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HomeMy WebLinkAbout1973.04.25 PC Minutes MINUTES OF PROCEEDINGS OF THE HUGO PLANNING COMMISSION PUBLIC HEARING APRIL 25 , 1973 The meeting was called to order at 8:20 PM by Craig Paulson, appointed chairman for the evening. Mr. Paulson appointed Mayor Lynn Carlson as chairman for the Public Hearing, which opened at 8:25 PM. Jim Houle, secretary for the Planning Commission, read aloud the notice of pub- lic hearing which had beenpublished in the White Bear Press. Mayor Carlson then introduced members of the Commission, Craig Paulson, Larry Ehret, Harley Johnson, and Jim Leroux, and also the planning con- sultants for the Village, Carl Dale and Bob Ei dem of Design Planning Associates, Inc . Carl Dale began a brief introduction by stating that the Comprehensive Plan is basicly that of the professional judgement of the consultants, andif the public doesn't agree with their ideas, they should speak up and let the Council and Planning Commission know how they feel. He said what they are definitely not proposing for Hugo is to be something like Roseville ,Richfield, Bloomington, etc . The Village should be more like Lake Elmo, Scott County, etc, where every square inch is developed in some way, beneficial to the community. Mistakes had been made in other communities, because only in the last five years has planning been taken seriously by suburban communities. Mr. Dale then referred to a map (copy on last page) when he told the pub- lic that instead of Hugo developing radially, it should be developed in corridors from North to South, with the Western one third (1/3) of the Village remaining urban, and. the Eastern two thirds (2/3) remaining essentially as it is today. The Western one third , or the old village g area, would remain urban with community facilities and improvements such as sewer, water, storm sewer, etc . , and the Eastern two thirds would remain rural, with low density population, gun clubs, game farms, etc. The Eastern portion should be retained rural even if it means new legis- lative action. This would keep public improvement needs and land owners' expense to a minimum. The main transportation corridor from St. Paul and White Bear Lake would be Highway # 61 through Hugo. The area could never expect to have mass transit, as people are too spread out. Commercial areas, as seen on the map, would be South of town, a special- ty center in town, one North on # 61, and one West. As Highway # 61 developes it should be a mixture of uses, a corridor developement. An example of this would be Highway # 12 from Johnson Parkway out. There ' s residential and_ business. Mr. Dale ended his presentation by saying that with their plan, the community can save wildlife, promote ecology, preserve rural areas, and still give the urban center their needs. • • page 2 Bob Eidem then began his presentation saying the consultants had started last August by surveying the whole village . They took a field trip,and looked at existing uses in housing, transportation, community facilities, etc. They then prepared a land use map showing these things. In November a public informational meeting was held to get input from the residents, and most of them agreed with the basic plan. During the winter they dis- cussed roads, parks, and other community facilities. The Forest Lake Interceptor also had a part in development of the Plan, as a Compre- hensive Sewer Planwas developed along with the Comprehensive Village Plan. The County Planning Coordinator, William Schwab, also worked with the Planners and Planning Commission, giving technical assistance and information on County Zoning. Jim Leroux of the Planning Commission then spoke on land use as it now exists . Presently there is an extensive amount of farm land, although there is more pressure all the time from subdividers to build homes on this land. Examples of small developments would be Royalhaven Estates, Oak Shore Park, and Evergreen Hills. Single family homes are somewhat scattered on 10, 5, and 2 acre parcels. Public land is minimal, examples being the park in town, village hall area, and old town hall area. Industrial use is found in the Bald Eagle Industrial Park, and North of Hugo on Highway # 61. Commercial use is found in the center of town, North on # 61 at Nashville North, and Countryside Center and a liquor establishment at Withrow to the Southeast. There are several wetlands, ore being Hardwood Creek, which runs from Little Rice Lake to Forest Lake Township and back, which has the pos- sibility of being developed as a recreational area in the future . In summary, the Comprehensive Plan would be based primarily on what the land is now used for. Larry Ehret of the Planning Commission then informed the public on the present and future transportation system. There is a skeletal frame- work of roads now existing, and they will follow plans of Washington County in future developement. Major roads now existing are Highway # 61, CSAH # 4, SIH # 8, County Road 8A and County Road # 10. Restricting access to major thorofares will be handled through the use of collector streets found in the village, and there is now a required setback along Highway # 61 to allow for development.Thorofares will be set up to take care of peak flow of traffic in the morning and evening hours. Parking and right of way will be set up on anticipated traffic loads over 20 to 30 years . Craig Paulson of the Planning Commission began his presentation on the community facilities aspect of the Plan by stating there were three objectives to keep in mind; to create a desirable living environment, to 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. 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 . page The following is a list 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 re- main so in the near future, but during the late 1980' s it should be enlarged to take over the existing Village Hall facilities . 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. 5 . Park and Recreation Facilities - Recreational activities are gener- ally divided into two types - active and passive . Active would in- clude activities as hiking, fishing, baseball, tennis, and the like . Passive would include 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: 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 Elementary School should fulfill the active needs of the residents east of the highway. Other future neighbor- hood park needs can be fulfilled in the developing residential areas through the dedication of land for park purposes required by the subdivision ordinance. B. Community - Major facilities designed for the residents of the whole village.Two such parks are proposed for Hugo. One to be on the east shore of Egg Lake and the other on the north shore of Sunset Lake. C. Regional - Major facilities intended for use by the residents of several communities, such as 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. Hardwood Creek is another potential park and open space area. In summary, properly placed community facilities can greatly enhance the beauty of the Village of Hugo. Mayor Carlson then opened the hearing to the public, asking for their comments and questions which are listed below. Perry Copeland - Where will sewer area be? Mayor Carlson answered by saying a HUD Grant in the amount of $357,000.00 had been given to Hugo for sewer in the old village area, and Howard Kuusisto had maps showing the precise area if Mr. Copeland cared to look at them. Dave Nordeen - We in Oakshore Park have parkland set aside for the resi- dents use only. Are we to donate park land to the public also? Jim Leroux, who had been the Clerk for Oneka Township at the time that Oakshore Park • page 4 came into being, said land in that area was to be donated for public use, but never was. Ken Tschida, developer of Oakshore Park stated that at that time, the Township was asked if it wanted park land, and they couldn't make up their minds, so land was given to the homeowners association, comprising 10 acres. Wally Otto - Is Highway # 8 to be a major road made wider than it is? Bob Eidem stated that this particular road would stay as it now is. Theodora Peltier -- How large is the park to be on Sunset Lake? Bob Eidem stated it would be probably confined to the penninsula area. Ken Tschida - What are uses for unbuildable land? How about a golfcourse? Carl Dale said a golfcourse would be a good idea, and most would remain in private ownership if possible. Herb Thielbar - Is there to be no public hearing before rezoning? 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Plo ning WM ege emft, asAmemi 1....awty Perk gic Pima Iklt howlepaseet kaki kens 1 village of MN comapsrsist cc elek Outer 1M kwhystrial E eratertary UAW pni , ,,211. ... .... , 11 U G 0 a'afts"Area. APRL 1973 Design Planning Associates loc. dp Mk Chia.Aron Se. Illimipsis assasessm WASHINGTON CO � ,e�,,/,�2 affe.L� A PROPOSED COMPREHENSIVE MUNICIPAL PLAN Prepared for: THE VILLAGE COUNCIL AND CITIZENS OF HUGO , MINNESOTA 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 purposeof the Municipal Planning Act to provide • municipalities with the necessary powers and a uniform procedure for adequately conducting and implementing municipal planning . V Village of Hugo , Minnesota COMPREHENSIVE MUNICIPAL PLAN Outline Preface Page Number Table of Contents Part I . Introduction 1 Part II . Survey y and Analysis 3 A. Historical Background 3 B. Economic Background 4 C. Population Characteristics 5 D . Housing Characteristics 6 y~ 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 c • .. i , • COMPREHENSIVE PLANNING Elements and Process Step � RESEARCH do ANALYSIS ., -bi- REVIEW by- FONULATI ION , ), • HISTORICAL BACKGROUND ', • PLANNING COMMISSION • LAND USE • GOALS • UTILITIES • POPULATION • HOUSING • POIiCY •ECONOMIC BASE •COMMUNITY FACILITIES •• STANDARpS • THOROUGHFARE SYSTEM i/ •ANNEXATION POSSIBILITIES REQUIRED FOR THE UNDERSTANDING OF THE COMPREHENSIVE PLAN NN REVIEW ,, d CONTINUAL PROGRAM ISONUS AI)IIJ$flATIIJ( -by- , _b ` IS PLANNING y— COMMISSION • • APPLICATION OF ZONING ORDINANCE AND ', SUBDIVISION REGULATIONS • GOVERNING • UPDATING AND IMPROVEMENT OF PLAN i BODY • RENEWAL&IMPROVEMENT PROJECTS • OPEN-SPACE CONSERVATION • LOCAL • DEVELOPMENT OF COMMUNITY FACILITIES GROUPS AND UTILITIES • PRIVATE DEVELOPMENT ASSISTANCE / • CITIZEN COMMITTEES 5 ADOPTIO\ It NFORcEIENT by- 3 LOCAL GOVERNING BODY / . � EFFECTUATION PREPARATION / 7tlOf PLANS -of �ougM use of- ,' COMPREHENSIVE PLAN including plans for- • ZONING ORDINANCE • OFFICIAL MAP REVIEW & APPROVALby- • LAND USE • SUBDIVISION REGULATIONS4 •• PLANNING COMMISSION • COMMUNITY FACILITIES • LOCAL GOVERNING BODY \ • CAPITAL IMPROVEMENTS • 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 keepthe Plan valid due to changing conditions and technology. Localplanning efforts must be coordinated in relation to the planning now being accomplished within the Twin Cities Metropolitan Area and 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 • e 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 Village 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. 1 • 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 remainingportions 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 theadequacy of existing and potential needs for public and semi-public uses , such as schools , parks , playgrounds , and other governmental and institutional requirement needs . 2 *1 ' 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 plan 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 - Chairman O . L. Kinyon - Supervisor B. F. Judkins - Sypervisor George Walker - Clerk & Treasurer George Kannady - 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 Theeconomy 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.*) 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 , bank , 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 Lake 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 . 4 C . POPULATION CHARACTERISTICS Hugohas 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 1940 1950 1960 1970 1972* Hugo 348 440 538 751 3 , 164 Oneka Twp . 683 771 898 1,918 ---- Total 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 18% 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 PROJECTIONS 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 Village 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 . (Approximately47% 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 roduc- tivity potential of the population. D. HOUSING CHARACTERISTICS A great deal can be said about a community byjust anal zinY 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 pinpointing the residential personality of a community. The Hugo land use survey indicates the following housing composition as of September , 1972 : Type of Housing Quantity Percentaje 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% 6 , Considering the community' s high proportion of single family y 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 i n 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 still 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 ,916 257 ,219 Percent of Units Lacking one or More Plumbing Facilities 4 . 2% 6. 5% 3.0% 3 .4% (continued) 7 s , Hugo Oneka Washington 7 County Number of Persons County Metro Area Living in Housing Lacking one or More 19 104 1 ,442 30 ,848 9 Plumbing Facilities * 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 within 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 gri - 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 . 8 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 trip- 1ike 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 hai l , 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 29 . 7 Mobile Homes Park 15 . 7 1 . 0 Multiple Family 2 .8 . 2 2 Family (2 .4 ) •'� 3+ Family ( . 4 ) Commercial 468. 4 25 . 5 Retail ( 5 . 2 ) • Limited ( . 6) General (8 . 2 ) Recreation (454 . 4 ) Industrial 99 . 0 5 . 1 Nuisance (84 . 9 ) Non-nuisance ( 14 . 1 ) Public 27 . 1 General (2 . 6 ) Recreation ( 17 . 3 ) Schools (7 . 2 ) Semi - Public 8. 8 . Roads ( Public R. O . J. ) 607 . 3 33 . 0 Railroads 60 . 4 3 . 3 TOTAL DEVELOPED 1 ,835 . 2 140 . 0° Water 21 Lakes = 1 ,585 Ac r.es 2 Creeks = 41 Acres 1 ,626 . 0 Low Met Areas and Poor Soil 2 , 138 . 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 g was in large part based upon the existence of these two roads . Hugo ' s transportation and circulation needs are currentlybeing metby 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 e 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 g 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 recent9 rowth experienced in this area of Washington County. The section of U . S. #61 south of the old Village line to the RamseyCounty y 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. g Two railroads pass through the Village and provide Northern freight service only. Burlingtong(Duluth line) maintains a freight depot in the old Village and handles car load shipments of dry y commodities such as lumber , grain , fertilizer , etc . The Soo Line (Superior line) crosses the southeast corner of the Village at Win throw 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 , sewagetreatment plants and so on . Semi -public or quasi - public uasi -publ c 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 maintainedby various units and levels of government while semi - public emi -public facilities are not. The Village is presently operating from two "village" halls . Routi.fle 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- time policemen and 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 Hal l . Future planning decisions for expanded and upgraded space for both of these functions , plus a needed library , 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 "down- town " Hugo . Both of these facilities will 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 Hall . It functions as a playground with active- 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 (Stiliwater, Forest Lake , r1ahtomedi and White Bear Lake) . The Stillwater (834 ) and White Bear Lake (624 ) districts each have one elementaryschool 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 Village is served by a public water system. This system was installed in 1969 and includes a deep well supplying 350 gallons per minute and a 100 ,0009 allon 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 White 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 Inthe past, community planning has dealt with factors related primarily to "physical " features , such as the location of housing , 9 , shopping centers , industrial sites and the like.haveOnly duringthe past tenyears other elements gained proper recogni ti on , with these being economic and social considerations , ecology, governmental efficiency "policy �� and the entire area of 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 p system , a satisfactory transportation network , and other desires can be stated as general and translated into more specific objectives . 2. Policy - Once goals have been set, "policy" is the official course of action adopted and utilized to attain the desiredgoals . For example ,e a goal • p to , provide adequate open space i n 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 standards 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 codes and ordinances . Such standards also tend to serve as9oals" although not necessarily the "ultimate" goals since they are considered the minimum necessary for thepublic 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 aperiodic basis and adequately reflected ected i n the standards set for controlling and guiding growth and development in the Village. In order to maximize the opportunity of the citizens top artici ate in p the planning process , two methods were utilized : ( 1 ) a ublic w p informational meeting was held to provide an open forum for discussion of planning and the future of the Village ; and (2) ap l anni n9questionn- aire was made available to all residents and property owners in atten- dance at the public meeting asking their opinions and desires relating to future growth and development. The following text on goals , policy ,� and standards is based upon the results of such efforts . A. GOALS Approximately one hundred twenty-five (125) persons attended apublic meetingon November 8 , 1972 , • to express their opinions , interests and desires concerning the future development of the Village. A clear 14 ti direction , although not an unanimous concensus , 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 purposes . 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 i s due to several factors : a . Abundance of lakes , streams and drainageways . b. Presence of a high water table . c . Extensive areas of unstable , unbu i l dabl a 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 ross 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 • • I 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 . 18 .e PART I V. 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 singlefamily development having a smaller role in the total housingmarket 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 "open space" . (Reference "Cluster" Platting Concept following . ) 3. The automobile will continue to be therimar mode of p y transportation in the Village through the next two decades . 4. The existing thoroughfare 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 . 5. Major areas of natural beautywill 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 governmentwill 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 STR ET Q d I:1 I • STANDARD PLATTING ON ONE ACRE LOTS SAME 8 ACRES DEVELOPED AS PLANNED UNIT DEVELOPMENT . . . . . . r-- """) 1 PLAY � • AREA • P izra TREES a Q Cle 4 skilL PON SVIINP "CLUSTER" PLATTING 11111 SAME AS ABOVE 1111 TOWNHOUSE OR OTHER MULTIPLE DWELLING 20 10. The comprehensive plan forHugo 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 ti 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 i n 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 varietyof 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 ONE ACRE LOT .44 I STREET POTENTIAL FUTURE RE-SUBDIVISION ALTERNATE LOCATIONS FOR HOUSE -411 )4. S 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 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. Standards 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 : Major 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 major 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 Thoroughfare Proposals The remainder of the roads indicated on the plan map are either collectors or minor thoroughfares • 28 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 . omm- unityuse . 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 esponsi -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 : ( 1 ) what types of facilities should be provided by the Village ; (2) the commitment needed , as to extent of system , coverage , qual l ty , 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 land 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 . 29 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 thecharm 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 hasto 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 - Assumingthe 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 g needs can be fulfilled i n 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 typepark of approximately yP PP y 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 been 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 . Theplans 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. Legislation 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 programwhereby 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 six 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 conduct 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 Municipal 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 impl emen- • tati on of the Plan may begin ; recommended actions are as follows . 2 . The latest version of the Washington County Development .. Code should 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 . Planning 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 makeproper , 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 Coinprehensive Plan Review I. II\ITRODUC T iON The 1967 law establishing the Metropolitan Cro cil requires that the Council review, comment on, and make recommendations on long- e rm comprehensive plans of the counties , cities, villages, towns, and borough within the Metropolitan Area.. The same requirement applies to major alterations of such plans and to any other matter with substantial effect on metropolitan area development. Comprehensive plan reviews conducted under this law will he utilized as background information in examining current referrals requesting grants-in-aid for various projects . In addition, plan reviews provide an excellent opportunity for the Area's municipalities and the Metropolitan Council to examine and discuss the inter-relationships and mutuality of interests between local planning and metropolitan planning. • The comprehensive plan review will not serve as an official review in cases where • same is legally required by other governmental bodies such as the Metropolitan Sewer Board. Comprehensive plans are reviewed with reference to developing or completed components of the Metropolitan Council's Development Guide and various background research materials that are mostly in map and data form and deal with various phenomena in • the Metropolitan Area. The review is organized topically in accord with the elements included in the Metropolitan Development Guide. These elements are: a) physical development structure, b) parks and open space, c) transportation, d) major centers 3) utilities , and t) residential development. A category of "other considera- tions" is included to deal with specialized developments or elements that do not • relate to the items enumerated in the previous sentence. A brief overview of the community and its planning and development programs as seen by the Council, a state- ment on the relationships of the plan to plans and developments in bordering communities , and a list of final recommendations complete the review package. • Since the municipality`s comprehensive plan is reviewed from the aspect of its relationships to the metropolitan-wide Development Guide arid its components , both items of agreement or accord as well as those items where there is disagree- ment or divergence of opinions between local and metropolitan plans and concepts are indicated here • ..l. COMMUNITY OVERVIEW The Village of Hugo, 36 square miles in area , is located in northwest Washington County. Hugo is bounded by the towns of May, Grant and •the of V site Bear Lake, Lino Lake, and Forest Lake. (See Appendix I) . The Village is part of Metropolitan Council District 2 while the western half of the village lies in Sewer Service Area 3 . • -2- In 2-In 1971 , the Village of Hugo was consolidated by merging with the town of Oneka . A Metropolitan Council population estimate in 1972 indicates that the popu- lation of the new community was 3 , 164 . Population projections have been prepared by the Council. Table I Population Projections for the V�ll.A e of Hugo Year Population 1970 • 2669 1980 4700 1990 8600 2000 17,300 2010 . 28,700 • Hugo is basically an agricultural community; the eastern two-thirds of the Village is undeveloped, the western third is more densely populated and more non-farm homes occupy the land. COMPREHENSIVE, PLAN REVIEW 1 . Physical Development Structure The topography of the village is generally flat in the western half, while rolling and hilly in the eastern half. The large part of Hugo is located within the Rice Creek Watershed; the western half of the Village is crossed by the Hardwood Creek which drains in Peltier Lake. Large portions of the village are wetland and low land with high water table unsuitable for development. The Comprehensive Plan indicates areas. un- suitable for buildings . However, a close look at Washington County soil survey maps for the area shows that the comprehensive plan represents only the area's most obviously unsuitable such as marshes, peat areas, hut fails to indicate other areas of soils such as Isanti and Bluffton characterized by a highwater table. (See Appendix 2 and 3) . Staff has prepared a list of the soils occurring within. Tiugo and classified them as to their suitability for buildings . (See Appendix 4) The soil information can be obtained from the Washington Soil and Water Conservation District office in Stillwater. The comprehensive plan has used the Metrop,lila i Sewer Bcard District 1 boundary as the demarcation line between urban end rural districts; the urban district being within Sewer District 1 . Unfortunately, the western half of the Village, designated as "urban • district" all to be severed first, has very extensive areas of soils with an ex- tremely h1'_th water table . These soils have severe limitations for development. -3- _ • Hugo plan has utilized a "goal, policy" planning approach to guide development.velo . The policies , which are very general, except for policy 4 4, are in conformance with the Metropolitan Development Guide. Policy # 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 ." While locating apartment structures adjacent to thoroughfares in order to avoid heavy use of residential streets may be justifiable, the use of apart- ment structures as a. buffer,! is:. generally unacceptable and is in conflict with the Housing Chapter of the Development Guide which states that "in community comprehensive plans , multi-family housing should not be provided for only in buffer and marginal locations and when negative .environmental factors are present. " Policy # 3: "The policy of the village shall be to limit single-family housing unit densities to one unit per gross acre of buildable land west of the Metropolitan 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 unit per gross five acres of buildable land east of the Sanitary Sewer District's boundary line. is unclear as to densities f to be allowed where the area is sewered. Also, the term "buildable land" is left undefined . The density requirement of one housing unit per acre'within the urban district, as yet unsewered, is presently adequate and necessary; however, when the district is sewered in the near future such lot size will be too costly . • Within the "Rural District" residential development will be limited to a maximum of one housing unit per five acres . The intention is to protect the agricultural land. This technique has been proved a very ineffective means of protecting valuable agricultural land. 2 . Housing The Hugo housing profile shows high proportion of single--family units which is to be expected for a community so located. Housing Profile Type of Housing Quantity Percentage_. Single-family residential 568 70 . 3% Single-family farm residential 111 13 . 6% Multiple family 18 2 . 2 Mob?ie home 111 13 . 6% Vacant farm residential _..___3_. _•3_% .__ 811 100. 0%, -4- • The Village has 13% of its housing stock as mobile homes , such a high percentage of mobile homes should prompt the village to adopt standards governing the adequacy of both the unit as a living quarter and their environ- ment. • Voile Hugo is a fourth priority area in the Metropolitan Council Housing Allocation Plan, and is therefore not an area where low-and- moderate-income housing would be encouraged at the present time, initia- tives in providing for such housing, however , are of future concern and should • be dealt with in a plan for future growth and development. • 3. Transportation Hugo is presently well linked with most areas in the metropolitan area. U.S . Highway 61 has served as the major thoroughfare serving Hugo. While County Road # 3 recently up-graded, gives Hugo good access to I-35E. Two railroads , the Burlington Northern and the Soo Line traverse the Village, but provide freight service only. The review of the transportation plan for the village indicates that the road classification system as adopted by the Hugo Council differs in terminology from that in the Metropolitan Development Guide (MDG) . At the present time the Metropolitan Council and the inter-agency transportation planning program operate under the Functional Classification System as adopted by the Council and defined on pages 20 , 21 and 22 in the Transportation Section of the MDG. This functional classification provides not only a basis for facility location, spacing and design hut ai so allows a logical approach for assigning • jurisdictional and financing responsibility and resources among the various levels of government. Adoption of a single functional classification system and termi- nology by all units of government within the metropolitan area would greatly reduce confusion between the various municipalities as to existing and projected level of service and jurisdictional responsibility for specific road facilities. According to the comprehensive plan the Washington County road net- work forms the backbone of the community' s major thoroughfare system. Two.area s of weaknesses in this collector system have been identified: one is the absence of a good north/south facility between Highway .51 -and County Road 5 that provides a level of continuity presently lacking; another area of concern is lack of a good route connecting to County Road 5 between County Road 4 and County Road 8. At the present time the County Highway and Planning Departments are considering the need for a continuous north/south county road facility in the Hugo, Grant, Lake Elmo area. This facility would be designed as a 24' paved rural road and would he upgraded in the early 80' s . In Hugo this facility would be located generally raid-way between Highway 61 and County Road 5 , from near Round Lake and terminating at County Road 4 (see Appendix 5) . This facility, in addition to providing better continuity and future access would also replace the proposed county designated parkway as being unnecessary from a transportation viewpoint and un- desirable from an environmental impact standpoint. In view of the above it is • S- . strongly recommended that the City of Hugo meet with the County to re-appraise their respective planning efforts. Further analysis and coordination with the county highway and planning department should be undertaken not only on the above-mentioned • problem areas but also on the need for inclusion of advance right-of-way reservation for a proposed Northtown Crosstown facility located generally between Bald Eagle Lake and the Village of Withrow. 4. Utilities The old Hugo Village is served by public water system, and the Village has no municipal sanitary sewer system at the present time. However, a plan for a sanitary sewer system was prepared as part of the Village's comprehensive Plan. The sewer plan will be reviewed by the Metropolitan Sewer Board. Staff appreciates the opportunity presented by the Village of Hugo, which enables the Council to review the comprehensive plan at the same time. The Sanitary Sewer Plan indicates that the old Village of Hugo and immediately adjacent areas will be sewered within the next 10 years, taking advantage of the existing Forest Lake interceptor, while.-other areas within Metro Sewer District If I can be expected to be serviced by 2020. The Village has not yet prepared plans for municipal water distri- bution system and a storm sewer system. 5 . C oen S ace . The Hugo Comprehensive Plan refers, many times, to the preservation of the "open atmosphere" of the village and the retention of open spaces. However, there is no clear delineation of the land areas to be preserved in the future. The plan states that "whenever possible, land along Hardwood Creek would be preserved for recreational -purposes. Other drainageways and desig- nated open spaces should remain free from land use encroachment. " But the plan does not delineate the area along the Hardwood Creek as needing to be preserved nor other drainageway s , open spaces needed in the future. The lage will opt the ashingto County S eland 7-,o ing Ord' ance; t standard .et in th - ,ounty's rdinance 1 confli with e st ndards et by the v' lege for ' s "Rural . istrict." 4 _ - the village is urged to cooperate with the Rice Creek Watershed District Officials and develop a water resources management plan. Park and recreation facilities are almost totally absent in the plan. Two community parks are proposed for Hugo; one to be located on the east shore of Egg cLake and the other on the north shore of Sunset Lake. However, the_� plan 1 -6- does 6-does not delineate the sites. The village should define the community parks so that when development occurs , the village knows what land to accept for dedication or what should he purchased and not be in a situation of acquiring land that is left•over and does not serve the community well. Only three lake access points are indicated on the. plan. The Village should he encouraged to provide public access points to all the lakes and creeks where feasible. Several techniques are available to the village that would enable the community to retain such land open, such as subidvision land dedication, fe'e acquisition, easement, etc. The village should also try to integrate the neighborhood park's with present and future elementary schools. Standards for the various types of park facilities as well as techniques for implementation of the open space plan should be developed and set forth in the plan. • 6 . Plan Implementation Implementation procedure for the Hugo Plan call for adoption of the Washington County Development Code by reference. The Development code contains zoning ordinance, shoreland management ordinance, floodplain ordinance, on-site sanitary sewer disposal regulations, subdivision regulations. _ The plan indicates that a capital improvement program is one of the implementation tools available to the Village; however, no capital improvement program has been prepared. Policy No. 6. "The Village will do everything in its power to dis- • courage 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. " But, no guidelines or strategy have been developed to pro-- mote integrated commercial centers nor to upgrade the downtown business district. The Village should also decide on implementation techniques to preserve park and open space for its future needs. The village stages the construction of the sewer to direct the growth, which is very laudable. 7 . Relationship to Adiacent Communities The Village of Hugo recognizes the importance of planning coordination with neighboring municipa.lities and its comprehensive niai^} is compatible with - other municipalities 4f6Xi_ofkefWe.__P& revr,i _ cv _ i b fo d .v op . l an s�l� ��d i. t ?e- p1 i . • • IV. RECOMMENDATION • I . It is laudable for a community of the size of Hugo to take the initial step in planning to guide orderly development of the village. 2 . The Village should delineate more specifically areas with poor soil that are not suitable for development and define "buildable land" in the plan. 3. The village should make it clear the densities for the areas which will be sowered. 4 . The Villacie should refrain from using ilulti--family structures as "buffer. " • 5. 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Bluffton Severe Severe :-High water table Not suitable Edith• Slight* Slight Sli ht *pollution hazard Suitable - Freer Severe,vere Severe High water table • • Not suitable . . Y Ha den Moderate Moderate Clay soil Suitable Isanti e Severe Severe High water table Not suitable Knife LakeModerate Moderate Variable water table Suitable • prosthel j Slight* Slight *Pollution hazard Suitable Marsh Severe Severe High water table Not suitable • Severe Moderate Slow permeability Suitable with IVllldcd public sewer . • Slight* Slight Pollution hazard Suitable am�a I: _ M• a Severe Moderate Slow permeability Suitable with vY1el.a �.11lac . public sewer Santiago Severe Moderate M derate Slow permeability: Suitable with - . public sewer • - Slight* Slight Pollution hazard Suitable ScanclLa g - Slight ) Pollution hazard Suitable .- Withrow Slight* ZimmermanSlight* *Pollution Slight hazard Suitable 'These soils have severe limitations on slopes over 12 per cent - th=...tee . . . 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