Making it onto a top 100 list is typically a badge of honor, but not when it comes to the American Transportation Research Institute’s list of the Top 100 Truck Bottlenecks. The I-35W at I-494 interchange is ranked by the institute as the 43rd worst bottleneck in the country. This congestion was one of the driving factors behind the I-494 Edina to Richfield project being undertaken by the Minnesota Department of Transportation (MnDOT) and general contractor C.S. McCrossan.
According to MnDOT’s website, the I-494 Edina to Richfield project is one of “four construction projects that are part of the I-494: Airport to Highway 169 vision. ... The I-494 vision is a long-term plan that includes improvements to address current and future transportation issues on I-494 from Highway 169 to the Minneapolis-St. Paul Airport (MSP Airport).”
The website says that the plan was divided into four projects “due to funding limitations and impacts during construction.” The plan was developed based on a study that ran from 2018 to 2022. However, the idea to expand I-494 began back in 2000, according to MnDOT Major Project Manager Amber Blanchard.
“We knew we needed to do something on I-494 due to the elevated crash rate and congestion,” she said. An environmental document was completed, but the suggestions related to impacts on property and costs made it unworkable.
In the mid-2010s, the desire to move forward on I-494 was revived. The interest stemmed in part from a study related to EZ-Pass and where to put high-occupancy vehicle (HOV) lanes across the state.
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“We wanted to narrow down the earlier plan to find cost savings and minimize property impacts,” Blanchard said. “[In 2018], we put together a proposal and got state funds from Corridors of Commerce Program through an application from the Metropolitan Council to stimulate economic activity through construction.”
There are multiple elements to the project scope, including:
- Adding an EZ-Pass lane on I-494 in both directions from Highway 100 to I-35W
- Modifying interchanges along I-494 at Penn Avenue, I-35W, Nicollet Avenue, Portland Avenue, and 12th Avenue, as well as at I-35W/82nd Street
- Reconstructing and repairing pavement on I-494 and local roads
- Reconfiguring the I-35W/I-494 interchange
- Replacing bridges at Nicollet Avenue, Portland Avenue, 12th Avenue, and I-494 over I-35W
- Repairing bridges at France Avenue and Penn Avenue
- Constructing a new pedestrian bridge near Chicago Avenue over I-494
- Constructing noise and retaining walls
- Relocating or adjusting multiple public and private utilities
- Connecting a walking path and concrete bike path along Portland Avenue
- Replacing lighting, signage, and dynamic message boards
- Improving ramps, sidewalks, and signals at multiple intersections
I-494 is currently three lanes in each direction and will be expanded to four upon completion of the project. The average daily traffic along I-494 and the surrounding area is in the 150,000 range. The proximity to MSP Airport is a key reason for the high traffic levels. According to the MSP Airport website, the airport “served more than 37 million travelers in 2024, making it the 18th busiest in North America in terms of the number of passengers served annually.”
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Three of the bridges — Nicollet Avenue, Portland Avenue, and 12th Avenue — that are being replaced as part of the scope were constructed in the 1950s. Blanchard said the bridges needed to be replaced independent of the project.
The final bridge — I-494 over I-35W — is being replaced as part of the work on the interchange, which is one of the most bottlenecked in the country. Many vehicles travel northbound to westbound, and back-ups occur regularly.
Some of the traffic can also be traced back to the medical device industry, which is prevalent in the area. The built-up area also includes businesses, hotels, and apartments.
Currently, it is a diamond interchange with loops. The new configuration will be a turbine interchange, which was selected due to its smaller footprint. This minimizes property impacts and lowers the cost. A turbine interchange includes a half circle, similar to a flyover. Some of the circle is on grade, and some is elevated.
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| SITECH Northwest |
Penn Avenue intersects I-494 just half a mile west of the busy interchange. The team is removing some exits in and around this area.
“We’re consolidating access points that are in close proximity to each other, and we’re spreading them out,” Blanchard said. “We believe by removing three access points and reconfiguring access at another point, the interstate will operate better with improved traffic flow.”
Penn Avenue goes over I-494. Since the bridge was built 20 years ago, there have been regular issues with the pavement below the Penn Avenue bridge.
“The issues have revolved around drainage,” said Greg Asche, MnDOT Resident Engineer and Project Manager. Water is pumped into that location as part of the storm sewer system.
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“We decided to build a 300-foot-long reinforced concrete pavement land bridge under Penn Avenue,” Asche said. “The bridge elevates the roadway a couple of feet above the soils, so the high ground water will not impact the road.”
The team ran into some geotechnical issues while building the bridge.
“While drilling, we couldn’t get foundation, so we changed to H-pile from micropile,” Asche said. The reason for the change is that the team could not get bearing on the foundations originally. The team is also replacing the pavement in the area.
Maintenance of traffic has also been an issue for the team. They are maintaining three lanes in each direction in a busy urban area. According to Asche, the project has included many stages and traffic switches to maintain traffic. The team also uses flyovers, when needed.
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Because the area is built up and includes a residential area, the team needs to be sensitive to nighttime noise.
“While we continue to do some nighttime work, we put a lot of thought into our activities,” Asche said. “Like if we have to do demo work, which is noisy, we think if we can do it during the day or at least early evening.”
Asche added that the team must follow a strict protocol to let area businesses and residents know when there will be nighttime noise.
Another challenge of working in a crowded downtown urban environment is logistics — getting materials in and out of the area.
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“We’re fighting for every space since it’s so tight,” Asche said. “We put materials anywhere we can, including on-ramps and loops that are not in service.”
The team also removed some buildings as part of the project and is using the parcels to store materials.
The project included the need to purchase a significant amount of right of way, as they touched over 100 parcels.
The project is being built via the design-build process. C.S. McCrossan, which has a long history of working in the area with both MnDOT and private owners, offered the best value.
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The project officially began in spring 2023. While the team did some construction in 2023 (primarily temporary work to set up for 2024), most of the focus was on design. In 2024, the team began permanent construction and focused on the eastbound direction. The westbound direction is in focus in 2025.
The project is currently on schedule. Asche cites the relationship with the general contractor as one reason the project is on schedule.
“Issue resolution has gone well on the project,” he said. “McCrossan has been proactive.”
The project has a construction budget of $377 million. Funding came from multiple sources, including:
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- $60 million from a federal INFRA grant
- $16 million from COVID funds
- $6 million from local municipalities
- $80 million from standard MnDOT funds
- $215 million from a state program, Corridors of Commerce
The project received money from Corridors of Commerce because it fits the program’s main priority, which is to “focus additional transportation investments in state highway projects that directly and indirectly foster economic growth.”
The project is on budget. Asche credits MnDOT’s rigorous risk management process as one of the primary reasons for this.
When the project is completed, the I-494 corridor will be one step closer to completion and will provide congestion relief to the busy interchange. The new pedestrian bridge will improve connectivity, and pedestrians can enjoy accessible sidewalks and new bike lanes.
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- Owner: Minnesota Department of Transportation
- General Contractor: C.S. McCrossan, Maple Grove, Minnesota
- Design Engineer: Michael Baker International, Pittsburgh, Pennsylvania
- Other Key Contractors: Lunda Construction, Black River Falls, Wisconsin; PCiRoads, St. Michael, Minnesota
