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Home My WebLink About[07] Field StreetCITY of NT. J()SKPH MEETING DATE: AGENDA ITEM: SUBMITTED BY: Council Agenda Item 7 March 17, 2011 Field Street, Finalize Project and Contract Administration BOARD /COMMISSION /COMMITTEE RECOMMENDATION: PREVIOUS COUNCIL ACTION: On December 2, 2010 the City Council discussed the status of Field Street. In order for the project to move forward, the City would have to execute a programmatic agreement. The agreement included a provision that the City would be required to complete the paperwork to allow the historic properties to be listed on the federal historic register. It was estimated the requirement would have a cost of approximately $ 40,000, which would be a City cost. In addition, the historic district combines two properties under separate ownership, which is another complexity. Therefore, on December 2, 2010 the City Council made a motion suspending the Field Street Project. BACKGROUND INFORMATION: Since the meeting in December, WSB has prepared a final document that summarizes the project. That summary has been included in the packet. Kirby Becker of the APO has reviewed the closeout document and concurs with the data. As requested at previous meetings, a financial summary has been provided. Any Federal funds remaining will go back to the APO for re- allocation. The City financed its portion of the contract through bond proceeds. It is estimated that approximately $ 20,000 of funds will remain. The field street project was part of a bond that included the north corridor study. The bond fund is still open and the remaining funds can be put towards the right -of -way that the City had to commit for the North corridor to keep moving forward. If after the bond fund is closed there are residual funds, the Council will re- designate the funds at that time. ATTACHMENTS: Request for Council Action ................................... 7:1 -2 WSB Memo on status ............. I ................. ............. 7:3 -4 Final Field Street Document . ............................... 7:5 -43 Financial Summary .................. ............................... 7:44 Minutes of December 2, 2011 .............................. 7:45 REQUESTED COUNCIL ACTION: Accept the memo documenting the work of the project and end the contract with WSB. 7:1 THIS PAGE INTENTIONALLY LEFT BLANK 7:2 WSB 8 Associates. Inc� Engineering ■ Planning ■ Environmental ■ Construction 4140 Thielman Lane Suite 204 St. Cloud, MN 56301 Tel: 320 - 252 -4900 Fax: 320-252-3100 March 14, 2011 Honorable Mayor Rick Schultz Honorable Council Member Steve Frank Honorable Council Member Bob Loso Honorable Council Member Renee Symanietz Honorable Council Member Dale Wick City of St. Joseph 25 College Avenue North St. Joseph, MN 56374 Re: Field Street Corridor Study and Environmental Assessment WSB Project No. 1617 -00 Honorable Mayor and Council Members: In September 2004, the City of St. Joseph contracted with WSB & Associates, Inc. for a Field Street Corridor Study and Environmental Assessment. The City established a Technical Advisory Committee for the Field Street Corridor. The first committee meeting was held on February 8, 2005. The purpose of the study was to determine the potential location and preliminary design for a new east -west collector south of Stearns County State Aid Highway 2 (Minnesota Street) within the City of St. Joseph. The study was also intended to determine the environmental impacts of this new roadway in a federally- approved Environmental Assessment. On December 2, 2010, the City of St. Joseph City Council agreed to conclude the Field Street Corridor Study and Environmental Assessment. The agreements necessary to carry out Section 106 mitigation on eligible historical resources such as The Sisters of the Order of St. Benedict and St. Joseph Parish Catholic Community Historical District, including the St. Isadore Farm, remain unresolved. Attached to this letter is a Technical Memorandum, "Field Street Study and Environmental Assessment, Project Study, and Conclusion." With the submittal of this Technical Memorandum, WSB & Associates, Inc. finalizes its obligations under this contract. WSB anticipates the final invoice for this project will be through March 31, 2011. WSB thanks the City for the opportunity to serve. We look forward to the opportunity to serve you in the future. As a result, the Environmental Assessment, which requires the completion of these agreements, remains uncompleted. Minneapolis ■ St. Cloud Equal Opportunity Employer F:V 617 -WTC eVo de \Project Co whWon I&AM 7:3 Honorable Mayor and Council Members March 14, 2011 Page 2 Sincerely, WSB & Associates, Inc. N I it IF, Douglas J. Weiszhaar, PE Vice President — Special Projects Attachments cc: Judy Weyrens, City Administrator Kirby Becker, St. Cloud APO Randy Sabart, SEH Brandi Popenhagen, WSB al 7:4 A WSB ® & Associates, Inc. Engineering ■ Planning ■ Environmental ■ Construction Technical Memorandum To: Judy Weyrens, City Administrator From: Brandi Popenhagen, PE Doug Weiszhaar, PE Date: January 21, 2011 Re: Field Street Study and Environmental Assessment Draft Project Study and Conclusion S.P. 233 - 108 -01, STP X7306 -037 WSB Project No. 01617 -00 701 Xenia Avenue South Suite 300 Minneapolis, MN 55416 Tel: 763 -541 -4800 Fax: 763 -541 -1700 The purpose of this Technical Memorandum is to briefly summarize the study analysis and findings with regards to the Field Street Corridor Study and Environmental Assessment. Summary On December 2, 2010, the City of St. Joseph City Council agreed to conclude the Field Street Corridor Study and Environmental Assessment. The agreements necessary to carry out Section 106 mitigation on eligible historical resources such as The Sisters of the Order of St. Benedict and St. Joseph Parish Catholic Community Historical District remain unresolved. The preferred alternative, or project, would include the right -of -way preservation of approximately 2.7 miles a new east -west south collector roadway from Minnesota Street (CSAH 2) to the proposed new south end of 20th Avenue located south of Minnesota Street (CSAH 2). It also includes approximately 1.1 miles of 20th Avenue from its existing south end to the new south collector roadway and a signal at the intersection of Minnesota Street (CSAH 2) and the south collector. Another 1.0 mile of east -west collector roadway in between the south collector and Minnesota Street is proposed from College Avenue to 20th Avenue extension. A graphic depicting these corridors is shown in Exhibit 2. The following will briefly summarize the study process and outcomes in the following order: • Introduction • Project Location and Regional Significance • Project Purpose and Need • Alternatives Analysis Screening Process • Environmental Issues 7:5 Field Street Study and Environmental Assessment Project Study and Conclusion Introduction The Field Street Corridor Study began in February of 2005. The purpose of the study was to determine the location and design of a new east -west collector south of Stearns County State Aid Highway 2 (Minnesota Street) within the City of St. Joseph. The study was also intended to determine the environmental impacts of this new roadway in a federally- approved Environmental Assessment. Project Location and Regional Significance The project corridor is located in the City of St. Joseph and St. Joseph Township, Stearns County, Minnesota. St. Joseph is located approximately eight miles west of the regional trade center St. Cloud and has approximately 5,100 residents (2000 census). The study area, depicted on Exhibit 1(see attached), is located generally within in the area bounded by Minnesota Street /CSAH 2 to the north, 1 -94 to the west, the Sauk River to the south, and 20th Avenue to the east. The study area includes area within existing City limits as well as anticipated future City boundaries (within the next 20 years). Exhibit 1 depicts current City limits as well as future annexation areas. The annexation areas to the east of 1 -94 are covered in a 2006 Orderly Annexation Agreement between the City and St. Joseph Township, and the annexation area to the west of 1 -94 is identified in the City of St. Joseph's Comprehensive Plan as "Future Annexation Area." The City currently has only a limited collector and arterial system. From Minnesota Street to the south, there is one east -west arterial, and there are two east -west collectors: • Minnesota Street is a minor arterial from 1 -94 to County Road 121 (College Avenue). This segment also functions as the downtown main street and has many access points and on- street parking. • East of College Ave., Minnesota Street is classified as a collector roadway; adjacent land use is a mix of commercial and residential with many private and public access points and on- street parking. • Baker Street is a collector from 4th to 16th Avenues. It serves a residential area. • The remainder of the roadways south of Minnesota Street are classified as local roads. North of the project area, CSAH 75 is an east -west minor arterial located two blocks north of Minnesota Street. Project Purpose and Need The purpose of the proposed action is to support safe, reliable, accessible, and efficient traffic movement for vehicles and pedestrians within the project study area for local and through traffic. This includes the following elements: • Support planned St. Joseph land -use development south of Minnesota Street. • Be an important link in a well - planned, overall transportation network serving the City and the region. Page 2 7:6 Field Street Study and Environmental Assessment Project Study and Conclusion • Preserve and, if possible, enhance the character and vitality of the downtown district while providing adequate capacity for future traffic volumes and access to the arterial roadway system (1 -94, CSAH 75, Minnesota Street) currently in place. Planned Future Development and System Linkage As St. Joseph continues to grow to the south, it will be necessary to prevent motorists from overusing neighborhood streets to access destinations in other areas of the City and /or higher -level (arterial) roadways. A collector system provides connections between neighborhoods, from neighborhoods to minor business concentrations, and from neighborhoods to other collectors and arterial roadways. The existing network in St. Joseph is set up on an east -west and north -south grid pattern. The study area should provide roadway connectivity and have grid continuity (proper spacing between corridors) relative to arterials and collectors in the area. Based on St. Cloud APO Planning Area Access Management Guidelines, facility spacing should be spaced 1/3 to one mile to promote efficient traffic flow and minimize the amount of through traffic on local streets. None of the north - south, collector roadways within the study area, other than College Avenue /CR 121, provide extended north -south connectivity. Seventh (7th) Avenue (0.6 mile), 12th Avenue (0.7 mile), 16th Avenue (1.0 mile), and 20th Avenue (0.1 mile) all currently dead -end south of Minnesota Street. There currently is no continuous east -west roadway in St. Joseph south of Minnesota Street for the north -south roadways identified above to connect with. Good transportation planning should provide linkage between key corridors and activity centers. Roadway Capacity Relieve and Downtown Preservation As development and associated traffic growth occurs in St. Joseph and the region, key roadways in the project area will become increasingly congested and will require relief. Factors analyzed to assess the impacts of the future growth on roadway capacity were: • Level of Service for Minnesota Street and County Road 121 • Intersection queues at Minnesota Street and CR 121 • Critical gap analysis on Minnesota Street Roadway Segment Level of Service To evaluate the need for additional capacity, the Level of Service (LOS) was analyzed for existing and future volumes on the major roadways within the study area (Minnesota Street and CR 121). Roadway segment level of service (LOS) is a method of evaluating congestion potential at a planning level. This approach compares estimated average daily traffic against the capacity of the segment being analyzed. Table 1 provides LOS thresholds for different categories of facilities based upon Highway Capacity Manual (HCM) information. Page 3 7:7 Field Street Study and Environmental Assessment Project Study and Conclusion Table 1: Roadway Segment Level of Service Thresholds Roadway Section Type Capacity (Vehicles per Day) Uncongested (LOS A or B) Approaching Congestion (LOS C) Congestion (LOS D, E, or F) 2 -Lane Rural < 3,000 3,000 - 6,000 > 6,000 2 -Lane Urban < 6,000 6,000 - 8,000 > 8,000 3 -Lane Urban < 10,000 10,000 - 14,000 > 14,000 4 -Lane Undivided < 15,000 15,000 - 18,000 > 18,000 4 Lane Divided w/ Turn Lanes < 30,000 30,000 - 38,000 > 38,000 Table 2 provides the traffic and associated congestion projections for key segments of Minnesota Street and College Avenue. Table 2: Traffic Volumes and Roadway Congestion Conditions Minnesota Street - Average Vehicles per Day and Congestion Level Western City 2nd Ave to College St to 4th 4th Ave to 20th Limits to 2nd Ave College St Ave Ave 2 -lane Urban 2 -lane Urban 2 -lane Urban 2 -lane Urban 2003 - Existing 8,800 5,600 3,600 2,800 congested uncongested uncongested uncongested 2030 - Future No 12,100 8,800 7,600 5,500 Build congested congested approaching uncongested congestion College Avenue - Average Vehicles per Day and Congestion Level 1st St to Minnesota St Minnesota St to CSAH 75 3 -lane Urban 2 -lane Urban 2003 - Existing 4,150 uncongested 5,900 uncongested 2030 - Future No 10,500 approaching congestion 8,500 congested Build Traffic levels are projected to increase substantially on both streets if no improvements are planned. For example, 2030 traffic on Minnesota Street just west of College Avenue is anticipated to grow by approximately 57 percent, even assuming the relocation of CSAH 2 west of downtown as discussed previously. Similarly, for College Avenue, 2030 traffic south of Minnesota Street is anticipated to grow by approximately 150 percent under the No -Build Alternative. Such increases would be particularly problematic in light of the existing access and safety concerns outlined in the subsequent headings. They would negatively impact the character and function of St. Joseph's traditional downtown area. Critical Gap Analysis Not only does Minnesota Street move east -west vehicular traffic in the downtown area of St. Joseph, but it also provides access to adjacent businesses via parallel parking, pedestrian flow for the adjacent College of St. Benedict, St. Joseph Lab School, and driveway access to adjacent residences. Critical gap Page 4 7:8 Field Street Study and Environmental Assessment Project Study and Conclusion time analysis helps clarify what type of impact additional traffic will have on these other uses. This analysis determines the necessary time vs. available time for parking, pedestrian crossing, and accessing driveways in the 2030 timeframe. The methodology used to determine the necessary time to complete a parking, pedestrian, or access maneuver was based on the Highway Capacity Manual and AASHTO's Policy on Geometric Design. The term gap refers to the space between the vehicles on the roadway that has the right -of -way at an unsignalized intersection. Gap acceptance describes the completion of a vehicle's movement into a gap. The critical gap is the minimum time interval between the front bumpers of two successive vehicles in the major traffic stream that allow the entry of one minor street vehicle. Table 3 presents the average available gap times in the p.m. peak hour on CSAH 2 between the western City limits and College Avenue. It addresses existing conditions and the 2030 No -Build scenario. It also presents the average time necessary to perform various turning movements, pedestrian movements, and parking maneuvers. The time necessary was determined from the HCM or AASHTO's Policy on Geometric Design. The available gaps were calculated from the projected turning movement volumes and are assumed to be an average available gap which does not account for platoons of traffic. Table 3: Gap Time Analysis (seconds) 12030 No -Build Alternative assumes a traffic signal at Minnesota Street and College Avenue; 2Based on the Transportation Research Board's Highway Capacity Manual (HCM), and on the American Association of State Highway and Transportation Officials' (AASHTO) Policy on Geometric Design. Table 3 indicates that conditions would be substantially worse than current conditions under the 2030 No -Build alternative. The available a.m. peak -hour gap time is reduced by 44 percent (14.2 seconds to 7.9 seconds), and the average p.m. peak -hour gap time is reduced by 52 percent (16.2 seconds to 7.7 seconds). The No -Build available gap times are significantly less than the critical gap times needed to make the traffic movements identified on Table 3. The analysis results for the 2030 No -Build alternative indicate that finding available gaps to access private driveways (motorists) and cross at unsignalized intersections (pedestrians) would be difficult in the p.m. peak hour. Parallel parking maneuvers would also increase backups and delay along Minnesota Street. A major pedestrian crossing exists at Vi Avenue NW and Minnesota Street just west of the Page 5 7:9 Minnesota Street Western City Limits to College Avenue Existing Conditions 2030 No Build' PM Peak Hour Available Gap Time - eastbound 14.2 7.9 PM Peak Hour Available Gap Time — westbound 16.2 7.7 Critical Gap Time Needed for Two -Lane Roadways (Minnesota street)2 Right turn from minor roadway 9.3 Through traffic from minor roadway 8.2 Left turn from minor roadway 9.3 Pedestrian crossing of Minnesota Street 13.0 Typical parallel parking maneuver (assumed) 22.0 12030 No -Build Alternative assumes a traffic signal at Minnesota Street and College Avenue; 2Based on the Transportation Research Board's Highway Capacity Manual (HCM), and on the American Association of State Highway and Transportation Officials' (AASHTO) Policy on Geometric Design. Table 3 indicates that conditions would be substantially worse than current conditions under the 2030 No -Build alternative. The available a.m. peak -hour gap time is reduced by 44 percent (14.2 seconds to 7.9 seconds), and the average p.m. peak -hour gap time is reduced by 52 percent (16.2 seconds to 7.7 seconds). The No -Build available gap times are significantly less than the critical gap times needed to make the traffic movements identified on Table 3. The analysis results for the 2030 No -Build alternative indicate that finding available gaps to access private driveways (motorists) and cross at unsignalized intersections (pedestrians) would be difficult in the p.m. peak hour. Parallel parking maneuvers would also increase backups and delay along Minnesota Street. A major pedestrian crossing exists at Vi Avenue NW and Minnesota Street just west of the Page 5 7:9 Field Street Study and Environmental Assessment Project Study and Conclusion Minnesota Street and College Avenue intersection. First Avenue NW provides access to the St. Joseph Laboratory School just south of Minnesota Street. This intersection is currently a through -stop intersection. Heavy pedestrian crossings at this location would require some type of intersection control in the future. This, too, will increase the backups and delays on Minnesota Street. Intersection Operations The key intersection affected by future increases in traffic volume is at Minnesota Street and College Avenue. With the anticipated realignment of CSAH 2 west of downtown, the overall LOS of the intersection under the No -Build Alternative is C for the 2030 p.m. peak hour, assuming that a traffic signal is installed. While this is generally acceptable for an intersection in towns similar St. Joseph, it should be noted that substantial queues are projected to form under these conditions. The queues west of the intersection (traveling eastbound) are projected to approach 500 feet during the p.m. peak time period. The queues north of the intersection (traveling southbound), are projected to reach 390 feet. Traffic levels at the intersection would be high enough to require a traffic signal under No Build. Safety Vehicular safety conditions may be assessed by comparing the crash rate for a given facility against the state -wide and Mn /DOT district average rates for that type of facility. Crash rates factor in the amount of traffic involved; for roadway segments, the crash rate is number of crashes per million vehicle miles traveled along the given segment. Table 4 presents crash rates along Minnesota Street for the 2002 — 2004 study period. It can be seen that the crash rates for each segment analyzed are above the state- wide and District 3 averages, giving further indication of the need to minimize traffic increases on Minnesota Street to the greatest degree feasible. Table 4: Segment Crash Rates on Minnesota Street (2002 -2004) *Crash data from Minnesota Department of Public Safety and augmented by data from the St. Joseph Police Department. * *Crashes per MVM (Million Vehicle Miles) Page 6 7:10 Number of Accidents* Segment Personal Property Length AVG. Crash Location Fatality Injury Damage Total (miles) ADT Rate ** Western City Limit to College Ave 1 0 1 1 1 14 1 15 1 0.59 1 5600 4.11 Statewide Average for 2 -Lane Urban Roadway (5,000 -7,999 ADT) 2.60 Mn /DOT District 3 Average for 2 -Lane Urban Roadway (5,000 -7,999 ADT 3.20 College Avenueto 12th Ave 0 1 9 10 .58 3242 4.86 Statewide Average for 2 -Lane Urban Roadway (1,500 -4,999 ADT) 2.60 Mn /DOT District 3 Average for 2 -Lane Urban Roadway (1,500 -4,999 ADT) 2.50 12th Ave to CSAH 75 1 0 0 4 4 0.91 800 5.02 Statewide Average for 2 -Lane Urban Roadway (ADT <1,500) 2.60 Mn /DOT District 3 Average for 2 -Lane Urban Roadway (ADT<1,500) 2.00 *Crash data from Minnesota Department of Public Safety and augmented by data from the St. Joseph Police Department. * *Crashes per MVM (Million Vehicle Miles) Page 6 7:10 Field Street Study and Environmental Assessment Project Study and Conclusion Access Spacing Deficiencies The existing transportation network has access spacing deficiencies that will become increasingly problematical as traffic levels grow. Table 5, below, shows the access per mile for different segments of Minnesota Street, CR 121, and 7th, 12th and 16th Avenues (collector roadways within study area). Although a segment of Minnesota Street is classified as an arterial, the entire street also provides access to many properties and land uses. As discussed previously, CSAH 2 has been proposed to be realigned west of downtown, which would leave a greater stretch of Minnesota Street being classified as a major collector. Even with such a reclassification, this roadway would still exceed the recommended access spacing guidelines as identified on Table 5. Table 5: Access on Existing Streets Segment Access /Mile Minn. St. - Western City Limits to College Ave. 30 Minn. St. - College Ave. to 12th Ave. 41 Minn. St. - 12th Ave. to 20th Ave. 22 7th Ave. - Minn. St. to dead end (0.6 miles) 66 12th Ave. - Minn. St. to dead end (0.7 miles) 80 16th Ave. - Minn. St. to 295th St. 65 *Recommended Access Spacing for Urban minor arterials 8 to 18 *Recommended Access Spacing for Urban Major Collector 8 to 18 *Source: Mn /DOT Access Spacing Guidelines It is unlikely that substantial access management and reduction on Minnesota Street is realistic in the foreseeable future. In light of this consideration, it will be very important to limit traffic volumes on Minnesota Street through proper network planning. General Planning Considerations and Needs St. Joseph's Comprehensive Plan includes a transportation section. For the study area, this comprehensive plan includes: • Extensions of existing north -south collector roads (7th, 12th, and 20th Avenues) • Construction of a new east -west collector from approximately the new CSAH 2 intersection near 1 -94 east to 20th Avenue. • Extension of Jade Road from CR 121 to the northeast. St. Joseph is growing and recognizes that its transportation network needs to be planned and enhanced to provide access to developing areas and to minimize negative impacts from that growth on the existing system. Even though the roadways addressed in this document may not be built for years, identifying the corridors early will allow the City to make efficient use of public funds for right -of -way acquisition. Early identification will also help the City avoid or minimize impacts to the social, economic, cultural, and natural environment and will support organized development in the area. Page 7 7:11 Field Street Study and Environmental Assessment Project Study and Conclusion Alternatives Analysis Screening Process The development of the alternatives and the eventual Preferred Alternative followed a unique process because of the discovery of a large Historic District and Historic Farmstead. The initial screening of alternatives was completed during the public involvement process and through the implementation of a Technical Advisory Committee (TAC). The TAC was formed to aid the City of St. Joseph in developing and evaluating alternatives. The purpose of the second and third stages of alternatives analysis was to develop an alternative that met the project purpose and need while minimizing or avoiding adverse impacts to historic properties and other resources. Stage 1 Alternatives Evaluation, Initial Corridor Selection - July 2005 The first stage of the process reviewed the feasibility of the concept alternatives at a relatively generalized planning level to determine if there were any "fatal flaws" associated with the alternatives. In consideration of input received from the TAC and a Public Open House held on April 28, 2005, five alternatives were analyzed and ranked according to evaluation criteria developed by the TAC. • Alternative A — No Build • Alternative B — An east -west collector (Field Street) from College Avenue to 20th Avenue running just south of the Rassier Farmstead and Kleinfelter Park. This would include and a southerly extension of 20th Avenue through the Rassier Farmstead. • Alternative C — This alternative is similar to Alternative B but would extend Field Street from College Ave to CSAH 2 through the Monastery Woods. • Alternative D — An extension of CR 121 to TH23 in conjunction with Alternative B. • Alternative E —An interchange at Jade Road and 1 -94 in conjunction with Alternative B. The Evaluation Matrix for these alternatives can be seen in Exhibit 3. Alternative C was identified as the initial preferred alternative to proceed into further environmental analysis. This alignment is depicted on Exhibit 4. Stage 2 Alternatives Evaluation, Final Corridor Selection - September 2007 After the initial Preferred Alternative was identified, the Mn /DOT Cultural Resources Unit (CRU) reviewed the study area pursuant to the FHWA- delegated responsibilities for compliance with Section 106 of the National Historic Preservation Act, amended (36 CFR 800), and as per the terms of the Programmatic Agreement between FHWA and the Minnesota State Historic Preservation Office (SHPO) (June 2005). The Phase I and II studies were completed by CRU in November of 2006. These studies documented the importance of historic resources in the project area, most notably, areas associated with St. Benedict's Monastery. The results of this analysis were analyzed by the TAC with input from Mn /DOT CRU, SHPO, and Section 106 Consulting Parties. It was determined that additional roadway alternatives needed to be analyzed to more comprehensively consider impacts to properties eligible for inclusion the Register of Historic Properties. The Stage 2 alternatives that were analyzed are depicted on Exhibit S. A matrix used for evaluating the alternatives is provided in Exhibit 6. The preferred alternative that was carried forward for further Page 8 7:12 Field Street Study and Environmental Assessment Project Study and Conclusion analysis was a combination of Alternative C4 (western portion) and Alternative G2 (remainder of corridor). This alternative was named Alternative G2a (Exhibit 7). The process of reviewing and eliminating alternatives to get to the Alternative G2a is further discussed below. Stage 3 Alternatives Evaluation, Final Corridor Modifications - November 2008 Because of the wetland impacts and historic or historically eligible properties within the project study area, a more detailed analysis of the preferred corridor was completed to fulfill the Section 106 compliance requirements. Modifications were made to avoid or minimize impacts to resources along the corridor such as the historic properties and wetlands. Minor alignment shifts and changes to the roadway typical section and right -of -way widths were made based input from the Mn /DOT CRU, SHPO, and Section 106 Consulting Parties. The refinement and changes made to the preferred alternative (G2a) allowed the Mn /DOT CRU make a preliminary determination of no adverse impact to historic properties. Selection of a Preferred Alternative The Preferred Alternative (Alternative G2a) was developed from segments of previously evaluated alternatives. The Preferred Alternative, as depicted on Exhibit 7, provides and east -west collector roadway from College Avenue to 20th Avenue located along the north edge of the St. Isidore Historic Farm. Another collector is proposed to begin at Minnesota Avenue, approximately 1,200 feet east of I- 94. From there, it will be constructed south between 1 -94 and Lake Sara to a point just south of the existing developed limits. The roadway will then turn east across College Avenue and extend east until it intersects 20th Avenue. Twentieth (20th) Avenue is also proposed to be extended west and then south skirting the Historic Rassier Farms until it intersects both proposed east -west collector roadways. Environmental Issues The following summarizes the main environmental issues that would require mitigation as a result of the preferred alternative alignment. A complete Environmental Assessment was not finalized since the terms of the mitigation and Section 106 agreements were unresolved. Section 106 The Section 106 process was initiated but never completed since the agencies involved did not agree on the terms of a Programmatic Agreement between SHPO, FHWA, Mn /DOT, and the City of St. Joseph. The outcome of the Section 106 review of the identified Preferred Alternative was that, while the alternative avoids direct effects, the indirect effects cannot be known until the design occurs; therefore, the project has the potential for adverse affects as indicated in an email correspondence dated October 12, 2010, (see Exhibit 8). In order to mitigate this potential, a Programmatic Agreement (PA) is necessary. A draft PA was completed on November 9, 2009, (see Exhibit 9). The language in the draft concerned both the City of St. Joseph and SHPO. The preliminary Mn /DOT CRU findings and SHPO response are also provided as Exhibits 10 and 11, respectively. The City was concerned with committing financially in the near term for preparing and filing National Historic Registry nomination papers on the identified historic resources. They were also concerned with Page 9 7:13 Field Street Study and Environmental Assessment Project Study and Conclusion an agency filing the National Historic Registry nomination papers for a potentially unwillful property owner such as the owner of an identified historic resource referred to as the St. Isidore Farm. The St. Isidore Farm was identified as being part of the Sisters of the Order of Saint Benedict and St. Joseph Parish Catholic Community Historic District. However, the current owner is not affiliated with either the St. Joseph Parish or the Sisters. Mn /DOT Cultural Resources Unit (CRU) had conveyed that, if the property owners were split on whether to nominate the district, that the SHPO could file the paperwork on their behalf. Mn /DOT CRU had also discussed dropping any language regarding mitigating the Rassier Farmstead from the PA. Based on conversations with Mn /DOT Cultural Resources Unit (CRU), it was conveyed that the SHPO wanted more defined timeframes, such as within five years of PA, for carrying out the National Historic Registry paperwork. These defined timeframes further concerned the City because of the financial commitment that was necessary to carry out this mitigation. Therefore, since the parties did not agree on the language in the PA, the City decided to conclude the Field Street Study and not process an Environmental Assessment with the FHWA. Section 4(f) The project would require right -of -way takings from all of the identified historical resources. Although, the preferred alignments were modified to address concerns raised by Mn /DOT CRU, SHPO, and the Sisters, resulting in an alignment that all parties agreed had the least impacts on these resources. An adverse impact or a right -of -way impact on the historic properties would result in the need to complete a Section 4(f) Evaluation under FHWA rules. However, a final Section 106 determination was never made since the Section 106 process was not completed. Conversations with Mn /DOT CRU had implied that if the Section 106 process lead to a determination of no adverse impact, then Mn /DOT CRU would suggest to FHWA that a de minimis finding be made regarding Section 4(f). This was never pursued since the Section 106 process was not completed. The estimated area of impacts for the preferred alignment on Section 4(f) resources is provided in Table 6 below: Table 6: Section 4(f) Impacts of Alternative G2a Section 4(f) Resources Area of Impact (acres) Monastery Woods (Sisters of the Order of St. 1.64 acres — direct impacts Benedict Historic District) St. Isidore Farm (Sisters of the Order of St. 3.86 acres — direct impacts Benedict Historic District) 1.33 acres — indirect impacts (severed triangle) Rassier Farmstead 2.86 acres — direct impacts 1.13 acres — indirect impacts (severed triangle) Wetlands The south east -west alignment was modified to impact the least amount of wetlands and historic properties. As the alignment was studied, it was not possible to avoid both. This was discussed with Mn /DOT CRU and Mn /DNR. Mn /DOT CRU agreed to allow the alignment to shift further into the St. Page 10 7:14 Field Street Study and Environmental Assessment Project Study and Conclusion Isidore Farm property to avoid greater direct impacts and segmenting impacts to the wetland areas within and south of this farm. It was anticipated that Alternative G2a would impact 6.65 acres of wetland. See Exhibit 12 for wetland disturbance areas. Protected Waters The water body identified as DNR Protected basin 43 -62 (also referred to as Lake Sara) provided limited room for the southern east -west segment to go around the Monastery woods. The cross - section width, roadway location, and elevation were evaluated and discussed with the Mn /DOT CRU, Mn /DNR and the Sisters. The roadway width was narrowed, and the elevation was set so it did not directly impact the high -water elevation of this protected water body. These design characteristics were provided to the concerned parties. The design characteristics were considered acceptable to both the Sisters and Mn /DOT CRU. The DNR did not provide official comment but had provided direction that the design should not impact the water body at its high water elevation. A drawing of this design is attached as Exhibit 13. Traffic Noise A noise analysis was completed on the G2a alignment. The analysis concluded that federal noise standards are not exceeded at any of the receptor locations. The federally- defined noise impact criterion (an increase of five or more decibels over existing levels) is exceeded at 22 of the 26 modeled receptor sites under the 2030 Build condition. Construction of noise walls was considered feasible at these receptor locations. A noise barrier, cost - effectiveness analysis showed that one wall was cost effective. However, this is highly dependent on the profile and alignment which needed further refinement and was never completed. Therefore, the noise abatement analysis was not finalized prior to the conclusion of this study. Public and Agency Involvement The public and agency involvement plan included a Technical Advisory Committee that met monthly, initially, one -on -one meetings with affected property owners, presentations to the City Council, two Public Information Meetings, and agency meetings and project correspondence to gain an understanding and address project specific agency concerns. Technical Advisory Committee A Technical Advisory Committee (TAC) with representatives from the City of St. Joseph, Stearns County, St. Joseph Township, St. Cloud Area Planning Organization, the College of St. Benedicts, the St. Joseph Chamber of Commerce, and the Sisters of the Order of St. Benedict. Initially this group met monthly and was challenged with formulating the project's purpose and need, evaluate alternatives, select a preferred alternative, and to provide input and feedback to their respective group or agency they represented. This group met 16 times beginning in February of 2005 to September of 2007. Members of the TAC included: Judy Weyrens City of St. Joseph — City Administrator Dick Taufen City of St. Joseph — Public Works Director Alan Rassier City of St. Joseph — Council Member and Mayor Dale Wick City of St. Joseph — Council Member Joe Bettendorf City of St. Joseph — City Engineer (Consultant) Page 11 7:15 Field Street Study and Environmental Assessment Project Study and Conclusion Joe Bechtold St. Joseph Township James Fredricks College of St. Benedict Sister Kara Hennes Sisters of the Order of St. Benedict Greg Reinhardt St. Joseph Chamber of Commerce Cynthia Smith Strack EDA Kirby Becker St. Cloud APO Doug Weiszhaar WSB & Associates — project consultant Brandi Popenhagen WSB & Associates — project consultant Page 12 7:16 Attachments Exhibit 1: Project Location Exhibit 2: Preferred Alternative G2a Exhibit 3: Stage 1 Evaluation Matrix Exhibit 4: Alternative C Alignment Exhibit 5: Stage 2 Alternatives Evaluated Exhibit 6: Stage 3 Alternatives Evaluation Matrix Exhibit 7: Alternative G2a — Preferred Alternative Exhibit 8: Mn /CRU Email Correspondence Exhibit 9: Draft Programmatic Agreement, 12/22/2009 Exhibit 10: Preliminary Mn /CRU Section 106 Finding Exhibit 11: SHPO Response Exhibit 12: Wetland Impacts Exhibit 13: Lake Sarah Roadway Cross Sections 7:17 1,. ��_:Y -: �.�� - rte. -�.n .t.._• �- t� j;,-+ � �_tiii • rfry. P. q Legen Stud f A e,a ■ °tinned Futre Roadways I —; Current City Limbs Future Mncxabon Avea Exhibit 1: Project Location 0 D ri !M 7:18 awrwrlArtr.Kr.r.r.1.�� ]ww aa!>t lY •t • 11 ' I 1 � I 1 , Alia i r v kALJ link III r t F I N Exhibit 2: Preferred Alternative G2a 7:19 NO V c� , . ;A L L r- .S« r I tZ�.. III VJ W LL. ' I 1 � I 1 , Alia i r v kALJ link III r t F I N Exhibit 2: Preferred Alternative G2a 7:19 a V L n Exhibit 3: Stage 1 Evaluation Matrix F �g L) 9 �. go t' H E E� + s �.� g i O ' ' 1.49 o 01 + + + + W Q + + + E i w I O + O + + + Its + ,+ o N d N s m U � Q 0."1 W p Exhibit 3: Stage 1 Evaluation Matrix 7:20 F �g 1.49 b ti �Bi E i E3 7:20 NatM Carhau r r Under .Stuay • 1 - , 8aut we:i Bettany • llBOtf 80+1?Y tr Realgrurent r } Wvder 8tu�ty ! WJAD Vii; I• , I I-- t. 7777N" a a . .t V r J �r a0 SO P W �Prefeneyd Attemative - Planned Future Roadways Historical Landscapes - Districts a I;q NW Weglands -- �_ j CuTern City Limits Exhibit 4: Alternative C Alignment • ' i a t"� Af . a j � o W Feet 0 3 UOQ S DX 7:21 t t jNorthCorridor # *• r ; ♦ d% - -- , - j— • - - - -- Southwest Beltway Ir ` "` • Under Stucy t L tiff U L-% i ' CSAH 2 Reali9rment ■ 1 �,- R10GE Under Study r.- i - �.., -° - -_� WD °o Rao❑ EIAKER ST u ti w f, m DALES? ► a ; �:. F a - i- - - e Legen O p T _ _ . � � �. � '` • i 121 ' , 138 � :: � A Alt. A, No Build o ! .. Q r { :.:. Alt. B t� ° 0 =- - Alts. C1, C2, C3, C4 Alt. D� Alts. E1, E2, E3, E4 c -Alts. F North, F South -Alts. G1, G2, G2a, G3, G4 Planned Future Roadways NWI Wetlands Historical Resources - ° G'� G Feet _.� Current City Limits ` ` ` f. 0 3,000 6,000 Exhibit 5: Stage 2 Alternatives Evaluated 7:22 .2 4� m .2 m Gl bb m X LU 7:23 V, W V. V, A I It 'It 1 4 'A Hi V6 WH z Z a it At f CO 41 ti - 14, E E A t E E 1� I c L w t; E 2 E C t - c t c t; ci :51 .2 4� m .2 m Gl bb m X LU 7:23 j o 1 � � 4 rI5 p fwd C. 1 9 Le end , �Altemartrve G2a Planned Future Roadways Q NN We4dands Histonca! Landscapes- •Districts r Currerrn City Limits a a I � M1r � FM C 3AM SPX. Exhibit 7: Alternative G2a — Preferred Alternative 7:24 I i 1 i t i r r Harz- ^Cmdar' ilnder C-ynay f M - - -, ' - - - - - -- ♦ -- Beltway' r�-- - - - - -- 3ouftwresi 1 L un4er aw UNIft BCUdl j o 1 � � 4 rI5 p fwd C. 1 9 Le end , �Altemartrve G2a Planned Future Roadways Q NN We4dands Histonca! Landscapes- •Districts r Currerrn City Limits a a I � M1r � FM C 3AM SPX. Exhibit 7: Alternative G2a — Preferred Alternative 7:24 I i 1 i t i Brandi Popenhaaen From: Zschomier, Kristen (DOT) [Krissten7-sctwmlerestate.mmus) Sent: Tuesday; October 12, 20101:56 PM To: Brandi Popenhagen Subject: RE: Field Street Corridor Project in the City of St Joseph - HPP Funds and Section 106 I did state "No Adverse Effect ". Dennis (while he was still there) said that while we were able to avoid direct effects, the indirect effects cannot be known until the design occurs. So I will probably have to rewrite my letter saying "potential for adverse effects" and that we need a PA. If it was truly a no adverse effect, there would be no PA and no required mitigation, so it has changed from my initial letter. Clear as mud, eh? BTW, is your environmental document ready to go, except for my materials? Phil was asking when that might be cowing in. Thanks - Kristen - - - -- original Message---- - From: Brand! Popenhagen (wilto:BPopenhagenpasbeng.cam] Sent: Tuesday, October 12, 2818 1:51 PM To: Zschawler, Kristen (DOT) Subject: RE: Field Street Corridor Project in the City of St. Joseph - HPP Funds and Section 186 Nat to put another wrinkle in this discussion, but... I thought the determination is "no adverse affect" but this was necessary to put further level of protection on these properties to wake sure that the roadway doesn't place additional development pressures on these resources. If that's the case - is it mitigation or planning? Maybe the adverse affect determination has changed., I not sure that SHPO ever addressed your initial determination letter in writing based on my recollection. Exhibit 8: Mn /CRU Email Correspondence 7:25 12/22/09 PROGRAMMATIC AGREEMENT AMONG THE FEDERAL HIGHWAY ADMINISTRATION, THE MINNESOTA STATE HISTORIC PRESERVATION OFFICE; THE MINNESOTA DEPARTMENT OF TRANSPORTATION, AND THE CITY OF ST. JOSEPH, REGARDING THE FIELD STREET CORRIDOR, ST. JOSEPH, STEARNS COUNTY, MINNESOTA (S.P. 233 - 10"1) WHEREAS, the Federal Highway Administration (FHWA) is proposing to approve the environmental document for the corridor preservation of afuture proposed east -west corridor in the City of St. Joseph, Stearns County, Minnesota (PROJECT), which would render the PROJECT a Federal undertaking pursuant to Section 106 of the National Historic Preservation Act (Section 106),16 U.S.C. Section 470(f), as amended; and WHEREAS, the FHWA is responsible for ensuring that all aspects of PROJECT implementation meet the terms of this Programmatic Agreement (AGREEMENT), and the Minnesota Department of Transportation (Mn/DOT) Cultural Resources Unit (CRU) has assisted the FHWA in coordinating the Section 106 process in accordance with 36 CFR 800.2(ax2) and as per the terms of the 2005 Programmatic Agreement (2005 Agreement) between the FHWA, the Corps of Engineers, the WSHPO, the Advisory Council on Historic Preservation (ACHP), and Mn/DOT; and WHEREAS, Mn/DOT CRU, on behalf of FHWA, has consulted with the Minnesota State Historic Preservation Office (MnSHPO) pursuant to federal regulations at CFR Part 800 implementing Section 106 and the 2003 Agreement; and WHEREAS, Mn/DOT and the City of St. Joseph (CITY) have been invited by the FHWA to sign this AGREEMENT in accordance with 36 CFR 800.6(cX2); and WHEREAS, FHWA has consulted with a wide variety of agencies, organizations, and other persons who have an interest in this PROJECT'S effects on historic properties; and WHEREAS, development of this AGREEMENT has included public involvement (pursuant to 36 CFR 800.2(d) and 800.6(a)) coordinated with the scoping, public review and comment, and public hearings and open houses to comply with NEPA and its implementing regulations; and WHEREAS, the St. Joseph Action Group, the Sisters of the Order of St. Benedicts; the St Joseph Historical Society, and the St Cloud Area Planning Organization are consulting parties and have been invited to concur with this AGREEMENT in accordance with 36 CFR 800.6(cx3); and WHEREAS, upon initiation of the Section 106 consultation process and in accordance with 36 CFR 800.2(c)(2)(ii), Mn/DOT CRU, on behalf of the FHWA, in a good faith effort contacted potentially affected Indian tribes inviting their participation in consultation and no tribe wanted to be consulted; and Exhibit 9: Draft Programmatic Agreement, 12/22/2009 7:26 WHEREAS, FHWA and Mn/DOT CRU, in consultation with MnSHPO, have determined the Area of Potential Effects for the PROJECT as the first tier of adjacent properties along Minnesota Street and College Avenue and as a one- quarter mile area in either direction from the proposed Field Street corridor, and WHEREAS, FHWA and Mn/DOT CRLT, in consultation with MnSHPO, have identified the Sisters of the Order of Saint Benedict and St. Joseph Parish Catholic Community Historic District (herein after referred to the Historic District), the Roeder House, the Rassier Farmstead, and the First State Bank of St. Joseph as historic properties in the PROJECT's APE which are listed in or eligible for listing in the National Register of Historic Places, and MnSHPO has concurred with these determinations, and WHEREAS, the full range of effects on historic properties will not be known prior to the development of final plans, and this AGREEMENT provides for ongoing consultation to assess effects and resolve adverse effects in fulfillment of the requirements of Section 106 in accordance with 36 CFR 800.14(bXlXii); and WHEREAS, pursuant to 36 CFR 800.14(b)(3) and 36 CFR 800.6(aX1XXC), priorto beginning consultation to resolve adverse effects, the FHWA notified the ACHP of its intmtion`to prepare this AGREEMENT under 36 CFR 800.14(b)(3) by providing the documentation speed in 36 CFR 800.1 l(e), and the ACHP declined the invitation to participate; and WHEREAS, the FHWA has consulted in accordance with 36 CFR 8006(bXl), "Resohrtion without the Council," and NOW, THEREFORE, the FHWA, MnSHPO, Mn/ DOT, and the City of St. Joseph and all signatories agree that the undertaking shall be implemented in accordance with the following stipulations in order to take into account the effects of the undertaking on historic properties. STIPULATIONS The FHWA will ensure that the following measures are carried out: STIPULATION L UPDATING CULTURAL RESOURCES iN'VEMRIES AND MEASURES TO MINIMIZE EFFECTS TO HISTORIC PROPERTIES A. Updathig Cultural Resources Inventories - Since the survey work for the PROJECT was completed in the mid -2000s and the roadway design work and consbuciion may not occur for several decades, the passage of time will warrant additional survey and evaluation work to identified any properties that may become historic in the intervening decades as per 36 CFR 800.4(bX2) and 36 CFR 800.4(cXl). Any future survey and evaluation work will meet the appropriate federal and state standards at the time, and will follow all applicable federal and state reviews. Pg. 2 7:i7 IL Project Design Development and Plan Review -The PROJECT design will effectively meet the PROJECT purpose and need, while avoiding, minimizing, and/or mitigating adverse impacts to historic properties. These properties consist of the Historic District, the Roeder House, the Rassier Farmstead, and the First State Bank of St. Joseph, and any properties identified during future survey work, if any. Avoidance of adverse effects is preferable and will be considered to the extent feasible. 1) The City shall consult with Mn/DOT CRU and the signatories to this AGREEMENT throughout the PROJECT design of only those elements near the identified historic properties and in order to seek compliance with the Secretary of the Interior's Standards (SOI Standards) for new construction in or adjacent to historic properties. 2) The City will submit draft plans to the Mn/DOT CRU office throughout the design process of PROJECT elements near the identified historic properties. Mn/DOT CRU will review the draft plans to ensure design elements agreed upon through consultation and meetings have been incorporated into plans. If not, further consultation may be required as per 36 CFR 800.6. 3) The City will submit the final plans to Mn/DOT CRU, who will provide a determination on if the final plans meet the SOI Standards and if there are no adverse effect; or if the SOI Standards were not able to be met and there are adverse effects. Mn/DOT CRU will provide any additional determinations to the MnSHPO and other consulting parties, who will have 30 days to review and comment as per 36 CFR 800.3(cx4). 4) Mn/DOT CRU will consult with MnSHPO and other parties to this agreement to develop a mitigation plan appropriate to the historic property and type and degree of effect. S) Mn/DOT CRU shall notify consulting parties to this AGREEMENT when a mitigation plan will be prepared pursuant to this stipulation. MWDOT CRU will provide a copy of the draft mitigation plan to consulting parties for a 30-day comment period during which consulting parties may provide written comments to Mn/DOT CRU. 6) MWDOT CRU agrees to take into account any timely comments of consulting parties in the development of final mitigation plans. A mitigation plan will be final upon acceptance by FHWA and MnSHPO.. Consulting: parties will receive copies of all final mitigation plans and may also be invited to concur in mitigation plans. 6) If any significant changes occur to the PROJECT scope, the City will notify Mn/DOT CRU, who will conduct any additional review as per the terms of 36 CFR 800. STIPULATION EL COMPLETION OF THE NATIONAL REGISTER NOMINATION FORMS FOR THE HISTORIC DISTRICT AND RASSIER FARMSTEAD Pg. 3 7:28 A. The City of St. Joseph (or their consultant) will complete the necessary paperwork and photography, as per the National Park Service's and MnSHPO requirements, for the Historic District and the Rassier Farmstead. B. The City of St. Joseph will submit draft nomination forms to Mn/DOT CRU for review and approval. Mn/DOT CRU will submit the forms to the MnSHPO for their review and approval. Any comments or changes requested by Mn/DOT CRU and the MnSHPO will be incorporated into the final nomination forms and resubmitted to Mn/DOT CRU. Mn/DOT CRU will submit final copies to the MnSHPO. C. The City of St. Joseph is encouraged to complete this work within two (2) years of the signing of this MOA, but no later than one (1) year prior to the completion of the new roadway plans. D. Actual nomination of these properties to the National Register of Historic Places will be at the discretion of the property owners and will follow the established procedures of the National Park Service (35 CFR Part 60) and MnSHPO. Listing of historic properties in the National Register would enable the owners of these properties to access certain financial incentives for preservation, including the federal preservation tax incentives. STIPULATION IIL COMPLETION OF A MANAGEMENT PLAN FOR THE MONASTERY WOODS TRADITIONAL CULTURAL PROPERTY A. The Monastery Woods Traditional Cultural Property (TCP) (SN- SJC- 0097), consisting of the woods (SN- SJC =093), the lodge (SN- SJC- 0033), and the Our Lady of Grace Shrine (SN- SJC - 0034); is a contributing element of the Historic District, and is the most likely portion of the Historic District to be affected by potential noise or visual changes. B. The City of St. Joseph (or their consultant) will develop a management and maintenance plan for the Monastery Woods for use by the Sisters of St Benedict. The work shall be completed by a team consisting of a qualified landscape architect and a historian meeting the requirements of 36 CFR 61. Mn/DOT CRU and MnSHPO will review, comment on, and have approval authority on the plan. C. The City of St. Joseph is encouraged to complete this work within two (2) years of the signing of this MOA, but no later than one (1) year prior to the completion of the new roadway plans. STIPULATION IV. AMENDMENTS Any signatory or invited signatory to this AGREEMENT may request that it be amen" whereupon the signatories and consulting parties shall consult to consider such amendment. Any amendments shall be in writing and signed by all signatories to be effective. STIPULATION V. DISPUTE RESOLUTION Pg. 4 7:29 A. Should any signatory to this AGREEMENT, including any invited signatory, object at any time to any actions proposed or the manner in which the terms of this AGREEMENT are implemented, FHWA shall consult with such party to resolve the objection. FHWA consultation shall take place within 10 days of receipt of said objection and shall be documented in the form of meeting notes and/or written letter of response. If FHWA determines, within 30 days of documenting consultation efforts with the objecting party that the objection cannot be resolved, FHWA shall: 1. Forward all documentation relevant to the dispute, including FHWA's proposed resolution, to the ACHP. The ACHP shall provide FHWA with its advice on the resolution of the objection within thirty (30) days of receiving adequate documentation. Prior to reaching a fmal decision on the dispute, FHWA shall prepare a written response that takes into account any advice or comments from the ACHP, signatories, and concurring parties, and provide them with a copy of this written response. FHWA will then proceed according to its final decision. 2. If the ACHP does not provide its advice regarding the dispute within the thirty (30) day time period after receipt of adequate documentation, FHWA may render a final decision regarding the dispute and proceed accordingly. In reaching its decision, FHWA shall prepare a written response that takes into account any timely comments regarding the dispute from the signatories and concurring parties to the AGREEMENT, and provide them and the ACHP with a copy of such written response. 3. FHWA's responsibility to carry out all other actions subject to the terms of this AGREEMENT that are not the subject of the dispute remain unchanged STIPULATION VI. TERMINATION The FHWA, MnSHPO, and the invited signatory to this AGREEMENT may terminate the AGREEMENT by providing thirty (30) days' written notice to the other signatories. The parties much consult with the other signatories with each other during the notice period in an attempt to seek agreement on amendments or other actions that would avoid termination. In the event of termination, the FTA will comply with 36 CFR 800.3 with regard to the undertaking covered by this AGREEMENT. STIPULATION VII. DURATION This AGREEMENT will termination on December 31, 2015 or upon mutual agreement of the signatories. Prior to such time, FHWA may consult with the other signatories to reconsider the terms of the AGREEMENT and revise, amend, or extend it in accordance with Stipulation IV.. Execution of this AGREEMENT and implementation of its terms evidences that the FHWA has afforded the ACHP opportunity to comment on the PROJECT and that the FHWA taken into account the effects of its undertaking on historic properties. This AGREEMENT does not create a right of action against the United States; its agencies, departments, instrumentalities or entities, its officers, employees, agents, or any other person or any other signatories of this AGREEMENT. Pg. 5 7:30 SIGNATORIES: FEDERAL HIGHWAY ADMINISTRATION (FHWA) Derrell Turner, Division Administrator Date MINNESOTA STATE HISTORIC PRESERVATION OFFICE (SHPO) Nina ArchaK State Historic Preservation Officer Date INVITED SIGNATORIES: MINNESOTA DEPARTMENT OF TRANSPORTATION Thomas Sorel,' Commissioner Date CITY OF ST. JOSEPH Judy Weyerns, City Administrator Date CONCURRING SIGNATORIES: St. Joseph Action Group [NAME AND TITLE] Date Sisters of St. Benedicts [NAME AND TITLE] Date St. Joseph Historical Society [NAME AND TITLE) Date Pg. 6 7:31 St Cloud Area Planning Organization [!NAME AND TITLE] Date Pg. 7 7:32 �,paN"E�ry }$ +L Minnesota Department of Transportation Transportation Building 395 John Ireland Boulevard oF�P Saint Paul, Minnesota 55155 -1899 November 3, 2008 Mr. Dennis Gimmestad Government Programs & Compliance Officer State Historic Preservation Office Minnesota Historical Society 345 Kellogg Blvd. W. St. Paul, MN 55101 RE: S.P. 233- 108 -01 (East -West Collector Roadway, Field Street' Corridor, St. Joseph, Stearns County) T 124N, R 29W, S 9, 14,15, 16 SHPO Number 2006 -0826 We have reviewed the above - referenced underWft pursuant to our FRWA- delegated responsibilities fbr compliance with Section 106 of the National Historic Premvetion Act, as amended (36 CFR 800), and as per the terms of the Programmatic Agreement (PA) between the FHWA and the Minnesota State Historic Preservation Office (SHPO) (June 2005). We previously wrote to your "office on April 17, 2007 with a determination of eligibility for the resources within the area of potential effect (APE) for the project, and your office wrote back May 22, 2007 and concurred with our determinations. As you know, the original proposal called for Field Street to run through the middle of the College of St. Benedict's property in the fields located between the woods and the campus proper. Because this would have been a major adverse effect to the Sisters of the Order of Saint Benedict and St. Joseph Parish Catholic Community Historic District (historic district), the City of St. Joseph and their consultants have modified the proposed project to help minimize impacts to the identified historic properties. The new proposed project includes moving a portion of Field Street to the south of the historic district so as to avoid severing the district, and is described below (please see enclosed revised preferred alternative map). The City of St. Joseph is planning for the development of collector roadways in the southern portion of the City. The purpose of these roadways is to provide safe and efficient movement in the growing areas of St. Joseph south of Minnesota Street. The roadways are needed to provide transportation connections for existing and planned development in this area of the City, provide access to the arterial system, provide appropriate collector road spacing for a developing area, and relieve existing and future traffic needs on other existing area roadways. Two east -west roadways are proposed along with extensions of an existing north -south roadway. The fast roadway is located approximately 0.7 miles south of Minnesota Street beginning at County Round 2l /College Avenue and proceeding easterly to a proposed future extension of 200' Avenue and is approximately one mile long. The preferred second east -west roadway begins at CSAH 2, east of the Interstate 94 (1 -94) east ramps, continuing southeasterly along I -94 approximately 5700 feet, and then continuing easterly approximately 8200 feet to the proposed future extension of 20th Avenue. The east -west section of this roadway is more southerly then the first and the entire roadway is anticipated to be approximately 2.7 miles long. In order to connect the proposed east -west roadways to the arterial system, 20th Avenues will be extended south. The proposed 20th Avenue extension is anticipated to be approximately 13 miles long. In addition, an alternative was included that extended the southernmost roadway over Interstate 94 and connected to an existing frontage road which connects with Highway 2 to the west of the current 1 -94 intersection. The City is planning to preserve a 100 foot right -of -way corridor for all of the proposed roadways. The roadways will need to accommodate 2,12 -foot traffic lanes, 6-foot shoulders, and a 6- to 16 -foot landscaped An. equal opportunity employer Exhibit 10: Preliminary Mn /CRU Section 106 Finding 7:33 median to separate the two traffic lanes. A l 0-foot paved path is proposed along one side of the corridors and a 6-foot paved sidewalk is planned for the opposite side. Dedicated right and left turn lanes are anticipated at major intersections. Additional Archaeological Review In our April 17, 2006 letter, our office submitted the report, Phase I Archaeological Investigation of the Proposed Field Street Corridor in St. Joseph, Stearns County, Minnesota (May 2006). No archaeological sites were identified during the survey work. The survey work was based on the previously defined corridor, which basically extended across the northern portions of Segments 2 and 3, and continued west across the St. Benedict's campus property and-connected with Highway 2 (see APE map in the previously submitted Berger report). In order to avoid impacts to the campus and historic district, the City extended the proposed roadway corridor to the south by extending the 201° Street extension and by creating a southern stretch of Segment 2 and Segment I parallel to the east side of 1 -94 and connecting to Highway 2 (please see enclosed revised preferred alternative map). Based on the lack of archaeological sites in the previous survey, Mn/Model's rating of the revised corridor areas as having low archaeological site potential, and the impacts of farming, residential and roadway development, it is the determination of this office that the un- surveyed portions of the project area have a low potential for containing intact, significant archaeological sites and that no further survey work is required. Other Historic Resources by Segment Segment 1, Alternative G4 extends the Field Street corridor over Interstate 94, where the road connects to a round - about, and then ties back into an existing frontage road located on the west side of the Interstate. A roundabout would also be constructed at the frontage road intersection with Highway 2. There are no historic properties located within the APE for this segment, and therefore it is the determination of this office that there would be no historic properties affected by Alternative G4. Segment 1, Alternative G2a extends Field Street along the east side of the Interstate to the north of Lake Sarah and intersecting with Highway 2. (Please note the current map shows the road extending to the east of the farmstead, but the City is considering placing the mad to the west of the farmstead.) The corridor would result in the acquisition of an 80 to l 004 wide portion of the southwestern corner of the Sisters of the Order of Saint Benedict and St. Joseph Parish Catholic Community Historic District (historic district). The right - of -way would not include a direct taking of the Monastery Woods Traditional Cultural Property (TCP), which is a contributing element to the historic district (see Figure 21 in Landscape Research 2006 report). The construction of the roadbed on this edge of the historic district would not adversely affect the district, since it is very small portion of the large, overall district and does not contain key historically significant elements of the districts. An examination of indirect effects to the historic district and Monastery Wood TCP was also considered. One potential indirect effect was if the proposed two -lane road would create additional noise that could impact the contemplative space that the Woods represents to the Sisters of St. Benedict's. Noise studies were conducted and showed that the 2030 No Build (43) versus Build (44) alternatives resulted in a one decibel noise level difference. Both readings are below 60, well below the federal noise threshold for serene places. The Interstate, which would parallel the G2A alternative, would be the main source for noise in the area. The comparatively low volume of vehicles on a G2A alternative simply does not add additional noise to make a significant difference in noise levels. The eastern portion of the woods contains two key features: the Sister's Lodge (SN -SJC -033), and the Shrine (SN -SJC -034). Based on the noise studies, the 02a corridor would not cause a significant increase in noise levels that would impact this area, and there would be no views of the road from this eastern end of the Woods. However, Lake Sarah, the wetland in the southwestern corner of the historic district, and the topographically prominent hill towards the northwestern edge of the woods are also use areas for the Sisters and students, and so a consideration of how the presence of the road could visually affect the use in these areas was considered. While the construction of Field Street will create additional roadway surface within Pg. 2 7:34 the viewshed from the historic properties, it is likely that the interstate will remain a more dominant visual feature than the Field Street corridor, due to both its size and higher elevation. Also, the City plans to purchase a 100 -f1. -wide right -of -way for Field Street in order to accommodate a tree -lined grassy median, which may help to block part of the Field Street corridor and possibly some views of the Interstate. To summarize, since the views from the woods to the west have already been compromised by the construction of a four -lane interstate highway; and since the proposed corridor has the potential for some vegetation screening, will not require large amounts retaining walls or other built elements beyond the road bed, and will be at the same elevation as the edge of the Sister's property, it is unlikely that the Field Street Corridor will have an adverse visual effect to the historic district or the Monastery Wood TCP. The current owner of the parcel north of Lake Sarah that the proposed 02a alternative would go through is slated for development by the current owner. These developments will occur regardless of if the Field Street 02a alternative is constructed (i.e., an access road off of Highway 2 would be constructed to access the commercial developments). Therefore, the commercial development of this area is not considered to be a likely cumulative affect of the construction of Field Street through this parcel To summarize, based on the currently available information, there are no apparent adverse effects that can be identified at this point to the Monastery Woods TCP or the historic district. However, in the future as the design of the roadway is developed and fmalizod, it is possible that adverse effects may be identified. When design work begins, a new Section 106 review will need to be conducted (including additional public consultation), and either a re- evaluation of the EA will be needed or a new environmental document will be required. At that time, if adverse effects are identified, ways to avoid or minimize such effects would need to be explored. The fact that the City might own the G2a corridor is not a sufficient reason to exclude other corridors that avoid or minimize the adverse effect from consideration. Segment 2 has a northern and southern alignment. The southern alignment extends from just west of County Road 121 east to Segment 3, and the northem alignment extends from the east side of County Road 121 and continues east to Segment 3 (see enclosed map). There is one property within the APE for this segment: St. Isidore Farm (SN -SJC -092). The farm is a contributing element to the historic district. It is locally significant for its association with specialized livestock farming in Stearns Count after World War 11 and for its association with agriculture at the Convent of Saint Benedict. The Phase 11 evaluation report identified the historical boundaries of the farmstead, but did not state if the full boundaries retained sufficient integrity to be considered a contributing portion of the district. Aerial photographs show the southern fields as less wooded, open pasture land. The area has become unutilized pasture land, resulting in a change in vegetation (i.e., more trees), and therefore no longer represent the historical land use. Due to these changes, it is the determination of this office that the southern portion of St. Isidore farm is a non - contributing element of the historic district due to lack of integrity. Therefore, the taking of a portion of the southern boundary of the farmstead for the southern roadway right -of -way will have no adverse effect on the historic district. The northern portion of Segment 2 will result in the acquisition of a 40 -ft. -wide portion of right -of- way along the northern edge of the St. Isidore farm. The taking of a minimal portion of land along the northern edge of the property will not impact the farm's economical viability, and will not adversely affect the setting, feeling, and association of the farm. Noise studies have shown that the difference between the No Build (45) and Build (5 1) levels for 2030 is a 6 point difference, with both levels being below the federal threshold level of 70. Therefore, it is the determination of this office that the northern segment of Segment 2 will have no adverse effect to the historic district. Segment 3 (see enclosed map) tuns to the west of the Rassier Farmstead (SN -SJC -091). The Rassier Farmstead was determined eligible for listing on the National Register under Criterion A in the area of Agriculture. It is locally significant for its association with twentieth- century dairy farming in Stearns County and with dairy farming in Minnesota. The property consists of the house, the dairy barn, silo, granary, loafing shed, machine shed, chicken barn, smokehouse, machine shed/garage, and the associated farm fields and wood lot. The character- defining features of the farmstead include the intact collection of early- twentieth- century farm structures and the cultivated fields within the defined boundaries (see enclosed Pg. 3 7:35 map). As currently proposed the I WfL corridor preservation route would take a portion of the northwest corner of the property, and some of the trees along the edges of the wood lot. The farmstead and cultivated fields will be left intact, with right -of -way being acquired only along the edges of the property. While some trees will be removed, the extensive wood lot will remain primarily intact, and will help buffer the farmstead from the new roadway. Noise studies have shown that the difference between the No Build (44) and Build (52) levels for 2030 is an 8 point difference, with both levels being below the federal threshold level of 70. Since the corridor will only be taking portions of the property along northwestern and western edges, will not directly impact the character- defining features of the farm, or indirectly alter the setting, feeling, or association or the farmstead, it is the determination of this office that there will be no adverse effect to the Rassier Farmstead as the project is currently proposed. There are two historic properties located on Minnesota Street: The Roeder House (SN -SJC -006), which was determined eligible during the Phase H survey, and the 1° State Bank (SN- SJC -001), which is listed on the National Register but no longer operates as a bank. Neither property will be affected by the proposed Field Street alternatives. While a No Build alternative would result in more traffic on Minnesota Street, the traffic levels are not projected to reach high enough levels that it would cause an adverse effect to either property. Based on the project as currently proposed, it is the determination of this office that the project as currently defined under the revised design will have no adverse Impacts to bistoric properties. It is possible that when design work on the roadway begins, adverse effect to historic properties may be identified. A new Section 106 review and environmental document will be needed at the time design work begins, and if adverse effects are identified, alternatives need to be explored that would avoid or minimize those adverse effects. The fact that. the City might own the 02a corridor is- not a sufficient reason to exclude other corridors that avoid or minimize the adverse effect from consideration. Please provide any comments with 30 days of receipt of this letter. As you know, there are a number of consulting parties to this review. We are copying there here, and would like to remind them that they are also welcome to provide comments on the determinations contained herein. Our office, on behalf of the FHWA, will consider their comments on effects to historic properties, and can reconsider any determinations of effects based on those comments. Due to project schedules, we would like to request that all comments by consulting parties be received within 30 days of receipt of this letter. Thank you for your continued involvement on this project over the last two years. We appreciate your guidance and input, along with that of the consulting parties, and fuel that we were able to avoid significance impacts to cultural resources. Sin ly, ?.schomler, RPA Historian/Archaeologist Cultural Resources Unit (CRU) cc: Cheryl Martin, FHWA Chris Cromwell, FHWA Judy Weymns, City of St. Joseph Philip Welter, St. Joseph Action Group Sister Kara Hennes, Sisters of the Order of Saint Benedict Bill Wasner, Chair, St. Joseph Historical Society Kenneth J. Niemen, Former Mayor, St. Joseph Mn/DOT CO/CRU Project File Pg. 4 Margaret D. Hughes, Citizen of St. Joseph Kirby B. Becker, St. Cloud Aries Planning Org. Brandi Popenhagen, WSB Associates Doug weiszbaar, WSB Associates Lynette Roshell, Mn/DOT State Aid Kelvin Howieson, Mn/DOT D 3 State Aid Enginee Joe Hudak, Mn/DOT CRU 7:36 1: 4d Fm �Tm V Iry w IVA." i .� I i ••� 1 , L.•f�`l�vl �• � � j _ Iii 1 r 'A�' R cn fill 11 1 C9 Nco �TM O Z C.) ,kM US � 01 I I I I 10 N 0 0 Pg. 5 lon lit I IV 7:37 000 9 d 4 i� jLAKE SARA BASIN 73,62 W010 ISIS Field Street Corridor S.P. 233- 108 -01, STP X7306 -037 City of St. Joseph, Minnesota :i.ii— W \CM\l+Tg1T \OOOCf \f10.IW e' . Pg. 6 N A o no #+ 400 it `1 7:38 AA- t 1 1( 66 J. lw AV J aim Air., , 4g, lk*z Pg. 7 7:39 sea r �; �40 ca TA I Ilk lk .`Ptµ' .+ :Y 1-, '4• til "� Z r ��' '� &' i, � `�,' •, "1 r�N4 0"i M� r# .;r �• :. r�' c.`,� it •� � , •� ,rM, it *7+f" . t r .fir . y. �►' 7:40 Minnesota Historical Society State Historic Preservation Office January 12, 2009 Ms. Kristen Zschomier Cultural Resources Unit MN Dept. of Transportation Transportation Building, MS 620 395 John Ireland Boulevard St. Paul, MN 55155 -1899 NQt-�[.,0W[9 JA N 1 6 2009 CULTURAL RESOURCES UNIT j Re: S.P. 233 -108 -01 (East -West Collector Roadway, Field Street Corridor) St. Joseph, Stearns County SHPO Number. 2006-0826 Dear Ms. Zschomler. JAN 2 S M � l'tt a r•e,,,.r``a Thank you for your recent letter regarding the above referenced project. We have appreciated the opportunity to consult with your office and with a wile range of other interested parties as part of the planning process for this project. The proposed route described in your letter avoids serious adverse effects to historic properties that would have resulted from earlier project alternatives. We believe that this route represents a good alternative for continued project planning and development, and we appreciate the effort that has been made to develop that alternative. We are inclined to concur with the preliminary assessments of effect for the various historic properties that have been identified in the project area. Because design of this project is some years away, we recommend that a Programmatic Agreement be developed. Such an agreement can establish a basis for further review of the project at the time that the design process moves forward. The agreement should include provisions.for updating cultural resource inventories, as needed, for assessing project effects as part of the project design, for an appropriate approach to involvement by other interested parties, and for mitigating adverse effects that cannot be avoided as part of the design process. Contact us at 651 - 259 -3456 with questions or concerns. Sincerely, Dennis A. Gimmestad Govemn -*nt Programs & Compliance Officer C Cheryl Martin, FHWA Judy Weyrens, City of St. Joseph Sister Kara Hennes, Sisters of the Order of St. Benedict Philip Welter, St Joseph Action Group Bill Wasner, St. Joseph Historical Society Mlr" ota Moon l Soc W% 3" VAI"y Boulevard West. Urrt r+aw. KWwmota 55102 651259- 3000.998- 727.9386 wwwAWft om. Exhibit 11: SHPO Response 7:41 Exhibit 12: Wetland Impacts 7:42 z �I D m Fill i O O CID N C C O C L -M 13 10 A 1I V) P -POM lO 08P3 =i I I I jmM,IO aft; -4 N O n WZ 11 v rn Z D O m H R J O + N G 9 LOLL = 1310 V) PuelW;O 05P3 I s J OPM )O 06P3 N C NT � Z If g`3 m = 0 ;v C Z O m w 1 S � +p N G 9 LOLL = 1310 $ I PwMM W ON3�M a JOtW 10 06P3 Exhibit 13: Lake Sarah Roadway Cross Sections l I �1 1` 1 I U EP I g�3 � 0 m W a u� wo G�i Q J OLi O N Q V Qa Qa 0 gZ og Z J U) LL W 7:43 Field Street Corridor Financial Summary As of March 11, 2011 Contract -vs- YTD Expenditures $ 448,293.68 $ 413,323.86 $ 64,595.63 Revenue Sources -vs- Contract Contract Contract YTD Contract Amount YTD Spent Balance WSB $ 331,186.68 $ 298,331.76 $ 32,854.92 S.E.H. WSB $ 27,907.61 $ MnDot Arch itectual /Historical $ 66,761.00 $ 66,668.82 $ 92.18 MnDot Archeological $ 50,346.00 $ 18,697.47 $ 31,648.53 Other $ 27,907.61 $ 1,718.20 66,761.00 $ 448,293.68 $ 413,323.86 $ 64,595.63 Revenue Sources -vs- Contract 7:44 Contract Federal /State YTD Amount Grant City Spent WSB $ 331,186.68 $ 176,244.10 $ 122,087.66 $ 298,331.76 S.E.H. $ - $ 27,907.61 $ 27,907.61 MnDot Arch itectual /Historical $ 66,761.00 $ 53,367.06 $ 13,301.76 $ 66,668.82 MnDot Archeological $ 50,346.00 $ 14,957.98 $ 3,739.49 $ 18,697.47 Other $ - $ 1,718.20 $ 1,718.20 $ 448,293.68 $ 244,569.14 $ 168,754.72 $ 413,323.86 7:44 Extract of City Council Minutes December 2, 1010 Field Street: Doug Weiszhaar approached the Council on behalf of WSB to provide an update on the Field Street Study. He reported that this project started in 2004. Over the past few years, the City has been studying various alternatives for a Collector in the Southern portion of the community. They have gone through much iteration and have finally arrived at a series of routes that will work well for the community. The study process is in the end stage and MnDot is requesting the City execute a programmatic agreement which includes the requirement for the City to prepare the inventory to register the historic properties on the federal historic registry. If it is the intent for the City to solicit federal funding for the construction of any portion of Field Street, this programmatic must be completed. It is estimated that the cost of the inventory will range between $ 40,000 and $ 50,000. Kirby Becker approached the Council as well on behalf of the APO. He stated that there may be some Federal Funds available to help fund the stipulations of the agreement. He added that the local match on any project is 20 %. Frank clarified that the TAC has settled on a preferred route. He was advised that the preferred alternative skirts the northern edge and then goes along the other side of Lake Sarah and will be a 2 -lane road. He questioned the consequences for not buying into this at this time. Weiszhaar replied that if the City pursues the programmatic and completes the stipulations, the City would then have completed the study process, including the required environmental review and if funding were available, the City could seek federal funding. Without a completed study, the City would not be eligible to solicit federal funding for any portion of Field Street. The City could however use local funds to construct the corridor. When questioned if the City does move forward and execute programmatic how long is the environmental effective, Weiszhaar stated that an environmental document must be updated every three years. When the City is ready to construct the roadway, they would be required to do an amendment to the EIS if there are any changes in the corridor with respect to environmental effects. An amendment is not as expensive as doing the entire process all over again. Wick clarified that Field Street is not included in the current St. Cloud Area APO plan so funding is highly unlikely Becker concurred and stated that it could be placed in the plan when amended the 2040 plan is adopted. Loso made a motion to suspend the Field Street Study, documenting all the work that has been completed to date. The motion was seconded by Wick. Discussion: Loso questioned how much money has been spent to date. Weyrens replied close to $170,000 of City funds and additional $ 300,000+ in federal and state funds. Frank questioned what will happen if one of the stakeholders moves or changes. According to Weiszhaar, the current document is only accurate if the current properties remain as they currently exist. If this is picked up later on, one of the properties may no longer have historic value. He added that this process has raised the awareness of the historic significance in St. Joseph. Weyrens questioned whether stopping the process will have negative impacts with the APO. On behalf of the APO, Becker stated that it will not as the City has worked diligently to complete the project and it has come done to a financial constraint with execution of a programmatic agreement. The APO is supportive of putting closure to the study. Ayes: Wick, Symanietz, Frank, Loso Nays: Rassier Motion Carried 4:1:0 Weiszhaar thanked the City for the opportunity to work on this project over the past several years. 7:45