new process suggests
that if the repeat call charge info. is handed out early in the process, the property owner
will realize that a fine could be forthcoming and be more likely to take care of the initial
citation.
Direction to be considered: Provide direction regarding the process for code violations
and suggested staffing changes.
SUBCOMMITTEE MEETINGS
Attached on pages 7 through is a recommended schedule for the subcommittee
meetings immediately following the Council works session.
Upon completion of the subcommittee meetings, the workshop will formally adjourn.
7(y____ -
City Administrator
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SEVERSON, SHELDON, DOUGHERTY
& MOLENDA, P.A.
TO: Mike Ridley, Senior Planner
FROM: Michael G. Dougherty, City Attorney
DATE: February 4, 2002
RE: Planned Development Zoning Elimination Project
In response to your memo of November 27, 2001, I offer the following comments with respect to
the processing of the elimination of the planned development designations. First, the City
Council should direct the commencement of the rezonings. The Council should also direct the
review of any variance that may be warranted in connection with the rezoning. Generally, the
hardship associated with the granting of a variance is that the existing substandard condition is
not due to any fault of the present property owner. Thereafter, staff should process the rezonings
and variances with the City being the applicant.
In order to rezone the properties to R-1 - Single Family, I would recommend holding a public
hearing before the APC. The time, date and purpose of the hearing should be published and
mailed to the property owners within the subdivisions of the area to be rezoned.. A letter should
be prepared and mailed with the notice explaining the purpose of the hearing, and highlighting
the fact that any rezoning would not have any impact on the present or future use of the property
as single family. Additionally, the letter sent to the substandard properties should include an
explanation of the need for the variances and that the City will process the variance as part of the
rezoning package.
Findings of Fact should be prepared in connection with the rezonings and the granting of the
variances.
If you have any questions, please do not hesitate to be in contact with me.
MGD/jlt
4
r a.. MEMO
City of Eagan
TO: HONORABLE MAYOR AND CITY COUNCIL MEMBERS
FROM: CITY ADMINISTRATOR HEDGES
DATE: FEBRUARY 6, 2002
SUBJECT: PHOSPHORUS FERTILIZER SUMMARY
Per the direction of the City Council at the January 8 Listening Session, staff obtained
further information on the initiative currently underway by the City of Shorewood to
restrict the use of phosphorus fertilizers.
This past December at the League's Policy Adoption Conference, phosphorus fertilizer
restrictions was voted to be a "Top 10" priority of the League in the 2002 Legislative
session. Since the issue has been designated as a high priority, the League will allocate
staff time and funding towards lobbying efforts at the State Legislature. Remi Stone, will
serve as the League's lead lobbyist on the issue, and welcomes anyone to contact her with
questions.
In addition to the League, the Association of Metropolitan Municipalities (AMM)
recognizes phosphorus fertilizer restrictions to be an important issue in 2002; however,
AMM did not include phosphorus fertilizer restriction as a priority issue for the 2002
Legislative session. The AMM will offer their assistance to the League in lobbying
efforts, but their primary role in the issue will be to officially offer their support as an
organization (i.e. the League and the attorney hired by the City of Shorewood will be able
to state that the AMM supports their initiative to restrict phosphorus fertilizer).
Given the League's role in lobbying for phosphorus fertilizer restrictions, Craig Dawson,
City Administrator of Shorewood, was contacted to inquire about the City of Shorewood
hiring legal counsel to assist in the lobbying efforts. Mr. Dawson stated that the City felt
it was necessary to obtain additional lobbying support due to the many issues that the
League's lobbying staff will be advocating. The focus of the legal counsel that was hired
is solely on phosphorus fertilizer, which will allow them to allocate all of their time to
this one, important issue. Shorewood has already spent approximately $30,000 on their
lobbying efforts, and they hope to raise at least $50,000 from metropolitan municipalities.
All funding that is collected from municipalities will be designated to the Minnesota
Water Quality Partnership Agency, a fiduciary agency created by the City of Shorewood.
In the event that Shorewood collects more funding than is needed to pay for the lobbying
efforts, the excess contributions will be returned to the contributing City.
S
Additionally, in a recent conversation with Mr. Dawson, he stated that the City of Eden
Prairie recently contributed $5,500 (approximately ten cents per capita) out of their storm
water utility fund to Shorewood's lobbying efforts.
Given the number of wetlands and bodies of water in Eagan, our community is a definite
stakeholder in the efforts to restrict phosphorus fertilizers. I will await Council direction
as to whether the City desires to contribute to Shorewood's lobbying efforts.
If you have any further questions, please feel free to contact me.
City Administrator
MEMO
City of Eagan
TO: HONORABLE MAYOR AND COUNCILMEMBERS
FROM: CITY ADMINISTRATOR HEDGES
DATE: FEBRUARY 6, 2002
SUBJECT: 2002 WORK PROGRAM
In order to meet the goals of the 2001-2002 Strategic Plan, and to continue on with the
2002 work program, it will be necessary to schedule some Council subcommittee
meetings over the next two to three weeks. There are seventeen (17) different committees
that require a meeting per direction of the City Council.
In an effort to assist with Council and staff scheduling, I am recommending that a few of
the Council subcommittees meet at the Tuesday Special Council workshop, immediately
after the conclusion of the regular agenda. The committee meetings have been
"piggybacked" when the same two Councilmembers serve on the same committees.
Attached is a proposed schedule for committee meetings, as well as the status of each
committee. Subcommittees that are scheduled to meet Tuesday night are highlighted. For
those subcommittees that are not meeting Tuesday night, staff will be in contact with the
subcommittee members to schedule upcoming meetings.
City Administrator
CC: All Department Heads
Assistant City Administrator Duffy
Assistant City Administrator Verbrugge
Senior Planner Ridley
Communications Coordinator Foote
Administrative Intern/Special Projects Lord
Administrative Secretary McGarvey
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Mayor Awada and Councilmember Carlson
Communications (Goal 8.0)
Status: A committee meeting should be scheduled to review the ECVB policies and
contract per preparation of City staff and the City Attorney's office. The next step is to
forward that information to the City Council for their review and then hold a meeting
with the ECVB Board. Official City Council action would then be scheduled for a March
City Council meeting. This keeps the Council, ECVB, and the process within the next 90
days.
Community Center Site Design Team (Obi. 5.4)
Status: A committee meeting is needed to discuss design issues raised by the consultant
hired to study the proposed land area for the sliding hill. Design issues regarding the
gazebo/warming house for the skating pond also need to be addressed. The committee
should discuss a design for a plaque to commemorate the site (Director Vraa has prepared
a draft design for a plaque), as well as the Council's vision for a groundbreaking
ceremony. Margo Danner and a group of Eagan seniors would also like to discuss
programming opportunities for seniors at the new community center.
MEETING SCHEDULE: If time remains, the Community Center Design Team will
meet on Tuesday, February 12, after the Special City Council workshop
Councilmember Bakken
Investigate Refinement of Municipal Service Area Boundaries (Obi 5.1)
Status: Ongoing process. It was the position of the City Council at the November 2001
Council retreat that the goal is not politically feasible at this time.
No meetings need to be scheduled at this time
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9
Wescott Square/CommonBond
Status: The RFP deadline is February 15. A committee meeting will be needed to review
the RFPs received. The tentative schedule as of now is for the Council to review the
RFPs for Wescott Square at the March 4 City Council meeting.
PUD Review
Status: PUD Review is a scheduled agenda item for the February 12 Special City
Council workshop. No additional committee meetings are needed at this time.
MEETING SCHEDULE: Staff will be in contact with you to set an upcoming meeting.
Mayor Awada and Councilmember Fields
Entrance Monuments (Obi. 5.2)
Status: A meeting is needed to review SRF's suggestions and to further define the
Council's vision for the appearance of the entrance markers.
Streetscape Plan (Obi. 5.3)
Status: A committee meeting is needed to review SRF's suggestions for streetscaping
and to review SRF's proposed timeline.
Soccer Field Study (formally North Park committee) (Obi. 6.1)
Status: In order to follow the direction of the Council at the January 17 work session, a
meeting is needed to start a study to determine alternative locations and associated costs
for soccer fields in Eagan.
MEETING SCHEDULE: Tuesday, February 12, after the Special City Council
workshop
q3
1
Councilmember Bakken and Councilmember Carlson
Land Use Options for Diffley/Highway 3 Property
Councilmember Bakken
Councilmember Carlson
Status: An inaugural committee meeting will need to be scheduled to review and define
land use options for the parcel of land at Diffley/Highway 3.
Rapid Outbound Telephone System (Reverse 911) (Obi. 9.1)
Status: A meeting will be necessary to discuss the City Attorney's interpretation of
legislation regarding the availability of Qwest databases to other vendors.
Community Center Operations(Obi. 5.4)
Councilmember Bakken
Councilmember Carlson
Status: A meeting is needed to review the RFP draft for fitness operations. The
committee must also determine the level of involvement they wish to have in reviewing
the RFPs for liquor and catering providers. The liquor and catering RFPs are due on
February 22.
MEETING SCHEDULE: Reverse 911 and Community Center Operations will be
discussed on Tuesday, Februar 12, after the Special City Council workshop
Remaining Committees
Cedar Grove Architectural Design Standards(Obi 1.2)
Councilmember Bakken
Councilmember Tilley
Status: The City has retained Dalgren, Shardlow, and Eban (DSE) to prepare design
standards for Cedar Grove. The City Council directed at their January 17 work session
that design standards be developed within the next 90 days.
Meeting Schedule: A committee meeting will be necessary to review the progress and
suggestions of DSE.
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Business Sign Committee
Councilmember Bakken
Councilmember Fields
Status: This committee has met one time previously and needs to meet again to further
discuss business signage requirements, including which elements on business signage
should be permissible.
Meeting Schedule: A meeting needs to be scheduled
Community Center Partnership (Obi. 5.4)
Mayor Awada
Councilmember Tilley
Status: The Council has been addressing partnership opportunities as a whole Council.
Meeting Schedule: Parks and Recreation Director Vraa will meet briefly with
Councilmember Tilley on Tuesday, February 12, after the Special City Council
workshop.
Implement Cedar Grove Redevelopment (Obi. 1.2)
Councilmember Carlson
Councilmember Tilley
Status: A Cedar Grove architectural design standards subcommittee was created at the
January 17 workshop.
Meeting Schedule: A meeting should be scheduled to look at the financing policy for
Cedar Grove and to look at how the AUAR results for the area will correspond to land
use decisions.
Historical Trails Markers
Councilmember Tilley
Status: Members from both the Historical Society and the Advisory Parks and
Recreation Commission have volunteered to serve on a committee to consider locations
for historical trail markers.
Meeting Schedule: An inaugural committee meeting will be scheduled to discuss which
historic roadways and trails should be recognized. At this time, the committee meeting is
tentatively scheduled for either February 11 or 25. Communications Coordinator Foote
will be present this Tuesday, February 12 to discuss the progress that has been made.
5
n
Tuesday's Schedule for Subcommittee Meetings
7PM (or upon completion of works session)
1) Entrance Monuments/Streetscaping-Mayor Awada, Councilmember Fields, Mike
Ridley
2) Community Center Operations-Councilmember Bakken, Councilmember Carlson,
Ken Vraa
3) Historic Trail Markers-Councilmember Tilley, Joanna Foote
7:30PM
1) Soccer Field Study-Mayor Awada, Councilmember Fields, Ken Vraa
2) Reverse 911-Councilmember Bakken, Councilmember Carlson, Kent Therkelsen
8PM (if it is the desire of the subcommittee to proceed with another meeting)
1) Community Center Site Design Team-Mayor Awada, Councilmember Carlson, Ken
Vraa
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/O/'~
4 ON I-'-
City of Eagan
Engineering Study
Flashing Warning Lights
at Pedestrian Crossings
Eagan, Minnesota
February 2002
MEMO
city of eagan
TO: TOM COLBERT, PUBLIC WORKS DIRECTOR
FROM: RUSS MATTHYS, CITY ENGINEER
DATE: FEBRUARY 8, 2002
SUBJECT: FLASHING WARNING LIGHTS AT PEDESTRIAN CROSSINGS
This memo and the associated report are in response to the City Council's direction to staff to conduct a
study considering the installation of flashing warning lights at pedestrian crossings throughout the City to
be presented at a Council work session. The information and analysis included in the attached report is
based upon data collected by the City since October 2001.
The expressed concern of pedestrians within the City of Eagan regarding their safety crossing public
streets is legitimate. The results of the studies included within the report seem to substantiate similar
concerns in other communities around the world. The characteristics of pedestrians and drivers are rather
universal, so I believe the results of these studies would be applicable in Eagan.
The Public Works Department has strictly adhered to the requirements of the Minnesota Manual on
Uniform Traffic Control Devices (MnMUTCD) in the placement of traffic control devices, namely
warning signs and pavement markings, to address the safety of pedestrians at designated crossings of
public streets throughout the city. The conclusion of the studies seems to support the appropriateness of
the MnMUTCD requirements and the corresponding actions of the Public Works Department.
Flashing warning lights or traffic signals are available for use at pedestrian crossings as additional
methods of traffic control. Their effectiveness is very limited in enhancing the safety of pedestrians and
may actually increase the risk to some pedestrians. The cost of the installation of these devices and the
associated maintenance do not appear to be worthwhile expenditures.
In discussing the attached report with the Dakota County Traffic Engineer he mentioned an interesting
perspective that the City of Salt Lake City is taking to address pedestrian concerns for the upcoming
Winter Olympics. Rather than installing traffic control devices directed towards the motorists, they are
installing pavement markings to influence the behavior of the pedestrians. This philosophy would seem
appropriate to address the results of the studies included in the report. The markings encourage the
pedestrians to look to their left before crossing the street.
I hope that the information in this report is helpful for the City Council. I would anticipate that they
might take action to accept this report and reference it for future inquiries regarding enhancing pedestrian
safety at crossings within the City of Eagan.
Cc: John Gorder, Assistant City Engineer
Arnie Erhart, Super of Streets
City Engineer G:RM/02/Memo/Flashing Lights at Ped Crossing Study
TABLE OF CONTENTS
Memo of Transmittal/Certification Page
Table of Contents
Scope ..........................................................................................................................1
Background ..............................................................................................................1
Discussion ..................................................................................................................1
Existing Conditions ..................................................................................................2
Studies ..........................................................................................3
Los Angeles Study ...........................................................3
Nova Scotia Study ...........................................................4
Toulouse, France Study .....................................................5
Cost Estimate ............................................................................................................6
Financing Options ....................................................................................................6
Conclusion ...............................................................................................................6
List of Figures
Figure 1 - Location Map
Figure 2 - Typical Flashing Warning Light
FLASHING WARNING LIGHTS AT PEDESTRIAN CROSSINGS
EAGAN, MN
February 2002
Scope
This study includes the analysis of the potential benefit of installing flashing warning lights at existing
pedestrian crossing locations within the City of Eagan, as shown on Figure 1 located in the back of this
report, and the related construction and maintenance costs.
Background
The examination of the benefit of the flashing warning lights was based on the apparent or measured
difference in the safety provided for the pedestrians utilizing the crosswalks. Cost estimates for the
installation and maintenance of various lighting options is included for a cost/benefit comparison.
This analysis was initiated in response to a letter and petition submitted to the City Council on August 23,
2001, by Mr. Jack Puterbaugh, representing the Cliff Lake Townhomes. Mr. Puterbaugh requested the
installation of a 4-way stop sign or traffic signal at the intersection of Cliff Lake Road and Kyle Way at
the entrance to Cub Foods.
On October 2, 2001, the City Council authorized the preparation of a traffic control study by the City
Engineer for this intersection.
The engineering review of the intersection and an evaluation of the existing traffic control and site
conditions indicated that the intersection did not meet the Minnesota Manual on Uniform Traffic Control
Devices (MnMUTCD) requirements for additional traffic control measures. On November 20, 2001, after
the presentation of the engineering traffic analysis, the City Council directed staff to conduct a study of
flashing warning lights at pedestrian crossings throughout the City to be presented at a Council work
session in January. Due to the number of other work session items in January, the presentation of this
information was delayed until February.
Discussion
The engineering analysis considered the appropriateness of installing flashing warning lights at the
various pedestrian crosswalks where citizens of Eagan have expressed safety concerns. This analysis
involved the investigation of existing studies of flashing warning lights at pedestrian crossings, site
surveys and accident history analyses. Adherence to the MnMUTCD on warrants or engineering criteria
for traffic signals and pedestrian-actuated signals was followed in the evaluation.
1
Existing Conditions
The locations of the pedestrian crossings considered in this report are represented on Figure 1 at the back
of the report and traverse the following streets:
Wescott Road at Elrene Road
Northview Park Road at Braddock Trail
Cliff Road at Dodd Road
Lexington Avenue at Wilderness Run Road
Cliff Road at Lexington Avenue
Duckwood Drive at Duckwood Trail
Pilot Knob Road at Civic Center Drive
Pilot Knob Road at Wilderness Run Road
Deerwood Drive at Rocky Lane
Thomas Lake Road at Highline Recreational Trail
Johnny Cake Ridge Road at Highline Recreational Trail
Johnny Cake Ridge Road at Covington Lane
Blackhawk Road at Highline Recreational Trail
Cliff Lake Road at Kyle Way
The following are requirements for public roadway traffic control, including pedestrian traffic, as stated in
the Minnesota Manual on Uniform Traffic Control Devices (MnMUTCD). The City of Eagan Public
Works Department strictly adheres to these requirements in the placement of any associated traffic control
apparatus. The last column indicates whether or not these requirements are met at the aforementioned
locations in the City of Eagan.
Traffic Control r Re uirement Re uiro''iments et/
Minimum distance of 150' from a
dvance Warning Signs (W11-2) crossing for an 851h percentile speed
Crossing Signs of 35 MPH, Minimum distance of 225' MEET REQUIREMENTS
for an 85`h percentile speed of 40 MPH ALL LOCATIONS
May be adjacent to the crossing at the
Warning Signs (W11-2A) discretion of the City Engineer MEET REQUIREMENTS
Crossing Signs ALL LOCATIONS
View a 6" high object in crossing at
Sight Distance minimum distance of 150' for an 85'h MEET REQUIREMENTS
percentile speed of 35 MPH, 225' for ALL LOCATIONS
an 85`h percentile speed of 40 MPH
Minimum pedestrian volume averages
Pedestrian Actuated Traffic Signals 100 for each of any four hours in a DOES NOT MEET REQUIREMENTS
Ida y, or 190 in any one hour ALL LOCATIONS
Pedestrian-vehicular accident experience is limited within the City of Eagan. Records indicate two such
accidents in the past 3 years within the city limits, the locations of which are included in the above list.
One occurred on May 12, 1999, at the intersection of Johnny Cake Ridge Road and Covington Lane. Of
the ensuing litigation, the City was dismissed of any liability as the crosswalk was determined to meet all
2
guidelines and requirements. The other incident occurred at Cliff Lake Road and Kyle Way at the
entrance to Cub Foods on April 13, 2000. The Police report cited "pedestrian error" as the cause of the
accident. Accident history or experience involving pedestrians should not be construed as being
necessary to justify higher levels of crosswalk protection. "Pedestrian Violation or Error" is frequently
the primary contributing factor to pedestrian-vehicular accidents.
Research of Previous Studies
1. Effect of Pedestrian Sensor and Flashing Beacons in Los Angeles
"Microwave Sensors Show Some Success in Detecting Pedestrians at Crosswalks in
L.A." (The Urban Transportation Monitor, July 9, 1999)
A study performed by the City of Los Angeles monitored the effectiveness of microwave pedestrian
sensors and flashing beacons at unsignalized intersections in Los Angeles. The sensors activated flashing
yellow warning lights whenever a pedestrian was detected in the crosswalk. The flashing lights were
installed 100 feet before the crosswalks.
The microwave detectors were very effective, detecting every person that walked into the crosswalk.
Vehicles traveling very close to the sensors produced some false detections.
Before and after studies were completed at the various locations. The studies measured (1) the speeds of
vehicles approaching the crosswalk when there were pedestrians in it, and (2) whether or not the drivers
yielded the right-of-way to pedestrians that had already begun to cross the street intersection. Table 1
shows the intersection characteristics and study results:
Table 1: Microwave Pedestrian Sensor and Flashing Beacon Study Results
Location Posted Speed Actual Speed (85 Drivers Yielding
Before After Before After
Intersection 1 25 mph 23.5 mph 19.5 mph 21% 35%
Intersection 2 30 mph 27.5 mph 27.5 mph 45% 59%
Intersection 3 45 mph 42.5 mph 38.5 mph 30% 41%
The results would appear to indicate that the goals of the pedestrian detectors and flashing warning lights
were met to some degree. The article concluded that it is important to note, however, that the problem is
not speeding. The real problem is that drivers are refusing to stop for pedestrians in the crosswalks.
While improvements were recognized in the area of reducing vehicle speed and increasing driver-yielding
percentages (average of 13%), the failure rates were 65% at the 25 mph intersection, 41% at the 30 mph
intersection and 59% at the 45mph intersection. Although the pedestrian sensors and flashing beacons
produced improvements in driver compliance in all of the locations, the failure rates are still unacceptable
to pedestrian safety. The article suggests that future law enforcement activity in these areas should focus
on the California law requiring vehicles to yield the right-of-way to pedestrians crossing within a
crosswalk rather than waiting to catch speeding drivers.
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II. The Influence of Signs Prompting Motorists to Yield Before Marked Crosswalks
on Motor Vehicle Pedestrian Conflicts at Crosswalks with Flashing Amber. (Accident
Analysis and Prevention, vol. 24, no. 3, p 217-225, 1992)
A study performed by two Canadian universities looked at the effects of signs reading "STOP HERE
FOR PEDESTRIANS" alone and in conjunction with advance stop lines on pedestrian safety at multilane
crosswalks with pedestrian-activated amber flashing lights. The study was performed at crosswalks for
two separate intersections in Dartmouth, Nova Scotia. The follow-up data was collected during one-
month and one-year intervals on both intersections.
The study found that the introduction of the warning signs alone resulted in more than a 50% reduction in
the incidence of pedestrian-vehicular conflicts at the two intersections. The percentage of conflicts per
pedestrians when the flashing amber beacons were activated versus when they were not activated had a
slight additional reduction of 3% to 6%. The data indicated that the warning sign was equally effective in
reducing the total number of conflicts when the light was activated and when it was not.
A comparison of the incidence of the various types of conflicts when the flashing light was activated
versus when it was not yielded one interesting finding. The percentage of the most serious type of
vehicle-pedestrian conflict was higher (5%) on the busiest street intersection when the flashing light was
activated than when the flashing light was not activated.
The data also indicated that the activation of the flashing yellow light did lead to a small increase in the
percentage of motorists yielding to pedestrians, although it did not induce a majority (50%) of the
motorists to yield at either intersection.
The percentage of pedestrians activating the light on each crossing seemed to be a function of the amount
of traffic on the street. For the busiest street (5-lane, 37,800 ADT, almost continuous traffic flow), 59%
of the pedestrians activated the light throughout the experiment, while the less busy street (4-lane, 14,700
ADT) had only 28% of the pedestrians activate the light. While it seems interesting that the percentage of
pedestrians activating the flashing lights was not higher, the pedestrians apparently realized what the
aforementioned data indicated; the motorists were only marginally more likely to yield to pedestrians
when the light was activated than when it was not.
The addition of an advance stop line (pavement marking) had little effect on the percentage of motorists
yielding to pedestrians, but it did produce an increase in the distance that motorists stopped before the
crosswalk and a decrease in the percentage of vehicle-pedestrian conflicts.
The study concluded that the activation of the flashing amber beacon does not represent a major increase
in pedestrian safety, but may function as a safety signal that lowers pedestrian's level of alertness, thereby
increasing risk. The signs and pavement markings appear to have a greater influence on the behavior of
motorists than pedestrians. The use of signs and pavement markings should be expected to increase the
level of pedestrian safety without contributing to an increased level of perceived safety that could actually
increase risk to the pedestrians.
4
III. Specific Pedestrian Crossing Traffic Lights. (City of Toulouse, France, 1989)
A study performed by the City of Toulouse, France, and the French Ministry of Transports studied the
effectiveness of flashing yellow beacons at pedestrian crossings throughout Toulouse. The study found
that the City of Toulouse had about 100 light controlled pedestrian crossings, all of which included
constantly flashing yellow lights to warn traffic of the potential for crossing pedestrians. It was
determined that the increase in the number of flashing yellow beacons across the City resulted in a
decrease in the observance of the lights by motorists.
To counter this effect, the French Ministry of Transport began installing new crossing lights that act much
like a standard traffic signal. In the presence of a pedestrian, detected by a "detector carpet" (much like
the old sensor pads that opened doors at supermarkets when stepped on), the traffic light began to flash
yellow to passing motorists. If the traffic was light enough, the pedestrian could cross in the traffic gaps.
If the traffic was too heavy for the pedestrian to cross within a programmed time, the flashing yellow
beacon would change to a solid red light, requiring motorists to stop at the intersection. The system
program allowed for the pedestrian to cross the street, and then switch back to a flashing yellow, and then
to no flashing light at all.
It was found that for the six locations (8,200 ADT - 44,000 ADT) where the crossing traffic light system
was installed pedestrian accidents were decreased by nearly 80% over a four-year period. The study did
indicate a need of more information for pedestrians, particularly concerning expected waiting times for
the red light requiring motorists to stop and allow the pedestrians to cross.
One would assume that the "detector carpet" would be replaced with a detector system more similar to the
Los Angeles microwave sensors discussed previously.
SUMMARY:
Based on the three aforementioned studies, the use of flashing beacons appears to produce, at best, only
slight increases in the percentage of motorists yielding to pedestrians within crossings and has an even
smaller affect in reducing motor vehicle-pedestrian conflicts. The use of warning signs and pavement
markings alone appears to provide the greatest impact on safety for the pedestrians, as well as provide
long-term effectiveness without creating a false sense of security by the pedestrian. Two of the three
articles indicated the high frequency of drivers failing to yield to pedestrians in crossings was not reduced
significantly enough by the installation of the pedestrian activated flashing beacons to provide an
acceptable level of safety for the pedestrians.
The most effective pedestrian crossing safety device indicated by the studies seemed to be the traffic
signal crossing system used in Toulouse, France. This system would be comparable to one half of a
standard traffic signal with the addition of the pedestrian sensors.
5
Cost Estimate
A detailed cost estimate for three options of flashing warning light/traffic signal systems follows.
The total estimated cost for each pedestrian crossing system is based on anticipated 2002
construction costs and include a 10 percent contingency and indirect costs of 20 percent which
include legal, administrative, engineering and bond interest.
Installation Annual Energy Use
Wire Crosswalk System $ 11,200 $100
Solar (Wireless Crosswalk System) $ 13,800 $ 0
Crosswalk Traffic Light System $112,200 $400
City-wide Installation at 14 Locations
Installation Annual Energy Use
Wire Crosswalk System $ 156,800 $1,200
Wireless Crosswalk System $ 193,200 $ 0
Crosswalk Traffic Light System $1,570,800 $4,800
Financing Options
It is anticipated that the City's Major Street Fund would finance the estimated cost for the
installation and energy usage. The special assessment of any associated costs would be difficult
without signed agreements waiving the right to object due to the City's burden to prove benefit to
a specific property description.
Conclusion
The concern of pedestrians within the City of Eagan regarding their safety crossing public streets
is valid and may be substantiated. The City of Eagan Public Works Department has strictly
adhered to the requirements of the Minnesota Manual on Uniform Traffic Control Devices
(MnMUTCD) in the placement of traffic control devices, namely warning signs and pavement
markings, to address the safety of pedestrians at designated crossings of public streets. Additional
methods of traffic control are available for use at pedestrian crossings, namely flashing warning
lights or traffic signals. The effectiveness of these additional devices in enhancing the safety of
pedestrians is very limited and may actually increase the risk to some pedestrians due to a
perceived false sense of security. The installation of these devices is costly and the devices may
require continuous energy usage.
The current practice of the City of Eagan Public Works Department regarding the placement of
traffic control devices, namely warning signs and pavement markings, to address the safety of
pedestrians at designated crossings of public streets should be maintained. This practice provides
the highest level of safety for the pedestrian at a reasonable cost to the tax dollar and has been
validated by the Courts.
6
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= Pedestrian Safety Concerns
11-15-01
G: Tech s/Bruce/Runs/Ped-concern s_exhibit
Jan 10 02 10:58a Joe Wise 480-449-9367
p.4
Solar PED-X
Wireless Crosswalk Solar Flasher System
Installation and Operating Instructions
Revision A
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Prepared by
Solar Traffic Controls, L.L.C.
1930 E. 3`(1 Street #21
Tempe, AZ 85381
Tel: 1-480-449-0222