HomeMy WebLinkAbout04-08-1999 Council Work SessionCOUNCIL WORK SESSION
7:30 A.M., THURSDAY, APRIL 8,1999
AGENDA
1.
2.
3.
Update regarding a meeting with the owners of industrial property along Highway 12 in
Orono concerning the upgrade of Highway 12.
Information regarding senior housing.
Review initial sections of the Comprehensive Plan for clariflcation/confirmation/revision.
A. Basic community philosophy.
B. Goals and policies.
Process for obtaining Planning Commission input regarding Comprehensive Plan update
issues.
5.
6.
Process for obtaining public input regarding Comprehensive Plan update issues.
Schedule and topics for upcoming work sessions.
CITY OF ORONO
NOTICE OF PUBLIC MEETING
NOTICE is hereby given that the Orono City Council will meet in a work session at 7:30
a m. on Thursday, April 8,1999 in the Orono City Council Chambers, 2780 Kelley Parkway, Orono,
Minnesota. The purpose of the work session is to review issues related to the update of the City's
Comprehensive Plan, and to discuss other issues of current interest.
This meeting is open to the public.
/s/ Linda S. Vee
City Clerk
Posted at:
City Hall
Navarre Post Office
Long Lake Post Office
Crystal Bay Post Office
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To;Mayor and Council
Ron Moorse, City Administrator
From:
Date:
Mike Gaffron, Senior Planning Coordinator
April 2,1999
Subject: Thursday April 8 Work Session - Comprehensive Plan Discussions
Attachments:
A - Draft Update of 1980 Plan, Chapter 1: Basic Community Philosophy
B - Draft Update of 1980 Plan, Chapter 2: Goals and Policies
C - Draft Outline/Table of Contents
In order for Council to provide staff the direction needed to make headway on the Comprehensive
Plan update, we plan to bring you draft sections or chapters of the Plan each week or two over the
next few months. These drafts will use the existing 1980 Comp Plan as a base document, with
suggested additions noted in italics, suggested deletions noted by strikeouts, and bold question marks
(?) where staff questions the validity, appropriateness or logic of existing/proposed language.
Ultimately, we expect there will be a few new sections added that aren ’t in the existing 1980 Plan,
and the order of contents will be revised. A draft table of contents is attached for your consideration.
The first sections we want you to look at are the basic Community Philosophy and general Goals and
Policies. These are the first two chapters of the 1980 Plan, and are the philosophical basis for our
entire Plan. Council's re-affirmation of these sections, or revision of them if appropriate, is a starting
point that will guide every facet of our Plan update.
It would be helpful if Council members review the attached sections prior to the April 8th work
session, and note or highlight any portions that you wish to discuss. Please call me if you have
questions.
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COMPREHENSIVE PLAN UPDATE
CHAPTERS 1 AND 2
DRAFT FOR DISCUSSION ONLY
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CHAPTER 1
BASIC COMMUNITY PHILOSOPHY
HISTORICAL BACKGROUND
Every community has a unique character arising from its location, natural resources,
history and population. Orono is no exception to this rule. But Orono's plan for the
future may be exceptional, because its basic premise is the maintenance and
furtherance of our very own mique features.
Orono's corporate hi.story dates to 1858 when Minnesota became a state, and
western Hennepin County was surveyed and divided into townships. All of Orono
south of Watertown Road was located in Excelsior Township, with the area north of
Watertown Road being located in Medina Township. But the citizens of Orono, few
as they were, found the going difficult in having to negotiate the lake in order to
transact business in far away Excelsior. So, in 1868, the townships were realigned
with everything north of the Narrows becoming part of Medina.
The separate Township of Orono was created out of the southern half of Medina on
April 9,1889. The name Orono was brought to the area by Major George Brackett,
a native of Orono, Maine, who first used it to designate the area now known as
Brackett's Point.
Orono Township once included areas now part of neighboring cities. Minnetonka
Beach was incorporated out of Medina Township in 1884. Long Lake was
incorporated from Orono Township in 1906. Long Lake expanded, Wayzata grew
westward, and then Spring Park was incorporated in 1952.
Finally, effective January 1,1955, Orono Village was incorporated encompassing all
the remaining parts of the township including the settlements of Navarre, Crystal
Bay, Orono and Bederwood (Stubbs Bay). A number of minor boundary changes
have occurred since then, including detachment of the tip of Three Points Peninsula
to Mound in 1963; annexation of small strip from Minnetrista in 198_for McCulley
Road; detachment of the Fleming Trail Addition to Long Lake in 19_; and
annexation of property along North Ferndale and West Ferndale Roads from
Wayzata in 19_in exchange for detachment of a property along Highway 12 to
accommodate Wayzata's public works facilities.
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COMMUNiTY PHILOSOPHY
Orono's Community Management Plan is a statement by the citizens as to what
we are, where we have been, and where we are going. Future development und
growth will occur in Orono as in most other municipalities in the metropolitan area,
but the growth rate is expected to continue at a slow, steady pace as it has for the
past two decades. In addition, Orono will retain its own special identity through
careful growth management in the best interest of the environment, the natural
resources and the community of citizens, both present and future.
(Figure 1 - Summary: City of Orono Population and Household Projections)
The basic goal of this plan is preservation: Preservation of our resources;
preservation of our distinct urban and rural lifestyles; preservation of individual
initiative and responsibility.
Orono*s past growth and development patterns have been greatly influenced by
the extensive and varied natural features found within our borders. Map No.
___ indicates the pattern of land use as it exists today. It is apparent that
development has been drawn by the lakes and clustered by the many bays and
marshes. Of the City's 24.1 square miles of area, nearly 11 square miles is in lakes
and wetlands.
The most signiflcant resource, of course, is Lake Minnetonka with over (33%)
of its area and (40%) of its shoreline in Orono. The largest lake in the metropolitan
Twin Cities area. Minnetonka has 22.4 square miles of surface area and
approximately 110 miles of shoreline running along numerous bays, channels and
inlets. Lake Minnetonka's watershed, including the Lake itself, encompasses 123
square miles, and approximately 1/5 of the contributing watershed lies in Orono.
Lake Minnetonka’s chamis drew early crowds of visitors and summer residents
whose settlements and lifestyles have left a lasting effect on present-day Orono. The
lake first attracted scattered settlers and farmers who benefitted from a rural lifestyle
within a day's journey of the City markets. Later, rail lines promoted resort hotels
and recreational uses of the cool water. Summer cottages were built and crossroads
towns developed. These cottages were converted to year-round homes in the 1940 ’s
and 50's, becoming the core of Orono's existing urban neighborhood. Remodeling
and replacement of these modest lake residences with larger and more contemporary
homes has continued at a steady pace through the l9S0's and i^O's.
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Away from Lake Minnetonka, the rolling countryside is dotted with other lakes and
wetlands, creeks, woods and steep hillsides. This is the country that fostered dairy
and truck farms, orchards, and woodlots without the lakeshore amenities. These
areas of Orono have remained rural in character with low-density residential and
quasi-agricultural land uses gradually overtaking the remaining farms. Public
services and and facilities are limited, and the residents intended to keep them that
way. Here, there is opportunity to run a horse or two, to watch for deer and
waterfowl in their natural habitat, to have a secluded homestead; these amenities
attract a type of resident whose desires are far different than those attracted to the
more crowded lakeshore.
Thus we see that O*")no has two distinct personalities: The urbanized lakeshore
and the rural woudti. i^elds and open spaces. Both areas are primarily residential
in nature, relying upon the existing town centers of Navarre and other nearby cities
for shopping, commercial and industrial activities.
The concern of the residents is to provide for continuing maintenance and
preser>’ation of those natural resources and social amenities which attracted
people to Orono in the flrst place. Near the lake, density of development has to be
regulated in order to minimize the resultant stormwater runoff pollution which, if
unrestricted, could permanently alter and destroy the ecology of this very unique
resource.
Away from the lake, the natural marshes and wetlands are to be protected as the
primary and most practical method of storm water filtration and enhancement. Steep
slopes will be protected from over-development and erosion. Woodlands will be
preserved as wildlife habitat, erosion protection, noise barriers and places for
personal solitude and contentment.
Open space is to be cherished and protected. In urbanized areas, recreational
needs go hand-in-hand with the necessities of light, air, and solar access. Views of
the lakeshore are invaluable property rights and personal experiences. In rural areas,
the long vistas and open fields are restful sights, reminders of slower-paced years
gone by. The open fields and pastures are witness to the rural lifestyles active in
Orono, and each property owner has the ability to provide for his own varied
recreational needs.
Institutional and commercial needs have been met by the existing centers with
no need for future expansion. Map No.__indicates the interreliancc of the many
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lake area communities and the many industrial, retail-commercial and health care
facilities accessible to Orono residents. School populations are increasing slowly,
and new technologies and program demands require some expansion of existing
facilities but no new’ centers. Orono’s population growth has been historically slow,
allowing for gradual service increases and fiscal security. Public facilities have been
provided and will continue to be improved at a level sufficient for protection of
health and safety, but unobtrusively enough to allow continued self-independence
and maintenance of rural lifestyles.
The basic philosophies of the CMP are consistent with the policies and
guidelines contained in the Metropolitan Council's "Regional BUieprinr. Future
urban density in the urban area along the lake is to be in-fill development where
existing urban services are available. Rural land use in the area away from the lake,
is to be free from expanded urban services. In all neighborhoods, provisions are
made for protection of environmental assets and for provision of open space and
recreational amenities. Housing opportunities are available in a wide(?) range of
alternatives consistent with the availability of public services. Sewer and
transportation facilities are capable of servicing the planned density of development,
and land use patterns are consistent with those of neighboring cities.
Orono's managed growth policy means that the need to use and enjoy Lake
Minnetonka will be balanced with protection of its water quality and accessibility for
future generations. This policy means that the acceptance of growth and
development changes will be balanced with conservation of our resources and natural
amenities, and maintenance of our small town social character.
Orono intends to remain two communities in one. The area around and near the
Lake Minnetonka shoreline has been called "Urban" because of historic developed
density and the availability of urban services. The area away from the Lake has been
termed Rural' because of the lack of density, the abundance of open space and the
citizens' commitment to maintain this type of development. Orono's 'Rural’area
cannot, however, be considered as rural in the context of the Metropolitan Council's
"Regional Blueprint" which suggests an ultimate density of 1 unit per 10 acres.
Orono's 'Rural Area' will be developed at densities averaging approximately I unit
per 3 acres, sufficient to meet the City's environmental protection goals.
The Metropolitan Urban Serxnce Area ("MUSA") boundary is the boundary
established by Metropolitan Council that defines the extent of areas where urban
sen;ices will be provided and urban scale development will occur. Orono has located
this MUSA line within our City as showTi on Map No.__to be consistent with the
extent of City-planned municipal sewer extensions, and to be consistent with the
development plans of our neighboring municipalities. But most of all, Orono citizens
have located the MUSA line and have defined the urban and rural service areas to be
consistent with their plans for permanent use and development of the City, that is
what this plan is all about.
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CHAPTER 2
GOALS AND POLICIES
Any plan is necessarily a compromise of ideals and reality. What Orono is today has
been shaped by its location, history, geology and past population. What Orono
becomes tomorrow is dependent upon how Orono's citizens manage their social and
economic decisions in the years ahead.
The goals and policies of this plan have met the test of time in Orono. The basic
premise of maintaining distinct urban and rural neughborhoods continues a hundred-
year tradition. The commitment to environmental preservation was early, has been
supported by Regional, State and Federal policies, and remains uppermost in the list
of priorities of Orono’s residents. The interreliance of lake area communities for
shopping and commercial needs, for housing variety and for provision of basic public
services is both historic and economically practical.
The following goals and policies, both in content and organization, reflect the
basic philosophies of Orono. Goals and policies affecting the entire City are
grouped in an "overall" category. In addition, more detailed goals and policies are
separated under their appropriate "urban" or "rural" classification. Finally, each
separate CMP chapter has detailed goals and policies relating to that particular
subject.
OVERALL GOALS AND POLICIES
ORONO'S PLAimiNG GOALS
1.The foremost guiding principle and goal of Orono ’s planning is to protect
and preserve Lake Minnetonka, its water quality, and its recreational
assets. This goal continues a commitment established half a century ago. It
includes preservation of the associated marshes, wetlands and natural
drainageways as the primary, most practical and cost efficient method of
preventing fiooding and of filtering out the nutrient pollution from
stormwater runoff.
2.To retain the existing urban-rural land use pattern on a permanent
basis.
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3.
4.
To maintain our local character and identity.
To protect and preserve our many natural resources including all lakes,
creeks, marshes, wetlands, woodlands, groundwater and steep slopes.
5.
6.
7.
To preserve open space, light, air and solar access for all citizens.
To protect the general public health, safet}' and welfare.
To promote development in the City at densities consistent with
environmental protection and the planned land use pattern.
8.To protect the financial stability of the City, providing an adequate level
of services at minimal cost to the taxpayer.
ORONO^S PI^NNING POLICIES
1.Future development will be guided to protect and enhance the Lake
Minnetonka watershed. Lake Minnetonka has local and regional
significance as a vital ingredient in human experience and in the quality of
life of all Orono residents.
2.Urbanization will not be expanded into the existing rural areas. O ono's
Community Management Plan is njjl a staged growth plan, and therefore the
Urban Service area will not be expanded into the Rural Service Area. Urban
services will nol be expanded into the Rural Service Area.
3.The existing Urban Service Area is fixed. Orono's Urban Service Area
is fixed by the various elements of the Community Management Plan, and is
legally described as shown on Map No.__.
3A.The boundary between Orono's urban and rural service areas is not
strictly defined by the MUSA boundary. The boundary between Orono's
Urban and Rural service areas is defined by the density of development
and level of public services intended to be provided. Orono will not define
its Urban and Rural service areas based merely on whether municipal ,<iewer
is provided. The MUSA boundary has been am'^nded by the City in the past
to allow for retrofitting of existing Rural Service Area neighborhoods with
municipal sewer, to solve existing sewage treatment problems. In these areas,
the zoning has uoL changed to allow for additional development at urban
densities, and urban services other than sewer have noL been provided.
Provision of municipal sewer service to existing neighborhoods within the
Rural Service Area has not changed their classification from Rural to Urban.
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3B.
4.
4A.
4B.
5.
6.
7.
Future expansions of the sewer system into the Rural Service Area to solve
existing neighborhood sewage treatment problems will not result in a
reclassification of those neighborhoods from Rural to Urban. Expcrsion
of the sewer system into the Rural Service Area will not result in the
provision of additional urban services, nor will it result in changes to allowed
development densities.
Additional urban development will occur only in the designated Urban
Service Area. Additional urban development will occur in the urbanized
areas consistent with the capacities of the existing urban services and at
limited densities consistent with all environmental constraints.
Expansion of the MUSA to allow sewering of existing neighborhoods or
developing lakeshore properties within the Rural Service Area, is QSi an
expansion of the Urban Service Area.
Provision of municipal sewer to existing neighborhoods or developing
lakeshore properties within the Rural Service Area will not result in new
development or redevelopment at densities inconsistent with Rural
Service Area standards. Provision of municipal sewer to properties in the
Rural Service Area will qqL result in the rezoning of properties or
neighborhoods to allow urban density development.
Additional rural development will occur in the designated Rural Service
Area. Additional rural residential and quasi-agricultural development can
occur in the rural areas without taxing the limited capacities of existing rural
services. Rural development will occur at limited densities consistent with
self-supporting on-site sewer and water services and with maintenance of
natural amenities, open space and other rural community characteristics.
Natural features and sensitive environments will be protected by
ordinances based upon extensive inventory, analysis and established
environmental protection guidelines. Natural resource information will be
used and evaluated in review of ail land use developments. Ordinance
provisions will be reasonably established, fairly interpreted and strictly
enforced.
Historically significant buildings, places and settings will be identified
and preserved. The character of Orono receives much of its identity from
our unique historic developments. Programs will be established to identify
and help preserve this heritage for future generations. Where necessary,
special consideration will be made to encourage retention of significant public
or private amenities.
8.
9.
10.
11.
12.
13.
Housing programs will be pursued to provide safe, affordable homes for
all citizens. Housing opportunities will be provided for citizens of all ages
and income levels. Rehabilitation programs will be stressed to increase the
livability and energy efficiency of the existing housing stock.
Transportation facilities will be provided and improved consistent with
local service needs and with a coordinated program of area-wide
transportation priorities. Transportation planning will be sensitive to local
land use and environmental concerns, and to local service needs. Levels of
maintenance will vary between urban and rural areas. Alternative routings and
alternative transportation modes will be explored.
Public programs and services will be coordinated between the many
interrelated governmental agencies. Orono will continue to pursue
coordinated services with the County, with adjacent municipalities, witii the
school districts and with specialized districts such as lake coitservation,
watershed or joint powers districts, all for the purpose of providing consistent,
high quality services at affordable cost to the taxpayer.
Orono will continue to maintain a tow profile governmental presence
emphasizing individual citizen responsibility rather than over-inclusive
governmental authority. Where there is benefit in a concerted public
purpose, Orono will rely on professional staff and consultants to handle
matters in an up to the minute manner. But Orono also recognizes that the
individual citizen often can do for himself more quickly, efficiently and at
lesser cost, things that in other areas are left to government by default. It is
here that the strength of the Orono citizens has its most direct benefit in
maintaining our rural, small-town vitality.
Orono will continue to emphasize active citizen participation in policy
formation and policy adminbtration. Local meetings have always had the
friendly, open-door characteristic of New England Town Meetings.
Communication with the residents, both on general matters and on specific
neighborhood development proposals, will continue to be a priority policy of
this Plan and of this City.
It is Orono’s firm conviction that the goals, policies and programs
outlined in this CMP are consistent with national and regional priorities
and are undeniably in the best interests of all Orono citizens, both
current and future. This Plan emphasizes full use of existing public services
and facilities without leap-frog expansion of unnecessary services into rural
areas. This Plan reinforces regional plans for emphasis on the center city. (?)
This Plan reinforces the national concern for energy conservation through
halting of suburban sprawl,(?) through retrofitting and rehabilitation of
existing structures, through coordinated transportation planning and through
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emphasis on natural rather than mechanical solutions to storm water and
waste water treatment. This Plan emphasizes reliance on and efficient use of
natural features and existing services rather than arbitrary duplication of
efforts between competing municipalities. This Plan is built on understanding
and acceptance of Orono's unique location and environmental constraints.
Working with these factors will improve our quality of life; ignoring them
would destroy it.
URBAN AREA GOALS AND POLICI ES
URBAN COMMUNITY GOALS
1.To maintain the historic identity and small town character of the
separate neighborhoods.
2.To provide opportunities for neighborhood commerce, education and
social facilities to serve Orono's urban and rural residents alike.
3.To improve the quality of life and neighborhood aesthetics while
maintaining the existing diversity of housing and shopping opportunities.
4.To prevent overly dense development or any excessive demand for
services which would in any way adversely affect Lake Minnetonka or
its associated wetlands or drainage areas.
5.To provide municipal facilities and services at a level consistent with
small town urban requirements.
URBAN PLANNING POLICIES
1.Future urban development will be carefully integrated into the existing
neighborhoods. No new development will be permitted to conflict with or
adversely affect the established neighborhood character.
2.The City will encourage commercial facilities and social centers that
complement the existing available services. The City will favor those
developments oriented toward local neighborhood needs, recognizing the
integrated service area of all adjoining lake-area communities.
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3.
4.
5.
6.
Private landowners and developers will be encouraged to improve the
image of their neighborhoods. Programs will be pursued to encourage
maintenance and upkeep of all properties and to promote the rehabilitation
of older or under-used properties. Commercial areas will be encouraged to
provide a coordinated approach to identity, aesthetic and neighborhood
appeal.
Urban developments will be carefully screened for environmental
sensitivity. Most of Orono's urban neighborhoods are located very close to
Lake Minnetonka, therefore any urban development has the potential for
direct adverse impact on the lake. Storm water runoff control, erosion and
sedimentation are particular concerns requiring careful design attention
in all new urban developments. In addition, particular care will be taken to
preserve open spaces, wooded areas and solar access.
Urban developments will be limited to the extent that they can be
adequately served by the existing public facilities and services. New
development will not be permitted to exceed the existing capacity of local
roads, utilities, parks, police and fire protection. Where development within
the urban service area requires local extension of roads or utilities, such
extension will be the full responsibility of the developer, not the general
taxpayer.
Higher levels of public services will be provided in the urban area than
in the rural area. The greater land use density and the greater number of
residents combines to require more intensive levels of public services. Police,
fire, and ambulance calls are more frequent. Roads, parking lots and
playgrounds require more maintenance. Public sewer and water is necessary
because of population density and proximity to the lake. All of these factors
combine to increase the cost of government in the urban portions of the city,
which increased cost will be paid by the urban users of the services without
subsidy from the rural residents.
RURAL AREA GOALS AND POLICIES
RURAL COMMUNITY GOALS
1.To maintain the rural character of open spaces and closeness to the
natural environment.
2.To retain the opportunity for rural commerce such as farming, orchards,
greenhouses, stables and similar activities which require limited seirices
but relatively large amounts of open space.
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3.To retain the opportunity for a diversity of housing types and the
availability of alternative lifestyles.
4.To prevent the encroachment of urban development or any activity
which would in any way adversely affect Lake Minnetonka or its
associated wetlands or drainage areas.
5.To provide only those public services which are necessary to serve a
traditional rural community so as to limit the financial burdens on the
community and the landowners alike.
RURAL PLANNING POLICIES
1.Future rural developments will be guided so as to have miuimal impact
on the land or on the existing rural neighborhoods. Rural developments
will be permitted only at rural densities and only where the land is capable
of self-supporting the necessary on-site sewer and water services. Care will
be exercised to ensure that no new development encroaches upon its
neighbor's open space activities.
2.Rural neighborhoods will be reserved for low-density residential and
quasi-agricultural land uses. Commercial services will continue to be
provided in the urban areas of Orono and adjoining municipalities. No new
commercial or industrial activities will be permitted in the rural service area
except those quasi-agricultural uses that do not require central sewer
or other urban services.
3.Rural developments will be carefully screened for environmental
sensitivity. Most of Orono's rural land includes major or minor drainageways
and wetlands all intricately tied to Lake Minnetonka. Therefore, each rural
development will require particular care to prevent encroachment on these
vital resources and to ensure protection of the soil vegetation and drainage
patterns. In addition, consideratian will be given to protection of woodlands
and special open vistas having general public benefit.
4.Rural developments will be limited to the extent that they can be served
by the existing public facilities and services. New development will not be
permitted if it requires the extension of urban services into the rural area.
Privately constructed and maintained roads and recreational facilities will be
favored over requirements for additional public facilities. Buildings and
structures must be located and designed for rural levels of police and fire
protection. Rural residents cannot expect the same level of services as
provided to the more concentrated urban areas of the City.
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5. Special planning considerations are required for those rural area located
on Lake Minnetonka islands. It is impossible for the City to provide island
residents with normal public services such as police, fire, ambulance,
sanitation or transportation. Therefore, all of these needs must be met by the
individual property owners who choose to develop land on the islands.
Because of these physical limitations, the City has determined that private
island development must be discouraged, and may be permitted only in strict
compliance with all applicable performance standards.
COMPREHENSIVE PLANNING STRATEGY
PLANNING GOALS
1. To identify community characteristics, needs, issues and aspirations.
2. To formulate and maintain long-term goals for future community growth
and management.
3.To formulate and maintain policies, ordinances and programs designed
to implement the community goals.
PLANNING POLICIES
1.The CMP is designed as a management tool for city officials, staff and
citizens in the conduct of both public and private activity within the city.
2. The CMP is designed to encourage effective and coordinated
implementation methods to properly balance private incentives and the
protection of the public interest.
3.
4.
The CMP is designed to help coordinate the various implementation tools
such as regulations, ordinances, public procedures, public expenditures
and property tax policies.
The CMP b intended to be a living document to be used on a day to day
basb.
5. The CMP b intended to be reviewed, and updated if necessary, on an
annual basb.
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