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HomeMy WebLinkAbout2023/05/08 - ADMIN - Agenda Packets - City Council - Study Session AGENDA MAY 8, 2023 The St. Louis Park City Council meets in person at St. Louis Park City Hall, 5005 Minnetonka Blvd. Members of the public can attend the meeting in person, watch by webstream at bit.ly/watchslpcouncil, or watch on local cable (Comcast SD channel 17/HD channel 859). Recordings are available to watch on the city’s YouTube channel at https://www.youtube.com/user/slpcable, usually within 24 hours of the end of the council meeting or study session. 6:30 p.m. City council study session – council chambers Discussion items 1. 30 min. Dakota Park infrastructure improvements 2. 30 min. New sidewalk planning framework Written reports 3. A systems approach to public streetlights 4. CP rail regional trail – Golden Valley and St. Louis Park 5. Speed limit update - Utica Ave. south of Westside Dr. 6. Zoning code update – residential districts The agenda is posted on Fridays on the official city bulletin board in the lobby of city hall and on the text display on civic TV cable channel 17. The agenda and full packet are available after noon on Friday on the city’s website. If you need special accommodations or have questions about the meeting, please call 952 .924.2505. Meeting: Study session Meeting date: May 8, 2023 Discussion item: 1 Executive summary Title: Dakota Park infrastructure improvements (2122-1806) – Ward 1 Recommended action: This report and presentation are intended to provide an overview of the Dakota Park Infrastructure Improvements project, share feedback from the community, and provide staff recommendations prior to bringing the project to the council for formal approval. Policy consideration: Does the city council wish to proceed with the infrastructure improvements described in this report? Summary: The trail bridge in Dakota Park has been programmed for replacement since 2018 after a formal bridge inspection recommended replacement due to the poor condition of the bridge and footings. The replacement of approximately 350 feet of sanitary sewer near the trail bridge is also recommended to be completed to prevent sewer backups. Due to the proximity of these two projects, staff combined them to increase efficiency and reduce community impact. Staff presented an update on the project to council on Jan. 23, 2023, to share three design options, two included bridge replacement while the final option opted for bridge removal and trail reroute. These options were chosen to address cost increases while still providing the trail connection in the park. Council directed staff to gather community feedback on all three design options to help inform their decision. Staff held a public information meeting on March 2, presented the design options to the Parks and Recreation Advisory Commission (PRAC) on March 15 and developed an online survey to better understand how the park and bridge are used by the community. The majority of the feedback we heard from the community was in support of replacing the bridge. Based on this, staff recommends the replacement of the bridge with a prefabricated steel truss bridge. However, since there was feedback in favor of the trail reroute as well , staff could also support rerouting the trail and preserving funds for other projects. Financial or budget considerations: This project is included in the city's capital improvement plan (CIP). The total cost for the option to reroute the trail and reconstruct the sanitary sewer is estimated to be $608,500. The total cost for the option to replace the bridge and sanitary sewer is estimated to be $961,500. The project is slated be paid for using park improvement, American Rescue Plan Act (ARPA), and utility funds. Detailed information on cost estimates can be found in the discussion section of the report. Strategic priority consideration: St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely and reliably. Supporting documents: Discussion Exhibit A – location map Jan. 23 Dakota Park Bridge Improvements study session report Prepared by: Jack Sullivan, engineering project manager, Jason West, parks and recreation director Reviewed by: Debra Heiser, engineering director Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 1) Page 2 Title: Dakota Park infrastructure improvements (2122-1806) Discussion Background The Dakota Park Infrastructure Improvements project includes: • Replacement of approximately 350 feet of sanitary sewer pipe that runs under the south softball field just north of the trail bridge. • Removing the bridge that spans over a stormwater retention area and creating a new trail connection between the playground and the dog park using one of three options: o Trail reroute: remove the existing bridge and construct a trail around the stormwater retention area. o Timber boardwalk: replace the existing bridge with a timber boardwalk structure. o Prefabricated steel truss: replace the existing boardwalk with a prefabricated steel truss bridge. These two improvements are combined into one project due to their proximity to each other and to limit the impact on the park and ballfields. See Exhibit A attached to this report for more information on the location of the work within Dakota Park. Staff presented the three design options to create the new trail connection to council on Jan. 23, 2023. An in-depth review of each option, including replacement costs, can be found in the Jan. 23 council report. Council directed staff to gather community feedback on all three design options to help inform their decision. Community feedback Staff held a public informational meeting on March 2, presented the design options to the Parks and Recreation Advisory Commission (PRAC) on March 15 and provided an online survey to better understand how the park and bridge are used by the community. Open house An open house was held on the evening of March 2 at Peter Hobart Elementary School. Staff sent an invitation letter to 258 property owners adjacent to the park. In addition, signs were placed in the park to inform users of the meeting and give them an opportunity to provide feedback. The meeting was attended by five property owners that live near Dakota Park. The consensus of the attendees was to keep a crossing of the stormwater retention area. Parks and Recreation Advisory Commission (PRAC) Staff presented the design options to the PRAC on March 15. PRAC members focused their discussion on the cost variations between the options, maintenance requirements and the overall aesthetics of each option. The PRAC indicated that they were in favor of a trail reroute since it was the most fiscally responsible alternative and would allow for dollars to be expended on other community needs. Study session meeting of May 8, 2023 (Item No. 1) Page 3 Title: Dakota Park infrastructure improvements (2122-1806) Online community survey An online survey was conducted to better understand how the community uses the park and the trail bridge. Staff received 114 responses to the survey. Some of the key feedback was: “How often do you use the existing bridge?” Figure 1 “Why do you use the park?” (Note: Respondents were able to check all that applied to them.) Figure 2 Study session meeting of May 8, 2023 (Item No. 1) Page 4 Title: Dakota Park infrastructure improvements (2122-1806) “How important is the bridge to your use of the park?” Figure 3 “Which option do you prefer?” Figure 4 Study session meeting of May 8, 2023 (Item No. 1) Page 5 Title: Dakota Park infrastructure improvements (2122-1806) “If the bridge was removed and replaced with a trail connection, would it change your use of the park?” Figure 5 Maintenance Bridge capital maintenance costs Both the timber boardwalk and the prefabricated steel truss bridge can be expected to have a service life of 75 years with programmed maintenance. However, the city can also expect that they will require different maintenance intervals during their lifespan, with t he boardwalk requiring more work than the steel truss bridge. The consultant completed a life cycle cost that factored in maintenance and repairs to both bridge structures and determined that although the prefabricated steel truss bridge has a higher initial cost, the overall cost over the lifespan is comparable to the timber boardwalk. Bridge operational maintenance costs As shown in Figure 6, the city removes snow on the asphalt trail system every snowfall; however, the bridge is not cleared as frequently. This is because the bridge will not support a vehicle and is typically cleared manually, as resources are available. The bridge is utilized by pedestrians even when snow is built up. Study session meeting of May 8, 2023 (Item No. 1) Page 6 Title: Dakota Park infrastructure improvements (2122-1806) Figure 6 Due to capital maintenance costs and resident behavior, engineering and parks and recreation staff is recommending that, if a new bridge is built, it be designed to allow for snow removal by a pickup plow truck to provide the same level of winter maintenance as the rest of Dakota Park. This requires a width of 10 feet and structural strength of at least 5 tons. Staff recommendation Community feedback was mixed on this project. Most of the feedback was in support of replacing the bridge and there was slightly less support for the trail reroute. However, most respondents also indicated that bridge removal would not change their use of the park. Based on this feedback, staff recommends replacing the bridge with a prefabricated steel truss bridge. However, staff could also support rerouting the trail and preserving funds for other projects. The replacement of the sanitary sewer main is necessary to prevent backups and is recommended to be completed. Financial considerations During the Nov. 14, 2022, council study session discussing the 2023 CIP and city budget, staff shared that inflation and material costs have increased the bridge replacement estimate by $220,000. To cover the cost, staff recommended utilizing American Rescue Plan Act (ARPA) funds for $110,000 of this gap and storm utility funds for the remainder. The approved 2023 CIP included the updated funding. The use of ARPA funds for this project was confirmed at the April 10 study session. (The amount of ARPA dedicated to the project depends on the otion selected.) The following tables break out the estimated costs and funding sources for the bridge, trail reroute, and sanitary sewer construction for this project. Study session meeting of May 8, 2023 (Item No. 1) Page 7 Title: Dakota Park infrastructure improvements (2122-1806) Trail connection estimates CIP Prefab steel truss bridge estimate Trail reroute estimate Construction cost $450,000 $436,006.46 $153,657.24 Engineering and administration $94,117 $109,001.62 $38,414.31 Total $544,117 $545,008.08 $192,071.55 Funding Sources Park improvement funds $158,226 $158,226.00 $158,226.00 Sanitary sewer funds $0 $0 $0 Stormwater utility funds $275,891 $276,782.08 $0 American Rescue Plan Act (ARPA) $110,000 $110,000.00 $33,845.55 Total $544,117 $545,008.08 $192,071.55 Sanitary sewer estimate CIP Sanitary sewer estimate Construction cost $380,001 $333,185.98 Engineering and administration $45,499 $83,296.50 Total $425,500 $416,482.48 Funding Sources Park improvement funds $0 $0 Sanitary sewer funds $425,500 $416,482.47 Stormwater utility funds $0 $0 American Rescue Plan Act (ARPA) $0 $0 Total $425,500 $416,482.48 Next steps Due to the impacts to the west softball field, coordination is required to minimize sanitary sewer construction impacts. The sanitary sewer component of the project will be completed this fall to allow for the restoration of the softball fields so they will be ready for play in 2024. Prefabricated steel truss bridge option If the council would like to pursue the replacement of the bridge, the installation of the new bridge may need to occur over the winter or in the spring of 2024. This is due to the extended lead time to manufacture and procure the prefabricated steel truss bridge. The proposed schedule for the project to facilitate bridge construction is as follows: Council project approval May 15, 2023 Council awards construction bids July 2023 Sanitary sewer construction August- November 2023 Bridge reconstruction Winter 2023 Project completion Spring 2024 Study session meeting of May 8, 2023 (Item No. 1) Page 8 Title: Dakota Park infrastructure improvements (2122-1806) Trail reroute option If the council would like to pursue the trail reroute option, the proposed schedule is as follows: Council project approval May 15, 2023 Council awards construction bids July 2023 Sanitary sewer construction August- November 2023 Trail construction October 2023 Project completion Spring 2024 If council can provide staff direction via discussion at the May 8 study session, this item can be brought back for approval as a consent item at the May 15 council meeting. Exhibit A - Dakota Park Bridge Improvements GEORGIA AVE S26TH ST W 27TH ST WFLORIDA AVE SBRUNSWICK AVE SDAKOTA AVESCOLORADO AVE SEDGEWOOD AVE S0 500 1,000250 Feet 1/18/2023 Peter Hobart Elementary School Nelson Park Sanitary sewer work Dakota Park Bridge Nelson Park Dog Park East Field Keller Field West Field Study session meeting of May 8, 2023 (Item No. 1) Title: Dakota Park infrastructure improvements (2122-1806)Page 9 Meeting: Study session Meeting date: May 8, 2023 Discussion item: 2 Executive summary Title: New sidewalk planning framework Recommended action: Staff is recommending the city take a consistent approach to identifying sidewalks to be evaluated as a part of transportation projects. Attached is an updated framework that lays out how staff will identify the location of sidewalk segments to be evaluated for construction. Given the level of community interest involved and ultimate fiscal impact, staff is requesting council feedback on the proposed approach. Policy consideration: Does the city council support a consistent approach to identifying the locations of new sidewalks being considered for construction as a part of transportation projects? Summary: This item is brought to council as part of the Connected Infrastructure study session series. It is a follow-up to a discussion that happened on Aug. 8, 2022. During that discussion, the document was called "sidewalk policy." To clear up confusion, staff has renamed this document to more accurately describe its application. In general, the council was supportive of the concepts included in the document . The two items that council wanted more information on were: • The exemption for streets with less than 200 vehicles a day Council asked how many streets in the city met this threshold. There was a discussion if it was the right volume or whether it should be higher. Staff said they would review the traffic volumes on local roads to advise. • Cost to construct new sidewalks using this approach Using this framework, staff has identified the potential locations and cost for new sidewalk construction adjacent to the street segments scheduled for rehabilitation in the 10-year CIP. As a pilot, staff used the framework to identify the sidewalk locations being considered for construction as a part of the 2024 pavement management project in Minikahda Vista, Browndale, and Wolfe Park neighborhoods. The pilot showed the framework to be an effective tool. Financial or budget considerations: Construction of some sidewalk segments as a part of transportation projects is planned for and included in the 10-year capital improvement plan (CIP). The average annual budget for new sidewalk construction is currently $692,111. Implementation of this approach to new sidewalk planning would increase the average annual funding need to $1,218,889, an annual average increase of $526,778. Strategic priority consideration: St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely and reliably. Supporting documents: Discussion Draft New sidewalk planning framework Aug. 8, 2022 council report Prepared by: Debra Heiser, engineering director Reviewed by: Jack Sullivan, engineering project manager; Aaron Wiesen, project engineer Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 2) Page 2 Title: New sidewalk planning framework Discussion Background During the approval process for the 2022 pavement management project in Fern Hill , there was considerable discussion regarding how new sidewalk locations were identified. Council members and the public had questions regarding why some new sidewalks were selected for evaluation and others were not. A second pain point focused on the late inclusion of additional segments for consideration, which led to community confusion. There was also feedback that sidewalks should run continuously on one side of the street instead of taking a block-by-block approach to minimize adverse impacts to mature trees and private property. It was suggested that a more consistent approach to identifying the locations where new sidewalk segments would be evaluated would better reflect the city's mobility priority. In response to this, staff has put together the attached framework. It lays out basic principles for locations where sidewalks will be considered, along with design standards. This new approach would be comprehensive, evaluating new sidewalk construction where there currently is no sidewalk, along almost all street segments. The expectation is that providing a more holistic and consistent approach will reduce confusion for the public, better reflect the city's mobility priority and recognize that a continuous sidewalk network provides connections for the community, not just the adjacent neighbors. This item is a follow-up to a discussion on Aug. 8, 2022, where staff introduced a document outlining this consistent approach to identifying locations of new sidewalks being considered as a part of transportation projects. In general, the council was supportive of the concepts included in the document. The two items that council wanted more information on were: • The exemption for streets with less than 200 vehicles a day Council asked how many streets in the city met this threshold. There was a discussion if it was the right volume or whether it should be higher. Staff indicated that they would review the traffic volumes on local roads to provide more information. • Cost to construct new sidewalks using this approach Using this document, staff has identified the potential locations and cost for new sidewalk construction adjacent to the street segments scheduled for reconstruction in the 10-year CIP. Since that time, staff has been working on putting together this additional information. Updates to the new sidewalk planning framework Following the pilot, staff has updated the the document for better clarity and changed the title to better reflect its application. The document sets up guidance for staff on locations where new sidewalk will be considered and design standards. The decision on whether to construct proposed sidewalk segments will be made by the city council as a part of the project approval process. Inclusion at this stage in the process does not predetermine final recommendations. The only content-related change to the framework is around streets with less than 200 vehicles/day. Study session meeting of May 8, 2023 (Item No. 2) Page 3 Title: New sidewalk planning framework Streets with less than 200 vehicles/day The 2022 document included guidance that: "Sidewalk will not be proposed on streets where: o The average daily traffic on the street is less than 200 vehicles. o It is along a dead-end street and the sidewalk would not provide a public connection to an activity node. In general, activity nodes are community or area destinations such as the library, schools, retail areas, parks, regional trails, transit nodes, high-density housing, and places of worship. " The council discussed these two exemptions and was supportive of the dead-end street provision. However, council had questions about the average daily traffic number and asked staff how many streets in the city met this threshold. Staff spent considerable time and effort to obtain this information using multiple methods. Once planning on a project commences, staff collects street segment-specific traffic volume and speed data. Though reliable, this is a labor intensive method. Unfortunately, less labor intensive methods have produced drastically different data sets, meaning that staff is not able to confidently provide this information, in a cost-effective way, to council regarding the entire city. Due to this limitation, staff does not recommend using this metric as a consideration in initial sidewalk planning and has removed the specific exemption from the document. Instead, sidewalk segments identified for consideration will be based on whether the road has a high (more than 2,000 vehicles/day) or low (less than 2,000 vehicles/day) volume and sidewalk network connectivity. Sidewalk design and final recommendations will encompass additional measures (i.e. traffic volumes, tree impacts, private property impacts, available right -of-way and cost). Financial considerations Construction of sidewalk segments as a part of transportation projects has been planned for and included in the 10-year CIP since 2013. The average annual budget for new sidewalk construction is currently $692,111. The funding source identified in the CIP for new sidewalk construction is general obligation bonds. Staff has used the new sidewalk planning framework to identify the potential locations and cost for new sidewalk construction adjacent to the street segments scheduled for reconstruction in the 10-year CIP. Implementation of this approach to new sidewalk planning would increase the average annual funding needed to $1,218,889, an average increase of $526,778. While the ultimate decision of whether to construct new sidewalk segments will be made by the city council as a part of the project approval process , staff recommends that the CIP be updated to include the funding needed to build all the sidewalk segments under consideration. This will result in project scope and associated costs being more likely to be scaled back than to grow in size. Study session meeting of May 8, 2023 (Item No. 2) Page 4 Title: New sidewalk planning framework Next steps If council supports the guidance for new sidewalk planning included in the attached document and would like to pursue implementation, staff will add the additional sidewalk cost to the 10- year CIP for discussion during the 2024 budget/CIP process. To eliminate confusion, and as was discussed in August 2022, this will also include incorporating Connect the Park sidewalk sements into this approach. Staff does not anticipate these actions to delay construction of Connect the Park sidewalk segments. New Sidewalk Planning Framework - DRAFT May 2023 St. Louis Park Engineering Department • 5005 Minnetonka Blvd., St. Louis Park, MN 55416 www.stlouisparkmn.gov • Phone: 952.924.2656 • Fax: 952.924.2662 • TTY: 952.924.2518 Purpose St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely, and reliably. One way to do this is by continuing to expand the network of sidewalks. As a part of transportation projects, the existing sidewalk system will be reviewed, and new sidewalks will be evaluated to close gaps and create a well-connected and equitably distributed sidewalk network. This document will be used by staff to identify locations where new sidewalk segments will be evaluated for potential construction. The goal will be to construct a sidewalk system that provides safe and comfortable connections to everyday destinations. Guidance At the start of project scope development, staff will review the existing sidewalk network adjacent to street segments scheduled for reconstruction. Potential additional sidewalk segments will be evaluated based on two primary factors: 1) vehicle volume of roads and sidewalk network continuity. Further, the design of sidewalks will depend on the designation of “community” or “neighborhood”. 1.Minimum sidewalk network: As vehicle volume increases, there is a decrease in the relative comfort for pedestrians to walk in the road and cross the road to get to a sidewalk. Recognizing this, the goal for a minimum sidewalk network is different based on the vehicle volumes on the adjacent road. •Low-volume roads are those that have less than 2,000 vehicles per day. o The goal is to have continuous sidewalk on at least one side of the street. •High-volume roads are those that have more than 2,000 vehicles per day. o The goal is to have continuous sidewalk on both sides of the street. This will eliminate the need for pedestrians to cross the street to get to a sidewalk. New sidewalk segments will not be evaluated on dead-end streets where the sidewalk would not provide a direct public connection to an activity node. In general, activity nodes are community or area destinations such as the library, schools, retail areas, parks, regional trails, transit nodes, high-density housing, and places of worship. 2.Network continuity: All street segments identified for reconstruction in a transportation project will be evaluated for continuous sidewalks. To accomplish this, staff will review the context of the existing sidewalk system to determine which side of the side of the street should be recommended for any additional sidewalk segments. •Low-volume roads: o Sidewalk gap on a single segment: When there is a gap in existing sidewalk on a single city block, staff will evaluate filling it in. This may result in sidewalks being evaluated on both sides of the street. o Sidewalk gap in a multi-block segment: When there is a gap along a multi-block sidewalk network, sidewalk will be evaluated on the side of the street that would create a continuous network. In situations where there is not adjacent sidewalk to Study session meeting of May 8, 2023 (Item No. 2) Title: New sidewalk planning framework Page 5 New sidewalk planning framework - Draft link to, both sides of the street will be evaluated but only one side recommended for construction. •High-volume roads: Continuous sidewalks will be evaluated on both sides of high- volume roads. 3.Design: The standard sidewalk design depends on the sidewalk designation; community or neighborhood. The proposed sidewalk segments will be designated as either community or neighborhood sidewalk based on the following definitions: Community sidewalks are located on a street that is directly adjacent to an activity node. They make major connections within the city and to neighboring cities’ systems. These pedestrian facilities (sidewalks and/or trails) are spaced roughly at 1/4-mile intervals across the city. Most of these sidewalks are located along collector and arterial roadways that have high traffic volumes. In general, activity nodes are community or area destinations such as the library, schools, retail areas, parks, regional trails, transit nodes, high-density housing, and places of worship. Snow removal on community sidewalks is the city’s responsibility. Neighborhood sidewalks are all other sidewalks in the city. They provide accessibility for pedestrians within the immediate area and feed into the community sidewalk system. These sidewalks are generally located on lower-volume roads. Snow removal on neighborhood sidewalk is the property owner’s responsibility. •Sidewalk and boulevard width: The following sidewalk design standards are to be applied. Adjustments are to be made, where practical, to minimize undesirable impacts. Snow removal and other operational needs will continue to be an important consideration. o Community sidewalks: A 6-foot-wide concrete sidewalk with a 5-foot-wide grass boulevard. o Neighborhood sidewalks: A 5-foot-wide concrete sidewalk with a 5-foot-wide grass boulevard. •Minimizing impacts: Staff will use the following techniques to minimize impacts to private property and trees that are both mature and healthy, where practical: o Reduce the width of the boulevard – possible reduction between 0-5 feet. o Reduce the width of the street – minimum street width 24 feet. ▪Parking is allowed on both sides of streets that are 28 feet wide or more. ▪Parking is restricted to one side on streets that are less than 28 feet wide but more than 24 feet wide. ▪Parking is prohibited on streets 24 feet wide or less. Implementation This document will be applied to all transportation projects. The process will be scaled appropriately for individual projects or initiatives, including private developments that influence the public right of way. This document will be used by staff to identify the locations of new sidewalk segments to be evaluated for construction. Staff recommendations will ultimately be project-specific based on Study session meeting of May 8, 2023 (Item No. 2) Title: New sidewalk planning framework Page 6 New sidewalk planning framework - Draft context-sensitive design solutions. This will be inclusive of factors like: traffic volumes, tree impacts, private property impacts, available right of way, and cost. It is possible that not all sidewalks evaluated on a project will be recommended or approved for construction. The decision on whether to construct a new sidewalk segment will be made by the city council as a part of the project approval process. Study session meeting of May 8, 2023 (Item No. 2) Title: New sidewalk planning framework Page 7 Meeting: Study session Meeting date: May 8, 2023 Written report: 3 Executive summary Title: A systems approach to public streetlights Recommended action: None. This report is educational in nature and outlines administrative changes to the streetlighting program. Policy consideration: None. Summary: This item is brought to council as part of the Connected Infrastructure study session series. On Sept. 6, 2022, staff provided council with a report providing information on public streetlights located within the right of way. That report included information on the construction, operation, and maintenance costs for the existing public streetlight system. It also provided information on the city’s existing practice for new streetlight requests and streetlight costs. The city council had questions regarding the reactive nature of the request practice and wanted staff to explore what an approach could be that recognizes that streetlights act as a system in the city. This report provides additional background information on current practices and outlines staff’s recommendation for a systems approach to public streetlighting. Financial or budget considerations: The funding source for streetlights is general levy. The 2022 cost for streetlight operations is shared in the discussion section. There may be additional fiscal impacts dependent upon policy decisions. Strategic priority consideration: St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely and reliably. Supporting documents: Discussion Sept. 6, 2022 study session report Prepared by: Mike Okey, operations superintendent Reviewed by: Debra Heiser, engineering director Cindy Walsh, deputy city manager Jay Hall, public works director Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 3) Page 2 Title: A systems approach to public streetlights Discussion Background In public works and engineering industries,the term “streetlight” is an umbrella term. For the purposes of this discussion, it is being used to describe lighting that predominately illuminates the right of way. St. Louis Park has a network of 2,141 streetlights. These lights are either owned by the city or Xcel Energy. At the Sept. 6, 2022 study session, council reviewed and discussed several facets of streetlighting in St. Louis Park. This included concern that the current practice of installing new streetlights was complaint-driven, discretionary vs. systematic, and not a neutral approach. From these topics, staff was directed specifically to do further work on a program that would treat streetlighting as a system of lighting across the city, with criteria that could be consistently applied for more equitable outcomes. History of streetlights in St. Louis Park The city has a long-standing practice of following industry guidance. The existing streetlighting system reflects this history. This practice has been in place for over 40 years. Industry guidance for residential areas specifically instructs the following: Lights should be installed at intersections, crosswalks, curves, dead ends, and changes in grade. This is because these are the locations where it is most likely there will be activity, and the driver should be aware of a potential hazard making lighting at these locations beneficial. Present considerations The city’s streetlight system utilizes industry guidance and, overall, is comprehensive. At this point, the city does not install lights on residential streets proactively; instead, the established practice is to only install a new light if 1) a request is received that meets established criteria and 2) the request is broadly supported by surrounding property owners. Since 2019, five requests for a new streetlight have been made, none of which have resulted in a light’s installation. This is due to not meeting the criteria, the requesting resident moving, and neighbor opposition. While this does not represent a great deal of staff time, it is a process t hat has not been shown to provide desired outcomes to residents. Criteria used to assess requests for installation of new streetlights To meet the requirements for a new streetlight installation, requests must meet one or more of the following five criteria: 1. At an intersection that currently does not have a streetlight. 2. Cul-de-sacs or dead-end street locations greater than 400 feet from the nearest streetlight. 3. Hills, curves, or other conditions which create vehicle or pedestrian safety hazards. This normally occurs in a situation where a hill or curve blocks out the visibility of a streetlight in either direction. 4. Mid-block locations greater than 400 feet in length from the nearest existing streetlight. Study session meeting of May 8, 2023 (Item No. 3) Page 3 Title: A systems approach to public streetlights 5. Areas where there has been a problem with vandalism or other crime. Information will be requested from the Police Department on the number of crimes reported in the area of the street light request (vandalism, burglary, etc.).* *Alley requests only qualify if criteria number five is met. Equity impact Staff analysis of the area surrounding each of the five requests made since 2019 shows that the areas’ racial diversity demographics are much lower than the overall city BIPOC population of 23%. Four requests were made due to a concern regarding there not being enough light to see at night. Crime concerns were cited as a rationale in one of the requests. In order to better utilize crime prevention through environmental design, staff is updating its process to ensure it is responsive to community concern, results in an effective outcome and is sensitive to potential implicit bias. Financial considerations Since most of the city is already lit to the established standards, staff does not believe that there will be many new streetlights installed. The implementation cost and annual operating cost of the staff recommendation will be dependent upon whether new lights qualify for installation by Xcel Energy. Xcel will usually install a light at no charge to the city if there is overhead power in the area. The estimated 2022 cost to design and install a city-owned streetlight was $16,500 per light. There is no current dedicated funding source for the installation of new city -owned public streetlights. The city is responsible for the electrical operating costs of all streetlighting. Administrative updates to staff processes After reviewing this process and outcomes, staff has two significant changes it is incorporating into the work. 1. In order to provide a more consistent experience across the city and better anticipate capital installation needs, staff will eliminate the request procedure and proactively apply criteria 1-4 above to the street grid. Should lights be warranted, they would be worked into the city’s capital improvement plan. Staff would also follow the “inform” stage on the Spectrum of Public Participation by notifying surrounding property owners prior to installation. 2. Staff understands that streetlighting is one of a number of tools to deter crime. Going forward, streetlight requests due to public safety concerns will be more broadly reviewed; public works and police department staff will coordinate in order to implement Crime Prevention Through Environmental Design (CPTED). CPTED is the concept that the proper design and effective use of the built environment can lead to a reduction in the fear of crime, the incidence of crime and improve the quality of life. CPTED works by eliminating criminal opportunities in and around an area and can result in a location being a less appealing target. Study session meeting of May 8, 2023 (Item No. 3) Page 4 Title: A systems approach to public streetlights There is no single strategy that will reduce all crime; strategies should be applied in combination based on a thorough analysis of the local context. Therefore, to respond to these requests, a security review of the area will be performed to identify solutions. There is a broad range of solutions that can be implemented, not just streetlighting. Next steps Staff will update its procedures and begin the analysis to identify gaps in the streetlighting grid. Through future budgeting processes, staff and council will work together on an implementation plan that balances community need with availability of capital funds. Meeting: Study session Meeting date: May 8, 2023 Written report: 4 Executive summary Title: CP rail regional trail – Golden Valley and St. Louis Park Recommended action: The purpose of this report is to provide the council with background on this regional trail planning and to inform the council on the Three Rivers Park District regional trail planning public engagement and preferred route development. Policy consideration: No policy consideration at this time. Summary: Three Rivers Park District‘s Canadian Pacific (CP) rail regional trail is a planned 21- mile regional trail corridor that traverses six communities in Hennepin County – Bloomington, Edina, St. Louis Park, Golden Valley, New Hope and Crystal. The master plan for the segment in Bloomington was recently completed. The trail will fill a critical north-south gap in the regional trail system and provide a highly desirable recreation amenity to adjacent communities and the greater region. The regional trail corridor was originally centered along the CP rail line; however, this is not feasible for the majority of the corridor. Three Rivers Park District will need to identify and study alternative routes to determine which option best balances feasibility, cost, private property impacts, and safety. The north-south regional trail through St. Louis Park is identified in the city’s 2040 Comprehensive Plan, the Active Living Sidewalk and Trail Plan, and complements the Connect the Park sidewalk and trail implementation. Three Rivers Park District is starting a six-month study of the trail corridor that includes significant input from city staff, the Park and Recreation Advisory Commission and community members through numerous public engagement events throughout the process. The community will have the opportunity to comment on the preferred route. Three Rivers Park District will bring the master plan to council for review and support. This is currently planned for spring 2024. Financial or budget considerations: There are no budget considerations for the city. Three Rivers Park District is funding the trail master plan. Strategic priority consideration: St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely and reliably. Supporting documents: Discussion Three Rivers Park District introductory information handout Prepared by: Jack Sullivan, engineering project manager Reviewed by: Debra Heiser, engineering director Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 4) Page 2 Title: CP rail regional trail – Golden Valley and St. Louis Park Discussion Background Three Rivers Park District’s Canadian Pacific (CP) rail regional trail is a planned 21-mile regional trail corridor that traverses six communities in Hennepin County – Bloomington, Edina, St. Louis Park, Golden Valley, New Hope and Crystal. This corridor is broken into four segments. The master plan for segment A in Bloomington was recently completed. Three Rivers Park District is kicking off a planning study for the CP rail regional trail Segment C in St. Louis Park and Golden Valley. This segment is shown on the attached handout and will connect the Cedar Lake Trail in St. Louis Park to the Luce Line Trail in Golden Valley. This north- south regional trail connection through St. Louis Park is identified in the city’s 2040 Comprehensive Plan, the Active Living Sidewalk and Trail Plan, and helps to support the Connect the Park bikeway, sidewalk and trail implementation. Staff from the Parks and Recreation and Engineering departments have begun working with Three Rivers Park District staff to identify public engagement opportunities, identify preliminary routes and opportunities for collaboration with other programmed improvements. This collaboration will continue through the development of route alternatives. Three Rivers Park District will present at the May 2023 Park and Recreation Advisory Commission. Financial considerations There are no budget considerations for the city. Three Rivers Park District is funding and completing the trail master plan. The master plan will identify a high-level cost estimate for future funding considerations. Schedule Three Rivers Park District will be engaging city staff, the Park and Recreation Advisory Commission and the community throughout the remainder of 2023. An overview of the timeline can be found in their introductory Information handout attached to this report. They have developed a robust public engagement plan that will be implemented this summer. The final master plan for the segment in St. Louis Park is expected to be completed at the end of the year and have an official public comment period in January 2024. Three Rivers Park District will present the final plan to the council in the spring of 2024 for review and support. A timeline for the development of final plans and construction of the regional trail has not been identified. Next steps Staff will continue to work with Three Rivers Park District in the planning process to identify and study alternative routes for the regional trail through St. Louis Park. CP Rail Regional Trail: Golden Valley/St. Louis Park Cedar Lake RT to Luce Line RT (Segment C) Introductory Information Three Rivers Park District Project Manager Stephen Shurson, Landscape Architect Stephen.Shurson@threeriversparks.org 763-559-6766 Project Introduction The CP Rail Regional Trail is envisioned as a north-south multi-use, non-motorized recreational corridor spanning from the Minnesota Valley State Trail in Bloomington to Crystal Lake Regional Trail in Crystal at Becker Park. The regional trail will be planned in segments to allow for thoughtful community engagement and detailed route analysis. This phase will focus on Segment C through Golden Valley and St. Louis Park between the Cedar Lake and Luce Line Regional Trails. The regional trail corridor was originally centered along the CP Rail line; however, this is not feasible for the majority of the corridor. Alternative routes will need to be identified and studied to determine which option best balances feasibility, cost, private property impacts, and safety. Initial Questions: 1)Any concerns with proceeding with long-range planning at this time? 2)Any local priorities/goals to consider/incorporate into the planning process? 3)Any routes/destinations to consider/avoid? 4)Any projects/opportunities to try to collaborate with? 5)What are the City’s community engagement expectations/ideas? Tentative Schedule/Process: Project Phase Timeframe St Louis Park Parks & Rec Golden Valley Open Space & Rec Commissions Check-in City Council Check-in Kick Off April-early May 2023 Yes Route Identification May - early June 2023 Yes – will help identify routes/destinations Yes – will approve routes for study/engagement Route Assessment/Public Engagement June - August 2023 No official check-in, but will be kept informed of opportunities/public sentiment Route Review/Approval September 2023 Yes 30-day Comment Period January 2024 N/A Long Range Plan Adoption Spring 2024 Yes – Resolution of Support will be requested Study session meeting of May 8, 2023 (Item No. 4) Title: CP rail regional trail – Golden Valley and St. Louis Park Page 3 Meeting: Study session Meeting date: May 8, 2023 Written report: 5 Executive s ummary Title: Speed limit update - Utica Avenue south of Westside Drive – Ward 1 Recommended action: No action required. The purpose of this report is to provide the council with updated information on Utica Avenue speeds. Policy consideration: None. Summary: During the citywide speed limit implementation process that occurred in 2021, the original recommendation was to lower the speed limit on Utica Avenue from 30 mph to 25 mph. However, after an in-depth review of the available speed data, the speed limit for this segment of roadway was recommended to remain at 30 mph due to the higher speed data that was available. Data collected in 2018 - 2020 indicated average speeds ranged from 5 to 15 mph above the posted 30 mph speed limit. During the May 24, 2021, study session, the council expressed concerns regarding these high speeds on Utica Avenue. Since that time staff has completed the following items: • The speed board was deployed and directed police patrols occurred to reinforce the posted speed limit. • The speed limit sign for southbound Utica Avenue was relocated to increase visibility for vehicles. • Updated speed and volume data were collected and compared to previous data sets. Speed and volume data were collected for a seven-day period in mid-November 2022 on Utica Avenue between Westside Drive and 27th Street near the New Horizons Academy and the Park at One Hundred apartments. The main findings from this data collection show that the average speed of vehicles is 32-33 mph, 85% of the traffic occurs on weekdays and traffic volumes are approaching pre-pandemic levels. This data is more representative of what staff expects on Utica Avenue compared to the data used during the 2021 evaluation. The November 2022 data confirms the recommendation for the posted speed of Utica Avenue to be 30 mph. With the average speed within 5 mph of the p osted speed, there are no interim traffic management measures to influence driver speed that staff would recommend. Financial or budget considerations: None Strategic priority consideration: St. Louis Park is committed to providing a variety of options for people to make their way around the city comfortably, safely and reliably. Supporting documents: Discussion May 24, 2021 Citywide speed limit evaluation update – Council report Prepared by: Jack Sullivan, engineering project manager Reviewed by: Debra Heiser, engineering director Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 5) Page 2 Title: Speed limit update - Utica Avenue south of Westside Drive Discussion Background During the citywide speed limit implementation process that occurred in the summer of 2021, the original recommendation was to lower the speed limit on Utica Avenue from 30 mph to 25 mph. However, after an in-depth review of the available speed data, the speed limit for this segment of roadway was recommended to remain at 30 mph due to the speed data that was available. Data collected in 2018 - 2020 indicated average speeds ranged from 5 to 15 mph above the posted 30 mph speed limit. Southbound data collection date Average speed (Posted speed = 30 mph) 2017 – 2019 avg 35.1 mph Sept 2018 37.6 mph Oct 2018 39.7 mph May 2019 28.6 mph Aug 2019 40 mph May 2020 45.5 mph July 2020 20 mph These higher speeds suggested that additional data should be collected to better understand the speed of drivers on this segment of roadway. Current data Prior to collecting data, the existing speed limit sign on southbound Utica Avenue south of Westside Drive near the Luther Westside Volkswagen preowned dealership was moved further south to allow for better visibility. The original location was obscured by the boulevard trees. Staff collected speed and volume data for a seven-day period in mid-November 2022 on Utica Avenue south of Westside Drive near the New Horizons Academy and the Park at One Hundred apartments. The primary findings from this data collection are: • The average speed of vehicles is 32-33 mph (posted speed limit is 30 mph). • 85% of the traffic occurs on the weekdays. • Traffic volumes of 3,950 vehicles per day (weekdays) and 1,736 vehicles per day (weekends) are approaching pre-pandemic levels. • Most of the traffic volume is southbound vehicles: o 86% of weekday volume is southbound and traveling at an average of 32.6 mph. o 78% of weekend volume is southbound and traveling at an average of 33.2 mph. • Northbound traffic average speed is slower at: o 29.9 mph for weekdays. o 30.3 mph for weekends. The higher southbound volumes can be attributed to the on-ramp to southbound Highway 100 near 27th Street. The variation in speed data from the 2021 study and the fall 2022 collection can be attributed to the data collection methods used. Last fall, the city consultant had to calibrate their Study session meeting of May 8, 2023 (Item No. 5) Page 3 Title: Speed limit update - Utica Avenue south of Westside Drive equipment to prevent it from collecting data for Highway 100 vehicles. Most of the previous data available during the citywide speed limit evaluation was collected using radar speed boards. Those speed boards have limited ability to be calibrated, and the higher speeds (5-15 mph over the posted speed limit) are attributed to the speed board picking up the higher speeds of vehicles on Highway 100. This data is more representative of what is expected on Utica Avenue. The November 2022 data confirms the recommendation to keep the posted speed of Utica Avenue at 30 mph. Next steps The posted speed limit of 30 mph on Utica Avenue south of Westside Drive is appropriate for this section of roadway. The average speed is within 5 mph of the posted speed; due to this, there are no interim traffic management measures to influence driver speed that staff would recommend. Staff will re-evaluate Utica Avenue with the larger citywide speed limit review that was recommended to be completed within three years of implementation. Meeting: Study session Meeting date: May 8, 2023 Written report: 6 Executive s ummary Title: Zoning code update – residential districts Recommended action: None at this time. The purpose of the report is to summarize planning commission work in updating the city’s zoning code in relation to managing change in residential areas and in alignment with the city’s strategic priorities and city council goals. Policy consideration: None at this time. Summary: The purpose of the report is to summarize planning commission’s progress as they review the city’s zoning districts regulations. One of the goals of the process is to expand the types of housing allowed in the residential areas as contemplated in the comprehensive plan. This includes reviewing where the various housing types could be allowed. It will eventually include updates to the dimensional standards for housing, including minimum lot sizes and yards, maximum height and density, and other factors. This update is currently being referred to broadly as the “zoning code update.” The zoning code update also encompasses the city council’s directives resulting from a study session workshop held on Nov. 7, 2022. This discussion focused on how low-density neighborhoods can become more aligned with adopted strategic priorities. The discussion affirmed the city’s strategic priorities and comprehensive plan goals to provide a variety of housing types and affordability in low-density residential areas. The report summarizes the outcomes of the following discussions: 1. Reviewing the structure of the zoning ordinance. 2. Defining various housing types. 3. Categorizing compatible housing types into a few groups. 4. Identifying the kinds of places in the city the various housing groups may be appropriate. Financial or budget considerations: Some of the work noted in the report will have financial impacts through programming and staff time. The residential portion of the zoning code update is included in the 2023 budget. Future zoning updates to the non-residential districts and the special provisions section (parking, signage, lighting, etc.) of the zoning ordinance may need to be budgeted for in future budget cycles. Strategic priority consideration: St. Louis Park is committed to providing a broad range of housing and neighborhood oriented development. Supporting documents: Discussion Prepared by: Gary Morrison, zoning administrator Reviewed by: Sean Walther, planning manager/deputy community development director Karen Barton, community development director Approved by: Kim Keller, city manager Study session meeting of May 8, 2023 (Item No. 6) Page 2 Title: Zoning code update – residential districts Discussion Background The planning commission discussions focused on the following topics, which are summarized below: 1. Reviewing the structure of the zoning ordinance. 2. Defining various housing types. 3. Categorizing compatible housing types into a few groups. 4. Identifying the kinds of places in the city the various housing groups may be appropriate. Reviewing the structure of the zoning ordinance. The planning commission reviewed various ways the zoning ordinance could be structured ranging from maintaining the current structure to adopting a structure that consolidates requirements into easy-to-read tables and concise lists. The planning commission is recommending the consolidated structure because it is easier to use and utilizes the advantage offered by a digital zoning ordinance. The digital zoning ordinance is searchable, making it more convenient for people to search specific terms or words. Identifying various housing types. Below is a table that identifies and defines the various housing types to be included in the zoning ordinance. The housing types are divided into four categories: house scale, low-rise scale, mid-rise scale, and high-rise scale. Housing Type Definition House scale Dwelling, single-unit detached Dwelling, single-unit detached means a fully detached unit located on an individual lot and intended for occupancy by a single-household. This includes a manufactured home. Dwelling, detached courtyard cottage/bungalows Dwelling, detached courtyard cottage/bungalow means a cluster of multiple, individual detached dwelling units arranged around a shared courtyard or open space that is typically perpendicular to the street and where the shared courtyard takes the place of individual rear yards. Dwelling, attached two-unit (twin home) Dwelling, attached two-unit (twin home) means a dwelling unit designed for or occupied by two (2) households only, where the units share at least one (1) common wall and each unit is on its own individual parcel. Dwelling, two-unit (duplex) Dwelling, two-unit (duplex) means a residence designed for or occupied by two (2) households only, with both units on one (1) parcel. Manufactured home park Manufactured home park means a parcel of land under single control or ownership which has been developed for the placement of manufactured homes for residential use. Low-rise scale Study session meeting of May 8, 2023 (Item No. 6) Page 3 Title: Zoning code update – residential districts Housing Type Definition Dwelling, three-plex and four- plex Dwelling, three-plex or four-plex means a single residential structure on a single lot which is designed for the occupancy of three (3) or four (4) households living independently of one another; the units have an individual entrance that either exits outside or to a shared vestibule/hallway. Dwelling, small townhouse (three to four units per building) Dwelling, townhouse means a single residential unit which is located within a larger residential structure containing multiple units and which is separated from the adjoining dwelling unit(s) by at least one (1) common wall. Each dwelling unit may be located on its own individual lot or on a common lot containing all of the attached units. Each dwelling unit shall have a separate and individual entrance. A small townhouse dwelling is in a structure with three (3) or four (4) units, while a large townhouse dwelling is in a building with between five (5) and eight (8) units. Dwelling, low-rise apartment (three stories or less) Dwelling, apartment means a multi-unit residential building that consists of side-by-side or stacked dwelling units on one (1) lot and typically with a shared common entrance. A low-rise apartment has no more than three (3) stories, a mid-rise apartment has between four (4) and six (6) stories, and a high- rise apartment has seven (7) or more stories. Mid-rise scale Dwelling, large townhouse (five to eight units per building) See Dwelling, townhouse definition above. Dwelling, mid-rise apartment (four to six stories) See Dwelling, apartment definition above. High-rise scale Dwelling, high-rise apartment (more than seven stories) See Dwelling, apartment definition above. Dwelling, apartment mixed use Dwelling, apartment mixed use means a building that has multiple residential dwelling units, as well as at least one non- residential use which is permitted in that zoning district. Categorizing compatible housing types into a few groups. The planning commission discussed how the housing types identified above fit into the current residential zoning districts. The city currently has five residential zoning districts: • R-1 single-family residence • R-2 single-family residence • R-3 two-family residence • R-4 multiple-family residence • R-C high-density multiple-family residence The R-1 and R-2 zoning districts are written to emphasize single-family residence, and do not allow other housing types identified in the house scale list above. The goals of the 2040 Study session meeting of May 8, 2023 (Item No. 6) Page 4 Title: Zoning code update – residential districts comprehensive plan and the council priorities identify the need to expand on the housing types in our low-density residential districts. When reviewing the R-1, R-2, and R-3 zoning districts against the 2040 comprehensive plan and the council priorities, it became evident that the three districts could be combined, resulting in one low-density residential district, one mid-rise residential district, and one high-rise residential district. The table below summarizes how the housing types could be applied to each of these three districts. The district names changed from using the term residence to using neighborhood. This was intentional for two reasons: 1) to create a clear break from the current system of emphasizing single-family and residential uses; and 2) the neighborhood term acknowledges that non- residential are allowed in these areas. They also include parks, schools, places of worship, accessory dwelling units, home occupations, and more. This combination of uses forms St. Louis Park’s neighborhoods. The list below shows an asterisk by the housing types listed in the low-rise scale. This is to specify that these uses are allowed in the N-1 district but would have additional conditions intended to guide them to specific property types. These property types will be discussed at the May 17, 2023, planning commission meeting, and may include the following: • A larger minimum lot size than otherwise required for house scale units. • Greater setbacks than otherwise required for house scale units. • That they be located on corner lots and/or have alley access. • They be adjacent to a community park, commercial node, or a commercial corridor such as parts of Minnetonka Boulevard, Excelsior Boulevard, and Louisiana Avenue. Housing Type N-1 N-2 N-3 House scale Dwelling, single-unit detached X Dwelling, existing single-unit X Dwelling, detached courtyard cottage/bungalows X Dwelling, attached two-unit (twin home) X Dwelling, two-unit (duplex) X Manufactured home park X Low-rise scale Dwelling, three-plex and four-plex* X X Dwelling, small townhouse* X X Dwelling, low-rise apartment* X X Study session meeting of May 8, 2023 (Item No. 6) Page 5 Title: Zoning code update – residential districts Housing Type N-1 N-2 N-3 Mid-rise scale Dwelling, large townhouse X X Dwelling, mid-rise apartment X X High-rise scale Dwelling, high-rise apartment X Dwelling, apartment mixed use X Identifying where in the city the various housing groups may be appropriate. After identifying the housing types to be allowed and settling on three neighborhood zoning districts, the next task is to review the zoning map to determine where the districts will be applied and what the minimum performance standards should be. The planning commission will hold this discussion on May 17, 2023. While reviewing the zoning map, emphasis will be placed on making the city’s resources, such as commercial nodes, community parks, regional trails, schools, places of worship, and transit equally accessible to people living in all dwelling types. St. Louis Park has generally included higher density housing types next to open spaces such as Louisiana Oaks Park and Wolfe Park, and commissioners want to allow mid-rise and low-rise housing to also have access to these resources throughout the city. The zoning map should also reflect the city’s desire for walkable neighborhoods and to strengthen the city’s commercial businesses and transit by placing low- rise and potentially mid-rise housing types adjacent to the commercial areas instead of only single-unit housing. At the May meeting, the planning commission will also begin discussing performance standards. This discussion will include minimum lot sizes and yards, maximum building height, ground floor area and impervious surface. They will also discuss conditions applied to low-rise housing located in the N-1 district to define specifically where low-rise housing types will be allowed. The intent of these conditions will be to address how to reasonably mitigate impacts of larger buildings adjacent to smaller ones. They will also explore how regulations may impact housing design. For example, would a duplex located on a small lot result in attached garages that appear to dominate the front façade? Additionally, consideration needs to be given to adequate parking, preserving green space and tree canopy, and the city’s water, sewer, and stormwater infrastructure capacity. Next steps The planning commission intends to complete its review in June. Upon completion of the review, staff plan to conduct a community outreach process during the months of June and July. A general timeline of the zoning code update is attached. Study session meeting of May 8, 2023 (Item No. 6) Page 6 Title: Zoning code update – residential districts