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1974.03.18 RESO 1974-07
RESOLUTION NO.IV4-7 A RESOLUTION ADOPTING THE CITY OF HUGO COMPREHENSIVE MUNICIPAL PLAN, PROVIDING FOR THE ANNUAL REVTEW THEREOF, AND PROVIDING FOR THE INTE- GRATION OF CAPITAL IMPROVEMENT PROGRAMMING AND PHYSICAL DEVELOPMENT THEREWITH. The City Council of the City of Hugo determines that: WHEREAS, the City Planning commission has outlined the goals the City of Hugo should set for itself within the foreseeable future; and WHEREAS, the Planning Commission after study and review has developed a comprehensive, long term general elan, incorporating therein land use and circulation proposals, standards of population density and distribution, community facility proposals, and supporting maps, diagrams, standards, charts, and descriptive materials to guide the physical development of the City of Hugo; and WHEREAS, the City Council recognizes the need for a plan which will serve as a guide for the Planning Commission and the City departments in making recommendations and conducting more specific studies, will provide a framework within which to develop policy for zoning, subdivision regulation, and renewal, and will provide a source of information and a statement of public policy and goals that will aid the Council and citizens of Hugo in making decisions regarding the proper development of the community; and WHEREAS, the City Council has carefully considered this general -plan and finds that it constitutes a suitable, logical, and timely elan which will advance the community towards the achievement of its goals for development; and WHEREAS, the City Council welcomes the assistance of the Planning Commission in matters of policy relating to the development of the community; now therefore be .it RESOLVED: That the City Council of the City of Hugo hereby approves and adopts the Comprehensive municipal Plan, as developed by the Hugo Planning Commission with the assistance of Design Planning Associates, Inc., at least three copies of which are on file in the Office of the City Clerk for inspection by the public, all subject to the fallowing: 1. All references to the "Village of Hugo" are amended to refer to the City of Hugo, except where reference is made to the "old Village of Hugo"; 2. References on page 3 to "merger" of Oneka Township and the Village of Hugo are amended to reflect that the two municipal bodies were consolidated; 3. The reference in the second paragraph on page 6 to the analysis of the age composition is amended to read - "These estimates can be substantiated by analyzing the age composition of the residents of the City,'"; 4. The third paragraph on page 12 is amended to reflect there are two full-time policemen; 5. Add to the second paragraph under "H. Utilities" on page 13, the following - "Sewer service has been extended to the Bald Eagle Industrial Park, and that construction of Sanitary Sewer Project 1973-1 will be commenced upon successful bond sale and ap- proval of Housing and Urban Development of the con- tractual relationships with the successful bidder."; 6. Paragraph 3, page 16, is amended as follows - "The policy of the City shall be to limit single-family housing unit densities to one (1) unit per gross acre of buildable land within Sanitary Sewer District #1 in those areas where municipal sanitary sewer service is projected to be built with the range of years 1974 to 1985 or sooner, and to limit single-family t densities to one unit per gross five (5) acres of buildable land in those areas where municipal sanitary sewer is not projected until after 1985 within Sanitary Sewer District #1 and in the area east of Sanitary Sewer District ul, it being understood that said one (1) acre and said five (5) acre designation is by way of example only, and that larger minimum acreage units may be carried out in implementation of the plan to retain the present rural environment. Higher net densities may be permitted on specific land parcels under con- ditions of Planned Unit Development (PUD) permit, provided the City Council determines the following:"; 7. Paragraph 4, page 16, insert a period after "residen- tial streets,"and delete the balance of the sentence; 8. The last sentence in the first unnumbered paragraph on page 18 is amended as follows - "Until the City adopts regulation pertinent thereto, the following standards may be applied to implementing the Com- prehensive Municipal Plan:"; 9. The third sentence in paragraph "a". on page 22, is amended as follows - "Development in these rural areas of Hugo should be of a large lot variety, for example five (5) acre minimum lot size, it being understood that a larger minimum lot size may be required to implement the plan of maintaining the rural environment."; and 10. Paragraph 2, page 33, change "should" to "may". FURTHER RESOL77ED: That in order that the Comprehensive Municipal Plan shall at all times be current with the needs of the City of Hugo and shall renresent the best thinking of the City Council, Planning Commission, and boards, commissions, and departments in the light of changing conditions, the Planning Commission shall annually review the Plan and recom- mend extensions, changes, or additions to the Plan which the Commission considers necessarv. Should the Commission find that no changes are necessary, this finding shall be reported. This review procedure shall be timed so that any proposed amendments to the Comprehensive Municipal Plan shall be re- ported to the City Council for its consideration along with the regular annual report of the Planning Commission. FURTHER RESOLVED: That the City Council shall incorporate all plans, maps, data, charts, improvement proposals, and other materials not originating from the Planning Commission into the Comprehensive *Municipal Plan as it deems necessary and desirable. All developments or development plans approved by the City Council which are not in conformity to the Plan shall be considered as amendments to the Plan and shall be so noted by the Planning Commission. Adopted and passed by the Council this 1Rth day of March, 1974. ATTEST ; CLERK MAYOR r On Motion Of Seconded By. • t _� r - c Ayes: Nays: HUGO PLANNING 0QM3SION REPORT To the Hugo Village Council: SUBJECT: Comprehensive Municipal Plan Applicant Location of Property Type of Request _ Comprehensive Municipal Plan File Number Following due and proper consideration of the subject request, the Hugo Village Planning Commission recommends that the above request be _ Apnrnyed subject to the following reasons/ conditions: The Planning Commission recommends to the City Council to adopt the Comprehensive Municipal Plan with due note being taken to the recommendations made by the Metro Council and will be considered for further study. This report and recommendation is issued pursuant to action taken b7 the Commission on February 28, 1974 . Marie Jaa,�s,in, eore ary Hugo Placing Commission t A PROPOSED COMPREHENSIVE MUNICIPAL PLAN Prepared for: THE VILLAGE COUNCIL AND CITIZENS OF HUGO, MINN ESOTA Prepared by: THE HUGO PLANNING COMMISSION WITH THE ASSISTANCE OF DESIGN PLANNING ASSOCIATES, INC. May, 1973 (SUBJECT TO REVISION PRIOR TO OFFICIAL ADOPTION) PREFACE This planning report is designed to assist Village officials in making the day-to-day decisions required for proper long- range maintenance and development of the Community environment. The State Legislature has found that communities are faced with mounting problems in providing means of guiding future development of land so as to insure a safer, more pleasant, and more economical environment. Further, the Legislature's planning and development policy states - "Municipal planning by providing public guides to future municipal action, enables other public and private agencies to plan their activities in harmony with the municipality's plans. Municipal planning will assist in developing lands more wisely to serve citizens more effectively, will make the provision of public services less costly, and will achieve a more secure tax base." It is the purpose of the Municipal Planning Act to provide municipalities with the necessary powers and a uniform procedure for adequately conducting and implementing municipal planning. Village of Hugo, Minnesota COMPREHENSIVE MUNICIPAL PLAN Ou tl i ne Preface Page Number Table of Contents Part I. Introduction 1 Part II. Survey and Analysis 3 A. Historical Background 3 B. Economic Background 4 C. Population Characteristics 5 D. Housing Characteristics 6 E. Land Use 8 F. Transportation 11 G. Community Facilities 12 H. Utilities 13 Part III. Goals, Policy, and Standards 14 A. Goals 14 B. Policy 15 C. Standards 17 Part IV. Village Plan 19 A. Land Use 22 B. Transportation 26 C. Community Facilities 29 Part V. Plan Implementation 32 APPENDIX Sanitary Sewer Plan COMPREHENSIVE PLANNING Elements and Process Step 1 RESEARCH & ANALYSIS -by- HISTORICAL BACKGROUND • LAND USE • UTILITIES • POPULATION • HOUSING • ECONOMIC BASE • COMMUNITY FACILITIES • THOROUGHFARE SYSTEM • ANNEXATION POSSIBILITIES CONTINUAL PROGRAM \\ ADMINISTRATION --by- • APPLICATION OF ZONING ORDINANCE AND SUBDIVISION REGULATIONS • UPDATING AND IMPROVEMENT OF PLAN • RENEWAL d IMPROVEMENT PROJECTS • OPEN -SPACE CONSERVATION • DEVELOPMENT OF COMMUNITY FACILITIES AND UTILITIES • PRIVATE DEVELOPMENT ASSISTANCE Id LOCAL GOVERNING BODY / In - REVIEW by- / • PLANNING COMMISSION 211 FORMULATION of / • GOALS • POLICY • STANDARDS EFFECTUATION OF PLANS tkmgk use of - • ZONING ORDINANCE • OFFICIAL MAP p[ ppp� REVIEW & APPROVAL by - SUBDIVISION REGULATIONS AN• • PLNING COMMISSION • LOCAL GOVERNING BODY • CAPITAL IMPROVEMENTS 1 REQUIRED FOR THE UNDERSTANDING OF THE COMPREHENSIVE PLAN REVIEW & DISCUSSION -by- • PLANNING COMMISSION • GOVERNING BODY • LOCAL GROUPS • CITIZEN COMMITTEES 3 PREPARATION -of- COMPREHENSIVE PLAN including plans for- • LAND USE • COMMUNITY FACILITIES • THOROUGHFARES • OTHER SPECIAL PROJECTS PART I. INTRODUCTION TO THE COMPREHENSIVE PLAN The Comprehensive Development for the Village of Hugo is intended to serve several purposes. It should serve: (1) as a source of general information regarding the overall development of the community; (2) as a program of correction; (3) as an estimate for future growth prospects; (4) as an indicator of goals and policies; (5) as a device for coordination; (6) as a framework for making community -wide decisions; (7) as a guide for change in growth; and (8) as a means of stimulating public interest and participation of local community development. The Plan is broad in scope and consequently covers areas of diverse opinion and controversy. The Plan will serve as a basis for much discussion concerning the physical growth and indirectly the economic and social development of Hugo. Continuous review and revision of the Plan and its elements will be necessary from time to time in order to keep the Plan valid due to changing conditions and technology. Local planning efforts must be coordinated in relation to the planning now being accomplished within the Twin Cities Metropolitan Area arid Washington County as well as with other operating local, state and federal agencies. Coordinating and relating local planning achievements to other levels of govern- ment does not necessarily mean that the plans at the various levels will or necessarily should concur on all points. A two- way avenue of communication must be maintained so as to avoid duplication or omission of effort concerning others as well as bringing out different views and opinions which is a healthy situation. The Plan for Hugo is a glimpse into the future as to how the area might develop over the next few decades given certain assumptions and sets of conditions. The picture of future physical development within the Village area will be reasonably accurate if the basic planning assumptions on which the Plan is based are accurate. In order to achieve the desired community goals set forth in the Plan, the citizens of Hugo must be aware and take an active interest in 'tillage affairs. This Comprehensive Development Plan is a graphic and written document portraying the physical development potential of the Village. Included in the Plan are recommendations as to the development potential of various land use types, the transportation network and community facilities. The Plan is a reflection of what type of community Hugo should ultimately become. If every vacant parcel were to be developed as urban density residential, commercial, etc., it would be conceivably possible to accommodate nearly a hundred thousand people into the township, since the total area is some 36 square miles and with more than 90% of the land area still in a vacant or agricultural state. This occurrence would very likely never materialize nor is it the situation desired by most citizens. To be more realistic, certain areas of the Village are purposely planned to remain essentially in an "undeveloped" condition with much of the remaining portions to be developed at low density levels in keeping with other suburban communities. This manner of development will follow certain predetermined guidelines or standards which are controlled through the strict but fair application of zoning and subdivision regulations and other ordinances and codes in order to achieve this end. Currently, Hugo is composed of many individual land parcels, the inter -relationships of which are very complex and future situa- tions likely to be of even greater complexity. The Plan must attempt to recognize these relationships and direct development so that each individual parcel fits into a harmonious pattern of total development over the years and therefore adding up to a worthwhile and attractive suburban community. The Plan as presented herein relates to three basic elements: land use, transportation and community facilities. Each element is treated separately although the total picture cannot be completed without all three. The land use part outlines the manner in which the lands should be utilized by the various types of uses by taking into account the many aspects of soils, drainage, facility locations, type of development, property lines, scale of useage and the market. The transportation segment forms the circulatory framework for land use patterns and community facilities. More specifically, the transportation element is concerned with various aspects of roadway construction and lay out within the metropolitan area framework in order to handle future movements of people and goods within and through the Village. The community facilities part is concerned with the adequacy of existing and potential needs for public and semi-public uses, such as schools, parks, playgrounds, and other governmental and institutional requirement needs. 2 PART II. SURVEY AND ANALYSIS General background information contributes to the thorough knowledge and understanding of the Community which is important in any attempt to plan for the future. An inventory and analysis of the past, existing, and potential future development trends is essential to the formulation of reasonable and logical community plans. The start of sound planning is a good knowledge of existing conditions and the forces which are affecting change and development in the Community. The scope of this planning report is limited to subject matter and detail necessary for the development of a general, long- range comprehensive pian for the Village. An attempt has been made to include material and detail sufficient to help answer the question, "What kind of community do we want? Every effort has been made to exclude that which would be of only limited value in helping to answer this question and developing a plan based upon the answer. Each person in Hugo has an investment in the future. This investment includes homes, property, and time and effort towards providing suitable living conditions. The current planning program is designed to help protect this investment and to guide future development along lines that will help assure a sound living environment. A. HISTORICAL BACKGROUND Hugo has a long history, going back to 1847 when the former, Oneka Township was surveyed. Oneka Township was not officially organized until 1870. The first township officials were: Jeremiah Crysler O.L. Kinyon B.F. Judkins George Walker George Kannady - Chairman - Supervisor - Sypervisor - Clerk & Treasurer - Assessor The first true settlement developed around the Centerville railroad station in Section 20 and was incorporated as the Village of Hugo in 1906. The population had grown from a small nucleus in 1906 to over 750 when it merged with Oneka Township in 1971. (The old township correspondingly grew to a population of over 1900 persons at the time of the merger.) 3 The first settlers were primarily merchants and farmers who were indirectly or directly dependent upon agriculture for their livelihoods. This type of economy has developed and maintained itself through the subsequent years until recent years when the area was "discovered" by a commuting -type populace. B. ECONOMIC BACKGROUND The economy of Hugo can best be characterized as being agricultural in nature. Farming is the predominant business activity in the Village and it appears that agriculture will continue to be the key economic factor in the Village for years to come, particularly in the eastern two-thirds of the Village where there is less demand for residential land. An "agri-business" type of economy is strong in the old Village. Support type agricultural facilities like the grain elevator, feed mill, lumber yard, etc., will prosper for some time. There has been some recent light industrial construction in the southwest portion of the Village and should this trend continue, it should not be difficult to achieve the employ- ment figures that the Metropolitan Council forecasts for the Village. (See table below for employment information up to the year 2010.*) The retail sector of the economy of the Village seems to be predominantly service -type in nature; drive-in restaurants, cafes, hank, and gas stations. Normal retail sales seem to be transacted outside the Village, since there is a definite absence of the usual retail -type stores, such as clothing, drugs, variety, department stores, etc. White Bear Lake, Forest Lade and the shopping centers and discount stores of north suburban St. Paul seem to serve as the shopping areas for the populace of Hugo. * Figures do not include farmers, but do include hired hands. n EMPLOYMENT PROJECTIONS 1970 1980 1990 2000 2010 Hugo 241 450 850 3,100 7,800 Washington County 16,001 29,200 49,300 90,300 130,700 Twin Cities Metro Area 853,138 1,106,600 1,330,800 1,610,250 1,903,500 The retail sector of the economy of the Village seems to be predominantly service -type in nature; drive-in restaurants, cafes, hank, and gas stations. Normal retail sales seem to be transacted outside the Village, since there is a definite absence of the usual retail -type stores, such as clothing, drugs, variety, department stores, etc. White Bear Lake, Forest Lade and the shopping centers and discount stores of north suburban St. Paul seem to serve as the shopping areas for the populace of Hugo. * Figures do not include farmers, but do include hired hands. n C. POPULATION CHARACTERISTICS Hugo has always been a "growth" community and will undoubtedly continue to grow in the future. As can be noted below on Table I the Village (and Oneka Township) had experienced very slow, steady growth during the period 1940-1960. Both communities were averaging an increase of approximately one hundred (100) persons in each of the two ten year periods. (1940-1950, 1950-1960.) TABLE I - POPULATION TRENDS Since 1960 there has been a marked acceleration in the rate of growth, especially in Oneka Township, where an increase of over 100% has been realized. The old Village of Hugo increased approximately 50% in this ten year period. The composite Village's rate of growth was somewhat greater than that of Washington County, which was 58%. With the greater mobility of the populace and the recent opening of I -35E, it appears that the urban "fringe" of St. Paul is fast approaching the Hugo area. Current population estimates by the Twin Cities Metropolitan Council for 1972 indicate that this recent growth phenomenon is continuing. They estimate a population of 3,164 for Hugo, which is an increase of 18i over the 1970 Census figures. Future growth of this magnitude can be borne out by the fact that the Village has issued building permits for 74 housing units for 1972. Future population projections have been prepared by the Metropolitan Council and are shown on Table II below: 5 1940 1950 1960 1970 1972* Hugo 348 440 538 751 3,164 Oneka Twp. 683 771 898 1,918 ---- Tota1 1,031 1,211 1,436 2,669 3,164 Washington County 26,430 34,544 52,432 82,948 92,625 * Metropolitan Council - All other data from U.S. Census Since 1960 there has been a marked acceleration in the rate of growth, especially in Oneka Township, where an increase of over 100% has been realized. The old Village of Hugo increased approximately 50% in this ten year period. The composite Village's rate of growth was somewhat greater than that of Washington County, which was 58%. With the greater mobility of the populace and the recent opening of I -35E, it appears that the urban "fringe" of St. Paul is fast approaching the Hugo area. Current population estimates by the Twin Cities Metropolitan Council for 1972 indicate that this recent growth phenomenon is continuing. They estimate a population of 3,164 for Hugo, which is an increase of 18i over the 1970 Census figures. Future growth of this magnitude can be borne out by the fact that the Village has issued building permits for 74 housing units for 1972. Future population projections have been prepared by the Metropolitan Council and are shown on Table II below: 5 TABLE II - POPULATION PROJECTION Although the projections for Washington County and the total Metropolitan Area have been reduced significantly since the Planning District II estimates were prepared in 1968, the Villagr projections seem to be quite accurate, if not even on the conservative side. (1985 Planning District II estimate was 5,500.) These estimates can be partially substantiated by analyzing the age composition of the Village. The 1970 Census indicates that Hugo is comprised of a very young population. (Approximately 47% of the population is younger than 18 years of age.) The elderly, 65 years and over, constitute but 5% of the total population, which is another indication of the future produc- tivity potential of the population. D. HOUSING CHARACTERISTICS A great deal can be said about a community by just analyzing its housing, since residential is the largest single land use. Information pertaining to housing type, value, condition and the presence of mobile homes can assist tremendously in pinpdirting the residential personality of a community. The Hugo land use survey indicates the following housing composition as of September, 1972: Type of Housing Quantity Percentage Single Family Residential 568 70.3% Single Family Farm Residential 111 13.6% Multiple Family 18 02.2% Mobile Home 111 13.6% Vacant Farm Residential 3 00.3% Total 811 100.0% 9 1970 1980 1990 2000 2010 Hugo 2,669 4,700 8,600 17,300 28,700 Washington County 82,948 118,800 185,800 267,500 378,000 Twin Cities Metro Area 1,874,380 2,230,100 2,687,000 3,176,300 3,705,700 Although the projections for Washington County and the total Metropolitan Area have been reduced significantly since the Planning District II estimates were prepared in 1968, the Villagr projections seem to be quite accurate, if not even on the conservative side. (1985 Planning District II estimate was 5,500.) These estimates can be partially substantiated by analyzing the age composition of the Village. The 1970 Census indicates that Hugo is comprised of a very young population. (Approximately 47% of the population is younger than 18 years of age.) The elderly, 65 years and over, constitute but 5% of the total population, which is another indication of the future produc- tivity potential of the population. D. HOUSING CHARACTERISTICS A great deal can be said about a community by just analyzing its housing, since residential is the largest single land use. Information pertaining to housing type, value, condition and the presence of mobile homes can assist tremendously in pinpdirting the residential personality of a community. The Hugo land use survey indicates the following housing composition as of September, 1972: Type of Housing Quantity Percentage Single Family Residential 568 70.3% Single Family Farm Residential 111 13.6% Multiple Family 18 02.2% Mobile Home 111 13.6% Vacant Farm Residential 3 00.3% Total 811 100.0% 9 Considering the community's high proportion of single family residential, it is now quite apparent that the Village is on its way to fast becoming a more urban settlement and one that will be demanding more and more urban services in the future. The average value of the owner -occupied housing units has been fast becoming comparable to other areas of the Metropolitan area. In 1970, the old Village of Hugo had a low dollar average of $17,818 per housing unit, while Oneka averaged $23,269. (The 1970 average values for Washington County and the seven county Metropolitan area were $22,760 and $23,849 respectively.) When Hugo and Oneka are combined it conveys a low average, but it is encouraging to note that through July the average value of 1972 housing permits issued was $24,822, indicating a definite increase in housing values and ultimately better housing. The condition of the housing stock in Hugo seems to be very extreme. New, quality housing is being constructed in the Bald Eagle Lake area, while some of the non-farm housing in the rural areas borders on dilapidation. The 1960 Census indicated that 9.5% of the housing was unsound* in Hugo, while 15.1% was unsound in Oneka. These percentages are pro- bably lower today because of the recent house building boom, but it should be recognized that many of the structures considered as unsound in 1960 are stili scattered around the rural areas of the Village. * Deteriorated or Dilapidated Although there is no data in the 1970 Census of Housing comparable to the 1960 data in the area of structural soundness, the following table indicates some of the more pertinent 1970 housing condition data: 1970 HOUSING CONDITION DATA Hugo Oneka Washington 7 County County Metro Area Percent of Units Overcrowded* 11.6% 19.8% 11.5% 6.8% Number of Persons Living in Overcrowded Conditions 166 673 16,916 Percent of Units Lacking one or More Plumbing Facilities 4.2% 6.5% 3.0% 7 257 ,219 3.4% (continued) Hugo Oneka Washington Number of Persons County Living in Housing 19 104 1,442 Lacking one or More Plumbing Facilities 7 County Metro Area * Overcrowded = A housing unit containing more than one person per room. Mobile homes have become of increasing importance in the national housing market in recent years. Their role in satisfying housing needs in Hugo is no exception. In the eight years since the Planning District II housing study was completed there has been a marked increase in the location of mobile homes in the Village. In 1964 Oneka had only 45 mobile homes, which were all contained in one mobile home court. Eight years ago the old Village of Hugo had no mobile homes. Today there are 111 units in the "new" Village, with 9 of them being freestanding units. This is an increase of 66 units over the 1964 figure. Mobile -homes are definitely grabbing an increasing share of the Hugo housing market and are assisting Hugo meet its "fair share" quota of low and moderately priced housing with4.n the context of the greater Metropolitan Area. E. LAND USE Before developing a comprehensive plan for a community it is necessary to consider how all the land is being utilized and to have a knowledge of the various physical characteristics which may affect future land use. A field survey was conducted in Hugo to ascertain the uses of the land and this was noted on a map. Physical conditions of structures and characteristics of areas were noted as were conflicts between adjacent land uses. Based upon this survey and an analysis of the findings, a Land Use Plan will be prepared to serve as a guide to future land Use developments and as a basis for a zoning map. The land use survey indicates that the Village is still highly agricultural in character, particularly the eastern two-thirds. Non-farm homes, however, are becoming quite prominent in this area, but residential subdivisions aren't nearly as common as they are in the western one-third of the Village. The agri- cultural farmsteads range in physical condition from poor to excellent. The cropland is interspersed with pasture and open land which is unproductive due to soil limitations and a high water table. X9 The residential areas of the western one-third of the Village are predominantly single family homes located in a more urban type atmosphere. Smaller lots are more common and when grouped they usually evolve into bona fide subdivisions. The physical character of the residences in this area range from dilapidated to very sound, however, most structures are on the sound end of the range. The commercial and industrial land uses are found almost entirely in the western portion of the Village and are primarily of a service type nature; i.e., cafes, bars, gas stations, etc. Apparently most staple items are purchased outside the Village. The commercial and industrial uses have developed in a strip - like fashion along U.S. #61, with the exception of the new Bald Eagle Industrial Park, where industry is more concentrated and removed from the highway. Public land use is quite minimal considering the area and population of the Village. The largest public land uses are the two elementary schools, the Village Hall and adjacent park, the old township hall, St. John's Catholic Church and Cemetery. Some of the larger users of land are of a quasi -public nature and are responsible for maintaining much of Hugo in its natural state. Some of these facilities are the gun clubs, game farm, tree farms, and the proposed golf course. Hugo's 36 square miles of land area contains a small amount of topographical relief. The lowest point in the Village is approximately 900' in Section 7 on the west Village line where Hardwood Creek flows into the Village of Lino Lakes. The highest elevations of 1,060' are found in sections 24, 27, and 33 in the southern and eastern portions of the Village,making for a relief differential of only 160'. Hugo can hardly be said to be a community of extreme elevations. Soils will be more a limiting factor for future development than slope. Soils range from course textured soils with rapid drainage to those characterized by fine texture with very slow drainage qualities. The unfortunate fact is that the most suitable land for development is the furthest from existing and proposed utilities. 9 HUGO LAND USE AREA - 1972 Land Use Category Area in Acres Percent of Developed Areas Single Family (including mobile homes, cottages, farms) 545.7 Mobile Homes Park 15.7 '. Plultiple Family 2.8 ' 2 Family (2.4) 3+- Family ( .4) Commercial 468.4 25.5 Retail (5.2) Lim,ited ( .6) General ("3.2) Recreation (454.4) Industrial 99.0 5.? Nuisance !84.9) Non -nuisance (14.1) Public 27.1 1.r General (2.6) Recreation (17.3) Schools (7.2) Semi -Public 8.8 Roads (Public R.O.W.) 607.3 33.j Railroads 60.4 3.3 TOTAL DEVELOPED 1,835.2 i00.0°' Wa ter 21 Lakes = 1,585 Acres 2 Creeks = 41 Acres 1,626.0 Loaf 11et Areas and Poor Soil 2,133.0 Vacant 17,440.8 TOTAL VILLAGE AREA 23,040.0 10 F. TRANSPORTATION The Hugo area was fortunate to have two military roads available at the time of initial growth and development. One ran between Forest Lake and Stillwater and the second between White Bear Lake and Marine on St. Croix. The future road system of the Village was in large part based upon the existence of these two reads. Hugo's transportation and circulation needs are currently being met by the existing highway and road system. Mass transit facilities do not exist and the two railroads which serve the Village do not provide passenger service. Limited bus service is provided by the Greyhound Lines on its Twin Cities - Duluth runs. Those persons commuting to work from the Hugo area have to rely almost 100% on the private automobile. U.S. Highway #61 has served as the major route through Hugo for many years and will continue to serve in this role, although with the completion of I -35E in neighboring Lino Lakes much of the through traffic has been diverted from U.S. ,#61 to I -35E. In 1968 the average daily traffic count of U.S. #61 ranged from 5,950 at the north Village line to 6,700 vehicles per day at the old Village north limits. The average count in 1970 for this same segment of highway ranged from 5,750 to 6,500. This is not as severe a loss as might be expected with the opening of the freeway but still significant in light of the recent growth experienced in this area of Washington County. The section of U.S. #61 south of the old Village line to the Ramsey County border has experienced just the opposite situation. In 1968 the counts ranged from 7,500 to 7,750 while in 1970 they had increased to 7,900 and 8,400 respectively. The Washington County road network of highways forms the backbone of Hugo's circulation system. County State Aid Highways 4, 8, and 10 plus County Road 8A provide an adequate all weather east - west collector system leading to U.S. #61, but there is a noted absence of good north -south roads in the Village. The only up- graded north -south County road in the vicinity of Hugo is C.S.A.H. 15, and this lies approximately one mile east of the Village at its closest point. Hugo's direct access to I -35E (Co.Rd. #8) has recently been up -graded and paved and now provides a good connector to the inter- state system and St. Paul. Future developments fronting on this thoroughfare will have to be controlled so as not to hinder the route in achieving its prime purpose as a high volume feeder highway. Two railroads pass through the Village and provide freight service only. Burlington Northern (Duluth line) maintains a freight depot in the old Village and handles car load shipments of dry commodities such as lumber, grain, fertilizer, etc. The Soo Line (Superior line) crosses the southeast corner of the Village at Winthrow and maintains a freight depot there. Very few car loadings occur in Withrow, however. 11 G. COMMUNITY FACILITIES As a general definition, community facilities are land uses devoted to public and semi-public functions. Typical public uses are parks, playgrounds, schools, libraries, municipal buildings, buildings owned by various governmental units such as a post office, and land used for public purposes such as a municipal dump, water towers, sewage treatment plants and so on. Semi-public or quasi - public facilities are those used by large numbers of people, which may or may not be open to the general public. Examples are churches, cemeteries, private country clubs, parochial schools, and the like. Another distinction is that public facilities are financed and maintained by various units and levels of government while semi- public facilities are not. The Village is presently operating from two "village" halls. Routi.Me business and regular meetings are conducted in the newer hall in central Hugo, while overload meetings are held in the old Oneka Town Hall on 170th Street. The Village Clerk maintains regular hours in the Village Hall on a restricted basis (half -days), otherwise the Village provides a minimal amount of administrative services. Police protection is furnished by one full-time and several part - tire policemen a id one patrol car. Fire protection is provided by a force of 33 volunteer firemen, who have three fire trucks and one rescue truck at their disposal. Both police and fire operation. are headquartered in the Village Hall. Future planning decisions for expanded and upgraded space for both of these functions, plus a needed iibrarv, should be made in context with an overall plan for the future growth of the business community and convenience of the sites to the residents of the Village. Other public use buildings include the public works garage adjacent to the Oneka Town Hall and the post office on Highway 61 in "do,,en- totV;ri" �,ugo. Bot„ of these facilities wi l 1 have to be enlarged and Possibly relocated as projected population estimates are attained. There is a noted absence of public recreational facilities in Hugo. The Village maintains only one park and this is adjacent to the Village a11. 1t functions as a playground with act ✓e -type recreational facilities such as swings, tennis court, and ball diamonds, but little to accommodate the needs of the people who would like to picnic. Efforts should be made by the Village soon to satisfy these passive -type recreational needs. Four school districts make up the public school system of Hugo (Stillwater, Forest Lake, 11ahtomedi and White Bear Lake). The Stillwater (834) and White Bear Lake (624) districts each have one elementary school located in Hugo. The Withrow School (District 834) contains six (6) classrooms and the Hugo School (District 624) accommodates thirteen (13) rooms. The former occupies approximately seven(7) acres and the latter is sited on nine (9) acres. Students in the other two school districts are bussed to their appropriate schools which are located outside the corporate limits of Hugo. Considering the moderate projected population increase and the 12 strong bussing philosophies of the school districts, there does not appear to be a need for new school sites but rather expansion of the existing school buildings. (There are no private or parochial schools in the Village.) Semi-public facilities are limited pretty much to those belonging to St. John the Baptist Catholic Church, although there is an American Legion Club on 147th Street. In addition to its church site, parking area, rectory and five church school buildings on Highway 61, the Catholic Church also owns and maintains a large adjacent tract of land that is utilized for church functions and as a play area for its parishioners. St. John's Cemetery is also a facility of the Catholic Church and is located north of the Village Hall site. The Knights of Columbus also operate a hall in Hugo on Bald Eagle Lake. H. UTILITIES There is an absence of the usual municipal utilities in Hugo, although approximately 95% of the old `tillage is served by a public water system. This system was installed in 1959 and includes a deep well supplying 350 gallons per minute and a 100,000 gallon elevated storage tank. Both these facilities are adjacent to the Village Hall. The degree of water treatment includes both chlor- ination and fluoridation. No public sewer has been constructed as yet in the community. At this time the residents rely on their own septic systems. Plans have been prepared to provide sewer service for the old Village area, but construction of the system hinges upon the pending approval of a sewer grant application by the Federal Department of Housing and Urban Development (HUD). Hugo's proposed sewer system will tie into the existing Forest Lake Interceptor which traverses the western portion of the Village. At present this line serves none of the communities between write Bear Lake and Forest Lake. Hugo's electricity is provided by two suppliers. Northern States Power Company serves approximately the southern two-thirds of the Village, with the remaining portions served by the Anoka Electric Cooperative (REA). Natural gas is available to the Village through a spur of the 20" Natural Gas Company pipeline which cuts across the northern portions of the Village. Gas is provided to most of the old Village area via a gas main paralleling Highway #61. 13 .PART III. GOALS, POLICY AND STANDARDS In the past, community planning has dealt with factors related primarily to "physical" features, such as the location of housing, shopping centers, industrial sites and the like. Only during the past ten years have other elements gained proper recognition, with these being economic and social considerations, ecology, governmental efficiency and the entire area of "policy planning". What is likely to happen in Hugo during the next few decades and what do the residents want to happen? Within the bounds of legal, social, and economic reasonableness, Hugo can be shaped much as the citizens desire. This can be done via the "policy planning" method as follows: 1. Setting of Goals - If certain things are desired these should be stated as specific goals to be achieved. An adequate open space system, a satisfactory transportation network, and other desires can be stated as general and translated into more specific objective-. 2. Policy,- Once goals have been set, "policy" is the official course of action adopted and utilized to attain the desired goals. For example, a goal to provide adequate open space in the Village. should be accompanied by a policy statement of how this goal is to be achieved. 3. Standards - Urban and rural development and maintenance standard-, are measures of quality. These are usually considered as the "minimum" quality desired and some standards may be enacted into law via zoning, subdivision, housing, building and other codLs and ordinances. Such standards also tend to serve as "goals" although not necessarily the "ultimate" goals since they are considered the minimum necessary for the public welfare. To the extent feasible, the goals and policies should reflect the general desires and aspirations of the citizens of the Community. These should be reviewed on a periodic basis and adequately reflected iii the standards set for controlling and guiding growth and development the Village. Ir, order to maximize the opportunity of the citizens to participate in the planning process, two methods were utilized: (1) a public informational meeting was held to provide an open forum for discussion of planning and the future of the Village; and (2) a planning questionn- aire was made available to all residents and property owners in atten- dance at the public meeting asking their opinions and desires relatin'7 to future growth and development. The following text on goals, polic"_. and standards is based upon the results of such efforts. A_ (;n Ai S Approximately one hundred twenty-five (125) persons attended a public meeting on November 8, 1972, to express their opinions, interests and desires concerning the future development of the Village. A clear 14 direction, although not an unanimous consensus, was in evidence as a result of the meeting and this was later substantiated after tabulating the returned planning questionnaires. The desired goals are as follows: 1. Maintain the open, green areas and the amenities associated with low density development. (Retain the "rural atmosphere" in the eastern portion of the Village, much as it is today.) 2. Encourage the retention of low - medium density, single family development in the western portion of the Village. 3. Permit multiple family development in a few selected locations in the soon to be sewered areas of the Village. 4. Advocate the creative use of open space and the outright acquisition of lake frontage for park and recreational pprposes. 5. Provide for better shopping facilities located in close proximity to the existing and developing residential areas. 6. Develop a thoroughfare plan which will be adequate for the future needs of the Village and adjacent communities. 7. Control the land use along all major thoroughfares (existing and proposed). 8. Provide for a better Village tax base, through a more diversified land use plan. 9. Promote and encourage quality business and industrial development in the Village. 10. Adopt a comprehensive Village development plan which provides for a good mixture of land uses and update the Village zoning ordinance. B. POLICY In order to attain the desired goals, it is necessary to consider what official governmental actions are required. Such actions are the official policy with respect to development and maintenance of the Village. The following are recommendations based upon apparent citizen desires, professional planning study of the community, and discussions with Village officials: 1. The present "open atmosphere" of the Village is due to several factors: a. Abundance of lakes, streams and drainageways. b. Presence of a high water table. C. Extensive areas of unstable, unbuildable soils. d. Areas of heavy woodlands. e. Prominence of a farming economy. f. Existence of gun clubs, gravel pits, game farm, etc. 15 Efforts to retain the present rural environment will be maximized through the development and enforcement of appropriate codes and ordinances. 2. The maintenance of a relatively sparse population and a low urban development density shall be Village policy to attain the desired goals as follows: a. Maintain, to the extent possible, the present environment and atmosphere of the Community. b. Avoid excessive public service costs and difficult adminis- trative problems that would result from high density urban development. C. Reduce the economic pressures upon the four school districts and the need for local, Village services. d. Adhere to standards of the Metropolitan Development Guide pertaining to the extension of sanitary sewers; spacing of highway interchanges and intersections; generation of traffic volumes; and the like. 3. The policy of the Village shall be to limit single-family housing unit densities to one (1) unit per gross acre of buildable land west of the Metro Sewer Board's Sanitary Sewer District #1 boundary line, pending the availability of municipal sewer service,and to limit single-family housing unit densities to one (1) unit per dross five (5) acres of buildable land east of the Sanitary Sewer Districts' boundary line. Higher net densities may be permitted on specific land parcels under conditions of a Planned Unit Development (PUD) permit provided the Village Council determines the following: a. Proposed development would be consistent with the general goals and policies of the Village Comprehensive Plan; b. It can be demonstrated that such a development meets all requirements for on-site and/or off-site sewage disposal, as the case may be; C. That such proposed development would assist in attaining the goals for preservation of the natural environment and would, in fact, contribute to the ecology of the Village in a manner superior to that of single-family detached homes. d. Such development would not create undue detrimental affects upon the environment such as traffic hazards and congestion, lowering of adjacent property values, and the like. 4. The policy will be to locate apartment structures adjacent to or very near major or secondary thoroughfares so as not to introduce an excessive amount of vehicular traffic onto minor residential streets and where possible locate them so that they might serve as a "buffer" between single family homes and non-residential uses such as commercial and industrial areas. 5. All future subdivisions will be required to dedicate public green space (parks and playgrounds) where needed for the convenience and enjoyment of nearby residents in accordance with uniform park and playground standards. 16 6. The Village will do everything in its power to discourage strip and spot commercial development along major thoroughfares and highways and will do everything in its power to encourage integrated commercial centers, particularly the retention and upgrading of the present "downtown" business district. 7. The Village will encourage the development of small "neighborhood" convenience stores (superettes and so forth) in locations that will best serve residential areas without impairing residential development. 8. The Village will implement the appropriate highway and thorough- fare standards in order to: a. Avoid an excessive number of access points. b. Curtail the future development of linear or "strip" commercial and excessive spots of commercial uses. C. Secure adequate right-of-way for future needs. 9. The Village will cooperate with commercial and industrial developers to insure that their developments are community assets and meet the standards established by the community with respect to the control of pollution, safety, convenience to residents, design of the site to provide adequate parking, screening, noise control, and other esthetic features. 10. The Village will utilize the Comprehensive Village Plan as a guide for growth and development and will enforce a zoning ordinance which will limit prezonings. C. STANDARDS Standards are measures of quality and the minimum considered necessary for application to urban and rural development to preserve the public health, safety, morals, convenience, and general welfare. Standards for urban and rural development and maintenance have been developed by the Washington County Planning Advisory Commission and are on file with the County Planning Coordinator. It is recommended that these standards be adopted by reference for utilization by Hugo for the following purposes: a) Utilization as guides to making day-to-day development decisions and evaluation of private development proposals; b) Incorporation, by reference, into the Hugo Comprehensive Municipal Plan; and c) Specifically adopted in ordinance form within the zoning, subdivision, and other development regulations as may be necessary and desirable. 17 For purposes of definition for proper application of standards, Hugo is considered a low-density, semi -rural area. Despite extensive farming in some areas of the Village it cannot be considered a true "agricultural" area. The following standards apply and affect the Village Comprehensive Plan: 1. Soils Utilization for Urban Development Purposes - As per Washington County Zoning Ordinance for Townships (adopted July, 1972). 2. Public and Private Roads - As per Metropolitan Development Guide and Washington County Comprehensive Plan (Standards section). 3. Subdivision - As per Washington County Model Code. 4. Water Supply and On-site Sewage Disposal - As per Washington County Planning Advisory Commission standards and model regulations. 5. Lake and Stream Frontage Development - As per Washington County Township Zoning Regulations. 6. Public Recreational Facilities - As per Washington County Planning Advisory Commission Standards - 5.6400. 7. Fire Stations - As per Washington County Planning Advisory Commission standards - 5.6141. The above and additional standards affect Hugo and are available from the Washington County Planning Advisory Commission and the Metropolitan Council. PART IV. GENERAL ASSUMPTIONS AND PLAN PROPOSALS 1. Hugo will be able to provide sanitary sewer service through the western one-third to one-half of the Village through the Metropolitan Sewer District and therefore will be able to guide and direct the greatest concentration of growth within this area. 2. As evidenced by the recent boom in apartment and townhouse construction in the Metropolitan area, it is assumed that the trend will continue towards a wider variety of housing types with single family development having a smaller role in the total housing market than in the past. This trend, utilizing planned unit development and "cluster" platting procedures, would not only benefit many landowners who own marginal land but would also preserve additional "cpen space". (Reference "Cluster" Platting Concept following.) 3. The automobile will continue to be the primary mode of transportation in the Village through the next two decades. 4. The existing 4horoughfare system has numerous limitations in its ability to properly accommodate the potential traffic demand. it is assumed that these deficiencies will be corrected through the development of a highly efficient thoroughfare system utilizing guidelines set forth by the State, County and the Metropolitan Council. 6. Major areas of natural beauty will be maintained in perman- ent open space as conservancy areas or in "Greenbelts". 6. Sites for all public uses should be acquired before the needs for any particular facility becomes acute. 7. In the future, following adoption of the Municipal Plan, all proposed developments should be related to the Municipal Plan. Deviations should be permitted only if it can be demonstrated that -the proposed change is equal to or better than that envisioned by the Municipal Plan. 8. Future governmental structure must be a consideration in the planning process. The size, shape, and responsibilities of local government will greatly affect planning for public facilities and services. 9. The social and economic aspects of the urban environment must be given continual review; no longer can planning be concerned primarily with the physical aspects of the environment. 19 "Cluster" Platting Concept 8 ACRES d STR ET �0ludl STANDARD PLATTING ON ONE ACRE LOTS SAME 8 ACRES DEVELOPED AS PLANNED UNIT DEVELOPMENT r -- - "t F PLAY e AREA $3 Cl 46J4 Q v d "CLUSTER" PLATTING ON SMP SAM E AS ABOVE TOWNHOUSE OR OTHER MULTIPLE DWELLING 20 10. The comprehensive plan for Hugo is presented in map form as a part of this report. Said map contains general plans for land use, transportation and community facilities. Perhaps more important, however, is the set of basic goals and policies recommended as guidelines for future growth, and change in the environment. 11. The Municipal Plan should not be considered as a "master" or inflexible blueprint for maintenance and development; rather it should be considered as a guide to making the day-to-day decisions which, in their sum total, will result in the environment of the future. 12. Coordination of local plans with those of the Metropolitan Council, County, School Districts, adjacent communities, and others is essential to the well-being of the residents and the urban area as a whole. 13. A goal of the local planning process should be to aid in the beautification and improvement of living conditions as well as the creation of efficiency and economy in the urban scene. 14. Public facilities and services should be provided in accor- dance with a plan and systematic program rather than merely in response to demands created by sproadic and uncoordinated private developments. 15. Major public expenditures should be made in accordance with a long-range financial plan. 16. Future change in the environment should be on the basis of total community good, sound planning principles, and facts rather than simple yielding to the emotional considerations of special interest groups. 21 A. LAND USE PLAN 1. the land use plan for Hugo is based primarily upon the Washington County Development Plan; the Metropolitan Disposal System Phase I Study for Washington County; and an interpretation of the adopted chapters of the Metro- politan Council's Development Guide. While all of these plans are somewhat general in nature, the Hugo plan is more specific. The basic land use pattern for Hugo calls for: a. A distinct separation between "urban" and "rural" areas. (The urban -rural line of demarcation will be the Metropolitan Sewer Board's District #1 boundary line.) Rural is defined as areas which should remain very low density development and not require immediate sanitary sewer systems. Development in these rural areas of Hugo should be of a large lot variety - 5 acre minimum lot size. Urban is interpretated to mean those areas which are specifically designated and planned to have sanitary sewer service. (See appended sewer plan map.) Urban development will be staged so that it does not leap -frog rural development, but is contiguous,to present urban residential areas. b. Urban density land uses are planned to straddle the - U.S. Highway #61 corridor. 2. With few exceptions, urban type residential densities should be developed northeast, southwest, and southeast of the presently urbanized areas of the "old" Village of Hugo. Sanitary sewer service will be provided to these areas by the year 1985, and these areas will be able to accommodate the 1990 projected population of 8,600. (See the Hugo Sanitary Sewer Plan, which is a part of this planning report.) 3. All low density land west of the urban/rural line of demarca- tion should be "pre -platted" to accommodate re -subdivision and more intense development when public sanitary sewer is extended into those portions of the Village in the future. Such plans need not be officially recorded as a subdivision but rather maintained on a map and as part of the building permit record if needed in the future (See "Pre -Platting" Guide following). 4. Concentrated multiple family residential and non-residential (commercial and planned unit developments) uses should be encouraged initially to develop within the soon to be sewered areas of the "old" Village. 5. Areas designated as "PUD" on the Comprehensive Plan are those probably not suited for single family home development for a variety of reasons; these may be suitable for certain types of multiple dwellings, limited commercial, institutional, or other uses permitted and controlled under conditions of a special use permit and/or a planned unit development permit. 22 "PRE PLATTING" GUIDE POTENTIAL FUTURE RE -SUBDIVISION ALTERNATE LOCATIONS FOR HOUSE STREET STREET 23 6. Commercial land use developments should be adjacent to existing commercial concentrations along the east side of Highway 61 and both sides of Frenchmen Road for a distance of no more than one mile in any of the three directions from the point where U.S. Highway 61 and Frenchmen Road intersect. 7. Industrial land use development should be directed to the present industrial areas west of Highway 61 to take advan- tage of rail, highway and open land and also to the industrial area on Highway 61 north of the mobile home park. 8. Whenever possible, land along Hardwood Creek would be preserved for recreational purposes. Other drainageways and designated open spaces should remain free from land use encroachment. 9. Lakeshore development should be regulated as recommended by the Washington County Planning Advisory Commission. Such regulations and standards should be incorporated into the new zoning ordinance for Hugo. 10. Comprehensive detailed engineering studies should be undertaken which would compliment the land use plan in terms of water, sewer, and drainage planning. These studies should consider surface water problems as well as ground water, such as flooding, ramifications of ponding, etc . 24 WASHINGTON CO CONNURITY FACILITIES TRUROU6BFARES �tl. Urhen�R.rel Lln. ar O.m.r..tlon N&, Thuro.Bhr.... 6r..n Bdt N/nor Thoroughfare. N.dor Park — 6.Ik.tor u—,mm C.tw/ty Perk Lake A... CC Bid. C.— E Eb—t." Bnhod FELIMINAW- For Qaaatian P.rp Q* Suhj¢ol To Modikatim Priaa To 96-1 Adoption WaahinOtonp County PIa mg APRIL I •© Design Planning Associates Inc. NIC Lhkq, Aa ... e S.. ■m,g lis hAaeemte 551❑ • LARB IBE C[� R...l CLoo� L— a...It� R.ald.ntkd 4di.m penalty Redd.ntld Nigh D ... ity R..Id.ntl.l �tld] Pi..a U.lt O.nk—d village of am IM.dri.l HU G O El--] Unadt.hk For Building WASHINGTON CO CONNURITY FACILITIES TRUROU6BFARES �tl. Urhen�R.rel Lln. ar O.m.r..tlon N&, Thuro.Bhr.... 6r..n Bdt N/nor Thoroughfare. N.dor Park — 6.Ik.tor u—,mm C.tw/ty Perk Lake A... CC Bid. C.— E Eb—t." Bnhod FELIMINAW- For Qaaatian P.rp Q* Suhj¢ol To Modikatim Priaa To 96-1 Adoption WaahinOtonp County PIa mg APRIL I •© Design Planning Associates Inc. NIC Lhkq, Aa ... e S.. ■m,g lis hAaeemte 551❑ • B. TRANSPORTATION PLAN The major thoroughfare plan has been designed as a "skeletal framework" of the Land Use Plan. Only when considered in this context can it be effectively implemented and, therefore, fulfill its intended purpose. Standard,, An adequate system of thoroughfares must be capable of meeting the needs of general categories of vehicular traffic: Local Traffic: That which terminates or originates in Hugo and whose needs are best met by a cohesive system of local thorough- fares related to the local land use pattern and through -traffic facilities. Through Traffic: That which has neither an origin or destination within the Village. To meet these specific needs, the thoroughfare plan designates each street in the Village according to its intended function for planning design, and development purposes. The general street classification according to function is as follows: Maior Thoroughfares: A two or four -lane route, usually not divided, designed to serve major traffic move- ments within the Village and to provide access to *reeways and expressways (80-150' right-of-way). Minor Thoroughfares and Collectors: Thoroughfares designed to provide for traffic movement between mayor thoroughfares, collect traffic from minor streets and provide some direct access to abutting property (66' minimum right-of-way). Minor Streets: A local street providing for direct access to abutting property and for local traffic ,orement to collector streets. (40' Minimum right-of-way.) The thoroughfare plan designates the various classes of traffic movement as outlined above. Much of this system already exists and has been previously studied in the Survey and Analysis. The objective here is to extend and capitalize on the existing major street improvements in the Village with each recommendation closely related to its place in the system as a whole and its effect on the land use patterns. The major features of the Plan are as follows: 26 1. The Village should recognize and continue the Washington County concept of a parkway system. A parkway is proposed to follow Oneka Lake Boulevard and Hardwood Creek into Forest Lake Township. 2. The Village should coordinate its designated major thorough- fare system with the County Engineer in establishing future right-of-ways. 3. Transportation planning should recognize and include snow- mobiles, horse trails, hiking trails, pedestrian circulation, and other similar forms of movement. 4. Future transportation should be planned on the assumption that there will be a coordinated "system" including new forms of mass transit as well as more conventional modes of travel. 5. Minor street openings (usually residential) onto thoroughfares should be minimized to improve traffic flow and reduce traffic hazards. 6. All streets should intersect at right angles to avoid traffic hazards and to prevent the formation of unusable and odd - shaped parcels of land. 7. Wherever possible, streets should follow line of main drainage. 8. Left turn lanes should be provided for moderate to heavy traffic. 9. Curb parking should not be permitted on thoroughfares and collector streets with moderate to heavy traffic. (The courts have ruled that parking on a public street is not a right; it is a privilege which may be granted or taken away at will.) The purpose of a street is to move traffic; as such, the decision to permit or to ban curb parking should be a technical decision based upon traffic needs rather than a political decision. However, off-street parking should be provided in cases where traffic necessitates the banning of on -street parking. 10. Where future traffic is expected to be exceptionally heavy on major thoroughfares, right-of-way in addition to the minimum of 80 feet should be acquired; an alternative is to require an additional set -back along the route in anticipation of future acquisition. 11. The right-of-way, number of moving lanes, and the determination of whether parking should be permitted must be related to the anticipated future peak traffic volumes which can be expected. 12. Street systems should be designed to serve morning and evening "rush hours" not 24 hour traffic volumes. These peak or design volumes, when computed from assigned and projected traffic demand in terms of vehicles per hour to a future design year, allow the calculation of capacity needs. 27 Major Thoroughfare Proposals The roads designated as major thoroughfares are spaced so as to provide for the efficient movement of traffic through and within the Village. This system will include: 1. U.S. Highway 61 2. C.S.A.H. 4 (170th Street North) - Alignment changes and construction scheduled for 1974. 3. C.S.A.H. 8 (Frenchmen Road) - Recently improved. 4. County Road 8A 5. C.S.A.H. 10 Minor Thorouqhfare Proposals The remainder of the roads indicated on the plan map are either collectors or minor thoroughfares. C. COMMUNITY FACILITIES PLAN Community facilities are utilized on a public and semi-public basis, and serve groups as opposed to private individuals. The group might be an organization, a small neighborhood, the entire community, or an area larger than a community such as a county or state institution. The comprehensive planning program is primarily concerned with those facilities provided by the Village for comm- unity use. Semi-public uses which are not directly controlled by the Village are not discussed in detail although the organizations controlling the locations should formulate decisions in relation to the land use plan. Schools, recreation areas, and public buildings are the responsi- bility of the community at large, and the best service can only be given by planning facilities on the basis of anticipated land use. The plan provides a basis for determining: (i) what types of facilities should be provided by the Village; (2) the commitment needed, as to extent of system, coverage, quallty, etc.; and (3) the timing of acquisition of land and development of these facilities. The sites acquired must not only be appropriately located in relation to the anticipated population, but also in relation to surrounding residential and non-residential lana uses and the character of the terrain. These latter two features often place severe restrictions upon the development of an ideal system of community facilities. Within the community facilities plan, two aspects must be stressed: 1. The importance of designating sites for various public uses and acquiring these ahead of the market pressures on the land for other uses. 2. The problem of timing the development of sites and buildings so that the needs of each neighborhood are met in conjunction with the speed and direction of new growth and obsolescence of previous investments. The quality of a Village's public facilities, to a large extent, determines its image and desirability for further growth. While costing money and affecting the tax base, nonetheless they are the pre -requisites for attracting new business and industry which must be concerned with the living environment for employees and customers. Community facilities are needed to make a "whole" community. Houses and streets are not nearly as exciting or rewarding unless mixed with churches, parks, playgrounds, and other uses to break the monotony. M7 The development of a livable community is an art as well as a science; the art involves creation or preservation of aesthetic values such as scenic views, avoidance of the dull and common- place, and avoidance of eyesores. Properly located and developed community facilities can add to the charm and enjoyment of living in Hugo and enhance the value and living qualities of individual homes and business sites. The objectives of the Community Facilities Plan, therefore, are to create a desirable living environment, maximize the advantages that Hugo has to offer in the quality of its public schools, parks and public buildings, and to indicate how these are tied in with other elements of the Comprehensive Plan. The following is a listing of specific community facilities: 1. Civic Center - This facility would be an enlargement of the present Village Hall and would house the Village offices and council chambers, community meeting room, a small library, and a police facility. The need for this center would not be realized until close to 1990. 2. Fire Station - The central facility is now adequate and should remain so in the near future, but during the late 1980's it should be enlarged to take over the existing Village Hall facilities. There is a strong likelihood that if projected population figures for the year 2000 are achieved there will be a need for a second facility in the Village. 3. Postal Facilities - The present post office in Hugo is considered ample enough to serve the needs of the Village to the year 1990. 4. Schools - Assuming the limited population increase no new schools will be needed before 1990. The two existing elementary schools have considerable acreage for expansion purposes. Although the White Bear District does own property in west Hugo, with decreasing enrollments in their other elementary schools, bussing will be pursued to accommodate the short range needs of Hugo. 5. Park and Recreation Facilities - Recreational activities are generally divided into two types - active and passive. Active recreation includes such activities as hiking, fishing, base- ball, tennis and the like. Passive recreation includes activities such as picnicking, resting in shaded areas, bird watching, and so on. Facilities for active and passive recreation should be available to the public on three levels: 30 a. Neighborhood: Serving an area of about one square mile bounded by major streets. The present park adjacent to the Village Hall should be sufficient to serve the residents west of Highway 61 and the playground at the Hugo Elem- entary School should fulfill the active needs of the residents east of Highway 61. Other future neighborhood park needs can be fulfilled in the developing residential areas through the dedication of land for park purposes requirements of the subdivision ordinance. b. Community: Major facilities designed for the residents of the whole Village. Two such parks are proposed for Hugo. One will be on the east shore of Egg Lake and the other on the north shore of Sunset Lake. Hopefully these can be acquired soon and initially developed for passive purposes. (Picnicking, etc.) C. Regional: Major facilities intended for use by residents of several communities. Such facilities could include major city parks, county parks, state parks, game preserves public forests, and other large facilities. The Oneka Lake area has been pinpointed by the Metropolitan Council as a prime area for a regional type park of approximately 1,000 acres. (A public access area at the south end of the lake presently exists.) Hardwood Creek is another potential regional park and open space area which has beQn advocated as a linear park by Washington County and the Metropolitan Council and has also been proposed by the plan of the neighboring Village of Lino Lakes. 31 PART V . PLAN IMPLEMENTATION A very basic factor concerns the use of the plans presented in this report. It is not sufficient to merely prepare plans; ways must be found to effectively carry out the plans. Too often in the past, communities have developed comprehensive plans and then failed to properly utilize them for guiding urban growth and development. Another factor is that urban planning should be considered as a continuing process of local government rather than a one- time project. As noted herein, the plans are not intended to be inflexible blueprints for action, but rather, they are intended as guidelines for decision making. The plans as presented in this report must be continually reviewed, amended and made more specific as indicated by changing needs, conditions, trends and population attitudes. Such a planning process will eliminate any possibility of the plans becoming obsolete through neglect and lack of use. If the planning is to be successful, we must have "tools" with which to effectuate the plan. The following is an outline of various tools and programs normally utilized to carry out the proposals of a Comprehensive Plan. A. Le illation Planning: Adoption of plans as an official policy statement of the community, zoning and subdivision regula- tions, and an official map. Related: Building Code, housing code, well ordinance, refuse disposal, miscellaneous others. B. Capital Improvements Program and Budget This is a program whereby the community lists major public improvements outlined in the plan, assigns priorities, and assigns cost estimates to each contemplated'project involving substantial capital outlays. The needs are then related to the anticipated financial resources of the community for a projected period of five or six years. C. Planning Administration 1. Prior to any official Village action on the proposed plan, the following steps should be taken: a. The Village Planning Commission should schedule, give proper legal notice, and con uct a Public Hearing. 32 b: Copies of the Proposed Plan and Public Hearing notice should be sent to all adjacent communities, Metro- politan Council, County and State Highway Departments, County Planning Advisory Commission, Metropolitan Sewer Board, and others who may have an interest in this matter. Comments and suggestions should be solicited. C. Following the Public Hearing, the Proposed Muntcipal Plan or an amended version thereof should be adopted by resolution of the Planning Commission. d. Following adoption of a Municipal Plan by the Planning Commission, said Plan should be properly forwarded to the Village Council and the Metropolitan Council for their review. e. Following receipt of Metropolitan Council review comments or elapse of the required waiting time (60 days) the Municipal Plan with such changes as deemed necessary and desirable should be adopted by resolution of the Village Council. f. Following official adoption of the Municipal Plan by the Village Council, official actions toward implemen- tation of the Plan may begin; recommended actions are as follows. 2. The lat ersion of the Washington County Development Code " be adopted by reference. The advantages are many including substantial cost savings (preparation and publication), uniformity with regulations of many other Washington County Communities, and availability of assistance in adoption, administration, and enforcement. Code items needed for the proper implementation of the Hugo Municipal Plan include the following: a. Zoning Ordinance - Contains all the elements needed for regulating land use in Hugo with some of the more important being: (1) Planned Unit Development; (2) Lake shore development controls; (3) Preservation of "Public waters"; (4) Lot area requirements for areas without sanitary sewers; (5) Performance standards, and (6) Numerous others. b. Subdivision Regulations. C. Well Ordinance. d. On-site sanitary disposal regulations. e. Grading and filling of low areas. f. Others as appropriate. 33 D. Planninq Coordination In any metropolitan area, planning coordination is essential to orderly growth and development. Land use, transportation and community facility plans in one community will often greatly affect those made in adjacent and nearby communities. In a free society such as we have in the United States, the plans must be considered as subject to change in accordance with the desires of the citizens. Such changes should be made known to other communities and other levels of government. In Hugo, as in all communities, there will be many requests for development inconsistent with the plans as presented in this Planning Report. It is the responsibility of represen- tative local government to help citizens make proper, informed decisions based upon a reasonable and up-to-date Comprehensive Plan for the community. Within the Twin Cities Metropolitan Area, many units of government and private enterprise must be involved in the planning process. Units of government include the local government, school districts, county, metropolitan, state, federal government and branches of government including mosquito control, conservation, agriculture, utilities, air transport, and many others. In order to avoid duplication of efforts and conflicting plans, coordination of all planning is essential. E. Continuing Planning It is imperative that this intent continue after the present program has been completed. The planning process is a continual process of decision making. Nothing will outdate a plan faster than decisions made outside the framework and intent of the plan. 34 HUGO, MINNESOTA APPENDIX COMPREHENSIVE SEWER PLAN A Comprehensive Plan for Trunk Sanitary Sewermains has been prepared. The plan provides sewermain construction to be co-ordinated with land develop- ment within Sewer Service Area. No. 1. The Sewer Service Area No. 1 boundary is the west line of the Village and the east line being approximately Good - view Ave. No. and easterly of Goodview to Harrow and Henna Avenue. The boundary lines have been shown on the attached map. Within Sewer Service Area No. 1, are areas which are questionable as to development, either due to soil conditions, high ground water table, or surface water conditions. The extent to which the questionable land can be developed may partially depend upon the availability of sewermains. A time schedule for construction of sewermains has been included and coded according to shading. It is proposed that sewermain development first con- sideration would be the built-up area of the old Village of Hugo. A plan has been prepared for this built-up area which would be constructed in 1973 - 1974, final plans and specifications are being processed. This sewer con- struction will mark the beginning of sewer services to the Village of Hugo. (Comprehensive Sanitary Sewermain Plan Map Under Separate Cover.)