HomeMy WebLinkAbout02-12-1998 Council Work SessionCOUNCIL WORK SESSION
8:00 a.m.
Thursday, February 12, ;.v98
AGENDA
1.Highway 12 Land Use Options
2.Park Plan and Draft Amended Park Dedication Ordinance
r*3.Highway 12 Preliminary Design Process Update
TO:Mayor and City Council
FROM:
DATE:
Ron Moorse, City Administrator
February 9,1998
SUBJECT: Highway 12 Land Use Options
The City Council has had a number of discussions regarding the types of land use desired along
Highway 12 and the character of the Highway 12 area. The Highway 12 area includes four sub-areas
in Orono. These are the area north of Highway 12 between Brown Road and Willow Drive, tlie area
north of Highway 12 between Willow Drive and Old Crj slal Bay Road, the area south of Highway
12 between the Orono/Long Lake border and Old Crystal Bay Road, and the area south of Highway
12 and west of Old Cry stal Bay Road. The land use in Orono's Highway 12 area is related to the
land use along Highway 12 in Long Lake which includes at least two sub-areas; one being
downtown Long Lake, and the other being the area on the south side of Highway 12 betw een Brown
Road and the Orono/Long L ake border.
This memo outlines three general land use options for the 1 lighway 12 area, and provides an analysis
of the pros and cons of each option, to assist the Council in its decision-making regarding land use
along Highway 12.
Option I Community scale retail development along Highway 12 (both the north and
south f des) from Brown Road to and including the Dumas Orchard property
This option could include uses such as grocery store(s), (30,000 s.f. vs. 60,000 s.f), drugstore, bank,
hardware, and inirccllaneous retail uses such as cotTee, bagels, pizza, restaurants, shops, etc.
A.Pros
1.
2.
Would provide retail .services to meet the needs of the residents of the area.
Could enable Orono to take advamage of the current positive development
environment to obtain some quality retail development in the City.
3.Could enable Orono to recover more of its investment in the water and sewer
infrastructure on Highway 12.
4.The community scale retail is less disruptive to the rural character of Orono than
regional or "big box" retail.
Highway 12 Land Use Options
Page 2
B.Cons
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
This option would ultimately result in a two mile strip of retail uses along Highway
12.
Unless closely planned and managed, this option could result in multiple
uncoordinated concentrations of retail development along Highway 12.
Retail uses with significant anchors located west of Willow, and particularly west of
Old Crystal Bay Road, could significantly reduce the ability to accomplish quality
community scale retail development/redevelopment on the north side of Highway 12
east of Willow, and along Highway 12 in Long Lake, because this market can only
support so much quality community scale retail.
A retail strip, if successful, would create multiple busy intersections and increase
traffic on multiple north/south roadways.
A retail development west of Old Cr> stal Bay Road could cause the current light
industrial area to redevelop to retail, due to being surrounded on three sides by retail.
A successful retail development west of Old Crystal Bay Road would increase traffic
on Old Crystal Bay Road and would change the character of this entrance to the Old
Crystal Bay Road rural residential area. This could bring pressure for increased
residential density along Old Crystal Bay Road.
Retail development generates low paying jobs, fhe City has limited la.nd available
and may want to use this land to generate higher paying jobs through the
development of ofilce, high-tech, medical or similar uses.
Retail development can generate the need for increased City services (police).
A spread out retail strip weakens the vitality of downtown Long Lake as a viable
retail area and as a focal point for community activities.
If retail development is successful along Highway 12, it will generate congestion on
old Highway 12 creating pressure for interchanges on the new Highway 12. If the
retail development is unsuccessful, it could create pressure for interchanges along
new Highway 12 to provide more access to customers on new Highway 12.
ar*
f*->l
1.
Highway 12 Land Use Options
Page 3
Option 2 Community scale retail focused in a more compact area in and near downtown
Long Lake (closer to Brown Road than to Willow Drive, at least in the short
term)
This option would restrict strip retail development along Highway 12, particularly west of Willow
Drive. The sub-area on the north side of Highway 12 west of Willow Drive would be planned for
a medium density residential development on the north side of an extended Kelley Parkway to take
advantage of the wetlands as an amenity. The area south of Kelley Parkway along Highway 12
would be planned for office development with minor "neighborhood" retail to serve the office
development, the medium density residential development and the Orono schools.
Under this option, the southwest quadrant of Old Crystal Bay Road ^nd Highway 12 would be
planned for office, high-tech, medical or similar dc\ clopment. A portion of this sub-area may also
work for medium densitv residential.
Under this option, Orono's current industrial area on the south side of Highway 12 east of Old
Crystal Bay would be maintained or redeveloped as office or high-tech, medical, etc.
Under this option, current retail development proposals would be directed toward a smaller scale and
toward Brown Road vs. Willow Drive or Old Crystal Bay Road.
A.Pros
1.
2.
Provides a vital downtown for both Long Lake and Orono.
It is easier to plan, control and coordinate the development of a more compact retail
aiea than an extended retail strip.
3.
4.
Does not weaken the downtown as the key retail area.
Does not weaken the ability to obtain quality development on the north side of
Highway 12 east of Otten Brothers Nursery.
5.
6.
7.
Provides the opportunity to generate quality jobs in office, high-tech, medical, etc.
Enables better control over the amount of retail development that occurs in this area.
This development option matches the design of new Highway 12 with no
interchanges through Long Lake.
8.Limits the number of north/south roadways that would be affected by retail
development (increased traffic and activity levels).
1
Highway 12 Land Use Options
Paged
9. Maintains lower activity level in the area west of Willow.
10. Would create less pressure for interchanges on new Highway 12.
B.Cons
1 . Orono may lose current opportunities for retail development along Highway 12.
2.Orono may have to wait a number of years for quality ofllce and light industrial
development.
3.A significant portion of the benefits of this option are contingent upon the cities of
Orono and Long Lake coordinating their development planning.
Option 3 Provide for regional "big box" retail in selected locations along current
Highway 12 (Although this is not a comprehensive option for the entire
Highway 12 area; if "big box" retail is allowed in one or more of the sub-areas
along Highway 12, ii would have a signifleau^ impact on all of the other sub
areas of Highway 12.)
This option is included in this memo because both Long Lake and Orono have been approached
about the development of a 60,000 s.f. grocery store somewhere along Highway 12.
A.Pros
1.Would provide Orono residents with the benefits of a regional scale grocery store
close to home.
2.Would provide an anchor to draw traffic to the area, which could benefit other retail
uses.
B.Cons
1.
2.
A regional retail use will draw subs^anti'’.! traffic from beyond the community.
Other retail uses will be drawn to the regional retail use based on its trallic drawing
ability.
3.If the regional retail is successful, adjacent retail will be successful causing traffic
congestion on old Highway 12 and at key intersections. This could cause pressure
to add an intercharige on new Highway 12 to relieve the traffic congestion on old
Highway 12.
Highway 12 Land Use Options
Page 5
4.
5.
6.
OPTIONS MF.M
The regional retail uses need to draw from a market beyond Orono and Long Lake
residents to succeed. They need to draw from the traffic on current Highway 12.
This traffic will be cut in half when new Highway 12 is built, and there will be no
access from new Highway 12 to the regional retail uses. If the regional retail uses
and other retail that is drawn to the regional uses between now and 2002 (the year
new Highway 12 is built) were to experience dilficulties due to the substantial
reduction in the amount of traffic with direct access to them, they would bring
substantial pressure to add an interchange(s) on new Highway 12.
The north/south road(s) closest to a regional retail use would see substantially
increased traffic.
In the short-term, it is important to consider that the sewer capacity in the Highway
12 aica is severely limited until the capacity is increased as part of the Highway 12
project. Also, he traffic on current Highway 12 is now ver>' heavy. If major retail
development occurs along Highway 12 prior to the construction of new Highway 12,
it could cause significant traffic problems on current Highway 12.
!
i
TO:Mayor and City Council
FROM:Ron Moorsc, City Administrator
DATE January 27,1998
SUBJECT: Park Plan Update
The Parks. Open Space and Trails Commission has been working on a long-term parks plan in
response to the Council's direction to update the City's Parks Master Plan. Also, in order for the
City's Park Dedication Ordinance to comply with legal requirements, a "business plan" for the City's
park system is needed. The work of the Park Commission reflected in this update is the first step
toward the development of a long-term parks plan.
1 his update is to provide the Council with a general outline of how the Park Commission views the
City's park needs. The Park Commission is requesting feedback as to whether the Commission's
view of park needs coincides with the view of the Council. It is important that, before the Park
Commission continues its work on a long-term parks plan, the Council and Park Commission are
on the same track in terms of park needs. The Park Commission can then work to bring a more
specific focus to the City's current and long-term park needs, and develop a long-term park plan that
reflects those needs.
The Commission has identified a set of general park needs based on the City's overall goals for
parks. These needs are as follows:
1. Preserve open space and natural areas.
2.
a. This is a priority identified in the City's Comprehensive Plan and was the
Number 1 need expressed in the Citizen Park Survey conducted in 1994.
b. Existing natural open space areas in the City are as (ollows: Lowry Woods,
French Creek Preserve, Saga Hill, Highwood Nature Trail, Woodrill SNA,
Wolsfeld Woods, and the northern portion of Noerenberg Park.
c. An alternative method of providing open space, or to preserv e the City ’s rural
character, is requiring treed buffer strips that separate homes from adjacent
roadways. The tree preservation ordinance can be used to accomplish this.
Provide both active and passive park facilities to meet the needs of the Navarre area:
which is the City's most densely populated area, but has minimal park facilities.
TO:Mayor and City Council
FROM:Ron Moorsc. City Administrator
DATE:January 27,1998
SUBJECT: Park Plan Update
The Parks, Open Space and Trails Commission has been working on a long-term parks plan in
response to the Council's direction to update the City's Parks Master Plan. Also, in order for the
City's Park Dedication Ordinance to comply with legal requirements, a "business plan" for the City's
park system is needed. The work of the Park Commission reflected in this update is the first step
toward the development of a long-term parks plan.
This update is to provide the Council with a general outline of how the Park Commission views the
City's park needs. The Park Commission is requesting feedback as to whether the Commission's
view of park needs coincides with the view' of the Council. It is important that, before the Park
Commission continues its work on a long-term parks plan, the Council and Park Commission are
on the same track in terms of park needs. The Park Commission can then work to bring a more
specific focus to the City's current and long-term park needs, and develop a long-term park plan that
reflects those needs.
The Commission has identified a set of general park needs based on the City's overall goals for
parks. These needs are as follows:
1. Preserve open space and natural areas.
a.This is a priority identified in the City's Comprehensive Plan and was the
Number 1 need expressed in the Citizen Park Survey conducted in 1994.
b. Existing natural open space areas in the City are as follows: Lowry Woods,
French Creek Preserve, Saga Hill, Highwood Nature Trail, Woodrill SNA,
Wolsfeld Woods, and the northern portion of Noerenberg Park.
2.
c. An alternative method of providing open space, or to preser\ e the City's rural
character, is requiring treed buffer strips that separate homes from adjacent
roadways. The tree preser\ation ordinance can be used to accomplish this.
Provide both active and passive park facilities to meet the needs of the Navarre area:
which is the City's most densely populated area, but has minimal park facilities.
Park Plan Update continued
January 27, 1998
Page 2
3.Provide neighborhood parks in the City's rural area. Although the current
Comprehensive Plan indicates two acre properties have their parks in their back
yards, the City's goals of preserving open space and providing an area for active
recreational activities may not be met by a subdivision of two acre lots. The Park
Commission recommends identifying undeveloped parcels in the rural area,
particularly in the northwest area of Orono between the Burlington Northern railroad
tracks and Watertown Road, that would both enable the preservation of open space
and provide an area for active recreational activities.
It is imfwrtant to identify parcels to be acquired for park purposes at an early point
for two reasons. First, properties in Orono are being developed quickly. If we do not
want to have the same situation in the rural area as we now have in Navarre (where
no land is available for parks), we need to identify parcels that meet the City's park
needs. Secondly, if the City identifies parcels for acquisition prior to development,
land developers will be aware of the City's plans prior to creating a development
plan, so the development plan can reflect the City's park plan and needs. The City
will then also be able to acquire at least a portion of the park land through the park
dedication ordinance at the time of subdivision.
%
4. Orono does not currently have a community park to serve as a recreational focal
point for the community--with ballfields. a picnic shelter and other amenities. If it
is determined that a community park could provide substantial benefits to the
community, a potential site would be a portion of the undeveloped property in the
southwest quadrant of Willow Drive and County Road 6. A park in this location
could take advantage of the wetland area as an amenity accessed by a trail. This park
could be connected to the City facilities, the Orono schools, the OBA ballfields, and
the Old Crystal Bay Road trail.
5. There is one residential parcel that protrudes into the middle of Hackbeny' Park. The
City should plan to acquire this parcel when it becomes available for acquisition.
6. Some of the City's park needs coincide with the goals of other agencies. Because
Orono does not have the financial or staff resources to accomplish large projects, the
City should take advantage of opportunities to partner with other agencies, such as
Hennepin Parks and the DNR, on projects that could meet shared park needs.
7. Trails to connect the community.
Park Plan Update continued
January 27, 1998
Page 3
8. Capital improvements for existing parks (as part of Business Plan for the parks).
a. Access to Lowry Woods
b. Access to Saga Hills
c.
d.
Active recreation in Saga Hills
Landscaping in all parks for safety and aesthetics
e.
f.
Orono Golf Course - skating rink - winter sports complex
Replacement of aging equipment
g. Upgrading to provide handicap access
UPDATE SiESi
TO:Mayor and City Council
FROM:Ron Moorse, City Administrator
DATE:February 9,1998
SUBJECT: Park Dedication Ordinance Amendment
In recent years. Supreme Court rulings have placed restrictions on dedication requirements cities can
place on land subdividers. One of those restrictions is that the amount of a park dedication must be
roughly proportional to the impact of the proposed development on the City's park system. The
City's current 8% park dedication requirement does not in itself meet the Supreme Court test of
rough proportionality. Because of the vastly differing land values in Orono, the 8% park dedication
requirement could result in park dedication requirements that are either significantly greater than or
significantly less than the amount which is roughly proportional to the impact of the proposed
development on the City's park system.
It is recommended that the current park dedication ordinance be amended to retain the 8% park
dedication requirement, but to indicate that the dedication required cannot be greater than the amount
that is roughly proportional to the projected impact of the proposed development on the City's park
system. This can be accomplished by placing a cap on the amount of the park dedication to ensure
the dedication amount will not be greater than the proportional impact of the development on the
City's park system, and by setting a minimum park dedication amount to ensure that properties with
lower value contribute their roughly proportional share toward the City's park system.
T!' s maximum and minimum park dedication amounts can be determined each year based on an
updated projection of the cost of the City's park system and the piop« rtionate share of these projected
costs to be borne by new dwelling units in Orono. An amendeu ,wk dedication ordinance that
reflects these proposed changes is attached for Council review.
1998 Park Dedication Determination
The current projected value of the City's park system is $14.5 million. It is projected that
approximately 700 new households will be added to the City when the City is fully developed. TTiis
is approximately 19% of the total projeeted households in the City. Based on the new households
paying 19% of the projected cost of the City's park system, the average park dedication amount
should be approximately $4,000 per household or dwelling unit.
Beeause some park dedication amounts w'ill be less than the $4,000 per dwelling unit amount based
on the 8% contribution, some park dedication amounts can be greater than $4,000 to meet the
average $4,000 park dedication amount. It is recommended that a maximum and minimum park
dedication amount be set on either side of the $4,000 average to maintain rough proportionality of
the park dedication amounts across the vastly differing property values in Orono, For 1998, it is
reconunended the maximum park dedication amount be set at $4,900 per dwelling unit and the
minimum park dedication amount be set at $2,900 per dwelling unit.
DEDICAHAtTM
1
DRAFT
SEC. 11.62. SUBDIVISIONS. P.\RKS AND PLAYGROUNDS, CLASS II AND III
SUBDIVISIONS.
Subd. I. Lands For Public Use. Pursuant to Minnesota Statutes, (1989), Section 462.358,
subd. 2b, the City requires all persons, corporations or other legal entities that subdivide land with
the City of Orono as a prerequisite to approval of a lot division, final plat, or development of any
land previously divided by plat, metes and bounds, or any other means, must convey to the City or
dedicate to the public, for use as parks, playgrounds, trails, or open space, a given percentage of the
land being platted or developed as hereinafter specified, said portions to be approved by the City.
In lieu thereof, the subdivider shall, at the option of the City pay to the City, for use in the
acquisition, development or improvement of public parks, playgrounds, trails, wetlands or open
spaces and debt retirement in connection with the land previously acquired for such public purposes,
an equivalent amount in cash based upon the fair market value of the land to be developed. The form
of contribution (cash or land, or any combination thereof) shall be decided by the City Council based
upon the need and conformance with the Comprehensive Plan.
Subd. 2. Dedicated Land Requirements. Any land to be dedicated as a requirement of this
See’ion shall be reasonably adaptable for the above public purposes. Factors used in evaluating the
ade'j' -.acy of proposed dedicated areas shall include size, shape, topography, drainage, geology, tree
cover access and location.
Subd. 3. Land Dedication Minimum Area. Subdividers shall be required to dedicate to the
City for parks, playgrounds, trails, open spaces and other public purposes as a minimum that
percentage of gross land area, or other such amount as may be determined by the City Council, as
set forth below;
A. Residential/agricultural/multiple residential zoned land. Dedication requirement
of 8% of the land being platted, subdivided or existing lot of record.
B. Commercial/industrial zoned land. Dedicated requirement of 8% of the land being
platted subdivided or existing lot of record. The dedication required cannot be greater than the
amount that is roughly proportional to the projected impact of the proposed development on the
City s park system.
C. Because of the vastly differing land values in Orono. the 8°/> park dedication
requirement could result in park dedication requirements that are either significantly greater than or
significantly less than the amount which is roughly proportional to th.^ impact of the proposed
development on the City's park system. Each year, therefore, the City will establish both a
maximum and minimum park dedication amount per dwelling unit based on an updated projection
of the cost of the City's park system, and the proportionate share of this projected cost to be borne
bv new dwelling units in C no. This will be done bv a resolution of the City Council.
Subd. 4. Cash Contribution in Lieu of Lands. In those instances where a cash contribution
is to be made by the subdivider, in lieu of a conveyance or dedication of land, the cash contribution
to be contributed shall be equivalent t'^ the fair market v alue of the equivalent undev eloped land that
would otherwise have been conveyed or dedicated. The City shall account for such funds in a
special fund named Park Dedication Funds.
ORONO CC 471 (4-9-90)
§ 11.62
Subd. 5. Fair Market Value of Lands. "Fair Market Value" for purposes of this Code shall
be the land pre-development value to be determined by the City Council as of the time of
preliminar>' plat application in accordance with the following:
A. The City Assessor shall recommend to the City Council as to the fair market value
of the land after consultation with the subdivider.
B. If agreement is not reached between the City Assessor and subdivider, then the
fair market value shall be dctenr.ined in accordance with the following:
1. Fair market value as determined by the City Council based upon a current
appraisal submitted to the City by the subdivider, at his expense. The appraisal shall be made by
appraisers who are approved members of SREiA or MAI, or equivalent real estate societies.
2. If the City disputes such appraisal amounts, it may obtain an appraisal of
the property by a qualified real estate appraiser which the City Council selects and which appraisal
may be accepted by the City as being an accurate appraisal at fair market value. The cost of the
appraisal shall be paid by the subdivider.
3. The subdivider may appeal any final determination of fair market value
as provided by Minnesota Statute Section 462.361.
C. The determination of fair market value of the undeveloped land by the City
Assessor, City Council, or designated appraisers, shall be determined as of the time of preliminary
subdivision approval is granted as long as there is final plat approval within the time limits as set
forth in this chapter. The time of preliminary plat approval is utilized because the nature of the
suMivision, its probable population, lot size and value, and other relevant factors are known. If an
extension of the time limits in this chapter is approved by the City Council, the fair market value
shall be detennined as of the time of the approval of that extension. In determining the fair market
value as of time of preliminary plat application, or the extension thereof, the factors to E>e included
in the analysis shall include any and all factors which are generally accepted and used by approved
members of SREA or MAI or equivalent real estate appraisal societies.
ORONO CC 471 (4-9-90)