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HomeMy WebLinkAbout09-23-1999 Council Work Session PacketTo: From: Date: Mayor, Council and Planning Commission Ron Moorse, City Administrator Mike Gaffron, Senior Planning Coordinator September 21, 1999 Subject:COMPREHENSIVE PLAN WORK SESSION THURSDAY SEPT. 23,7:30 A.M. Council Chambers Attachments: 1 .Revised DRAFT Table of Conlents/Outline 2.DRAFT Part I: Introduction 3.DRAFT Part II: Basis for Plan Recap of Sept 2. Work Session On September 2 Council and Planning Commission reviewed housing and demographic data that helps define who our population is and what needs they may have now and in the future. It is clear we have an aging population that will be looking for housing alternatives that don't currently cxisti in Orono. Most of the needed alternatives will require development densities of 2-3 units per acre, and the full range of utilities and ser\ ices. This limits the potential areas to sites near Highway 12 or bordering the City of Long Lake; and to sites in the Navarre area. Council was presented with maps suggesting possible sites for higher density development to occur. These sites included: Reiersgord et al: 50 acres east of City offices ( perhaps 70-80 townhome units at a density of 1.9 units per acre, plus some commercial/office) James & Dumas:55 acres west of Old Crystal Bay Road between 12 and the RR tracks (60-70 units of mixed residential at a density' of 1 .2-1.4 units per acre) Hackberry Area:20-30 acres East of Willow Drive between Watertown and RR Tracks (207-30?- 40? units of single family at a density of 2 units/acre±) There are few areas within Navarre with a potential fo: more than a handful of higher density units. Using just the above-noted sites and the noted densities, Orono would al best be providing 200 dwelling units at densities greater than 1 unit per 2 acres. The September 2 packet also included a partial draft of the sewer policy plan and a proposed MUSA staging plan. I will provide further detail on these topics for review in October. Met Council Concerns Mary Hill Smith, District 3 Metropolitan Council representative, invited a number of Lake area cities staff to a meeting on Sept. 20 to discuss stormwater and on-site system management aspects of the comp plan requirements. I was the only invitee present, so I updated Ms. Smith and the other MC Sept. 23 Work Session Page 2 people present (Sector Rep Tom Caswell and Watershed Coordinator Jack Frost) as well as Eric Everson (MCWD Exec Dir.) as to where we are at with the Comp Plan. Mary Hill Smith indicated that considering the grilling that Met Council gave Minnetrista about providing more density, and given that Orono is one ring closer to downtown than Minnetrista, we should expect that Met council will be looking for significant higher density areas in Orono. We didn't get into how many units or at wh?' densities might be an "acceptable" amount. Goals for September 23 Work Session 1. Review the revised DRAFT table of contents, advise if anything here seems out of whack. o 3. Review DRAFT Parts 1 and 11 and the list of proposed figures, etc. and advise whether there are significant concepts missing that should be added to these mostly introductory sections. Discuss whether you wish to consider additional areas for higher density housing, especially in light of the strong neighborhood support in favor of'staying the course' in the 2-acre zones that was shown at the Bancor public hearing; and consider strategies for meeting Met Council's density goals in light of such local opposition...such as redevelopment in already higher density areas? or ? Topics for future Comp Plan work sessions: Thursday September 7:Stormwater Plan (Bonestroo will be presenting information regarding a development fee structure to fund the capital improvements aspect of the plan) Comp Plan Future Topics for Discussion: 1) Transportation Policies and Goals (future road maintenance policies, assessment policies; potential County turnbacks or exchanges; rural road standards; private road standards, etc.) 2) Vision for Highway 12 Corridor (post-bypass) 3) Parks Plan ( adopt Park Commission's 1997-98 draft plan.or?) 4) Historic Prcser> ation (any support for doing this?) 1 will be continuing to generate sections of the plan for discussion in the coming weeks and will shoot them off to you as quickly as possible. Please call if you have any questions, any topics you want to pay greater attention to at this point, or have comments on information provided to date. Part 1. Part 2. Orono 1999 Comprehensive Plan Draft Table of Contents / Outline March 1999 Introduction Purpose Title Scope Overview Figure _-The Urbanization Spiral Plan Organization Basis for Plan A.Community Historical Background Figure _- Regional Map Figure _- Historical Map Table _- Important Dates in Orono History B.Community Profile Table Table _ Figure Table Table - Population Growth 1950-1990 - Population Age Ranges 1990 _ - Age Distribution - Income • Employed Persons by Industry C.Community Philosophy Figure _- Existing Land Use 1999 Table _- Existing Land Use, I/I/99 D.General Goals and Policies The Urban Area The Rural Area Figure _- Orono’s Urban and Rural Areas Comprehensiye Planning Strategy Part 3.Land Use A.General Land Use Plan Basic Land Use Concepts and Principles Land Use Goals and Policies The Land Use Plan Figure - Land Use Plan 2000-2020 Figure - Existing Parcel Sizes Table _- Developable Land Analysis, Aug->st 1999 Residential Areas Commercial/Industrial Areas Navarre Highway 12 Areas Proposed for Change Developuient Staging B.Housing Plan Basic Housing Concepts and Principles Summary of Existing Housing Statistics Table _- Dwelling Units by Type Table _- Owner/Renter Statistics, 1990 Table _- Population Projections Metropolitan Livable Communities Table - Valuation of Owner-occupied Units, 1990 Table _- Rent Range of Rental Units, 1990 Housing Improvement Goals and Policies Table _- Age of Existing Housing Stock Table _- 1990-98 New Horae Valuations Housing Improvement Plan C. Historic Site Preservation Plan D. E. Solar Access Protection Plan Environmental Protection Plan The Natural Setting Figure_- Wetlands, Drainageways and Floodplains Figure_- Woodlands Figure_-Soils Table _- Lake Sizes and Shoreland Classification Surface Water Management Plan Stormwater Management Figure 8 - Subwatersheds Wetland Preservation Shoreland Management Figure_- Shoreland Overlay District Tree Preservation Part 4.Public Facilities & Services A. Transportation Basic Transportation Concepts and Principles Land Use Impact on Transportation Traffic Volume Forecasts Figure_- Traffic Volumes 199_ Table _- Traffic Volumes Figure_- Projected Traffic Volumes Table _- Projected Traffic Volumes Figure_- Traffic Analysis Zones (TAZ's) Table _- Forecast of Population, Households & Employment by TAZ Highways and Streets Rural Urban Table _-Transportation System and Functional Classification Figure_- Roadway Classifications Right-of-Way Preservation and Access Management The County Road 15 Corridor Figure_- County Road 15 Corridor The Highway 12 Corridor Figure_- Highway 12 Corridor The Ring Route Concept Transit and Transit Coiridors Figure_- Public Transportation Routes Bicycle and Pedestrian Facilities Street Maintenance Program B.Aviation Genera! Airspace Protection Aviation Support Facilities Seaplane Lakes Helinons C.Sewei Basic Sewage Treatment Concepts and Principles Figure_- Metro 2040 Regional Growth Strategy Map Figure_- Orono MUSA Boundary 1999 and Growth Plan thru 2020 Urban Sewage Treatment Policy Plan Rural Sewage Treatment Policy Plan I STS Management Program Projections/F’orecasts and Planned L.tnd Use D. E. F. Table Table Table Table Table Table Sewered Population 2000*2020 Sewered Households 2000-2020 Sewered Employees 2000-2020 Residential Equivalent Connections 2000-2020 Projected REC’s and Sewered Population 2000-2020 Wastewater Flows by Interceptor Service Area Existing Sewer Facilities Figure_- .Metropolitan Sewer Facilities Table _- Orono-Long Lake Interceptor Sewer Design Capacity Figure_- Municipal Sewer Facilities Projected Sewer Facilities Table _- Expected Sewer Connections 2000-2020 Figure_- Expected Sewer Facility Improvements Infiltratioalnflow Manaaement Water Supply (Reference Lxisting Plan, Update as Necessary) Water Supply Description and Evaluation Figure_- Municipal Water System Emergency Planning Water Conserx ation Plan Metro Area Impacts Parks and Open Space Inventory of E.xisiing Local and Regional Facilities Table _- Park, Open Space and Recreational Facilities Figure__- ParV., Trail and Open Space Facilities Needs AnaKsis Capital Improvement Program Land Use and Open Space Preservation Public Services Public Safetv Services Figure__- Fire Serv ice Districts and Emergency Siren Locations Public Education Figure_- School District Boundaries Government Agencies and Services Figure_- Postal Service Districts Privatelv Owned Utilities and Services Natural Gas Figure_- Natural Gas Service Area Electrical Service Figure__- Electrical Power Service Areas Telephone Figure__-Telephone Service Areas Wireless Communications Cable Television Figure__- Cable Television Service Areas Management of Utility Conduits Part 5. Part 6. Part 7. Appendix Sanitation City Owned Land and Facilities Table_- City*owned Facilities City Administration Implementation A. Comprehensive Plan B.Ordinances and Controls Figure_-Zoning Map 1999 Table_- Zoning District Descriptions C. Capital Improvement Plan Intergovernmental Coordination Inventory & Background Data A. B. C. D. E. F. Natural Features Population and Growth Figure_- Population Growth 1850-2000 and Beyond Land Use Housing Excerpts from LMACC Report on a Sub-Regional Housing Plan Sewers Roads and Utilities Figure_- Local Roadway Jurisdiction Figure_- West Metro Area Highway Classiflcation Index to Maps Index to Figures and Tables Topic Index Bibliography Documents ir>i masaTfewyfc.J PARTI INTRODUCTION PURPOSE The purpose of this plan is to document and reinforce the established goals, policies and principles of the City of Orono as a guide for orderly and economic private development and public improvement in the years ahead. Major emphasis is on the needs and involvement of people. The Plan discusses how people can manage their environment, how people have become involved with municipal decisions, how- people can create and continue the lifestyle and communit>- that we know as Orono. Thi.s 1999 Plan is a revision, expansion and update of the 1974 Orono Comprehensive Guide Plan and the 1980 Orono Community Management Plan (CMP). Major policy direction remains relatively unchanged but the content has been revised and updated to reflect the changes the City has undergone since 1980. This 1999 Plan is viewed by the City Council as a mere "mid-course correction", not heading the City- in any significant new directions, but allowing the City to continue its present plan established more than two decades ago while addressing the needs and expectations of a dynamic citizeniy. The Plan format has been revised to include topics required to be addressed as a result of the 1995 amendments to the Metropolitan Land Planning Act (MLPA). The Plan content addresses changes in Metropolitan Council plans and policies adopted in December 1996 subsequent to the 1995 MLPA amendment .s, including the Regional Blueprint (and Regional Growth Strategy). Transportation Policy Plan . Aviation Policy Plan . Regional Recreation Open Space Policy Plan , and Water Resources Management Policy Plan . This Plan is consistent with the plans of adjoining municipalities and affected school districts. The Plan is intended to be a living document to be used on a day to day basis. TITLE The title of this Plan has been carefully chosen to signify* its intent and purpose. The word "Community" is meant to stress the fact that this is in fact the plan and desire of the citizens and not just the design of City officials. The retention of Orono's small town sense of comunity and personal interaction is a guiding factor in almost all City functions. { The word "Management" is indicative of how Orono citizens and officials view their role in making the daily decisions that affect this lifestyle. Orono's plan is one of management of our resources including land, w ater, open space and people. Grow th and development is encouraged in such a way as to protect and preseire the natural assets of our community. Intelligent management of all those factors affecting growth and community activities will assure benefit and opportunity for all residents young and old, affluent or needy, long-term citizen or prospective homeowner. Finally, the words "Comprehensive Plan" are truly accurate in describing the process through which this document was prepared and the complete nature of its content. The planning process actually dates back to the early 1970 ’s when community awareness resulted in numerous large-scale town meetings and the formation of the basic direction and goals contained herein. The content is all-inclusive of those areas requiring local concern and management. The document gives direction and purpose in managing public and private activities in the coming years. In the best sense of the word, this document is to be used as a guide or plan for reference and assistance in future decision-making by citizens and public officials alike. SCOPE The scope of this Plan is intended to include almost every factor that influences investments or improvements in the City, whether by private individuals or government involvement. Each section of the Plan stands on its own merits yet is an integral part of the whole. For instance, Orono's history and natural features are explored as factors explaining and constraining contemporary decisions. The Land Use Management section becomes the primary tool for formulation of zoning regulations and development proposals. Public facilities planning of transportation, recreation and sewer serv ices coordinates capital investment with land management and regional system capacity. Through all runs a common thread of environmental care and concern. Relevance of the Plan is important as concepts must be current to be fully understood or implemented. Annual reviews are to be conducted by the Planning Commission and City Council to renew this understanding in light of changing attitudes and events. The 1999 Plan is intended to be nominally useful tluough 2020, the current time framework of regional plarming. But careful reading will reveal that Orono's past history and current goals have remained essentially the same. Therefore, the reader is advised that for all intents and purposes, this Plan and its impact on local development is intended to be permanent. L OVFRVIEW The basic concerns and philosophies of Orono citizens have evolved through the City's history and its intimate ties with Lake Minnetonka. Map No. 1 locates Orono in relationship to Minneapolis and the westc n suburbs. More importantly, it clearly indicates the relative importance of Orono to the total watershed of Lake Minnetonka. No other city bordering the Lake has as much water area, as much shoreline or as much watershed land area as does Orono. No other city has as much at stake in the preseiv ation of Lake Minnetonka as does Orono. Yet all area citizens will benefit from Orono's commitment to effective land use planning and permanent environmental protection. Orono and surounding towns have a rich, interwoven history dating back to the Civil War period. The first cabin in Orono was built by John Carman on Spring Park Peninsula (Casco Point) in 1853. In 1856, the first military roads were built and in 1858, Minnesota became a state. Soon, farmers arrived to clear land bordering the Big 'v'oods. They established trading centers that would grow into die towTis of Wayz '.a. Excelsior, Mound, Long Lake, and Maple Plain. Next came the city-folk, build- ig cabins along the shores of Lake Minnetonka. Their informal lakeside lifestyles were a welcome retreat from city heat. Together, these pioneers set a pattern that has lasted over a hundred years. Along the lake, Orono acquired an urban character of closely spaced homes while areas aw-ay from the Lake have remained rural with generous amounts of open space. Services for both areas continue to be pro\ ided in the traditional town centers. The people of Orono, though of diverse interests, have been drawn together by a slow-paced lifestyle and quiet amenities. Their common tie is a commitment to maintain those attractions of which Lake Minnetonka is the most visible example. In the 1950's, increasing urbanisation all around Lake Minnetonka threatened to environmentally "kill'' the Lake by uncontrolled discharge of nutrients. Citizens became concerned. Their first reaction caused lake area municipalities to begin extending sewer systems to eliminate individual septic system discharges. This helped the situation at first, but b> 1968 lake water quality was still diminishing. Citizens became alarmed. At this point the Minnesota Pollution Control Agency, joined with the newly organized Lake Minnetonka Conservation District to commission a study of lake pollution. Entitled "A Program for Preserving the Quality of Lake Minnetonka", the "Harza Study" (as it will be referred to hereafter) found that this nutrient input, particularly phosphorus, was being generated from two principal sources: the seven municipal sewage treatment plants; and urban stormwater runoff coming from within the watershed. The first pollution source, nutrient rich effluent outflowing from the municipal sewage treatment plants, was systematically eliminated during the late 1 970's and early 1 980's by multi-million dollar construction of sewer interceptors designed to remove effluent from the watershed. But stormwater runoff is a different matter. Unlike point-source sewage pollution, there is no economically practical way to artificially collect or treat non-point source stormwater pollution. Lake Minnetonka is fed by neither spring nor tributary ’. The sole replenishment comes from storm w ater runoff from the w atershed, of which over one-third flows from or through Orono. Lake Minnetonka, second only to Lake Michigan in this region, has an extremely long 25-year flush-out period. This means that careful and continuous attention must be given to the quality of runoff into the Lake. The various studies conducted in the 1960's and 1970's recommended that lakeshore density ue limited and that the natural system of wetlands and marshes be forever protected and prescr>ed as the only practical, economic method of filtering nutrients from storm water runoff. Implementation of density limitations relies on breaking the "Urbanization Spiral", the development paradox that results from providing urban-level municipal services for new development. The paradox is that if municipal ser\ ices are extended to to rural zones, the cost of these services ta.\es the land to the point that higher density development is required. Particularly in the case of sewers, even if extended to existing pockets of development "to solve a pollution problem", inflation, topography and and sparse settlement combine to sen costs skyrocketing. Such costs can only be paid by increasing development densities, which in turn cause increasing levels of storm water nutrient pollution. This spiral results in even gieater levels of pollution than the original sewage 'problem' might have been. For example, Eugene Hickock's 1973 Storm Water Impact Statement for the Metropolitan Council identified up to 10 times more phosphorus alone from urban storm water runotT than from Orono's low-densitv rural land use. In response to the above concerns, Orono became a nationally recognized leader in espousing environmental protection. Land use planning since the 1950's has stressed the environmental advantages of low density development. Shorelands, wetlans and natural drainage systems have been preserved by tradition and by ordinance. Comprehensive planning was underway by the mid-1960 ’s. In 1974, the first published Plan, as approved by the Metropolitan Council, established as its foremost guiding principle the protection and preservation of Lake Minnetonka and its assoeiated wetlands. The 1980 Community Management Plan reinforced these principles and has served as the basis for management of development in Orono for the past two decades. Figure_: The Urbanization Spiral Illustrates the develoment parado.x that faces Orono if municipal services are extended into rural areas. - r ~ Hard decisions have been made to limit the extension of burdensome urban services into rural areas. However, the combination of low density residential development, establishment of privately owned and maintained roads, and use of septic systems and wells has provided Orono with unique and sustainable neighborhoods ;i.at are not only self-sufficient but collectively have a relatively low environmental impact. Enforcement of the policies necessar>’ to create and maintain these rural neighborhoods have been consistent and effective. Through it all, the average Orono residents have been soundly behind every' such endeavor. Today, Orono still faces the same options as oilier outlying communities, although Orono is no longer the 'outer ring ’ that it was 20-30 years ago. Development pressures continue as speculators view our remaining open spaces seeking to put them to a "highest and best use". The Metropolitan Council has recognized an urgency to curtail "Urban Sprawl" by making more efficient use of the remaining undeveloped land within the 7-county Metro area. Yet Orono has an obligation to its residents, both those who live on the Lake and those who reside in the rural area, to preserve these two complementaiy' lifestyles. And Orono has an obligation to the citizens of Minnesota who treasure Lake Minnetonka as a unique and valuable natural resource and who expect it to remain in a usable condition. Orono's ongoing plan to preserve the watershed of Lake Minnetonka is sound, environmentally correct, and in step with regional planning for metropolitan needs. This Plan is intended to explain i^deatil whyOrono is unique, why Orono must continue to provide special environmenfal protections for the health of Lake Minnetonka, and how Orono intends to provide for future land use management through effective, low-key governmental concern for the welfare of Orono citizens. i ORGANIZATION OF THE COMMUNITY MANAGEMENT PLAN This document has been divided into seven parts in order to make it more readable and understandable to citizens and other interested parties: Part I forms a brief introduction and overview of planning concerns. Part II provides a basis for Orono's plan - the history, community philosophy and general goals and policies that have shaped and will continue to guide Orono's planning strategy. Part III encompasses Orono's land use plan, defining how Orono will develop in the coming two decades, and defining Orono ’s housing and environmental protection programs. Part IV contains detailed plans for how Orono will provide a balanced and appropriate level of public facilities and serv ices, addressing transportation systems, sewer and water facilities, parks and open spaces, and the broad range of community services such as public safety, education, private utility and communications systems. Part V contains a brief description of ordinances and programs for implementation of the Plan. Part VI reviews the City's commitment to coordination of services and programs with surrounding municipalities as well as other governmental agencies. Part VII is an inventory of the basic background data which describes the existing community and its resources, forming the basic foundation of the Plan. Throughout this document, the Community Management Plan will be abbreviated as "CMP". PART II BASIS FOR COMMUNITY MANAGEMENT PLAN A. HiSTORTCAL 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 unique features. Orono's corporate history 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 ot 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 1980 for McCulley Road; detachment of the Fleming Trail Addition to Long Lake in 1993; and annexation of property along North Femdale and West Femdale Roads from Wayzata in 1994 in exchange for detachment of a property along Highway 12 to accommodate Wayzata ’s public works facilities. Figure___: Orono's Place in the Region Figure___: Historical Map The history of Orono's development is one of conversions: conversion of the Lake Minnetonka shoreline from Big Woods to summer homes in the late 1800's and early 1900's, and a second conversion from summer homes to year round residences since WWII; and conversion of the off-lake woods and prairie openings into farmland in the 19th century, with a more recent conversion from farms to low-density residential homesites beginning in the 1950’s. Development of the lakeshore historically had been at the whim of developers, and hundreds of 50-foot wide lakeshore lots were platted in the late 1800's. Orono ’s first Township zoning regulations were adopted in 1950, and grew progressively more strict through the next two decades as Orono residents realized that uncontrolled development would lead to undesirable results. Several residential and commercial zones were initially established, requiring minimum lot area and width standards, and defining allowable uses. The first wetland protection ordinance was established in 1963, about the same time that municipal sewers were first provided to the Na\ arre area. Perhaps the single most important event that has shaped Orono's development in the last half-century was the City-wide rezoning in 1975. Much of the City had been zoned for residential development with 1-acre lots by 1967, with most of the N avarre area around Lake Minnetonka being zoned 1/2-acre, and a few areas in nonheast Orono requiring 1-1/2 or 2-acre lot sizes. The 1975 rezoning took into accomit two important factors. First, that creating and maintaining a low density of development in the watershed is critical to preserving Lake Minnetonka: and second, that lots must be large enough to accommodate on-site sewage treatment systems on a permanent basis, due to the high cost of sewering and the "urbanization spiral". As a result, the 1975 rezoning established a minimum lot size of 2 acres (or 5 acres in northw est Orono) for 80% of Orono's land area. This had a dramatic effect not only in slowing development, but in effect capping the City's ultimate potential population at around 10,000 rather than the 30-40,000 that had been predicted under typical suburban development scenarios. Table__: Important Dates in Orono History i B. COMMUNITY PROFILE The population of Orono is estimated by Metropolitan Council to be 7,702 as of April 1,1998. This is a 6% increase since 1990. Total housing stock as of June 1999 is estimated at 3,020 units, an increase of approximately 230 units (8%) since 1990. Demographics Orono is primarily a bedroom community, \sith 96% of its land area zoned for residential use. Orono's population increased slowly prior to 1920, consisting mainly of area farm families and a few hardy year-round lakeshore dwellers. Beginning in 1920 population began a steady increase, doubling by the late 1930's and doubling again by 1950 to just under 5,000. From 1950 to 1970 a number of urban-density subdivisions were developed and conversion of lakeshore cabins to year-round homes began to occur, as popula ’ion grew to around 6,800. Population increases slowed dramatically in the 1970’s due in great part to Orono's comprehensive planning and the City-wide rezoning in 1975 which resulted in 80% of the City's land area requiring 2-acre or 5-acre minimum lot sizes; and due in part to a general decline in the size of households and other factors. Annual population increases over the last 30 years have averaged less than 1% per year. Figure _: Orono Population 1840-2000 and Beyond Surrounding communities have undergone varied rates of population increase in recent decades. Figure _: Adjacent Communities Population 1970-1990 (Include Plyinouth, Wayzata, Minnetonka Beach, Tonka Bay, Spring Park, Mound. Minnetrista, Independence, Maple Plain, Medina) Age Characteristics Figure _: Orono Age Distribution 1980-1990 Household Composition Figure _: Household Composition Comparisons 1980-1990 Employment Figure _: Occupations as of 1990 Income Characteristics Figure : Household Incomes, 1990 4 Orono Population 1840-2000 and Beyond (No data prior to 1920; 2000-2020 figures are projected estimates) Thousands 'if '^o V? '1? Source; U.S. Census data; Metropolitan Council; City projections C COMMUNITY PHILOSOPHY Orono's Coiomunity Management Plan is a statement by the citizens as to what we are, where we have been, and where we are going. Future development and 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 pxM two decades. In addition, Orono will retain its own special identity through carehil growth management in the best interest of the environment, the natural resources, the watershed of Lake Minnetonka and the community of citizens, both present a^'^d future. (Figure I - 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 lifesty les; preservation of Lake Minnetonka and its sensitive watershed; and 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 1 1 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 Citier. area, Miimetonka 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 appro.ximately 1/5 of the contributing watershed lies in Orono. Lake Minnetonka's charms 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 I980's and 90's. 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 ind 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 >ve see that Orono has hvo distinct personalities: The urbanized lakeshore and the rural woods, fields and open spaces. Both areas are primarily residential in nature, relying upon the existing town center of Navarre and other nearby cities such as Long Lake and Spring Park for shopping, commercial and industrial activi ies. The concern of the residents is to provide for continuing maintenance and preservation of those natural resources and social amenities which attracted people to Orono in the first place. Near the lake, density of development has to be regulated in order to minimize the resultant stormwater runoff pollution which, if unrestric ted, could permanently alter and destroy the ecology of this very unique resource; Away fre.n 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. Orono's primary goal of preserving the water quality and level of Lake Minnetonka can only be accomplished by maintaining the basic integr ty of the natural w atershed. Open space is to be cherished and protct ^ed. 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 e.xperiences. 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 ovvner 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 interreliance of the many lake area communities and the many industrial, retail-commercial and health care facilities .Kcessible 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 Blueprint". 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 in and near Orono are available in a wide range of alternatives consistent with tlie availability of public services. The adjacent cities of Long Lake and Spring Park provide significant higher density housing types not found in Orono, while Orono provides housing possibilities not found in those cities. Sewer and transportation facilities are capable of servicing the planned density of development, and land use patterns are consistent with and complementary to 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 "P,egional Blueprint" which suggests an ultimate density of 1 unit per 10 acres. Orono's 'Rural Area' will be developed at densities averaging approximately 1 unit per 3 acres, sufficient to meet the City's environmental protection goals. The Metropolitan Urban Service Area ("MUSA") boundary is the boundary established by Metropolitan Council that defines the extent of areas where urban services will be provided and urban scale development will occur. Orono has located this MUSA line within our City as shown 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. Orono's "Year 2000 MUSA" boundary reflects a clear intent to bring municipal sewer to lakeshore areas where needed, as well as to existing concentrations of population where septic systems may not be suitable for the long-term. 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 pemianent use and development of the City, that is what this plan is all about. D. GOALS AND POLICIES Any plan is necessarily a compromise of ideals and reality. \Miat Orono is today has been shaped by its location, history, geology and past population. WTiat 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 neighborhoods continues a hundred- year tradition. The commitment to environmental preservation was early, has been supported by Regional, State and Federal policies, and remains uppeimost 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 PLANNING 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 flooding and of filtering out the nutrient pollution from stormwater runoff. 2.To retain the existing urban-rural land use pattern on a permanent basis. 3. To maintain our local character and identity. 4.To protect and preserve our many natural resources including all lakes, creeks, marshes, wetlands, woodlands, groundwater and steep slopes. 5. 6. 7. 8. To preserve open space, light, air and solar access for all citizens. To protect the general public health, safetj' and welfare. To promote development in the Cit> at densities consistent with environmental protection and the planned land use pattern. To protect the financial stability of the Cit>', providing an adequate level of services at minimal cost to the taxpayer. ORONO’S PLANNING POLICIES 1. 2. 3. 4. 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. Urbanization will not be expanded into the existing rural areas. Orono's Community Management Plan is noi a staged growth plan, and therefore the Urban Service area will nol be expanded into the Rural Service Area. Urban services will not be expanded into the Rural Service Area. 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.__. The boundary between Orono's urban and rural service areas is lud 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 sewer is provided. The MUSA boundary has been amended 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 not changed to allow for additional development at urban densities, and urban services other than sewer have qqI been provided. Provision of municipal sewer service to existing neighborhoods within the Rural Service Area has not changed their classification from Rural to Urban. 5. 6. Future expansions of the sewer system into the Rural Service Area to solve existing neighborhood sewage treatment problems or along the lakeshore to avoid or eliminate potential negative impacts on lake water quality, will not result in a reclassiflcation of those neighborhoods from Rural to Urban. Expansion 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. 7. 8. 9. 10. Expansion of the MUSA to allow sewering of existing neighborhoods or developing lakeshore properties within the Rural Service Area, is luil an expansion of the Urban Serv ice Area. Provision of municipal sewer to existing neighborhoods or developing lakeshore properties within the Rural Service Area will n^i 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 nol result in the rezoning of neighborhoods or individual properties 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 all land use developments. Ordinance provisions will be reasonably established, fairly interpreted and strictly enforced. 11. Historically significant buildings, places and settings will be identified and preserved. The character of Orono receives much of its identic 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 significaiit publ’c or private amenities. 1 2. 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 either within Orono or within the adjacent town centers of Long Lake and Spring Park where the necessary support services for a wider range of housing opportunities are readily available. Rehabilitation programs will be stressed to increase the livability and energy efficiency of the existing housing stock. 13. 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. Accommodation of "through" commuter traffic will be sufficiently planned to provide an adequate level of service while resulting in the minimum possible impacts on Orono's residential neighborhoods and the environment. 14. 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, w ith the school districts and with specialized districts such as lake conservation, watershed or joint powers districts, all for the purpose of providing consistent, high quality services at affordable cost to the taxpayer. 15. Orono will continue to maintain a low 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. 16. Orono will continue to emphasize active citizen participation in policy formation and policy administration. 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. 17. 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 e.xisting public services and facilities without leap-frog expansion of unnecessary ser\'ices into Orono's rural areas. This Plan reinforces r. ^ional plans for emphasis on the center city. (?) This Plan reinforces the national concern for energy conservation through halting of suburban sprawl(?!?), through retrofittmg and rehabilitation of existing structures, through coordinated transportation planning and through emphasis on natural rather than mechanical solutions to storm water and waste water treatment, i his 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 POLICIES URBAN COMMUNITY GOALS 1.To maintain the historic identity and small town character of the separate neighborhoods. 2.To provide opportunities f . leighborhood commerce, education and social facilities to serve Orono's urban and rural residents alike. 3. 4. To improve the quality of life and neighbo*‘hood aesthetics while maintaining the existing diversity of housing and shopping opportunities. 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. To provide municipal facilities and services at a level consistent with small town urban requirements. URBAN PLANNINC; POLICIES 1. 2. 3. 4. 5. 6. 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. 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. 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 vvill be encouraged to provide a coordinated approach to identity, aesthetic and neighborhood appeal. Urban developments will be carefully screened for environmental sensitivit}'. 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 require.', local extension of roads or utilities, such extension will be the full respensibility 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 lai d 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. i RURAL AREA GOALS AND POLICIES RURAL COMMUNITY GOALS 1.To maintain the rural character of open spaces and closeness to the natural environment. 2. 3. 4. 5. To retain the opportunity for rural commerce such as farming, orchards, greenhouses, stables and similar activities which require limited services but relatively large amounts of open space. To retain the opportunity for a diversity of housing types and the availability of alternative lifestyles. 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. To provide only those public services which are necessaiy to serve a traditional rural community so as to limit the financial burdens on the community and the landowners alike. RURAL PLANNING POLICIES 1. 2. Future rural developments will be guided so as to have minimal 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. Rural neighborhoods will be reserved for low-density residential and quasi-agricultural land uses. Commercial ser\ices 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 serv ice area except those quasi-agricultural uses that do not require central sewer or other urban services. 3. 4. 5. 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. Rural developments will be limited to the e.\tent 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. Special planning considerations are required for those rural areas 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. A k I COMPREHENSIVE PLANNING fiTRATEGY PLANNING COALS 1. 2. 3. To identify community characteristics, needs, bsues and aspirations. To formulate and maintain long-term goals for future community gro\^ih and management. To formulate and maintain policies, ordinances and programs designed to implement the community goals. PLANNING POLICIES 1. 2. 3. 4. 5. The CMP is designed as a management tool for city officials, staff and citizens in the conduct of both public and private acthit> within the city. The CMP is designed to encourage effective and coordinated methods of implementation to properly balance private incenth es and the protection of the public interest. 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 is intended to be a living document to be used on a day to day basis. The CMP is intended to be reviewed, and updated if necessaiy, on an annual basis.