PV132 1st Ave S Reconstruction (Franklin Ave to Lake St) and Bridge over Greenway

Project Details:

Project Start Date: 4/15/2024

Ongoing Program: Y/N

Submitting Department: Public Works

Contact Person: Abdullahi Abdulle

Level of Need: Significant

Estimated Project Completion Date: 11/15/2024

Department Priority: 39 of 62

Contact Phone Number: (612) 673-5307

Website: TBD

Project Location:

Address: 1st Ave S

City Sector: Southwest

Affected Neighborhoods: Whittier

Affected Wards: 10

Lake St E to Franklin Ave S

Project Description:

The proposed project will reconstruct approximately 0.98 miles of 1st Ave S between Franklin Ave E and Lake St E. Currently, the corridor includes sidewalk and boulevard on both sides of the street, a northbound bike lane for most of the corridor, two traffic lanes, and one parking lane. The street currently has two-way traffic operation between Franklin Ave E and 28th St E and operates one-way northbound south of 28th St E. However, the 2021 construction of the Whittier-Lyndale protected bikeway project will convert traffic operations back to one-way northbound travel between Franklin Ave E and Lake St E, to facilitate the upgrade of the northbound bike lane to a two-way protected bikeway between 28th St E and 15th St E. The area along the project corridor is residential and abutting properties are predominantly multi-family residential and some institutional land uses. The project is a reconstruction project involving the entire right-of-way and will include new sidewalks, ADA pedestrian ramps, bicycle accommodations, pavement, curb and gutter, and utility improvements. The project will also include signal improvements, new signage, and new pavement markings, as needed. This project includes the reconstruction of the 1st Ave S Bridge over the Midtown Greenway (BR106) The existing bridge is a three span cast-in-place concrete tee-beam structure built in 1914.

Purpose and Justification:

This project is intended to improve the right-of-way for all users and modes of travel. The segment of 1st Ave S between Franklin Ave and Lake St was constructed in 1969. The pavement condition along the project extent is generally rated in “poor” condition according to the City’s Pavement Condition Index (PCI) rating scale, as measured in 2017. This segment of 1st Ave S has a pavement surface that is beyond its expected useful life. This project also provides an opportunity to incorporate ADA compliant curb ramps, address sidewalk obstructions, and improve the bicycle facility. This corridor serves an estimated 370 - 580 people walking, 150 to 260 people biking, and 5,200 to 7,200 people driving per day. 1st Ave S was identified in the City’s Vision Zero Action Plan as a High Injury Street and improvements will be prioritized to make progress towards eliminating traffic crashes that result in severe injuries and deaths.

The 1st Avenue South Bridge is nearing the end of its useful life and needs to be replaced. The existing bridge has a current Sufficiency Rating of 28.6. Bridges are rated during regular inspections from 0 to 100. Any bridge with a Sufficiency Rating below 50 is considered deficient and should be replaced. Deficiencies and deterioration are evident in all major bridge components including the bridge deck, superstructure, and substructure. A Bridge condition rating is in the process of replacing the Sufficiency Rating with National Bridge Inventory (NBI). This new rating separately rates bridge deck, superstructure, and substructure conditions, on a 0 to 9 scale, with 0 to 4 being “poor,” 5 to 6 being “fair,” and 7-9 being “good.” 1st Ave S Bridge rates in the poor category.

Project Visuals and Map:

1st Avenue South Reconstruction Map

Project Cost Breakdown

Department Funding Request


Have Grants for this Project been secured?


Describe status and timing details of secured or applied for grants or other non-City funding sources:

No grants or non-city funding has been secured at this time.

Describe any collaborative arrangements with outside project partners, including who they are and what their role is with the project:

Collaboration will be needed primarily for the bridge component of the project. The design of the bridge will be completed in collaboration with MnDOT State Aid, the State Historic Preservation Office (SHPO), and the Hennepin County Regional Railroad Authority (HCRRA). HCRRA is the owner the Midtown Railroad corridor (also known as the Midtown Greenway), including the majority of bridges crossing the corridor. SHPO will be involved because the entire Midtown Railroad Corridor is a historic resource.

The reconstruction project crosses Franklin Avenue, a county facility.


State Law Chapter 462.356 (Subd. 2) requires review of all capital improvements for compliance with the comprehensive municipal plan. Chapter 13, Section 4 of the City Charter requires Location and Design Review for the purpose of approving the sale of bonds for these projects.

Transportation: Minneapolis will build, maintain and enhance access to multi-modal transportation options for residents and businesses through a balanced system of transportation modes that supports the City’s land use vision, reduces adverse transportation impacts, decreases the overall dependency on automobiles, and reflects the city’s pivotal role as the center of the regional transportation network. This project is consistent with planning and policy guidelines set forth in the City’s comprehensive plan Minneapolis 2040.

Provide the date that Location and Design Review was conducted for the project, the outcome of that analysis and the date formal action was taken by the Planning Commission:

Street: June 6, 2019.

Bridge: May 24, 2012.

Economic Development

Will the project contribute to growth in the city’s tax base?

Supports moderate tax base growth

Describe the economic development impact of the project:

The redevelopment of the Kmart site and reopening of Nicollet Ave, when they occur, will require significant investment in order to achieve envisioned outcomes. Reconstruction of 1st Ave S will support the success of this future investment through improvement of surrounding conditions.

Does the project support redevelopment opportunity that without the project would be infeasible?

The reconstruction of 1st Ave S north of Lake Street E will strengthen future redevelopment related to the reopening of Nicollet Ave. An improved streetscape including ADA pedestrian ramps, new signage, and other features will also improve development likelihood along the Midtown Greenway especially in consideration of an existing connection to the trail at Nicollet Ave.


Is the proposed project on an existing or planned transitway, transit route, or high-volume pedestrian corridor? If yes, provide details on how the project will improve the transit and/or pedestrian experience.

A portion of this corridor is served by Metro Transit Routes 18 and 135 , with intersecting service provided on Franklin Avenue East, and Lake Street East. Route 18 is high frequency and uses the bridge. The 1st Avenue South/Marquette Avenue South corridor between 12th Street South and Franklin Avenue East is identified as a part of the Pedestrian Priority Network. Enhancing the existing sidewalks, crosswalks, and providing ADA compliant curb ramps are a part of this project.

Does the proposed project anticipate multi-modal enhancements (sidewalks, bicycle or transit facilities)? Provide details.

Yes, providing bicycle accommodations, improved sidewalks, crosswalks, and providing ADA compliant curb ramps are an integral part of this project.

Is the right-of-way constrained and do you anticipate that modes of travel will be competing for space? Provide details, is there potential for innovative design options? Provide details

Yes, the actual right-of-way of 1st Avenue South between Franklin Ave and Lake Street East is 60 feet wide. Grades and encroachments typically limit utilization of the entire legal right-of-way. Also, many people using many modes of travel, including pedestrians, bicyclists, drivers, and people trying to park will all be competing for space within the project area.

Operating Impacts

Operations & Capital Asset Maintenance:

Is this request for new or existing infrastructure? Existing

What is the expected useful life of the project/Improvement? Roadway 60 years; bridge 75 years.

Year that Operating Incr/(Decr) will take effect? Roadway 2023; bridge 2024 (decrease).

What is the estimated annual operating cost increase or (decrease) for this project? Roadway N/A; bridge ($5,250).

Any Prior Year Remaining Bond Authorizations? No

Prior Year Remaining Bond Authorizations: Not Applicable

Describe how operating cost increases or decreases were determined and include details such as personnel costs, materials, contracts, energy savings, etc:

While this project creates no net change in the annual operating budget it does allow Public Works to spend maintenance funds more effectively. Maintaining a deteriorated street is more costly than maintaining a street in good condition; therefore reconstructing this street segment allows Public Works to reallocate maintenance funds to aging infrastructure elsewhere in the system. The cost to maintain a street in poor condition is estimated at $10,000 per mile per year for a commercial/MSA type of street. Given the length of this project at 0.98 miles, the estimated annual cost to maintain this roadway is $9,800. The annual amount to maintain this bridge which is in poor condition is $5,250, which is an average based on actual costs tracked in the finance system for maintenance work on the bridge which were provided by Bridge Maintenance Foreman.

If new infrastructure, discuss how the department/agency will pay for the increased annual operating costs:

Regular crack sealing and other preventative maintenance treatments will be needed to keep the road surface in good shape.

For new infrastructure, describe the estimated timing and dollar amount of future capital investment required to realize the full expected useful life of the project:

Regular crack sealing and other preventative maintenance treatments will be needed to keep the road surface in good shape.

Project Coordination

Describe completion status for ongoing projects and how and when the department/agency plans to use the prior year remaining bond authorizations:

Not Applicable

If this is a new project, describe the major project phases and timing anticipated for completing the project:

Minneapolis Public Works anticipates preliminary design and public involvement to begin two years prior to the start of project construction.

Scalability/Funding Allocation Flexibility – discuss any flexibility to increase or decrease funding among the years in the five-year plan and the most that could be spent in a given year:

This project is anticipated to be a one year construction project.

Minneapolis Goals and Strategic Direction

Minneapolis is a growing and vibrant world-class city with a flourishing economy and a pristine environment, where all people are safe, healthy and have equitable opportunities for success and happiness.Below is a description of how this project meets each of the City's Goals. Below is a description of how this project meets each of the City's Goals.

Below is a description of how this project meets each of the City's Goals.

Public Safety

Collaborative and community-inclusive strategies to ensure safety for all members of our community:

Increase accessibility of public infrastructure and public amenities.

Use design principles that ensure a safe and welcoming environment when designing all projects that impact the public realm.

Prioritize safety investments in line with the Complete Streets Policy.

Improve safety for pedestrians, and prioritize pedestrians over other road users, especially at street intersections; focus on signals, crosswalks, lighting, signage, visibility and lowering vehicular speeds through street design and other measures.

Public Health

The City has declared racism a public health emergency, noting that “racism in all its forms causes persistent discrimination and disparate outcomes in many areas of life”. Public Works recognizes the impact of racism in transportation systems and this program seeks to promote transportation equity and justice in accordance with the goals of the Strategic & Racial Equity Action Plan 2019-2022 by providing equitable access to multimodal transportation in all parts of the City through thoughtful planning and design.

Environmental Justice:

The City prioritizes sustainable practices and renewable resources to equitably address climate change while restoring and protecting our soil, water and air.

Reduce the energy, carbon, and health impacts of transportation through reduced single-occupancy vehicle trips and phasing out of fossil fuel vehicles.

Plan, design, build, maintain, and operate the city’s transportation system in a way that prioritizes pedestrians first, followed by bicycling and transit use, and lastly motor vehicle use. (Complete Streets Policy. Adopted May 2016.)

Improve the pedestrian environment in order to encourage walking and the use of mobility aids as a mode of transportation.

Improve and expand bicycle facilities in order to encourage bicycling as a mode of transportation.

Improve access to goods and services via walking, biking and transit.

Support development and public realm improvements near existing and planned METRO stations that result in walkable districts for living, working, shopping, and recreating.

Proactively improve the public realm to support a pedestrian friendly, high-quality and distinctive built environment.

Improve the tree canopy and urban forest.

Improve air quality by reducing emissions of pollutants that harm human health and the environment.

Minneapolis has also declared a climate emergency that demands a massive-scale mobilization to halt, reverse and address the consequences and causes of climate change. Through the Transportation Action Plan, Public Works has stated its intention to drastically reduce the transportation sector’s contribution to greenhouse gas emissions, and this program/project aims to develop networks that will bring a climate-forward transportation system for the people of Minneapolis.

Built Environment & Transportation:

The City prioritizes high quality neighborhoods, streets, infrastructure and equitable access to multimodal transportation in all parts of the City through thoughtful planning and design.

The City of Minneapolis will promote design for the built environment that is dynamic and durable, reflects the diversity of Minneapolis residents, and contributes to a sense of place and community identity. The City will also proactively improve the public realm, including streets, sidewalks, parks and open spaces between buildings, to ensure that public spaces and private development are thoughtfully connected.

Achieving this goal also requires changes to the transportation system that make it easier to walk, bike or use transit to access daily needs. The City will proactively improve the pedestrian environment and continue to build and maintain a network of bikeways, while working with Metro Transit to increase the frequency, speed and reliability of the public transit system.

Additional Information

Capital improvement projects such as this one complete a corridor and enhance the character of the area which helps preserve property values and the city’s tax base. For the bridge, the design features of the reconstruction work will maintain the historical character of the Midtown Greenway Corridor Historic District which is a collaborative effort of the City of Minneapolis, Minnesota Department of Transportation, Federal Government, CPED, HCRRA and the State Historic Preservation Office