Hennepin County Complete Streets Policy
Effective 10/01/2023 – Through 7/01/2024
What is Complete Streets?
Complete Streets is an approach to roadway design that balances the needs of all roadway users, including people walking, rolling, biking, riding transit, and driving. County Roads are also important for hauling freight and delivering fire, medical and police services. This approach aims to enhance safety and accessibility to better serve residents. By promoting all modes, we can reduce transportation disparities, greenhouse gas emissions and improve health and livability for our residents.
What is Green Streets?
Green Streets is an approach to roadway design that incorporates environmentally sustainable principles and practices to reduce the impacts of urbanization and impervious surfaces on the environment and enhance livability. Green Streets incorporate: vegetation, including trees, shrubs and perennials; amended soils; engineered systems, such as permeable pavement and specialty drainage structures; and rain gardens to slow, filter, and clean stormwater runoff. By capturing rainwater and pollutant runoff at its source, the water can be cleaned prior to discharge into lakes, rivers and wetlands. Incorporating green elements into roadway design improves air quality and water quality, which, in turn, improves people’s health and increases resiliency of people and roads to climate change impacts.
Using Complete and Green Streets to make connections and reduce impacts
Hennepin County recognizes our public right-of-way as a valuable asset that can connect people to jobs, schools, health care and other important destinations and minimize the impact of land development on the natural environment. Hennepin County further recognizes that people have diverse needs and rely on multiple modes in using our transportation network. Building Complete Streets increases mobility for people living or traveling along our roadways by prioritizing safety and access to destinations.
Complete and Green Streets goals are to:
provide transportation options for all people
reduce greenhouse gas emissions
increase resiliency of the built environment
foster positive health outcomes by decreasing the heat island effect, minimizing stormwater and flooding impacts, improving water quality and reducing air pollution and enhancing livability for communities
Our vision is to provide a safe transportation network that offers strong connections through multiple modes, respects the environment and improves the health and quality of life for all who live, work or visit here.
Incorporating county and community priorities
Hennepin County adopted its original Complete Streets Policy in 2009. Since then, design best practices and county priorities have evolved. This updated policy reflects national research, design guidance and aligns with the county’s plans and initiatives.
This updated policy reflects a transportation vision that aligns with the county’s goals and priorities and guides future projects and funding decisions.
Comprehensive plan
Hennepin County’s transportation plan is included as part of the county’s comprehensive plan, which is updated every 10 years, and provides guidance for the county’s multimodal transportation system. It establishes a subset of long-range plans including the Americans with Disabilities Act (ADA) Transition Plan, as well as the pedestrian, bicycle and safety plans. The goals identified in the county’s comprehensive plan support and align with the Complete and Green Streets Policy.
Disparity Reduction
We can reduce disparities by making changes in transportation. Transportation touches all domains in disparity reduction, particularly employment, education, health and housing. To reduce disparities, we need to use an equity lens while we prioritize transportation improvements. We also need to support community-driven solutions and look to long-term changes to make the biggest impacts on reducing disparities. Building Complete and Green Streets advances the county’s work in reducing disparities.
Climate Action Plan
Complete and Green Streets advances the county’s climate action goals by providing transportation options that reduce greenhouse gas emissions and incorporating green infrastructure to manage stormwater, improve water quality, decrease urban heat island effects and sequester carbon. The county’s Climate Action Plan outlines strategies to reduce greenhouse gas emissions and adapt to the changing climate, including reducing vehicle miles traveled, advocating for and supporting transit and expanding multimodal facilities. The plan also outlines goals to adapt to a warmer and wetter climate, increase the resilience of the built environment and protect natural resources.
ADA Transition Plan
Complete Streets enhances accessibility throughout our transportation system. The county’s ADA Transition Plan outlines a path toward providing accessible facilities for all people traveling along or across our roadways. The county continues to invest in upgrading the county’s pedestrian curb ramps and other infrastructure to improve accessibility for all people walking, rolling, biking and riding transit – especially for people with disabilities.
Safety Action Plan
Incorporating Complete and Green Streets design aligns with the county’s goals to reduce crashes and enhance safety along our roadways. We are Minnesota’s most populous county, which means we need to be systematic in how we address safety. Therefore, we are moving forward with a Safe System Approach. The county’s Toward Zero Deaths (TZD) program, modeled on the statewide initiative, is a county-led comprehensive program demonstrating the county’s commitment to reducing fatal and life-changing crashes for all transportation users. TZD integrates five E’s to maximize the program’s effectiveness: education, enforcement, engineering, engagement and emergency services.
Context sensitivity
Building a roadway and using the entire right-of-way within the context is important. It means meeting unique community needs in a flexible way in order to fit its physical and geographical setting. It strives to preserve scenic, aesthetic, historic and environmental resources, while maintaining safety and mobility. Hennepin County has a wide diversity of land uses and communities with high density urban, growing suburbs and rural farm areas. Because of this diversity, the county’s implementation of Complete and Green Streets will look different depending on location within the county.
Modal priority framework
In alignment with the county’s transportation vision, goals and initiatives, context sensitivity, and community priorities, we have established a modal priority framework to guide decisions along the county’s transportation network. The approach for this framework is underpinned in county and community values. The tiers of transportation modes, shown right, illustrate the priority of travel mode throughout the county. This framework is a starting place for an iterative project planning and design development process. Key elements of safety, accessibility, green infrastructure, engagement, and context sensitivity guide in developing a solution that best meets the needs of the community.
Policy application
When considering Complete and Green Streets application, it is important to consider the project scope and setting.
Project types and opportunities to make changes
The county plans and implements a wide range of transportation related projects each year to maintain and preserve our system, ranging from pavement preservation to full roadway reconstruction. Pavement preservation and rehabilitation projects are typically smaller-scale projects that may provide a strategic opportunity to improve accessibility, safety and multimodal facilities along our roadways. Full reconstruction projects are larger-scale efforts that create opportunity to work with the community and project partners to re-envision the corridor, providing more significant system changes. Corridor improvement projects may also be opportunities to enhance, protect and restore adjacent natural resource features, such as wetlands, as well as meet stormwater requirements.
Settings and impact on the natural environment
In applying the Complete and Green Streets Policy, the county fully considers the character of the project area and corridor, the values of the community, and the needs of all users. Designs are context-sensitive and will not look the same in all environments, communities, or development scenarios. Forestry staff will be engaged during the planning, specification development and implementation stages for projects that have the potential to create opportunity or cause impacts to existing trees to develop tree preservation, protection and replacement strategies.
Guiding principles
Guiding principles were developed to implement Complete and Green Streets Policy considerations. The principles reflect best roadway design practices and county planning priorities and initiatives, and will help the county achieve its goals related to disparity reduction, climate action, and safety.
The following Complete and Green Streets guiding principles will influence the planning, design, implementation and maintenance processes for all transportation projects. Provided are example policy considerations to show how these principles can be considered and applied.
Performance measures
Performance measures will be used to track and monitor progress in meeting the goals of the Complete and Green Streets Policy. Staff will track and report on key performance metrics annually through a dashboard to measure ongoing progress.
Basis of design
Throughout the project development process, local, state and national guidance are used, including emerging best practices in urban street design, Safe System Approach, and Complete and Green Streets.
Exceptions
Complete and Green Streets will be implemented as part of roadway design based on the project context and established modal priority framework. The following conditions may affect the project design elements:
topographic, environmental, historic, or natural resource constraints;
risks that cannot be overcome through design;
construction and/or maintenance costs relative to the total project cost; and/or
city council and/or community support
Regulatory requirements
Successful implementation of Complete and Green Streets will require Hennepin County to abide by the regulatory requirements of agency partners. County staff will work with partner agencies to review regulatory requirements and seek variances where needed to account for changes in practices, technology, etc. to achieve goals.
Many features within the right-of-way need to follow various requirements to receive associated funding and/or permits. This includes, but is not limited to, items such as sidewalk/trail, lane, boulevard and median widths, clear zones and stormwater treatment.
Maintenance
Successful policy implementation will be impacted by ongoing operations and maintenance of these assets. Cooperative agreements between the county and our agency partners will define who will own and maintain assets within the county’s right-of-way. Cooperative agreements will also include agency roles, responsibilities, funding commitment and maintenance requirements to provide year-round service for all Complete and Green Streets elements.
Minn. Stat. § 174.01 Creation; policy
Effective 7/01/2010 – Through 7/01/2024
Subdivision 1.Department created.
In order to provide an integrated transportation system of aeronautics, highways, motor carriers, ports, public transit, railroads, and pipelines, and including facilities for walking and bicycling, a Department of Transportation is created. The department is the principal agency of the state for development, implementation, administration, consolidation, and coordination of state transportation policies, plans, and programs.
Subd. 2.Transportation goals.
The goals of the state transportation system are as follows:
(1) to minimize fatalities and injuries for transportation users throughout the state;
(2) to provide multimodal and intermodal transportation facilities and services to increase access for all persons and businesses and to ensure economic well-being and quality of life without undue burden placed on any community;
(3) to provide a reasonable travel time for commuters;
(4) to enhance economic development and provide for the economical, efficient, and safe movement of goods to and from markets by rail, highway, and waterway;
(5) to encourage tourism by providing appropriate transportation to Minnesota facilities designed to attract tourists and to enhance the appeal, through transportation investments, of tourist destinations across the state;
(6) to provide transit services to all counties in the state to meet the needs of transit users;
(7) to promote accountability through systematic management of system performance and productivity through the utilization of technological advancements;
(8) to maximize the long-term benefits received for each state transportation investment;
(9) to provide for and prioritize funding of transportation investments that ensures that the state’s transportation infrastructure is maintained in a state of good repair;
(10) to ensure that the planning and implementation of all modes of transportation are consistent with the environmental and energy goals of the state;
(11) to promote and increase the use of high-occupancy vehicles and low-emission vehicles;
(12) to provide an air transportation system sufficient to encourage economic growth and allow all regions of the state the ability to participate in the global economy;
(13) to increase use of transit as a percentage of all trips statewide by giving highest priority to the transportation modes with the greatest people-moving capacity and lowest long-term economic and environmental cost;
(14) to promote and increase bicycling and walking as a percentage of all trips as energy-efficient, nonpolluting, and healthy forms of transportation;
(15) to reduce greenhouse gas emissions from the state’s transportation sector; and
(16) to accomplish these goals with minimal impact on the environment.
Minn. Stat. § 174.75. Complete Streets
Effective: 7/01/2024 – Through: 7/01/2024
Subdivision 1. Definitions. (a) For purposes of this section, the following terms have the meanings given.
(b) “Complete streets” is the planning, scoping, design, implementation, operation, and maintenance of roads in order to reasonably address the safety and accessibility needs of users of all ages and abilities. Complete streets considers the needs of motorists, pedestrians, transit users and vehicles, bicyclists, and commercial and emergency vehicles moving along and across roads, intersections, and crossings in a manner that is sensitive to the local context and recognizes that the needs vary in urban, suburban, and rural settings.
(c) “Vulnerable road user” has the meaning given in section 169.011, subdivision 92b.
Subd. 2. Implementation. (a) The commissioner must implement a complete streets policy after consultation with stakeholders, state and regional agencies, local governments, and road authorities. The commissioner, after such consultation, must address relevant protocols, guidance, standards, requirements, and training.
(b) The complete streets policy must include but is not limited to:
(1) integration of related principles of context-sensitive solutions;
(2) integration throughout the project development process;
(3) methods to evaluate inclusion of active transportation facilities in a project, which may include but are not limited to sidewalks, crosswalk markings, pedestrian accessibility, and bikeways; and
(4) consideration of consultation with other road authorities regarding existing and planned active transportation network connections.
Subd. 2a. Implementation guidance. The commissioner must maintain guidance that accompanies the complete streets policy under this section. The guidance must include sections on:
(1) an analysis framework that provides for:
(i) identification of characteristics of a project;
(ii) highway system categorization based on context, including population density, land use, density and scale of surrounding development, volume of highway use, and the nature and extent of active transportation; and
(iii) relative emphasis for different road system users in each of the categories under item (ii) in a manner that supports safety and mobility of vulnerable road users, motorcyclists or other operators of two- or three-wheeled vehicles, and public transit users; and
(2) an analysis of speed limit reductions and associated roadway design modifications to support safety and mobility in active transportation.
Subd. 3. Report. The commissioner shall report on the implementation of the complete streets policy in the agency’s biennial budget submission under section 174.02.
Subd. 4. Local road authorities. Local road authorities are encouraged, but not required, to create and adopt complete streets policies for their roads that reflect local context and goals. Nothing in this section may be construed to prohibit a local road authority from adopting a complete streets policy that incorporates or exceeds statutory complete streets principles.
Subd. 5. Variances from engineering standards. (a) When evaluating a request for a variance from the engineering standards for state-aid projects under chapter 162 in which the variance request is related to complete streets, the commissioner shall consider the latest edition of:
(1) A Policy on Geometric Design of Highways and Streets, from the American Association of State Highway and Transportation Officials; and
(2) for projects in urban areas, the Context Sensitive Solutions in Designing Major Urban Thoroughfares for Walkable Communities, from the Institute of Transportation Engineers.
(b) If the commissioner denies a variance request related to complete streets, the commissioner shall provide written reasons for the denial to the political subdivision that submitted the request.
Minneapolis Complete Streets Policy
Effective: 12/14/2021 – Through: 7/31/2023
The City of Minneapolis is committed to building a complete and integrated public right-of-way to ensure that everyone can travel safely and comfortably along and across a street regardless of whether they are walking, rolling, biking, taking transit, or driving. In 2016 the City of Minneapolis Complete Streets Policy was created to inform decision-making throughout all phases of transportation projects and initiatives. Several changes in the modal landscape have occurred in the years since, and the City has completed work on other relevant planning documents and policies as well, which are reflected in this update. The overarching policy purpose is the establishment of a modal priority framework that prioritizes public modal use in the following order:
- walking and rolling;
- biking, taking micromobility, and transit;
- driving cars, trucks, and providing access for smaller freight vehicles; and
- operating large freight vehicles,
- Green stormwater infrastructure is incorporated into projects per Chapter 54 of City ordinances as determined through design.
- Purpose and Vision
In the 20th century, transportation planning and infrastructure investments in Minneapolis – as in most US cities – became skewed towards providing more efficient movement for travel of cars and trucks. Minneapolis is committed to rebalancing its transportation network by clearly prioritizing walking, rolling, biking, and taking transit, over cars and trucks or providing access for freight vehicles. This approach is consistent with – and builds on – guidance that Minneapolis has already established in Minneapolis 2040 and the Transportation Action Plan.
Complete Streets are streets for everyone. They are designed and operated to prioritize safety, comfort, and access to destinations for all people who use the street, especially people who have experienced systemic underinvestment or whose needs have not been met through a traditional transportation approach, including older adults, people living with disabilities, people who cannot afford or do not have access to a car, and Black, Indigenous, and People of Color (BIPOC) communities. Complete Streets make it easy to cross the street, walk to shops, jobs, and schools, bicycle to work, and move actively with assistive devices. They allow buses to run on time and make it safe for people to walk or move actively to and from transit stations. There is no singular design prescription for Complete Streets; each one is unique and responds to its community context.
By adopting this Complete Streets Policy the City is committing to routinely design and operate the entire right of way to prioritize safer slower speeds for all people who use the road, over high speeds for motor vehicles. This means that every transportation project will make the street network better and safer for people walking, biking, riding transit, moving actively with assistive devices and driving, making Minneapolis a better place to live.
By implementing this Complete Streets Policy:
- Transportation in Minneapolis will happen on a well-maintained network that is complete, comfortable, integrated, efficient, and safer.
- Safety will be improved through coordination with the Vision Zero policy, and improving conditions and outcomes for those most likely to be the victim of transportation-related crashes;
- Transportation-related decisions will align with Minneapolis 2040, which intends to: “support a multimodal network that prioritizes walking, rolling, biking and transit. The policies are intended to achieve outcomes that increase equity in our transportation system, address climate change and reduce carbon emissions, improve human health through improved air quality and increases in active travel, and enable the movement of people, goods, and services across the city.”;
- The City will advance its goal of having 3 out of every 5 trips taken by walking, biking, or transit by 2030, as adopted in the Transportation Action Plan;
- The health of Minneapolis residents, workers, and visitors will be improved through walking, rolling, biking and micromobility;
- The environment, in terms of local greenhouse gas emission reduction, water quality and climate change, will be positively impacted by the City’s transportation-related decision-making;
- Street design will support the local economy and attract and retain businesses through the provision of safer, efficient transportation options and vibrant public spaces;
- City streets and sidewalks – our largest public space – will foster livable, walkable, bicycle-friendly, green neighborhoods by including healthy trees, plants, permeable surfaces, and design features that help define the character of a street while providing added benefits of shade, summer cooling, reduced energy consumption, and improved water quality;
- Minneapolis will create an integrated transportation network that provides all residents access to employment, education, and other needs for daily living, regardless of their age, access to, or ability to operate a car or truck; and,
- The City will ensure private development contributes to the objective of this policy.
- Policy Framework
Several City initiatives have changed the transportation planning and programming process since the adoption of the original Complete Streets Policy in 2016.
Important highlights include:
- In 2017 the City committed to Vision Zero, eliminating fatalities and serious injuries on City streets by 2027.
- A climate emergency was declared by the City Council in 2019 in response to the continued threat of climate change on city residents, businesses, systems, and infrastructure. The impacts of climate change remain a global concern with local impacts. Weather events have become less regular and have increased in severity. This has changed the impacts on the stormwater infrastructure and snow management needs.
- The Vision Zero Action Plan was first adopted in 2019 which set out specific activities to improve safety within three years, with updates on a regular basis.
- In 2019 the City adopted Minneapolis 2040, a comprehensive plan for growth and development which included transportation as a key element in achieving long-range goals.
- Racism was declared a public health emergency in mid-2020 following the death of George Floyd on a Minneapolis street. Racial injustice is experienced by residents of and visitors to Minneapolis while using public spaces, including the right of way.
- In late 2020 the City adopted the Transportation Action Plan which establishes a ten-year vision for the City to implement changes across all modes and transportation networks.
These policy statements and documents, along with the Complete Streets Policy, work together and reinforce complementary goals. Together, they advance the priorities set forth on how the right of way should be used.
Public right of way, in addition to serving a transportation role, is the largest public space in the City, comprising 22% of the land. To truly serve the highest-priority modes and reach the City’s mode shift goal of 3 of 5 trips taken by walking, rolling, biking or transit by 2030, streets must be vital, healthy places, supporting safe travel by all modes, and include healthy trees, plants, permeable surfaces, public art, and other design features. These elements help define the character of a street, provide shade and cooling, reduce energy consumption, absorb and cleanse stormwater runoff, and support car and bicycle sharing, Because of the potential for these improvements to result in positive outcomes for street users, it is most important to implement these elements along busier streets with higher density land uses, identified as Urban Neighborhood Connectors, Mixed Use Community Connectors, Mixed Use Commercial Connectors, Mixed Use Regional Connectors, and Downtown Core in the Street Design Guide.
The City establishes a modal priority framework that prioritizes people as they walk, roll, bicycle, and take transit over driving, deliveries, and parking. The modal priority framework will inform City transportation related decisionmaking. Minneapolis offers modal options through networks of interconnected routes, but there will be City streets that do not have specific accommodations for all modes, e.g., car-free streets, trails, interstate routes that prohibit walking and bicycling, streets without transit routes, or streets without dedicated bicycle facilities. The right of way is also needed for other uses than just transportation, such as stormwater management, snow storage, and community space.
Although not identified specifically, emergency service providers are unique users of the transportation system and require special consideration to allow for reasonable and efficient access to destinations in all parts of the city. Similarly, the movement of commercial goods and services will continue to be a priority for the City, with an understanding that larger vehicles may present challenges within constrained urban environments.
This modal priority framework is established for the following reasons:
- To allocate space across modes and rebalance the network,
- To significantly reduce space for cars as key to making walking, biking, and transit competitive and attractive options.
- All trips begin or end with walking (with or without mobility device), regardless of the primary mode(s) of travel.
- Each icon on the graphic represents the mode and any supportive features that accommodate their uses; e.g. the car graphic is inclusive of parked or traveling vehicles with any number of passengers. Similarly, bicycle and scooters are inclusive of parking for bicycles and scooters.
- Transit extends the range of travel for people when they walk, roll or bicycle, provides greater efficiencies and operational benefits than cars and trucks, and is accessible to those rolling or unable to, bike, or drive.
- Bicycling and using micromobility options extends the range of higher-speed non-motorized travel, while serving commuting, delivery, social, and other purposes.
- Micromobility is a relatively new mode on city streets and includes various human-scaled vehicles – like bicycles and scooters, which are typically shared and can be electric or humanpowered. Under various laws and ordinances these devices are treated similarly to bicycles, and therefore are given the same level of priority as bicycles in this framework.
- Safety of the most vulnerable street users – those walking, rolling, and biking — must be the highest priority, because they are the most at risk, as demonstrated through the Vision Zero reports and action plan.
- The priority modes – those walking, rolling, biking, and taking transit — have an important set of benefits that car and truck travel lacks, including health, the environment, land use patterns, economic development, and congestion reduction.
- Transportation investments influence travel choices, such that greater investment in high-quality pedestrian, bicycle, and transit facilities facilitate less reliance upon cars and trucks.
- The policy will enhance the safety, convenience, comfort, and efficiency of travel for people of all ages and abilities.
- The City’s highest priority modes have historically encountered underinvestment and rebalancing our transportation networks necessitates addressing the needs of those users.
- Car-centric priorities and investments incentivize greater car usage, accelerate congestion, elevate parking demand, and increase pollution.
When interpreting the modal hierarchy, it is important to note:
- Placing multiple modes on the same tier does not indicate an “either/or” approach. Each mode on a tier is equally valued.
- The range of needs and required elements that demand space along our City streets means that in some cases not everything can be accommodated within the constrained right of way. As the City implements projects it will prioritize the allocation of space for walking, rolling, biking, and transit.
- The movement of goods is an important component of any urban environment. Freight vehicles are critical to the city’s economy and there are designated corridors where the street designs ensure proper accommodation for these trucks. Large freight vehicles are often accommodated operationally through special permits, coordination with the hosts of special events, and other tools. The Street Design Guide has more detail of the specifications for streets that carry more large freight traffic.
- There has been a significant increase in smaller vehicles delivering freight and individual pick ups and drop offs becoming more frequent, putting it on the same tier as car and truck traffic.
- Green stormwater infrastructure (GSI) practices are essential to managing stormwater in a way that is efficient and effective while facilitating the movement of people and goods. Not all GSI tools are above ground but they are a necessarily component of the right of way. Depending on the scope of the project, GSI may or may not be incorporated. Chapter 54 of the City’s ordinances provides detailed guidance on when GSI is required for various types of projects.
- Implementation
City transportation-related decisions will follow the Complete Streets Policy. This includes all types and phases of projects, including programming, planning, design, construction, operation and maintenance. Implementation of Complete Streets will encompass all elements within the public right of way, including landscaping, transit shelters, lighting, signs, traffic lights, bikeways, parking, parking meters, bicycle parking, striping, green stormwater infrastructure, furniture, and more. The process by which the Complete Streets Policy is applied will be scaled appropriately for each individual project or initiative, including private developments that influence the public right of way. The Complete Streets project checklist is used to document project-level decisions and implementation of the policy and should accompany project layout documentation through the Council process.
Individual routine maintenance activities (including but not limited to sweeping, mowing, pothole repair, winter maintenance for sidewalks and bikeways, sign replacement, etc.) must reflect the Complete Streets Policy’s modal priority framework but will not be required to go through a Complete Streets checklist. However, the overall planning for such activities will reflect the City’s modal priority framework that prioritizes people as they walk, bicycle, and take transit.
The City will continue to engage partner agencies, schools, businesses, neighborhood associations, and developers in a cooperative manner throughout implementation of all infrastructure projects and plans. Application of the policy shall apply to all public and private projects and initiatives that interact with and impact the public right of way. Any extraordinary or unusual site conditions will be taken into account during the design stage, allowing the creation of a complete street including streets with environmental or operational constraints. At times, the range of needs and planned elements that demand space along City streets may exceed the available right of way, in which case it may make meeting ideal design guidelines articulated in the Street Design Guide challenging; more than one alternative may be developed to illustrate the opportunities and limitations of the designs. In the case more than one design is brought forth, all designs will follow the Complete Streets Policy. The checklist will document the compromises or tradeoffs that have been considered as part of project development. Public Works will share the Complete Streets checklist for each project with the public, including advisory committees, and identify the compromises, trade-offs and project-level decisions considered as part of project development.
Partner Agencies
Within the city boundary 91% of the streets are managed by the City with the remaining 9% managed by other entities with different policies and priorities. The City will continue to work with partners at Hennepin County, the Minnesota Department of Transportation, the Minneapolis Park and Recreation Board, and the University of Minnesota to incorporate elements of this policy to streets within its borders. While final responsibility and determination for design decisions for a particular street is held by the underlying jurisdictional owner, the design process is collaborative between the overlapping jurisdictions. We work with our partners to reach design and operational decisions that reflect our values and goals while recognizing their underlying authority, values, and goals; this policy will continue to inform our approach to those conversations.
Programming
The City’s long-range Capital Improvement Program will be informed by the 20 Year Streets Funding Plan criteria and process. This includes prioritizing projects that will significantly improve the pedestrian, bicycle, and transit networks.
Planning
The planning phase consists primarily of coordination amongst City staff and external agencies. The Complete Streets checklist provides City staff with a tool to document activities and decision-making from planning through final design.
The City incorporates a context-based approach that will be informed by the modal priority framework. Designs will be based upon project-specific objectives and context sensitive design solutions supported by the modal priority, street type and place types, documented modal needs, multimodal metrics, issues, opportunities, functionality, environmental or social factors, right of way impacts, and input from stakeholders and the community. Each project is developed with an understanding of mitigating factors and operational constraints presented by the surrounding area. Additional resources can be found in the Street Design Guide.
This work will include review of relevant adopted City plans and seek to provide a transportation system that offers people numerous modal options through networks of interconnected routes within and through the city and continue to seek opportunities to address and/or eliminate gaps, barriers, or connectivity in the transportation networks.
During the planning phase City staff will work with other City departments, external agencies, City advisory committees, and elected officials as necessary to identify an equitable engagement and outreach approach in a manner that is scaled appropriately and defines specific goals. The City will continue to explore new and innovative public engagement approaches that promote greater engagement from stakeholders. A special focus will be on the engagements needs of underrepresented communities who may not respond to traditional engagement methods.
Design
The design of the public right of way will follow recognized design standards, best practices and guidelines to achieve the vision of Complete Streets, including the Street Design Guide, NACTO Urban Street Design Guide, AASHTO, ITE, Municipal State Aid Route Standards, and, MnDOT Local State-Aid Route Standards. The City will continue to explore flexible and innovative designs and continue to evaluate the latest design standards and innovative concepts, seeking guidance from established best practices. Where standards established by other units of government, such as MnDOT Local State-Aid Route Standards, conflict with the City’s Complete Streets Policy, the City will seek design exceptions and variances from jurisdictional partners as applicable. The City will continue to examine existing standards and work to influence established standards to be more in alignment with the City’s Complete Streets vision. Level of service is not a measure of success on our streets but may be evaluated as required by project partners or funding sources.
Design of the public right of way will be informed and guided by the City’s street types, which are assigned to all streets in Minneapolis except freeways. The City supports opportunities to incorporate sustainable alternatives and placemaking elements within the public right of way, which may include urban landscaping, green spaces, public art, or stormwater management elements. When designing a street, the City will consider and evaluate metrics for all modes within the right of way while prioritizing walking, rolling, biking and taking transit.
Construction
Sidewalks and bicycle lanes are often impacted by construction, utility activities and development. There are obstructions, both planned and unplanned, that put non-motorized users into general traffic lanes. Depending on the confidence of the user, this experience ranges from acceptable but inconvenient, to unacceptable, to unsafe. To preserve a network where people of all ages and abilities can safely use our streets, we prioritize people walking, rolling, biking, and rolling.
Impacts to pedestrians, bicyclists and transit users will be limited to the extent possible during construction. Safe, convenient, and connected detours will be established for people as they walk, take transit, and bicycle when those networks are temporarily interrupted by construction work. Construction will impact trees and green space as little as possible, to preserve and protect these important elements. The City will work with its partners to continue to explore innovative construction methods to increase the safety, convenience, and utility of pedestrian, bicycle and transit facilities.
Operation
The operation of the public right of way is a significant opportunity to implement the City’s modal priority framework that prioritizes people as they walk, bicycle, and take transit. Ongoing monitoring and evaluation of the operation of the public right of way should support safe, comfortable, and convenient travel for people that choose to walk, bicycle, take transit, or drive a vehicle.
From time to time a street may be closed temporarily to car and truck traffic, to accommodate community events or activities, such as Open Streets, which support the implementation the City’s Complete Streets vision. The City will work with residents to accommodate events that build community and improve the pedestrian and bicycle user-experience (e.g., National Night Out, paint-the-pavement projects, etc.).
Traffic analysis and measurement tools will continue to be utilized by staff to assess potential impacts to the street network. The City acknowledges that there may be some increase in travel delay in order to advance its goals through the Complete Streets Policy, Vision Zero commitment, and other guiding policies and plans.
Maintenance
The modal priorities of the Complete Streets Policy will be used when planning, prioritizing, and budgeting maintenance activities. These activities include, but are not limited to snow and ice control, sweeping and cleaning, pavement repair, pavement marking and signing, etc. Minneapolis has a goal of year-round walking and bicycling as accessible and convenient options for its residents and visitors. Public Works’ goal is to obtain more data to identify and understand issues, and consider actions to optimize winter access across all modes, including a higher rate of compliance with the sidewalk shoveling ordinance citywide. Through the Transportation Action Plan the City is specifically committed to explore various methods of sidewalk and bikeway maintenance.
Minnesota DOT Complete Streets Policy OE004
Effective 2/22/2023 – Through 7/01/2024
Responsible Senior Officer: Deputy Commissioner/Chief Engineer
Policy Owner: Director – Office of Sustainability and Public Health
Policy Contact: Transportation and Public Health Planning Director, Office of Sustainability and Public Health
Policy statement
The Minnesota Department of Transportation (MnDOT) must follow a Complete Streets approach in all phases of planning, scoping, project development, construction, operations, permitting, and maintenance activities.
Reason for policy
This policy addresses statutory responsibilities to implement a Complete Streets policy, support the goals of the transportation system, and advance agency priorities.
Comply with Minnesota Statutes §174.75 to implement a Complete Streets policy that addresses “relevant protocols, guidance, standards, requirements, and training, and shall integrate related principles of context-sensitive solutions.”
Support transportation system goals in Minnesota Statutes §174.01, specifically:
minimize fatalities and injuries for transportation users throughout the state;
provide multimodal and intermodal transportation facilities and services to increase access for all persons and businesses and to ensure economic well-being and quality of life without undue burden placed on any community;
ensure that the planning and implementation of all modes of transportation are consistent with the environmental and energy goals of the state;
increase use of transit as a percentage of all trips statewide; and
promote and increase bicycling and walking as a percentage of all trips.
Align the MnDOT mission, Minnesota GO Vision, Statewide Multimodal Transportation Plan and MnDOT Strategic Plan.
Support related policies, including the MnDOT Americans with Disabilities Act (ADA) Transition Plan specific to Title II of the ADA, Cost Participation, MN Tribal Nations, Performance-Based Practical Design, and Public Engagement.
Advance related priorities, including the Advancing Transportation Equity Initiative, Context Sensitive Solutions, Facility Design Guide, Land Use Context Types, Transportation Project Development Process, Sustainability and Public Health, and Toward Zero Deaths.
Applicability
Compliance is required by all MnDOT employees and MnDOT partners working on trunk highway projects, such as local agency representatives, consultants, and contractors. This includes planning, scoping, project development, construction, operations, permitting, and maintenance for all non-exempt projects.
Key stakeholders with responsibilities under this policy include:
Project Sponsors (e.g., District Engineers, Assistant District Engineers)
Planners
Project Managers
District and Office/Modal Public Engagement and Communications Professionals
Office of Project Management and Technical Support
Office of Transportation System Management
Modal Offices
Traffic Engineers, Landscape Architects, and Designers
Resident Construction Engineers and Project Engineers
Maintenance Engineers, Maintenance Superintendents and Maintenance Supervisors
Director – Office of Sustainability and Public Health (Policy Owner)
Definitions
Complete Streets
Minnesota Statutes §174.75 defines Complete Streets as “the planning, scoping, design, implementation, operation, and maintenance of roads in order to reasonably address the safety and accessibility needs of people of all ages and abilities using the transportation system. Complete streets considers the needs of motorists, pedestrians, transit users and vehicles, bicyclists, and commercial and emergency vehicles moving along and across roads, intersections, and crossings in a manner that is sensitive to local context and recognizes that the needs vary in urban, suburban, and rural settings.”
Project Sponsor
The individual who supports the project manager by keeping projects aligned with business goals, communicating with stakeholder groups and senior management, gaining commitment for the project from key stakeholders, arranging resources for the project, and helping problem solve. The project sponsor is often the district engineer or assistant district engineer.
User group
A category of transportation users or modes such as people walking, bicycling, driving, or using transit; transit operators; commercial trucks drivers; etc.
Vulnerable users
Road users who are most at risk for serious injury or death when involved in a motor-vehicle related collision, including but not limited to people bicycling and pedestrians of all ages, types, and abilities.
Responsibilities
Project Sponsors (e.g., District Engineers, Assistant District Engineers)
Support opportunities to gather input from transportation stakeholders to advance transportation equity and identify user group needs. Consult MnDOT Public Engagement Policy.
Coordinate with Tribal Nations and support coordination per the MnDOT Tribal Nations Policy.
Apply priorities of modal plans and this policy when developing 10-Year Highway Capital Investment Plans (CHIP).
Review Complete Streets Project Reports at planning, project scoping, and 30% final design. Work with staff to reconcile policy noncompliance before approving.
Review annual Complete Streets performance measures. Work with the Policy Owner and other stakeholders to advance progress.
Planners
Use the MnDOT Complete Streets Handbook as a starting point to inform engagement and identify user needs during project planning.
Start Complete Streets Project Report during project planning and submit for Project Sponsor approval. Reconcile noncompliance issues. Note: this may be performed by the Project Manager/other at discretion of District leadership.
Coordinate with MnDOT communications and public engagement staff per the MnDOT Public Engagement Policy and Tribal Nations representatives per the MnDOT Tribal Nations Policy to engage transportation stakeholders to identify user group needs.
Identify opportunities to address the needs of all user groups when developing the 10-Year CHIP.
Coordinate with modal offices to align project planning with agency policies, plans, and priorities.
Project Managers
Use the Complete Streets Handbook as a starting point to inform project development and operations considerations during project scoping and 30% final design.
Update Complete Streets Project Reports at project scoping and 30% final design. Submit for Project Sponsor approval and work with Project Sponsor to reconcile any noncompliance issues.
Coordinate with MnDOT communications and public engagement staff per the MnDOT Public Engagement Policy and Tribal Nations representatives per the MnDOT Tribal Nations Policy to engage transportation stakeholders to identify user group needs.
Assess current and future needs of each user group in project scoping and design.
Quantify risks and opportunities of implementing complete streets when developing project budgets.
Coordinate with modal offices, landscape architects, and maintenance staff to align project programming, design, and operations with agency policies, plans, and priorities.
Remove barriers to network connectivity and crossings where users prohibited from using a roadway.
Coordinate with planners, landscape architects, maintenance staff, local jurisdictions, and transit providers to identify responsibilities for maintenance and snow removal on facilities such as sidewalks, shared use paths, crossings, bridges, underpasses, and transit stops and hubs.
District and Office/Modal Public Engagement and Communications Professionals
Engage transportation stakeholders throughout planning, project and modal program development, and delivery process to identify user group needs per MnDOT Public Engagement Policy.
Coordinate with Tribal Nations representatives per the MnDOT Tribal Nations Policy.
Engage with diverse communities who experience disparities and transportation and health barriers.
Office of Project Management and Technical Support
Provide technical assistance to support policy implementation that aligns with MnDOT technical guidance and policies, including, but not limited to, Facility Design Guide and Transportation Project Development Process.
Develop and provide training and technical assistance to MnDOT staff, local governments, Metropolitan Planning Organizations (MPOs), Regional Development Commissions (RDCs), and other agencies implementing Complete Streets.
Office of Transportation System Management
Incorporate Complete Streets indicators in performance decision-making and reporting.
Manage long range planning processes to identify investment levels for Complete Streets policy implementation.
Maintain guidance on incorporating Complete Streets in plans and planning studies.
Modal Offices
Identify system users, conditions, needs, and priorities.
Provide technical support to planners, project sponsors, project managers, and other staff to align investments with agency modal plans and supportive priorities.
Traffic Engineers, Landscape Architects, and Designers
Consider all user groups in project safety reviews, road safety audits, traffic modeling, intersection control evaluations, and early notification memo comments.
Coordinate with Tribal Nations representatives per the MnDOT Tribal Nations Policy.
Include speed outcomes, safety needs, and ease of use where vulnerable users are common, especially at intersections and in urban, suburban, and recreational environments. Consider design speed as a target speed rather than a maximum safe speed.
Identify Complete Streets opportunities on preservation projects, including low-cost or phased improvements.
Consider seasonal travel on, across, and adjacent to projects including ATVs, snowmobiles, scooters and other mobility equipment, equestrian and non-motorized trails, horse and buggy, and water access.
Look for opportunities to address or remove barriers to network connectivity and crossings where users are legally prohibited from using a roadway.
Resident Construction Engineers and Project Engineers
Coordinate with project managers and maintenance engineers to provide safe and accessible alternative routes for people walking and biking among other forms of travel when closing roads, bridges, shared use paths, or sidewalks. Coordinate with the Office of Freight and Commercial Vehicle Operations to ensure oversize/overweight permitted loads are appropriately detoured.
Coordinate with Tribal Nations representatives per the MnDOT Tribal Nations Policy.
Coordinate with landscape architects, planners, project managers, and stakeholders to understand and implement construction commitments made during planning and project development.
Clear any field changes that could affect modal functionality with the project manager and designer.
Maintenance Engineers, Maintenance Superintendents, and Maintenance Supervisors
Coordinate with project managers and maintenance engineers to provide safe and accessible alternative routes for people walking and biking among other forms of travel when closing roads, bridges, shared use paths, or sidewalks.
Coordinate with Tribal Nations representatives per the MnDOT Tribal Nations Policy.
Work with project managers, local jurisdictions, and transit providers to identify maintenance and snow removal responsibilities on facilities such as sidewalks, shared use paths, crossings, bridges, underpasses, and transit stops and hubs.
Collaborate with planners, project managers, landscape architects, and stakeholders to implement maintenance commitments.
Policy Owner (Director – Office of Sustainability and Public Health)
Collaborate with District and modal office staff to define Complete Streets best practices and coordinate Complete Streets activities that support implementation of the policy.
Coordinate with Tribal Nations representatives per the MnDOT Tribal Nations Policy.
Review the policy every two years, or sooner as necessary, to ensure the policy remains current.
Work with the Policy Coordinator to revise the policy and/or confirm its accuracy.
Ensure the Complete Streets Handbook and associated training remain current.
Communicate policy revisions, reviews, and retirements to stakeholders.
Develop and track performance measures that contribute to Complete Streets targets and provide annual reports to District leadership and Senior Leadership.
Provide Complete Streets updates to the public, stakeholders, and advocates, as requested.
Resources and related information
Forms
Complete Streets Project Report
Guidance
Complete Streets Handbook
Resources
Business Data Catalog (BDC) – accessible from employee Intranet
MnDOT’s Policy Website
History and updates
Adopted
November 12, 2013
Revised
First Revision: May 20, 2016
Second Revision: August 15, 2022 (Effective October 31, 2022)
Third Revision: February 22, 2023 (changed ownership)
Policy Review
This policy’s next scheduled review is due August 2024.
