This page lists excerpts from the "Study Report on Uncompleted Interstate Segments in the Twin Cities Metropolitan Area", a study ordered by the 1975 Minnesota Legislature that directed the Metropolitan Council, the Transportation Advisory Board, and the cities involved to review the then-uncompleted segments of Interstate Highway within the 7-county metro area and make recommendations on those segments.

You will notice several references to the Minnesota Highway Department (or MHD) below.  The Minnesota Highway Department was merged with other transportation-related state agencies in 1976 to become what is today's Minnesota Department of Transportation.

The Metropolitan Transit Commission (MTC), which provided transit services in the Twin Cities at the time, eventually morphed into today's Metro Transit.

Chapter 1:  Introduction

Authorization for the Study

This report is prepared in response to state law (Chapter 203, 1975 Session Laws) passed by the 1975 Minnesota Legislature which directs the Metropolitan Council with the Transportation Advisory Board and affected municipalities to study the uncompleted segments of the Interstate Highway System within the Metropolitan Area.  The law states that:

• Sec. 16. The Metropolitan Council with the Transportation Advisory Board and the city councils of the affected cities shall review the uncompleted sections of the Interstate system in the seven county metropolitan area.  Such review shall include an analysis of the financial and social impact as to alternative Interstate route designations or transit substitutes while maintaining the integrity of the Interstate system.
• The Metropolitan Council shall report the findings of such study to the state legislature not later than February 1, 1976.
• Sec 17 (APPROPRIATION.) There is hereby appropriated to the Metropolitan Council from the general fund the sum of $25,000 for the purpose of Section 16.

Background

This study mandate is a part of legislation commonly referred to as the Gas Tax Law.  This law includes other provisions which affect highways and transit in general and Interstate highways in particular.  The Gas Tax Law modifies existing legislation by increasing the tax on gasoline from 7¢ to 9¢ per gallon.  Money is appropriated to the Metropolitan Area and outstate areas for transit.  Money also is appropriated to MHD to permit the completion of its 1975 fiscal year construction program.  In addition to these appropriations for transportation, construction of acquisition of land for a number of roadway segments is prohibited.  These segments are:

• I-335
• the uncompleted section of I-35E in St. Paul
• I-394
• the extension of the Dartmouth interchange
• TH 55 in South Minneapolis as a freeway or expressway.

The prohibitions are not absolute, however, and certain transportation improvements would be allowed.  The latter include:

• construction of a parkway in place of I-335
• construction of TH 12 as a 6-lane highway within the existing right-of-way
• construction of a parkway that is not connected to I-94 in place of I-35E in St. Paul
• widening of TH 55 in South Minneapolis up to, but not exceeding, 6 lanes.

Other road construction would be allowed including the following:

• a roadway generally along the alignment of Shepard Rd from I-35E to I-94
• a roadway along the alignment of uncompleted I-35E in St. Paul connecting to Kellogg Blvd.

Study Participants

The study has been conducted by two committees established by the Metropolitan Council and the Transportation Advisory Board (TAB).  The Minneapolis Area Committee has examined the routes in the western half of the Metropolitan Area.  The St. Paul Area Committee has examined the routes in the eastern half.  Each city affected by the uncompleted roadways has designated representatives to sit on the committees.  The Minneapolis Area Committee included representatives from Minneapolis, Golden Valley, Minnetonka, and St. Louis Park.  The St. Paul Area Committee had representatives from St. Paul, Eagan, Mendota Heights, Sunfish Lake, Apple Valley, Burnsville, Inver Grove Heights, and South St. Paul.  Apple Valley and Burnsville shared one representative as did Inver Grove Heights and South St. Paul.  In addition, each committee had three members from the Transportation Advisory Board and one member from the Metropolitan Council.  A Transportation Advisory Board member served as chairperson of each committee.

A number of agencies and units of government have supplied staff for the study.  The Metropolitan Council has provided staff to assist in the coordination and administration of the study as well as to assist in preparation of the report.  The Transportation Advisory Board, MHD, MTC, the Federal Highway Administration (FHWA), Minnesota Pollution Control Agency, Inter-County Council, Association of Metropolitan Municipalities, city staffs and others have supplied technical support.  The Inter-County Council and City of St. Paul have provided secretaries for the study.

Responsibilities

The Interstate Study Committees were responsible for conducting the study within guidelines established by the Transportation Advisory Board and the Metropolitan Council.  The committees adopted procedures for administering the study, conducted meetings, reviewed staff reports, held a public forum, investigated issues, and prepared the draft report.

The Transportation Advisory Board prepared guidelines for the committees, monitored the progress of the committees, reviewed draft and final reports, and held the public hearing.  Since TAB members serve as chairmen and as committee members, the TAB also played a substantial role in conducting the study.

The Metropolitan Council adopted the guidelines that outlined the structure, process, and schedule for the study.  The Council will review and adopt the final report and submit it to the Legislature.

History of the National Interstate System

The Interstate system began at the federal level with a number of studies that were undertaken in the 1930s, 1940s, and 1950s.  A number of factors led to this investigation of a system of Interstate roadways.  Vehicle registrations were mounting.  The number of cars and trucks tripled from 1920 to 1930 (from 9 million to 27 million autos), and tripled again between 1933 and 1954.  As the number of vehicles increased, the number of vehicle miles traveled also increased.  Urban congestion was a growing problem as was the number of traffic deaths.  Many of the highways were becoming functionally obsolete as development and local land access hindered through traffic movements.  Also, traffic volume projections indicated continued increase in auto travel.  The benefits of a roadway system for economic and defense needs were pointed out.

Roughly one-fourth of the day-long (24 hour) travel on the freeways near the Downtown Area will take place during one hour in the morning and one in the evening - the usual rush hours.  The highway authorities determined, in accordance with standard practice, that the freeways should be designed to accommodate these peak loads and that critical overloads should be avoided during the times when the greatest number of citizens will desire to use the routes.

The first study was completed in 1939 and recommended a 26,700-mile system of urban and rural free roads.  A toll road system was rejected as not being cost effective.  In 1944 the National Interregional Highway Committee, appointed by President Roosevelt, recommended a 39,000-mile system.  The system included 5,000 miles of urban circumferential and distributing routes.  The committee's report was a key document in the development of the Interstate Highway System and contains many planning, location, and design guidelines that are relevant today.  A process to designate routes began, but there was little construction because of limited funds.  Congress passed the Federal Aid Highway Act of 1956.  To ensure participation by the states, the federal share was set at 90%.  Additional mileage was added to enlarge the system to 41,000 miles.  Highway design standards were set which provided for complete control of access, two divided roadways, and a capacity for forecasted 1975 traffic volumes (later changed to capacity 20 years in the future).

Primary criteria for the system was that the system:

• connect principal metropolitan areas, cities and industrial centers
• serve rural areas with higher population densities
• serve national defense needs
• serve heavy traffic movement corridors
• reach areas of high unemployment
• consider topographic features of the nation.

A map showing the general location of Interstate routes was prepared.  It was recognized, however, that the precise location of routes would have to be determined locally through further studies.

The Interstate System Within Minnesota and the Metropolitan Area

Within the state of Minnesota there are three major Interstate routes:

• I-35, which runs from the Iowa border north to the city of Duluth
• I-94, which runs from the Wisconsin border west through the center of the state to the North Dakota border
• I-90, which runs from the Wisconsin border west across the southern portion of the state to the South Dakota border

Two of these routes, I-35 and I-94, pass through, and intersect within, the Metropolitan Area.

The Interstate System was envisioned not only as cross country routes, but also as routes to improve movement within cities.  In the Metropolitan Area, the planning envisioned serving both central cities of Minneapolis and St. Paul.  Thus, I-35 was split into two routes:  I-35W would serve Minneapolis and I-35E would serve St. Paul.  I-94 would travel east-west and would connect the two cities.  To improve traffic movement within the urbanized area, a beltway was planned to carry traffic on peripheral routes rather than concentrating it on the central links.  Additional routes were planned and were considered necessary to handle the high volumes of traffic of the more densely populated urban areas.

Through a cooperative effort involving the Bureau of Public Roads (predecessor to the Federal Highway Administration), MHD, the Metropolitan Planning Commission (the predecessor of the Metropolitan Council), counties and cities, a system of freeways and expressways within the Metropolitan Area was planned in the late 1950s and early 1960s.  Over the years, this highway system has been reduced in size.  The transportation plan for the region is now contained in the Metropolitan Development Guide whose preparation is the responsibility of the Metropolitan Council.  About 73 percent of the Interstate system has now been completed.  The planned system of Interstate highways with uncompleted segments is shown here.

Chapter 2:  Overview and Summary

Routes Studied

Of the seven uncompleted Interstate segments within the Metropolitan Area, the Interstate Study Committees studied five.  These are I-394, I-335, I-35E in St. Paul, I-35E in Dakota County, and I-494.  Two segments, I-94 through North Minneapolis and I-94 in Washington County, do not require additional study.  I-94 through North Minneapolis is now at the stage where a Final Environmental Impact Statement is being prepared and revisions made in the design layout.  I-94 in Washington County, at one time, was ready for contract letting, but the project was stopped by the Commissioner of Highways so that an Environmental Impact Statement could be prepared.  MHD established a study group consisting of representatives from the cities and various agencies affected by the Interstate segments.  The study group recently made recommendations following a 22-month study.

The responsibilities for studying the Interstate routes are divided between the two committees.  The Minneapolis Area Committee has studied I-394 and I-335.  The St. Paul Area Committee studied I-35E in St. Paul, I-35E in Dakota County, and I-494.

The Study Process

The Transportation Advisory Board and the Metropolitan Council prepared the guidelines indicating the direction and schedule for the study.  The guidelines structured the Committees' work and identified those items that should be considered.  Generally, the process for the study of uncompleted Interstate segments was based on review, identification of issues, investigation and analysis of issues and the adoption of recommendations, culminating in this draft report.  The guidelines provide for the following considerations:

• Identification of Goals and Objectives for the Interstate System
  • The Committees received written and oral statements from Federal, state, metropolitan and local agencies and governments.  The Committees adopted guidelines based on these statements.
• Identification of Issues and Adoption of Criteria
  • A public forum was held and the criteria were defined and adopted.  The criteria are grouped according to whether they measure the effectiveness of the transportation improvement in moving people, the impact of the improvement on the environment, or responds to design considerations, including cost and state and Federal standards.  The Committees received and discussed information presented by Federal, state, and local officials, consultants and citizens groups.
• Alternatives
  • The options available for solution of the problems were identified.  These include alternate alignments, alternate designs, the possibility of transit substitution, and the "no-build" alternative.
• Evaluation and Analysis
  • The alternatives identified were evaluated using the goals, objectives, and criteria as a guide.  Problems noted were investigated, efforts were made to find solutions and the findings presented.
• Recommendations
  • The findings were considered and recommendations were made.
• Draft Report
  • The Committee prepares a draft report and sends it to the Transportation Advisory Board, Metropolitan Council, affected cities, MHD, MTC, and others.
• Review
  • The Transportation Advisory Board reviews the report and holds a public hearing.
• Final Report
  • The final report is prepared by the Committees and forwarded to the Transportation Advisory Board for review.  The TAB advises the Metropolitan Council on adpotion.
• Adoption
  • The Metropolitan Council reviews and adopts the report.
• Submitted to the Legislature
  • The Metropolitan Council submits the report to the Legislature by February 1, 1976.

Presentations Before the Interstate Study Committee

The Committees have received a considerable amount of information on the uncompleted Interstate segments and on the issues surrounding them.  Presentations have been made on the status and history of the projects, the alternatives considered and the problems which have developed.  Groups supporting or opposing construction gave presentations to the Committees.  Planners, engineers, and environmentalists have addressed the Committee in an effort to clarify or resolve issues.  Minnesota state legislators also appeared before the Committees and discussed the intent of the legislation directing the Interstate Study.

During the course of the study, the Metropolitan Council, MHD, FHWA, MTC, Minnesota Pollution Control Agency, and the affected cities made statements on the goals, objectives, and concerns they had regarding the uncompleted Interstate segments.  Other presentations have dealt with general issues surrounding the planning process, more specifically population and traffic forecasts, the flexibility in use of Federal funds, and issues pertaining to routes such as noise or air quality problems.  A number of citizen's groups have made presentations before the Committee including RIP-35E, Drive 35E, the Bryn Mawr Neighborhood Association, and the Council on Urban Mobility.  A public forum was held on September 4, 1975.

A list of speakers and their topics can be found in the appendix.  Additional discussion of the statements can be found in the goals and objectives chapter.

Summary of Recommendations

The Interstate Study Committee adopted the recommendations on uncompleted Interstate segments on November 6, 1975.  All the resolutions are predicated on the completion of satisfactory Environmental Impact Statements.  In addition, although not specifically mentioned in the recommendations, the preferential treatment of transit contained in the Transportation Policy Plan of the Metropolitan Council is to be considered for each corridor.

The Interstate Study Committee makes the following recommendations:

• Interstate 394
  • That MHD should complete the EIS based on a six fluid lane facility on U.S. 12 that meets freeway standards.  This Environmental Impact Statement should consider all prudent design alternatives to provide for the safe and efficient movement of traffic.
  • That access to adjoining property is a complex problem that should be resolved by MHD working closely with the appropriate cities and applicable neighborhood associations to provide safe and appropriate access.
  • That the present right-of-way restriction placed on MHD by the state Legislature in its 1975 session should be changed to permit limited acquisition for the 6-lane facility with the advice of the appropriate city in order to provide:  a) safe design, and b) proper environmental considerations.
  • That in order for this freeway route to function efficiently, the design should consider reversible lanes, provide preferential treatment for buses and multiple occupancy vehicles, such as metered ramps with bypasses and other procedures used on I-35W, from all access points including Highway 100, County Road 18, and I-494, with consideration given to providing exclusive lanes for peak hour within the fluid six lane facility.
  • That consideration be given within the Final Environmental Impact Statement to such environmental concerns as:  meeting of current noise and air pollution standards, and the secondary impact of the freeway on residential neighborhoods which would occur if traffic is permitted to bypass freeway congestion through the use of neighborhood streets and local arterials.
  • That consideration be given to linkage improvements to TH 55 and TH 7, preferably along existing expressways or freeways as part of the Interstate design.
  • That consideration be given to providing park-and-ride transit facilities as part of the Interstate design.
• Interstate 94 (North Minneapolis)
  • That the Committee approves of the presently proposed location for I-94 North and recommends that MHD, the city of Minneapolis, the Metropolitan Council, and MTC identify and resolve any remaining design issues within this corridor.
  • That the Committee further recommends that transit be considered in the corridor and that treatment of transit should be, at a minimum, similar to the freeway metering and preferential bus access found on I-35W.
• Interstate 335
  • That the city of Minneapolis should review the implications of the increased traffic that will be diverted to local streets and highways if I-335 is not built.
  • That the city of Minneapolis should review other alternatives to utilize the links from I-35W to I-94 to improve the traffic flow on other streets, highways, and bridges.
  • That if the city of Minneapolis, after completing steps #1 and #2 above, has determined the construction of I-335 not to be in the city's best interest, then it should work with the other transportation and government agencies to develop a substitute program for submission prior to the request to withdraw.
  • That if the city of Minneapolis decides to withdraw, it should not limit its program to the constraints of the present Federal legislation on substitution but develop a program to best satisfy the corridor's transportation requirements which may include highway improvements.
• Interstate 94 (Washington County)
  • That, due to the depth and completeness of the recently completed I-94 Management Committee Report, it was deemed unnecessary for the Interstate Study Committee to study this link further.
  • That, since this link is an integral part of the national Interstate System and since there is no local opposition to a link per se, this portion of I-94 should be completed, although a decision as to which of the two proposed alignments is preferable should not be made until the EIS is finished.
  • That it is recommended that the state Legislature not take action on either alignment until completion of the EIS, since the National Environmental Protection Act requires that alternates for a proposed facility be considered in an EIS for the proposed facility.
• Interstate 494
  • That I-494 be built from its present terminus in Bloomington to the Mississippi River Bridge in South St. Paul along the general right-of-way as partially acquired and as currently proposed under the following conditions:
    • That I-494 in this area be a minimum 6-lane facility.
    • That there be complete, full interchange facilities between I-494 and I-35E.
    • That the direct interchange between TH 55 and the I-494/I-35E facilities be deemphasized with access provided by local minor arterial routes.
    • That Highway 55 be retained in its present alignment for a long-term basis, thereby eliminating the dual/dual interchange design.
    • That planning for a second Mississippi River Bridge at South St. Paul be continued to accommodate future traffic needs.
    • That the basic design solution in the corridor be generally based on the first stage development proposal as presented by MHD during the course of these sessions, with special emphasis on concerns of all communities.
    • That all construction shall be accomplished in a manner so as to provide maximum concern for the impact of noise, vibrations, and air and water pollution on contiguous properties throughout the corridor.
• Interstate 35E (Dakota County)
  • That, subject to successful analysis of appropriate design solutions, this committee approves of the I-35E corridor as proposed by MHD from the junction with I-35 near County Road 42 in Burnsville to the already completed portion of I-35E at the interchange with TH 110.
• Interstate 35E (St. Paul)
  • That I-35E be completed in the Pleasant Ave corridor with a direct connection to I-94 with the following additional considerations:
    • Upgrade the joint portion of I-94/I-35E in the Capitol approach area to provide for safe and efficient operation of both facilities.
    • Provide noise abatement barriers along I-35E where feasible and as necessary to maintain the highest reasonable standards.
    • Eliminate trucks from the segment of I-35E between the Shortline Road (Webmaster's Note:  this is now Ayd Mill Rd) and I-94.
    • Provide an acceptable alternate urban truck route via Shepard Rd and a new connection to I-35E to the north at the Arch-Pennsylvania interchange, east of the CBD.  Improvements should be made as required to make Shepard Rd an acceptable alternate truck route.
    • Monitor air quality at the most sensitive location along I-35E:  United Hospitals (St. Luke's) site and provide for appropriate action to restrict or bar traffic, should reasonable air quality criteria be exceeded and continue to coordinate mutual design solutions between the hospital and MHD.
    • Revise the crossing levels of I-35E and Grand Ave to improve aesthetics while preserving the Cass Gilbert Church.
    • Improve the Shortline Road and its connection to Snelling Ave.
    • Delete the planned ramps at St. Clair Ave when I-35E is completed and monitor adjacent streets to determine impact (if impact is detrimental and ramps are desired they can be added later).

Chapter 3:  Goals and Objectives

Statements of goals, objectives, and issues of concern were presented to the Interstate Study Committees on July 24, July 31, and August 7, 1975.  Agencies which made presentations include the Metropolitan Council, FHWA, MHD, MTC, and the Minnesota Pollution Control Agency.  The cities which made presentations included St. Louis Park, Sunfish Lake, Golden Valley, Eagan, Inver Grove Heights, Minneapolis, Burnsville, Apple Valley, Mendota Heights, South St. Paul, and St. Paul.  From the statements, the following goals, objectives, and issues of concern were identified and adopted for use as a guide in the study.

Goals, Objectives, and Issues of Concern

1. Federal level (Federal Highway Administration)
   • To reach a common understanding of the Metropolitan Area's surface transportation needs, goals, and plans; so that those Interstate segments deemed compatible with the plan may be advanced to construction.
   • To resolve the remaining issues regarding completion of controversial segments of the Interstate System while maintaining the national integrity of the system.
   • Issues:
     • Compatibility with the plan for the Metropolitan Area
     • Integrity of a national Interstate system.
2. State level (Minnesota Highway Department)
   • The Department's overall goal in the area of highway transportation is "To provide for the safe and efficient movement of people, goods, and services in a manner and form that will most effectively contribute to the social, environmental, and economic welfare of the people of the State of Minnesota."
   • More specifically are the following goals:
     • Promote outstate economic development
     • Minimize transportation cost and maximize benefits
     • Protect the environment
     • Improve highway safety
     • Provide improved public transit service
     • Minimize plan implementation time
   • Issues:
     • Connection to the outstate
     • Cost/benefit
3. Metropolitan Level
   • Metropolitan Development Framework
     • The metropolitan area should consist of an urban service area and a rural service area.  Metropolitan systems and urban services will be provided only within the urban service area.  Rural service standards will be met in the rural service area, and persons choosing a rural life style should not expect to receive urban services.
     • Reinvestment required for replacement and maintenance of metropolitan systems serving existing development should have priority over investment for expansion except where analysis shows a shortage of land with urban services could seriously affect housing costs.
     • Regional shopping, employment, cultural, entertainment, governmental, and high density residential facilities should be clustered in centers convenient to the metropolitan transportation system.
     • Issues:
       • Service to areas programmed for urbanization
       • Coordination with other urban services
       • Consistency with timing and staging of Metropolitan Urban Service Area
       • Orderly and economic development
   • Transportation Policy Plan
     • Provide metropolitan residents with good accessibility to subregional and regional opportunities.
     • Provide residents of the Urban Service Area as defined in the Development Framework with efficient, convenient, and attractive alternative choices of transportation to both subregional and regional opportunities.
     • Utilize transportation to strengthen the two downtowns as the major employment, financial, institutional, retail, cultural, entertainment, medical, and service centers for the Metropolitan Area, the State of Minnesota, and the Upper Midwest area of the United States.
     • Promote programs and projects which produce positive impacts of the transportation system upon the environment, including those which are sensitive to the long-range supply and cost of energy resources.
     • Issues:
       • Access to regional and subregional opportunities
       • Alternative means of transportation within the Metropolitan Urban Service Area
       • Support of the two downtowns
       • Energy consumption and environmental impact
   • Transit
     • Development of an express bus system with preferential treatment or freeway metering as appropriate.
     • To increase the people-moving capacity of roadways by encouraging people to ride rather than drive with transit, carpooling, vanpooling, taxi, and similar programs.
     • Issues:
       • Facilities necessary for express bus transit
       • Emphasize increased people-moving capacity rather than increased vehicle capacity of roadways.
4. Local
   • To preserve or achieve an environment that is healthy for residents of the area.
   • To plan and design regional transportation facilities that are compatible with the neighborhoods through which they pass.
   • To provide local residents with accessibility to regional and subregional opportunities.
   • To coordinate plans for local development and local transportation systems with plans for regional transportation systems.
   • Issues:
     • Recognition of local impacts in development of regional transportation facilities
     • Access to regional and subregional opportunities
     • Coordination between local and regional levels.

Statement Summaries

The assembled goals, objectives, and issues of concern reflect the perspectives from the national, state, metropolitan, and community levels regarding completion of the Interstate system.

• Federal Highway Administration (FHWA)
  • In their statement, FHWA indicated that one of their primary concerns was the completion of the essential links of a national system.  The links considered necessary are those that connect states and cities and those which form beltways around urban areas.  Within the Metropolitan Area, completion of I-94 in Washington County and I-494 in Dakota County is considered necessary.  The FHWA also, however, seeks to assist the Metropolitan Area in determining what other transportation improvements are needed to meet area transportation needs.
• Minnesota Highway Department (MHD)
  • The Minnesota Highway Department is concerned about developing a statewide system of roads and completing necessary links.  MHD noted in their presentation that over the years, studies have confirmed the need for a completed Interstate system to serve the projected increase in travel demand.  Principal arterials, of which Interstates are a part, are important because they are expected to carry up to 50% of the total daily travel.  If major components of the principal arterial system are not completed, a substantial amount of additional traffic will be diverted to roadways which are not designed or constructed to carry these additional traffic loads.  MHD also noted that land development decisions were made years ago with the assumption that the Interstate system would be completed.  As major residential, commercial, and industrial development has occurred, adequate service with the existing roadway has become increasingly difficult.  One result has been the restricted accessibility for some parts of the Metropolitan Area.
  • MHD believes, based upon recent studies by the Metropolitan Council, that the preferred transit system, at least until 1990, will be a rubber tired vehicle operating on a roadway.  There is only one real alternative, and that is an expanded use and a better implementation of the bus system.  Design options, such as preferential bus access and exclusive transit lanes, are feasible for roadways designed as freeways.  Finally, MHD believes that for each of the uncompleted Interstate segments under study, the improved mobility of the metropolitan population must be balanced against the effect on a single neighborhood or community.  The existing rights-of-way have been carefully selected to provide for and to serve existing and emerging traffic generators and present an opportunity to provide for other modes in the same right-of-way.
• Minnesota Pollution Control Agency
  • Concerns for the environment, particularly noise and air quality, were expressed by the Minnesota Pollution Control Agency (MPCA).  The MPCA noted that projects will have to be reviewed for their effect on the environment.  Proposals which consider transit, carpools, and vanpools are encouraged.  The MPCA stated that decisions should not be made on the uncompleted segments until a metropolitan air pollution control plan is prepared for the Metropolitan Area.
• Metropolitan Council
  • The Metropolitan Council addressed the Interstate system in relation to two regional plans:  the Metropolitan Development Framework and the Transportation Policy Plan.  The Metropolitan Development Framework is the guided growth plan which seeks to attain the orderly and economic development of the Metropolitan Area.  In preparing this chapter of the Metropolitan Development Guide, the Council discussed a number of issues including:
    • the Legislative charge to the Council in the Council Act
    • the rapid consumption of land
    • the under-utilization of existing public services
    • the need for affordable housing
    • the financial cost of current development patterns
    • the impact on the environment
    • the need to coordinate private and public decision making at the metropolitan level.
  • The plan and policies of the Development Framework attempt to address each of these issues by:  1) proposing a coordinated planning system that would accommodate growth in the Metropolitan Area and would utilize the existing governmental planning organizations to implement the process and, 2) specifying that growth beyond the Urban Service Area would not be prohibited, but no metropolitan urban services would be provided at the expense of others.  Forced extensions would be paid by the municipality allowing the problem.
  • In preparing the Development Framework, the Council examined the existing and programmed highway network as one of nine urban services.  As the population grows and as the filling in of land occurs, construction and upgrading of transportation facilities will be necessary to provide residents with accessibility and mobility.  The Development Framework states that the development pattern within the Urban Service Area should provide residents with convenience and choice in acquiring goods and services.  Premature growth in outlying rural areas which might be induced by the improved accessibility of a transportation improvement should be controlled with highway design and the staged provision of other necessary urban services.  If accessibility and mobility are withheld for man area which is programmed for urban services, the probably result would be to shift growth to another area or to another sector.  Such potential shifts would be contrary to basic Development Framework goals and objectives.
  • The Transportation Policy Plan describes the manner in which necessary accessibility and mobility within the Metropolitan Area, consistent with the Development Framework, is to be provided.  First, the plan recognizes that to provide good accessibility and mobility within the Metropolitan Area, improvements will be required in the highway system and transit system.  The plan seeks to provide good accessibility to and within the Metro Centers and also seeks to provide good accessibility within identified transportation subregions.  The plan recommends better utilization of the existing and committed metropolitan highway system by:
    • aggressively promoting low-capital and non-capital solutions including carpooling, vanpooling, dial-a-ride, jitneys, regulated parking, taxis, fringe parking, staggered work hours, and variable fares
    • metering of freeways, as appropriate
    • providing preferential treatment for multi-passenger vehicles during rush hours and for special major events.
  • Also, the policy plan sets accessibility objectives.  The highway system should provide a travel time of no more than 30 minutes in off-peak periods from any part of the Urban Service Area to one of the Metro Centers for 90% of the residents of the Urban Service area.  The transit system should provide a travel time of no more than 45 minutes in either peak or off-peak periods from any part of the Urban Service Area to one or the other of the Metro Centers for 90% of the residents of the Urban Service Area.  The metropolitan highway system, containing principal and intermediate arterials, is necessary to meet these accessibility objectives, to eliminate capacity deficiencies between subregions, and to provide the guideway for a regional express bus system.  Routes of the Interstate system are shown on the map as principal arterials and as such should be constructed as full access control facilities.  Transportation facilities should be constructed in a manner which considers goods movement, multiple-use of right-of-way, safety, air pollution, and noise pollution in their design.
• Metropolitan Transit Commission (MTC)
  • By adopting its statement "Transit in Transportation" in January, 1971, the Commission gave general endorsement to construction of all elements of the Interstate system as a part of "Highway System 16", which has the "committed" freeway system at that time.  Since that time, a number of highway, transit, and general transportation studies have been conducted and actions taken which have modified the MTC's previous position as it relates to construction of specific sections of the "System 16" Interstate system.  Not all of these corridors are considered as candidates for exclusive transitways.
  • Interstate system development is usually based on principles which recognize the need to accommodate major transportation movements in a manner compatible with desired land development.  One such principle requires determination of whether or not the proposed link is essential to development of a continuous nationwide system.  A second principle is that the facility be designed to achieve the desired pattern of land development.  The increased accessibility that a new freeway affords the areas around interchanges frequently results in additional urban sprawl.
  • On July 18, 1975, the American Public Transit Association (APTA) submitted a statement on the "Future of the Highway Program" to the Transportation Subcommittee of the United States Senate Committee on Public Works.  That statement includes a suggestion that appropriations be provided to "complete the essential connecting segments of the Interstate system."  The MTC endorses this transit industry position.

Statements by Cities Directly Affected by Completion of the Interstate System

The cities directly affected by completion of the Interstate system presented their concerns.  The concerns addressed the general issue of Interstate construction as well as issues dealing with particular routes.

• St. Louis Park
  • St. Louis Park acknowledges that improvements in TH 12 are necessary but feels that this improvement must be accompanied by a decision to construct automated transit in the corridor known as the Southwest Diagonal.  A limited highway improvement option is acceptable to St. Louis Park.  The city expressed the concern that the environmental impacts and particularly the impacts of traffic on local routes which feed or supplement the freeway be considered.  The aesthetics of the improvement, the treatment of runoff, and the spacing of interchanges in developed areas were identified as design matters not adequately considered in the past.
• Sunfish Lake
  • The city of Sunfish Lake wishes to go on record as not being opposed to construction of new highways per se.  The city is concerned, however, with the size of the interchange proposed for I-494, I-35E, TH 49, and TH 55.  The city feels that more study should be given to the use of the TH 110 corridor and the TH 55 corridor.  The city attaches great importance to the Environmental Impact Statement and feels it should be made available as soon as possible.
• Golden Valley
  • Golden Valley opposes Interstate freeways within developed areas and opposes I-394 in particular.  Golden Valley feels that an effective transit alternative should be provided instead.  The city states that construction of I-394 will increase dependence on the automobile and postpone or prevent the development of transit.  The standards for Interstate highways are believed inappropriate for developed areas, and the economic, social, and environmental costs are felt to outweigh the benefits.  Golden Valley does support limited upgrading of TH 12 with an effective mass transit alternative.
• Eagan
  • Eagan supports the construction of I-494, I-35E, and TH 36 (Webmaster's Note:  TH 36 here refers to today's TH 77) and feels that such improvements are necessary for the continued growth of Eagan and Dakota County.  Dakota County was the fastest-growing county in the state in 1974.  Improved accessibility to the airport and improved service to the Eagandale Industrial Park, the new Twin City Bulk Mail Facility, the new Minnesota Zoo, and the residential development along Dakota County Road 31 are particularly needed.
• Inver Grove Heights
  • Inver Grove Heights supports completion of I-494 and I-35E.  Inver Grove Heights states that the effect of realigning the incomplete portions of freeways within Ramsey and Dakota Counties would be detrimental to the city of Inver Grove Heights.  The city states that a major change in the road system plan, such as redesignation of a proposed roadway, would affect other plans the city has made predicted on the completion of the system.  A change in the road system could seriously disrupt existing and planned sanitary sewer, watermain, and storm sewer systems.  A deviation in the plan could also seriously upset the city's thoroughfare plan which was developed using the original freeway alignment.
• Minneapolis
  • The city of Minneapolis feels that construction of I-335 is no longer warranted and is currently exploring other uses for the Interstate money.  The segment is, Minneapolis states, a localized facility, entirely within the city and largely within two neighborhoods.  The facility was designed, in part, to relieve congestion anticipated to occur on I-94 and I-35W on the west, south, and east sides of downtown Minneapolis.  On another matter, the city supports construction of I-394 and is relying on Interstate funds to assist in the building of the Third Avenue Distributor and three fringe parking ramps.  The Third Avenue Distributor is believed needed to serve planned development in the Minneapolis downtown.  The parking ramps are eligible for Federal funding in connection with I-394 and are needed to meet air quality standards in the downtown.
• Burnsville and Apple Valley
  • Burnsville and Apple Valley support construction of the Interstate system as planned and particularly support I-35E.  They feel that the long delays have been grossly unfair and disruptive to communities, particularly those in northern Dakota County, and have severe adverse influences on the orderly planning for and development of communities within the area.  The cities note that community plans were developed which relied upon the construction of I-35E.  Public developments such as the new zoo and private developments such as the Sears Regional Shopping Center (Webmaster's Note: this likely refers to Burnsville Center) require better access.  Also, the cities of northern Dakota County need better access to downtown St. Paul and other communities in the system.  Burnsville and Apple Valley feel that I-35E should be built consistent with the design standards for the overall system and should use the best methods available for dealing with environmental problems of noise, air quality, and aesthetics.
• Mendota Heights
  • Mendota Heights supports the construction of I-35E and I-494.  Concerns are expressed, however, regarding the scope and complexity of design and the extensive right-of-way required for I-494, I-35E, and Highway 55.  Design standards which permit local use of the facility are encouraged.  The city does not feel that one community has the right to destroy the integrity of the Interstate system but does feel that each can insist on the use of the highest design standards to achieve a roadway compatible with community development.
• South St. Paul
  • South St. Paul supports the completion of I-494 and I-35E.  The city states that its efforts to diversify and/or redevelop its commercial/industrial area are tied to the completion of a system of highways serving the area.  In this regard a number of points are made.  South St. Paul feels that the Lafayette Freeway should not have been terminated on the north side of TH 110 because this creates traffic hazards and deters use of the Lafayette Freeway.  Delays in construction of I-494 are opposed because they too are resulting in a growing number of accidents.  The city feels that failure to construct I-35E is having a detrimental effect on Dakota County.  The routing of I-35E traffic over the Lafayette Freeway is opposed.
• St. Paul
  • The city of St. Paul has no official position on I-35E at this time.  The city did, in April of 1972, join plaintiffs in a lawsuit demanding that an EIS on the section of I-35E in St. Paul be prepared.  The city also, in May of 1975, asked the Minnesota Legislature to not designate a route for I-35E but allow local officials to decide.  A City I-35E Study Team has been set up and it is St. Paul's hope that its efforts can be coordinated with those of the Interstate Study Committees.

Chapter 4:  Evaluation Criteria for Alternatives

On August 14, 1975, the Interstate Committees adopted criteria to use in their evaluation of alternatives.  The criteria were organized into three categories:  effectiveness factors, impact assessment, and design factors.  Effectiveness factors measure how well the improvement functions to move people.  Impact assessment considers the impact of the improvement on the environment.  Finally, design factors consider whether a proposed improvement meets accepted Federal and state highway design standards and what the implications of a proposed design are in terms of dollars.

Criteria

1. Effectiveness Factors
   • Service
     • Does a proposed improvement service existing and proposed development?  This would include consideration of major traffic generators such as shopping centers and industrial parks and would also consdier developing residential areas.
   • Social Benefits
     • This criterion primarily relates to accessibility.  Is the improvement needed to provide a population with accessibility to regional and subregional opportunities?  Can the accessibility be provided with transit alone?
   • Cost (Public and Private)
     • Is the proposed transportation improvement financially feasible?  If feasible, do the benefits justify the cost?
   • Congestion Relief
     • The key considerations in level of service are the volume of traffic attempting to use a roadway and the capacity of the roadway.  Does a proposed transportation improvement result in a higher level of service and, therefore, reduced congestion?
   • Safety
     • Does a proposed transportation improvement reduce the loss of life and property damage in the movement of people and goods?
   • System Continuity
     • Is a proposed transportation improvement needed to complete a system of roadways?
   • Modal Split (transit)
     • What percentage of the trips can be made on transit?
2. Impact Assessment
   • Noise
     • What is the level of noise expected from a transportation improvement and is that level consistent with FHWA noise standards?
   • Air Quality
     • Does a transportation improvement result in a concentration of pollutants that exceeds EPA standards?
   • Visual
     • Is the proposed transportation improvement aesthetically pleasing?
   • Social
     • Does the transportation improvement disrupt and divide communities?  How many houses must be taken for the improvement?
   • Economic
     • Is a transportation improvement necessary for continued economic development of an area?  How many businesses must be acquired and how many jobs lost?
   • Ecological
     • Does the transportation improvement preserve the natural environment?  Are any natural systems seriously disrupted?
   • Energy
     • What effect does a transportation improvement have on the consumption of energy?
3. Design Factors
   • State Highway Standards
     • The Minnesota Highway Department has standards for the design of roadways.  Does a proposed improvement meet these standards?
   • Federal Highway Standards
     • The Federal Highway Administration also has standards for roadways built with Federal funds including Interstates.  Does the transportation improvement meet these standards?
   • Cost
     • Consideration must also be given to the cost of different designs.  Tunneling and elevated construction, for example, are much more expensive than at-grade or depressed construction.  The cost of the land must be considered as well as the costs of buying the homes and businesses.  Given the cost of a particular design, do the benefits warrant the design?

Chapter 5:  History, Description, and Current Status of Uncompleted Interstate Segments

The following discussion deals with the seven uncompleted Interstate projects in the Metropolitan Area including the five which have been studied by the Interstate Study Committees.  Each project is discussed briefly in terms of the project history, description, and current status.

(Webmaster's Note:  separate pages have been created for each of the seven projects, as linked below.)

• North Minneapolis
• Washington County

Comments are welcomed.

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Page last modified 13 January, 2008