HomeMy WebLinkAboutCH9-TransportationPLAN OF STILLWATER
Chapter 9 : Transportation 9-1
Transportation
Introduction
The Transportation Plan is a vital part of the City of Stillwater
Comprehensive Plan. The Transportation Plan acts as
a guideline for the City as it plans for future infrastructure
needs and transportation facilities and is intended to provide
guidance for the development of transportation systems that
will meet Year 2040 conditions. This Plan addresses the existing
roadway system as well as other transportation modes including
transit, freight, trails, bikeways, and aviation, and provides
recommendations for the future transportation network based
on projected growth.
The Plan incorporates the findings of recently completed
regional and local transportation studies. Washington
County is currently in the process of completing its 2040
Comprehensive Plan and includes updates to the Washington
County traffic model based on various growth and roadway
improvement scenarios. The City of Stillwater has experienced
significant growth in the past ten years and is expected to grow
even more by the year 2040. The Metropolitan Council, as part
of its regional forecasting, projects that the City of Stillwater
will have a population of 20,600 by year 2020, and 22,800 by
2040. Increases in population will put greater demand on the
existing transportation facilities within the City. In addition to
improving regional connections, there is also a need to improve
east-west and north-south transportation corridors within the
City of Stillwater. The City must work closely with the regional,
State, County and adjacent municipalities in the planning of
roadways and transit infrastructure to provide access and
mobility for residents and visitors.
The City of Stillwater is also home to two major St. Croix
River crossings. The recently completed St. Croix Crossing
Chapter 9 Contents
Introduction ........................9-1
2040 Transportation Policy Plan .......9-2
Goals & Objectives ...................9-2
Existing Conditions ..................9-4
Programmed & Planned Improvements 9-19
Traffic Forecast Methodology ........9-20
Potential Future Roadway Improvements .
9-28
Transportation Issues ...............9-28
2040 Jurisdictional and Functional
Classification Plan ..................9-33
Access Management ................9-34
Transit Plan ........................9-36
Freight ............................9-41
Aviation ...........................9-42
Trails and Bikeways .................9-45
Planning for the Future ..............9-46
9-2
PLAN OF STILLWATER
Chapter 9 : Transportation
Leveraging Transportation Investments to Guide
Land Use: The region leverages transportation
investments to guide land use and development
patterns that advance the regional vision of
stewardship, prosperity, livability, equity, and
sustainability.
Goals & Objectives
When considering the local context of the
Transportation Plan, a series of goals and objectives
that are important to the provisions of an efficient
transportation system should be considered. These
goals and objectives are listed below:
Transportation Goals
Goal 1: Provide and maintain a safe, convenient,
and efficient transportation system for the
movement of people and goods.
Objectives
1. Establish a consistent and continuous funding
mechanism for the City’s transportation system.
2. Take an active role with MnDOT, Washington
County, the Metropolitan Council, and other
agencies involved in transportation planning,
to provide the most effective transportation
system for Stillwater, particularly regarding TH
36, TH 95 and TH 96.
river bridge connects Minnesota Trunk Highway
(TH) 36 to Wisconsin TH 64 and was opened to
traffic in August 2017. Upon completion of the St.
Croix Crossing, the historic Stillwater Lift Bridge
is currently in the process of being converted to a
bicycle and pedestrian crossing and will become
part of a five-mile loop trail system connecting the
new St. Croix Crossing river bridge with the historic
Lift Bridge. The Lift Bridge will continue to operate
to allow boat navigation beneath, and the bridge
conversion project is scheduled for completion in
June 2019.
2040 Transportation Policy Plan
In 2015 the Metropolitan Council prepared the 2040
Transportation Policy Plan (TPP) to support its
2040 Regional Development Framework. The 2040
TPP contains several transportation policies and
strategies intended to guide the development of
the regional transportation system. The philosophy
and focus of the TPP is emphasized through the
following goals:
Transportation System Stewardship: Sustainable
investments in the transportation system are
protected by strategically preserving, maintaining,
and operating system assets.
Safety and Security: The regional transportation
system is safe and secure for all users.
Access to Destinations: People and businesses
prosper by using a reliable, affordable, and efficient
multimodal transportation system that connects
them to destinations throughout the region and
beyond.
Competitive Economy: The regional transportation
system supports the economic competitiveness,
vitality, and prosperity of the region and State.
Healthy Environment: The regional transportation
system advances equity and contributes to
communities’ livability and sustainability while
protecting the natural, cultural, and developed
environment.
2040 Transportation Policy Plan
The 2040 Transportation Policy Plan
presents the policies and plans to guide the
development of the region's transportation
system. It carries forward the vision
of Thrive MSP 2040 for growth and
development of the Twin Cities region
toward economic success and vibrancy in
the decades to come.
PLAN OF STILLWATER
Chapter 9 : Transportation 9-3
3. Maintain the City transportation system in a
“state of good repair.”
4. Explore system preservation strategies and low-
cost/high benefit solutions before expansion.
5. Extend local and service roads in an efficient
manner consistent with the County’s
Transportation Plan that is complimentary to
the state highway system.
6. Circulation Improvements: Support a regional
transportation system that circulates traffic
and enhances the ability to move goods and
products throughout the community.
Goal 2: Encourage efficient and environmentally
sound transportation.
Objectives
1. Developing and locating new roadways should
be sensitive to historic structures, sites, and
natural features.
2. Enhance the function, safety and appearance
of Stillwater’s streets, highways and major
entryways into the City.
3. Utilize previous and other green infrastructure
and technologies for stormwater treatment
associated with parking lot and street
improvements where possible and economically
feasible.
4. Use topography and other site planning
methods to minimize the visual presence of
parking lots.
Goal 3: Develop a coordinated transportation
system that provides for local and area-wide
traffic.
Objectives
1. Make it easy and convenient to travel in
and around Stillwater, tie allowable new
development to the capacity of roadways,
limit impact of non-residential traffic in
neighborhoods when possible, and implement
the comprehensive sidewalk, trail and bikeway
system plan.
2. Maintain the carrying capacity of through
streets while minimizing the negative impact
on adjacent residential areas through landscape
treatment and street design.
3. Reduce through traffic impact in residential
areas by effective of roadway design and traffic
management.
4. Coordinate planning for new development
areas with planning for the roadways such as
CSAH 15, CSAH 12, CR 64, TH 96, and TH 36
that will provide access to new development
sites.
5. Work with MnDOT, Washington County
and surrounding jurisdictions to study and
improve State highways and County roads
where needed, including new intersections or
interchanges on TH 36.
Goal 4: Provide an integrated transportation
system that supports all modes of transportation,
including vehicles, freight, bikes, pedestrians,
and transit users.
1. Maintain existing public stairways throughout
the community, particularly in the downtown.
2. Explore alternative transportation and transit
opportunities for Downtown Stillwater.
3. Work with Washington County and the State in
developing park and ride lots, trailway systems
and other programs to reduce automobile use.
4. Increase transit ridership for transit dependent
residents, particularly senior citizens, provide
adequate transit facilities such as bus stops
and transfer stations to support transit use,
and cooperate with the regional transit
authority and Washington County to provide
conveniently located park and ride facilities at
major transit stops.
5. Encourage the provision of transit service for
transit dependent residents.
9-4
PLAN OF STILLWATER
Chapter 9 : Transportation
Existing Conditions
The roadway network in the City of Stillwater is a
significant component of its transportation system
and continues to expand to accommodate growth
and redevelopment. The City of Stillwater features
efficient access to the regional transportation
roadway system, and industrial areas and
economic centers are located with nearby access to
the metropolitan highway system, which reduces
the impact of truck traffic on local roadways
and minimizes the potential for disruption of
neighborhoods. This section of the Transportation
Plan will address key features of Stillwater’s
roadway system including the jurisdictional and
functional classifications, future roadway system
improvements, future traffic volumes, congestion,
safety, and additional transportation components
and policies
Demographic Projections
The Metropolitan Council has prepared
socioeconomic projections for years 2020, 2030 and
2040 for the City of Stillwater. These projections
are utilized by Metropolitan Council to plan for
regional system updates and are listed in Table 9.1.
Jurisdictional Classification
Ownership of the City’s roadway system is
shared among the Minnesota Department of
Transportation (MnDOT), Washington County,
and the City of Stillwater. MnDOT maintains the
interstate and trunk highway system on behalf
of the State of Minnesota, Washington County
maintains the County State Aid-Highway (CSAH)
and County Road (CR) systems, and the remaining
public roadways within the City are owned and
maintained by the City of Stillwater. The three
jurisdictions coordinate in the planning and
improvement efforts of the roadway system in
Stillwater. The existing jurisdictional classification
map is shown in Figure 9.1.
The jurisdictional classification system is intended
to maintain a balance of responsibility among the
three governing agencies. It is organized around
the principle that the highest volume and limited
access roadways that carry regional trips are
primarily maintained by MnDOT, the intermediate
volume roadways that carry medium length trips
are maintained by Washington County, and the
local street system that provides access to individual
properties is maintained by the City of Stillwater.
Table 9.1: Socioeconomic Data for Stillwater
Year Population Households Employment
2010 18,227 7,076 9,628
2020 20,600 8,400 10,700
2030 21,800 9,000 11,300
2040 22,800 9,600 11,700
Figure 9.1: Existing
Jurisdictional Classification
Figure 9.2: Existing
Functional Classification
PLAN OF STILLWATER
Chapter 9 : Transportation 9-7
Functional Classification
The functional classification system is a roadway
and street network that distributes traffic from
neighborhood streets to collector roadways,
then to arterials and ultimately the Metropolitan
Highway System. Roadways are placed into
categories based on the degree to which they
provide access to adjacent land versus providing
higher-speed mobility for “through” traffic.
Functional classification is a traditional cornerstone
of transportation planning. Within this approach,
roadways are located and designed to perform
their designated function.
The current roadway functional classification
map for Stillwater is presented in Figure 9.2. The
roadway system presently consists of the following
five functional roadway classifications:
• Principal Arterial
• A-minor Arterial
• Other Arterial
• Major Collector
• Minor Collector
Metropolitan Council Functional
Classification
For arterial roadways, the Metropolitan
Council has designation authority. Local
agencies may request that their roadways
become arterials, or are downgraded from
arterial to collector, but such designations
or re-designations must be approved by the
Metropolitan council.
9-8
PLAN OF STILLWATER
Chapter 9 : Transportation
Right-of-Way Needs
The roadway right-of-way width will vary given
the function of the facility. The standard right-of-
way requirements within the City of Stillwater are
as summarized in Table 9.2:
An inventory of the roadway system was conducted
to view certain operational characteristics and to
note the number of travel lanes on the roadways
within the City. The number of lanes for the
primary roadway facilities in Stillwater are shown
in Figure 9.3. This figure provides an overall view
of available lanes for through traffic on the roadway
segments.
Table 9.2: Right-of Way Requirements in
Stillwater
Functional Classification Right-of-Way Range
Principal Arterial 100-300 feet
Minor Arterial 60-150 feet
Collector 60-100 feet
Local 50-80 feet
Level of Service
In general, the capacity of a roadway is a measure
of its ability to accommodate a certain volume of
moving vehicles. Level of service (LOS) refers to
a quantitative comparison between the existing
traffic volume and the maximum volume of traffic
the roadway can accommodate given its lane
configuration as identified in Table 9.3. Based on the
ratio between existing traffic volumes and roadway
capacity, a level of service from A to F is assigned.
For planning purposes in a metropolitan area LOS
D and E are considered approaching capacity and
LOS F conditions are considered over capacity
and generally require mitigation measures such as
added lane capacity, improved access management,
or localized intersection improvements. As a long-
term planning document, this section will address
capacity improvement needs such as the required
number of traffic lanes. This approach is consistent
with Metropolitan Council guidelines for 2040
comprehensive plans.
Table 9.4 displays the level of service categories,
approximate volume-to-capacity (V/C) ratios, and
a general description of the traffic operations. In
accordance with MnDOT guidelines, the traffic
level analysis uses the LOS E/F boundary as the
indicator of acceptable traffic operations and
congestion. LOS E is generally considered an
acceptable operating condition during peak hours
in urban areas such as the Twin Cities.
Figure 9.3: Existing Number
of Lanes for Primary
Roadways
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PLAN OF STILLWATER
Chapter 9 : Transportation 9-11
Table 9.3: Planning-Level Roadway Capabilities by Facility Type
Facility Type
Planning Level
Daily Capacity
Ranges (AADT)
Under Capacity Approaching Capacity
Over
Capacity
LOS A B C D E F
0.2 0.4 0.6 0.85 1.0 >1.0
Two-lane
undivided urban 8,000 – 10,000 2,000 4,000 6,000 8,500 10,000 > 10,000
Two-lane
undivided rural 14,000 – 15,000 3,000 6,000 9,000 12,750 15,000 > 15,000
Two-lane divided
urban (Three-lane)14,000 – 17,000 3,400 6,800 10,200 14,450 17,000 > 17,000
Four-lane
undivided urban 18,000 – 22,000 4,400 8,800 13,200 18,700 22,000 > 22,000
Four-lane
undivided rural 24,000 – 28,000 5,600 11,200 16,800 23,800 28,000 > 28,000
Four-lane divided
urban (Five-lane)28,000 – 32,000 6,400 12,800 19,200 27,200 32,000 > 32,000
Four-lane divided
rural 35,000 – 38,000 7,600 15,200 22,800 32,300 38,000 > 38,000
Four-lane
expressway rural 45,000 9,000 18,000 27,000 38,250 45,000 > 45,000
Four-lane freeway 60,000 – 80,000 16,000 32,000 48,000 68,000 80,000 > 80,000
Six-lane freeway 90,000 – 120,000 24,000 48,000 72,000 102,000 120,000 > 120,000
Table 9.4: Level of Service and Volume Capacity
Level of Service (LOS)Traffic Flow Volume/Capacity Ratio Description
A Free Flow
Below Capacity 0.20 Low volumes and no delays
B Stable Flow
Below Capacity 0.40 Low volumes and speed
dictated by travel conditions
C Stable Flow
Below Capacity 0.60
Speeds and maneuverability
closely controlled due to
higher volumes
D Restricted Flow
Near Capacity 0.85
Higher density traffic restricts
maneuverability and volumes
approaching capacity
E Unstable Flow
Approaching Capacity 1.0
Low speeds, considerable
delays, and volumes at or
slightly over capacity
F Forced Flow
Over Capacity >1.0
Very low speeds, volumes
exceed capacity, and long
delays with stop-and-go traffic
9-12
PLAN OF STILLWATER
Chapter 9 : Transportation
Current Traffic Volumes and Roadway
Deficiencies
Existing traffic volumes are used to determine the
ability of the roadways to function as intended.
The levels of traffic along a roadway, along with
the available lanes on which traffic operates, are
the primary determinants for calculating the levels
of service of a roadway facility. The most current
average daily traffic volume data available from
MnDOT is provided in Figure 9.4.
Based on a review of existing traffic volumes against
capacities of roadways within the City, there are
roadway segments identified as approaching or
over capacity as indicated in Figure 9.5. It should be
noted the conditions on TH 95 in downtown have
improved since the St. Croix River Crossing opened
in 2018. Stillwater will continue to monitor these
conditions with Washington County and MnDOT.
Figure 9.4: Existing Average
Daily Traffic Volumes
Figure 9.5: Existing Average
Daily Traffic Volumes
PLAN OF STILLWATER
Chapter 9 : Transportation 9-15
Safety
A central concern of transportation professionals
is roadway safety. To assist in the evaluation
of crashes, MnDOT maintains a database of
crash records within the State of Minnesota.
These records identify the location, severity and
circumstances associated with each crash. This
dataset was reviewed to identify the number,
location and severity of crashes on roadways in the
City of Stillwater for the years 2011 to 2015 and is
summarized in Table 9.5.
A detailed review of locations with a high frequency
of crashes was completed. Crashes throughout the
City were generally widely distributed with most
locations accounting for only one or two incidents,
suggesting that a crash at that location was a random
event. However, several crashes were concentrated
at a limited number of locations. Figure 9.6 displays
the intersections where a high frequency of crashes
occurred during the years 2011 to 2015. Table 9.6
also provides additional information on the top 10
intersections with the highest number of crashes.
These intersections were evaluated using MnDOT’s
crash rate methodology.
Table 9.5: Crash Data Summary in Stillwater (2011-2015)
Year Fatal Personal Injury Crashes Property
Damage
Total Crashes
Type A:
Incapacitating
Injury
Type B: Non-
Incapacitating
Injury
Type C:
Possible
Injury
2011 0 3 7 38 99 147
2012 0 0 10 28 112 150
2013 1 0 8 38 115 162
2014 0 0 9 40 125 174
2015 2 0 6 17 93 118
Critical Index
The critical index is the ratio of the observed crash
rate to the critical crash rate. Critical indexes above
1.00 indicate there is likely an existing safety
concern at the intersection. Additional analysis and
observation of the intersection should be completed
to determine the cause of the high critical index.
Based on this conclusion, further investigation
is recommended at the crash locations with a
critical index above 1.00 as identified in Table 9.6
to determine the types of crashes occurring and
identify mitigation approaches to increase safety.
9-16
PLAN OF STILLWATER
Chapter 9 : Transportation
Table 9.6: Top 10 Intersections with Highest Number of Crashes (2011 to 2015)
Intersection
Severity
Intersection
Control
Critical
Index: All
Crashes
Critical
Index: Fatal/
Type AFatal
Type
A
Type
B
Type
C
Property
Damage
1 TH 36 / Washington Avenue
/ Norell Avenue 0 0 2 15 59 Signal 1.52 0.00
2 TH 36 / Greenley Street S
(CR 66) / Oakgreen Avenue 1 0 5 10 36 Signal 1.12 0.64
3 Main Street (TH 95) /
Chestnut Street (CR 23)0 0 3 10 18 Signal 0.96 0.00
4 Washington Avenue / TH 36
West Frontage Road 0 0 0 2 14 Thru-Stop 1.76 0.00
5 Main Street (TH 95) /
Nelson Street 0 0 0 1 14 Signal 0.73 0.00
6 Washington Avenue / Curve
Crest Boulevard 0 0 1 4 9 AWSC 0.72 0.00
7 Chestnut Street (CR 23) /
Water Street 0 0 0 4 9 Thru-Stop 1.00 0.00
8 Chestnut Street (CR 23) /
2nd Street S 0 0 0 3 9 Thru-Stop 1.60 0.00
9 Myrtle Street (CR 12) /
Owens Street (CR 5)0 0 1 1 10 AWSC 0.62 0.00
10 Stillwater Boulevard (CR 5)
/ Curve Crest Boulevard 0 0 0 4 7 Signal 0.3 0.00
Figure 9.6: Crash
Frequency Map
Figure 9.7: Programmed and
Planned Roadway Projects
PLAN OF STILLWATER
Chapter 9 : Transportation 9-19
Programmed & Planned
Improvements
Programmed improvements have advanced
through the project funding programming process
and have funds committed to the improvement in
a designated year; while planned improvements
have been formally studied and/or included in
a Transportation Plan, but typically no financial
commitments to fund the improvement have
been made. Figure 9.7 identifies programmed
and planned roadway improvements. Below are
descriptions of each.
Programmed Improvements – Programmed
improvements have already been identified in the
City’s or County’s Capital Improvement Program
(CIP) and are listed in Table 9.7. Funding has
been secured for these projects, and they will be
constructed within the next five years.
Planned Improvements – Planned improvements
have been discussed between agencies and/or
identified in previous transportation planning
documents. However, a funding source has not
been established. The City assumes that these
projects will receive funding and be implemented
prior to 2040.
Right-of-Way Preservation
When future expansion or realignment of a
roadway is proposed, but cannot immediately be
constructed, the City may consider right-of-way
preservation strategies to reduce costs and maintain
the feasibility of the proposed improvement. Several
strategies may be implemented to preserve right-
of-way for future construction, including advanced
purchase, zoning and subdivision dedication
techniques, official mapping, and corridor signing.
Before implementing any right-of-way preservation
programs, local agencies should consider the risks of
proceeding with right-of-way preservation without
environmental documentation, as MnDOT policy
requires environmental documentation prior to
purchase. If environmental documentation has not
been completed, agencies risk preserving a corridor
or parcel that has associated environmental issues.
Additionally, as indicated in the Metropolitan
Council 2040 TPP, rights-of-way for future
transportation infrastructure are difficult to obtain.
Consequently, right-of-way should be preserved
for public use as project locations become certain
and property becomes available. The Council’s
Right-of-way Acquisition Loan Fund (RALF) will
be used to preserve needed right-of-way for projects
Table 9.7: Planned and Programmed Transportation Improvements
Roadway/Facility Location Primary Improvement Lead Agency
CSAH 24(Osgood Avenue
North)
North and South of TH 36 Pavement, pedestrian and safety
improvements
Washington County
CSAH 23 (South 3rd Street)E Walnut Street to E Chestnut
Street E
Concrete reconstruct Washington County
CSAH 5 (Stillwater Boulevard)Croixwood Boulevard to Pine
Tree Trail
Pavement improvements, turning
lanes, pedestrian improvements
Washington County
CSAH 5 (Stonebridge Trail)Sycamore Street to TH 96 Pavement and pedestrian
improvements. Connection to Trail
and neighborhoods
Washington County
CSAH 5 (Owens Street)CR 64 to Sycamore Street W Pedestrian improvements and
intersection control
Washington County
CSAH 15 (Manning Avenue)
and TH 36
Interchange New Interchange Washington County and
Stillwater
Washington Avenue TH 36 to Curve Crest
Boulevard
New Trail Stillwater
Myrtle Street Owens St N to 5th Street Pavement Reconstruct Stillwater
Neal Avenue N CR 64 to Boutwell Road N Pavement Reconstruct and Trails Stillwater
9-20
PLAN OF STILLWATER
Chapter 9 : Transportation
Traffic Forecast Methodology
Year 2040 daily traffic volumes were developed by
considering the historical traffic growth rates on each
roadway in Stillwater, the broader Metropolitan
Council regional travel demand activity-based
model trends, and previously prepared forecasts
for roadways in the area. In areas where land
development is anticipated, or understood to
be reduced from previous planning activities,
the projected traffic volume was compared to
generalized traffic trip rates for the development
types and the traffic volumes were adjusted as
necessary. Figure 9.8 presents the roadway network
and Transportation Analysis Zones for the City of
Stillwater contained in the Metropolitan Council
regional travel demand model. Table 9.8 represents
the TAZ assumptions used in the model. Figure 9.9
presents the forecast Year 2040 traffic volumes for
roadways within Stillwater.
on principal arterials and other State highways
consistent with the 2040 TPP.
Coordination with Other Jurisdictions
The City Stillwater will continue to coordinate
with adjacent jurisdictions including Stillwater
Township, Oak Park Heights, Lake Elmo, Grant,
St. Joseph (WI), Houlton (WI), Washington County,
and St. Croix County, as well as MnDOT when
planning future improvements. Coordination
among jurisdictions provides opportunities for
collaboration that benefit all agencies and the
public. This results in financial and time savings
through economies of scale as well as potentially
reducing construction impacts to residents and
businesses.
Figure 9.8: Transportation
Analysis Zones
Figure 9.9: Year 2040
Traffic Volumes
Table 9.8: Projected Growth by TAZ
Washington
County TAZ
Met Council
TAZ
Existing 2020 2030 2040
Population Households Employment Population Households Employment Population Households Employment Population Households Employment
92 2317 51 19 1 50 20 0 55 20 0 55 20 0
123 2334 676 233 8 680 235 10 680 235 10 680 235 10
172 2356 695 245 19 700 250 1,080 755 300 1,125 800 400 1,150
173 2356 1,078 315 115 1,000 325 120 760 338 130 788 350 135
174 2357 107 36 121 110 40 140 150 60 160 180 80 180
175 2357 1,643 583 81 1,600 590 80 1,650 610 85 1,700 620 90
176 2358 1,294 501 20 1,300 515 20 1,325 520 85 1,325 520 20
177 2359 1,158 382 9 1,125 400 10 1,000 440 5 1,089 484 0
178 2359 221 80 17 275 80 20 350 130 25 412 151 30
179 2360 768 257 31 800 380 35 975 410 35 1,179 430 40
180 2361 441 145 19 450 160 25 520 180 30 600 200 40
182 2361 742 306 94 800 325 100 897 390 100 1,000 400 110
184 2362 1,082 416 242 1,090 415 245 1,100 420 245 1,100 420 245
185 2363 145 74 333 150 80 400 185 90 415 200 106 425
186 2364 24 12 494 25 15 500 24 14 500 23 12 500
187 2365 358 129 274 400 140 300 600 180 335 707 231 370
189 2365 527 343 356 530 343 400 564 370 445 575 380 475
190 2366 637 256 50 640 255 50 660 262 50 660 270 50
191 2366 634 278 443 625 278 450 660 280 450 660 285 450
192 2367 523 196 1 550 225 0 600 233 0 628 241 0
193 2368 710 289 17 720 300 20 730 309 20 740 318 25
194 2369 727 286 289 730 286 300 745 290 325 745 290 350
195 2370 581 233 59 585 233 60 600 240 65 600 240 70
196 2371 470 196 89 490 200 100 520 230 125 540 260 152
197 2372 33 21 235 100 50 500 160 65 600 185 100 700
198 2372 1,150 481 184 1,150 500 185 1,150 535 265 1,150 593 300
202 2373 335 60 389 350 85 430 375 90 550 380 100 600
204 2374 118 78 489 300 150 490 400 175 425 425 200 568
205 2374 398 177 539 550 250 400 620 275 285 600 300 40
206 2374 0 0 0 450 200 0 450 200 0 450 200 0
208 2375 1,820 772 203 1,800 800 230 1,850 810 240 1,900 824 250
209 2376 144 85 618 350 200 750 500 220 850 500 240 900
210 2376 18 9 2,596 125 75 3,250 190 80 3,320 225 100 3,425
Total 19,308 7,493 8,435 20,600 8,400 10,700 21,800 9,000 11,300 22,800 9,600 11,700
Figure 9.10: Year 2040
Number of Lanes
PLAN OF STILLWATER
Chapter 9 : Transportation 9-25
2040 Roadway Deficiency Analysis
The capacity thresholds previously presented
in Table 9.3 were utilized to identify roadway
segments that are either nearing capacity or
exceeding capacity under Year 2040 conditions with
programmed improvements accounted for. Figure
9.10 illustrates the number of lanes anticipated and
Figure 9.11 presents the future conditions and the
resultant Year 2040 capacity deficiencies within the
community.
Several segments of State and County facilities are
projected to experience capacity deficiencies. These
roadways are under MnDOT and Washington
County jurisdiction and are major transportation
corridors within the community.
Overall, the local roadway system within the
City has been designed to properly serve local
transportation needs. Conflicts can result when
regional traffic uses local roads as alternative
routes. The local roads used as relievers to the
regional system are typically those that serve a
collector roadway function, such as Myrtle Street
W and 2nd Street N. Residential property owners
along these routes recognize the increase in traffic
when congestion on the regional system occurs.
This increase in traffic can create conflicts with
those residential land uses. The City of Stillwater
should continue to coordinate with MnDOT and
Washington County regarding these collectors that
serve as relievers within the system.
Figure 9.11: Year 2040
Roadway Capacity
Deficiencies
PLAN OF STILLWATER
Chapter 9 : Transportation 9-27
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9-28
PLAN OF STILLWATER
Chapter 9 : Transportation
Potential Future Roadway
Improvements
Several roadway improvements do not have
funding allocated based on previous activity or
study. These roadway improvements will require
additional analysis to confirm the roadway extents
and necessary upgrades. The 2040 forecasts and the
subsequent geometric deficiency analysis reviewed
as part of the long-range plan help to put these
potential roadway improvements into perspective.
Figure 9.12 depicts these improvements:
• CSAH 12 (Myrtle Street) changing from two
lanes to three lanes
• CSAH 5 (Stillwater Boulevard/Olive Street)
changing from two lanes to three lanes
• TH 95 changing from two lanes to three
lanes
• TH 36 changing from four lanes to five lanes
Transportation Issues
Several transportation-related studies have been
prepared for various roadway corridors in and
around the City of Stillwater. The purpose of these
studies was to investigate transportation and traffic
concerns and interests by MnDOT, Washington
County, and City staff and residents. In doing so,
planning measures and timelines can be established
in which to address these concerns and interests
and right-of-way can be identified for future
plans or transportation purposes. Where possible,
improvements to the local roadway system should
be considered prior to future development of open
acreage, and as a result the City has worked closely
with Washington County on the transportation
element of the 2040 Comprehensive Plan in order to
ensure a consistent approach to the transportation
needs and goals in the area.
Downtown Stillwater
As the new St. Croix Crossing river bridge
connecting TH 36 to WI TH 64 is now open to
traffic, congestion issues in and around downtown
Stillwater are still present due to higher than
anticipated traffic volumes on TH 36. The new
river crossing has resulted in shifts to traffic
patterns in and around the downtown area, and
additional study work will be to be performed
to identify potential mitigation measures. The
concern over increased traffic volumes in the
downtown area is especially magnified, from
a bikeway and pedestrian perspective, because
the historic Stillwater Lift Bridge is currently in
the process of being converted to a bicycle and
pedestrian crossing and will become part of a five-
mile loop trail system connecting the new St. Croix
Crossing river bridge with the historic Lift Bridge.
Coordination efforts among MnDOT, Washington
County, the City of Stillwater, the local Chamber
of Commerce and business owners and residents
in the downtown Stillwater area will need to occur
to address safety concerns and issues within the
corridor and identify funding opportunities for
infrastructure improvements.
Key Intersections and Roadway Extensions
A key element for identifying intersections
recommended for improvements within the City of
Stillwater is Washington County’s 2017 Intersection
Control Ranking System (ICRS) Report. The
ICRS Report is a County Board approved policy
for prioritizing the installation of traffic control
improvements on roadways under Washington
County’s jurisdiction. Traffic control improvements
primarily include the installation of traffic signals
and roundabouts, but may also include all-way
stops, turn restrictions, or other modifications
to improve traffic operations. The policy was
originally adopted in November 1994, and recent
revisions were approved by the County Board in
July 2015. The following intersections within the
City are identified in the 2017 ICRS Report:
• CSAH 5 (Stillwater Boulevard) at Pine Street
• CSAH 5 (Owens Street) at CSAH 12 (Myrtle
Street)
• CSAH 15 (Manning Avenue) at 62nd Street
• CSAH 15 (Manning Avenue) at CR 64
(McKusick Road)
Figure 9.12: Potential Future
Roadway Improvements
9-30
PLAN OF STILLWATER
Chapter 9 : Transportation
CSAH 5 (Stillwater Boulevard) at Pine Street
The intersection of CSAH 5 (Stillwater Boulevard)
& Pine Street is located in the City of Stillwater and
is currently controlled by sidestreet stop control.
The intersection currently experiences delays for
left turning vehicles on the westbound Pine Street
approach, particularly during the AM and PM
peak hours, due to high traffic volumes on CSAH 5.
The intersection also serves as the primary crossing
location across CSAH 5 for students who attend
nearby Lily Lake Elementary School.
Although the intersection currently does not meet
any vehicular volume warrants for traffic signal
installation, County staff are recommending a
traffic signal at this location due to the intersection’s
roadway network importance and distance from
nearby traffic signals; the significant number
of pedestrian crossings at this location; the lack
of driver compliance for the existing overhead
pedestrian warning flasher; and the presence of the
uncontrolled multi-lane pedestrian crossing, which
has the potential for “multiple-threat” pedestrian
crashes.
A traffic signal is planned for this intersection as part
of the 2018 Management and Safety Project on this
portion of CSAH 5. The traffic signal is currently
under design and is expected to be operational by
late 2018.
CSAH 5 (Owens Street) at CSAH 12 (Myrtle
Street)
The intersection of CSAH 5 (Owens Street) & CSAH
12 (Myrtle Street) is located in the City of Stillwater
and is currently controlled by an all-way stop.
The intersection currently experiences significant
delays during the AM and PM peak hours, and
northbound congestion can regularly exceed three
blocks during the PM peak hour. The intersection
is included in the 2017 ICRS Report because County
staff have concerns about these significant backups
and their effect on the safety of nearby intersections.
Even though the intersection currently meets traffic
signal warrants, the installation of one would pose
numerous challenges, such as:
• A traffic signal would increase speeds in the
area when the lights are green.
• Narrow sidewalks and minimal right-of-
way would make it difficult to install traffic
signal poles and pedestrian push-buttons
without obstructing the sidewalk.
• The existing lane arrangement (lack of left
turn lanes) would not function safely under
traffic signal control and modifying the lane
arrangement would result in significant loss
of on-street parking.
For these reasons, a mini-roundabout was proposed
at this intersection by County staff in 2013 to help
address the existing capacity issues at this location.
County staff were asked to postpone any further
evaluation or designs until after the opening of the
new St. Croix River Crossing, which was expected to
impact area traffic patterns. The new bridge opened
in mid-2017, so staff are planning on collecting new
traffic counts in 2018 once new traffic patterns have
stabilized, and the intersection will be reanalyzed
as a part of the 2018 ICRS Report.
CSAH 15 (Manning Avenue) at 62nd Street
The intersection of CSAH 15 (Manning Avenue) &
62nd Street is located on the border of the City of
Grant and the City of Stillwater and is currently
controlled by sidestreet stop control. Left turns
from the westbound 62nd Street approach currently
experience delays during the AM and PM peak
hours. This intersection is included in the 2017
ICRS Report because County staff have heard from
residents that increasing traffic volumes on CSAH
15 are making it more difficult to find gaps in traffic
during busy times of the day.
Even though the intersection currently meets
traffic signal warrants, it is not recommended for
intersection control improvements at this time due
to the following reasons:
• Although left turns from the westbound
62nd Street approach sometimes experience
delays during the AM and PM peak hours,
the intersection is operating efficiently
during the majority of the day. When left
PLAN OF STILLWATER
Chapter 9 : Transportation 9-31
turners from 62nd Street do experience
delays, the delays are typically not excessive
and are comparable to what they would
experience at a typical traffic signal.
• The installation of an all-way stop or
roundabout would unduly hinder CSAH
15 traffic during all hours of the day, for
the benefit of a small number of vehicles on
62nd Street during peak times of the day.
Although this intersection is recommended to
remain sidestreet stop controlled in the short term,
it is expected that increasing traffic volumes and
nearby development will cause this intersection to
rank highly on the ICRS in the near future. County
staff are therefore tentatively planning to install
a traffic signal at this intersection as a part of the
nearby TH 36 & CSAH 15 Interchange Project
scheduled for 2021.
CSAH 15 (Manning Avenue) at CR 64 (McKusick
Road)
The intersection of CSAH 15 (Manning Avenue) &
CR 64 (McKusick Road) is located on the border
of the City of Grant and the City of Stillwater and
is currently controlled by sidestreet stop control.
The westbound CR 64 and eastbound McKusick
Road approaches currently experience delays,
particularly during the AM and PM peak hours.
This intersection is included in the 2017 ICRS Report
because increasing traffic volumes on CSAH 15 are
making it difficult to find gaps in traffic during
busy times of the day.
The intersection currently does not meet any
warrants for traffic signal installation. It is
therefore not recommended for intersection control
improvements at this time due to the following
reasons:
• Although the sidestreet approaches
currently experience delays during portions
of the day, the intersection is operating
efficiently during the majority of the day.
• Installing a traffic signal would require
extensive geometric improvements to the
westbound and eastbound approaches,
which would need to be widened to
accommodate left turn lanes so that a
potential traffic signal could operate
efficiently and safely. This widening would
also likely require acquisition of private
property.
• The installation of an all-way stop or
roundabout would unduly hinder CSAH
15 traffic during all hours of the day, for the
benefit of a small number of vehicles on CR
64/McKusick Road during peak times of the
day.
County staff expect that this intersection is a likely
candidate for traffic signal installation in the future.
The Brown’s Creek Trail Bridge was designed to
accommodate a future traffic signal and dedicated
left turn lanes were installed on CSAH 15 in 2014 to
improve safety and set up the CSAH 15 approaches
to easily accommodate a future signal. However,
due to the above reasons it is recommended that
this intersection remain sidestreet stop controlled
at this time.
Curve Crest Boulevard Frontage Road
Connection
Another planned roadway extension is the Curve
Crest Boulevard future frontage road connection
between CSAH 15 (Manning Avenue) and CSAH 5
(Stillwater Boulevard). Previous studies identified
the need to establish a frontage road between
CSAH 15 and CSAH 5 as a reliever route to TH 36
as future development occurs. Future projects and
developments already in the planning stages include
the TH 36 at CSAH 15 interchange scheduled for
construction 2021, and the construction of the future
68-acre 300,000 square foot Lakeview Hospital
facility to be located at the northeast quadrant of
TH 36 at CSAH 15. Curve Crest Boulevard will
serve as a vital link for trips to the new Lakeview
Hospital from both the future TH 36 at CSAH 15
interchange and CSAH 5 corridor.
Brick Street
Brick Street is a local street in west central Stillwater
that tends to be utilized as a north/south shortcut
9-32
PLAN OF STILLWATER
Chapter 9 : Transportation
from CSAH 5 to CSAH 12 for travelers attempting
to avoid the intersection of CSAH 5/Owens St/
Myrtle Street. Perceived overcapacity based on
observation by concerned citizens and City staff
has brought this section of roadway to the attention
of the City. Without an immediate improvement
plan for the intersection of CSAH 5/Owens Street/
Myrtle Street, Brick Street is expected to continue to
experience use as a cut-through route.
A discussion about widening Brick Street in order
to provide optimal capacity for cut-through traffic
was held with the Comprehensive Plan Steering
Committee. Widening Brick Street from 36 to 58
feet allows for a three-lane section, consistent
with Washington County roadway cross-section
design standards. This widened section would
accommodate traffic volume increases and allow
the continuation of parking on both sides of the
roadway.
This recommendation would require that parking
on Brick Street between CSAH 5 and CSAH 12
be eliminated in order to keep existing right-of-
way and curbing in place as shown in Figure 9.13.
This approach will allow the City of Stillwater to
accommodate future increases in traffic volumes
on Brick Street with a minimal initial cost and
disruption to property owners.
CSAH 12 at Northland Ave Intersection
Future development and concern by neighbors
related to traffic near the intersection of CSAH 12 and
Northland Avenue prompted the City of Stillwater
Figure 9.13: Brick Street Future Condition
PLAN OF STILLWATER
Chapter 9 : Transportation 9-33
to investigate potential travel routes through the
area. Initially, a north/south Neal Avenue collector
from CSAH 12 to Boutwell Road was analyzed but
rejected because of concerns voiced by Croixwood
neighborhood residents about potential cut-
through traffic in their neighborhood.
With adjacent neighborhood concerns in mind,
Steering Committee members and City Council
reviewed several alternative methods of providing
access to the future residential neighborhood
between Boutwell Avenue and CSAH 12, while at
the same time not allowing a direct through-street in
the area that may encourage additional cut-through
traffic through the Croixwood neighborhood.
Additional access management consideration was
provided for the City of Stillwater Fire Station and
Stillwater Armory both located on Maryknoll Drive
east of the CSAH 12 at Northland Ave intersection.
An Access Management Study was recently
performed by the City and Washington County
identifying current and future traffic demands at
the intersection. Currently, the City and County
will continue to utilize the data and information
collected as part of the recently Access Management
Study and will continue to address issues and work
towards long term solutions and improvement
recommendations for the intersection.
2040 Jurisdictional and Functional
Classification Plan
Jurisdictional Classification Changes
As the City and County work to provide their
2040 transportation networks, the ownership
of roadways may need to change. Ownership
is important as the governing agency becomes
responsible for the roadway, including regulatory,
maintenance, and construction obligations. The
goal, however, is to match the roadway function
with the appropriate agency. For instance, a road
that serves regional trips should be controlled by
a regional agency, such as the State or the County.
As part of the Washington County 2040
Transportation Plan, the County recommended TH
96 change from MnDOT ownership to Washington
County. This was the only change noted within the
City of Stillwater.
Functional Classification Changes
The Metropolitan Council published roadway
functional classifications as an appendix to the
2040 TPP. These guidelines should be used when
identifying and considering revisions to the
functional classification network. It is not expected
that the City’s functional classification system will
change by Year 2040.
9-34
PLAN OF STILLWATER
Chapter 9 : Transportation
Access Management
Access management guidelines are developed
to maintain traffic flow on the network so each
roadway can provide its functional duties, while
providing adequate access for private properties to
the transportation network. This balance of access
and mobility is the focal point to effective access
management.
“Mobility,” as defined in this Transportation Plan,
is the ability to move people, goods, and services
from one place to another via a transportation
system component. The degree of mobility depends
on a number of factors, including the ability of the
roadway system to perform its functional duty, the
capacity of the roadway, and the operational level
of service on the roadway system.
As applied to the roadway system in Stillwater,
the term “access” is the relationship between local
land use and the transportation network or system.
There is an inverse relationship between the amount
of access provided and the ability to move through
traffic on a roadway. As higher levels of access are
provided, the ability to move traffic is reduced as
indicated in Figure 9.14.
Each intersection or driveway access creates a
potential point of conflict between vehicles moving
through an area and vehicles entering and exiting
the roadway, also known as “crash potential”.
These conflicts can result from the slowing effects
of merging and weaving that takes place as vehicles
accelerate from a stop turning onto the roadway, or
decelerate to make a turn to leave the roadway. At
signalized intersections, the potential for conflicts
among vehicles is increased, because through
vehicles are required to stop at the signals. If the
amount of traffic moving through an area on the
roadway is high and/or the speed of traffic on the
roadway is high, the number and type of vehicle
conflicts are also increased. Types of increased
crashes are rear end and right angle in nature.
Accordingly, the safe speed of a road, the ability to
move traffic on that road, and safe access to cross
streets and properties adjacent to the roadway all
diminish as the number of access points increase
Figure 9.14: Relationship between Access
and Mobility Number of Lanes
PLAN OF STILLWATER
Chapter 9 : Transportation 9-35
along a specific segment of roadway. Because of
these effects, there must be a balance between the
level of access provided and the desired function of
the roadway.
In addition, studies have shown that businesses
suffer financially on roadways with poorly designed
access, while well-designed access to commercial
properties supports long-term economic vitality.
Access management is a combination of good
land use planning and effective design of access to
property. All land use planning should incorporate
sound access spacing guidelines.
Key points when reviewing access management
include the following:
• Adequate spacing of access points
• Adequate sight distances
• Avoid off set or dogleg intersections and
entrances
• Encourage development of turn lanes
• Encourage proper driveway design
including width, radii, and sight angles
Access standards and spacing guidelines are
recommended as a strategy to effectively manage
existing ingress/egress onto City streets and to
provide access controls for new development and
redevelopment. The access spacing guidelines for
Stillwater are consistent with Washington County
and MnDOT. The hierarchy of the functional
classification system should be maintained when
applying the access spacing guidelines to a roadway
network. Since arterial roadways have a function
of accommodating larger volumes of traffic and
often at higher speeds, access to such facilities must
be limited in order to protect the integrity of the
arterial functions.
Washington County Access Spacing Guidelines
Through access management, Washington County
strives to maintain the integrity of the roadway
system by preserving the balance between safety
and mobility of the roadway system. The County
strives to adequately service the through traffic on
a roadway with the limited ability to improve the
system while simultaneously providing adequate
access to serve development. The County can then
stipulate the specific access spacing requirements
for various County roads through plat reviews
and/or specify the best location and requirements
for access through their access permit process.
Several benefits are established by the use of proper
access management guidelines. These include a
significant reduction in crash rates on highways;
ensures the value of public infrastructure projects
and extending the functional life of existing
highways by increasing capacity, thereby
decreasing the potential need for improvements.
Table 9.9 outlines Washington County’s current
access spacing guidelines. It is important to note
that the guidelines associated with the principal
arterial classification are consistent with MnDOT’s
guidelines for principal arterials. These guidelines
are also consistent with Washington County’s long-
term goals for roadway segments.
City of Stillwater Access Spacing Guidelines
For roads under the jurisdiction of the City of
Stillwater, the City’s practice is to follow generally-
accepted access spacing guidelines laid forth by
Washington County. The City realizes that due
to various circumstances, access may be granted
outside the parameters set forth in the accepted
guidelines.
Table 9.9: Washington County Access Spacing Guidelines
Functional
Classification
Full-Movement
Intersection
Partial Movement
Intersection`
Private Driveways Signal or
Roundabout Spacing
Principal Arterial ½ mile ¼ mile Variable ½ mile
Minor Arterial ¼ mile ¼ mile Variable ¼ mile
Collector 1⁄8 mile N/A Variable 1⁄8 mile
Source: Washington County 2040 Comprehensive Plan.
9-36
PLAN OF STILLWATER
Chapter 9 : Transportation
Transit Plan
As the Twin Cities metropolitan region grows
and more people decide to live, work, and travel
in Stillwater, it will be increasingly important to
have robust transit services and facilities within the
City. Whether provided via fixed-route services,
on-demand rides, or some combination of the two,
transit is a key aspect of a functional and effective
transportation system.
Transit provides access to necessities and leisure
activities for those who cannot operate a vehicle
and those who choose not to. Additionally, it eases
congestion for all road users by removing some
portion of existing and future automobile traffic
from the roads.
This section of the Transportation Plan identifies
transit-related facilities and services currently
present in Stillwater and outlines strategies the City
can use to support these services.
Existing Transit Services and Facilities
The existing transit service in Stillwater is shown
in Figure 9.15. The City is currently served by
one express bus route (Route 294) along Highway
36. This route provides express commuter bus
service to Downtown St. Paul during rush hours
on weekdays at a 30-minute frequency and serves
the communities of Bayport, Oak Park Heights,
Stillwater, Lake Elmo, and Oakdale, along with the
3M Headquarters facility. There is one park and
ride lot located on Market Drive between Orleans
and Curve Crest Boulevard at the St. Croix Valley
Recreation Center, which utilizes the south half of
the lot and has a capacity of 100 vehicles. The TH
36 and Manning Avenue car pool area, located on
the TH 36 northern frontage road just west of its
intersection with Manning Avenue, has a capacity
of 15 vehicles.
Metro Mobility
Additional transit services within the City of
Stillwater are also available to Seniors and People
with Disabilities. For example, Metro Mobility
is a paratransit service for persons with mobility
impairments. The Metro Mobility system divides
the metro area into zones with service providers
within each zone actually operating the vehicles
under contract to the Metropolitan Council. Routes
and schedules are planned to transport multiple
passengers to assorted locations.
Rider eligibility is based on a person’s functional
inability to use regular-route services due to
disability or health condition. The federal Americans
with Disabilities Act (ADA) forms the structure that
the Metropolitan Council must follow in providing
this service. Metro Mobility service is funded
through appropriations from the Minnesota State
Legislature, passenger fares and federal funding.
The Metro Mobility service in Stillwater is 24-hour.
Freestanding Town Centers
Stillwater is one of four Freestanding Town
Centers (i.e., Waconia, Forest Lake, and Hastings)
Freestanding Town Centers are unique areas that
grew independently of Minneapolis and Saint Paul
and act as suburbs, but are still separated from the
urban and suburban areas by rural land. These areas
typically have small downtowns of their own but
also export many workers to other regional centers.
Local transit services that connect to the region
would not be as effective serving these areas given
their location in the region, despite their relatively
concentrated nature. However, these areas may
still have express service demand and possible
demand for small circulator services. Future transit
investments in Stillwater are described in the next
sections.
Transit Market Areas
The Metropolitan Council established Transit
Market Areas to indicate the likely cost effectiveness
of transit in each area. The determination of
Transit Market Areas is based on population
and employment density, residents’ automobile
ownership rates, and the interconnectedness
of the local street system. The City of Stillwater
features four Transit Market Areas, which are
Transit Market Areas II, III, IV, and V. Table 9.10
outlines the characteristics of each Transit Market
Area and indicates which parts of the City fall into
PLAN OF STILLWATER
Chapter 9 : Transportation 9-37
each category. Additionally, Figure 9.15 displays a
graphical representation of this information.
The majority of Stillwater falls within Transit
Market Area III, which consists of express bus
services. Downtown Stillwater falls within Transit
Market Area II, which requires more frequent
and coordinated service to accommodate higher
ridership needs. The northwestern portion of
Stillwater, which is entirely designated as either
Transit Market Area IV or V, has no fixed-route
service. On-demand services are still available for
the residents who need them, which is suitable for
the existing density, street network, and automobile
ownership rates in the area.
Future Transit Services and Facilities
The 2040 TPP identifies two funding scenarios to
determine priorities for investments in highways,
and the bus and transitway systems. For the City
of Stillwater, TH 36 has been identified as a future
transit alignment under the Increased Revenue
Scenario. According to the TPP, the Increased
Revenue Scenario supports a future transit
alignment (type of mode is to be determined) that
might be reasonable if additional revenues were
made available to accelerate construction of the
transitway vision for the region. However, at this
time there is no funding to expand transit service
along TH 36.
Additionally, the City of Stillwater is located in
close proximity to the proposed METRO Gold
Line and Rush Line BRT Projects. The Gold Line
BRT project will connect St. Paul, Maplewood,
Landfall, Oakdale and Woodbury generally along
Interstate 94, while the Rush Line BRT project will
connect White Bear Lake, Vadnais Heights, and
Maplewood to downtown St. Paul. The Metro Gold
Line is part of the TPP’s current funding scenario
for programmed projects.
The comprehensive plan recognizes these funding
scenarios and planned transit improvements;
however, they do not fully address the transit needs
identified in the Washington County Transit Needs
Assessment (2018). The Washington County Transit
Needs Study examines the challenges Washington
County faces in providing transportation services.
It also prioritizes a series of strategies that can be
implemented within the short term. A primary
outcome of the study is a recommendation for a
coordinated approach to supplementing existing
transit services by collaborating with human service
agencies, cities, employers, and other entities to
centralize travel planning, information, and the
scheduling of trips.
The Comprehensive Plan recognizes the funding
constraints associated with transit expansion to
the area; however, it is critical the region continues
to invest in transit to better serve Stillwater and
Washington County residents. Thus, the City is
committed to expanding transit service to meet the
needs of the community. The demand for transit will
likely increase as Stillwater’s population ages and
more people chose transit as their primary mode
of transportation. The Washington County Transit
Needs Study will provide the City a foundation for
better understanding today and tomorrow’s future
transit needs. The City will work with Washington
and it’s local partners to help advance the strategies
and recommendations listed in this report.
Park and Rides
There is one park-and-ride location within the city
located at the St. Croix Valley Recreation Center
(1675 Market Dr.) between Orleans & Curve Crest.
The park-and-ride offers one connection to Express
Route 274, which serves downtown Saint Paul.
This park-and-ride location includes a passenger
waiting shelter.
The City is looking for opportunities to better serve
its transit users by relocating the park-and-ride
closer to TH 36 along Washington Avenue. The City
will explore these desires with its partners (e.g.,
Metro Transit) and work with them too expand
transit connections to park-and-ride facilities.
9-38
PLAN OF STILLWATER
Chapter 9 : Transportation
Table 9.10: Transit System Market Service Areas
Market
Area
Propensity to Use
Transit
Service
Characteristics
Typical Transit Service Presence in
Stillwater
I Highest potential for
transit ridership
Frequency: 15-30 min
most modes
Span: early to late,
seven days a week
Access: ½ mi between
routes
Dense network of local routes
with highest levels of service
accommodating a wide variety of
trip purposes. Limited stop service
supplements local routes where
appropriate.
None
II
Approximately 1/2
ridership potential of
Market Area I
Frequency: 15-60 min
most modes
Span: morning to night,
seven days a week
Access: one mile
between routes
Similar network structure to Market
Area I with reduced level of service
as demand warrants. Limited stop
services are appropriate to connect
major destinations.
Downtown Stillwater
III
Approximately 1/2
ridership potential of
Market Area II
Frequency: 15-60 min
most modes
Span: peak times,
occasional weekends
Access: varies on
development patterns
Primary emphasis is on commuter
express bus service. Suburban local
routes providing basic coverage.
Demand-response available to the
public complements fixed route in
some cases.
Majority of Stillwater
with exclusion of areas
designated in this table
as II, IV or V.
IV
Approximately 1/2
ridership potential of
Market Area III
Frequency: three trips
per peak express bus
Span: peak times
Access: usually at large
nodes, if at all
Peak period express service is
appropriate as local demand
warrants. Demand-response
services are appropriate.
South of 80th St N /
Boutwell Rd N and
north of Interlachen
Drive
V Lowest potential for
transit ridership
Frequency: 30 minutes,
Commuter Rail
Span: n/a
Access: n/a
Not well-suited for fixed-route
service. Primary emphasis is on
demand-response services.
North of 80th St N and
west of Neal Ave N and
in the northeast of the
City north of Highway
96
Emerging
Market
Overlay
Varies, typically
matches surrounding
Market Area
Varies Varies. Typically matches
surrounding Market Area.None
Source: Metropolitan Council Transportation Policy Plan, 2015
Figure 9.15: Existing Transit
System in Stillwater
Transit Market
Area V
Transit Market
Area V
Transit Market
Area IV
Transit Market
Area III
Transit Market
Area III
Transit Market
Area II
Figure 9.16: Freight System
within Stillwater
PLAN OF STILLWATER
Chapter 9 : Transportation 9-41
Freight
A major component of Stillwater’s freight system
is the existing roadway network as identified in
Figure 9.16. Key freight corridors with Stillwater
include TH 36 and TH 95.
Existing Freight Generators
Figure 9.16 illustrates the location of freight
generators in the City of Stillwater and includes
major economic centers. Of these economic centers,
the land uses located in proximity to TH 36 and
TH 95 are significant to the City’s freight network.
These areas contain freight intensive clusters that
generate substantial amounts of truck activity.
These clusters primarily consist of manufacturing,
wholesale trade, transportation and warehousing
establishments, office complexes, and large retail
and commercial establishments. Many major
freight generators are located along TH 36. These
businesses represent a variety of industries from
food distributors, technology companies, financial
firms, car dealerships, commercial retail space
among others. Many of these businesses and their
employees use TH 36 as their primary route to
transport goods to the area from the Twin Cities
and other areas in Greater Minnesota.
Truck traffic from industrial, warehousing,
and commercial land uses can be adequately
accommodated through the following measures:
• Locating truck-intensive land uses with
good proximity to the metropolitan
highway system and with good access to the
minor arterial system;
• Using acceptable design standard on
arterials, which will ensure adequate
turning radius and pavement depth for
trucks; and
• Signing and marking to minimize truck
traffic through neighborhoods.
The Washington County Comprehensive Plan
identifies a major truck route located south of
the City of Stillwater along CSAH 21 (Stagecoach
Trail) from 30th Street North to Division Street.
This route provides access for the Rock Quarries
and Aggregate Suppliers located on the east side
of CSAH 21.
There are no railroads within the City of Stillwater.
Roadway Issues or Problem Areas
All industrial areas in the City of Stillwater are
located with adequate access to the metropolitan
highway system as indicated in Figure 16. The
Interstate and Minnesota Trunk Highway systems
in Stillwater are all built to 10-ton axle loading
standards and are part of either the National
Truck Network or the Minnesota Twin Trailer
Network, allowing extra capacity and flexibility
for commercial trucking. This major highway
coverage reduces the impact of truck traffic on
local roadways and minimizes the potential for
disruption of neighborhoods.
It is important that commercial vehicle traffic
from industrial, warehouse and commercial
land uses be adequately considered. Increased
traffic can be sufficiently accommodated through
various measures including land uses, and design
standards.
Truck travel reliability and freight mobility
concerns have been identified within the City’s
freight network. Poor truck travel time reliability
generally coincides with routes that contain several
intersections and bottlenecks. TH 36 and TH 95 are
the most important freight corridors in Stillwater.
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PLAN OF STILLWATER
Chapter 9 : Transportation
Aviation
The closest airport to the City of Stillwater is the
Lake Elmo Airport located in Baytown Township
as identified in Figure 9.17. The airport is owned
and operated by the Metropolitan Airports
Commission (MAC) and serves as a reliever airport
for the Minneapolis-St. Paul International Airport.
The airport has two runways under 3,000 feet long
and is designed to accommodate primarily the
private and recreational flyer operating single- and
twin-engine propeller aircraft. Lake Elmo Airport
serves the business sector with higher performance
single- and twin-engine aircraft and an occasional
small jet aircraft. The facility is served by a fixed-
base operator and an aircraft maintenance provider.
The City of Stillwater recognizes the need to protect
navigable air space both in terms of flight path and
communications interference. The City’s existing
zoning regulations accomplish the task of protecting
the flight paths through the establishment of
maximum structure height. Structure height does
not pose a problem for the safe operation of an
aircraft since the highest building permitted in the
City is a 50-foot tall agricultural building. And, if
approved through the Special Use Permit process,
the tallest tower allowed would be 100 feet.
Should a project be proposed with the potential
to interfere with air traffic, the City will notify the
Federal Aviation Agency (FAA) according to the
requirements found in Federal Regulation Title 14,
Part 77 using FAA form 7460.
Aviation Policies
The following policies will help guide the City
in addressing land use and airport environment
related issues:
• Apply the Metropolitan Council land
use compatibility guidelines to new
development.
• Create an awareness of the airport
environment by educating the public.
• Notify MnDOT Aeronautics of any structure
100-feet above the ground that could affect
airspace.
• Engage in conversations with adjacent
communities on airport environment issues.
• Work with the MAC in locating airport
navigational facilities as needed.
• Consider incorporating noise mitigation
techniques in new residential construction.
Seaplane Use on Surface Waters
The St. Croix River is designated in Minnesota State
Rules Chapter 8800.2800 as authorized for purposes
of safe seaplane use. The operation of seaplanes
on St. Croix River must conform to all applicable
marine traffic rules and regulations.
Figure 9.17: Aviation
Influence Area
Figure 9.18: Existing Trail
System and RBTN.
PLAN OF STILLWATER
Chapter 9 : Transportation 9-45
Trails and Bikeways
Trails are an integral component of the City’s
transportation system. Trails offer residents safe
access to many City-wide destinations such as
schools, shopping areas, parks and a wide variety
of natural resources. Some trails are destinations
in themselves, offering scenic walks such as
the Gateway Trail and the Brown’s Creek Trail.
In addition to trails, paved shoulders provide
transportation along major corridors through
the City and between neighboring regional park
destinations. Figure 9.18 identifies the existing trail
system in Stillwater.
Regional Bicycle Transportation Network
(RBTN)
The RBTN was developed as an outcome to
the Regional Bicycle System Study. It provides
a framework of designated regional corridors
and alignments and defines critical bicycle
transportation links to help municipalities guide
their bikeway planning and development. The
RBTN is subdivided into two tiers for regional
planning and investment prioritization:
Tier 1 – Priority Regional Bicycle Transportation
Corridors and Alignments. These corridors and
alignments have been determined to provide
the best transportation connectivity to regional
facilities and developed areas and are given the
highest priority for transportation funding.
Tier 2 – Regional Bicycle Transportation Network
Corridors and Alignments. These corridors and
alignments are the second highest priority for
funding. They provide connections to regional
facilities in neighboring Cities and serve to connect
priority regional bicycle transportation corridors
and alignments.
RBTN Tier 1 Alignments:
A local east-west trail alignment connects
Mahtomedi to Stillwater and terminates at the St.
Croix River. A Tier 1 corridor around White Bear
Lake is identified to further connect this trail to the
Minneapolis/St. Paul urban area.
RBTN Tier 2 Alignments:
The Brown’s Creek State Trail is an existing RBTN
Tier 2 alignment owned by the Department of
Natural Resources (DNR) that runs along the
northern border of Stillwater. The trail runs
parallel to the St. Croix River and connects to the
Gateway State Trail in the City of Grant. There
are two additional Tier 2 alignments connecting
to downtown Stillwater. The first runs along
Stillwater Boulevard connecting TH 95 to Cottage
Grove and the second along Main Street and the St.
Croix River terminating in Afton. A Tier 2 corridor
connects this alignment from the St. Croix River to
the Mississippi River.
Local and regional trails connect to many local
destinations including commercial areas north of
TH 36 along Curve Crest Boulevard. Trails along
Main Street connect to local commercial and retail
areas in the downtown. Most major parks and
reserves are accessible by the City and regional trail
system.
General Trail Criteria
The location of parks and trails will be determined
by the City using the 2040 Stillwater Trails Master
Plan as a guide.
Trail land shall be of sufficient width and slope to
accommodate 10-foot wide trails and appropriate
buffer areas. General guidelines include a minimum
width of 20 to 30 feet, a maximum slope less than
12 percent, and an average slope not to exceed four
percent.
Where topographic constraints pose barriers to
achieving the above criteria, the City encourages
a collaborative design process to minimize the
degree of deviation from these criteria.
Washington County adopted several trail Master
Plans, which assists local jurisdictions within the
County to work independently towards the shared
goal of a complete greenway system throughout
the County. Cities in Washington County have
recognized demand for trails and have built
comprehensive systems anchored on by their parks
system.
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PLAN OF STILLWATER
Chapter 9 : Transportation
Trail and Bikeway Needs
Based on community input, trails are in high
demand within the City and overall use has
increased regionally. Trails are used for safe
and convenient access to parks, open space,
neighborhoods, commercial areas and destinations
beyond the City. A complete and connected trail
system of trails and bikeways is highly valued by
residents for leisure use and transportation needs.
Trails are an important influence to maintain a
healthy community and high quality of life. Trail
users have differing needs depending on their skill
level and purpose for riding. Riders with advanced
skills, who most often ride for convenience and
speed, want direct access to destinations with a
minimum of detour or delay, and are comfortable
riding on roads with motor-vehicle traffic. Those
riders of lesser skill level or riding for leisure will
avoid high traffic areas and will more likely use
routes with bike lanes, off-street trails or trails in
parks and open spaces depending on the skill level.
To accommodate the full range of trail users, there
is a need to provide connectivity to destinations
both within and outside the City. To maintain active
lifestyles, it is recommended the City implement a
coordinated trail and bikeway network to provide
non-motorized and recreation options.
Community input suggests the following trail and
bikeway needs:
• Developing new trails should be sensitive
to historic structures and sites, as well as
natural features.
• Provide an integrated system of roads,
bikeways, transit lines, and pedestrian
paths. The transportation system should
minimize the impact of through traffic.
• Use the natural resource open space system
to connect trails, open spaces, parks, activity
centers and neighborhoods.
Planning for the Future
Throughout the City of Stillwater’s comprehensive
planning effort, the City will need to consider
how to address existing transportation needs,
while setting the stage for future growth. Items for
consideration include the following:
• Roadway System Preservation
• Assisted Driving and Autonomous Vehicles
• Travel Demand Management
• Complete Streets and Safe Routes to School
• Plan Implementation
Roadway System Preservation
Infrastructure systems such as roadways, bridges,
culverts, and sidewalks have become very expensive
and difficult to maintain in today’s environment
with aging infrastructure, rising costs of materials,
and stagnant or declining revenue. In fact, many
local agencies are being forced to pause, and ask
questions about the costs and benefits of continuing
to maintain assets throughout their entire system,
or if other approaches should be explored to better
balance needs with available resources. Generally,
considerations to include are:
Performance Standards and Measures. A
performance-based approach improves the
accountability of local infrastructure investments,
assess risks related to different performance levels,
monitor progress and increase transparency.
Project Prioritization. Project prioritization can help
Cities rank infrastructure needs in a manner that is
consistent with preservation goals and objectives.
This technique can help avoid the typical “worst
first” approach to programming preservation
projects that tends to invest limited resources in
the most expensive “fixes”, such as reconstruction,
instead of directing maintenance funds to
infrastructure that merely need rehabilitation,
which will provide more cost-effective solutions in
a timely manner.
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Chapter 9 : Transportation 9-47
New Revenue Sources. There are methods to
capture new revenue streams to close the financial
gap in maintaining assets in a “state of good repair.”
Exploring new revenue sources will allow the City
to expand and accelerate preservation initiatives.
New Maintenance Techniques. There are new
maintenance techniques that can extend the
lifecycle of an asset. For example, new maintenance
techniques for roadway surfaces can provide longer
service life and higher traffic volume thresholds,
resulting in more stable road maintenance costs.
Cost reduction of life cycle extension strategies
which save money, or extend surface life, can
directly benefit preservation needs, and minimize
any identified financial gap.
Asset Management. Tracking assets and their
condition will provide a stronger outlook on
lifecycle costs and replacement schedules, which
will help establish funding plans and identify
future funding gaps or shortfalls.
Assisted Driving and Autonomous Vehicles
Fully autonomous cars are still in the advanced
testing stages, but partially automated technology
and low-speed cars are beginning to embed
themselves into markets across the Country. In that
respect, understanding autonomous vehicles will
play an important role in how agencies manage
their transportation assets, while setting the stage
for investments. In addition to fully autonomous
vehicles there are connected vehicles that will
interact with our transportation system to complete
driving functions or provide information to the
driver to make informed decisions.
Aside from some of the predicted impacts such
as the continued growth of car-sharing, and
on-demand taxi services like Uber and Lyft,
autonomous vehicles (AVs) and connected vehicles
(CVs) also stand to disrupt the norms of both
transportation and land use planning. Parking
minimums, street design, right-of-way needs,
development demand, signage and signalization,
building siting and design, access management, and
their accompanying standards have the potential to
change dramatically over the next 40-50 years.
Researchers have concluded that AVs and CVs
will reshape the right-of-way of future roadways.
Autonomous vehicles are likely to be smaller than
existing passenger vehicles, permitting narrower
lanes, likely will not require medians, and due
to wireless communication between vehicles,
will allow travel much closer to one another.
By accommodating the same or more volume
in less space, newly available roadway can be
reapportioned to other road users like pedestrians
and bicycles.
Although new roads can be configured for
additional multimodal use, there are some potential
drawbacks for pedestrians, bicyclists, and other
road users that the City will need to be conscious of
when moving towards a more automated roadway
infrastructure. The reapportioning of right-of-
way may allow for expanded sidewalks and more
dedicated bike lanes; however, due to potential
signal removal this may cause longer waits at
intersections dominated by free-flowing vehicles.
Adding pick-up and drop-off locations could also
fragment the streetscape, complicating travel for
multimodal users.
The redevelopment of former parking lots has the
potential to transform existing urban centers. Future
site designs will be impacted by the implementation
of autonomous vehicle structure, potentially
allowing for buildings to more regularly front
streets rather than parking lots. Accommodation
for pick-up and drop-off locations within these
parking lots will need to be a consideration.
The City of Stillwater will need to be mindful of the
potential infrastructure impacts caused by adoption
of autonomous and connected vehicle cultures.
As the City looks to redevelop larger roadways,
thoughtful consideration for how roadway
infrastructure can be expanded to compliment
autonomous and connected vehicles is important.
Travel Demand Management
Research has shown that Travel Demand
Management (TDM) strategies are a useful
technique in helping alleviate parking demands
in a geographical area. TDM strategies are applied
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PLAN OF STILLWATER
Chapter 9 : Transportation
to help reduce the number of single occupancy
vehicles traveling and parking in a certain area.
Examples of TDM strategies from a development
perspective are highlighted below.
Bicycle Amenities. Actively promoting bicycling
as an alternative means of travel to and from a
destination can be achieved through information
dissemination, the provision of bicycle storage
facilities and adding on-street bicycle lanes and
additional connections to trails. These actions can
help decrease the demand for vehicle parking.
Car Sharing Provisions. Car sharing programs
provide mobility options to those who would not
otherwise have access to a vehicle. These programs
encourage the efficient use of a single vehicle
among multiple users, while reducing the amount
of parking needed to accommodate each resident
within a neighborhood or employees within a
business area. Zoning language can encourage
or require new developments of a certain size to
include off-street parking provisions for car sharing
programs.
Shared Mobility. Shared mobility includes
bikesharing, carsharing, and ridesourcing services
provided by companies such as Uber and Lyft.
Predictions indicate that by creating a robust
network of mobility options, these new modes
will help reduce car ownership and increase use
of public transit, which will continue to function
as the backbone of an integrated, multimodal
transportation system.
Travel Demand Management Plans (TDMP). A
TDMP identifies measures to mitigate parking
demand as part of the development permit process,
which can result in innovative solutions that are
tailored to the specific needs of a neighborhood,
district, or private employer. These types of plans
may require specific strategies for reducing single-
occupancy vehicle trips and promoting alternative
modes of transportation.
Complete Streets and Safe Routes to School
Complete Streets are commonly defined as
roadways that accommodate all users including
pedestrians, bicyclists, motorists and transit
riders of all ages and abilities. Complete Streets
enable people to travel safely and efficiently, using
whatever mode of transportation they choose.
In order to create Complete Streets, transportation
agencies must modify their approach to their
overall community roadway network. By adopting
a Complete Streets policy, communities can direct
their transportation officials to design and operate
the entire right of way to enable safe access for
all users, regardless of age, ability, or mode of
transportation.
The City of Stillwater currently does not have an
adopted Complete Streets policy, however the City
of Stillwater’s Trails Master Plan supports Complete
Street elements within the City such as on-street
bike route improvements, sidewalk improvements,
and completing missing connections to the bicycle,
pedestrian, and sidewalk systems within the City.
Additionally, MnDOT has adopted a Complete
Streets Policy and has committed to assessing
opportunities for incorporating Complete Street
design principles in all MnDOT projects. MnDOT’s
Complete Streets Policy can serve as a resource to
the City for incorporating complete street design
standards into City projects. As the City of Stillwater
continues to become a regional trail destination, the
City should consider adopting a Complete Streets
policy to guide implementation of multimodal
facilities into future transportation improvement
projects.
Safe Routes to School (SRTS) is a national initiative to
increase safety and promote walking and bicycling
for America’s youth. The Safe Routes to School
Program will assist in providing infrastructure
and non-infrastructure grants to build trails, paths,
and safe connections to local schools. The City of
Stillwater has an SRTS plan and should continue to
update the plan as the student population changes
and new infrastructure is introduced.