City of Orono 2010-2030 Community Management Plan - SUMMARY - September 2010 Orono s 2010-2030 Comprehensive Plan, also known as the Community Management Plan, was formally adopted by the Orono City Council on September 13, 2010. Background Orono s first Comprehensive Plan was adopted in 1974, and set the City on a course that has been followed for more than three decades, focused on preservation of Lake Minnetonka through low-density development and preservation of open space. The Plan was substantially updated in 1980 and renamed the Orono Community Management Plan or CMP, incorporating the City s development philosophy, goals and policies in a single comprehensive document. The 1980 Plan provided a guide to how the City would develop, the character of development, and how that development would be served by transportation, utilities, parks and other services. The 1980 Plan was updated in 2000 as the 2000-2020 Community Management Plan and included a number of minor revisions from prior plans, characterized at the time as a 10-degree course correction. In the ensuing decade the City has undergone a variety of changes including the Highway 12 re-routing and development of a variety of residential housing options along the Highway 12 corridor. Commercial development along Highway 12 has also expanded. 2010-2030 CMP Update Along with all other municipalities in the 7-county metro area, Orono was required by State law to complete an update of its comprehensive plan every 10 years. All updates were subject to approval by the Metropolitan Council. The 2010-2030 update process was viewed by the City Council as an opportunity to review the City s land use philosophy and services while reinforcing the environmental values that have served Orono so well. The Metropolitan Council issued Systems Statements to metro-area municipalities in 2005 requiring that certain local Plan elements be updated including the areas of Water Resources (surface and groundwater management as well as sewage treatment and water distribution systems); Transportation (local and regional systems including streets, highways, public transit and pedestrian/bicycle transportation); and Parks, Trails and Open Space. In addition the City was required to plan for its share of expected growth in the metro area over the next 20 years. As a result, pertinent sections of the CMP have been revised and updated to reflect current conditions, yet in each area the revisions have not changed Orono s community management philosophy. Orono s Community Management Philosophy Protect and preserve Lake Minnetonka, its water quality and its recreational assets. Preserve our distinct urban and rural lifestyles and land use patterns. Preserve and protect our many natural resources and open spaces. Preserve our local character and identity.
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 2 The Comprehensive Plan includes a number of interrelated elements, each of which is critical to the City s overall development philosophy: Environmental Protection Land Use Housing Sewer & Water Systems Transportation Parks, Trails & Open Space The key goals and policies within each of these elements are summarized in the following pages. Environmental Protection The 2010-2030 CMP continues to focus on protection and preservation of the quality of Lake Minnetonka, other lakes in Orono, and the City s streams, wetlands and natural drainage system Open space preservation was indicated to be one of the highest priorities of Orono residents in a 2008 survey. The CMP continues to place a strong emphasis on preservation of woodlands, wetlands and wildlife habitat Protecting the City from air, water and noise pollution remains a high priority Orono s Shoreland Ordinances adopted in 1992 continue to provide guidance for development Orono s Surface Water Management Plan (SWMP) originally adopted in 2002 is undergoing an update process that will be completed in late 2010. New mandates for phosphorus management and stormwater pond maintenance will require significant financial resources in the coming decade Wetlands and Floodplains ordinances have been strengthened and updated in the past 10 years. Orono s Shoreland Ordinances adopted in 1992 continue to provide guidance for development. The Rural Oasis Study conducted in 2005 established the natural values Orono residents desire to retain as development of the City continues, resulting in adoption of a Conservation Design Ordinance earlier this year. Hennepin Conservation District has completed a Natural Resource Inventory of Orono which will greatly assist in evaluating development proposals. Dark skies are one of the treasured elements of life in Orono. The CMP now includes a section devoted to maintaining our night skies free from light pollution, and is expected to lead to an update of the City s lighting ordinance.
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 3 Land Use Maintaining the historic identity and character of Orono s urban and rural neighborhoods continues to be a key element of Orono s land use planning Residential development in Orono s rural area at its historic low densities (2-acre and 5-acre minimum lot sizes) is expected to continue at a slow pace, with limited acreages of available land remaining. Proper septic system management will continue to be critical in ensuring the long-term viability of the rural area. Where necessary, municipal sewers will be extended to serve existing homes and future residential development designated Shoreland areas. Because the urban residential lakeshore areas of the City are fully developed, tear-downs/re-builds of single family lakeshore homes are expected to continue at a steady pace, subject to strict siteplanning regulations. Urban-density residential development away from the lakeshore will continue to provide a variety of housing opportunities. Orono s vital and viable commercial areas in Navarre and along Highway 12 will continue to be supported. - Additional infill retail and office development is anticipated along Highway 12 - Individual site redevelopment proposals within the commercial center of Navarre will be carefully considered as to their impacts on the surrounding neighborhoods - Retail development will be limited to community and neighborhood scale vs big-box retail - Provisions for pedestrian-friendly retail areas will be pursued - Small owner-operated service businesses will continue to be supported - Redevelopment within Orono s industrial district will be focused on light industrial uses compatible with the planned office uses to the north and residential development to the west Metropolitan Council Mandates Impact Orono s Land Use & Housing Plans Recent Metropolitan Council mandates to provide for efficient use of metro sewers require that all new metro-area sewered residential development occur at an average density of at least 3 units per acre. Orono s ability to connect additional rural residential shoreland homes to the municipal sewer system, and to allow sewered development at rural densities of the remaining undeveloped shoreland, is predicated on meeting the 3 units per acre average. Orono was required to plan for sufficient density and acreages to accommodate Met Council s Forecasts for Population and Households through 2030. The Forecasts exceeded by approximately 10% the population and household numbers that would have been feasible under Orono s 2000-2020 CMP Land Use Plan. Orono has met the Metropolitan Council requirements to plan to accommodate its share of the projected metro-wide need for affordable housing units. Orono s share of that need was established by Met Council at 311 additional affordable units by 2020.
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 4 Land Use - continued In order to meet the various Met Council mandates, as well as to provide for a wider range of housing options in Orono (see Housing section below), a limited number of strategically-located parcels along Highway 12 and in Navarre have been re-guided for higher density residential use. - This re-guiding is intended to include sufficient land to allow continued development of the remaining developable rural-area properties at the low densities for which they have historically been guided and zoned. In Navarre, a Mixed Use designation has been assigned to specific commercially zoned properties abutting Shadywood Road, and to additional commercial and residential properties abutting Shoreline Drive. Mixed Use The Mixed Use designation allows for the possibility of higher density multi-family residential development such as senior assisted living, townhomes, condominiums or apartment buildings. Actual development of such uses on any given property would not occur until a developer applies for and successfully completes a formal rezoning process during which there would be ample opportunities for public input. Under the Mixed Use designation, properties currently guided and zoned for residential use are not intended to be converted to commercial property, but some existing commercial property could be converted to higher-density residential use or mixed residential-commercial uses in the same buildings. Within the coming months the City will be considering new zoning standards to regulate potential mixed-use projects. In northern Orono, a small number of selected residential properties abutting new Highway 12 have been re-guided to allow increased residential density. Most of these properties have been previously guided for medium-density single and multi-family uses. They include: - Properties located between Wayzata Boulevard and new Highway 12, west of Old Crystal Bay Road. This area includes 102 acres of land, of which approximately 58 acres is developable, the remainder being wetland and a closed landfill site. The easterly 53 acres is guided for multifamily use at a density of 7-10 units per acre; the westerly 5 acres is guided for multifamily use at 10-15 units per acre. - Properties located east of Willow Drive between Glendale Drive and new Highway 12. This area surrounds the Long Lake Fire Station site, contains just under 9 acres in total area, and is guided for multifamily use at 10-15 units per acre. - The property at 875 Wayzata Boulevard, which contains approximately 6 developable acres, has been guided for multifamily use at a density of 10-15 units per acre. Residential Planned Unit Development (RPUD) Zoning District standards would apply for future development of these sites. The Orono Montessori property at 850 Wayzata Boulevard is being re-guided from Residential to Institutional Use to allow incorporation into the MUSA and connection to municipal sewer. Maps on the following pages depict the areas of Orono guided for higher residential densities.
Navarre Area - Proposed Residential Mixed Use Sites Existing Zoning Map City of Orono Minnesota Crystal Pl Bayview Pl Blaine Ave Navarre Ave Livingston Ave Olive Ave Shadywood Rd Lyric Ave Shoreline Dr Dunwoody Ave Carman St Casco Point Rd Frederick St Kelly Ave ZONING DISTRICTS B-1 - Retail Sales B-3 - Shopping Center B-4 - Office/Professional B-5 - Limited Neighborhood LR-1B - One Family Lakeshore Residential - 1 Acre LR-1C - One Family Lakeshore Residential - 1/2 Acre LR-1C-1 - One Family Lakeshore Residential Subdistrict - 1/2 Acre PRD - Planned Residential Development Proposed Mixed Use Designations Open Water City Limits Parcel Railroad. 0 830 1,660 Feet Source: City of Orono, Bonestroo, Northwest Associated Consultants. Date: May 19, 2010. MAP 3B-6b
Parcel Group 1 Parcel Group 2 Parcel Group 4 Parcel Group 3 Parcel Group 5 Parcel Group 1 Existing Zoning: RPUD Residential Planned Unit Development Parcel Group 2 Existing Zoning: RR-1B Rural Residential Parcel Group 3 Existing Zoning: RR-1B SFR Rural Residential Parcel Group 4 Existing Zoning: RPUD Residential PLanned Unit Development Parcel Group 5 Existing Zoning: RPUD Residential Planned Unit Development. 0 Future Land Use Categories Medium Density Residential Medium-High Density Residential High Density Residential Commercial Office Industrial Institutional Open Water Wetlands Parcel Railroad City Limits 1,700 3,400 Feet Highway 12 Areas Guided or Proposed for Multi-Family Residential Uses* City of Orono Minnesota *This map corresponds with Table 3B-5. Source: Bonestroo, Northwest Associated Consultants. Date: May 19, 2010. MAP 3B-7
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 5 Housing While second-ring suburbs such as Minnetonka, Plymouth, and Maple Grove have experienced rapid and steady growth in the past 20-30 years, Orono s Comprehensive Planning and low-density philosophy have resulted in very limited population growth during that same time period. Rural Orono has developed slowly and steadily with homes on 2-acre to 5- acre lots. Orono s lakeshore areas, historically developed with lots ranging from 1/3-acre to 1-acre or more in area, have experienced very little population growth but substantial redevelopment of single family homes in the past few decades. Sources: U.S. Census 1920-2000; Met Council Forecasts 2010-2030 Orono s 2010-2030 CMP reflects a commitment to accommodating forecasted growth while preserving the City s distinct urban and rural lifestyles: Single family housing will be maintained as the predominant housing type. Rural density housing will remain as the planned land use on the majority of land in Orono. Existing affordable and moderately priced housing in the City s urban neighborhoods will be preserved. Where public services are available and in carefully selected locations, Orono will create opportunities to provide a wider range of housing options to meet the needs of citizens throughout their life cycle, from first-time buyers to empty-nesters and seniors, as well as assisted living options. Orono will continue participation in Community Development Block Grant funding and other programs to assist in home improvements. Housing options in Orono have increased in the past decade, including townhomes in Navarre as well as senior rental housing and the Stonebay development of townhomes and condominiums on Wayzata Boulevard Selected properties have been re-guided in the Highway 12 and Navarre areas for additional residential density to meet Metropolitan Council requirements and provide additional multifamily housing options
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 6 Sewer & Water Systems Sewers Approximately 2/3 of Orono homes are connected to the municipal sewer system. The original portions of the system were constructed in the Navarre area in the early 1960s, and many extensions have been added since then. Orono s hilly lakeshore topography has resulted in the system containing many lift stations, resulting in relatively high maintenance costs. A recent trend for retrofitting existing neighborhoods with sewer is away from gravity systems in favor of pressure systems which have lower installation and restoration costs, but require regular homeowner maintenance. To protect Lake Minnetonka, the City will not allow widespread residential development at densities greater than one home per two acres. While specific neighborhoods in the rural area may be provided with sewer to solve existing sewage treatment problems or to protect sensitive lakeshore areas, the extension of municipal sewer to a rural area will not result in a change in density or a change in the level of municipal services. The primary method of sewage treatment and disposal within the rural area will be individual on-site systems. Cluster-type on-site systems will be considered only after they have been proven to function properly over the long term. The costs of extending municipal sewer service to existing neighborhoods will be borne by the property owners being served. The costs of extending sewer service to new development will be borne by the developer. Municipal sewer service will be extended to those areas guided for residential development at higher densities at the time development occurs. I&I (Infiltration and Inflow) management will continue to be a high priority in reducing unnecessary flows into the Metro sewer system. Ongoing lift station and manhole improvements, sump pump inspections, and televising individual service lines between street and home to detect leaking pipes are methods to reduce excessive flows. Orono s MUSA includes areas of low density in the Shoreland District to allow sewering of lakeshore properties. Future extensions of our existing sewer system outside the current MUSA is limited to areas developed prior to 1985 with no available septic sites. MUSA The Metropolitan Urban Service Area (MUSA) defines those locations where the Metropolitan Council allows sewer to be extended in the metro area. One of the primary reasons for Orono s planned density increases in selected areas is to address the Metropolitan Council s 3 units per acre sewered development requirement, as an offset to allow for continued low density development in the sewered rural areas brought into the MUSA since 1997. Areas of Orono outside the MUSA have now been re-designated by Metropolitan Council from Diversified Rural Area to Rural Residential Area and will not be subject to Met Council standards limiting residential development to no more than 1 unit per 10 acres. On-Site Sewage Treatment Approximately 1000 homes in Orono are served by individual sewage treatment systems. Orono s commitment to low density requires renewed efforts to make septic systems work efficiently. Non-compliant systems have been identified by the City s inspection program, and upgrades or replacements are due by the end of 2010.
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 7 Water Supply Approximately 1/3 of Orono homes are connected to the municipal water system, with the remainder on private wells. The City has two entirely separate systems, one in Navarre and the other on Highway 12, plus a few neighborhoods connected into the Wayzata or Long Lake water systems. The Navarre system provides softened water, while the Highway 12 system does not. Typical water in Orono, whether from the municipal wells or private wells, has high iron content, so softening and iron removal is almost a given. The Navarre system was upgraded within the last 10 years. The Highway 12 system will need a second well to ensure firm capacity for additional planned development within the next 10 years. Expansion of the Navarre water system to serve additional neighborhoods is not planned. Expansion of the Highway 12 system to serve new development is planned, and there is some potential to serve additional existing neighborhoods adjacent to the system. Orono has not experienced municipal system water shortages, but we do have a variety of controls in place, including a conservation rate structure (new in 2010) in which the per-gallon cost of water increases as volume used increases; a water system emergency preparedness plan that includes the ability to declare water use emergencies and restrict water use; and interconnections with adjacent cities. Parks, Trails & Open Space Orono has approximately 290 acres of City-owned park and open space lands including neighborhood parks with a variety of facilities; nature & conservation areas such as Lowry Woods, Saga Hill Park, French Creek, and Big Island; 5 swimming beaches and a number of Lake Minnetonka access points; the Orono Golf Course; and just over 6 miles of City trails. Additional open space and recreation areas or facilities in Orono are owned and managed by Three Rivers Park District, the Minnesota Department of Natural Resources, Hennepin County, Orono Schools, plus three private and one public golf course, and 5 commercial marinas. The total of all non-city of Orono recreational facilities and open spaces is over 1400 acres. Orono s Parks, Trails and Open Space Plan includes the following policies and goals: Protect and preserve natural recreational and open space amenities, including Lake Minnetonka. Provide open space and recreational opportunities diversified enough to serve all Orono residents. Require land developers to provide for recreational space and, where appropriate, trail connections in all new developments. Coordinate and partner with other jurisdictions on the provision of additional parkland to meet recreational need and to preserve open space, unique natural resources and wildlife habitat. Develop a trail system coordinated with the Luce Line and Dakota Rail trails, providing connections between parks and recreational facilities. Limit the recreational use of publicly owned land on Big Island to a passively used open space preserve rather than active recreational uses. Big Island Park was acquired by the City in 2005 via partnership with the Minnehaha Creek Watershed District. A survey of Orono residents in July 2008 indicated continuing strong support for concentrating on preservation of open space and creation of walking trails, placing a relatively low priority on development of more active recreation amenities.
Orono 2010-2030 Community Management Plan Summary - September 2010 Page 8 Transportation Transportation in Orono has historically encountered a number of challenges due to the location of Lake Minnetonka bays leading to lack of a geometric grid in southern Orono, and inefficient, circuitous routes following lake shorelines. Additionally, individual driveway access directly onto collector routes and minor arterial roads is common, adding to inherent traffic concerns. Finally, increasing development to the west has resulted in much commuter traffic making its way through the City. Orono s transportation goals and policies include: Provision of a coordinated transportation system providing alternative modes and travel choices. Directing commuter and general arterial traffic away from Lake Minnetonka and County Road 15. Actively promoting the use of the Ring Route (CR 19 - McCulley Road - CR 6) connection to new Highway 12, providing an efficient alternative to continued overuse of County Road 15. Limiting non-local traffic on the north-south collector roadways in Orono to preserve their low traffic levels. Encouraging the extension of bus service further west along Highway 12 to serve planned future residential development; and promoting the development by MnDOT of a Park-N-Ride facility in or near northwest Orono. Supporting dial-a-ride and local circulator service, as well as additional north/south service, to supplement and be coordinated with the main metro transit system. Continuing the policy that urban areas will be served by public roads, while rural neighborhoods will be served by private road connections to the public road system. Provision of alternative transportation facilities through a recreational trail system, providing connections to parks, schools and urban centers. Permanently retaining for public use all existing lake access corridors and fire lanes. New Highway 12 was completed and opened to traffic in December 2008. Orono is working with Long Lake and Hennepin County to plan for improvements to Wayzata Boulevard so it will function more as a main street in a pedestrian-friendly downtown area while continuing to serve its purpose as a minor arterial roadway. Pavement Management Plan In 2006 Orono adopted a Pavement Management Plan. The goal of the Pavement Management Plan is to ensure that appropriate maintenance is done at critical stages in a street s life cycle, to preserve and/or improve the quality of the City s streets at least cost. During a street s life-cycle, renovation costs increase quickly if maintenance activities are delayed too long. Streets that receive no maintenance are often beyond repair in just ten years, while streets that are properly maintained at critical stages in the life-cycle can last up to twenty-five years or more. The Pavement Management Plan discusses immediate and long-term needs, and will allow for systematic planning for financing street improvements, while providing information for the public to be better informed and involved in decision making. The complete Orono 2010-2030 Community Management Plan can be viewed at.com