US 2 in Floodwood Corridor Study and Preliminary Design

MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
I. Background Information and Contract Purpose
A. Project Background
The State and its local partners, including the City of Floodwood, are interested in reviewing the United States
(US) route 2 highway corridor in preparation for an upcoming resurfacing project (State Project (SP) 6906-20)
currently planned for 2031 in the Capital Highway Investment Plan (CHIP). The study area will include US 2 from
just east of Ash Street to east of Trunk Highway (TH) 73 in the City of Floodwood. In 2024, District 1 completed a
resurfacing project on two segments of US 2 both east and west of Floodwood city limits but did not address the
section of roadway in between that runs through Floodwood due to the many needs that could not be
adequately addressed given the scope and expedited schedule of the 2024 project. This corridor study will cover
the section of US 2 between the recently resurfaced sections of roadway. Findings from this planning study will
contribute to the resurfacing project planned for 2031.
The study will review crash history and evaluate safety improvements at key intersections, evaluate traffic data
and traffic calming measures, investigate improving bicycle, pedestrian and transit facilities and crossings
throughout the corridor, and facilitate discussions with stakeholders and the public. Due to the relatively wide
cross section of this section of US 2, the study will also evaluate the cross section for potential turning lane space
reallocation. The City of Floodwood has purchased 127.5 acres of land at the southwest end of the corridor and
is undergoing a Small Area Plan for the mixed-use development, including extending water, sewer, and roads.
This corridor study will coordinate with these planning efforts to evaluate transportation connections to US 2
and the new development.
This study includes evaluation of multiple public road intersections and private access points. There are several
concerns that have been identified within the planned study limits including: intersection geometry, speed
concerns, safe pedestrian crossing locations, access management.
The Burlington Northern Santa Fe (BNSF) railroad runs parallel to the US 2 corridor. Additionally, as an
Oversize/Overweight Superload Corridor, there is a relatively high heavy commercial annual average daily traffic
(HCAADT) rate (12-16%) on the US 2 corridor. This has an impact on operations of the THs in the vicinity. In
addition, US 2 acts as a barrier for the community since its route goes through town with key /destinations on
both sides of the highway. The community utilizes all modes of transportation to traverse the corridor with
certain intersections, such as 7th Avenue, having higher concentrations of pedestrian crossings. The US 2 corridor
is a recreational corridor with the Floodwood and Meadowlands snowmobile/Off-Highway Vehicle (OHV) trails
crossing the corridor in multiple locations.
This study aims to reduce speeds through the corridor, improve accessibility of pedestrian facilities, recommend
geometric improvements at access points, as well as identify freight use and active transportation connectivity
along the corridor. The study will address these issues through right-sized recommendations for various
segments of the corridor combined into one corridor improvement concept using the Federal Highway
Administration's (FHWA's) Safe System Approach.
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
B. Contract Purpose
The purpose of the US 2 corridor study is to:
1. Review crash history and traffic data and evaluate safety improvements and traffic calming measures
throughout the corridor.
2. Evaluate existing conditions of the corridor and identified intersections, including multimodal
(pedestrian, bicycle, transit) and trail connectivity, freight traffic use, and access management.
3. Evaluate future conditions that account for planned mixed-use development growth and any locally
anticipated development in Floodwood.
4. Facilitate discussion between local partners, stakeholders, and the public.
5. Based on findings, identify "right-sized" improvements for this corridor to be incorporated into scoping
for the State's programmed roadway improvement project, specifically including the following:
a. Identify recommended improvements at both intersections of US 2 and TH 73 and provide the
recommended geometry.
b. Identify cross section space reallocation and associated turn lane recommendations for the
corridor at both a preservation-level scope (scope level of planned project) and a
reconstruction-level scope (should additional funds be secured through local partners).
6. Provide a geometric layout for the urban area of Floodwood that incorporates the preferred cross-
section and addresses access management. The layout should address the high speed to low speed
transition areas.
All of which will provide a common vision and guidance for managing the corridor now and into the future. This
vision for the corridor is needed to identify and develop future improvements for the Study area both for the
planned roadway project and for potential additional improvements should external funding be secured.
C. Contract Tasks Overview & Logistics
Areas of Study include highway capacity and delay metrics, such as level of service (LOS) and travel time
reliability, at both intersections with TH 73, traffic and pedestrian/bicycle travel patterns, trail connectivity,
freight movements, future development, evaluation of opportunities to reduce the frequency and severity of
crashes.
To develop a shared vision for this corridor, a public engagement process will be part of the assessment to
gather input, educate, and gain support for improvements. The process must address the relationship and
balance of the many competing needs associated with the study area.
The final study report will help create a vision and prioritize improvements to ensure the corridor continues to
meet the needs of the transportation users and surrounding community into the future.
The study is proposed to begin as soon as possible and will need to be completed no later than June 30, 2027.
The study and contract will be managed and administered by the State. The study will be led by a Project
Management Team (PMT) which would include the Contractor and representatives from key State functional
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
groups, such as planning, traffic, project management/scoping, and public engagement. The PMT will meet
frequently to discuss issues, coordinate action items, and provide direction for the study.
The study will also be guided by a Technical Advisory Committee (TAC), including the Contractor, the State
Project Manager, and at least one Partner representing Saint Louis County and the City of Floodwood, and select
community organization representatives, such as Floodwood Service & Training and Arrowhead Transit. The TAC
will meet less frequently than the PMT and will serve as a coordination forum for all of the Partners involved
with the study. TAC meetings are anticipated to follow major project milestones (e.g., study introduction,
discuss alternatives, review alternatives, review corridor recommendations, study wrap-up).
For purposes of this Scope of Services document, the following definition of terms applies. The term Contract
Partners or Partners will be in reference to the City of Floodwood, Saint Louis County, and the State. The term
Stakeholders will be in reference to the additional public agencies, school district, the general public and
businesses immediately adjacent to US 2.
II. Work Tasks
Task 1.0 Project Management
A. Project Management Role
The Contractor will be required to provide high level project management skills for this contract. This will include
developing a schedule for the work activities included in this scope. The schedule will be updated and provided
to the State on a biweekly basis. The Contractor's responsibilities will place them in the project's leadership
position regarding the stakeholder communications and perceptions. The Contractor's Project Manager must
lead the project in a way that requires minimal guidance and oversight from the State's Project Manager. The
Contractor will schedule and facilitate a project kickoff meeting to confirm the basic project objectives, solidify a
work plan, and obtain consensus on the project requirements. This meeting will occur no later than 15 business
days after notice to proceed. The kick-off meeting will be held virtually. The Contractor and the PMT will have
monthly assessment update meetings. These PMT meetings will typically be 60 minutes in duration and will be
virtual. The Contractor and the TAC will have update meetings following major project milestones. These TAC
meetings will typically be 90 minutes in duration and will be hybrid (both in-person and virtual - the Contractor
will be expected to attend in-person). The Contractor and the State's Project Manager will have biweekly update
meetings to discuss scope, schedule, budget. These meetings will typically be 30 minutes in duration and will be
virtual.
B. Project Administration
The Contractor will perform general administration of the contract, operation of the contract details, and
communication of all project activities, progress, and findings to the State's Project Manager. The Contractor
will invoice all costs under this contract using the State's Source Type Codes 1010 (Project Management) for
work and expenses related to contract Administration, 1808 (Traffic Data/Analysis), 0054 (Public Engagement),
and 6244 (Corridor Planning) for all other costs. The Contractor will prepare invoices accompanied by:
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
1. A cover letter explaining the general status of the project, including at a minimum the work completed
to date, anticipated remaining efforts, and required schedule changes.
2. Progress report form
3. Supporting data for direct expenses
4. An updated project status report reflecting schedule activities identified by the State's project manager
The Contractor will store all deliverables in ProjectWise whether the file is incomplete, in draft form, or the final
deliverable. State will provide restricted access to a ProjectWise document center for use as the project file
transfer vehicle and repository.
C. Quality Management
A Contractor team member will be assigned the title of quality assurance (QA)/quality control (QC) manager and
have the responsibility of reviewing submittals, prior to submittal, to ensure compliance with the State's Quality
Management Process (QMP). The Contractor's QA/QC Manager will develop a project-specific QMP within the
first 10 workdays under contract. Components of the QMP must include the following project specific items: a
list of requirements, intent of the QMP, philosophy of the QMP, technical document review process, checking
procedures, QC verification and definitions.
D. Corridor Vision and Goals
The Contractor will initiate this task at project startup to develop goals for the corridor and use these as
framework to guide the study. The project team will prepare an initial draft with ideas at a high level. Following
input from the PMT and agency stakeholders, a draft vision and goals statement will be brought for public
discussion before being finalized. Document results in Corridor Vision and Goals Document including
relationship to Statewide Multimodal Transportation Plan (SMTP) objectives.
Task 2.0 Traffic Data Collection & Analysis
A. Data collection and analysis provided by the Contractor (in close coordination with the PMT)
1. Existing corridor and intersection designs and characteristics.
a. Asset condition
b. Known maintenance issues
c. Utilities scan
d. Inventory of freight designations, rail crossings, other freight facilities
e. Inventory of multimodal facilities including bicycle, pedestrian, transit, and OHVs throughout the
corridor
2. Current corridor:
a. Collect speed data on the US 2 corridor. Locations should include intersections with US 2 at Ash
Street, 7th Avenue, West Junction TH 73, East Junction TH 73. Aim to collect speed data by late
summer 2026. Assume up to 4 locations.
b. Traffic volumes (historical Annual Average Daily Traffic (AADT))
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
c. 24 hour turning movement counts (weekday counts at 7th Avenue and 9th Avenue, and both
weekday and weekend counts at West Junction TH 73 and East Junction TH 73). Use Streetlight
to identify the high volume periods prior to taking real-time counts. Turning movement counts
with separate bicycles, pedestrians, and heavy commercial counts. Aim to collect turning
movement counts by late summer 2026.
i. Traffic counts collected need to be for at least 24 hours so that they can be integrated
into the state's traffic monitoring program. Count data must not be collected during a
weather event that disrupts typical travel behavior, or if any incidents, work zones,
events, or detours are present within the study area.
ii. Turning movement counts must be broken down between vehicle categories including
passenger vehicle and single unit and combination unit heavy commercial. Original
count data files from the collection device will need to be delivered to the project
manager and the State Traffic Monitoring Program within 30 days of collection.
d. Volume/Capacity ratio to document roadway capacity and reliability needs.
e. The most current 5-year crash history along the assessment limits.
f. Crash performance for intersections and segments compared to statewide averages. This
includes summarizing crash rates, Fatal and Serious Injury Crash Rate (FAR) Index, critical crash
rates and critical FAR index. The crash rates will be for the most current 5-year period available.
Provide crash diagrams for each identified intersection and identify concerning crash patterns
based on this analysis. Identify all fatal and serious injury crashes within the assessment limits
for the most current 10-year period available. Identify all crashes involving vulnerable road users
and identify whether corridor is on the bicycle-pedestrian high injury network. Crash
information will be obtained from Crashmart and/or MnCAT2.
g. Site observations including a field walk to identify locations of substandard roadway geometrics,
visibility, signage, and other issues/concerns.
h. Pedestrian and bicycle counts. Use camera counts to collect pedestrian and bicycle volumes and
typical movements/trips corridor-wide. Use camera counts to inform a high-level origin-
destination study for pedestrians and bicyclists. Aim to collect pedestrian and bicycle counts by
late summer/early fall 2026.
The method for obtaining the data will be determined by the Contractor, based on efficiency and
approved by the State Project Manager. Observations will be made regarding regional and local traffic
patterns based on the data collected above.
3. Corridor Origin-Destination (O-D) Assessment
a. Contractor will obtain O-D information from StreetLight Data (www.streetlightdata.com) for
study segments.
b. Contractor will create an O-D matrix and graphical representation of existing travel pattern
scenarios of the motorists (freight vs. general occupancy vehicles) that use the US 2 study area,
with an emphasis on the inbound/outbound traffic on each of the four TH legs (US 2 and TH 73).
Specific information to study will be determined by the PMT.
c. Contractor will summarize data in easily consumable statements/bullet points for a public
audience.
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
4. Data collection to be performed at the below intersections/accesses within the study area:
a. US 2 and Ash Street
b. US 2 and County Road 30 (West 7th Avenue)
c. US 2 and County Road 832 (West 9th Avenue)
d. US 2 and TH 73 (Elm Street)
e. US 2 and TH 73
Contractor will develop a comprehensive access inventory as part of the evaluation and summarize in
tabular and graphical form. This includes identifying access location, access configuration (e.g.: full, tee,
right-in/right-out), type of access (public or private), access control measures (if any), type of usage
(truck or auto), cross-street function, and presence of turn lanes, as well as an analysis of compliance
with the State's Access Management Manual.
5. Demographic information. This should include identification of any transportation burdened population
to inform engagement needs.
6. Land Use
a. Contractor will prepare a map summarizing existing and future land uses
b. Review economic development goals associated with planned mixed-use development.
7. Multimodal Trails, Pathways, and Crossings
a. Contractor will review mapping and other pertinent information of existing and planned State,
County, and City trails within and adjacent to the corridor study area. Contractor will identify
potential connections throughout the US 2 corridor from existing trails and to existing park
facilities.
b. Contractor will review level of need and demand for pedestrian facilities, using the Priority Areas
for Walking Score (PAWS) map, and
c. Contractor will identify transit or micromobility options within the corridor.
d. Contractor will evaluate the existing facilities to determine if any improvements are justified to
improve non-motorized operations and safety
8. Environmental scan
a. Contractor will identify sites adjacent to the corridor with contaminated materials, historic and
cultural resources, Section 4f and 6f resources, threatened and endangered species, wetlands,
and water resources.
9. Prepare an existing conditions technical memorandum documenting the data collection methodology,
assumptions, data, and key findings. Memorandum will be presented to the PMT to obtain buy-in prior
to developing alternatives and conducting any analyses.
B. Data collection provided by others
The Contractor will be responsible for requesting and gathering the following data from project Partners.
1. State
a. The most recent District Safety Plan
b. District 1 Freight Plan
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
c. District 1 Bicycle Plan
2. Saint Louis County
a. Saint Louis County Comprehensive Land Use Plan (2019)
3. City of Floodwood
a. City of Floodwood Housing Study (2019)
b. Floodwood Development Small Area Plan (2025)
c. Floodwood Safe Routes to School Plan (2015)
d. Floodwood Safe Routes to School Plan (forthcoming, summer 2026)
e. Current/Future Land Use Map or Planned Development of Floodwood area.
After the data is collected, the Contractor will compile the data and provide summaries of data gathered into
presentation formats that can be used for public engagement events and the final assessment report. Formats
for data analysis and summary include, but are not limited to; MicroStation, Geographic Information System
(GIS) files, Microsoft PowerPoint, Google Earth KMZ files, or other as directed by the State Project Manager.
C. Data Analysis
Data Analysis will include collecting, developing, analyzing, and reporting in three primary groups, as follows:
1. Intersection Evaluations
a. Intersection Control Evaluations (ICE)
i. Both intersections of US 2 and TH 73 will require ICE evaluations. All other identified
intersections will be reviewed for improvements such as turn lanes and/or other
geometric improvements.
ii. Existing Intersection Review
iii. The District Safety Plan analysis and recommendations shall be summarized. The risk
factors associated with the intersections will be identified. If an intersection is not
included in the safety plans the Contractor shall undergo an analysis using similar
methodology to determine the risk factors at that location.
iv. The results of the existing analysis will provide a basis upon which to compare the
alternatives. These results will also be provided to the contract Partner for review and
comment before moving forward with evaluation of alternatives.
b. Intersection Alternatives
i. The Study will analyze up to three alternatives for the two TH 73 intersections to be
included in the corridor study report. Some of the possible alternatives to be analyzed
are:
1. "Do-Nothing" (existing side street stop) and "Do-Nothing" with geometric
modifications.
2. Roundabout
3. Alternative intersection designs, etc.
ii. The remaining public street and alley accesses should be reviewed with the following
being considered:
1. "Do-Nothing"
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
2. Access Closure
3. Geometric changes (reducing skew)
4. Right in/right out
5. Alternative intersection designs such as left turn lanes adjacent to a median
pedestrian refuge island
iii. The private accesses should be reviewed with the following being considered, based on
traffic analysis and qualitative analysis of vacant parcels, parcels with multiple accesses,
parcels with side street access:
1. "Do-Nothing"
2. Access Closure
3. Consolidation
4. Reducing width
5. Right in/right out
6. Relocating the access to the minor street
iv. The Contractor may suggest alternate intersections to analyze with the final decision
made by the State's Project Manager and PMT group.
c. Analysis of Alternatives
i. Concepts will be developed following Step 4: Potential Solutions from the State's
Corridor Planning Guidebook. Consideration will be given to the Safe Systems Approach,
applicable Transportation System Management Operations, and climate impact as part
of concept development.
After establishing a basic understanding of existing conditions, alternative traffic controls will be
reviewed at the intersections. This analysis will include the following:
ii. Crash analysis to determine impacts of the alternatives.
iii. Operational analysis of each alternative, including how each affects the other
intersections and traffic patterns. Possibility of access closures/combinations are to be
considered in the traffic analysis.
iv. Benefit/Cost (B/C) analysis for up to three alternatives for each intersection listed above
to be included in the corridor report. The B/C analysis should account for user delay and
crash reduction benefits. Standard procedures and values from State's Office of
Transportation System Management will be utilized. This is a proactive project and will
need to include language about how that relates to the B/C analysis.
v. The operational analyses will include the existing volumes, design year (assume 2032),
ten (2042) and twenty (2052) year after build during the A.M., Mid-day and P.M. peak
hours. Projected ten and twenty-year volumes will be established assuming an
appropriate annual traffic volume growth. Include calculation of existing and projected
vehicle miles traveled (VMT) by alternative.
vi. The growth factors utilized for the traffic analysis should be reviewed and approved by
the State's District Traffic Engineer.
d. Concept Drawings and Cost Estimates for Alternatives
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
i. Develop plan view schematic of up to three concept drawings at both US 2/TH 73
intersection profiles to be included as insets on the corridor roll plot, cross sections and
construction limits are not included. The private accesses will also need to have concept
drawings of the possible alternatives. Develop up to three typical section options for
preservation scope project. Additionally, a single roll plot will be developed with an
alignment and profile for the corridor, showing the impact of all intersection concepts
on the corridor. For the alternatives, the preferred concepts will be provided in Open
Roads Design (ORD) and portable document format (PDF) with aerial imagery as a
background. The Contractor will develop plan views along each typical section that are
generic and not site specific. The view will show traffic direction and dimensions.
Detailed drawings will not be required. Concept drawings accompanied by narrative
descriptions and/or graphical representations of the locations and typical sections are
adequate. This task will involve developing to-scale roadway concepts for the
alternatives in sufficient detail to assess traffic operations, corridor safety, overall
functionality, constructability, right-of-way needs, drainage, utilities, cost, and potential
environmental impacts.
ii. The concepts will show line work only but will be developed enough to determine
concept cost estimates based on State average bid prices from the latest year available.
For quantities not able to be defined, such as utility work, a percentage of cost will be
used. Contingency costs will also be added as a percentage of construction costs.
Contingency will be separated into unquantifiable items and risk. The concept cost
estimates and assumptions will be provided to State for review and comment before
being used in additional work on this project or in the draft document. Geometric
Design Support Unit (GDSU) over the shoulder reviews will be required during the
concept refinement period.
e. ICE Information - (for TH 73 intersections only)
i. Once the analyses have been completed and recommendations developed and
discussed the ICE information will be prepared for each intersection and provided in two
ICE reports (TH 73 intersections). These documents will follow the standard outline
developed by the State showing the detailed analyses for the intersections. Draft
documents will be submitted for review and comment. Appropriate changes will be
incorporated into the final documents. The State ICE Manual can be found at
http://www.dot.state.mn.us/trafficeng/safety/ice/2007_ICE_Manual.pdf
2. Access Management
The Contractor will be required to perform a review of State's current access management strategy to help
facilitate the discussion and make recommendations to effectively and safely manage access within the area
of study.
a. Contractor will conduct traffic analysis to determine the appropriate access locations based on
spacing recommendations and likely traffic control strategies. Contractor will identify this as the
preferred "access template". The preferred access template will then be overlaid onto the
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MnDOT Contract No. 1063027
Exhibit A: Specifications, Duties, and Scope of Work
current accesses (e.g. base conditions) to identify inconsistencies with the access spacing
objectives. Each inconsistency will be enumerated by type (e.g. public, private commercial, or
private residential) and classified by replacement difficulty levels. This could reduce the number
of intersections within the area of study.
b. The access analysis process will look closely at traffic and safety issues associated with each
access point and explore the feasibility of closures, cooperative access sharing, right-in/right-
out, or three-quarter movements (where appropriate), internal circulation to eliminate access,
changes to land use, and relocating access to an alternate location (e.g.: side streets).
c. The access management analysis will take into consideration future growth, including access to
US 2 at 11th Avenue from proposed mixed-use development, and will discuss and make
recommendations for frontage and backage roads, if applicable.
3. Corridor Management and Preliminary Level 1 Geometric Layout
Using a compilation of findings from the corridor vision, goal statements, existing and future conditions
analyses, and issues identification process, a range of right-sized multi-modal improvements should be
developed. Projects should be defined sufficiently for the public agencies to understand the general scale
and scope and to assess planning-level impacts and costs.
a. Corridor Alternatives Development. Contractor will develop 1 corridor improvement concept to
be developed into a preliminary geometric layout that combines right-sized recommendations
for various sections (e.g., cross section space reallocation, TH 73 intersection areas, speed
transition areas of US 2 from rural to urban sections), including their transitions, based upon the
corridor vision and identified issues. In the early stages of concept development numerous
alternatives may be reviewed. The following project elements will be taken into consideration.
i. Design Speed (Should consider a target speed within the Floodwood urban area)
ii. Lane Width
iii. Intersections
iv. Shoulder Width
v. Roadway Alignment
vi. Road Diet
vii. Number of Lanes
b. Contractor will have at least two District review meetings and at least two GDSU over the
shoulder review meetings during the concept refinement period. The first meeting to review
alternatives, and the second meeting to review recommendations.
c. Contractor will take all project elements into account when setting roadway alignments.
Alignments will be set along US 2 to fit the existing corridor and meet the agreed upon design
speed.
d. Corridor Alternatives Analysis. After concept alternatives have been identified and refined, the
Contractor will work with the State to establish evaluation criteria that incorporate the corridor
vision, established goals and earlier public and stakeholder input on issues and needs. It is
anticipated that environmental, social, and transportation performance factors, such as wetland
impacts, travel delay, multimodal access and mobility, access management, asset condition,
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