HomeMy WebLinkAbout01-24-2000 Council Work SessionCITY OF ORONO
NOTICE OF PUBLIC MEETING
NOTICE is hereby given that the Orono City Council will meet in a work session at 5:00
p.m. on Monday, January 24, 2000 in the City Council Chambers. 2780 Kelley Parkway, Orono.
Minnesota. The purpose of the meeting is to review issues related to the update of the City's
Comprehensive Plan, and other issues of current interest.
This meeting is open to the public.
/s/ Linda S. Vee
Citv Clerk
Posted at:
City Hall
Navarre Post Office
Long Lake Post Office
Cry stal Bay Post Office
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COUNCIL MEETING
JAN 2 4 2000
Cl IY or Unui^u
Council Work Session
5:00 p.m., Monday, January 24,2000
Orono City Council Chambers
2780 Kelley Parkway, Orono, Minnesota
AGENDA /fe
1. Comprehensive Plan update
a.
b.
Proposed revised housing element
Proposed revised environmental protection element
c. Transportation element
1) Confirm policy regarding service levels to public versus
private roads
2) Reference the County Road 15 traffic study findings and
recommendations
3) Clarify the expected role of new Highway 12 in the total
transportation system ser% ing Orono
4) Joint planning with the City of Long Lake to develop a vision
for current Highway 12 after the turn back
Transit needs
Update regarding land acquisition from the Orono School District
Other
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Q)
TO:
FROM:
DATE:
Mayor and City Council
Ron Moorse, City Administrator
January ’ 21,2000
SUBJECT: Update Regarding Land Acquisition from the Orono School District
1. Acquisition of a 3.5 acre parcel for Public Works needs.
Mayor Jabbour and the City Administrator met with the Orono Schools Superintendent and
Assistant Superintendent to explain the City ’s Public Works needs and the proposed land
acquisition. The Superintendent will forward the City ’s request to the School District’s
Facilities Committee.
2. School District property east of the Lee Carlson youth baseball fields.
The Orono Schools Superintendent indicated the school was entering discussions with
Bancor, the developers of the 58 acres east of the school property and west of Willow Drive,
regarding the acquisition of the property east of the Lee Carlson fields by Bancor. There was
some discussion regarding whether the City of Orono would be interested in acquiring that
property. In order for the City to make a decision regarding that property, the City should
answer the following questions:
a. Is this property a priority property to be acquired for park needs?
b. What park needs would this property meet?
c. Are the park needs that would be met by this property high prioriU' needs?
If the Council determines that the City may want to pursue this property, the City should
determine whether it would be bidding against Bancor for the property.
To:Mayor and Council
Planning Commission Members
Ron Moorse, City Administrator
From:Mike Gaffron, Senior Planning Coordinator
Date:January' 21. 2000
Subject:Monday January 24 Work Session - Comprehensive Plan Discussion
Topic: Review of -Draft Housing Plan
-Draft Environmental Protection Plan
-Rough Draft Transportation Plan
The Housing Plan (CPM PART 3C) was discussed conceptually in September; the attached draft
reflects those discussions. One possible topic for further discussion is how will Orono ensure that
the Hackberrv Hill area MUSA additions will be reserved for replacement of Lone Lake homes lost
due to Highway 12 acquisitions , and not developed with $300,000-400,000 homes on 1/3 acre lots.
The Environmental Protection Plan (CMP PART 3A) has been somewhat updated from the 1980
version, and still contains much of the 1980 background information. Some of it may seem tedious
and perhaps redundant; but it also f .o tremendous value in documenting the basis for Orono ’s
development philosophy.
The Transportation Plan (CMP PART 4A) is at present only ‘half-baked ’, in that may of its sections
have not yet been updated. But there are a number of issues to discuss Monday, such as:
- How does Council wish to address the Bonestroo Co. Rd. 15 traffic study in the
CMP?
- Policy issues in relation to public vs. private roads...
- Future vision for the e.xisting Highway 12 corridor...
- Future light rail transit corridors - giving up on Dakota Rail in favor of trail?
- Pick another issue of your choice!
Please feel free to call me Monday if you have any questions prior to the meeting!
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DRAFT TABLE OF CONTENTS
CMP PART 3A. Environmental Protection Plan
The Natural Setting.......................................................................3A>I
Figure___Map of Lake Minnetonka with Orono Boundary
Table ___Lake Sizes and Shoreland CIsssifIcations
Figure___Wetlands, Drainageways and Floodplains Map
Figure___Soils Map
Figure___Vegetation Map
Surface Water Management.........................................................3 A-12
Orono 2000 Comprehensive Stormwater Management Plan
Figure __Subwatersheds Map
Shoreland Management................................................................3A-22
Tree Preservation.........................................................................3A-22
Quality of Life Preservation.........................................................3A-22
Orono’s Environmental Protection Commitment..........................3A-23
Environmental Protection Goals
General Policies for Natural Resource Management
Urban Area Policies for Natural Resource Management
Rural Area Policies for Natural Resource Management
l>0xFT 2 l/OrO
CIIAPTER3
PART
ENVIRONMENTAL PROTECTION PLAN
THE NATURAL SETTING
The City of Orono is perhaps unique among communities in this area in relation to
the amount of relatively undisturbed natural resource areas contained within the City
boundaries including lakes, marshes, wetlands, and woodlands. The presence and
character of these attractive amenities has been a major factor affecting the original
settlement and subsequent development of the City. The protection and preser\ation
of these resources as part of our local heritage, and in our citizens' continuing vital
interest, is the foremost goal of this Community Management Plan.
Lake Minnetonka is the single most significant natural feature in Orono and in
the entire western part of Hennepin Countj*. Lake Minnetonka, as shown on Map
Figure No._, is actually a series of separate lakes or "bays" interconnected by
narrows or channels. Some bays are up to 90 feet deep while other areas are
extremely sliallow. Lake Minnetonka outlets at Gray's Bay in the City of Minnetonka,
into Minnehaha Creek and eventually into the Mississippi River.
Lake Minnetonka is the tenth largest lake in Minnesota. Lake Minnetonka has
a surface area of approximately 14.310 acres (5+t5 22.4 square miles) and a capacity
of 400,000 acre feet of water at the normal lake elevation of 929.4 ft. MSL. The total
watershed is 123 square miles in area which includes 71 square miles of dr\’ land, 22
square miles of marshland and 7 square miles ot other water bodies. With its many
bays and channels. Lake Minnetonka has over 100 approximately 130 miles of
shoreline.
Lake Minnetonka has substuntial public value as a recreational asset, as an
environmental resource and as a setting for private residential development. Lake
Minnetonka's closeness to Minneapolis combined with its size have long given it a
unique status among the lakes in Minnesota. In the 1880's. Minnetonka became a
nationallv known resort area and has been a favorite locale for summer and suburban
homes for generations. From the viewpoint of the fisherman, the lower lake
resembles the more nonliem waters of the state, whereas the upper lake and its bays
resemble southern Minnesota waters. The large size of the lower lake is a major
attraction for sailboaters while the \ ariety of bays, channels and water routes ofler
attraction to the casual boater.
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FIGURE___
Map of Lake Minnetonka with City Boundaries
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CMP 3A - 2
Lake Minnetonka is dependent upon watershed runofT for all replenishment.
Lake Minnetonka is not fed by any spring or river inlet. All water is received from
precipitation falling within the immediate watershed. Most of this water enters the
Lake by direct runoff through a series of five major streams and their associated
lakes, marshland and sub-watersheds. Since the level of the Lake is generally below
the level of the ground water in the glacial deposits of the surrounding area, some
additional replenishment o curs from underground seepage, principally from the
many wetlands and marshy ponding areas along the shoreline.
Lake Minnetonka's ecology makes it easily susceptible to pollution hazards. The
combination of a single-source local water supply, relatively small watershed area,
many channel restrictions between separate bays, and a single outlet, have resulted
in Lake Minnetonka having an extremely long 25-year flush out period for complete
water change. This is second only to Lake Michigan in the region. The hazard is that
once pollutants enter the Lake, they tend to remain for a long time and they are not
easily diluted.
Lake Minnetonka has historically suffered from t^vo problems which directly
affect its environmental health and its value as a public amenity. One problem
w hich has been worsening with urbanization trends is a deterioration in water quality
caused by eutrophication. Eutrophication is the aging process by w hich natural waters
are enriched with nutrients that may stimulate excessive plant growth The plants
may be floating algae, attached algae, or rooted weeds. Eutrophication may occur
naturally, as sediments accumulate in lake basins over geologic time or it may be
induced artificially as a result of human activities, as in Lake Minnetonka. Much of
Lake Minnetonka has become more eutrophic during the last several decades the past
century, but sedimentation has been negligible. Instead, the accelerated
eutrophication of the Lake, w hich is due to increased inputs of nutrient elements,
particularly phosphorus and nitrogen, is evidenced by the increased grjwih of algae
and weeds.
The other problem is hydrologic instability. Because the lake level is dependent upon
precipitation, w ide ranges in water elevation have occurred over the years. During the
1930's. a general drought left the lake below normal level for 11 years with a
maximum decline of more than 6 feet. This low water condition caused the
con:.truction of deep wells for water augmentation and discussions about possible
diversion oftheCrow'River. A somew hat lesser drought durinu the late 1980's attain
raised concern about the instability of lake levels, vet the lake recovered from a 4-
foot drop in just two years without autimentation.
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In recent years, however, more urbanization has increased the amounts of direct
storm water runoff resulting in high water levels and in some cases flooding
problems for low-lying properties. Upland water retention an d a controllable outlet
at Gray's Day hax T- now become priorities of the Minnehaha Creek Wate rshed
District.(?) Management of runoff and protection of water quality have now become
primary objectives of the Minnehaha Creek Watershed District.
The problems of Lake Minnetonka have been were intensively studied by many
agencies over the las t twenty yea rs in the I960*s and I970*s . These agencies
included the Minnesota Pollution Control Agency, the Minnesota Department of
Natural Resources, the Metropolitan Council, the Minnehaha Creek Watershed
District, the Lake Minnetonka Conservation District and the City of Orono. The
major publications addressing Minnetonka's problems and which formed the basis
for the goals and policies of this Orono's 1980 CMP and this update of it, are as
follows:
1969 Overall Plan for Water Management; MCWD
1971 "Harza Study", A Program for Preserving the Quality of Lake
Minnetonka; LMCD & Mn. PCA
1973 Shoreland Management Regulations of the Mn. DNR
1973 Stormwater Impact Investigation for the Metropolitan Council
1974 Surface Water Management Plan for the City of Orono
1979 208 Water Quality Management Plan for the Metropolitan Council
Orono's special involvement with Lake Minnetonka is based upon the real
concerns of our affected citizens and our intimate and important impact on the
total lake environment. While Orono's population is not as large as that of other
municipalities in the Lake Minnetonka Watershed, Orono docs have the largest land
area and potential environmental impact of any local unit of government. Orono is
the largest city totally within the Watershed. Orono has one fifth of the total diy land
in the watershed, one quarter of the vvetlands and one third of the lake surface. Orono
includes 40% of Lake Minnetonka's total shoreline. Over 30% of the total
Watershed's surface runoff flows through or from Orono on its way to the Lake.
(Confirm all the above statistics - see below)
CMP 3A - 4
14.300 acres water surface (22.4 square miles) (MCWD PLAN SEC 4 P16)
Drains an area of 123 square miles, 22.4 of which it occupies (IBID P62)
123-22.4=100.6 square miles drain into Lake Minnetonka
Orono land area is 10,200 acres or 16 sq. miles e.xcluding lakes, about 16.5 square
miles including City lakes but not Mtka; 16.5 / 100.6 = .164 =1/6 of watershed is
from Orono
131 miles of shoreline (IBID PI 6) 110 miles of shoreline (IBID P63) ?!?!?!
Orono’s portion is 40 miles or 31% (36%) of shoreline (City measurement by MPG)
-need to work on this!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!-
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No other community has the same potential as Orono for affecting Lake
Minnetonka's water quality or water quantity, therefore, no other single community
has as heavy a responsibility for careful protection of this general resource as does
Orono.
Other significant lakes in Orono include Long Lake, Mooney Lake, Lydiard
Lake, Lake Classen and Dickey's Lake. Lydiard Lake and Dickey's Lake drain into
Long Lake which in turn flows into Long Lake Creek and eventually Tanager Lake
(bay) of Lake Minnetonka. Lake Classen drains into Stubbs Bay of Lake Minnetonka
and Mooney Lake drains through Plymouth and Wayzata before discharging into
Wayzata Bay of Lake Minnetonka.
(Nevv Table!_________________________
LAKE SIZES AND SHORELAND CLASSIFICATIONS
Basin Area Protected Waten
(Acres)OHWL Inventory I.D. U
Natural Environment (NEl Lakes
Lake Classen 117 974.5'162-P
Dickey Lake 26 985.5'161-W
French Lake (South Basin Only)930.0'140-P
Lydiard Lake 33 970.9'159-P
Lake Katrina*544*154-P
Recreational Dcvelomnent (RD) Lakes
Long Lake*320*944.3’160-P
Mooney L.ake*118*988.0 ’134-P
Tanager Lake 74 929.4*141-P
General Develonment tGD) Lakes
Forest Lake 127 929.4*139-P
l.ake Minnetonka*14,310*929.4*133-P
•Stated acreage includes acreage within other municipalities.
CMP 3A - 5
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PROTECTED TRIBUTARY STREAMS
From:To:
Sec.Two.R.Sec.Twp.R.
35 (Basin I60-P)118 23 lO(Basin 141-P)117 23
27 (City limit)118 23 26(Basin 160-P)118 23
26 (City limit)118 23 27 118 23
27 (Basin 161-P)118 23 34 (Basin 160-P) 118 23
32 (Basin 162-P)118 23 5 (Basin 133-P)117 23
30 (Basin 154-P)118 23 31 (City limit)118 23
Tributary Name
- Long Lake Creek
- "Wolsfeld" Creci
- TributarN to Wolsfeld Creek
from Holy Name Lake
- Dickeys Lake Creek
- Stubbs Bav Creek
(aka Classen Creek)
- Painter's Creek
Lydiard Lake is the most sylvan of Orono's lakes being surrounded by heavily
wooded rolling hills. No Only minimal residential development encroaches on its
pastoral setting. Dickey's Lake is centered in open fields has become surrounded bv
low density residential development over the past 20 years but its steep slopes and
low elevation have preclud ed any extensive d evelopment or encroachment. Lake
Classen, in Orono's rural area, is surrounded by orchards and farm fields with a
handfull of homes overlooking its waters. The Orono School District maintains a
nature study area and waterfowl ponds on Classen's east shore. Mooney Lake's shore
is essentially relatively undeveloped in Orono and Medina, but the lake has received
growing pressures from urbanization in Plymouth, including usage conflicts,
elevation concerns due to lack of a natural outlet, and urban storm water pollution
inflow.
Long Lake is the largest and most actively used lake in Orono other than
Minnetonka. The east and west shores have been developed at rural residential
densities. The north shore has mixed rural residential areas and one more dense
housing cluster dating from the 1930's. The south shore is bordered by the City of
Long Lake and is urbanized to the same degree as much of Lake Minnetonka. Long
Lake has experienced stonn water problems and has recently had as well as
increased usage pressures resulting from over use of power boats and personal
watercraft, and plans for multiple family residen ces and d ocks on the south shorty
The Minnehaha Creek Watershed District in the late 1990's implemented a multi
faceted stormwater improvement project for Lomz Lake includine construction of
water quality retention ponds in the two main tributaries feedinu the lake, and alum
treatments within the lake basin for phosphorus control.
The second most significant and most universal natural amenity in Orono are
the many wetlands and marshlands comprising Lake Minnetonka's upland
drainage system. Orono's six sq uare miles 1600 acres of marshland and wetlands
comprise fully one-third sixth of the City's land area. Map No.__indicates how the
marshland and drainageways are scattered throughout the City.
CMP 3A - 6
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FIGURE
WETLANDS, DRAINAGEWAYS AND FLOODPLAINS
These natural ponding areas ser\e an integral function within the natural ecological
system of Lake Minnetonka. The "Harza Study" includes quantitative data
identifying how the wetland soils easily retain phosphorus, and how marsh plants
take up and incorporate large amounts of nitrogen and phosphorus into their
growing tissue. Thus, the marshlands are the primary pollution filters for Lake
Minnetonka's surface water runoff.
Since marshes and small lakes in the watershed aggregate nearly as much area as the
main body of Lake Minnetonka, their potential for supplying water to the subsurface
formations is appreciable. In addition, marshes provide a diversity in the kinds of
open space available within the region. They provide a habitat which is uniquely
suited for certain birds and mammals. They can be utilized to provide storage of
storm runoff with minimal disruption to their function as a habitat for wildlife and
their ability to reduce the phosphorus input to the lake.
The historic problem has been that burgeoning urbanization has adversely affected
the existence and the function of wetlands. The Harza Study showed that typical
suburban forms of urbanization will lead to the pollution of the watershed and Lake
Minnetonka because of the increased phosphorus load which would be in the surface
water runoff.
CMP 3A - 7
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It is a documented fact that the amount of phosphorus increases with urbanization.
When urban development occurs, the function of the natural drainageways and
filtration system is adversely affected in three ways: The speed and quantity of the
storm water runoff are increased as the absorption ability of the land is eliminated
with hardcover (houses, driveways, roads, etc.). This increase in the speed and
quantit>' of storm water runoff causes the third adverse effect, which is the increase
of the amount of nutrients which are contained in the storm water runoff which now
has less time in the natural marsh filtration system to be purified before entering the
lake. Nutrients contained in dying vegetation, lawn fertilizers, and from other urban
sources are discharged into the lake faster and in greater quantities as the level of
urbanization increases.
The Hickok report entitled "Storm Water Impact Investigation for the Metropolitan
Council", November, 1972, revised February, 1973, shows showed that in an
urbanized area, as much as 3.68 pounds of phosphorus per acre is generated versus
0.3 pounds per acre of discharge from a two acre minimum lot size zone as exists
in rural Orono.
Orono's Surface Water Management Plan of 1974, also done by Hickok,
documented that Orono's existing rural wetlands could assimilate the rural
phosphorus load but would be insufficient to handle an urban phosphorus load. In
fact, Orono's existing urban wetlands were already overloaded. Thus, if rural Orono
were to become urbanized, even at relatively low urban densities, phosphorus
loading of Lake Minnetonka would increase to dangerous levels.
Orono. however, must not rely solely on the ability of the natural filtration system
of the marshes and drainageways to purify storm water so ncccssar>' for the
preservation of Lake Minnetonka. Several recent studies, one of which is by the
University of Wisconsin entitled "Effect of Marshes on Water Quality", concludes
that because of our freezing winter temperatures much of the filtration value of the
natural marsh process is lost during the annual spring snow melt.
It is commonly known that it is the cellular structure of aquatic vegetation that
assimilates nutrients from storm water running through marshland in the summer.
These studies point out, however, that this cellular structure freezes and ruptures
during the winter, thereby releasing all the stored-up nutrients to flush-out into the
lake in one mass loading during the first prolonged thaw. There tore. Orono is
advised to keep the basic level of urbanization low. particularly in the rural service
area, so as to minimize the adverse effect on Lake Minnetonka it this spring thaw
thcor>‘ is in time proven to be valid.
CMP 3A - 8
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Man-made Stormwater Ponding
While Qrono's newlv-adopted Surface Water Manauement Plan places a significant
emphasis on preservation of wetlands, it also provides for the establishment of
su pplementary stomiwater management ponds to help counteract the impacts of
development within the watershed.
The City of Orono in October 1993 amended the 1980 Comprehensive Plan bv
adoption of the use of NURP fNational Urban Runoff Program) standards for the
design of man-made stormwater ponds. This requirement has not vet been adopted
into the zoning code, but the Citv has been requiring NURP ponds for stormwater
management within new developments in accordance with standards of the
Minnehaha Creek Watershed District.
William W. Walker. Jr., an environmental engineer from Concord. Massachusens.
is credited with the 'model* which evaluated the design criteria for NURP ponds. He
used phosphorus retention data from 60 reser\ oirs and compared it to phosphorus
retention data for a number of ponds and lakes, including manv in the Twin Cities
area. He concluded that his 'model' could be used to predict the phosphorus
retention capability of urban lakes and wet detention basins based on a number of
design parameters. Conversely, it is then possible to design ponds which should
retain a given amount of phosphorus. Phosphorus inflow from a watershed to a
basin is reasonably predictable given the characteristics of the watershed.
NURP pond design criteria is primarily based on the removal of suspended particles
such as sand, silt, etc. Secondar\ design criteria enhance the capability of NURP
ponds to remove other pollutants such as trace metals, hydrocarbons, nutrients (such
as phosphorus) and pesticides. Phosphorus is rnainlv removed through biological
uptake in algae and aquatic plants. When the algae die, the nutrients fall to the
bottom of the pond and become part of the sediments.
Ponds in the Twin Cities area designed according to NURP standards have total
phosphorus removal eftlcicncies of 47 to 68 percent according to Walker.
Possibilities for improving this include (1) increasing mean pond depth: (2)
promoting infiltration: (3) promoting plug flowconditionsti.e. multiple cell ponds):
(4) applying chemicals to precipitate out the orthophosphorus (alum treatments): (5)
encouraging growth of certain aquatic plants: and (6) design of outlet structure to
provide extended detention of large runoff events. Whether each of these
enhancements can or should be incorporated is dependent on the desired level of
control and other site specific conditions.
CMP3A-9
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Constructed wetlands have potential benefits as well as drawbacks. Additionally,
the cost of constructing stormwater ponds and storm sewer systems is enormous
compared to the cost of wetland preservation.
New nutrient management technologies such as NURP ponds or alum treatments
will give Orono an added tool to manage runoff from rural densities, but Orono
cannot and will not rely solely on man-made systems for preserving water quality.
Orono's land forms are highly varied as the result of four separate glacial
scourings. Surface features include islands, peninsulas, narrow land bridges, the
lakes, bays and marshes, and a few shallow outwash basins. The highest elevations
range from about 1060 feet above mean sea level in the northern part of the City
down to the normal water level of Lake Minnetonka at elevation 929.4 MSL. Steep
slopes and numerous glacial depressions add interest to the City's landscape but
cause developmental limitations.
The soils in the City of Orono originated from drift materials deposited by
meltwaters of the glaciers. Due to the range in type and location of deposited
materials, the composition of the soils are complex and highly varied. Generally, the
soil types consist primarily of clay materials on the uplands and organic, wet
materials in the lowland areas. Consequently, the ability of each soil type to
adequately accommodate development varies considerably in Orono. Careful
examination of each site is needed to determine the most appropriate land use for
individual properties.
FIGURE
SOILS MAP
CMP3A- 10
Orono's native vegetation is as varied as its land forms. Orono and Lake
Minnetonka are at the intersection of t\\^o very different Minnesota landscapes.
Northern Orono, and many areas along Minnetonka's shore, contain vestiges of
Minnesota's Big Woods with hardwood forests of Oak, Maple. Elm, and Basswood.
Much of these have been thinned into scattered stands, as shown on Map No. 5, but
major forests remain in north central and north east Orono, especially around
Lydiard Lake and in the Mn. DNR’s Wolsfeld Woods and Wood Rill nature areas.
In addition, 100 year old settlements have by now added mature stands of various
evergreens and other decorative trees and shrubs.
Western Orono, on the other hand, shows traces of Minnesota's once vast prairie.
Years of farming have caused loss of prairie grasses and the artificial growth of
windbreak woods, but open vistas still stretch westward from North Arm Bay.
Throughout Orono, the many drainage areas and marshlands support a bountiful
variety of wetland vegetation ranging from grasses, bulrushes and cattails to sumac
and willow. The sum effect of these varied landscapes is a seasonal variety of color
and an abundant habitat for wildlife including deer, fo.\. racoon and beaver, ducks,
grouse, pheasants and innumerable species of smaller birds and animals.
Orono's ground water supplies are abundant. Orono enjoys the same abundant
ground water resources from the Twin Cities artesian basin as does most of the
metropolitan area. In addition, our generally heavy' clay soil layers near the surface
have protected the ground waters from surface pollution.
Most areas of the City have had no difficulty obtaining potable water supplies drawn
from the Jordan aquifer with wells ranging in depth from 75 to 200 feet. Only
occasional wells have had to go deeper.
The most noticeable ground water condition in the City is also caused by the same
heavy clay soil layer which in many cases traps a layer of ground water very near to
the surface. Especially near the lakeshore or any of the w etlands, wet organic soils
often have perched water tables within three feet of the surface. 1 hese areas present
severe restrictions on development but are scattered and localized such that
individual properties often contain diy soil areas as well as wetter areas.
FIGURE
VEGETATION MAI*
CMP 3A - 11
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SIIORELAND. FLOOD PLAIN ANH STORM WATER CONSIDERATION S
SURFACE WATER MANAGEMENT
Orono’s many miles of shoreline are especially sensitive to misuse or
overdevelopment. As the interface between land and water, the shoreline is ever
changing. Shorelines are subject to continual erosion by wave action, ice buildup
or unstable soil conditions. Droughts dry out vegetation and heavy rains or snow
melt cause land slippage.
On top of these natural pressures, man is drawn to the lake and the shoreline often
becomes his battleground with nature. Lake access often means active use and
construction of buildings and structures causing unnatural soil loadings, vegetation
removal, and land alteration. Exposed soil becomes more subject to erosion and
man-made hardcover increases direct runoff quantity and speed. Power boats
increase wave action and, more damaging, stir up the lake bottom causing release
of nutrients and increased turbidity.
The impact, of course, is a degradation of water quality, impaired lake access and
a change in the natural aesthetics which drew people to the shore in the first place.
Legal considerations become entangled when lot descriptions conflict or become
inconsistent due to changing water levels or shoreline locations. Therefore, planning
considerations must recognize the desirability of human interaction with the lake
while at the same time providing for protection of nature’s sensitively balanced
shoreline ecology.
Flood protection and floodplain management arc extremely important to a
community' as closely associated with water resources as is Orono. Orono has
no river system and therefore has no potential for swift, destructive floods in the
typical sense. But general highwater conditions have the potential of affecting many
properties by slowly rising water levels, shoreline destruction and high water tables.
Most critical are those residences built on low-lying peninsulas such as Baldur Park,
where a combination of high water levels and wave action caused by powerboats or
high winds mav cause severe shoreline erosion. In addition. Hooding of upstream
marshes may tend to cause localized backups or drainageway overloads.
Orono has participated in the National Flood Insurance Program and has therein
undertaken detailed studies of fiood-prone areas. Very few structures are actually
affected but care is necessaiy to ensure no luture flood plain encroachment and no
future loss of natural ponding areas which would result in higher water levels
elsewhere. The general trend seems to be potential for increasing high water
problems as urbanization spreads in other areas of the watershed thereby reducing
natural ground water assimilative capacity, eliminating ponding areas and increasing
CMP3A- 12
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storm water runoff quantities and speed. Therefore, Orono will preserve its wetlands
as much as possible to alleviate downstream flooding.
Management of storm water runoff is essential for protection of the water
quality of Lake Minnetonka, for preservation of the natural wildlife habitat of
the marshlands, and for protection against flooding and flood damage. The
discussions above about Lake Minnetonka's water source, about wetlands function,
shoreline protection and flood prevention all have a common connection to storm
water management. The following sections are excerpts and highlights of the
pertinent studies refereneed above:
The Metropolitan Council's 208 Water Qualitv' Management Plan
(1979) explained storm water pollution potential as follows:
''Background
The problem of urban storm water runoff and the variable pollutants it
carries has received an increasing amount of national attention in the past
five years, largely because the contribution of unrecorded sources to water
degradation had previously not been assessed. Literally hundreds of millions
of dollars of pollution abatement funds are at stake, requiring careful
allocation decisions.
The primary water quality problems occurring as a result of urban runoff are
caused by accumulation of pollutants and/or by short, intense 'shock loads'
that result in immediate water quality effects. National studies are showing
repeatedly that urb^n nonpoint inputs are a significant part of total water
pollution loading. They contribute a load of pollutants equivalent or greater
in some parameters than those released annually by municipal and industrial
point dischargers (this has been locally confirmed by the "Harza Study" as
being particularly relevant to Lake Minnetonka).
Urban Stormwater Pollutants and Pollution Process
The primaiy' pollutants moved by urban stomnvater are sediment, oxygen
demanding substances, nutrients, heavy metals, bacteria, chlorides from road
salt, oil and grease, pesticides and poisonous compounds called polychlor
inated biphenyls (PCB's).
Sediment from urban runoff merits primaiy attention both as a pollutant
itself, and because of the tendency of some metals, nutrients and pesticides
to adsorb onto fine soil or organic particles under certain conditions. Urban
stormwater quality has sediment concentrations generally far greater
CMP3A- 13
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than those of raw sewage, with predominant sources of sediment being
erosion, atmospheric fallout and vehicular deposition. The detrimental
effects of sediment include decreased light penetration, settling on lake or
stream bottoms, transport of adhered pollutants, clogging of fish gills and
decreased aesthetics. In general, urbanization will increase sediment loads,
with areas of rapid development contributing the largest loads, but with fully
developed areas also contributing large sediment volumes.
Oxygen-demanding substances introduced by urban runoff threaten receiving
water bodies with oxygen depletion resulting from biological and chemical
degradation of oxidizable material. Oxygen demand is best represented
through chemical oxygen demand (COD), but biochemical o,xygen demand
(BOD) has historically been used as the most convenient means of reporting
demand. BOD and COD concentrations occurring in stormwater runoff are
approximately equal to those of secondary treatment effluent. The degree to
which oxygen is lost as a result of this demand depends upon the amount of
degradable material in the stormwater, benthic oxygen demands and the
physical nature of flow in the receiving water body.
Nutrient (nitrogen and phosphorus) input resulting from urban runoff
is critical, since it becomes a contributing factor in eutrophication of
downstream inactive waters. Nutrient input levels are generally less than
inputs from municipal treatment sources, but nevertheless are significant to
the total water quality condition. Phosphorus input to water bodies,
particularly lakes, has in most cases been found to be the limiting element
in determining algal productivity. Nutrient character in the stomi water
runoff is highly dependent upon oxygen conditions. pH and physical
conditions such as sediment and organic content in the water.
Toxic hca\y metal loading from urban runoff merits attention as a potential
nondegradable aid to stream deterioration. Metals are capable of reaching
critical levels in quiet areas where they are able to accumulate in bottom
sediments. Loading of heaNy metals during a storm contributes a signi ficant
portion of the entire load to urban streams.
Other constituents of urban runoff of concern, but of variable severity,
include bacteria, chlorides (C1) from road salt, oil and grease, pesticides and
PCB’s. These pollutants can be locally severe depending upon receiving
water conditions and proximity to source areas.
The major identified sources of urban stormwater pollution include:
vehicular and industrial emissions and leakages, combined sewer overflows,
skid control grit and deicing salts, street and construction litter, vegetation
and animal droppings, improperly applied pesticides, atmospheric fallout and
CMP 3A - 14
precipitation and urban erosion. The largest inputs of urban pollutants within
a developed area come from industrial land uses, with commercial and high
density residential uses following for most pollutants.
Once pollutants are present on the urban surface, how they are moved about,
either suspended in the water or in solution, becomes very important for the
purpose of controlling them. Characteristically, an urban runoff event
consists of the washing-off of accumulated debris from a parking lot.
rooftop, street, etc., rapidly enough to move sand. grit, leaves and the like
and dissolve the soluble chemicals. Extreme stress on the assimilative ability
of the receiving water body is generally caused by an increase in both
pollutant concentration and water runoff volume as the storm begins and
overcomes normal watershed depression storage. The phenomenon of
highest concentration during an event occurring on the rising limit of a
hydrograph (runoff versus time) followed by gradual tapering-off is
commonly called 'first flush’.
The spring thaw of snow and ice can have an impact as great or greater than
rain. Pollutants trapped by ice and snow are released together with the
melt-water to produce a flush effect when temperatures rise enough to melt
significant amounts of ice and snow.
Other factors affecting pollutant migration include the storm pattern;
physical factors such as soil type, land slope, and type of vegetation ground
cover; infiltration into drainage systems; and amount of temporary storage
available in the watershed. The worst time for an urban stormwater runoff
to occur is during a period of low flow, high temperature and low wind,
when design loads for point source inputs have not taken into account
nonpoint inputs. These conditions overstress the ability of the stream or lake
to assimilate the pollutants.
Pollutants behave in various ways during stormwater runoff events. A
typical storm would contribute extremely variable amounts of sediment. The
laigest amount of sediment per volume of runoff w ould follow a first flush
behavior, that is it would correspond w ith the greatest flow of water and then
diminish. Associated with, and often adhered to this sediment are several
harmful pollutants, including metals, nutrients, bacteria, pesticides, and
PCB’s. Pollutants that adsorb to sediment generally tend to adsorb to the fine
fraction, thus increasing mobility and management difficulties.
The question of scale between individual runoff parameters becomes
important in analyzing the effects of urban runoff. For pollutants such as
COD and bacteria, the immediate areas downstream must be considered
critical soon after an event. Pollutants such as metals and nutrients, how ever,
migrate far downstream and have long-lasting effects."
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The 208 Study concluded that urban stormwater runoff pollution is potentially a
significant portion of total annual loading for the Metropolitan Area. Further water
pollution abatement programs must consider this source of pollutant input and
change to a balanced approach from the historic practice of considering only point
sources of pollution if future water quality goals are to be reached. Future upgrading
of municipal treatment plants and industrial dischargers should be viewed in light
of potential large capital e.xpenditures for treatment structures versus reduced
expenditures for minimum-structural or source control of nonpoint sources of
pollution. The study recommendation was that "abatement of nonpoint pollution
from urban runoff should receive high priority in future water pollution programs".
The Minnehaha Creek Watershed District's overall plan (1969) noted that:
"Urban development rapidly increases the amount of storm run-off in an area
because the hard-surfacing of streets and construction of buildings reduces
the amount of water absorbed by the soil. In addition, urban areas are
usually graded and drainage provided to prevent accumulation of surface
water. Since ground water aquifers are normally recharged by seepage of
surface water, increased urbanization may be expected to bring not only
greater surface water run-off but a decrease in the natural recharge of ground
water".
This finding lead to the MCWD policy that each municipality prepare a drainage
plan for surface water resulting from urban runolTand that "each community should
identify swamps and marshes to be left in their natural state", thereby acting as
settling ponds and filters and avoiding direct runolTinto Lake Minnetonka.
The "Harza Study", a program for prescr\ing the quality' of Lake Minnetonka,
(1971) determined that the limiting nutrient for algal growth in Lake Minnetonka
was phosphorus and that the natural function of marshland and wetland was to
retard surface water flow and remove nutrients, especially the phosphorus. And,
stomi water, especially that portion which runs off from urban lands, is expected to
become an ever more important source of phosphorus pollution.
The Harza Study noted that presets ing wetlands will play an important part in the
future handling of storm water. As the watershed continues to increase in
population, the rate of flow following stomis will tend to increase. The existing
urbanized areas were found to be approximately 25% imper\ious while new
urbanization tended to be 35% impcr\ious. Ihis factor plus the general rate of
urbanization was at that time having the effect of increasing the water resources of
Lake Minnetonka by an equivalent of 4.25 inches per year. This accelerated flow
rate was causing pressure for the construction of storm sewers or other structures to
convey the stomi water through the low areas and to reduce the w ater level increase.
But. the construction of storm sewers or paved channels allows stomi water to
CMP 3A- 16
by-pass marshes, thereby curtailing the benefit to be derived from them. On the
other hand, by anticipating problems of localized flooding, development can be
restrained in those areas, storm sewers can be avoided and storm water can be
allowed to meander naturally through the natural filtration system of the marshes.
Therefore, the Harza Study recommended that "the present policy of preserving
lakes and marshes from filling be continued. It is further recommended that the
future construction of storm sewers be minimized to those required to alleviate local
problems. Storm runoff from the watershed should be encouraged to flow over
marshes, not through them in conduits or around them.
An attempt should be made to locate those areas adjacent to marshes which may be
flooded intermittently because of increased runoff caused by future developments.
These areas should be reserv ed from further development just as tho’igh they were
a portion of the adjacent marsh".
The Metropolitan Council's Storm Water Impact Investigation (1973) included
several pertinent conclusions, as follows;
1. The total quantity of storm water runoff will increase if present urban
development practices are continued.
2. The impact of converting an area of undeveloped land to dense
residential use w ill increase the pollution load from that area by more
than ten (10) times.
3. The storm water from dense residential areas averagesfourteen limes
greater phosphorus concentrations than the lakes, based on the
results of this study, other similar studies in Minnesota, and that
found in literature. These concentrations are over nine times greater
than the concentrations associated with nuisance algae blooms.
4. Storm water runoff accounts for almost all of the nitrogen and
phosphorus added to the lakes and streams. This conclusion is based
on average flows and quality of the effluents from sewage treatment
plants compared to the flow s and quality of the storm water runoff.
Based on this data and the previous published studies, the Storm Water Study
included the following recommendations;
I.The objectives of storm drainage design should be revised from rapid
disposal to concepts w hich w ill decrease the impact of storm water
by reducing peak flows and improving quality.
CMP3A- 17
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2. The design criteria should include concepts such as on-site disposal,
retention ponds, retention of recharge areas and marshes, grass
waterways, and other new methods of management of storm water
which may decrease capital requirement for new development.
The following storm water policies and guidelines were then recommended for
consideration and adoption by the Metropolitan Council. These guidelines apply
applied to the development of municipal and private drainage plans and storm water
drainage systems including additions to existing facilities, and particularly apply
applied to Orono in its endeavor to protect and preserve Lake Minnetonka;
a.
b.
c.
d.
e.
f.
g
h.
The systems shall be compatible with metropolitan and local flood
control plans.
Storm water drainage shall be discharged to marshlands, swamps,
retention basins or other treatment facilities prior to entering the
public waters
Diversion of storm water to marshlands or swamps shall be
encouraged for existing or planned surface drainage wherever
marshes and swamps occur naturally and are feasible as receiving
bodies.
Marshlands and swamps receiving storm waters shall include
provisions for water level control.
Temporary storage areas or retention basins scattered throughout
developed areas shall be encouraged where feasible to reduce peak
flows, erosion damage, and possibly reduce the total cost to the
community.
Wide, shallow, grass waterways, where feasible, shall be used as
overflow channels from the retention basins to form an above-ground
drainage network. This waterway concept should be coordinated with
the greenways and open-space plans of the municipalities.
Natural vegetation shall be used to reduce erosion in the waterways
and act as a buffer between developed land and the retention basins.
The practice of storing all stonn water from natural units on that unit
shall be encouraged. Many residential lots may be amenable to this
concept and thus, ideally, whole subdivisions may be handled by this
method.
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CMP3A- 18
1.If marshland swamp disposal is not practical, some means to reduce
the level of settleable and suspended solids shall be constructed.
j. The drainage system components should be designed to maximize
upstream storage.
k.Facilities for temporary storage or for treatment of surface runoff
shall be designed for the discharge from a 100-year storm.
Finally*, Orono ’s 1974 Surface Water Management Plan is was a detailed
quantitative analysis of Orono's entire surface water drainage system. All wetlands
and marshes were individually reviewed as far as watershed, urbanization, runoft
characteristics, nutrient assimilative capacity and ponding capacity.
Pollution loads to the marshes and ponds were determined based on phosphorus as
the limiting nutrient. These loads took into consideration tributary acreage and
potential development on the tributary lands. The maximum phosphorus loading
comes from high density residential development and is 3.46 Ibs/acre/year.
The assimilative capacity of the marshes was determined using two rates. Permanent
standing water has an assimilative capacity of 4 Ibs/acre/year. Permanent standing
water was defined as areas of the marshes having cattails and other emergent
vegetation. The drver areas of the marsh, which have water in them only
intermittently, absorb a greater amount of phosphorus and have an assimilative rate
of 20 Ibs/acre/year.
The study data was then compiled into one table listing all identified marshlands in
the Citv (as shown on Map hlo. 4 and as legally identified in Orono s Flood Plain
Management Ordinance No. 213) for purposes of determining minimum required
marsh areas necessaiy to properly detain the surface water runoff, thereby avoiding
Hooding and affecting nutrient assimilation. The data included in this table is
outlined as follows:
1. Names of watersheds and code names for sub-watersheds.
2.Acreage drained to the individual marshes, with totals for the
drainage areas where necessary .
3.The acreage of permanent water in the specified marshes and totals
when necessary.
4.The acreage of intermittently flooded wetland and totals when
necessary'.
CMP3A- 19
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5.
6.
7.
8
10.
11.
The pollution assimilative capacity for each specific marsh with
totals when necessary.
The maximum residential density pollution potential for each specific
drainage area with totals when necessary.
The percentage of the marsh needed to assimilate the projected
pollution in its drainage area.
The acreage, if any, with the potential for development of duck
ponds, within a marsh (located in permanent standing water and
computed from the water quality data).
The acre feet of storage available within the marsh.
The acre feet of storage required to prevent the flood level from
rising more than 1/2 foot.
The percentage of each marsh needed to control flooding from a
24-hour, 100-year storm.
The statistical result of this study was the realization that a natural storm water
drainage and filtration system was economically practical for Orono. but that
excessive urbanization would outstrip the natural capacity of most of the wetlands
leading to flooding potential and to increasing levels of nutrient pollution in Lake
Minnetonka. Three of the twelve study recommendations are most significant in
terms of the effect on this the 1980 CMP:
1.
2.
3.
Every available means should be utilized to preserve the natural
w'ater storage and treatment system, which is one of Orono’s best
assets.
The City of Orono should protect land adjacent to marshes which
require more than their total existing areas to control storm water
runoff and preserve the water quality.
The City of Orono should acquire supplementary land which is
needed to preser\ e the integrity of the natural system of pollution
treatment and runoff control.
Orono took these recommendations to heart in its planninu durinu the mid-1970's,
via adoption of more stringent develoment standards that allowed for the
preservation of wetlands and required large minimum lot sizes to avoid the
detrimental effects of urbanization
CMP 3A - 20
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Orono 2000 Comprehensive Stormwater Management Plan
The 1982 Metropolitan Surface Water Mana2ement Act ("Chapter SOQ") compelled
regional and local watershed management planning. includin£ preparation of a
watershed management plan bv the MCWD. Development of the MCWD plan was
commenced in 1983 and completed in 1993. The MCWD plan establishes 7 general
goals for surface water management:
1) reduce the severity of flooding:
21 improve water quality:
31 control sediment transport and deposition:
41 preserve flood storage capacity:
51 minimize dredging impacts on surface water quality:
61 maintain watercourse integrity: and
71 preserve the quality and appearance of shoreland areas.
The MCWD plan and the Metropolitan Surface Water Management Act requires
local cities, including Orono. to take certain actions to carry out the District’s plan:
al prepare a local water management plan (or amend an existing planl in
conformity with the Watershed District plan:
bl establish a capital improvement program: and
cl adopt local ordinances for implementation of the plan.
The City of Orono concurrently with adoption of this update of the Community
Management Plan, will adopt and implement the Citv of Orono Comprehensive
Stormwater Management Plan (SWMPl completed bv Bonestroo and Associates.
The general objectives of this Plan are:
1- Preserve Orono’s wetlands, streams and lakes, esneciallv Lake
Minnetonka:
2. Reduce to the greatest practical extent the public capital
expenditures necessary to upgrade the stomiwater system in order to
meet water quantity and quality standards
Improve stormwater quality in all protected waterbodies bv
maximizing the amount of areas available for treatment:
Minimize existing flooding, erosion and sedimentation problems
generated b\ surface Hows.
Protect groundwater quantity and quality bv allowing for passive
treatment and inliltration of stomiwater
Promote groundwater recharge bv creating additional ponding areas
and preserving existing wetlands.
Protect and enhance water recreational onoortunities and fish and
wildlife habita t:
Preserve vegetation around stormwater detention areas bv leaving
them in a natural state, thereby reducing maintenance.
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CMP3A-21
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9. Secure the other benefits associated with the proper management of
surface water.
The objectives of the Orono Stormwater Management Plan conform with the goals
of the MCWD plan, and the Orono Plan conforms to all Regional. State and Federal
requirements for local plans. The Orono Plan contains the following goals and
policies:
(INSERT GOALS AND POLICIES FROM SWMP Pages 10-14)
SHORELAND MANAGEMENT
fDraft 1-2 page summary of Orono*s philosophy on shoreland management
and referenec the existing ordinances and history of regulation)
(Insert Shoreland Overlay District Map here)
TREE PRESERVATION
(Draft brief 1-2 paragraph discussion of philosophy on tree preservation. Big
Woods concerns and existing preser>'es. tree planting in new subdivisions, etc.)
QUALITY OF LIFE PRESERVATION
(Draft brief */i - I page discussion on Cit\’’s commitment to regulating other
environmental factors which affect the quality of life such as noise, visual
impacts such as night lighting, odors, etc.)
CMP 3A - 22
‘I w.*'. A.iA . i.i^TV'VS
ORONO’S ENVIRONMENTAL PROTECTION COMMITMENT
The Goals and Policies of this Chapter are basic to the remaining sections of the
Community Management Plan. Without environmental stability, Orono's character
and vitality would be lost. With environmental care and concern, Orono citizens
expect their forefather's heritage to live on for generations to come.
ENVIRONMENTAL PROTECTION GOALS
1.
2.
3.
4.
5.
6.
7.
8.
9.
To preserve the quality of Lake Minnetonka.
To preserve the quality of all other lakes in Orono.
To preserve the City's marshland, wetland and natural drainage
system.
To provide for surface water management such that the City is
protected from both flooding hazards and pollution hazards.
To protect the Cit> 's ground water resources from pollution and from
depletion.
To protect the :y from air, water and noise pollution.
To preserve open space, light and air, including solar access for all
properties.
To preserve a reasonable amount of native woodlands as an integral
part of Orono's heritage.
To protect and preserve a reasonable amount of natural wildlife habitat
in woodlands and wetlands.
10. To protect the land from soil erosion and the hazards of dust and
siltation.
CMP 3A - 23
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GENERAL POLICIES FOR NATURAL RESOURCE MANAGEMENT
1.
2.
3.
4.
Orono will promote the formulation and active use of environmental
protection policies by other Lake Minnetonka area municipalities and
responsible government agencies. Even though Orono plays a key role in
the protection of Lake Minnetonka, permanent preservation of the quality of
Lake Minnetonka is impossible without coordinated policies and without
active implementation of proven protective measures. Environmental
enforcement may be difficult in the face of development pressures, but
without commitment and sacrifice, a nibbling effect will surely place the
goal beyond reach and beyond recoveiy.
Environmental protection policies will be utilized in the formation of all
other goals and policies in this CMP. Orono's commitment to environ
mental quality is carried throughout each element in this comprehensive
plan, coloring the goals, policies and implementation practices in every facet
of municipal responsibility.
Development densit>' will be limited to a level which will not overload
the natural surface water drainage and filtration system. Urbanization
increases the speed and quantity of surface runoff while decreasing the water
quality. Developed land use densities will be determined by comparison
between known levels of volume and pollution generation and known
marshland capacity for ponding and nutrient assimilation.
Surface w ater runoff w ill be directed through the natural drainage
system. Direct runoff into the lake will be avoided and will be
prohibited whenever possible. The longer the routing of storm water
between source and the lake and the longer the duration of ponding in a
wetland, the more nutrients are assimilated and the more silt is settled. The
transfer of storm water runoff from one local watershed to another or
recycling water through the same marsh, will be pursued and encouraged as
a practical method for increasing the duration of water retention before
runoff enters the Lake. The result of extended retention w ill be improved
lake water quality.
Natural drainageways will be favored over artificial storm sew ers. Storm
sewers speed runoff and provide no natural filtration or nutrient assimilation.
Storm sewers will only be utilized in local flood prone areas or where there
is soil erosion insolvable by natural means. Whenever possible, storm sewer
outlets will be directed into marshland or natural drainageways and not
directly into the lake. Storm sewer systems will not be considered for new
developments or where satisfactory natural drainage systems already exist.
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CMP 3A - 24
6.
7.
8.
9.
10.
The wetlands and marshlands of the city will be protected and
preserved as wildlife habitats, as unique open spaces, and as the only
economically practical method of flood protection and storm water
runoff filtration. The Harza Study, the 208 Water guality Management
Study, and Orono's Surface Water Management Plan all recommend this
approach to permanent water quality management for Lake Minnetonka. In
addition, the Orono Plan goes on to identify individual wetlands and
marshlands that require protection as part of the City's storm water
management program. It is the policy of this plan to effectuate the policies
and recommendations of the 1974 Orono Surface Water Management Plan.
Protection of the city 's marshland, wetlands and drainageways shall
include protection of adjoining lands and prevention of drainage, filling
dredging or wetland's vegetation removal. Ordinances will establish
setbacks for all land alteration or construction. Wherever possible, the City
will acquire open space and flowage easements for conservation of these
lands.
Protection of lake resources w ill allow reasonable access, use and
enjoyment while preventing overcrow ding and excessive encroachment.
In conformance with Mn. DNR Shoreline Management regulations for
Recreational Development lakes, the City will prohibit overly dense
development within 1,000 feet of Lake Minnetonka. Lake use regulations
will be promoted to limit excessive boat density and overuse of sensitive
bays. Land use regulations will be developed to provide reasonable control
over building density, land alteration and lakeshore encroachment.
Lake shorelines will be protected from alteration. Natural vegetation in
shoreland areas will be preserv'ed insofar as practical and reasonable in order
to retard surface runoff and soil erosion, and to utilize excess nutrients.
Clearcutting will be prohibited. In areas of soil or wave action erosion,
natural stone rip rap shoreline protection will be encouraged.
Lake bed alterations will be discouraged because of adverse short-term
and long-term effects on water quality. Dredging of lake beds releases
large amounts of otherwise trapped nutrients and silt which adversely affects
water quality for long periods of time. Dredging of new channels or inlets
will not be approved to provide riparian access where none existed naturally.
Dredging will be permitted in limited circumstances only where absolutely
necessary to maintain existing natural riparian access permanently lost by
something beyond the control of the landowner. Periodic low water
conditions or the owner's desire for deeper draft watercraft are not sufficient
reasons for disrupting sensitive lake beds.
CMP 3A - 25
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11. Development or alteration of floodplains will be restricted. Most of the
City's identified floodplains are located along the shoreline or within
designated marshlands and will be protected by other provisions applicable
to those areas. In addition, where floodplains do exist on otherwise dry
buildable land, construction, filling or alteration will be strictly controlled
so as to avoid flow restrictions, to avoid flood level increases on other
properties, and to avoid costly flood damage or pollution dangers.
12. Natural resource investigation will be required as part of all
development proposals. 1 his will include topographical intormation, soil
analysis, drainage plans, vegetation plans, erosion control measures and
similar site data related to each project, whether public or private. The extent
of each such review will be determined by probable environmental impact.
Greater detail will be required of larger projects than of smaller ones. As
proximity to Lake Minnetonka or a major wetland increases, so will the care
and concern increase in direct proportion.
13. On-site water retention facilities will be required as part of all residen*
tial, commercial or industrial development projects whenever necessary'
to maintain or improve the existing storm water runoff patterns.
Whenever a development’s location, size, scope or hardcover would
tend to increase the quantity' of runoff, increase the speed of runoff, or
decrease the quality of runoff, that development will be required to provide
on-site retention facilities sufficient to maintain the existing situation or to
improve the resulting runoff by reducing quantity, reducing speed and/or
improving quality. No development will be pemiitted to adversely impact
it's neighbors, or the City, by changing drainage patterns or by otherwise
adversely affecting storm water drainage. National Urban Runoff Program
(Nl IRP) standards will be applied to the desiun of new stormw ater ponds.
(This amendment was required by Met Council per CMP
Amendment No. 5 adopted via Resolution No. 3343 on 10-25-93)
14. Land use and development will not be permitted at the expense of
environmental protection. No land will be permitted to be subdivided or
built upon which is held unsuitable by the City for the proposed use because
of flood hazard, inadequate drainage, soil formations with severe limitations
for development, severe erosion potential, unfavorable topography,
inadequate w ater supply or sewage disposal capabilities, or any other feature
likely to be harmful to the health, safety, or welfare of the future residents
of the proposed subdivision or of the community. No land use will be
al lowed to adversely affect the neighborhood ’s air or water resources nor w ill
any use be permitted to emit noise, dust, electrical or radiation pollution.
C.MP 3A - 26
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15.Erosion control plans and programs will be required in all land
alteration projects. Each contractor will be required to minimize the
probability of soil erosion on site and/or siltation damage downstream. The
smallest amount of bare ground shall be e.xposed for as short a time as
possible. Temporary ground cover will be required until permanent cover is
provided. Sediment traps will be required on slopes and between
construction sites and public roadways. Fill must be compacted and
stabilized for permanence.
Erosion control Best Management Practices shall be annlied to all land
alteration projects. The MPCA’s Urban Best Manatzement Practices
entitled “Water Quality in Urban Areas” shall be annlied to the review of
proposed developments to reduce non-point source pollutant loadings in
storm water runoff. To implement this policy, the Citv wioll incorporate
these standards and requirements in its its stormwater manatzement plan and
land use controls.
(This amendment was required by Met Council per CMP
Amendment No. 5 adopted via Resolution No. 3343 on 10-25-93)
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URBAN AREA POLICIES FOR NATURAL RESOURCE MANAGEMENT
1.
2.
3.
Land use standards will limit the impact of urban encroachment on
Lake Minnetonka. Minimum lot widths will space out docks and structural
encroachments while increasing areas of natural vegetation. Lake use
regulations will limit the number of boats per property and the amount of
public waters available for private docking and boat storage.
Retention of natural vegetation will limit the impact of urbanization as
visible from the lake. Building heights will be limited to less than the
typical tree height. Minimum green belts will be provided with prohibitions
against clearcutting or e.xccssive thinning of vegetation. Natural vegetation
will be preserved on slopes. Retaining walls will be discouraged except
when absolutely necessaiy to pre\ent erosion, in which case they will be
screened with natural vegetation
Direct runoff into the lake will be minimized. Standards will be
established and maintained to limit the amount of impervious hardcover in
proportion toclosene.ssofthe shoreline. Maximum hardcover will be limited
to 30% of each parcel within 1,000 feet of the shoreline pursuant to Mn.
DNR recommended shoreline practices.
CMP 3A - 27
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4.All existing urban wetlands will be maintained and protected for
surface water retention and filtration. The existing urban runoff exceeds
the capacity of the urban marshes to assimilate all nutrients, therefore
additional pollution hazards would be created if any wetlands would be lost.
Additional steps to improve nutrient assimilation include on-site retention
on all new developments and storm water recycling through the existing
marshes.
5.City maintenance practices will be designed to improve storm water
quality. Salt use for winter street treatment will be minimized. Snow-
removal practices will locate temporary storage sites where they will not
overload the natural drainage system or where foreign matter, especially salt,
will not directly enter a marsh or lake. Spring cleanup will promptly remove
road sands and salts before environmental damage occurs.
6.A signiflcant amount of natural woodlands and open space will be
retained on each property. Retention of the natural environment requires
careful siting and preservation of trees and open space on each urban
property.
7.All developments will be designed to assure protection of light, air, and
solar access for neighboring properties. Requirements for minimum lot
size, amounts of open space, minimum yard setbacks, and maximum
building heights will be designed to assure protection of these values for all
urban residents.
RURAL AREA POLICIES FOR NATURAL RESOURCE MANAGEMENT
1.Land use standards will limit the pollution loading of rural marshes
and drainageways. Rural densities will be low enough to ensure
permanent reliance upon satisfactory on-site sewer and water systems where
municipal sewer is not feasible and to ensure that rates of phosphorus and
nitrogen generation will not adversely affect the water quality in the natural
drainage system.
2.Rural land use densities w ill allow maximum retention of private woods
and open space. Low rural densities will accommodate homesites without
affecting the traditional vistas of open fields and woods. The retention of
these woodlands and marshlands will then assure permanent habitat for our
abundant wildlife.
CMP 3A - 28
3.
4.
Rural wetlands and marshland will be maintained and protected for
surface water retention and filtration. As total watershed population
increases, even at our relatively low rural densities, the volume of runoff
increases as does the nutrient input. Upland marshes and wetlands will
be required for flood control water retention and for maximum nutrient
assimilative capacity.
The City will promote farming practices designed to conserve the soil
and ground water. Where farming occurs in the rural areas, the use of
innovative tilling methods, land banking, crop rotation and wind breaks are
encouraged to protect the native soil from erosion and deterioration. Animal
sanitation methods will be enforced to assure minimal pollution of
drainageways or ground waters.
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2.
3.
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5.
6.
DRAFT TABLE OF CONTENTS
CMP PART 3C. Housing Plan
Page
Introduction - Scope .......................................................................3C-1
Basic Housing Concepts and Principles..........................................3C-4
Table _• Population Projections
Summary of Existing Housing Statistics........................................3C-10
Table _- Dwelling Units by Type
Table _-Owner/Renter Statistics
Table _- Age of Existing Housing Stock
Table _- Navarre Housing Study Results (TO DO)
Table _- Valuation of Owner-occupied Units, 1990
Table _-New Homes Construction Valuations 1990-1998
Table _- Rent Range of Rental Units, 1990
Metropolitan Livable Communities Program ..................................3C-19
Housing Improvement Goals and Policies ......................................3C-22
Housing Action Plan.......................................................................3C-25
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CIIAPTER -5
PART 3(C)
HOUSING fiVlPRQVEMENT PLAN
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INTRODUCTION
An increasing priority of national, regional and local concern is for the provision of
an adequate supply of safe, affordable housing for all citizens. Housing is basic to the
quality of life of all people yet many persons, particularly those of low and moderate
income level and those on fi.xed incomes, are living in substandard housing or are
denied adequate choice in housing type or lifestyle. The rapid increase in prices and
the inadequate supply of newly built affordable and lifecvcle housing have meant that
middle as well as low income persons are increasingly unable to afford housing that
meets their needs and desires. At the same time, much of the area’s housing is aging,
and there is an increasing need for neighborhood preservation and housing
rehabilitation.
The Metropolitan Land Planning Act requires that local comprehensive plans include
"official controls and land use planning to promote the availability of land for the
development of low and moderate income housine" (Minn. Stat. Sec. 473.859.
Subd. 2). To flirther address housing needs, the Minnesota Legislature in 1995
enacted th»" Metropolitan Livable Communities Act, establishing a fund for
communities to invest in local economic revitalization and affordable housing
initiatives. The Act provided for funding in three specific areas: cleaning up polluted
land: revitalizing communities and promotimi efficient development: andproviding
housing affordable to people with moderate incomes.
The Metropolitan Council has identified (and the Citv Council has acknowledged)
three major housing problems that e.xist in the Metropolitan Area that affect Orono :
1.There is an inadequate supply of lower cost housing in good condition and
large numbers of people arc inadequately housed. Much of Orono's housing
stock consists of winterized summer cottages or farmhouses dating to the
early 1900's, although these are steadily being converted to. or replaced with,
more substantial housing of significantly higher valuation.
l.ow and moderate income housing is largely concentrated within the two
center core cities. W'hile this is true for the Metropolitan Area as a whole, it
is also true for Orono and other lake area communities on a smaller scale that
have where substantial neighborhoods of older homes built 50-100 years ago
are in need of repair or upgrading.
CMP 3C - 1
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3. Middle income persons are increasingly unable to afford housing suitable to
their needs and wishes. The gap between the price of housing and incomes
has been steadily widening, with ever greater numbers of people priced out
of the housing market. The result is that even the middle income family is
faced increasingly with substantial difficulties in finding affordable housing
which is suitable to its needs. This is of particular concern in Orono. whprp
fully 1/3 of the housing stock is valuable lakeshore property, and the
developing off-lake housing in rural Orono has been skvrocketinp in value
due to a keen dema nd for the low-densitv lifestyle and amenities.
This Housing Plan is an indication of the ongoing policies and concerns of Orono
residents toward solving our own housing problems. This Ph n is a refinement and
restatement of the planning direction established in the 1974 Orono Village
Comprehensive Guide Plan and the 1980 Orono Community Management PInn and
is prepared and presented for the following purposes:
1. The Housing Improvement Plan is intended to provide a review of
Orono's existing housing stock. As an outlying municipality on the
d eveloping fringe of the Metro area, especially one with miles of desirable
lakeshore, it is easy to forget or to overlook the true housing situation in
Orono. By providing a brief review of e.xisting housing statistics, one quickly
realizes that Orono is not a typical "new" suburb of middle income monotony.
2. The Housing fmprorcmmt Plan is intended to be a management tool for
City officials. City staff and other parties interested in improving the
condition of Orono's available housing supply. As such, the Housing
Plan includes goals and policies aimed at guiding housing improvement
consistent w ith our Land Use Plan, local housing needs, and the Metropolitan
Council s policies for low and moderate income housing.
The Housing impros eiiieiit Plan is the housing element of tmr Orono's
Community Management Plan, designed to advise the Metropolitan
Council of our hou.«ing needs and intentions. The Metropolitan Council is
the responsible regional agency charged with reviewing subsidized housing
plans and ^.i^grams foi the jica the housing element of local land use plans
asirequired bv the Metropol itan Land Plannino Act. This plan is designed to
advise the Metropolitan Council of our existing housing situation, our
analysis of local and Lake Minnetonka area housing needs and our proposed
programs for meeting those needs.
3.
CMP3C - 2
BASIC HOUSING CONCEPTS AND PRINCIPLES
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The Housing linpr ovcmciit Plan is an integral part of Orono's Community
Management Plan. Although the statistics and detailed policies apply specifically
to this one element of community planning, the overall goals and objectives have
been derived from Joint and concurrent consideration of all community planning
elements. Therefore, the policy decisions relating to Orono's housing improvement
programs complement and balance regional plans with local concerns for historic
development patterns, environmental protection, public health, fiscal responsibility
and general land use.
Orono's urban and rural areas provide distinctly different lifestyles, amenities
and services which jointly benefit the community as a whole. Each area has
separate planning priorities and separate environmental considerations. Urban
areas and urban services will not be permitted to encroach on or destroy the
rural area of the cit>'.
Historic development patterns established 100 years ago are responsible for the dual
personality that characterizes Orono. The lure of the Lake drew summer residents and
resorters who established the crossroads of Navarre, which continues to this day as
the commercial center of Orono. Likewise, away from the Lake, Orono has
developed slowly as a community of •'ural residential w oodlands and open space. The
lifestyles are different, the needs and desires of the citizens are different and the
requirements for public services are different from the urban area of Orono.
Orono's urban areas have historically provided ample opportunity for a vast spectrum
w ide ranee of housing opportunities and all of the neighborhood ser\ ices necessar>*
to support the residents of the City, urban and rural alike. These areas contain most
slightly over half of Orono's existing housing stock and most of the existing
substandard housing stock.
Orono's rural areas in the past have provided the opportunity for low density housing
at affordable prices, orchards, greenhouses, hobby farms and recreation areas not
possible in either urban areas or in commercial agricultural areas. This low density
of land use is has been and will continue to be particularly valuable as a protection
for the marshlands, woodlands and other natural resources that dot the area. Here,
where housing is often as old as in the urban areas is scattered among housing
developed over the last 20-30 years, btrt the overall density is low and no urban
services are available.
CMP 3C - 4
As the rural area has developed over the last two decades, particularly in north central
Orono. land values have skyrocketed, driven bv market demand for the rural lifestyle
provided bv low-densitv development. The resulting conversion of farmsteads into
primarily higher value single family neighborhoods, has occured at a rate that iust
keeps UP with demand. New rural lot developments are typically sold out within the
first year. This ongoing demand has made it difficult to acquire land at prices that
would allow For development of affordable housing without conversion to urban
densities. Clearly, the needs for affordable and lifecycle housing will not be met in
Orono's rural area.
Orono has acknowledged the need for a wider range of housing alternatives,
both within Orono and within the Lake Minnetonka area, and has taken steps
to provide new locations for development of urban density housing where it will
not be in conflict with the rural area. These areas will be rezoned to allow for
appropriate urban housing densities and will become a part of Orono's urban serv’ice
area.
Orono's land use plan calls for development in both the urban and the rural
portions of the City. The urban area will see new residential development on the
existing vacemt lots and undeveloped parcels similar to the forms of development
projected for typical of the closer-in suburbs. Opportunities exist for substantial
rehabilitation projects in the older urban neighborhoods and for scattered-site new
construction of subsidized affordable and lifecvclc housing units. Overall urban
density will remain relatively low because of the ecological considerations of
proximity to Lake Minnetonka. New areas proposed for urban development located
primarily outside of the defined Shoreland area will be developed at densities ranging
from 1 to 4 or more units per acre, commensurate with the City's identified need for
a wider ranue of housing alternatives to serve an expandinu ramie of housing needs.
The rural area will sec continued residential development at a steady pace with most
land divisions resultinu in the creation of 3-8 lots being of the t\w to four lot variety.
Strict subdivision review will ensure adequate retention of privately owned and
maintained open space, wetland conservation, and on-site sewage treatment system
site evaluation. Scattered rural rehabilitations will be necessary on the older homes
and cottages in certain existing rural housing clusters. The typical rural lot will
continue to provide modera te income alternative a hiuhlv desirable lifestyles as the
low investment in public scr\ ices continues to make the land competitive with more
fully developed suburban properties.
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C.MP 3C - 5
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I Orono's land use plans and programs allow new urban and rural developments
to provide comparable cost housing opportunities.
Orono has never had regulations requiring arbitrary minimum square footage in
homes. Orono has never required such cost increasers as garages, paved driveways
or mandatory landscaping. Any structure which conforms to State Building Code
safety requirements can be built on any residential lot in the City.
In addition, Orono has had long experience with rural residential development
including a full six years a quarter century of requiring at least 2.0 acres of dry
buildable land for each rural dwelling. From this experience, Orono has found that
housing built on rural lots of 2 acres per dwelling can be and is often comparably
priced with housing built on ty pical 10.000 square foot 1/4 to 1/3 acre suburban lots
in neighboring developing cities. The difference is one of lifestyle and necessary ’
public improvement investment.
The typical suburban lot requires massive amounts of investment for improvements
necessary to allow urban density, including sanitary sewers, municipal water, storm
sewers, p aved public streets, street lights, large-scale earth moving and landscaping
or erosion control measures. Indirect costs include park development fees, and
increasing taxation to pay for schools, police, fire and general governmental
expansion. Development time often exceeds a year or two from concept to reality.
All these costs, plus large, long-term carry’ing charges, are built into the cost of each
urban home.
On the other hand, rural development as practiced in Orono is relatively quick and
inexpensive. Small rural subdivisions have been completed within 90 days. Each
rural lot is subject to extensive site and soil evaluation to ensure adequate, permanent
on-site septic system operation. But, the installation of on-site septic systems and
individual wells cost s co ns iderably less per un it th an are comparably priced with
municipal sewer or and water systems. There is n o extensive The extent of land
alteration and no storm sew er n ecessary construction is minimized . A11 access is via
the existing street system or by new roads privately owned and maintained by the
landowner. Road construction is less expensive, because of the limited-use rural
sections need not be built to urban design standards. Municipal tax levels remain the
same because the development density can be accommodated within the means of the
existing public services and facilities. Thus Orono's two acre lots provide a vastly
different lifestyle for the same market price as other cities' 10.000 square foot 1/4-1/3
acre urban neighborhoods.
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CMP 3C - 6
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POPULATION FORECASTS HOUSEHOLD FORECASTS
YEAR 1970 1980*1990 2000 Saturation 1970 1980*1990 2000 Saturation i
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Urban Area 4160 4250 5120 5900 7200 1400 1450 1740
2000 2400
Rural Area Kill 3040 3220 3640 3800 746 980 1040 1180
1267 %
Total City 61S1 7290 8340 9540 11000 2146 2430 2780 3180 3667 1
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(NEW TABLE)
ORONO POPULATION PROJECTIONS (November 1999)
Population Forecasts
Year
Urban Area (1/2 & 1 ac.)
Rural Area (2 & 5 ac.)
Total City
1970
4,160
2,627
6,787
1980
3,995
2.850
6,845
1990
4,135
3,150
7,285
2000
4,115
3,685
7,800
2010
4,950
4,100
9,050
2020
4,900
4,400
9300
Saturation
4,925
4,450
9375
Occupied Household Forecasts
Year
Urban Area (1/2 «S; I ac.)
Rural Area (2 & 5 ac.)
Total City
1970
1,316
830
2,146
1980
1,337
954
2391
1990
1.483
1,130
2,613
2000
1.491
1,335
2,826
2010
1,900
1,500
3,400
2020
1,950
1,750
3,700
Saturation
1,975
1,775
3,750
Sources: U.S. Census; Metropolitan Council forecasts; City records and forecasts.
*Does not include vacant dwelling units
Note: Urban and Rural Areas correspond to zoning districts as of 1 999, do not reflect conversions from Rural to Urban,
and do not coincide with sew ered/non-sewered areas of the Cit\’.
Orono's land use plan accommodates all expected population growth in a wide
variety of housing opportunities. The forecast population increase of 2,240
appro.ximatelv 1500 persons in the ne.xt twenty years translates into a housing
demand of approximately ?50 900 new dwelling units. This average of-3? ^ new
dwellings per year is consistent with or slitihtlv above Orono's rate of actual building
permit issuance during the T9764 past three decades . From past experience and based
on the Land Use Plan, approximately 40% half of these new units are expected to
develop in the urban area and approximately 6 0% half in the rural area.
The Metropolitan Council's Regional Blueprint and the Minnesota Livable
Communities Act emphasizes the advantages of free choice a wide range of
housing alternatives and in housing locations such as that afforded by Orono's
differing urban and rural neighborhoods. The location of housing alternatives is
directly related to the opportunities and services enjoyed by residents of the
Metropolitan Area. Location intluences not only access to employment, but also the
availability of neighborhood parks and recreational programs, libraries, health care
facilities, day care centers, and access to major retail centers, highways, and public
transit. Thc-Metropolitan Council therefore rccommend s-that-people freedom
of choice in the location of tfaefr housing.
CMP 3C - 8
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The Metrop oli tan ■ Coun cil - has designated Oro no as a "third prio rity”
co mmunity insofa r as urban ho using po licy is co ncerned. Co mmunities with Imd
n-ithin the Metro po litan Urban Service Area (MUSA) are expected to plan adeqiate
land fo r pro jected ho using gro vMh and to pro vide an appropr iate share o f ho using fo r
perso ns o f a «mge o f inco me levels. The regional ho using po licy calls fo r subsidized
housing to be located near activity centers or as part of ' new towns ' or large scale
Planned Unit Devrlop ment offering adequate levels o f services and facilities, and
near high amenity areas. As a third prio rity co mmunit}*-; Oron o dees no t co ntain such
large scale acti\nty centers and therefo re is generally lew in prio rity* fo r the alloc ation
of such housing. Plans o f third»prierity co mmunities’are expected to be more
long-term and less detailed than plans o f inner»ring suburbs, with unit alloc atio ns
being fairly limited numbers and in so mewhat more distant future. The need for
rehabilitation and redevelop ment is generally no t high in third-apriority communities,
but it is an impor tant need in Oro no because o f the age o f so -much of our urban
ho using stock.
Successful development of a wide ranee of housing alternatives is directly
related to the ability to obtain the necessary infrastructure and public services.
In today’s market, affordable housing and many forms of lifecvcle housinu are only
feasible at urban densities, which require urban infrastructure such as municipal
sewer and water, and the wide range of urban services not available in the 80% of
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Orono that is planned for low-densitv rural residential development.
New housing alternatives in Orono are planned primarily to occur within the
existing urban area as well as in specified urban area expansions that are
detailed in the Land Use Plan. These housing options will include a range of
housing styles and types at densities of 1 to 4 units per acre. Where feasible,
affordable housing units will be incorporated within multi-unit new^ housing
development.
The Metro po litan Cou ncil recognizes that rural commun ities require different
housin g programs than do urban comm unities. Metropoli tan Co uncil po licy do es
not enerrurage urban'-scalc residential dcvelo pment"hr the Rural Service-Area, nor
does C-Ouncil policy suppoi t the de vx lopment of subsidized housing in the rural areas?
Rural needs for subsidized housing are to be met within the Freestanding Growth
Centers such as Maple Plain, or within the existing Urban Service Area, including
Orono s urban neighborhoods and other urbanized lalce area cities such as \A^ayzata,‘
Lo ng Lake and Mound , where urban services and amenities are available. In areas
where rural scale residential develop ment oc cursror dinances should pemnt the
co nstruction -o f mo dest-co st market-rate ho using.----1 iousing-plans o f rtiral
com munities are eicpected to sho w ho w the co mmtmit>‘ intends to maintain its rural
character and manage its new residential sirvelo pmcnt:
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SUMMARY OF EXISTING HOUSING STATISTICS
Housing Types
The following sections provide a brief summary of the housing types, occupancy
tenure, structural condition and price range of housing in Orono. More detailed
information on each subject is provided in the CMP Appendix.
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HOUSING TYPES
(OLD TABLE)
SINGLE FAMILY UNITS
MULTI-FAMILY UNITS
2,356
74
97%
3%
TOTAL NUMBER OF DWELLINGS 2,430 : 1.450 urban; 980 rural
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DWELLING UNITS BY TYPE (1990)
Type Number of Units % of All Units
Single Family (One unit detached)2,711 97.3 %
Duplex Unit (One unit attached)23 0.8 %
Twinhome Units (2 units)27 1.0 %
Apartment Units (3-4 unit)9 0.3 %
" " (5 or more units)5 0.2 %
Mobile Home/Trailer 1 0.0 %
Other II 0.4 %
Total Dwelling Units, 1990 2,787 100.0 %
Source: 1990 U.S. Census
By far, the predominant housing type in Orono is single-family detached dwellings.
This is true of both the urban and the rural areas of the City. The number of
multi-familv structures has remained small with most of these units located in the
Navarre Area. The small amount of existing multi-family development is traceable
to a lack of undeveloped urban land, to a lack of available transportation or
significant shopping facilities, and to the availability of numerous apartments in
nearby Mound, Spring Park, Wayzata and Excelsior.
CMP3C- 10
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(OLD TABLE)
HOUSING TENURE
OWNER OCCUPIED
RENTER OCCUPIED
SEASONAL OR VACANT
1,920
316
79%
13%
194 8%
TOTAL NUMBER OF DWELLINGS 2,430
(NEW TABLE)
OWNER^ENTER STATISTICS (1990)
Occupnacy Type
Owners
Renters
Total Occupied Units
Vacant Units
Total Dwelling Units
Number
of Units
2,372
241
2,613
174
2,787
%of
Occupied
Units
90.8 %
9.2 %
100.0 %
% of All
Units
85.1 %
8.6 %
6.3 %
100.0 %
Source: 1990 U.S. Census
A comparison between housing types and housing tenure reveals that a relatively
large number of single family dwellings are rental units and that the total number of
rental properties far e.xceeds the number of multiple family dwelling units. The high
percentage of seasonal/vacant units mav be a reflects reflection of the lake-cottage
heritage. While many old cottages have been converted to rental or year-round
dwellings in the past, there remain a significant number of cottages on the islands
which will likely not be converted in the future.
Age of Existing Housing Stock
Table indicates the ranee in ages of Orono's existing housing stock bv defining the
decade of construction. Approximately 30% of the housing stock is more than 50
years old, which raises concern about its continued functionality if attention is not
paid to significant upkeep activities. The percentage of housing units constructed
prior to 1950 is significantly higher in Qrono than that for the Lake Minnetonka area
as a whole. These units generally occur in the rural area or in clusters that developed
historically around Lake Minnetonka, such as the Crystal Bay. Stubbs Bay.
CMP3C- 11
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Minnetonka Bluffs and Navarre neighborhoods. Over 40% of the housing stock is in
the 20-50 year aee range, where style updatin2 and normal maintenance such as
roofs, heating systems, etc, require ongoing investment. The numbers in Table
do not necessarily reflect the extensive remodeling and upgrading that many Orono
residences, especially lakeshore homes, have undergone in the last two decades.
(New Table)
AGE OF EXISTING HOUSING STOCK
Year Built
Owner
Occupied
Renter
Occupied Vacant Total %
Pre-1940 553 84
42 679 22.5 %
1940-49 223 18 18 259 8.6 %
1950-59 432 20 28 480 15.9%
1960-69 340 26
18 384 12.7%
1970-79 347 61 36 444 14.7%
1980-89 477 32 32 541 17.9 %
Subtotal
(thru 1990)
2^72 241 174 2,787 92.3 %
1990-99 (est.)200 16 17 233 7.7 %
Total (1999)2,572 257 191 3,020 100.0%
Source; 1990 U.S. Census; City Building Permits 1990-99
Condition of Existing Housinti
The City conducted a housing condition windshield surv ey in 1978 which indicated
that approximately 90% of the City's existing housing was in good condition. 1% or
173 units in fair condition, and about 3% in deteriorated or dilapidated condition.
That sur\ ev used recognized puidelines for ratine each unit bv surveyed bv exterior
structural condition.
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---------GOOD-------------------------------------------
r* A in
—2r206--------
1 71
■■ 9m—
1 AIK 1 / J
_________Al ■
f /V
_____OlWfLiL. 1 1 LL/
r\TT A mrx a
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1A
J. / u
L/1L.A1 lUA 1 LU 1U l/.*r7D
---------TOTAL NUMBER OF DWCLLINGS----2,430
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CMP 3C- 12
In or der to determine the co nditio n o f Oro no^s existing ho using sto ck, a windshieH
survey was undertaken in Octo ber, 1978. To acco mplish-this task, recogniz ed
gutdelines were used to rate each unit surv eyed by exte rior structural co nditio n, with
the-ho using units being rated as Goo d, Fair, Deterio rated or Dilapidated.
The results of this the 1978 windshield survey indicates indicated that a very high
proportion of the housing stock in the City is was in good condition by exterior
appearance. Most of the deteriorated or dilapidated structures are were located in the
older areas of Navarre or in some of the rural housing clusters as identified in the
1980 CSPP. Others are were isolated houses which hare had not been maintained or
c ccupied in many years. It was also noted during the windshield survey that several
of the deteriorated housing units arc were either in the process of or have had already
undergone certain amounts of rehabilitation.
A further review of housing in the City in 1997 suctzested that while the condition of
housing in the rural areas and on the lakeshore had remained generally good, much
of the older housing in the Navarre area appeared to be in need of major maintenance.
Because Navarre provides a significant portion of Orono's 'affordable* housing stock
(housing meeting established rent/valuation guidelines for low and moderate income
groups), the poor apparent housing condition was deemed to be a critical concern.
As a result, the Citv initiated the Navarre Housing Study in June 1997. including a
field study, a mail survey, and research. The survey collected demographic and
income information, as well as information regarding residents' plans for, and ability
to complete, future rehabilitation. A summary of the study is included in the
following table:
CMP3C- 13
RENT RANGE OF RENTAL UNITS (1990)
Monthly Rent it of Units % of Units
<$:oo s 3.7%
S200-299 5 2.3%
S300-399 21 9.6
$400-499 34 15.6%
S500-599 37 17.0%
$600-749 45 20 6%
S750-999 23 10.6
SIOOO or more IS .S 3 “»
Total with
Cash Rent
191 87.7 %
No Cash Rent 27 12 3 "o
Total 218 100.0 %
Source: 1990 U.S. Census
Low 3nd N'locicrjtc Income llousirui
In 1 9 70. approximatd>H-7.6 perreent of Oronn’s total-housing stock was in the price
rcinyc litt'orcIiiHlo lownnd nioJcrjtc incviiie pcrsviiis «is Jcfincid by the Nlctropolittin
Cmincil and using federal gu idelines. I hir; induded homes—valued at under $ 15,000
and unit?! renting for Ic?;y than $ 1 50 per month in 1 9 70 dollars. This compares to an
a\ot .>»>*/o on a meiropol i tan I Io\\ c \ . it should be noted that a relatively
sniall portion ot Orono is urhani/cd (m is pio'* iJed~witli such urban services as
municipal .■sewer and water .syst ems.
Modc^tt-Cost I loii^dntr
Modest cost Iiousi includes pri\ ate niai kct*i ate housing that is at fordable lo iiiiddlc
income persons. In 1 *^75 dollars, modest cost-hnusing includes privately owied units
costing bct\s ecn S20.00Q and $40,000 and apartments renting from $360 to $440 per
month. In 1 9 70. approximatcKSO.-^^i of Qrono's singl e»family homes and 1 9 % of
its rental-units-were in-thc-modcst cost range.
Suhsid'/cd Hou.sinu Units
At the present time, the City of Orono does not eontairj any units of subsidized
housing. I his is due in part to the lack of. or limited shopping and employment
opportunities, public transportation, medical facilities and limited extent of other
eommunity ser\ ices such as municipal seuer and water systems.
C'MI’sC- 17
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METROPOLITAN HOUSING SUBSIDY ALLOCATfON
The Metropolita n Council ha s adopted a Subsidized Housing Alloca tion Pl;m to help
achiev e the goa l of increasing locati onal choice For low an d moderat e income
households throughout the a rea. To a ccomplish this, the Council has determined
priority a reas to assis t in the distribution of all ocat ed units. Orono. due to its lev el of
serv ’ices and fa cilities has been designated a third priority community and bas ed upon
this, has been all ocated a modest am ount of subsidized units.
On rebrua r>‘ 28,-F98 0 ,-the Metropolitan Council ad opted a new allocation procedure
for subsidized housing units for the period 1980 -1983. The formula has changed
whereby a dolla r am ount for different subsidized housing programs has been
all oca ted to ea ch commonit}*. These all oca tions were made on the basis cf tou^
census population an d projected population growth. No adjus tment was ma de in
considera tion of Orono's limited urban are a or limited urban sendee capabilit>‘.
The following tabl e indica tes the dollar am ounts all ocat ed to Orono al ong w4th the
preferred usage for those funds as determined by the Metropolita n Council, and as
rev ised by Orono to reflect only our urban populat ion percentage: only 58% of
Orono's popula tion and 59^ij of Orono's households ar e located within the Urban
ooC rvic e Area.
1 lOUSCl lOLD-TYPE-ALLOCATION—(TABLE FROM P. CMP 5-10)
Orono's local needs assessment program has identified a strong need forelderh’
assis tan ce senior housing and a broader ranee of housing choices, and a strong
need for substantial housing rehabilitation.
In many cases, this is the identical need which has been generated by the major
development surge that occurred in Orono between 1946 and 1955. These post war
years were when most of our population increase occurred as returning ser\ icemen
purchased former seasonal lake cottages and turned them into year-round residences.
They raised families and stayed in their home. These people are now retired and on
fixed incomes, fhey are often widows or widowers without ready resources. This
phenomenon also accounts for Orono's relatively low persons per household figure
as used in tnc CSPP. These long term Orono residents are living in substandard
conditions by todays standards. They need help or they will be forced from their
homes w ith nowhere to go. Thus. Orono has identified one of our greatest needs as
housing rehabilitation for elderly senior-citi/en homeowners and for alternative
elderly senior housing accommodations in the immediate lake area.
CMP3C- 18
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I In response to the Met Council benchmarks, the City Council in Junel996 adopted
a Housinti Action Plan identifying rehabilitation of existing substandard housing as
the City ’s top priority, citing limited commercial-industrial development or
employment opportunities, and limited availability of public services, as barriers to
providing opportunities for life-cvcle and affordable housing in Orono.
The Livable Communities Act additionally established a minimum required level of
annual local spending towards affordable and life-cvcle housing needs, known as the
Affordable Life-cvcle Housing Oportunities Amount (ALHOA) based on the City ’s
homestead net tax capacity excesses. Orono*s oast expenditures toward the ALHOA
have been primarily from Community Development Block Grant funds earmarked
for residential rehabilitation urants and loans.
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Meeting Sub-Regional Housing Needs Requires a Sub-Regional Approach
The Metropolitan Council's Regional Blueprint suggests that each metropolitan area
community is expected to provide a range of housing options to meet the needs of
residents at all stages in the lifecvcle. and where feasible, increase options for
affordable housing. Once needs have been identified, th r . a plan for meeting those
needs must be established and implemented.
The Lake Minnetonka area is comprised of a number of individual cities, both larue
and small, each of which have the capacity to provide housing for certain 'niches'of
the population, but few of which have the capacity to provide for all cateuories of
lifecvcle or affordable housimi. In order to identify the existing life-cvcle and
diversified housing, and to identify opportunities for such housing from a sub
regional perspective, the 16 Lake Minnetonka Area Cooperatinti Cities (l.MACC) in
1998 prepared a Sub-Retiional Housing Study.
The LMACC Study identified a number of kev issues which set the stage for
addressini: problems and identifvimi opportunities for development ot adequate
housinu in the subretiion. The kev issues re. tte to two primar\ factors: the changing
profile of the LMACC cities, includinti demouraphics, life-cvcle housinu. population
turnover, and low/moderate income households: and the housing stock, includin g
market trends, housimi conditions, housinti valiics. and housing options The Study
proposes a series of 6 Housine Initiatives, iiidudmg:
A Subregional Approach to addressimi housimz needs;
Actions to create Sustainable Communities;
Development of Diversified Housing Options:
listahlishment of Sunnort Scr> iecs such as transit access, child care
assistance, etc.
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CMP 3C - 20
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Establishment of a Subregional Housing Redevelopment Authority
fHRA^: and
Protection of Existing Housing,
Housing Needs Related to Highway 12 Bypass
The Highway 12 Bypass expected to be completed ca. 2006 will result in the
acquisition bv MnDOT in 2000-2001 of approximately 90 homes within the City of
Long Lake and another in Orono. The Citv of Lone Lake does not have
sufficient land area to accommodate relocation of these homes, many of which are
in the $ 1 00.000-200.000 price ranee.
Orono’s CMP now proposes to expand the MUSA in the area east of Willow Drive
between the Burlington Northern Railroad and Watertown Road, and plans to re
guide this area from 2-acre Rural SFR to Urban SFR at a density of 2-3 units per
acre, similar to the adjoining development in Orono’s Hackberrv Hill neighborhood
and to abuttinu residential development in Lone Lake. The primary purpose for this
expansion is to provide land for in-kind relocation of Lone Lake home displaced bv
the Highway 12 Bypass.
Because market forces would potentially tend to result in development of this
area with homes in the S250.000-500.000 ranee, the Cit>' of Orono will
investigate and promote methods bv which the desired price range housing can
be assured.
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CMP3C-21
HOUSING IMPROVEMENT GOALS AND POLICIES
Orono's Housing Improvement Plan is based upon the following Goals and Policies
which are designed to be consistent with our regional housing responsibilities and
with the Goals, Policies and Plans of the other elements of the Community
Management Plan.
HOUSING IMPROVEMENT GOALS
1.
3.
4.
5.
To improve the housing conditions of persons residing in substandard
housing.
2. To provide safe, healthful, and blight-free residences and neighborhoods.
To provide opportunities for a mix of housing types, locations, and cost
ranges which will meet the needs and provide adequate housing for all
age and family groups.
To provide housing types and residential densities consistent with
environmental and land use plans and with the availability of public
services and facilities.
To provide immediately beneficial housing programs for the greatest
number of needy Orono residents.
URBAN HOUS 1 NG PQLl C 1 ES
1.
2.
The residential areas of urban Orono are primarily suitable for single
family homes. Because of historic development patterns, most of Orono's
urbanized neighborhoods are located along the Lake Minnetonka shoreline,
or within 1,000 feet cf the shoreline. These lands are environmentally
sensitive to overuse or over development such as typically occurs with large
scale developments. Low density residential land use is compatible with
Orono's environmental policies of limited hardcover and ma.ximum retention
of natural open space and vegetation.
Alternative housing types will be provided by planned residential
developments. A limited amount of land is available within the Urban
Service Area for planned developments of attached townhomes. garden tj'pe
apartments or mi.xed residential and limited commercial land uses. These
housing clusters or multiple family developments will be acceptable only
where full urban services are available and only where the proposed density
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CMP 3C - 22
is compatible with the neighborhood and with local environmental
constraints. Multiple family developments generally will not be considered
appropriate for lands within 1,000 feet of Lake Minnetonka nor for areas such
as Navarre that have limited transportation access to outside employment or
shopping facilities. Increased density housing alternatives will be primarily
developed along Orono’s Highway 12 corridor in specifically identified areas
that are or will be served by urban services.
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3.
4.
5.
6.
Urban density residential development must occur within the existing
deflned Urban Serv ice Area. Orono's Community Management Plan is not
a staged growth plan. The Urban Serv ice Area as defined in this Plan will not
be expanded into the defined rural area and urban services and facilities will
not be extended into the rural area for purposes of fostering or allowing
increased development in those areas.
Urban density residential development will utilize existing or planned
public services and facilities. New residential development will be allowed
to infill existing vacant properties within the Urban Service Area consistent
with environmental limitations and with the existing or planned capacities of
water, sewer, drainage, transportation and recreational facilities. New
development will not b-* permitted to overburden these services at the
expense of the existing users. New urban development will not be permitted
if it requires additional unplanned local or regional facilities capacity.
The city will promote scattered site development as opposed to large
scale tract development within the existing developed urban area.
Scattered site development has less impact on the existing neighborhoods or
on the existing jj’iblic facilities capacities than does a concentration of
development at one location. In addition, most of Orono's existing urban
neighborhoods are a homogenous mix of newer and older homes
intermingled with an occasional vacant lot ora larger, divisible lot. There is
no single neighborhood which is in need of complete renewal or
rehabilitation. Therefore, there is no need for nor any economical way of
assembling a large tract of property for single-project development.
The City will promote rchabilitutioii of existing older or substandard
homes. Whereas there is no identifiable block of deteriorated housing in the
City, there are a substantial number of older homes or converted cottages that
are in need of repair, energy conservation measures, or major rehabilitation.
In man; cases, these-homes arc occupied by low income or fixed income
persons who cannot undertake the needed work within their means. The Citv’
will promote private and subsidized public rehabilitation efforts to improve
the existing housing stock, to improve and maintain the neighborhoods, and
most importantly to improve the living conditions of the affected citizens.
CMP 3C - 23
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7.The City will promote development or rehabilitation that is compatible
with the existing neighborhood. The City will encourage all homeowners
and developers to be conscious of the neighborhood, the site and the
environment in the design and improvement of residential properties. The
City will encourage, and in many cases, require the retention of woods and
vegetation, open spaces, light, air and scenic views. No new development
will be permitted to conflict with or to adversely affect the established
neighborhood character.
8.The City will promote subsidized rehabilitation that benefits the existing,
often long term, Orono resident. Our citizens are Orono's greatest asset. As
they grow older, we should not turn them out of their homes, but rather we
should help them provide safe and comfortable living conditions in their
existing neighborhood.
RURAL HOUSING POLICIES
1.Housing in rural Orono will be limited to single family homes at
established rural densities. Orono's Land Use Plan iw will result in an
ultimate rural density of one dwelling per seven acres on minimum lot sizes
of 2-to 5 dry-buildable acres each, and one dwellimi per four acres where the
zonina requires a minimum 2-acre lot size. This density is consistent with
the City's environmental protection commitment and is consistent with the
overall Goal of preserving the historic rural character of the area. Because of
this preferred use, and because there is no provision for any municipal sewer,
water or other urban services, multi-family development or any densely
clustered residential development will not be appropriate for rural Orono.
2.The Cit>' will promote rehabilitation of existing older or substandard
rural homes. Rural Orono contains a significant number of older homes,
which also require repair, energy conservation measures or major rehabilita
tion. These rural owners also require the same type of assistance often
reserved for urban areas. Therefore, the City will promote private and
subsidized publie rehabilitation efforts in both urban and rural housing
improvements programs.
CMP 3C - 24
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HOUSING fMPROVElVfE?ff ArXION PI AN
Orono's Housing Improvement Plan is a set of implementation policies designed to
achieve the above stated Housing Goals and Planning Policies.
As has been indicated, the dominant land use in the City of Orono is primarily that
of single-family residential homes. There is very limited industrial-commercial
development or opportunities for employment and shopping within the City. Orono
residents have always relied on the historic town centers in adjacent communities for
shopping as well as employment. The general lack of commercial and industrial
development and the limited availability of city services such as municipal sewer,
water and mass transit will limit the opportunities for, and make it difficult, if
possible at all, to provide opportunities for new subsidized h o using de velopinciits
anywhere life-cycle and afford able housing in Orono. On the other hand, there are
deteriorated and dilapidated housing units located throughout the City. Most of
Orono's urban dwellings have been upgraded from seasonal cabins through either
private or public rehabilitation programs. Others remain in need of attention.
As-stated in the Metiopuli tan Council's Development rramewoi lc Guide, ^'liiipiuviiig
A top priority in Orono must be improving the housing conditions of persons who are
presently inadequately housed and eliminating substandard housin g must be a tup
concern". Thus, rat.her than pursuing construction of new subsidized life-cvcle and
affordable housing units in the City, Orono's Housing lmprovemeiit Actioii Plan is
aimed principally at improving the condition of Orono's older homes, both urban and
rural, and improving the housing conditions of Orono's many low, moderate and
fixed income residents.
Orono will encourage community pride. Private initiative has always been
a characterstic of Orono residents. Programs will be pursued to encourage
continuing maintenance and upkeep of all properties and to promote the
privately financed rehabilitation of older and under-used properties.
21 Orono w ill participate in housing rehabilitation subsidy programs. Many
Orono residents, both urban and rural, are occupying older housing that has
code-related structural, safety or health hazards, substandard living conditions
or energy inefficiencies. They would like to improve their housing condition
and their neighbor; •' .od's appearance, but are unable to because of insufficient
income. In man^ eases, older couples are forced to choose between heat or
food or leaving their place of long residence. Orono will continue to actively
participate in L .<inniunity Development Block Grant and Minnesota Housing
Finance Assistance programs designed to help these citizens meet their veiy
immediate housing n.- Is.
CMP 3C - 25
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36. Orono will promote energy conservation methods and procedures. The
Building Inspection Department will actively keep abreast of all new systems
and products and will assist all homeowners in auditing and improving the
energy efficiency of their homes. Orono will actively pursue and advertise all
available programs for energy conservation funding.
4r
53.
62.
?4.
Orono will subsidize land costs for certain new low and moderate income
housing opportunities. Zoning variance s will be granted whenever
reasonabl e to allow use of existing urban lots for new moderate income
pro^'idi
L
h ousing.-Tax*f orfeited lots will be purchase d for resale at cost to
min imal cost property for th e cons truction of low and moderately pneed
h ousing:
Orono wiH may encourage developers to provide a variety of housing
types and cost ranges. Whenever a multiple family or clustered housing
development is proposed, Orono will actively encourage setting aside a
reasonable number of units for large families and/or for low and moderate
income families. Orono will participate and assist developers in applications
for loan guarantees or other suitable forms of housing subsidy aids which
may be available. Orono does not hav e suitable land for extensive new
development and therefore will not individually pursue nc"vv construction
subsidy programs. In addition. Orono is philosophically opposed to rcgrcssi\ c
subsidy programs that place ex.^cssivc burdens or debts on future la.\payers.
There fore. Orono will be extremr.ly reluctan t to participate in long term or
open “cn ded programs such as 1 lUD Section 8\
Orono will cooperate with neighboring cities to fulfill area-wide housing
needs. Most apparent is the need of manv etderlr senior Orono residents who
desire to live in the immediate area, but who cannot find available elderly
senior housing. Orono will actively participate with nearby municipalities tn
poolin g of quotas;-allocations, bonding capacity , subsidy dollars and/or staff
ex pertise in order to work toward jointly providing cost effective elderly
senior housing at locations that are near to home yet also convenient to
necessary shopping, transportation and medical facilities.
Housing construction will be subject to uniform state building code
requirements but will not be burdened with unnecessary zoning
requirements. Orono does not intend to require arbitrary minimum dwelling
sizes or minimum amenity installations as these artificial standards only drive
up the cost of housing while limiting the buyer ’s freedom of choice. Zoning
standards for lot area and lot density will be based strictly upon
environmental concerns and public facilities availability. Zoning performance
standards will be based upon minimum health and safety standards such as
fire protection and open space availability. State Building Code performance
CMP 3C - 26
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standards will be enforced to ensure structurally sound, weather resistant
buildings providing adequate health and safety protection for the future
occupant and for the general public's welfare.
CMP 3C - 27
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2.
3.
4.
5.
6.
7.
DRAFT TABLE OF CONTENTS (REVISED 1/10/00)
CMP PART 4 A. Transportation Plan
Page
Introduction - Scope.................................................................................. 4A-1
Basic Transportation Concepts and Principles.......................................... 4A-3
Land Use Impact on Transportation ............................................................4A-10
Traffic Volume Forecasts............................................................................4A-11
Figure _-Traffic Volumes 199_
Table _- Traffic Volumes
Figure _- Projected Traffic V'oluracs
Table _- Projected Traffic Volumes
Figure _-Traffic Analysis Zones (TAZ’s)
Table _- Forecast of Population, Households & Employment by TAZ
Transportation Goals and Policies............................................................ 4A-12
Transportation Goals
General Transportation Policies
Urban Transportation Policies
Rural Transportation Policies
The Transportation Plan ............................................................................ 4A-18
Primary Corridors
The Countv Road 15 Corridor
Figure _• County Road 15 Corridor
The Highway 12 Corridor
Figure _- Highway 12 Corridor
The Ring Route Concept
Orono ’s Roadway Classification System
Table _-Transportation System and Functional Classification
Figure _- Roadway Classifications
Right-of-Way Preservation and Access Management
Public Transportation Services
Figure _- Public Transportation Routes
Bicycle and Pedestrian Facilities
Street Maintenance Program
Expected Transportation Improvements................................................... 4A-24
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CHAPTER 7
Part 4A.
TRANSPORTATION PLAN
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INTRODUCTION
Transportation services and facilities arc important elements in the community's
ability to accommodate expected development. This plan is a refinement and
updated version of the transportation policies adopted in the 1974 Orono Village
Comprehensive Guide Plan and the 1980 Orono Community Manaaement Plan.
The Plan reflects the growing'energy awareness of the region and its significant
effect on commuter practices as well as reflecting the current long range plans of
the Minnesota Department of Transportation and the iV'letropolitan Councrl as
regards exp ected transportation facility improvements chamtes in the nature of
Metropolitan Area development expansion since the late 1970's, as well as the
current short and loutz ranee plans of the Minnesota Department of Transportation.
This Plan is prepared and presented for the following purposes:
1.
2.
The transportation plan is intended to be a management tool for City ’
oHIeials, City ’ staff, and other parties involved in providing, managing
and maintaining a transportation system in the city ’ sufficient to
accommodate the needs of Orono citizens while also addressing
regional transportation needs. 1 he content and direction of the
Transportation Plan is based upon our environmental protection
commitment and our expected development position within the immediate
Take Minnetonka Area and within the fwin Cities Metropolitan Region as
a whole. For this purpose, the Transportation Plan contains goal and policy
statements consistent with the overall planning objectives of the City; it
reviews the existing roadway system and the type of usage it receives; it
reviews environmental and land use considerations; and it includes plans
for accommodating future transportation requirements for travel both
within the City and within the region.
This plan is the transportation element of Orono's Community
Management Plan, designed to address and conform to all the
applicable provisions of the Metropolitan Council's Development
Framework C-hndc RecMonal Blucnrint. For this purpose, the Plan's
inventory and planning considerations include sulficient detail to explain
how Orono’s plans and facilities are consistent with those of neighboring
municipalities and with the metropolitan facilities of the region as a whole.
This purpose and content is consistent with the City ’s Community
Management Plan, with the requirements of the 1977 Mandatory Land
CMP 4A - 1
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Planning Act and vvith-thc4ocal "systems statement ” issued to Orono by the
Metropolitan —Council and with the Metropolitan CounciPs 1996
Transportation Development Guidc/Policv Plan .
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SCOPE
The time framework of the Transportation Plan is intended to be consistent
with the regional planning period of 19 80 through 199 0 2000 through 2020 .
and with the City's permanent planning policies for rural Orono and for
environmental protection of Lake Minnetonka. The goals, policies and
proposed transportation plans contained in this chapter are set in the context of the
legislative mandate to plan for regional needs through the year 1990 2020 . In
addition, Orono’s long range land use plans call for permanent maintenance of the
existing low density rural residential areas. There is to he no staged growth plan,
no expansion of the existing urban service area, and therefore, no significant
increase in the transportation requirements to serve Orono residents . Because of
Orono's environmental protection commitment and because of the location of
County Roads 15 and 19 so close to Lake Minnetonka, this Plan also includes
permanent goals and policies for protecting Lake Minnetonka including providing
alternati\'c transportation routes away from and around the lake.
CMP 4A - 2
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BASIC TRANSPORTATION CONCEPTS AND PRINCIPLES
The Transportation Plan is an integral part of Orono's Community ’
Management Plan. Although the statistics and detailed policies apply
specifically to this one element of community planning, the overall goals and
objectives have been derived from joint and concurrent consideration of all
communitv planning elements. Therefore, the policy decisions relating to
Orono's transportation requirements complement and balance regional plans
with local concerns for historic development patterns, environmental
protection, fiscal responsibilitv ’ and general land use.
The basic responsibility of the City Is the protection of its citizen's health,
safetv and welfare.
In terms of transportation systems, this means that a street system must be
provided for safe access to all developed properties with sufficient capacity to
accommodate the expected number of trips generated by the planned land use.
Design and construction standards of the system must be flexible enough to
accommodate different potential traffic requirements. I rattle control and curb cut
regulations will be necessary to minimize or prevent conflicting movements or
unsafe conditions. A uniform system of identification must be provided for street
names and house numbers to permit etticient location ot properties and
particularly to facilitate quick response in emergency situations. Alternative
transportation modes must be investigated to provide alternative transportation
opportunities to lessen our dependence on the automobile.
The City's transportation system must reinforce the land use plan. One of the
basic functions of the transportation plan is to reinforce the development policies
and the resultant land use plans ol the city. In Orono, this means reinforcing the
permanent urban/rural land use goals. This means providing sutllcient capacity for
trips between Orono's residential neighborhoods and the commercial centers of
Navarre and other lake area municipalities as well as the metropolitan area to the
cast of Orono As a pructiwal matter, this means little or no need for expansion of
any highways or roads in the city in the fu tu re to serve new development in Orono_;
rather, expansion and iinurade of l ake area and reuional transportation corridors
will be driven bv the nattem of commuters livimi in communities west of Orono .
Ilistorie development patterns have resulted in a city which Is partially urban
and partially rural. Development patterns established 100 years ago are
responsible for the dual personality that characterizes Orono. The urban areas
provide higher density housing opportunities and all of the neighborhood services
necessary to support the residents of the City, urban and rural alike. The rural areas
provide areas for low density housing and quasi-agricultural activities. The
lifestvles are different, the needs and desires of the citizens are different and the
requirements for public ser\ ices are different.
CMP 4A - 3
Orono is partly in the Metropolitan Urban Service Area and partly in the
Rural Ser\'ice Area. The Metropolitan Council as part oF its Reeional Growth
Siratetiv has established a MUSA lirrc boundar\- that rings the Twin Cities
separating urban and rural areas defininti the urban area, the permanent rural area,
and an urban reserve which is expected to be converted from rural to urban over
the next 40 years . Within the MUSA area, metropolitan facilities, including more
extensive transportation systems, will be provided for urban development. Outside
the MUSA area, in the Permanent Rural Area, developed density is expected to be
low and metropolitan facilities and capacities will not be provided. Map No. 6
indicates th e actual location t)f th e boundaiy between th e Urban Semce Area ar.d
th e Rural- Service Area as it-passes th rough Orono. In the past the Metropolitan
Council's broad-brush maps have shown the MUS.A boundar\- to be running
throiuih Orono dividimi our Citv into Urban and Rural sections. While the current
MUSA boundary does divide Orono. the illustrative 2020 MUSA shown in the
Regional Growth Strategy places all but the northwest tip of Orono within the
MUSA, and virtually all of Orono is shown within the MUSA bv 2040.
Urban and rural neighborhoods require differing levels of public ser> ices and
facilities. The urban areas of Orono have sufficient density to require and to
financially support, municipal services such as a typical urban roadway network.
The rural areas, on the other hand, have limited density and have environmental
restraints prohibiting urban density encroachments. The planned rural densities do
not require extensive public roadway systems nor can these rural densities support
any type of mass transit system.
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RH-DO THE FOLLOWING SIMILAR TO LAND USE SECTION LANGUAGE-
Recent changes in national priorities, population trends, metropolitan plans,
and metropolitan facilities reinforce the planning and development objectives
of Orono.
The 1950's and 1960's were years of great expansion and reliance upon the powers
of science and industry' to solve all problems. Population graphs showed growth
projections running off the paper. Suburbs boomed while core cities were lighting
for their vcr>' survival.
The 1970's brought a new en\ ironmental awareness and an understanding that
nature, not science, was the key to our planet's survival. New social concerns
revived the cities and showed how characterless the suburbs had become. Inflation
and population stabilization brought unlimited expansion to a halt as roads,
schools, and all public services began scrambling for maintenance dollars while
overbuilt facilities quickly became tenible taxpayer burdens. The cost of energy is
dramatically refocusing every one's attention on conservation and carelul planning
of anv new facility.
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The results of these changes on the Twin Cities region and on Orono are
significant. Orono's ultimate population projections have been dropping from
estimates of 37,000 made in 1970, to 23.000 in 1972, to 14,000 in 1974, to the
Metropolitan Council's most recent figure projection of 11.000 made in 1979.
Population trends durme the last 20 years and a careful analysis of development
capabilities of remaining land as compared to Orono's current zoninu, suggest an
ultimate oooulatiL ti of around 9,400. This figure is verv- close to our existing
estimated population of 7.300 7,800 . and is still probably potentially high
considering the new ener gy pro blems and our recent growth trends,—The 11,000
populati on projection and would be easily obtainable within our existing land use
planning and zoning densities.
ORONO POPULATION PROJECTIONS (November 1999)
Population Forecasts
Year 1970 1980 1990 2000 2010 2020 Saturation
Urban Area (1/2 & I ac.)4,160 3,995 4,135 4,115 4,95C 4,900 4,925
Rural Area (2 & 5 ac.)2,627 2,850
3,150 3,685 4,100 4,400 4,450
Total Cit}'6,787 6,845
7,285 7,800 9,050 9,300 9375
Occupied Household Forecasts*
Year 1970 1980 1990 2000 2010 2020 Saturation
Urban Area (1/2 & 1 ac.)1,316 1,337 1,483
1,491 1,900 1,950 1,975
Rural Area (2 & 5 ac.)830 954 1,130 1,335 1,500 1,750 1,775
Total Cit>' %2,146 2,291 2,613 2,826 3,400 3,700 3,750
Sources: U.S. Census; Metropolitan Council forecasts; City records and forecasts.
*Docs not include vacant dwelling units
This decline is consistent with the general decline in birth rate and population
projections for the region as a whole, as, well as a realization that a population
shift is occuring which will see renewed growih of the central cities and inner-ring
suburbs. (?)
Hie projected population is in line with Orono's rural land u.se preservation
policies and with the proposed public facilities plans of Orono. the State
Department of Trimsportation and the Metropolitan V\’aste Control Commission.
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Changes in population trends and projections have brought on modifications in
metropolitan facilities affecting emr Orono’s transportation planning. Regio nal
re%%’er~facilities capacities have chang ed drastically. Qnginal plans called for
sewering all of Orono with capacity for 37.;060 people. But the final Orono-LuUg
Lake~Interceptoi vvas leloeated and is in place with a design capacity for less than
8.400 Orono residents and a service area limited to the existing urban and
lakcshore neighb orhoods. In addition, regional transportation plans have been
chang ed as commuters mo\'e in toward the center cit%*. 1 he State ot Minnesota has
dropped plans for rclucating and e.x panding llig hwas-12 through -Orono as had
been .sho^^n in our 19 74 Comprehensive Guide Plan. Interstate jQ4 may be built
between Minneapolis and Interstate* 494. but there are no plans tor additional
idinu of State-Hiehwav 12 west of Wayzata. Indeed. -Ilig hw-a}-13 wasttpgr
resurfaced-in 1978 after statewide priorities shifted from lIighwayl-2 to Highway
212 as the major east»west arterial forccntral Minnesota: As a result of Orono’s
low-densitv land use plan, metropolitan sewer facilities capacity allotments for
Orono were significantly reduced in the late 1970's. In addition, while as of 1980
MnDOT plans for relocating Hielnvav 12 had been shelved. Interstate 394 became
a reality from Minneapolis to 1-494. providinu improved commuter access for the
western suburbs. .Although Hiehwav 12 was resurfaced in 1978 after statewide
priorities shifted from lliuhwav 12 to Hiiihwav 212 as the major east-west arteial
for central Minnesota, in the late IQSO's pressure from outstate intere.sts auain
brought focus onto Hiuhwav 12 as a vital transportation corridor. .Additionally, as
residential development leap-frogged past Orono to the far western suburbs and
into Wright Countv. commuter traffic on Highway 12 through Orono has created
high traffic counts and backups that eventually add traffic to parallel corridors such
as County Road 6. The increased ‘througir traffic has had significant effects on
transportaion plans for Orono and Long Lake.
Orono's coninicrcial and economic development have always been centered in
the historic town centers. I hc shopping, employment, educational and social
needs of Orono residents have been more than amply met by commercial facilities
and shopping centers located in Na\arre and in surrounding communities. Rural
and urban residents alike utilize these tacilitics and in fact, the commercial
stability of the neighboring cities relies in part upon the regional service area that
includes all of Orono. Orono's transportation plans there lore As a result, Orono s
transportation plans address not onlv the efficient movement of commuter traffic
through Orono. hut also the local service needs of our residential neighborhoods
and the transportation links between these neighborhoods and the established town
center commercial areas.
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A principal goal of Orono's planning program is the protection of natural
resources and environmental amenities, particularly the water quality of
Lake Minnetonka. This goal has its most profound impact on Orono's land use
policies and is therefore indirectly linked to transportation concerns. The most
direct connection, however, is that occasioned by County Road 1 5's location along
Lake Minnetonka's shoreline.
As the western Lake Minnetonka communities have grown and developed they
have generated more commuters and the resulting traffic on County Road 15 has
increased significantly. Yet there is no room to e.xpand the road without filling into
the lake or removing a significant number of lakeshore homes. Any increase in
road size, or any appreciable increase in roadway use, will only create an
intolerable barrier between these homes and their platted riparian shoreline.
Thu s-.-Qrono's Orono maintains a deep concern for finding alternative routes for
these commuters in order to protect Lake Minnetonka and to preserve shoreline
amenities, landowner's property rights, and the general public's ability to
e.xperience a slow-paced journey along Lake Minnetonka's most scenic and most
accessible shoreline.
Mass transportation alternatives are scarce in Orono and other Lake
Minnetonka cities. Region-wide, mass transit has been the neglected stepchild of
the post-war auto boom. Lver since Minneapolis's last streetcar ran in 1954, the
only public transit has been a less than adequate bus system supplemented by
e.xpensive taxis.
Metropolitan fransit Authority control of the bus network has increased service
lev els including the prov ision of regularly scheduled routes through Orono. This
serv ice is provid ed through Navarre and most of our more densely populated urban
neighborhoods, but schedules are spread out and off»peak-serv ice is minimal.
MetroTransit. which operates the Twin Cities metropolitan mass transit system
under the auspices of the Metropolitan Council, provides a limited level of express
bus service to the Navarre, and Long Lake areas. While most of Orono's more
densely populated urban areas are served bv the express routes, schedules are
spread out, and off-peak ser\ ice is limited. Orono residents do have the option of
using Park-and-Ride facilities in Navarre or Wavzata. Rural Orono. however, has
no direct bus service.
A new experimental Tonkamobilc tixcd timc-flcxiblc route seivicc is being tried
in 1 9 80. Th is serv ice will fill a prev ious voi d of .serv ’icc bet ween Nava rre and
nxcel.sior. but additional serv ice withi n Orono is still to b e desired.
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Rail transit or light rail transit alternatives deserve renewed-invcstigaliuii.
Th ere has -been no rail passenger service to Orono since th e last train from Mound
ran in 1958. At one time up to 18 trains da ily ran on ho urly he adways between
^^ft)ttnd and Minneapolis %vith five stops inside Orono and t\%~enty Tninine service to
d cn\Tito\\T>. Th e increased population of th e lak e area, th e- increasing energy
problonis, the incrcasinjily crowded roads and the decreasing roadway niuintonancc
bnd g ets all—combine—to—make —the —time—ripe—to reinvestiga te—ah emative
transportation mode s such as ligh t rail transit utilizing th e existing under-used uil
right-of“\vay th rough urban Orono. Light rail transit seizing the western
suburbs deserves renewed investigation. There has been no rail passenger
service to Orono since the last train from Mound ran in 1958. At one time un to
18 trains daily ran hourly between Mound and Minneapolis with five stops inside
Orono and twenty minute service to downtown. The potential exists For a light rail
corridor along 1-394 which would provide an alternative to commuting via bus or
passenger automobile.
Rail freight service operates along both of Orono's Burling ton North ern existing
rail lines. Main line serv'ice is provided on the east west Burlington Northern line
along Highway 12 past the Orono Industrial Park. Local freight service operates
week ly regularly between \Vav7.ata and Hutchinson on the branch line paralleling
County Road 15. although no Orono properties arc ser\ed because this line
traverses residential neighborhoods in Orono. The Citv is reviewing the possibility
of conversion of this rail line to a regional trail.
Orono's trail system provides recreation opportunities as well as local
transportation alternatives. As part of our recreation-open space plan. Orono is
proposing has developed and is imnlementing an extensive road-side bike-hike
trail plan link ing th e commercial area-of Navarre with Spring Park . Tonka Day
(and-Lxcelsior) Wayrata. Long l;ake and most of Orono's urban neigh borho ods
providing links between both local and regional recreational and open space areas,
as well as links within the urban area for pedestrian and bicvcle access to Orono's
Navarre commercial area. Besides offering walking and bicycle recreation, this
trail system provides an excellent local alternative to auto travel between home and
shopping or friends. In addition, the DNR's Luce Line Trail provides extended
east-west linkage between several other cities and between several of Orono's
north-south bike trails. Taken together, these trails provide a cohesive network of
alternative local transportation routes.
Orono's air transportation involvement is limited to seaplane operation on
Long l.ake and Lake Minnetonka. Orono is not within any metropolitan airports
search area and Orono is not within the normal landing or takeoff flight pattern of
any regular airport. Maple Plain has a small Held (?) south of that City used by
private planes that ma\ fly over northwest Orono on one runway pattern, but there
is no adverse effect from the current usage level and the location is such that there
are no special land use or height restrictions necessaiy’.
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All of Lake Minnetonka is open for sea plane usage except for the restricted bays
of French Lake, Forest Lake and Tanager Lake (?). Sea plane usage has been
generally very limited although the potential for conflicts on crowded bays does
exist. The most critical problem to date, however, has been one of noise associated
with sea plane takeoffs at odd hours. This has been occasional enough so as not to
warrant any significant policy formation in this Plan.
Completion of the Highway 12 Bypass (?can wc find a better name for it)
system to accommodate ^through ’ commuter and commercial traffic is the
most significant factor in long-range transportation planning for Orr^no. The
Highway 12 Bypass is intended as a two lane freewav connection between western
Orono and the current multi-lane U.S.12 /1-394 freewav terminus east ot Long
Lake. The Bypass has become necessary due to the severe bottlenecks on current
Highway 12 due to signal iyntion at 4 kev intersections and the ever increasing
volume of traffic ilowi ng .Srough Long Lake and Orono. Completion of the
Bvnass is expected to r-o vide relief for existing Highway 12 as well as its northerly
parallel route. Countv >-'oad 6 which has seen tremendous peak hour volume
increases as Highway *2 has become clogged. Completion of the Bypass is
expected to increase use of the Ring Route, a connection between Countv Roads 6
and 19 along Orono's western border constructed in the carlv 1980's to provide an
alternate to Countv Road 15 for the downtown commute from western Lak e
Minnetonka.
Roadway maintenance concerns arc perhaps the second most significant
factor in long range transportation planning for Orono. Every level of
government has been increasingly faced with skyrocketing increasing road
maintenance pro blems challenges . Initial construction costs are significant, but the
maintenance problem is never ending. Vehicle weights have been increasing,
speed has been increasing, and winter safety solutions have caused rapid
deterioration of roadway surfaces and bridges. At the same time, maintenance
budgets are crimped by inflation, the rapidly rising cost of asphalt, and limited
maintenance fund income. This crunch is most severe at the local level where levy -
limitations prevent impede the hiring of sufficient maintenance crews or the
leplacement of well-used equipment sufficient expenditures for road repairs . Thus,
the planning concerns for new roadways include not only the initial cost-benefit
question, but also the worr y ab o ut issue of spreading future maintenance capability
beyond the reach of limited views or limited budgets.
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LAND USE IMPACTS ON TRANSPORTATION
As density of residential development increases, the demand on local and
collector streets similarly increases. However. Qrono's commitment to low-
densitv residential development for protection of Lake Minnetonka, and the
concurrent infrastructure limitations that functionally and hv desitzn prevent
commercial expansion into the 80% of Orono that is zoned tor low-density
residential uses, have resulted in a level of development that does not require
major additions to or expansions oF the existing local and collector street system.
The maiorin of Qrono’s existing collector road system was established many
decades ago to ser\c the separate needs of the Cit> ’s hvo priman historic
land uses. The straight-line road tirid system in central and northern Orono was
established alomi section lines a century ago to efficiently serve the auricultural
activity in the Citv. This tirid has rcadilv adapted to use as a collector system for
the many local and private roads that have been created to serve new rural
residential subdivisions in the last 30-40 years.
l.ikewise. the seasonal recreational uses that iirew up along Qrono ’s 40 miles of
l ake Minnetonka shoreline a centurs' atio resulted in a network of windinu roads
that commonly followed the center of the narrow peninsulas between bays,
creatimi local road frontaee tor lakeshore lots while also often servinu as the main
road between settlements. One significant result is that manv existirm homes have
their onlv access directly to the collector roads rather than to local streets. Manv of
these collector roads have over time evolved into minor arterial roads based on
their level of use: the increased traffic is incompatible with direct individual
driveway accesses, and elimination of individual accesses is virtually impossible in
many locations.
County Road 15 ;s the primar\- minor arterial for commuter traffic throuah
southern Orono. Because County Road 15 abuts the shoreline alona much of its
route, the Citv is committed to retaininii its character as that of a scenic parkway
servine local residences. Such a character is incompatible with its minor arterial
function. It would therefore be preferable to reduce the volume of tralfic on
County Road 15 bv providing an additional east-west corridor in southern Orono,.
However, the confiuuration of Lake Minnetonka ’s bavs and the severe topography
between them, as well as the laree number ot wetlands in the shoreland areas,
preclude the development of such a corridor.
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TRANSPORTATION GOALS AND POLICIES
Orono's Transportation Plan is based upon the following goals and policies which
are designed to be consistent with our regional responsibility for coordinated
transportation planning, and with the goals, policies, and plans of the other
elements of the Community Management Plan.
TRANSPORTATION GOALS
1.
2.
3.
To provide an adequate, safe transportation nehvork sufficient to
ser\ e the needs of all Orono residents.
To provide a coordinated transportation system providing alternative
modes and travel choices for most Orono neighborhoods. Extend bus
ser\’ice to Old Crxstal Bav Road and Highway 12 to serve
commercial/industrial areas and planned higher density residential
development.
To provide a coordinated plan for lake area transportation which will
satisfy both economic and environmental concerns.
4.To achieve the above goals w ithin the financial capabilities of the Cit>‘
and its citizens.
GENERAL TRANSPORTATION POLIC IES
1.
2.
Commuter and general arterial traffic must be directed away from
Lake Minnetonka. County Road 15 has become the "Main Street" of the
Lake Area primarily because of habit and the lack of alternative routes.
Shoreline Drive was originally built as a militaiy road in the 1860’s. The
road provides the only access to Minnetonka Beach and to many Orono
residences. Meanwhile, traffic has increased substantially to where the road
is crowded because of commuter traffic. The sensitive en ironment of Lake
Minnetonka, and the property rights of the riparian landowners, are being
damaged by continued reliance on this outmoded roadway location.
Orono will actively promote use of the Ring R«)ute concept and the
Highway 12 Bypass to provide viable efficient alternatives to
continued over-use of County Road 15. Ihc Citv' has constructed one
link in this~sv ‘stcm which already ha.s reduced travel time by up to ten
minutes between Mound and—Way rata:—With additional linkages and
IiiteI section impiv»v emcnts, a ti aiir»poi"tation voiiidor can be dev eloped to
handle the majority ot truck traltic and commuter tiips from the Westonka
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a rea while Tclieving the strain fro m Co unt>‘ Ro ad 15. In 1980 the City
constructed the first link in this system, the McCullev Road connection
between Countv Road 19 and Countv Road 6, In 1998 Orono worked with
Hennepin Countv to provide for nonstop eastbound access from McCullev
Road to County Road 6: and the final link will be direct nonstop access
from County Road 6 to the Miahwav 12 Bvpass. This svtem will provide
an eri'icient corridor tor handling a substantial share of the truck traffic and
commuter trips from the W'estonka area while providinu a viable
alternative to Countv Road 15.
Thus, in one motion, thru-traffic movement will be increased in speed and
safety while environmentally sensitive areas will be protected from
deuradation.
3.
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4.
Orono will actively promote a scenic parkway system to designate
those roads traversing environmentally sen: itive and scenically
attractive areas. The intention of the scenic parkway system is to provide
a special designation connoting the typically narrow, curvy, slow-speed
character of these roads. Scenic parkways provide special vistas of Orono ’s
natural amenities and are best suited for rela.\ing unhurried travel. High
\ olumc traffic, commuter traffic, and commercial traffic is not appropriate
on scenic parkways because these u.sers do not benefit from the attraction
and the physical nature of the road is not conducive to efficient thru-traffic
nun cment. Because of natural topographic limitations, scenic parkways
will also continue to provide local property access and limited collector
road functions.
Orono will encourage improved transit systems and investigation of
alternative transit modes. Orono will support innovative approaches
toward providing transportation alternatives to the private auto. This
includes such concepts as pedestrian and bicycle trails. pa ra»tr ansi t.
improved bus ser\ icc, and investigation of light rail transit.
Orono will support the Lake Minnetonka Conservafi.on District in the
control of seaplane operation on I.akc Minnetonka. The e.xisting level
of seaplane operation is satisfactory to Orono. The City will support the
LMCD in their monitoring of seaplane operation and in any reasonable
changes in regulations necessary to prevent .seaplane conllict with the
primary boating use of the lake.
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URBAN TRANSPORTATION POLICIES
1.
3.
4.
5.
6.
Local streets in the urban area will be owned and maintained by the
Cit>’. Because the land use and street use density of the urban
neighborhoods is relatively high, the City will provide public street access
to all urban properties. City responsibility for proper maintenance levels
will ensure passable, all-weather streets available at all times for
emergency vehicles and for general public ingress and egress.
All urban properties should be directly served by the public street
system. Urban density development is not appropriate on narrow or poorly
maintained private roads. Significant exceptions to this rule are in the case
of a planned residential or commercial development having private
maintenance personnel, or on sensitive lakeshore lots where two homes
could be served by one common private driveway to reduce hardcover and
topographical problems.
Urban streets will be constructed to urban design standards. Ail urban
streets will be paved and of sufficient width to accommodate the number of
properties being served. Intersections and driveway aprons will be
designed and regulated according to commonly accepted engineering
safety standards. Street drainage will be designed to utilize existing natural
drainage systems and to avoid direct runoff into the Lake.
Curb cuts and driveway locations will be limited for traffic safety. All
new curb cuts and driveway locations will be subject to performance
standards relating to sight distance, lot width and proximity to
intersections or other driveways. All properties will be allowed access, but
the number of access points and the location of allowable access will be
limited for public traffic safety purposes.
On-strcct parking will be strictly limited. No parking will be permitted
on narrow streets or at hazardous locations. All urban development must
provide adequate on-site parking facilities.
The City will pursue additional pedestrian and bike-hike trail
facilities. The completion of an interconnected bike-hike trail system is
important to the furtherance of alternative transportation incentives. The
City will encourage Hennepin County to speedily implement the planned
bike-hike trail system along several county roads. The separation of bicycle
and pedestrian traffic from vehicular traffic is of the utmost importance in
accident prevention.
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7.The City will promote improved mass transportation services for
urban neighborhoods. Orono has established a Park and Ride Transit
System. Orono encourages improved bus scheduling and improved ser\dce,
especially at off-peak hours. Orono strongly supports the "Tonkamobile"
(?) program and encourages expansion to provide improved Excelsior-
Wayzata service via Orono's North Shore neighborhoods.
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RURAL TRANSPORTATION POLICIES
1.
2.
Public streets in the rural area will be primarily limited to the existing
collector and arterial grid system. The low rural land use density does
not require nor can it economically support an extensive public street
system. Rural lot arrangements have always been served by the existing
grid streets and are capable of subdivision to the planned rural density
without requiring additional public street investments.
The Ring Route concept utilizes as much as possible the existing rural
highway system. The principal corridor for traffic from .Minnetrista and
points west utilizes Hennepin County Roads No. 6 and 19 and State
Highw ay 12. The City of Orono has constructed a key link betw een County
Roads 6 and 19. Additional Ring Route traffic uses the existing north-south
collector roads to travel away from the Lake toward these principal travel
routes.
3.
4.
The City of Orono will encourage all neccssaiy road surface and
intersection improvements required to accommodate and to facilitate
through traffic on the Ring Route. This will include cooperation with the
City of Long Lake in accommodating traffic on Highway 12.
Rural residential developments will utilize private road feeders to
supplement the existing public road grid. Because of topographical
limitations, the historic shape of rural land divisions, and the low^ density of
rural land use, most new rural residential lots are best prescrx ed by short
dead-end roads running off the existing street system. The low number of
dwellings on each road, the dead-end configuration and the scattered road
locations make public roadway maintenance excessively costly compared
to any public benefit. Therefore, most new rural lots will be directly served
by privately owned and maintained roadways. New public streets will be
accepted where a "through" configuration provides a general public benetit
and'or where the number of residences justifies public maintenance
expense.
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5.
6.
7.
8.
9.
Private rural roadways will be constructed to rural design standards.
The City will regulate private road design standards to ensure
environmental protection and adequate all weather access to all properties.
The type and width of road surface required will vary with the number of
residences to be served and hence the amount of expected vehicle usage.
The length of dead-end roads will be limited for public safety purposes.
The City will guarantee reasonable maintenance levels and public
access on all private roads. In the process of approving rural subdivisions,
the City will acquire underlying public ingress, egress, and access
easements over all private roads. These easements will ensure legal access
of the public to all properties served by the private road. Development
contracts backed by acceptable forms of financial responsibility will assure
that all private roads are designed and constructed according to City
approved standards and specifications. The City will further guarantee that
all private roads are maintained to reasonable standards at all times through
required maintenance agreements and/or homeowner's associations, and
that failure of the private group to so maintain their private road will be
cause for the City to accomplish needed maintenance and to assess the
benefitted properties for the direct cost of such maintenance.
Driveway locations and rural street or private road intersections will
be limited for traffic safct>'. Rural traffic speed is generally taster than
that in urban neighborhoods requiring greater sight distances and a lesser
number of intersection conflicts for the same degree ot tratlic safety. Joint
use of carefully located private roads will generally be preferred over direct
access onto public highways from separate properties.
Rural trails arc an integral part of the total alternate transportation
system. Rural trails offer access to the Hennepin County Park Reserve
Lands from all areas of the City. Rural trails offer horseback riding as well
as walking and bicycle opportunities. The City will encourage completion
of the planned bike-hike trail system and the private development of rural
trails connecting the public trail system with individual rural properties.
The City will continue to restrict motorized use of trails within Orono as
inappropriate to the trail's basic purpose and as incompatible with adjacent
residential properties.
The City will not promote mass transportation scr>ices for rural
Orono. The planned rural land use density cannot economically support
public transit ser%ices. E.xisting bus routes pass through the rural area
enroute between Long Lake, Wayzata and urban Orono.' These routes are
sufficient to scr\’c Orono's rural needs and will in lact provide additional
rural service as the need for additional urban service increases. No new
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THE TRANSPORTATION PLAN
Orono's location on the perimeter of the Metropolitan Urban Sen'ice Area has
pretty well dictated that our Transportation Plan will be essentially a plan for
streets and roads. Orono has no planning needs for airports and has little planning
requirement for mass transit. The principal need is a plan to provide for local
movement between residential neighborhoods and commercial centers, and for
efficient commuter movement away from the congested, environmentally sensitive
lakeshore.
The principle components of Orono's Transportation Plan are as follows;
1.
2.
3.
4.
Developing the Ring Route concept including designation of collectors
and minor arterials to direct traffic away from Lake Minnetonka.
Developing the Scenic Parkway concept including designation of
parkways for slow-spced recreational access along the Lake Minnetonka
shoreline and other scenically attractive routes.
Developing the Private Road concept for access to low density rural
residential properties.
Promoting reasonable levels of public transit service for Orono’s
urban neighborhoods including maintenance ot the existing MTC bus
routes and investigation of alternative public transit modes for commuter
travel to the center of the Twin Cities region.
PRIMARY CORRIDORS
(Draft discussion in regards to issues/policies regarding each ol the following 3
corridors)
County Road 15
Old Highway 12
The Ring Route
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ORONO'S ROADWAY CLASSIFICATION SYSTEM
A commonly accepted way to describe and analyze a transportation system is
through a classification system which indicates different levels of services and
different levels of construction standards. This Plan follows the classification
system developed and adopted by the Minnesota Department of Transportation as
applied to the types of roadways seiz ing Orono.
Map No. 14 indicates the classification plan for streets and roads in Orono.
This plan is consistent with the regional transportation plans and facilities of the
Metropolitan Council, the Minnesota Department of Transportation and the
Hennepin County Department of Transportation. This plan is consistent with the
roadway systems of adjoining municipalities and wiui Orono's urban and rural land
use plans. The following descriptions provide detailed explanations of each of
Orono's roadwav classifications;
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(Add infoiiiiatiuii as to Hennepin Countv ’ r-o-w requirements for
various Count> roads, and how those may differ from Orono’s
requirements...)
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PRINCIPAL ARTERIAL A Principal Arterial is a grade-separated, high
capacity, controlled access highway designed to move vehicles through an area,
not within a community. Principal arterials have no local land use access. I he only
principal arterial near Orono is that portion of State Highway 12 that becomes
limited-access east of Orono’s eastern boundaiy w ith Wayzata.
INTHRMEDIATE .ARTLRIAL An Intermediate Arterial is a controlled-acccss,
moderately high capacity highway designed to move vehicles between cities and,
in Orono's situation, between the free-standing growth centers and out-state cities
west of Orono into the metropolitan area. Intersections are limited and controlled.
Land use access is intended to be limited to major traffic generators without direct
access to residential properties. State Highway 12 is an Intermediate Arterial
through Orono although many access and intersection characteristics are typical of
a minor arterial or collector.
JURISDIC HON: S I AH- DI-I’ARTMnNT OF TRANSPORTATION
RIGHT-OF-WAY WIDTH: MINIMUM 100 FLET FOR TWO LANE HIGHWAY
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MINOR ARTERIAL A minor Arterial is a controlled access, moderate capacity
street or highway designed to move vehicles within planning subregions and
between adjacent subregions. The Lake Minnetonka Ring Route is a minor arterial
functioning to move, principally commuters and truck traffic, from the western
Lake Minnetonka communities into the urbanized areas of the Twin Cities.
The minor arterial route channels traffic away from Lake Minnetonka to State
Highways 12 and 55, and in the near future, to a direct intersection with Interstate
494 in Plymouth. Land use access is intended to be limited to major traffic
generators and local street intersections without direct access to individual
residences.
JURISDICTION: HENNEPIN COUNTY DEPARTMENT OF TRANSPORTATION
RIGHT-OF-WAY WIDTH; MINIMUM 80 FEET FOR TWO LANE HIGHWAY
COLLECTOR A Collector street functions to collect traffic from local streets and
move it to neighborhood activity centers or to intersections with minor or
intermediate arterials. Local land use access is permitted but is regulated as to
location and number with direct access to be avoided whenever alternative local
street access is available. Intersections with other collectors are olten controlled
with signals or with four-way stop signs. Traffic usage is moderate.
JURISDICTION: COUNTY OR CITY
RIGHT-OF-WAY WIDTH: 60-66 FEET
SCENIC PARKWAY Scenic parkway is a designation and classification used by
the Cities of Minneapolis and Saint Paul and applied by Orono to those roads
which traverse especially scenic and environmentally significant areas of the City.
The scenic parkway is typically a narrow, curv)'. slow speed road which provides
access to recreational areas and speeial vistas of scenic attractions. High volume
through traffic and commercial traffic is not appropriate on scenic parkways
because these users do not benefit from the attraction and because the physical
nature of the roadway is not conducive to efficient through traffic movement.
Because of environmental sensitivity, scenic parkways cannot be rebuilt into
higher capacity collectors or minor arterials without adversely affecting the natural
setting, the scenic quality of the road and/or the property rights of abutting
landowners. Because of the natural topography of the area, scenic parkways also
provide some of the traf fic and local access functions of both local and collector
streets.
JURISDICTION: COUNTY OR CITY
RIGHT-OF-WAY WIDTH; 50-66 FEET
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LOCAL STREETS Local streets are public streets that function to provide direct
access to abutting properties. Local streets carry traffic within neighborhoods
rather than through traffic between neighborhoods. Intersections with collector
streets are controlled by stopping the local street traffic.
JURISDICTION: CITY
RIGHT-OF-WAY WIDTH: 50-60 FEET
DEAD-END: LENGTH WILL BE LIMITED BY PUBLIC SAFETY CONSIDERATIONS
PRIVATE ROAD A private road is a privately owned and privately maintained
road, located in the rural area or within a planned development, that functions as a
local access street. The City will require that private roads be constructed and
maintained to City standards. The City will acquire an easement for public ingress,
egress and access to all properties, but the City will allow the property owners to
limit normal use of the road to the benefitting landowners and their invitees.
Private roads will be located on platted outlets intended for joint and several
ownership by all the benefitted property owners.
JURISDICTION: HOMLOW'NERS ASSOCIATION WITH UNDERLYING EASEMENT TO
CITY
MAXIMUM SERVICE: APPROXIMATELY TEN RESIDENTIAL PROPERTIES
RIGHT-OF-WAY WIDTH: 30-50 FEET DEPENDING UPON NUMBER OF USERS
DEAD-END: LENGTH WILL BE LIMITED BY PUBLIC SAFETY CONSIDERATIONS
PRIVATE DRIVEWAY A driveway is a privately owned and privately maintained
\ehicle path between the street and private property. Private driveways shall be
subject to access permits according to the classification of the abutting street.
Private driveways will not be subject to any public easement or access right, but do
require recorded private easements where driveways cross an intervening private
lot between the residence seiz ed and the street.
JURISDICTION:PROPERTY OWNER
MAXIMUM SERVICE: I RESIDENCE TYPICAL; JOINT DRIVEWAYS ALLOWED WITH
MAXIMUM THREE RESIDENTS PER DRIVEWAY IN RURAL AREAS MORE
USERS REQUIRE PRIVATE ROAD STANDARDS
DRIVEWAY WIDTH: WILL BE REGULATED WHERE MORE TH.\N ONE USER IS
INVOLVED OR FOR PUBLIC SAFETY PURPOSES WHERE THERE IS E.XCESSIVE
LENGTH BETWEEN THE RESIDENCE AND THE PUBLIC ROAD
Kiuht of Wav Presen ation and Lake Access Management
f-add a section here about lakeshore access right-of-wavs. and City’s intent to
retain them permanently)
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Existing roadway maintenance jurisdictions arc reasonable as they relate the
classification plan. The State of Minnesota has appropriate jurisdiction over the
only Intermediate Arterial in the City.
The Hennepin County Department of Transportation has jurisdiction over the only
Minor Arterial designated in the Plan. It is anticipated that Hennepin County will
assume jurisdiction in the future over the City-built Ring Route link between
County Road 19 and County Road 6.
Hennepin County has jurisdiction over most of the designated Scenic Parkways
which is appropriate in that these roads serve as access to Lake Minnetonka and to
County maintained landings for many County residents who do not reside in
Orono. The City has jurisdiction over those Scenic Parkways that are away Irom
the immediate lakeshore, including the access road to the Orono Golf Course
The City has appropriate jurisdiction of most of the Collector and all ot the local
streets which serve all Orono residents. Certain key street segments have been
designated for Municipal State Aid construction assistance, including:
OLD CRYSTAL BAY ROAD from County Road 6 to Fox Street, County
Road 84
WILLOW DRIVE from County Road 6 to State Highway 12 and from the
Long Lake border to Fox Street
FOX STREET from Willow Drive to County Road 146 McCulley Road
(Ring Route link) between County Road 6 and County Road 19
(UPDATE AND ADD TO THIS LIST)
Finally, individual property owners have appropriate private jurisdiction over those
Private Roads serving only their individual properties.
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PUBLIC TRANSPORTATION SERVIC ES
Map No. 15 indicates the existing extent of public transit serv ice »n Orono.
fhe most frequent service is provided on Shoreline Drive through the neart of the
Navarre commercial area and closest to the greatest number of Orono ’s urban
residents. Commuter frequency service is provided through the remainder of
Orono's urban area and the experimental service provides flexible-route service to
loeal urban neighborhoods.
Existing rail facilities provide the potential for future public transit and for
future industrial freight service. The branch rail line through southern Orono
once had frequent passenger .service to Minneapolis and has the potential for
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renewed service as a part of a region-wide alternative light-rail transportation
system. The main rail line through northern Orono has immediate potential for
providing direct rail freight service to the Orono Industrial Park should such
service ever be desired by one or more of the industries located there.
The proposed recreational trail system offers alternative transportation
facilities. The complete bike-hike and recreational trail system is described in
Chapter 8 and is shown on Map No. 16. These trails provide a coordinated
alternative to auto transportation for local trips by almost all Orono residents.
Bicycle and Pedestrian Facilities
(Draft discussion regarding City/County bike-hike trail system plan and
how/whether this relates to Scenic Parkway roadway classification)
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EXPECTED TRANSPORTATION IMPROVEMENTS
(ENTIRE SECTION NEEDS UPDATING)
No major changes or improvements are expected in Orono's public street
system. The existing public road grid system is properly located and of adequate
capacity to serve all of Orono's expect: j rural developments without new public
street requirements. New rural resiJ.v-ntial developments are expected to rely
entireh' on private roads where new access is required by new lot arrangements.
In the urban area, a few short local street extensions may occur within the next ten
years. Map No. 11 indicates forecast urban development in three locations each of
which will probably be ser\ed by a new' public street cul-de-sac. No new urban
collector capacity will be required because of the limited number of dwellings in
these developments.
Orono's major forecast street improvement was the construction of McCulley Road
as a link in the Ring Route between County Road 6 and County Road 19. This
entirely new road is expected to be completely finished early in the summer of
1980.
!!!REVISE THE FOLLOWING PARAGRAPH!!!!!!!
The State of Minnesota does not expect to improve or relocate Highway 12.
When the 1974 Orono Village Comprehensive Guide Plan was prepared, the State
Highway Department was reviewing plans to relocate and upgrade Highway 12
into a principal arterial. These plans have now been completely dropped from State
planning consideration at least until after the year 2000. The only physical
improvements scheduled or expected are as follows;
— THE FOLLOWING SECTIONS NEED MAJOR UPDATING ™
OLD CRYSTAL B.\Y ROAD INTERSECTION - Scheduled to receive
turn lanes and traffic signals in 1981. Orono actively pursued this project
and heartily recommends early completion because ol the heavy school
traffic and school bus traffic utilizing this i'^tersection.
COUNTY ROAD 6 INTERSECTION - Scheduled to receive turn lane
improvements in 1980. This intersection has many turning movements
complicated by an odd street crossing, a closely located rail crossing, and
poor sight distance to the east. Orono encourages early completion of this
work to facilitate improved Ring Route traffic safety. Orono encourages
further planning for improvement in the sight distance and for possible
signaling or rail crossing changes to further improve traffic movements
through the intersection.
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Hennepin County is undertaking bridge improvements affecting traffic in
Orono. Improvements have been completed on Tanager Lake Bridge, Boy Scout
Bridge, Noerenberg Bridge and Coffee Bridge. Areola Bridge is scheduled for
major redecking work in 1980 and 1981, The Narrows Bridge and Hendrickson
Bridge are scheduled for work in following years. While essentially of a
maintenance nature, these are major construction jobs requiring partial or total
bridge closure.
Therefore, Orono and adjoining municipalities ha\e been deeply in\olved to
assure reasonable traffic flow and emergency access during the construction. In
addition, Orono is concerned that all bridge alterations provide completed
roadways of a width compatible with our scenic parkway plans including provision
for adequate walking and bicycle paths over the channels.
Mound and Spring Park arc contemplating changing their portion of Counh'
Road 15 to four lane width. This does not directly affect Orono, but does have
the indirect complication of increasing traffic flow toward the center of Lake
Minnetonka. Orono is opposed to any widening of County Road 15 within Orono.
Orono would like to discourage widening of County Road 15 at any location.
Instead, Orono is encouraging completion of the Ring Route concept to take traffic
volume off of County Road 15. thereby effectively inereasing its local service
capacity. The completion of a two lane ring route connection north from Mound to
McCulley Road in Orono will greatly reduce travel time to Wayzata and will be
consistent with the transportation needs of the Westonka Area and the
transportation plans of Minnetrista and Orono. Orono further encourages the
development of a new or improved connection south to Highway 7 for areas west
of Orono as another alternative commuter link to the metropolitan area.
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