APPENDIX D

FUNCTIONAL CLASSIFICATION CRITERIA

AND CHARACTERISTICS, AND MNDOT
ACCESS GUIDANCE
Functional classification identifies the role a highway or street plays in the transportation system. Some
highways are intended to emphasize mobility for longer distance trips, while other roads are intended to
primarily provide access to land. Planners and engineers have developed functional classification
categories based on the number and types of trips that roads carry, the surrounding land uses, and the
stage of urban or rural development. Functional classification informs roadway design decisions that
affect the road’s function like roadway speed, width, and intersection spacing and control. Functional
classification can also be considered when identifying the multimodal role of a road, including truck, bus
transit, bicycle, and pedestrian use and accommodation. Highway and street projects should implement
designs including multimodal accommodations that are compatible with a road’s functional classification
and surrounding land uses.
The main functional classes used in the metropolitan area are used nationwide and described in the
Federal Highway Administration’s (FHWA) Highway Functional Classification Concepts, Criteria and
Procedures, 2013 Edition 1. They consist of urban and rural designations for four main classes of roads:
principal arterials (which include all freeways), minor arterials, collector roads, and local roads. The
FHWA definitions of urban and rural are different from those used in Thrive MSP 2040. The FHWA
definitions are based on population density from the US Census; Thrive MSP 2040 definitions are
based on the availability of regional sanitary sewer service. For the purpose of this appendix, the
Metropolitan Urban Service Area (MUSA) 2020 delinations are used (Figure 1) Statewide functional
classification analysis and reporting must use the FHWA urban and rural definitions.
In addition to the FHWA classifications, the region has identified the most important minor arterials in
Anoka, Carver, Dakota, Hennepin, Ramsey, Scott, and Washington counties. These A-minor arterials
supplement the principal arterial system and support access to regional job concentrations and freight
terminals. Within these seven counties, principal and A-minor arterials are eligible to compete for
federal funds through the Transportation Advisory Board’s Regional Solicitation. Federal guidance
allows use of federal funds on roads classified down to collectors but the region has chosen to use
these scarce funds on the most important regional highways.

1
[Link]

2040 TRANSPORTATION POLICY PLAN | METROPOLITAN COUNCIL | October 2018 UPDATE | APPENDIX D: CLASS | Page D.1
This appendix to the Transportation Policy Plan identifies criteria and characteristics for use in
assigning roadway functional classification. Criteria are the primary tool for identifying roadway function.
Characteristics are intended to be guidelines when plans are developed for constructing or
reconstructing a classified route. When a decision about the functional classification of a road is not
clear based on the criteria provided, characteristics may be used as supplementary decision factors.
Functional classification system criteria are presented in Tables D-1, D-3, D-4 and D-6. Functional
classification system characteristics are shown in Tables D-2, D-5, and D-7.
This appendix also includes a summary of Minnesota Department of Transportation (MnDOT)
intersection spacing and control guidelines for federal, state and interstate highways in the metropolitan
area. The MnDOT access management guidelines were developed for the entire state; MnDOT’s
functional classification category for the metropolitan area is summarized in Table D-8 and at MnDOT’s
Access Management web page.

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Figure 1. Metropolitan Urban Service Area (MUSA) 2020

Principal Arterials
The emphasis of principal arterials is on moving large volumes of traffic over long distances rather than
providing direct access to land. They connect the region with other areas in the state, the nation, and
the world. Principal arterials also connect regional concentrations and freight terminals within the
metropolitan area. Principal arterials should support the longest trips in the region, including intercity
bus, express bus, and highway bus rapid transit services.

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Principal arterials consist primarily of interstate freeways and other freeways or highways. Most are
owned and operated by MnDOT, but some are under the jurisdiction of Anoka, Dakota, Ramsey, and
Scott counties or the City of Saint Paul. The Metropolitan Highway System, as defined in the
Transportation Policy Plan, is composed of all principal arterials in Anoka, Carver, Dakota, Hennepin,
Ramsey, Scott, and Washington counties.
Principal arterial spacing and access spacing vary based on the density of surrounding development.
Table D-1 shows principal arterial spacing varies from two to three miles in the most densely developed
parts of the region to six to 12 miles in rural areas. Where an urban or suburban level of development is
planned, spacing of principal arterials or future principal arterials may be two to three miles. Table D-1
also shows access spacing to principal arterials; non-interstate freeways provide land access
somewhat more frequently than interstate freeways. At present, principal arterials connect with other
principal and minor arterials, and select collectors and local streets. In the future, new connections to
principal arterials should be limited to other principal and A-minor arterials, or to select minor arterials in
Wright and Sherburne counties where A-minors are not identified.
Principal arterials are not intended to serve pedestrian and bicycle travel and they often act as barriers
to bicycle and pedestrian travel in the centers and neighborhoods through which they pass. Adequate
pedestrian and bicycle crossings separate from general traffic lanes are an important consideration
along principal arterials.

Minor Arterials
The minor arterial system supplements the principal arterial system and provides connections to the
principal arterial system. Minor arterials also support access to major traffic generators, including
regional job concentrations and freight terminals, and between rural centers within and just outside the
region. Minor arterials should serve medium-to-short trips, including arterial bus rapid transit, limited-
stop bus, and local bus service.
In the urban service area the emphasis of minor arterials is on supplementing principal arterial mobility
as opposed to providing direct access to land, and only concentrations of commercial, industrial, or
residential land uses should have direct access to them. Minor arterials should connect to principal
arterials, other minor arterials and collectors. Connections to some local streets are acceptable.
The spacing of minor arterials and access along them vary based on the density of surrounding
development. Table D-3 shows minor arterial spacing varies from one-fourth mile to three-fourths mile
in the most densely developed parts of the region, to every one to two miles in the emerging suburban
areas. Where an urban or suburban level of development is planned, minor arterials should be spaced
every one-half mile to two miles. The criteria and characteristics in Table D-3 and Table D-5 apply to all
minor arterials. The A-minor arterials are grouped into four categories – Augmentors, Relievers,
Expanders, and Connectors – and are described in Table C-4.
Minor arterials are designed to carry higher volumes of general traffic than other local roads and these
design characteristics often create a barrier for bicycle and pedestrian travel. Priority should be placed

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on addressing these barriers in areas with pedestrian traffic, such as within regional job concentrations,
within local centers, and along major transit routes.

Collector Roads
Mobility and land access are equally important on the collector road system. The collector system
provides connections between neighborhoods and from neighborhoods to regional job concentrations
and local centers. It also provides supplementary connections between major traffic generators within
regional job concentrations. Direct land access should primarily be to development concentrations.
Connectors typically serve short trips of one to four miles. Collectors connect primarily to minor
arterials, other collectors, and local streets.
Major and minor collectors should be identified in the urban and rural areas. Major collectors offer more
mobility and minor collectors offer more access. Major collectors serve higher density residential areas
(often penetrating residential neighborhoods for significant distances), job and activity centers and
freight terminals that are not on the arterial system, and they serve longer local trips, including local bus
service. Minor collectors serve shorter local trips and lower density land uses (often penetrating
residential neighborhoods only for a short distance). Spacing in regional job concentrations and local
centers may vary from one-eighth to one-half mile. In urban center and urban communities, collectors
are needed one-fourth to three-fourths mile apart. In communities with suburban designations, spacing
may range from one-half to one mile and may service existing development, but one-fourth to three-
fourth mile spacing may be required in the future. Major collectors should be spaced farther apart than
minor collectors.
Collector roads can be good candidates for bicycle routes because they serve shorter trips that
bicyclists make and generally have more compatible traffic speeds and volumes as compared to
arterials. Collectors in the urban service area should include pedestrian accommodations and may be
candidates for traffic calming, especially where pedestrian traffic is greatest, such as within regional job
concentrations and local centers and along transit routes. For more information on bicycle and
pedestrian accommodations, refer to Chapter 2, “Strategies,” and Chapter 7, “Bicycle and Pedestrian
Investment Direction.”

Local Roads
Local roads connect blocks and land parcels, and the primary emphasis is on land access. In most
cases, local roads connect to other local roads and collectors. In some cases, they connect to minor
arterials. Local roads serve short trips at low speeds. In the urban center, local roads could be are
spaced as close as 300 feet, while in the rural area, one-mile spacing may be adequate.
Local roads serve local travel for pedestrians and bicyclists. Transit is occasionally a consideration for
local roads, depending on the surrounding land uses.

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Table D-1: Functional Classification System Criteria for Principal Arterials

Interstate and Freeway Principal Arterial Other Principal Arterial

Criterion Urban Service Area Rural Urban Service Area Rural
Place Connect regional job concentrations Connect the urban Connect regional job concentrations Connect the urban
Connections and freight terminals within the urban service area with urban and freight terminals within the service area with major
service area. areas and major cities in urban service area. cities in Minnesota and
Minnesota and other other states.
states.
Spacing Within urban community 6-12 miles Closer Urban community designations: 2-3 6-12 miles Closer
designations: 2-3 miles. Within spacing may be required miles. Suburban community spacing may be required
suburban community designations: to connect portions of designations: Spacing should vary in to connect portions of
Spacing should vary in relation to the urban service area to relation to development density of Rural community
development density of land uses each other or to Rural land uses served, 2-6 miles designations to each
served, 2-6 miles Centers. other or to Rural
Centers.
Operations Designed for speeds of 45 miles per   
hour or more
System To other Interstate freeways, other To other Interstate To Interstate freeways, other To Interstate freeways,
Connections principal arterials and selected A- freeways, principal principal arterials, and selected A- other principal arterials,
and Access minor arterials. Connections between arterials, and selected A- minor arterials. Connections and selected A-minor
Spacing principal arterials should be of a minor arterials. between principal arterials should be arterials. Access should
design type that does not require Interchanges at of a design type that does not be limited to 2 miles or
vehicles to stop. Interchanges at distances of 2-6 miles or require vehicles to stop. Access more.
distances of 1-2 miles. more. should be limited to 1-2 miles.
Trip-Making Trips greater than 8 miles with at Trips greater than 8 miles with at
Service least 5 continuous miles on principal least 5 continuous miles on principal
arterials. Express and highway bus arterials. Express and highway bus
rapid transit trips rapid transit trips
Mobility vs. Emphasis is on mobility for longer Emphasis is on mobility Emphasis is on mobility for longer Emphasis is on mobility
Land Access trips rather than direct land access. rather than land access. trips rather than direct land access. rather than land access.
No direct land access should be No direct land access Little or no direct land access within Little or no direct land
allowed. should be allowed. the urbanized area. access.

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Table D-2: Functional Classification System Characteristics for Principal Arterial

Interstate and Freeway Principal Arterial Other Principal Arterial

Characteristic Urban Service Area Rural Urban Service Area Rural

System Mileage FHWA suggests statewide mileage FHWA suggests FHWA suggests statewide mileage for FHWA suggests
for Interstate and other freeway statewide mileage for other principal arterials at 4-9% of statewide mileage for
principal arterials at 1 – 5% of Interstate and other system other principal
system freeway principal arterials at 2-6% of
arterials at 1-5% of system
system
Percent of Vehicle FHWA suggests 17-43% of FHWA suggests 18- FHWA suggests 16-33% of statewide FHWA suggests 15-
Miles Traveled statewide VMT 45% of statewide VMT VMT 31% of statewide
VMT
Intersections Grade separated Grade separated Grade separated desirable where High-capacity
appropriate. At a minimum, high- controlled at-grade
capacity controlled at-grade intersections
intersections
Parking None None None None
Large Trucks No restrictions No restrictions No restrictions No restrictions
Management Tools Ramp metering, preferential Interchange spacing Ramp metering, preferential treatment Access control,
treatment for transit, interchange for transit, access control, median intersection spacing
spacing barriers, traffic signal progression,
staging of reconstruction, intersection
spacing
Typical Average 25,000-200,000+ 5,000-50,000+ 15,000-100,000+ 2,500 - 25,000+
Daily Traffic
Volumes
Posted Speed Limit 45-70 mph 55-70 mph 40-65 mph Legal limit

Right-of-Way 300 feet 300 feet 100 - 300 feet 100 - 300 Feet

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 Characteristic Urban Service Area Rural Urban Service Area Rural
Transit Transit advantages that provide None Transit advantages that provide None
Accommodations priority access and reliable priority access and reliable movement
movement for transit in peak periods for transit in peak periods where
where needed possible and needed
Bicycle and On facilities that cross or are parallel On facilities that cross On facilities that cross or are parallel On facilities that
Pedestrian to the principal arterial, with greater or are parallel to the to the principal arterial, with greater cross or are parallel
Accommodations emphasis along transit routes and in principal arterial emphasis along transit routes and in to the principal
activity centers. Crossings should be activity centers. Crossings should be arterial
spaced to allow for adequate spaced to allow for adequate crossing
crossing opportunities opportunities

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This table summarizes characteristics for existing roadways to be used in evaluating functional
classification and should not be used as design guidelines.
Table D-3: Functional Classification System Criteria for Minor Arterials (A-minor or other)

Criterion Urban Service Area Rural

Place Provide connections between regional job, Connect the urban service area with
Connections educational, manufacturing, and industrial cities and towns in Minnesota outside
concentrations and local centers within the the Twin Cites region. Connect rural
urban service area growth centers inside the Twin Cities
region and comparable places near
the Twin Cities region
Spacing Regional job concentrations: 1/4-3/4 mile Rural Areas: As needed, in
Urban community designations: 1/2-1 mile conjunction with the major collectors,
Suburban community designations: 1-2 miles provide adequate interconnection of
places identified in “Place
Connections” criterion
System To most Interstate freeways and other To most Interstate freeways and
Connections principal arterials, other minor arterials, other principal arterials, other minor
collectors, and some local streets arterials, collectors, and some local
streets
Trip-Making Medium-to-short trips (2-6 miles depending
Service on development density) at moderate
speeds. Longer trips accessing the principal
arterial network. Local, limited-stop, and
arterial bus rapid transit trips
Operations Designed for speeds less than 45 miles per Designed for speeds ranging from 45
hour to 55 miles per hour
Mobility vs. Emphasis on mobility for longer trips rather Emphasis on mobility for longer trips
Land Access than on direct land access. Direct land rather than on direct land access
access limited to concentrations of activity
including regional job concentrations, local
centers, freight terminals, and
neighborhoods.

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Table D-4: Additional Criteria for A-Minor Arterials

Criterion in
addition to
Table D-3 Relievers Augmentors Expanders Connectors
Purpose Provide Supplement the Supplement the Provide safe, direct
supplementary principal arterial principal arterial connections
capacity for system in more system in less between rural
congested, parallel densely densely centers and to
principal arterial developed or developed or principal arterials in
redeveloping redeveloping rural areas without
areas areas adding continuous
general purpose
lane capacity
Location in Urban service area: Urban center Urban, Rural community
Thrive MSP Consists of urban and urban suburban, designations. One
2040 center, urban, community suburban edge, end may be outside
Community suburban, suburban designations and emerging the seven-county
designations edge, and emerging suburban edge area or may be in
suburban edge community the urban service
community designations area
designations as
defined in Thrive MSP
2040
Existing 400 miles 200 miles 650 miles 680 miles
System

See the Metropolitan Council Functional Roadway Classification Resources page for a current map of
the A-minor arterial system.

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Table D-5: Functional Classification System Characteristics for Minor Arterials (A-or other)

Characteristic Urban Service Area Rural

System Mileage FHWA suggests statewide mileage for minor FHWA suggests statewide
arterials in urbanized areas at 7-14% of mileage for minor arterials
system in rural areas at 2-6% of
system
Percent of Vehicle FHWA suggests 14-27% of statewide VMT FHWA suggests 7-14% of
Miles Traveled statewide VMT
Intersections Traffic signals, roundabouts, and cross-street Roundabouts and cross-
stops street stops
Parking Restricted as necessary Restricted as necessary
Large Trucks Candidates for local truck network, large Candidates for local truck
trucks restricted as necessary network, large trucks
restricted as necessary
Management Tools Traffic signal progression and spacing, land Land access
access management/control, preferential management/control
treatment for transit
Typical Average 5,000-30,000+ 1,000-10,000+
Daily Traffic
Volumes
Posted Speed Limit 30-45 mph Legal limit
Right-of-Way 60-150 feet 60-150 feet
Transit Transit advantages for reliable movement None
Accommodations where needed
Bicycle and On, along, or parallel to the minor arterial, with On facilities that cross the
Pedestrian greater emphasis in activity centers. Special minor arterial
Accommodations emphasis on improving safety of crossings at
intersections and along bikeways. Crossings
should be spaced to allow for adequate
crossing opportunities

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This table summarizes characteristics for existing roadways to be used in evaluating functional classification and should not be used as
design guidelines.

Table D-6: Functional Classification System Criteria for Collectors and Local Streets

Collector Local
Criterion Urban Service Area Rural Urban Service Area Rural
Place Connect neighborhoods and Provide supplementary Connect blocks and land
Connections centers within the urban connection between rural parcels within
service area. Major centers inside the Twin neighborhoods and within
collectors provide Cities region and commercial or industrial
supplementary connections comparable places near the developments.
of major traffic generators Twin Cities region.
within job and activity
centers.
Spacing Job concentrations: 1/8 - 1/2 Rural Areas: As needed in As needed to access land As needed to access land
mile conjunction with minor uses. uses.
Urban community arterials, to provide
designations: 1/4 - 3/4 mile adequate connections for
Suburban community places identified in “Place
designations: 1/2 - 1 mile Connections” criterion. In
Minor collectors should be addition, minor collectors
spaced more closely than should be designated at an
major collectors. average spacing of not less
than 4 miles.
System To minor arterials, other To minor arterials, other To a few minor arterials. To To a few minor arterials. To
Connections collectors, and local streets. collectors, and local streets. collectors and other local collectors and local roads.
Major collectors may streets.
connect to principal arterials
under exceptional
circumstances

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 Criterion Urban Service Area Rural Urban Service Area Rural
Trip-Making Short trips (1-4 miles Short trips (under 2 miles) at
Service depending on development low speeds, including
density) at low-to-moderate bicycle and pedestrian trips.
speeds. Major collectors Longer trips accessing the
may support longer trips collector or collector and
accessing the arterial arterial network.
network including local bus
transit and bicycle trips.
Mobility vs. Equal emphasis on mobility Emphasis on land access, Emphasis on land access,
Land Access and land access. Direct land not on mobility. Direct land not on mobility. Direct land
access predominantly to access predominantly to access predominantly to
development residential land uses. agricultural land uses.
concentrations.

Table D-7: Functional Classification System Characteristics for Collectors and Local Streets

Collector Local

Characteristic Urban Service Area Rural Urban Service Area Rural

System Mileage Suggested federal Suggested federal Suggested federal Suggested federal
statewide range for major statewide range: 8-19% statewide range: 62-74% statewide range: 62-74%
and minor collectors: 3- for major collectors, 3-15%
16% for minor collectors
Percent of Vehicle Suggested federal Suggested federal Suggested federal Suggested federal
Miles Traveled statewide range for major statewide range: 10-23% statewide range: 9-25% statewide range: 8-23%
and minor collectors: 2- for major collectors, 1-8%
13% for minor collectors
Intersections Four-way stops and some Local street traffic should As required As required
traffic signals be required to stop

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 Parking Restricted as necessary Unrestricted Permitted as necessary Permitted as necessary
Large Trucks May be candidates for May be candidates for Permitted as necessary Permitted as necessary
local truck network, large local truck network, large
trucks restricted as trucks restricted as
necessary necessary
Management Tools Number of lanes, traffic Land access management Intersection control, cul-
signal timing, land access de-sacs, diverters
management
Typical Average 1,000-15,000 250-2,500+ Less than 1,000 Less than 1,000
Daily Traffic
Volumes
Posted Speed Limit 30-40 mph 35-45 mph Maximum 30 mph Maximum 30 mph
Right-of-Way 60-100 feet 60-100 feet 50-80 feet 50-80 feet
Transit Cross-sections and None Normally used as bus None
Accommodations geometrics designed for routes only in
use by regular-route nonresidential areas
buses, transit advantages
for reliable movement,
where needed
Bicycle and On, along, or crossing the On, along, or crossing the On, along, or crossing the On, along, or crossing the
Pedestrian collector with higher collector local road local road
Accommodations emphasis along transit
routes and in activity
centers. Crossings should
be spaced to allow for
adequate crossing
opportunities

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This table summarizes characteristics for existing roadways to be used in evaluating functional
classification and should not be used as design guidelines.
Table D-8: Summary of MnDOT Public Street Spacing Access Guidelines for Interstate, U.S., and
State Highways in the Twin Cities Metropolitan Area *

Facility Type or Primary Full-

Functional Community Movement Secondary
Classification Designation** Intersection Intersection Signal Spacing
Principal Arterial Interstate Freeway Interchange None
Access Only
Non-Interstate Interchange None
Freeway Access Only
Rural 1 mile 1/2 mile Only at Primary
Intersections
Suburban 1/2 mile 1/4 mile Only at Primary
Intersections
Urban 300-600 feet, 1/4 mile
dependent on block
length
Minor Arterial Rural 1/2 mile 1/4 mile Only at Primary
Intersections
Suburban 1/4 mile 1/8 mile Only at Primary
Intersections
Urban 300-600 feet,
dependent on block
length
Collector Rural 1/2 mile 1/4 mile Only at Primary
Intersections
Suburban 1/8 mile Not Applicable 1/4 mile
Urban 300-600 feet, 1/8 mile
dependent on block
length
*This table is a summary of MnDOT Access Guidance for the Metropolitan Area. This chart does not reflect all the
MnDOT guidance. Agencies should work with MnDOT, the appropriate county highway authority, and the local
land use authority when planning new or modified access.
**Community Designations are from Thrive MSP 2040, they are not MnDOT designations.

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