HomeMy WebLinkAbout2009 COMPREHENSIVE PLANCity of Gem Lake Comprehens
City of Gem Lake, Minnesota
August 21, 2009
Table of Contents
1.0 City of Gem Lake Comprehensive Plan Summary .................................................... 1
2.0 Use of the Plan ...................
3.0 Community Development: Trends and Detriments ................................................. 5
Table 3: Population Trends and Projections for Gem Lake and Contiguous Governmental
Units
Table 3.1: Selected Characteristics of the Population for Gem Lake and Contiguous
Governmental Units
Table 3.2: Existing and Projected Population, Households, and Employment in Gem Lake
Table 3.3: Selected Characteristics of the Population for Gem Lake and Contiguous
Governmental Units - 2000
4.0 Plan Assumptions, Goals, and Issues.........................................................................
5.0 Land Goals and Policies..............Is
.....
Figure I: Existing Land Use Map (2008)
Table 5: Future Land Use Acreage Breakdown
Figure 2: Future Land Use Map
Table 5.1: Residential Land Availability
Table 5.2: Existing and Planned Land Use
Figure 3: Gem Lake Example Plan Subzones
Figure 4: Gem Lake Example Concept Site Plans
6.0 Transportation Plan ...................................................... .............................................. 33
Table 6: Inventory of Roads, Streets, and Highways
Figure 5: Roadway System Map
Table 6.1: Summary of Existing Road Mileage by Jurisdiction & Functional Classification
Figure 6: Transportation Analysis Zones (TAZ) Map
7.0 Sanitary Sewer System Plan....................................................................................... 41
Figure 7: Sanitary Sewer Comprehensive Plan Map
Table 7: Projected Wastewater Flows (2007-2030)
Table 7.1: Estimated Future Sewer Flows
8.0 Water Supply System Plan.........................................................................................49
Figure 8: Water Supply Comprehensive Plan
9.0 Housing Plan.................................................................................................................52
10. Local Water Management Plan................................................................................. 54
11. Community Facilities and Services Plan...................................................................55
12. Park and Open Space Plan......................................................................................... 57
Figure 9: All Addition and Changes to Regional Park System Plan
Figure 10: Map of Gem Lake with Regional parks and Trails in the City & Adjacent to the
City
13. Implementation.........................................................
Capital Improvement Plan
2009 Short Elliott Hendrickson Inc.
SEH is a registered trodernork of Short Elliott Hendrickson Inc.
table of contents
1.0 City of Gem Lake Comprehensive Plan Summary
This comprehensive plan covers the following:
• Chapter 2, "Use of the Plan," outlines the purpose of this document, which is
intended to guide long-term growth. It defines the roles of the Planning
Commission, City Council, and citizens of Gem Lake. It also covers compliance with
and amendments to the plan.
• Chapter 3, "Community Development Trends and Determinants," provides background
information on the city's past and present conditions. Elements covered are
geographical setting, natural features, population growth and characteristics,
employment, economic base, region -serving facilities and land development. The
purpose of the chapter is to determine the current status of Gem Lake, and where
the City may be headed. The chapter identifies possible resources that may be
available and those that should be preserved.
• Chapter 4, "Plan Assumptions, Goals, and Issues," covers the assumptions that the plan
is based on, the goals that have been established and the principal issues that must
be faced.
The goals relate to a "vision" of Gem Lake's future. They stress the preservation of
the "small town" character and natural environment of the City.
• Chapter 5, "Land Use Goals and Policies," divides the city into planning areas,
describes each area, and identifies specific land use policies for each.
• Chapter 6, "Transportation Plan," describes existing roadways, as well as
transportation issues that face Gem Lake residents. Policies to guide the future
development and maintenance of the transportation system are covered.
• Chapter 7, "Sanitary SeoerPlan," describes the City's overall approach to sanitary
sewer services, including goals and policies. The current sanitary sewer and possible
future extension of services are summarized here. The ordinances which regulate
individual sewage treatment systems (Ordinance 46 and 61), and the operation of
the municipal sanitary sewer system (Ordinance 64) are also covered.
• Chapter 8, "Water Supply Plan," examines City options regarding its water supply now
and in the future. The need for conservation and emergency plan procedures are
covered.
• Chapter 9, "Housing Plan," describes the current housing situation within the City.
Census data is summarized. This chapter also includes a list of goals and policies to
guide the future housing mix (quantity, quality, density, and type).
• Chapter 10, "Local Water Management Plan," identifies goals and policies that relate
to the storm water management system.
• Chapter 11, "Community Facilities and Service Plan" covers the current status of various
community facilities and service arrangements. Police and fire protection, road
maintenance, professional assistance, municipal building, public schools, health
facilities, and outdoor recreational facilities are dealt with.
• Chapter 12, "Parks and Open Space Plan" outlines current parks and open spaces, as
well as regional facilities serving Gem Lake.
• Chapter 13, "Plan Implementation," covers the official controls that are currently in
place, as well as developing a Capital Improvement Plan.
SEH1.0 city of gem lake comprehensive plan summary ( page I
2.0 Use of the Plan
Irlurpose of
The Gem Lake Comprehensive Plan has been prepared with the primary purpose of
guiding the long-term physical development of the City. This includes investments in
both privately and publicly owned resources. The City Planning Commission and City
Council have both recognized that investments in physical facilities within Gem Lake
are usually long-term fixed assets that establish the development character of the City
for many years. Accordingly, this document has been prepared to firmly establish the
manner in which citizens and their elected and appointed representatives wish the
City of Gem Lake to develop.
This plan document is the fourth Comprehensive Plan prepared for the City. The first
plan was prepared in 1962, but was not officially adopted by the municipal
government. A second plan was prepared in 1978, and revised in 1982 to meet
Metropolitan Council (hereafter referred to as the Met Council) approval, and the
third plan was completed in 1997.
This plan draws freely upon the proposals of the 1997 plan, but incorporates more
recent development trends within Gem Lake and in the immediate vicinity of the City.
It also introduces a new mixed use planning area to the City. New goals and policies of
the City are also established. This plan supersedes all of the contents of the 1997 plan
document.
The Comprehensive Plan represents the collective position of the City Planning
Commission and the City Council at the time of its adoption. While consultant
assistance was sought in the preparation of this plan, the actual recommendations and
policy statements represent solely those of the City Council, the Planning Commission
and, to the maximum extent possible, the citizens of Gem Lake.
While the plan is intended primarily as a policy document with the main objective of
guiding the orderly physical development of the City, the plan should not be
considered a detailed program for the implementation of City policies nor should it
be considered a regulatory device for accomplishing this end Rather, it is expected
that all plan procedures and regulatory devices legally available to the City will be used
in accordance with the provisions of the plan. The general time frame of the plan is
approximately 15 to 20 years, at which time it is anticipated that most, if not all, land
holdings within Gem Lake will be committed to some form of urban development.
Use of Plan by the City Planning Commission
The Planning Commission of Gem Lake is a three -member body appointed by the City
Council of Gem Lake. Members of the Commission serve at the pleasure of the City
Council. They may be reappointed.
Specifically, with regard to the Comprehensive Plan, the Planning Commission has the
following major responsibilities to:
• Periodically review (not less than biannually) and make suggested additions and
amendments to the Comprehensive Plan
.S . H 2.0 use of the plan I page 2
• Assure that all provisions of the City's development control ordinances (or
proposed amendments or additions to these ordinances) are in accordance with the
principles of the plan
• Review proposed public capital investments of the City of Gem Lake to determine
their consistency with the Comprehensive Plan
• Review proposed private capital investments within Gem Lake to assure that they are
in accordance with the principles and proposals of the plan
While the Planning Commission's responsibilities are primarily advisory — the City
Council has prime authority in carrying out the plan's features — the Planning
Commission nevertheless is considered to be the City's primary body in terms of
making explicit interpretations of the plan's stated proposals.
Use of the Plan by the City Council
The City Council is a five -member body directly elected by the citizens of Gem Lake.
Council members are elected to four year staggered terms. The Mayor is also elected
to a four-year term. As the primary policy making body of the City of Gem Lake, the
Council has the following principal responsibilities in relation to the Comprehensive
Plan to:
• Help ensure, to the maximum extent possible, that the policies contained within
the Comprehensive Plan document represent the viewpoint of the citizens of the
community
• Attempt to make incremental policy decisions in normal council deliberations that
are consistent with the plan's provisions
• Make public capital and related expenditures consistent with the principles of the
plan
• Exercise the ultimate review and adoption of all original plan provisions and
amendments to the plan forwarded to the Council by the Planning Commission.
Relationship of Other Municipal Bodies and Citizens to the
Plan
Beyond guiding the actions of the Planning Commission and the City Council, the
plan is designed to be an educational device. It covers the unique assets, liabilities, and
key development issues facing the City in the coming years. Citizens interested in
interpretations of the provisions of the Comprehensive Plan, or revisions to it, are
encouraged to meet with the Planning Commission at its regularly scheduled sessions.
Compliance with the Plan
The Comprehensive Plan for the City of Gem Lake is designed to be more than a
mere document spelling out general City policies. It is intended as a decision-makin
aid for guiding the expenditure of public capital funds and establishing the
underlying rationale for developing codes and ordinances, which more specifically
control private development within the City. The Comprehensive Plan is the guiding
document of zoning.
Minnesota State Statute 462.356 (Subdivision 2) further spells out required
compliance with the plan where public capital investments are involved:
2.0 use of the plan I page 3
"After a Comprehensive Municipal Plan or Section thereof has been recommended by the
Planning Agency (the Gem Lake Planning Commission) and a copy filed with the governing body
(the Gem Lake City Council), no publicly owned interest in real property within the municipality
shall be acquired or disposed of, nor shall any capital improvement be authorized by the
municipality or special district or agency thereof or any other political subdivision having
jurisdiction within the municipality until after the Planning Agency (City Planning
Commission) has reviewed the proposed acquisition, disposal, or capital improvements and
reported in writing to the governing body (City Council) or other special district or agency or
Political subdivision concerned, its findings as to compliance of the proposed acquisition, disposal
or improvement with the Comprehensive Municipal Plan. Failure of the Planning Agency to
report on the proposal within 45 days after such a reference, or such other period as may be
designated by the governing body (City Council), shall be deemed to have satisfied the
requirements of this subdivision. The governing body (City Council) may, by resolution adopted
by two-thirds vote, dispense with the requirements of this subdivision when in its judgment it
finds that the proposed acquisition or disposal of real property or capital improvement has no
relationship to the Comprehensive Municipal Plan. "
Amendments to the Plan
The Comprehensive Plan for the City of Gem Lake is designed to be amended as the
City grows and changes. The City Council provides authority to the Planning
Commission to conduct an annual review. Any amendments to the Comprehensive
Plan beyond an editorial level will be executed only after a public hearing. This
hearing must be duly advertised in the officially designated newspaper of the
municipality at least ten days prior to the hearing. Any amendments to the plan can be
accomplished by a 2/3 majority vote (of the members of the City Council).
Amendments must be formally submitted to the Met Council for review and will be
placed on file with the Council as well as with all governmental units with boundaries
contiguous to the City of Gem Lake.
2.0 use of the plan I page 4
3.0 Community Development: Trends and
Detriments
The City of Gem Lake has many unique features that should be considered when
developing a comprehensive plan. Physical development within the City, its natural
resources, people, economy, and governmental plan must be placed in context with
the larger metropolitan area. The communities in the immediate vicinity should also
be given special attention. The following subject areas impact the City's plan:
Creation of Gem Lake
The City of Gem Lake was created through a referendum conducted in 1959. The City
was one of several municipal jurisdictions, which was incorporated during the 1950s,
in response to a rapid increase in urbanization pressures. In addition to the City of
Gem Lake, the municipalities of Little Canada, Maplewood, North Oaks, Shoreview,
and Vadnais Heights, all within a five mile radius, were incorporated during that time
frame.
Geographical Setting
The City of Gem Lake encompasses a land area of approximately 725 acres in the
north central portion of Ramsey County. The City is located approximately seven
miles north of the central business district of St. Paul, and approximately 11 miles
northeast of the central business district of Minneapolis. Gem Lake is bounded on the
north by White Bear Township. The City of White Bear Lake generally bounds the City
on the east. Vadnais Heights bounds the City partially on the east, entirely on the
south and west, and partially on the north. The northern and eastern boundaries of
the City are well defined by the rights -of -way of the Burlington Northern Santa Fe
Railroad. Most of the southern boundary of the City is also County Road E. The
western border of the City is also Labore Road. In proximity to the City's western
border is I-35E. U.S. Highway 61 cuts through the southeastern portion of the City.
Natural Features of Gem Lake
The natural environment of Gem Lake is unquestionably of a very high quality, the
preservation or enhancement of which should be considered as the City more fully
develops.
Topography
The topography of the community is generally rolling, exhibiting glacial morainic
surface features. Elevations vary approximately 90 feet (from 920 feet to 1,010 feet
above sea level). The greatest elevation variations are in the west central and
northwestern portions of the City, where there are several areas of higher elevations.
Virtually, all steeper slopes over 10 percent grade are also in this portion of the City.
The northeast and southern portions of the City range from gently rolling to flat.
Surface Water and Drainage
Most of the City of Gem Lake lies on a low plateau more than 950 feet above sea level.
This plateau drains north, west, and south. Since Gem Lake is in a relatively high
elevation with respect to surrounding lands, no permanent streams exist within its
boundaries. However, as is typical of glacial landscapes, much of the municipality is
J imperfectly drained. Much of the surface water currently drains into low lying
SEH3.0 community development. trends and detriments I page 5
depressions with no surface outlets. The largest of these depressions is the water body
called Gem Lake which covers approximately 38 acres including its attendant
wetlands. Much of the central portion of the City drains into this water body. The
second largest area of standing water is a pond covering about six acres in the
northeastern portion of the City. Most of the lands north of the Gem Lake Drainage
Area and south of Goose Lake Road drain into this surface feature. There are many
other smaller pockets of intermittent and permanent surface water storage areas
scattered throughout the municipality.
Soils
Most surface soils within Gem Lake are glacial tills. Consequently, the character of
soils can vary significantly in a relatively small area. Gravel deposits displaying course
soils are located in knobs in the northwestern portion of the City. In contrast, fine
sediments are located in the Gem Lake and associated wetland area not far away.
Overall, the soils might be characterized as medium to fine in all but the knob areas,
and in the northeastern area of the City where coarser soils predominate.
Vegetation
Much of the City is significantly wooded, especially in the central portion around Gem
Lake. There are also extensive stands of trees in the northwestern portion of the City
along Goose Lake Road.
Population Growth of Gem Lake and Vicinity
Gem Lake is located in the northeast portion of the Minneapolis -St. Paul metropolitan
area, which has experienced very rapid urbanization. This area reached the
population "take -off stage during the 1950s, accelerated during the 1960s and has
since stabilized.
The populations of the cities of Gem Lake and White Bear Lake have witnessed a
slight decrease in population from 1990 to 2000; while the City of Vadnais Heights and
White Bear Township have increased substantially in the same time period (refer to
Table 3).
Table 3 - Population Trends and Projections for Gem Lake and Contiguous
Governmental Units
Change
Change
Govt. Unit
POP.
POP.
2000
est.
est.
est.
2030
Gem Lake
439
419
0
490
561
652
56%
Hs
Heights
11,041
13,069
18%
13,800
14,300
16,800
22%
White Bear
Lake
24,642
24,325
-1.3%
27,200
27,850
27,950
15%
White Bear
Twnshp
%424
11,293
20%
13,100
13,500
13,500
20%
Current and future population trends as estimated by the Met Council indicate that
the populations of the Cities of Gem Lake and White Bear Lake will grow from the
year 2000 to 2030 (55 percent and 15 percent respectively). While Gem Lake's
3.0 community development. trends and detriments I page 6
percentage of growth is the most significant when viewed against its neighbors, the
actual number of people added is low in comparison.
To date, low density residential areas have been prevalent in the City. In addition,
much of the City is already developed. Therefore, it is expected there will be added
development pressure for greater density on currently undeveloped or underutilized
properties.
Table 3.1 summarizes selected characteristics of the population of Gem Lake and
adjoining municipalities.
The median age of Gem Lake residents is 37.5, which approximately two years older
than the U.S. average of 35.3. Very similar is the age of both the City of White Bear
Lake and White Bear Township residents, with the median age being 37.4 and 37.5
respectively. However, the City of Vadnais Heights is much closer to the national
average at 35.9 years of age.
The 2000 median family income level in Gem Lake ($82,909) was the highest of the
adjacent communities. White Bear Township was the next closest at $79,171.
Approximately 5.9 percent of the population within Gem Lake was viewed to be below
the poverty line as defined by the 2000 U.S. Census. This is an increase over the 1990
level of 2.3 percent. This poverty line percentage in Gem Lake is higher than some
adjoining communities. For instance, only 2.8 percent of citizens in White Bear
Township live below the poverty level, with the highest percent of nearby populations
below the poverty line being 4.4 percent (City of White Bear Lake).
Table 3.1 - Selected Characteristics of the Population for Gem Lake and Contiguous
Governmental Units
Employment • Economic;
The City of Gem Lake has more job opportunities than the population could
reasonably be expected to support. The nature of commercial development and
employment opportunities is generally geared to a trade area much larger than Gem
Lake. Auto dealerships are the dominant commercial enterprises with `Highway
Service" establishments, such as automotive or marine accessories or repair services
constituting a large share of remaining commercial activity. Due to the City's small
population, there is very little in the way of commercial development at this stage of
the community's development geared to serving the resident population.
3.0 community development: trends and detriments I page 7
Within in the last ten years, region serving facilities have continued to improve and
expand in ways that help to shape, and sometimes accelerate development in and
around the City of Gem Lake. Examples include the following:
• The interstate highway system located in close proximity to Gem Lake has been
expanded to accommodate an ever increasing traffic volume. Interstate freeways I-
694 and I-35E come together in the area, locating Gem Lake close to a major
freeway interchange, with nearby on and off ramps. The two freeways are now part
of a huge renovation project, centered near Gem Lake, which is called "unweave the
weave." This renovation is design to allow a greater number of drivers to safely use
the highways each day.
• Two large regional shopping malls now serve the area, Maplewood Mall, located
approximately two miles away, and Rosedale Mall in Roseville, located
approximately seven miles away. Both malls have extended strip mall facilities
surrounding them, making each a regional shopping district for the area.
• Several smaller but equally as important retail shopping areas have reached fruition
in the area. The include but are not limited to the discount shopping area located
at the 35 E and County Road E intersection, which includes a Target, a Wal-Mart
and other assorted facilities; and the charming downtown White Bear Shopping
area, which has undergone a facelift in the past decade.
• The City of Maplewood now plays host to an extended health care zone about five
miles to the south of the City of Gem Lake surrounding St. John's Hospital, which
includes a large number of doctors' offices and healthcare clinic and facilities.
• Metropolitan trunk sewers have been expanded north beyond Gem Lake. This
provision of major trunk interceptors has made larger scale development possible in
the areas between the Cities of White Bear Lake and Forest Lake.
• The City of Vadnais Heights has located its city hall, fire department and several
office complexes just to the west of the City of Gem Lake, which has created a city
center feeling to the area. This has also led to the building of two nearby hotels at
the intersection of County Road E and I-35E.
Table 3.2 - Existing and Projected Population, Households, and Employment in Gem
Lake
Change
iiP
1
1970
1990
2000
2010
2020
2030
2030
Population 305
216
439
419
497
575
658
56%
Households 78
54
140
139
174
210
245
76%
Employment —
250
320
548
720
840
870
59%
Employment/
Population —
1.16
0.73
1.31
1.64
1.87
1.78
—
Ratio
3.0 community development: trends and detriments I page 8
SEH
Land Development in Gem Lake and Vicinity
Residential Development
Gem Lake residents are overwhelmingly housed in single-family owner -occupied
homes (79 percent of dwelling units; refer to Table 3.3). The adjoining communities
range from 69 to 86 percent single-family owner -occupied homes. Housing values are
very similar in Gem Lake and White Bear Township ($158,400 to $159,600). The
remaining two communities are lower, at $130,400 and $143,800.
Table 3.3 - Selected Characteristics of Housing for Gem Lake and Contiguous
Governmental Units - 2000
Commercial Development
There are several areas of commercial development in and around Gem Lake. The
Maplewood Mall has significant development, as does Downtown White Bear Lake,
Vadnais Heights, and the Rosedale Center. There is limited commercial development
in the "Hoffman Corner's" area of Gem Lake. There are also many auto dealerships in
this area.
Office and Other Employment Concentrations
There is a limited amount of office development in the immediate vicinity of Gem
Lake. These are small concentrations in Vadnais Heights and in the downtown areas
of White Bear Lake and North St. Paul. The largest concentrations of office space near
Gem Lake are in the central business district of St. Paul, the Midway District of St.
Paul, and in Roseville, near the intersections of Snelling and Highway 36.
Industrial Development
There are no concentrations of industrial development within Gem Lake. However,
within a five -mile radius of the City, there are some concentrations in Little Canada,
Maplewood, North St. Paul, and Vadnais Heights. Most significantly, the abutting
governmental units of Vadnais Heights and White Bear Township have planned
extensive amounts of industrial land adjacent to Gem Lake. The White Bear Township
plans industrial development abutting Gem Lake's northern boundary; Vadnais
Heights plans industrial development beginning a few hundred feet south of Gem
Lake's southern boundary.
Public Open Space and Recreational Areas
There are no publicly owned open spaces or recreational areas within the City of Gem
Lake at this time. There is a commercial golf course located in the northeastern
portion of the City that is expected to remain a golf course for the purpose of this
planning timeframe.
3.0 community development: trends and detriments I page 9
Within the surrounding area, substantial amounts of open space or recreational areas
exist, including the Tamarack Nature Center and the Bald Eagle -Otter Lake Regional
Park, enormous parks located approximately one mile north of Gem Lake in White
Bear Township. Approximately two miles to the west are substantial forest preserve
lands owned by the City of St. Paul Water Utility and being developed by Vadnais
Heights as parkland. In addition, one mile to the southeast of Gem Lake is a large
community park, the Lakewood Hills Park, located within the City of White Bear.
Extensive walking/biking trails exist in the immediate area. For instance, there is a
trail that can be entered on Centerville Road in Vadnais Heights, which is located near
Gem Lake's western border, and a shorter trail located along County Road E near
Gem Lake's southern border, also in Vadnais Heights.
Comprehensive Plan and Development Characteristics in
Contiguous Municipalities
Due to the small size of Gem Lake, it is very important that the community monitor
and closely coordinate its development with the contiguous governmental units on its
boundaries. White Bear Lake and Vadnais Heights are the most developed of these.
Both cities exhibit a generally diversified development pattern. That portion of White
Bear Lake closest to Gem Lake is planned principally for commercial development.
The Vadnais Heights plan (based on the zoning map) calls for commercial
development along all but a small portion of the entire south and western portion of
the City of Gem Lake. White Bear Township is expanding an industrial district on
the northern border of Gem Lake.
3.0 community development: trends and detriments I page 10
4.0 flan Assumptions, Goals, and Issues
While an assessment of the current and projected characteristics of Gem Lake is
important, there is also a need to examine the assumptions, goals and issues upon
which this plan is based. Gem Lake's plan assumptions section explains the
geographic and economic context in which the plan was written. The City's goals
section provides the framework for policy proposals. Finally, the issues section of this
chapter presents the unique challenges Gem Lake faces in bringing this plan to
reality.
Plan Assumptions
It is assumed that:
• The economy of the Minneapolis -St. Paul metropolitan area will remain healthy and
that sub -regional population projections, as established by the Metropolitan
Council, will be reasonably accurate.
• The comprehensive development plans and physical development ordinances of the
contiguous local units of government will remain essentially as they are today.
• Additional shopping and employment opportunities within municipalities located
within a five -mile radius of Gem Lake will become available in reasonable
proportion to population increases.
• The major open space acquisition and development plan will be completed as
proposed by Ramsey County and the Metro Council.
• Facilities (such as roads, sanitary sewer and water) presently estimated by the Gem
Lake City Engineer and/or projected will be adequate for the projected population.
Community Goals
The following goals are established as the principal guidelines for the physical
development of Gem Lake. All policies, as presented in later chapters of this plan
document, should be considered supplemental to these basic goals that the residents
of Gem Lake desire to:
• Preserve and maintain a "small town' environment in a natural setting. Such an
environment should promote an atmosphere of quiet, relaxed living, with
maximum regard to maintaining openness of the physical environment as well as
preserving trees, water areas, grass lands, and wetlands.
• Control the individual tax load of their property. The City Council has suggested
that this be done by guiding the development of additional residential and
commercial/business structures and facilities constructed in the city, so as to
increase the overall tax base.
• Create and maintain a high quality man-made environment. Good design,
combined with a common sense approach to aesthetics, will be valued. All new
residential and commercial development and auxiliary structures and signs should
be developed to high standards of design, beauty and efficiency. Furthermore, all
existing structures and auxiliary buildings and lands will be maintained to high
standards to enhance the quality of the life in Gem Lake.
-A
4.0 plan assumptions, goals, and issues I page I I
• Make plans for a commercial/business area in the city in the County Rd E/Hwy 61
intersection area to provide a "downtown" area of the city. An approximate
residential and commercial mix of 50/50 is envisioned for this area
• Have a low -profile government that provides only essential public services necessary
for their health, safety, and welfare. It is a further goal that these public services
should be obtained on a long-term contractual basis with surrounding
municipalities. It is hoped that these types of arrangements will help keep per capita
expenses low for both the residents of Gem Lake and surrounding communities.
• Cooperate with adjacent communities to achieve a compatible land development
and public service patterns.
Recognizing the small size of Gem Lake in relation to the substantial urbanizing
pattern in the vicinity, the City will place considerable importance on cooperation.
Gem Lake will work with other local units of government in encouraging the
compatible development of this sub -region of the metropolitan area.
Principal Issues
Gem Lake, like most public communities, face significant issues that need to be
considered as it develops. The issues listed below are the most critical and establish a
focus for many of the plan proposals. The succeeding chapters of this document
address these issues in more detail and demonstrate how they could affect plan
performance if not dealt with properly.
Density of Residential Development
Residential development density has been discussed in great length in Gem Lake. The
consensus of opinion calls for low overall density in the center of the City, which
includes areas surrounding the water body called Gem Lake. This area currently
includes large estate type and executive housing development.
This plan will make provision for higher densities on the periphery of Gem Lake in
mixed use areas. An approximate residential/commercial mix of 50/50 would be
sought. The goal of this plan is to have new residential development in the mixed use
planning area that averages at least three units per acre, to conform to Metropolitan
Council guidelines for land use. It is also important to note that mixed use areas
directly adjacent to existing low density development will be planned to fit in
harmoniously with these neighborhoods. An example would be to provide single-
family low -density homes as a buffer between the existing low -density areas and
planned mixed -use areas.
Commercial Expansion and Improvements — Mixed Use
Redeveloping the entire business area called `Hoffman's Corner" as a master planned
mixed use development is desired. This redevelopment should be done in
conjunction with similar plans for adjacent areas that are in City of Vadnais Heights.
This includes Vadnais Heights land parcels that are next to Hoffman Corners on the
same side of the street and on the opposite corner of the County Road E / U.S.
Highway 61 intersection.
Developing the open parcels of land on County Road E (entirely in Gem Lake) also
should be mixed use as specified above.
4.0 plan assumptions, goals, and issues I page 12
An up -grading of the existing structures in the commercial area along the east side of
Scheueneman Road between County Road E and U.S. Highway 61 would also be
encouraged.
Quality of New Construction and Maintenance of the Existing Man -Made
Environment
Consistent with the goal of having a high quality and aesthetic man-made
environment, the City of Gem Lake intends to help ensure that all development within
the community is based on high standards spelled out in implementation controls and
procedures. The City further intends to help ensure high quality maintenance of
existing man-made structures (e.g., facades, signage, etc.) by vigorous enforcement of
regulatory controls. These controls include, but are not limited to, subdivision,
zoning, housing, building code, sign, landscaping and tree preservation regulations. It
is anticipated that these measures may be resisted by some land developers,
community residents, and the business community. These resistances must be met,
however, so that a high quality environment can be maintained for all residents.
Provisions for Public Utilities
Sanitary Sewer: Sanitary sewers are being installed in the neighborhoods of the City
of Gem Lake as requested by the residents of a designated area and as piping and
facilities allow. The City of Gem Lake has a city sanitary sewer system presently serving
85 property owners. (The breakdown includes 35 business and 50 residential
customers.) These services are being installed in accordance with the sewer plan of the
city and its relevant ordinances. Sanitary sewers are being installed to help promote
the desirability of the residents to maintain a high quality environment.
In the areas of the City were sanitary sewers are not currently available; measures are
being taken to help ensure high quality, individual, and on -site facilities are installed
and regularly inspected.
Water: Public water system piping and locations where water might be obtained from
adjacent communities with public water systems are identified in the water plan. It is
the intention of the City that public water should be installed in all commercial and
retail business areas as soon as possible. Water mains will be proposed and should be
constructed as the roads in the City are up -graded. Hydrants for fire fighting should
be installed as part of each neighborhood expansion.
Storm Sewer: Storm sewers are not currently used in the City of Gem Lake except in
recent housing developments. All of the city streets presently have a "rural road
profile" which allows for ditches on each side to handle storm water. Storm sewer
systems will be needed in the commercial and retail business districts of the City as
they develop. Storm sewer water should be pre-treated as close a possible to the
source.
Engineered storm water systems will need to be installed in all commercial and
residential areas as they are developed or re -developed.
Storm water routed to the water body called Gem Lake needs to be pre-treated and
limited in quantity as Gem Lake does not have an outlet and large quantities of storm
water routed to this water body might cause flooding of land areas close to the lake.
SH4.0 plan assumptions, goals, and issues I page 13
Service Agreements with Cooperating Governmental Units
Cooperative service agreement with other municipalities is a cost effective and
efficient arrangement for smaller cities. Gem Lake will work to secure long-term
service packages, with these factors in mind. Currently, the City of Gem Lake
cooperates with White Bear Township for City Administration services.
Public or Semi -Public Open Space and Recreational Areas
There are no publicly held open and recreational spaces within Gem Lake at this time.
The only recreational facility within the City is a private golf course. It is City's desire
to have the golf course property remain recreational in nature. Although there are
recreational facilities in adjacent communities and in nearby regional recreational
facilities, there may be a need in the future for small neighborhood "parks" within
Gem Lake.
SEH4.0 plan assumptions, goals, and issues I page 14
5.0 Land Goals and Policies
Background
Gem Lake's Land Use Plan is a general guide to physical growth and development in
the City. Included in this section are policies for the appropriate timing and location
of development, as well as strategies for protecting the environment as the
development occurs.
This Plan will be used by the City to help evaluate the viability of various public
investments. Private development proposals will also be considered in light of the
overall goals of this plan. Therefore, it should be regarded as a general guide to the
legal regulation of land development that is controlled by the City of Gem Lake
Zoning Ordinance and Zoning Map, under the powers granted to the City by the State
of Minnesota.
Descriptions and maps that generally illustrate the location of future land use
classifications within the City of Gem Lake are covered in this chapter. The boundaries
of the use districts, as shown in the various illustrations, are approximate, and subject
to interpretation and adjustment, as necessary, to conform to actual field conditions.
The Met Council has designated Gem Lake as a "developed community" in the
"System Statement" which was used as a guideline for this Plan. This designation is
based on Gem Lake's location within the region, forecasted growth, availability of
infrastructure and existing land uses. The policies and information contained in this
land use chapter are based on policies and requirements for "developed communities"
in the Met Council 2030 Regional Framework Plan.
Policies and Objectives
Chapter 462 of Minnesota Statutes, Municipal Planning and Development, authorizes
cities to prepare and implement a comprehensive plan. This statute enables a
municipality to carry on comprehensive municipal planning activities to guide the
future development and improvement of the municipality. It further enables the City
to prepare, adopt, and amend a comprehensive municipal plan and implement such
plan by ordinance and other official actions.
In addition to Chapter 462, the Metropolitan Land Use Planning Act, Chapter 473,
requires local units of government (LUG) in the metropolitan area to either adopt or
update their comprehensive plans to make them consistent with certain standards and
policies as established by the Met Council. The intent of this state statute is to control
and guide urban development in the metropolitan area.
Gem Lake's 2008 Comprehensive Plan Update is written in response to the Met
Council's "System Statement" for the City, and takes into account new growth
projections and policies published in the 2030 Regional Development Framework.
This plan also provides updates in policies of other state and regional plans.
Existing Pattern of Land Use in the City of Gem Lake
Understanding present development in the City of Gem Lake is the key to creating an
appropriate future pattern of land use. The Figure I -Existing Land Use Map (2008)
illustrates the generalized pattern existing as of January 2008.
E5.0 land goals and policies I page IS
Current land use within the City of Gem Lake represents historical patterns that have
occurred since the City was formed in 1959.
CommerciallBusiness Land Use
The existing commercial/business land uses in the City of Gem Lake are concentrated
in and around the U.S. Highway 61/County Road E intersection. This includes two
large car dealerships, other auto/motorcycle oriented businesses, and a marine sales
retailer. A small neighborhood bar, a coffee shop, and a retail floral establishment also
exist in this area. There are approximately 43 acres in this category.
Single Family Residential Land Use
Existing single family residential land makes up the largest portion of the city and
ranges from:
• A 45 acre horse ranch located along Goose Lake Road
• Several single family estates around the water body called Gem Lake
• A large number of executive size houses on 2 to 3 acre lots in the Little Fox Lane,
Big Fox Road and the Hillary Farm Lane areas
• Several single family homes on 3/ to one acre lots along Scheueneman and Goose
Lake Roads
• Some single family homes on 1/4 to 1/2 acre lots in the northeast corner of the
City. There are approximately 486 acres in this category.
Institutional Land Use
The White Bear Montessori School is located at the southwestern corner of the City
and comprises the only public land use at this time. A Gem Lake City Hall is available
to the residents of the City in the northeast corner of the City and is part of a joint
project by White Bear Township and the City of Gem Lake. The City Hall is sited on a
lot in White Bear Township that is directly on the White Bear Township/Gem Lake
City Limits, and, as such, it is not identified on the following City of Gem Lake map.
There are approximately three acres in this category.
Park, Recreational, or Preservation Land Use
The recreational land use is comprised of the Gem Lake Hills Golf Course in the
northern portion of the City, which is privately owned and operated. The golf course
land is designated in existing land use plans as low -density residential, though re-
development has never been sought. The City of Gem Lake currently owns no
property for park, recreational or preservation areas. There are approximately 63
acres in this category.
Agricultural Land
A portion of the approximately 17 acre parcel on County Rd E is currently used for
macro -agriculture, though zoned for office or low density business development.
Undeveloped Land
The term undeveloped land refers to those parcels that currently have no structures
on them. Figure I -Existing Land Use Map (2008) on the following page illustrates the
existing land use in Gem Lake.
EH5.0 land goals and policies I page 16
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Future City of Gerd Lake Land Use thru 2030
In order to guide use in subsequent decades, the City of Gem Lake has prepared a
future land use plan. The plan brings together goals, policies, and recommendations
for future land use, and is intended to assist with decision making on a going -forward
basis.
Acreages for future land uses within Gem Lake are identified in Table 5 - Future Land
Use Acreage Breakdown. Although Gem Lake covers a total of 725 acres, only 653.6 is
reflected in the table below. The difference is acreage is consumed by roadways,
wetlands and open water.
Table 5 Future Land Use Acreage Breakdown
Land Use_ Category
Single Family - Residential
Acres
128.3
Single Family - Executive
213.4
Single Family - Estate
148.1
Gateway & Village Center Use (mixed use)
91.7
Open Space
6.2
Recreational Open Space
63.0
Public/Institutional
2.9
Total
653.6
NOTE. The balance of the total 725 acres that make up the City of Gem Lake are used for roads or occupied by the
surface of Gem Lake and other water bodies and wetlands in the city.
Future Land Use Classifications
Residential development will remain the primary land use with the City of Gem Lake.
The land for residential development is broken down into three main categories:
Single Family - Estate
This planning area within the City of Gem Lake encompasses most of the interior
residential land area in the City, located around the water body called Gem Lake. The
maximum density is I lot per 3 acres and minimum is 1 lot per 40 acres. This area is
not expected to be served by sanitary sewer prior to 2030.
Single Family - Executive
Roughly 33 percent of the total land area of the City is comprised of "Single Family
Executive" land uses. "Single Family Executive" land uses are found primarily in the
southwest and north central portions of the City. The minimum density is 1 lot per 2
acres and the maximum is 1 lot per 5 acres in this district. Sanitary sewer expansion is
not proposed in this area prior to 2030. The McNulty Development within this district
is already served with sanitary sewer. As noted further sanitary sewer expansion is not
proposed in this district.
Single Family - Residential
The last residential category is "Single Family Residential," and is primarily found
along the edges of the city, particularly on the east/northeast side and the
northwestern portion of the City. This district is fully developed with single family
homes and this plan does not project or assume any gains in housing units from this
planning area. The minimum density in this area is 1 lot per acre and the maximum is
5.0 land goals and policies I page 18
1 lot per 3 acres. Sanitary sewer expansion is not proposed in this area prior to 2030.
Homes along Scheueneman Road are already served with sanitary sewer. As noted
further sanitary sewer expansion is not proposed in this district.
Gem Lake Gateway and Village Center Special Planning District (Mixed
Use)
This area is located at and near to the intersection of County Road E and U.S.
Highway 61 where major transportation nodes and high sewer capacity are available.
Roughly 13 percent of the total land in the City is found in this District. It will be
guided for mixed use development, at an approximate 50/50 mix of residential and
commercial/business uses. The actual percentages may vary dependent upon the
project.
Subsequent development that is planned for "Mixed Use" under the Figure 2 -Future
Land Use Map will be developed in a tiered fashion, to minimize the visual feel of the
existing single family neighborhoods and preserve the value of existing homes. The
minimum density in this area is three units per acre and the maximum is six units per
acre. The Gem Lake "Gateway and Village Centers Vision Corridor Master Plan"
document provides more specific details on how this could be accomplished. The
Master Plan graphics are found on upcoming pages.
Open Space
The City has a small amount of land that could potentially be classified as future
"Open Space." This area consists of less than 1 percent of the total acreage of the City
It is located adjacent to U.S. Highway 61 and consists of passive open space. The land
is comprised mainly of wetlands and other small water features that could support a
hiking or biking trail along U.S. Highway 61. The City of Gem Lake projects that it will
acquire the property through direct purchase or by developer dedication during this
planning period.
Recreational Open Space
Approximately 60 acres of residentially zoned land is identified as recreational open
space within the City of Gem Lake. This area is currently used as a private golf course
and is located in the northern portion of the City. The course is abutted by "Single
Family Estate," "Single Family Executive" and "Single Family Residential" land uses. By
all accounts, the course is economically viable and is not projected to develop as a
different use during this planning period.
The City of Gem Lake desires that this golf course /recreational space use continue in
the future. Based on past zoning practices, the owner's wishes, and the City's likely
inability to purchase the golf course property at any point in this planning period, the
golf course will continue as a conditional use within residential zones, likely a mix of
"Single Family Executive" and "Single Family Residential," based on its location in the
City.
Publiclinstitutional Open Space
The White Bear Montessori School is located at the southwestern corner of the City
and comprises the only public land use at this time. No expansion of this area is
expected.
r,rR
E5.0 land ,goals and policies ( page 19
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Land Available For Development
The land available for development by 2030 is reflected in Table 5.1 below. All of the
land covered by this table to develop for residential use consists of the "Gateway and
Village Center Vision Corridor" and the remaining fully sub -divided, but as of yet un-
built, areas within the "Single Family Executive" planning area shown on the future
land use map. Some of the land in this mixed use area is already developed,
necessitating redevelopment at a date that has yet to be determined. Between the two
projected areas of housing development, Gem Lake well exceeds the population and
housing stock growth projected in the Metro Council's System Statement for the City.
The plan also affords ample opportunities to exceed the affordable housing
allocations, particularly in the mixed use development area, which is oriented towards
the proposed transit nodes at U.S. Highway 61 and County Road E.
Table S. I - Residential Land Availability - Acreage and Population Projections for
Anticipated Growth Areas (2007-2030)
*For planning purposes only half of the developable land in the mixed -use area is planned for residential
development. The other half is planned for commercial development.
Gem Lake is classified as a "developed community" in the 2030 Regional Development
Framework. According to the Met Council, Gem Lake should focus on protecting
natural resources, ensuring sufficient public infrastructure, and developing transition
strategies to increase density and encourage infill development. It is important to note
that the Gem Lake "Gateway and Village Centers Vision Corridor" Plan addresses all
these goals. It will also increase the chances of connecting housing with shopping and
employment activities in a thoughtful and well planned manner.
The Regional Development Framework from the Met Council discusses the City's role
in implementing specific strategies developed communities may use to reach long-
term development objectives. These strategies include:
• Accommodating growth forecasts through reinvestment at appropriate densities
• Approving and permitting reinvestment projects that increase density and make
cost effective use of infrastructure
• Adopting ordinances that accommodate growth and use land and infrastructure
efficiently
• Supporting the conversion or reuse of under utilized lands in order to
accommodate growth forecasts
• Helping to ensure efficient use of existing infrastructure investments to meet
community needs
5.0 land goals and policies [ page 21
Planning for infill development, redevelopment, and adaptive reuse of structures to
diversify housing, connect housing and jobs, and integrate new development into
existing neighborhoods
• Encouraging preservation of existing neighborhoods and expansion of housing
choices within the city
• Adopting ordinances to increase life -cycle and affordable housing in mixed use
areas
Table 5.2 indicates projected development by category and estimated land demand
needed for implementation. This information is broken into five year increments
from 2010 to 2030.
Table 5.2 - Land Use in Five Year Stages - Existing and Planned Land Use fin acres1
Existing
Within Urban000
Single Family - Estate 285.5
148.1
148.1
148.1 148.1
148.1
Change
2000-
+
0
Single Family - Executive
0
157.4
176.4
188.4
200.4
212.4
75
Single Family - Residential
128.3
128.3
128.3
128.3
128.3
128.3
0
Mixed Use - Primarily Residential
0
17.5
25
30
35.3
44.3
44.3
Zoned R but undeveloped
C/I Land Uses
Commercial
113.9
48
75.6
28
1 41
25
0
20
0
14.7
0
-1 13.9
Office (zoned/undeveloped)
12
0
0
0
0
0
-12
Mixed Use - Primarily Comm/Office
Public/Semi-Public Land Uses
0
30.5
33.5
38.5
38.5
44.2
44.2
Institutional
2.9
2.9
2.9
2.9
2.9
2.9
0
Parks and Recreation
63
63
63
63
63
63
0
Open Space
0
0
6.2
6.2
6.2
6.2
6.2
Roadway Rights -of -Way
11.4
12.7
13.6
13.6
13.6
13.6
2.2
Utility
0
1
2
2
2
2
2
Subtotal
,. .
Wetlands
665
16
665 1
16
665 1
16
665
16
665
16
66 1Ondevel0
16
0
Open Water, Rivers, and Streams
44
44
44
44
44
44
0
Total
725
725
725
725
725
725
0
* For Mixed Use categories - include information regarding the estimated minimum and maximum housing
density ranges and acres/percentage of residential use.
Land Use Development Constraints
With the many natural resources in Gem Lake, there are also associated development
constraints. The City of Gem Lake is a significant natural resource area, including a
lake, wetlands, and hardwood forests. Care needs to be exercised in the design and
construction of any new development in the City. Sensitive areas should be protected
as open space. Master planning, cluster development, and similar land use concepts
should be used to minimize impacts on natural resources and maximize efficiency of
services.
E5.0 land goals and policies I page 22
Aggregate Resources
Demand for aggregate resources continues to grow in the metropolitan area. As local
resources become depleted, aggregate needed for urban development will have to be
imported from outside the seven -county metropolitan area. The City will permit gravel
mining operations where appropriate and consistent with the City's zoning ordinance.
It is important to note that the City of Gem Lake doesn't have any aggregate resources
and doesn't anticipate any in the future.
Solar Access Protection
Since 1978, the Metropolitan Land Planning Act has required communities to include
verbiage in their plans to protect access to direct sunlight for solar energy systems. The
purpose of this provision is to protect solar collectors from shading by adjacent
structures and/or landscaping.
The City of Gem Lake recognizes the value of solar access protection and energy
conservation in general; however, the community is experiencing limited new
construction in its urbanized area. In addition, while a considerable amount of new
development will occur throughout the City in the future, the application of this
provision will be difficult within the context of an established land use patterns and
natural topography. For this reason, the City will look beyond solar accessibility alone
and will address the conservation of energy in general, through its comprehensive
planning efforts.
Historic Preservation
There are not any structures or sites within the City that are listed on the National
Register of Historic Places or properties of State or local significance by the State
Historic Preservation Office (SHPO). The City will work with SHPO and local property
owners to take the appropriate steps to preserve any historic or cultural resources that
may be added or discovered in the future.
Land Use Coals and Policies
General Land Use Goals
• Protect and enhance the natural environment in the City of Gem Lake.
• Help ensure that all development and re -development contributes to a clear,
orderly, and harmonious pattern of design, guided by professional planners,
engineers, and designers.
• Preserve the large estate and executive lots in the interior of the City and surround
them with compatible smaller lot residential, open space, recreational and
business/commercial uses. These uses will connect housing with shopping and
employment opportunities wherever feasible.
• Provide a safe, healthy, and attractive residential environment, which offers a broad
choice of housing opportunities.
• Provide buffers using berms, trees, and other natural resources to insulate the
residential areas of the City from noise, light pollution, and traffic.
• Guide the development of an attractive special planning area around Hoffman's
Corner at U.S. Highway 61 and on County Road E for a mix of business,
commercial, retail, open space, and residential uses.
SEH5.0 land goals and policies I page 23
General Lana Use Policies
• At the community's ultimate development stage, the dominant share of total land
within the City of Gem Lake should be residential property.
• The City has provided detail in its zoning ordinances and subdivision ordinance on
both cluster development and similar land use devices, in order to help ensure
open space retention, reduce development costs, and efficient provision of utilities.
Incentives, such as density bonuses, are provided for well designed developments.
• It is the policy of the City of Gem Lake that substantial high density residential
housing shall be constructed as part of the re -development of the Hoffman's Corner
area.
• It is the policy of the City of Gem Lake to discourage all industrial land uses.
Extensive industrial development can be easily found in other nearby portions of
the metropolitan area.
• It is the policy of the City of Gem Lake to review proposed institutional
developments on a case -by -case basis. It is possible that this development could be
permitted within other zoning areas in the city, if compatible with its overall land
use goals.
• It is the policy of the City of Gem Lake that it will support the viability of the present
golf course in the City as recreational and open space, and to try to acquire
additional public open space for passive viewing of other attractive areas.
• It is acknowledged that the character and natural environment of the City of Gem
Lake depends on the continuance of natural vegetation within and along its
borders. The City will encourage the continued planting of new and the
preservation of existing trees to sustain and improve the natural beauty of the
community.
• Aesthetic considerations for new and existing construction should be addressed
through better performance standards in the zoning ordinance and other
ordinances. Controls addressing signage, lighting, appearance, landscaping and
vegetative screening, among other items, will be defined in the City's zoning
ordinances. The natural character of the City of Gem Lake, as well as general quality
of life found here, is very important to residents. At the same time, the controls
should not be so restrictive that they stifle the creativity and individuality of planners
and designers, or place an unreasonable financial burden on the property owner.
Perimeter landscaping and screening of parking lots, loading areas, outdoor storage
and building mechanical units will be regarded as important components of
development. However, minimizing light and noise pollution will be important
considerations.
• It is important that the development of property which borders other communities
be done in coordination with these communities. There is now a need for dialog
and coordination of plans with the City of White Bear Lake, White Bear Township
and the City of Vadnais Heights.
• Discussion with adjoining communities to facilitate cooperation and sharing of
existing public utilities, such as water and sanitary sewer, should be initiated.
Extensions of such utilities from adjacent communities will likely provide the most
cost effective method of delivering these utilities to the City of Gem Lake. Each of
these adjacent community's services could be used in selected portions of the City.
E5.0 land goals and policies I page 24
Potential joint power agreements with the City of White Bear Lake, White Bear
Township and the City of Vadnais Heights may result from the initiation of
discussion by Gem Lake.
• The review of conditional or interim use permits or re -zonings of particular areas of
the City must take into account impacts on adjacent uses, air and water quality,
traffic generation, public safety and health, aesthetics and economic effects.
• Wildlife and natural vegetation in the City adds to the quality of life in Gem Lake.
The wildlife and natural vegetation should be preserved and protected from over-
development.
• Additional protection to wetland areas and the water body called Gem Lake is
needed. The requirements for soil erosion and storm water controls are already
included in the City's zoning ordinance. Additional protective measures should be
placed on storm water that enters the Gem Lake water body, which has no outlet.
Both pre-treatment and rate controls will be needed to keep the Gem Lake water
body clean, and to prevent it from overflowing.
City Planning Area Policies
Beyond Gem Lake's general land development policies, an additional set of policies
has been established to more clearly delineate the type of development which is to be
encouraged within the various "Planning Areas." (refer to Figure 2 - Future Land Use
Map for details of these areas) The policies listed below are preceded by a brief
description of existing conditions in each planning area.
/ Gem Lake Gateway and Village Center Special Planning area (Mixed use)
The Gateway and Village Center planning areas in the City of Gem Lake are broken
up into five specific land areas, defined as follows:
• The southeast corner of U.S. Highway 61 & County Road E (Hoffman's Corner)
• The northeast corner of U.S. Highway 61 & County Road E
• The northwest corner of U.S. Highway 61 & County Road E
• A 17-Acre Parcel on County Road E (East County Rd E parcel)
• An 18-Acre Parcel on County Road E (West County Rd E Parcel)
The "Gem Lake Gateway and Village Center Special Planning Area" defines areas
where commercial, business, retail, office and residential uses could be constructed in
combination with each other. This would connect housing with nearby opportunities
for shopping, working and social interaction. Subsequent graphics and text sections
provide details on how these various uses could be successfully meshed within a mixed
use district.
Examples of possible layouts of the Mixed Use Gem Lake Gateway and Village Center
Special Planning area are on Figure 3 - Gem Lake Example Plan Subzones and Figure 4 -
Gem Lake Example Concept Site Plans on the following pages:
'SEM 5.0 land goals and policies I page 25
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General Gateway and Village Center Planning Area Details (Mixed Use)
The five Gateway and Village Center planning areas are shown on Figure 3 - Gem Lake
Example Plan Subzones and Figure 4 - Gem Lake Example Concept Site Plans on the
preceding pages. The colored areas on Figure 3 - Gem Lake Example Plan Subzones
indicate the suggested land uses (subzones) in each of these planning areas. These
subzones are designed to express a range of mixed uses including residential, small-
scale commercial, ground floor retail with offices and residential/rental above, with
residential building densities, transitioning from rural to urban conditions. The
subzones provide for allocation of building types, open space standards and design
guidelines. These subzones are intended to accommodate a diverse mixture of
building types and uses, housing choices and land use. The particular mix encouraged
in each subzone is based on the relative position of that subzone within the Gateway
and Village Center planning area.
Figure 4 - Gem Lake Example Concept Site Plans shows how structures might be placed in
the areas in the Gateway and Village Center mixed use area.
The subzones identified in Figure 3 - Gem Lake Example Plan Subzones are defined as
follows:
Neighborhood Edge. This subzone is intended primarily for lower density residential
development, and to act as a transition between new construction and existing single-
family detached structures on adjacent lands. This subzone will accommodate single-
family dwellings on larger lots, or more compact homes (sometimes called `Villas").
These villas could be placed either on larger lots or on compact lots with enhanced
buffers, shared with ancillary buildings and served from a front or side driveway.
Neighborhood General. This subzone is intended to accommodate single family
structures on compact lots or multi -family structures that look like individual large
homes. Garages will be served from an alley, or if from the street, to a turned garage
mass. Attached row houses, providing common side walls and vehicular access from an
alley or rear parking area, are also suggested.
Neighborhood Mixed -Use. This subzone is intended to establish a neighborhood
focus that is distinguished by civic buildings, small-scale commercial/business/office
and mixed use buildings, together with other residential buildings at higher densities
than exist in the "Neighborhood General" zone. This subzone will accommodate a
variety of activities and services within easy walking distance from homes, supporting
daily convenience shopping and personal service needs, and also providing
opportunities for public gathering and social contact.
Neighborhood Center. This subzone is intended for the most urban conditions
within all of the shown mixed use areas. The mixture of land uses emphasizes ground -
floor retail with offices and residential/rental above (as market acceptance matures),
and structures providing commercial space for medium and large —sized retailers.
Street frontages throughout this subzone should be pedestrian -oriented, and defined
by building facades at the back of the sidewalk.
Off- street parking is best provided in structures or located between large retailers and
perimeter arterials (U.S. Highway 61 and County Road E) . On -street parking could
also be included as a component of the total parking program.
,` 5.0 land goals and policies ( page 28
Note: Any long range Milan must be flexible enough to respond to changing market conditions.
Therefore, this plan recognizes that designations for all zones, except the Neighborhood Edge, may shift
up or down one level to accommodate community needs.
Each of the above five listed mixed use planning areas must be developed using a
"Master Plan" and, as appropriate, using the PUD process and conditional use
permits. The planning areas may be developed in stages, but must be guided by the
master plan as each stage occurs. It is important that the developers of adjacent
planning areas work together to provide continuity of design, utilities, roadways, and
uses.
The following general guidelines should be followed for the entire Gateway and
Village Center planning area:
• Each of these five planning areas is to be a master planned development/re-
development area of retail/service type businesses/offices, possibly including an
integrated community of mixed use residences. The residences should be used for
senior or other type of housing that would be compatible with, and use the services
provided by, the shopping/retail service/office center.
• Co-operation with the City of Vadnais Heights on directly adjacent parcels located
to the south of the first planning area will be necessary. These adjacent parcels
would provide part of a logical access point into this development. They are
adjacent to Willow Lake Road. This re -aligned access point could then allow for
roads to proceed north thru the development area to connect and line up with
Scheueneman Road at County Road E in the City of Gem Lake.
• The present Tousley Ford dealership could be evaluated as a "large -box" retail
structure for the mixed use land parcel Number 3 in the "Gateway and Village
Center Vision Corridor." There may be future opportunities to provide road
extensions from the adjacent parcel that would then allow access to other building
opportunities in the rear (north) of the current Tousley Ford store.
• Pedestrian and bicycle friendly paths should be planned in the mixed land use
parcels. This would provide shopping and social opportunities for residents living in
adjacent parcels.
• Municipal water and an upgraded sanitary sewer system need to be installed in all of
these mixed use planning areas. All businesses/offices/multiple use residences in
these planning areas should have fire protection sprinklers.
• Cohesive signage design will be required as part of the initial site plan. All signs in
this mixed use planning area should be similar in design and consistent in
appearance.
• Adequate "green areas" need to be provided in this planning area to increase the
pedestrian -friendly nature of the Gateway area.
• An engineered storm water system needs to be designed to gather storm water from
each of these planning areas. Adjacent areas may need to work together to provide a
conveyance system.
• The existing "border trees" along County Road E, and also along the railroad tracks
on the eastern City limits should remain in place, if possible, or be replaced with
j new trees and berms. This would insulate each planning area from the noise and
E5.0 land goals and policies I page 29
traffic coming from County Road E and adjacent industrial areas in Vadnais
Heights.
• The overall planned density of residential use in the Gateway and Village Center
zone should average at least one residence per 1/3 acre. If senior housing can be
staged in these areas, much higher densities may be possible.
Residential Planning Areas
The residential areas in the City of Gem Lake are defined as follows:
• "Single Family - Estate"
• "Single Family- Executive"
• "Single Family - Residential"
Details on these residential areas are Provided in the following sections.
Single Family - Estate Planning Area
This planning area comprises the residential use lots, all greater than 5 acres in size,
existing in the center of the City of Gem Lake. This land is generally gathered around
the north, west and south of the water body called Gem Lake. Some undeveloped lots
of this size also exist in various other areas in the center of the City. Most of these
areas are blessed with a wooded, rolling and varied topography. Access to these lots is
via Goose Lake Road, and a private road off of County Road E.
In response to these existing conditions, the following specific policies for this
planning area are as follows:
• The continuation of moderately low density residential development continues to
be encouraged in this planning area. It is possible to have some smaller lot
development in the future along the perimeter throughfares to provide diversity of
housing.
• Principle and accessory buildings shall be located in the "Single Family Estate" area
so to allow for possible future subdivision to "Executive" or "Single Family
Residential' lots.
• Engineered storm water collection/settling areas and discharge rate controls must
be added before storm water is allowed to leave this area.
• ISTS systems are not allowed within 150 feet of the shorelines of the water body
called Gem Lake, and its attendant wetlands.
• Municipal water should be extended into these areas, as feasible.
• Shoreline protection for the water body called Gem Lake, and its attendant
wetlands, must be strictly enforced.
• Housing maintenance rules shall be strictly followed to keep existing estate homes is
good repair.
Single Family - Executive Planning Area
This planning area consists of the following parts of the City:
• The housing development bordered by County Road E and Labore Road, and
served by City maintained Big Fox Road and Little Fox Lane
• The area called "Hunters Run," served by the private road called Hunters Run Road
and the private road running north from County Road E, which is owned by the
South Road Owners Association
tH5.0 land goals and policies ( page 30
E
• Lots north of County Road E, and served by the private road owned by the South
Road Owners Association
• Homes in the development called "Hillary Farm," located just west of Scheueneman
Road, and served by the private road called Hillary Farm Lane
Some of these areas have lots that are larger than two to three acres in size but contain
moderate cost single family homes.
In response to these existing conditions, the following specific policies for this
planning area have been established:
• The continuation of moderately low density residential development continues to
be encouraged in this planning area.
• Engineered storm water collection/settling areas and discharge rate controls will be
required before storm water is allowed to leave this area.
• If sanitary sewer service is not available, executive lots must be of a large enough
buildable size to support a well and an ISTS system, as well as space for a complete
backup ISTS system.
• Municipal water should be extended into this area, as feasible.
• Shoreline protection for the water body called Gem Lake and its attendant wetlands
must be enforced.
• Housing maintenance rules shall be strictly followed to keep existing homes in good
repair.
Single Family _ Residential Planning Area
This planning area comprises the following areas in the City of Gem Lake:
• Areas east of Scheueneman Road from U.S. Highway 61 North to the Otter Lake
Road. The homes on the private road called "Kahl Circle" are also included. One
double home is also now located in this area
• Areas west of Scheueneman Road from U.S. Highway 61 north to the "Hillary Farm"
Development, and from the northern boundary of "Hillary Farm" to Otter Lake
Road
• Areas west of Goose Lake Road between Labore Road and the Gem Lake Hills Golf
Course
• Areas northeast of the golf course along Goose Lake Road, and on both sides of
Otter Lake Road
• Areas along the private road that extends north of Scheueneman Road at its
intersection with Otter Lake Road
• The area along each side of Otter Lake Road
These areas have existing single family dwellings with lot sizes that vary from just over
one acre in size to 1/2 to 1/3 acre in size. These lots contain medium cost single family
homes. Most of the areas identified above are fully developed.
In response to these conditions, the following specific policies for this planning area
have been established:
The continuation of low density residential development continues to be
encouraged in this planning area.
5.0 land goals and policies I page 31
• If further residences are added in this area, master planning, clustering, and similar
concepts should be used to maximize the benefits from community resources, such
as municipal water and sanitary sewer.
• If sanitary sewer service is not available, lots must be of a large enough buildable size
to support a well and an ISTS system, as well as space for a complete backup ISTS
system.
• Municipal water should be extended into this planning area, as feasible.
• Natural buffers of plants, trees or berms are encouraged in areas that border
business and commercial zones in White Bear Lake or Vadnais Heights.
• Housing maintenance rules shall be strictly followed to keep existing homes is good
repair.
Park, Recreational, and Preservation Planning Area
An 18-hole golf course is presently located in the Single Family Executive planning
area. The private golf course (Gem Lake Hills Golf Course) now provides the only
semi-public open space in the City of Gem Lake and substantially enhances the feeling
of open space and natural environment treasured by the residents of the City.
In response to these existing conditions, the following specific policies for this
planning area are offered:
• Continued maintenance shall be required, under a conditional use permit, for the
grounds and structures located on the golf course, to maintain its high quality
natural environment.
• Golf courses shall be retained, as a lawful conditional use, in residential areas under
city zoning codes. The land of the golf course shall be mapped into one or more
residential zones base on compatibility with adjacent lands and prevailing
conditions when and if development occurs.
• The City of Gem Lake shall continue to explore options for acquiring true public
open or preservation areas, focusing on land which directly impacts the water
quality of Gem Lake itself.
5.0 land goals and policies I page 32
6.0 Transportation Plan
Most Gem Lake residents work, shop, and obtain entertainment and educational
services outside Gem Lake city limits. Therefore, the quality of the transportation
system is key to the quality of life for residents. It will be especially important as the
City grows, and will require close cooperation with other governmental bodies.
With this in mind, the City of Gem Lake recognizes the importance of the I-35E
corridor, and remains active as part of the I-35E "Unweave the Weave" Management
Team. The Transportation Plan of Gem Lake is also intended to enhance the natural
and man-made environments within, and bordering, the City limits.
The Existing Roadway System
The most important component of the transportation system within Gem Lake for the
foreseeable future will be the street and highway network. This network
accommodates both private and public motor vehicles. The functional classification
and jurisdictional responsibility for maintaining this system is summarized in Tables 6
and 6.1.
Arterials
The most heavily traveled arterial route through the community is U.S. Highway 61
which serves as a major artery connecting the Cities Gem Lake with White Bear Lake
and the more intensively developed portions of the metropolitan area to the south.
The highway connects with the Interstate beltway loop (1-494, I-694) around the Twin
Cities at a point approximately one mile south of City limits. The only other arterial
within the community is County Road E, which forms part of Gem Lake's southern
boundary. County Road E intersects with U.S. Highway 61 in the southeast portion of
Gem Lake, serves the southern portion of White Bear Lake to the east, and connects
with 1-35E approximately one mile west of the western boundary of Gem Lake. This
interstate highway is the only "principle" arterial near the City.
Collectors
Collector streets include Labore Road on the western boundary, Goose Lake Road,
located in a southwestern -northeastern orientation near the northern boundary of the
community, and Otter Lake Road located in the northeastern portion of the
community.
Local Streets
The remaining roads within the community can be classified as local, serving
principally adjacent land users. These local streets comprise approximately 50 percent
of the total roadway mileage within the community.
SE6.0 transportation plan I page 33
Table 6 - Inventory of Roads, Streets, and Hiehways
U.S. Highway 61
"A" Minor Arterial
State
.03
County Road E
"A" Minor Arterial
Ramsey County
0.9
Goose Lake Road
Collector
Ramsey County
1.4
Labore Road
Collector
Ramsey County
0.6
Otter Lake Road
Collector
Ramsey County
0.2
Scheueneman Road (N.)
Local
Gem Lake
0.8
Scheueneman Road (S.)
Local
Gem Lake
0.3
Hoffman Road
Local
Gem Lake
0.2
Tessier Road
Local
Gem Lake
0.1
Haven Road
Local
Gem Lake
0.1
Big Fox Road
Local
Gem Lake
0.4
Little Fox Lane
Local
Gem Lake
0.2
Unnamed private road
connecting County Road E to
residences to the north;
Hillary Farm Lane; Kahl Circle,
& Heritage Garden Road
Local
Private
1.3
Total
6.8
6.0 transportation plan I page 34
moo
I d—Ld%m I SIAM I I � mlw I � bm I Mvmhmbftbr�j KNELMME I mmmumom lem I SEN
H
Table 6.1 - Summary of Existing Road Mileage by Jurisdiction and Functional
Classification
Minor
jurisdiction Arterial Collector Local
State 0.3 — —
Total
0.3
% of Total
4
Ramsey County 0.9 2.2 —
3.1
46
Gem Lake — — 2.1
2.1
31
Private — — 1.3
1.3
19
Total 1.2 2.2 3.4
16.8
100
jurisdiction
Ramsey County currently maintains 46 percent of the total 6.8 miles of roadway within
Gem Lake (refer to Table 6.1) including most of the arterial, all of the collector, and
over half of local street mileage. Gem Lake maintains 2.1 miles (approximately 31
percent) of the total mileage. The remaining roads are under state or private
jurisdiction.
Public Transit
Gem Lake is located in transit market area III. This City is presently served by Lake
Area Bus which provides call -in service from 6:00 A.M. to 6:00 P.M. Monday through
Friday. Transfers are available from this service to mainline Metro Transit and
Northeast Suburban Transit bus routes.
In addition, for those who have disabilities, special transportation services are available
through the Lions Club.
Airports
There are no airports, proposed airport sites, search areas, or other related facilities
located in Gem Lake. The City is served by the Minneapolis -St. Paul International
Airport and the St. Paul Downtown Airport. In addition, a private, small aircraft
airport is located in White Bear Township, approximately five miles north of Gem
Lake.
The airports have no direct impact on the City of Gem Lake, and any development in
Gem Lake will have no impact on the regional aviation system.
The City Clerk/Administrator will notify the Federal Aviation Administration (FAA)
and the Minnesota Department of Transportation (Mn/DOT) of any structure to be
constructed within Gem Lake that may affect navigable airspace.
There presently are no structures in Gem Lake that are 200 feet or greater in height.
The existing zoning ordinance does not allow any sign or building to exceed 36 feet in
height.
While the height limitation of 36 feet does not apply to such structures as transmission
towers for commercial radio broadcasting station or television antennas, these would
both require special use permits.
6.0 transportation plan I page 36
SEH
Future Roadway System
Roadway Changes
The I-35E Corridor Study recommended roadway changes within Gem Lake and the
immediate area. The following information briefly summarizes the status of each
recommendation.
Completed:
• County Road E turn lanes at Lahore Road
• U.S. Highway 61 double left turn lanes at County Road E
In Process:
• Major redesign and rebuilding of the I-35E/I-694 intersection and commons area.
This project is called "Unweave the Weave."
Not Started (planned):
• Connection of White Bear Parkway and Labore Road
• Realignment of the Otter Lake Road/County Road F connection
Another change within the City has been the closure of the access of Scheueneman
Road on the north side of Highway 61.
A proposed change that will be based on future development is the installation of a
traffic signal at the intersection of County Road E and International Drive. This will be
coordinated with the City of Vadnais Heights and Ramsey County when area growth
dictates its necessity.
As with all roadway changes, the citizens of Gem Lake have expressed a desire for
quality design and construction that enhances rather than detracts from the existing
natural environment.
Traffic Forecast
Daily
Year 00
County Road E 19,000 24,000
U.S. Highway 61 24,000 35, 100
Year 2030 Daily Traffic Forecasts are from the Met Council Regional Traffic forecast Model
The following socio-economic date was input into the model concerning Gem Lake.
The City lies mostly within Traffic Assignment Zone (TAZ) 992, with small areas in 986
and 979. The area of this zone is shown in Figure 6 - Transportation Analysis Zones (TAZ)
map on the following page.
Gem Lake Socio-Economic Data
6.0 transportation plan I page 37
Transportation Analysis Zones (TAZ)*
l
Gem Lake
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are based on the Twin Cities Regional
0.1 0.05 0 0.1 0.2
Travel Demand Forecast Model. Local
Roads are from The Lawrence Group's
Street Centerline data. Community
Boundary, Stream, and Open Water
1148 TAZ Identification Number ------- Community Boundary
are from DataFinder.org
TAZ Boundary Stream
Some users describe TAZ's as Traffic
Analysis Zones or some other closely
Local Roads Open Water
related words. In principle, they refer
to similar transportation planning areas.
N
Metropolitan Council
Community Development
October 23, 2007
Roadway Consolidation and Maintenance
The City of Gem Lake has taken possession of several roadways which had been under
Ramsey County jurisdiction. This was done as part of the Functional Roadway
Consolidation Project now being implemented by the County and the State of
Minnesota. The roadways include that portion o£
• Scheueneman Road in the City of Gem Lake from its intersection with U.S. Highway
61 to the south to its intersection with Otter Lake Road to the north
• Scheueneman Road in the City of Gem Lake from its intersection with County Road
E to the south to its intersection with U.S. Highway 61 to the north
• Hoffman Road in the Hoffman's Corners area of the City of Gem Lake, from its
intersection with U.S. Highway 61 to the south to its intersection with Ramsey
County Road E to the north.
Transportation Policies
The following policies have been established by the municipal government of Gem
Lake to enhance the quality of transportation for citizens of the community:
• Gem Lake officially supports the recommendations of the I-35E Management Team.
A recent 1-35E Corridor study identified the need to establish arterial and collector
routes serving the northeastern metropolitan area. The relocation of Otter Lake
Road connecting it directly to County Road F and the connection of Labore Road
and White Bear Parkway can further this objective. However, Gem Lake's objective
of maintaining a rustic, natural environment will require attention to minimize the
impact that an increase in traffic may have on the City's road system and residential
neighborhoods.
• Gem Lake encourages the incorporation of parkway design criteria and the use of
natural landscape barriers in any reconstruction of arterial and connector routes.
(e.g., Labore Road/White Bear Parkway connection.)
• Further development of private roads serving more than one property will be
encouraged. This is consistent with the City's desire to maintain a low profile
government. However, the City should strictly oversee the development of any
private roads to ensure that City construction and design standards and
specifications are met.
• The basic arterial and collector road system of Gem Lake has been established.
Therefore, future streets should be designed to channel local traffic onto County
Road E, Labore Road and Goose Lake Road. Accommodating through traffic on
new streets will be discouraged.
• All future streets should be designed to discourage additional surface water runoff
into Gem Lake and its attendant wetlands. Gem Lake, and its attendant wetlands,
has no natural outlet. Therefore, additional storm runoff created by the impervious
surfaces of streets into this basin should be discouraged.
• The City of Gem Lake has limited need for public transit service due to planned low
density development. However, it will cooperate with adjacent communities to
secure improved bus service as needed along its minor arterial street system. Bus
service in other areas of the City will be discouraged consistent with its planned low
density and desired rustic environment.
E6.0 transportation plan I page 39
• Gem Lake officially recognizes that any development affecting navigational air space
within the community is subject to Minnesota Department of Transportation,
Aeronautics Division, and Regulations. The community will routinely consider such
regulations as part of the development review process.
• The operation of private airports, including heliports and seaplane bases, is
prohibited in Gem Lake.
Gem Lake encourages the future development of hiking/biking trails on the
Burlington Northern right-of-way along the eastern boundary of the City, and on
the Canadian National Railroad right-of-way along the northern boundary. The City
will work with adjacent communities and provide access to trails.
6.0 transportation plan I page 40
Figure 3.2 — Summary of Recommended Street Spacing for Non-IRCs
Arca or Typical Public- Street spacina
Category
Facility Rvictonal Primary
Secondary
I
Signal Spacing
Type Class Pull-Alovement
J
Intr-irm-0ion Intemectlon
4
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7.0 Sanitary Sewer System Plan
The City of Gem Lake currently owns and maintains a sanitary sewer system that
currently serves all of the businesses at the Hoffman's Corners area and a segment of
the residential area along Scheueneman Road north of U.S. Highway 61. The City of
Vadnais Heights supplies sanitary sewer services to the Tousley Ford property, the
Montessori School at the corner of County Road E and Lahore Road, and several
residences that neighbor the school.
Existing Sanitary Sewer System
The current system consists of approximately 13,400 Lineal Feet (LF) of sanitary sewer
pipe ranging from 8" to 12" in diameter of both vitrified clay pipe (VCP) and
polyvinylchloride pipe (PVC). There are approximately 65 manholes in the system.
There are no lift stations or forcemains within the existing system. Figure 7 - Sanitary
Sewer Comprehensive Plan map shows the City's current sewer system.
Currently the system discharges into the Metropolitan Council Environmental Services
(MCES) System in four locations as shown in Figure 7 - Sanitary Sewer Comprehensive
Plan. The system discharges into a combination of both the VH-423 Interceptor and
the 7122 Interceptor. Currently the Met Council does not have a metering station
near the city limits of Gem Lake.
The existing condition of the City's sewer system was evaluated in the fall of 2006 /
spring of 2007. A sanitary sewer system plan was developed in May of 2007 by SEH for
the City. This plan was developed based on the field inspections of manholes and a
closed circuit televised (CCTV) inspection of the pipes.
Projected Flows
Projected flows for the sanitary sewer system shown in Table 7 - Projected Wastewater
Flows (2007 2030) uses the data from the City's System Statement prepared in 2005 and
linear projections to estimate future flows. The projections were estimated based on
historical flow data and projected sewered housing and employment information. In
2006 the City's average sanitary sewer flow measured by MCES was recorded as 0.027
million gallons per day (MGD) and their current billing is 10 million gallons per year.
SEH....,. 7.0 sanitary sewer system plan I page 41
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I Gem Lake, MN 1 2 Apol.2008 1 651.490.2000 maln 1651.490.2150 fax 1 3535 Vatlnais Center Ddv I St. Peul, MN 55110 www.seM1inc.com ® 2004 5 EH
Table 7 - Projected Wastewater Flows (2007 - 20301
Year
2007
2010
2015
2020
2025
2030
Sewered
Population
125
154
301
448
492
536
Sewered
Households
50
70
137
203
343
482
Sewered
Employment
548
720
780
840
855
870
Average Annual
Wastewater
0.055
0.073
0.096
0.12
0.16
0.198
Flow (MGD)
Allowable Peak
Hourly Flow
0.22
.029
0.38
0.48
0.64
0.79
(MGD)
--rtows determined as follows: 75ga1/day Pierson population, 25ga1/day person employment & 600ga1/day-acre
commercial
Existing & Potential Sanitary Sewer Related Issues
To continue with the `rustic' feeling of the City in a natural environment and to
maintain the low -density development desired, the following shall be considered the
goals of the City of Gem Lake sanitary sewer plan:
• Zoning and lot sizes will be regulated to allow adequate space for onsite septic
systems in residential areas. Current rules require adequate space for a second drain
field on each residential tract, in case the first one fails.
• All onsite septic systems in the City are inspected bi-annually to insure the correct
operation of these systems. Inspections are performed by the City's contracted
inspector.
• A backup plan for providing a City operated sanitary sewer system has been
developed and will be put in place if necessary in any area of the City where onsite
septic systems cannot operate.
Within these goals the following specific items have been implemented:
• City-wide Sanitary Sewer System Plan was developed for the City in May 2007. This
plan provides for a potential municipal sanitary sewer connection for each part of
the City that could possibly use gravity flow sewer. This plan does require extensive
excavation and construction through some of the areas of the City.
Figure 7 - Sanitary Sewer Comprehensive Plan. illustrates possible extensions to the sanitary
sewer system of Gem Lake. Any expansions to the system would be connected to either
the Vadnais Heights system or the MCES belt line interceptors. The average daily flow.
of the existing connections to the public system is 0.027 MGD or 10 million gallons
per year based in the Met Council's current billing. With the future possible
extensions, the ultimate daily flow would be 0.239 MGD or 87.4 million gallons per
year. Table 7.1 - Estimated Future Sewer Flows illustrates estimated future sewer flows
based on the City's proposed zoning and land use. The anticipated flows from the
various sewer districts were determined by applying typical flow rates. For residential
areas a flow rate of 275 gallons per day per residential unit was used. For the
commercial / industrial areas a flow rate of 600 gallons per day per acre was used.
7.0 sanitary sewer system plan I page 43
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Inflow & Infiltration Reduction
The City of Gem Lake, like the many communities in the metropolitan area, has spent
considerable time and energy managing inflow and infiltration (I/I) within their
sanitary sewer collection system. The Met Council (MCES) has implemented a
surcharge program which is designed to encourage metropolitan communities to
reduce I/I entering their portion of the sanitary sewer collection system. However the
City of Gem Lake does not qualify for this program because of the size and small flows
generated by the city. While the City has not exceeded the pre -determined maximum
peak level established by MCES, it continues its effort to minimize I/I. The City has
prepared and is currently implementing an I/I program.
The I/I reduction program is used to isolate and prioritize sewer rehabilitation in the
sanitary sewer collection system, both on the public and private side of the system.
With this in mind, the City conducts both an annual cleaning and a regular closed
circuit television inspection. Gem Lake also continues to conduct a sewer
rehabilitation program, which includes follow-up inspections in areas with significant
I/I potential. The City should develop a program for lateral service inspection and
repair.
The City currently enforces its city ordinance (#64) that was developed to prohibit
illegal connections. The City also encourages voluntary compliance through public
education.
To reduce infiltration the City annually inspects manholes and repairs any
contributing to this problem. In addition to routine maintenance the City has also
adopted a plan to replace or repair sewer lines that are cracked and/or in need of
repair. The City's operation and maintenance plan was developed in May 2007. The
City's O & M plan can be found in the Sanitary Sewer System Plan.
Sewer Ordinances
The City of Gem Lake has enacted ordinances which regulate individual sewage
treatment systems (Ordinance 46) and the operation of the municipal sanitary sewer
system (Ordinance 64).
Ordinance 4 - ISTS systems
Ordinance 46 is designed to protect and promote the health, safety and general
welfare of the people of Gem Lake by regulating seepage discharges and the location,
installation, alternation, operation and maintenance and monitoring of all individual
sewage treatment systems (ISTS). Individual sewage treatment systems must be
installed in accordance to Chapter 7080 of the Minnesota Rules. The ISTS shall be
designed to receive all sewage from the dwelling(s), building(s), or other
establishment(s) served by the system, including laundry waste and basement floor
drainage. Surface, roof and foundation drainage and other storm water shall not be
allowed to enter any part of the system. Not more than one dwelling, commercial,
business, institutional, or industrial unit shall be connected to the same ISTS, unless
such multiple connections was specified in the application submitted and in the
permit issued for the system. No ISTS shall be installed or renovated on lands to which
public sewer service is currently available, without a system permit. Within the Urban
Service Area, as identified in a Met Council approved a comprehensive sewer plan,
SEH7.0 sanitary sewer system plan I page 46
developers will place any ISTS systems where they can later be most cost effectively
connected to the public sewer system, when it becomes available.
No preliminary plat shall be approved by the City of Gem Lake City Council, unless
the engineer makes a favorable recommendation regarding the ability of each lot to
accommodate a satisfactory ISTS. A system permit, obtained from the administrator, is
required for any installation or renovation of an ISTS. No building permit for any
building including the installation or renovation of an ISTS shall be issued until a
system permit for the involved facility has been approved.
There are currently 109 ISTS in operation within the City as of June 26, 2009. The city
ordinance provides for an inspection of all ISTS by a professional to take place every
other year. The City hires an outside consultant to perform this service. Computer
records are maintained as to which property owners have ISTS. At the time of the
inspection the inspector will make sure that the ISTS is in proper working condition.
The inspector will provide maintenance tips to the property owner to keep the system
in proper working condition. If the ISTS is found to be in need of repair, the
inspector will review the repair or replacement needs with the property owner. The
inspector will also notify the City for tracking and inspection of the repairs or
replacement which ever is required. All ISTS records are kept at the City.
The City of Gem Lake has instituted an inspection program for ISTS. The initial
inspection is to determine if installation or renovation has been accomplished in
compliance with Chapter 7080 of the Minnesota Rules and with the Gem Lake
Individual Sewage Treatment System Ordinance. The City's inspector shall inspect any
individual ISTS when a written complaint signed by two residents of the City of Gem
Lake is received.
It is the responsibility of the owner of any premises using an ISTS, for which a permit
has been issued, to provide for the periodic maintenance by a qualified septic system
company. Reports of the maintenance should be submitted to the administrator.
It is the duty of the administrator to create, update and maintain an accurate
inventory of each ISTS for which permits have been issued within the City of Gem
Lake. The inventory should include location, system description, renovation
description and maintenance reports. The City may inspect any system it deems
necessary as a result of the reporting program. The City, at cost to the land owner, has
each and every ISTS inspected every even year. Any system which fails the inspection
must be renovated or replaced. Ordinance 61 defines the bi-annual inspection and
maintenance routines.
Ordinance 64 — Municipal Sanitary Sewer System
Ordinance 64 is designed to regulate the operation of the municipal sanitary sewer
system. The ordinance contains language that does the following:
• Regulates connections to be made to the municipal sanitary system
• Establishes regulations as to type and kinds of waste that may be disposed of in the
municipal sanitary sewer system
• Prohibits the discharge of any type or kind of surface waters into the municipal
sanitary sewer system. Also prohibits the connection of sump pumps, rain leaders,
and passive drain tile to the sanitary sewer system.
• Prescribes rates and charges for sewage disposal services
SEH7.0 sanitary sewer system plan I page 47
• Provides for the issuance of permits for and supervision of all connections to the
municipal sanitary sewer system
• Prescribes certain materials and methods to be used for said connections
• Provides for licensing of sewer contractors
• Prescribes penalties for the violation of the provisions of this ordinance
The timing of the possible expansions would depend on funding and need. The first
priority would be to connect all commercial establishments to public sanitary sewer. A
second priority would be properties where soil or topographic conditions make the
installation of an ISTS difficult.
Goals and Policies
Goals
• Maintain the high quality natural environment
• Meet water quality standards
• Provide a sanitary sewer system that is cost-efficient to the City and which
encourages a fiscally responsible development pattern
Policies
• City to extend sewer mains as needed as shown in Figure 7 - Sanitary Sewer
Comprehensive Plan map. The first priority shall be commercial establishments. The
second priority will be areas where soil or topographic conditions limit effectiveness
of onsite sewage disposal systems.
• Onsite sewage disposal systems will not be allowed where there exists a service
limitation, such as wetness, low soil percolation and other unfavorable soil
conditions.
• Further written working agreements with Vadnais Heights and MCES will be sought,
as necessary, to coordinate required extension of sewage service to their systems.
• Appropriate on -site disposal regulations will continue to be enforced in those areas
not served by the centralized sanitary sewer system. Minnesota Department of
Health and Minnesota Pollution Control Agency (MPCA) standards for installation
of ISTS will be strictly enforced.
• The bi-annual inspection of all individual sewage treatment systems in the City will
be continued.
• Water pollution from onsite treatment systems will be minimized.
• All applicable state or federal requirements for sewage effluent will be met or
exceeded.
• Wastewater generation served by ISTS systems will be required by the City to
connect to the public system within one year of the time service is made available.
• A capital improvements program, which includes sewer system improvements, will
be developed.
• Minimum lot sizes adequate to provide for all expected improvements to ISTS
systems will be required. This will allow for the installation of two ISTS systems to
help ensure space for an alternate system or system expansion, in case of
inadequacy or failure.
• A continuing education program on the function and maintenance of ISTS systems
will be established.
• Outside funding sources for programs to locate and upgrade substandard wells and
ISTS systems will be sought.
SEH7.0 sanitary sewer system plan I page 48
SEH
•CMEMIMM
At present, there is no city-wide public water distribution system within Gem Lake.
Tousley Ford, in the Hoffman's Corners West area of the City, and the Montessori
School in the south west corner of the City currently receive their water supply from
Vadnais Heights. All other properties in Gem Lake, residential and non-residential,
obtain their water supply via private wells.
The City has a number of options with regard to its water supply. The first would be to
continue to rely on private wells. A second option would be to purchase water from
the Vadnais Heights, White Bear Lake, and White Bear Township water distribution
systems for all properties within Gem Lake. A third option would be to purchase water
for only the commercial properties.
Connecting to an existing municipal system would address a number of potential
problems. Water quality would be enhanced by connecting to a public system that
includes water treatment facilities. With private wells, there is the potential of
contamination and of the well going dry.
There are some steps that the City should undertake if it continues to primarily rely on
private wells for its water supply. For instance, a program should be set up to require
periodic testing of water from every well in the City to determine water quality. This
program could include steps to take in the event water quality fails to meet minimum
standards.
In addition, an educational program should be set up to promote water conservation
measures within the City of Gem Lake. Although each residence and business has its
own private well, it would be beneficial to the community to have some type of water
conservation program in order to maximize groundwater supply. It would be difficult
for the City to impose water conservation regulations on properties with private wells.
However, an educational program could recommend voluntary water conservation
measures to property owners. Space in the city newsletter could be devoted to
describing and/or recommending water saving techniques, devices and appliances
(i.e., how to cut down on water use, the best and worst times to use water outdoors,
etc.). The educational program could emphasize the value and importance of
conserving water, regardless of whether or not the City has municipal water.
An emergency preparedness/contingency plan should also be considered by the City.
Again, although the City of Gem Lake does not have a public water supply, it may be
in the City's best interest to be prepared in case of an emergency. One option would
be to adopt the emergency plan and consider policies of the water supplier.
The City should make arrangements with the adjacent neighboring communities to
obtain water from them for its citizens in case the groundwater supply ever becomes
contaminated. The City should also have a list of contacts available in case of an
emergency. It would also be helpful to make available to residents, steps that should
be taken in case of contamination to an individual's water supply.
Water Supply Policies
The following policies have been established by the municipal government of Gem
Lake with regard to the water supply for the citizens and businesses of the community:
8.0 water supply system plan I page 49
• The possibility of developing a centralized water distribution system within Gem
Lake will be considered. The system might either be developed based on a well
supply within Gem Lake or by attachments to the Vadnais Heights, White Bear Lake
or White Bear Township systems.
• Water service should be extended to each targeted area at the same time and in the
same priorities as the sanitary sewerage service, in order to minimize street
reconstruction and traffic disruption.
• The possibility of connecting only the commercial area of Gem Lake to the Vadnais
Heights, White Bear Lake, or White Bear Township water distribution systems will
be explored.
• The adoption of a mandatory water quality testing program for private wells will be
considered.
• An educational program promoting water conservation measures within the City of
Gem Lake will be developed.
• An emergency preparedness plan with regard to the water supply will be developed,
or the City will adopt the policy of the water supplier.
Proposed Water Supply System
Figure 8 - Water Supply Comprehensive Plan on the following page shows the City's
proposed water supply system, which includes supply from all three of the
surrounding communities. Due to the differences in the treatment systems performed
by the three communities, no two systems can be inter -connected. Therefore the City
water supply consists of three separate water main loops through the City.
E8.0
water supply system plan I page 50
I Gam Lek,, MN 1 31 March, 2006 1 1 651.490.2000 mein 1 651.490.2150 faz 1 3535 V,&W, Center Ddv, 151. NO, MN 55110 1 .—hi—.— 1 0 2004 1 5 E H
'�I.fll Housing Plan
SupplyHousing
The housing supply in Gem Lake is rather homogeneous. The 2000 census of the
population showed that there were 145 housing units within Gem Lake, with 139 of
those units classified as "single-family detached." Of those single-family detached
housing units, 130 of them were owner -occupied, and nine were renter -occupied.
There were also two multiple -family dwelling units within Gem Lake. Both of these
units were duplexes. The 2000 US Census showed that only six housing units were
vacant at that time.
The condition of housing within Gem Lake is generally good. Over half the homes in
Gem Lake have been built since 1970. A majority of the housing within the community
was built between 1970 and 1989. A total of 68 units were built prior to 1970, while 12
have been built since 1990, according to US Census Data.
The median value of housing in Gem Lake in 2000 was $159,600. A majority of the
housing was valued between $100,000 and $149,000. Only 17 housing units were
valued less than $100,000, while there were 21 housing units valued over $300,000.
Two units were valued between $500,000 and $1,000,000. The median gross rent in
Gem Lake in 2000 was $813 per month.
The 2000 census shows that there are 419 persons and 139 households in Gem Lake,
for an average of 3.01 persons per household. This compares to 3.14 in 1990. Due to
an aging population, smaller households have become a national trend.
The median household income in 2000 for Gem Lake was $64,167. Median family
income was $82,909. That compares to $41,994 and $50,046 respectively to the United
States.
Supply and types of housing in the City of Gem Lake are limited. Few are vacant or
available and almost all of the housing stock is classified as single family detached.
Virtually nothing in the way of multiple family buildings, (other than two duplex
units) senior or planned affordable housing currently exists.
More diverse housing options currently exist within the neighboring communities of
Vadnais Heights, White Bear Lake, and White Bear Township. While the planned
mixed use development near Hoffman Corner's may provide an opportunity for
senior and multiple family housing, Gem Lake also needs to explore region wide
efforts to provide for more housing diversity.
Overcrowding is not a problem in the City of Gem Lake. The majority of houses in the
City have three or more bedrooms, which meshes well with the average household size
of 3.01 persons.
Also, the cost of housing is not excessive as a percentage of household income. The
2000 census shows that median monthly owner cost is $1,210 with a mortgage and
$263 without a mortgage.
Almost 79 percent of the households spend less than 30 percent of their income on
housing costs. Median rent for non -owner occupied households is $813. All renters
spent less than 25 percent of their income on rent.
SH9.0 housing plan I page 52
11�
Although there are a great number of employment opportunities within Gem Lake,
few residents are also employed here. Of the 69 responses to the last residential
community survey, only seven residents stated that they or someone in their family
were employed in the City.
Housing Goals and Policies
The following goals and policies have been established by the municipal government
of Gem Lake with regard to housing:
• Continue to encourage low, to very low, density residential development within the
existing core area of the City.
• Encourage a better variety of housing by adopting wording in the zoning ordinance
allowing for different types of housing (townhomes, villas, row houses etc.) as
redevelopment occurs, and in the mixed use areas.
• Encourage the construction of more dense housing along the transit corridors of
County Road E and Highway 61. This is where all of the mixed use plan areas are
identified.
• Consider participating in the Metropolitan Livable Communities Program.
• Encourage the development of life -cycle housing opportunities.
• Encourage the rehabilitation and continuous maintenance of existing housing.
• Preserve the identity and improve the quality and appearance of existing residential
neighborhoods.
• Help ensure that all new housing, including affordable housing, adheres to the
highest community design, planning and construction standards.
• Encourage the preservation of owner -type housing for low and moderate income
households.
• Protect residential neighborhoods adjacent to commercial developments through
physical and/or vegetative buffering, and through the placement of `transitional"
land uses on the periphery. Adequate buffering should be an explicit objective of
site plan review and approval.
• Explore local fiscal initiatives for housing, including but not limited to, the use of
housing revenue bonds, tax increment financing, Community Development Block
Grants, and Minnesota Housing Finance Agency programs.
• Examine alternative transportation services that relate to life -cycle housing
opportunities.
• Consider adapting the current Gem Lake Planned Unit Development and Cluster
Development Standards to allow for more creativity and flexibility with regard to
life -cycle housing opportunities.
• Consider working with the Ramsey County Housing and Redevelopment Authority
(HRA) in the development of a housing strategy for the City of Gem Lake.
• Explore the possibility of participating in region -wide efforts to develop a wide
variety of housing types.
Affordable Housing Units Needed 201 1-2020
The City of Gem Lake will strive to add 15 units of affordable housing between 2011
and 2020 per Metropolitan Council recommendations.
SH9.0 housing plan I page 53
SEH
0 Local Water Management Plan
The Gem Lake Local Water Management Plan has been prepared as a separate stand
alone document.
10. local water management plan I page 54
11. Community Facilities and Services Flan
As stated in Chapter 4 of this plan, Gem Lake residents wish to maintain a low profile
government. This would mean providing a minimum of urban services, consistent with
the needs of a low density "small town" community. With this in mind, the City of Gem
Lake intends to establish long-term service commitments with other governmental
units in the area. Given the relatively small ultimate population planned for the
community, it would not be cost efficient to maintain separate municipal
commitments for many community services.
Police
Currently, the City receives police protection on a contractual basis from the Ramsey
County Sheriff. As the population of Gem Lake increases, there will be a need to
increase police surveillance. There is a Ramsey County Sheriffs sub -station located at
Gem Lake City Hall which does cause a better patrol presence in the City.
Policy:
The City of Gem Lake will seek to combine with other governmental units in the area
in maintaining and improving upon a high quality sub -regional police force. The City
will continue to support the Sheriffs substation at the Gem Lake City Hall.
Fire Protection
The City of Gem Lake currently contracts with the City of White Bear Lake for fire
protection services. These services are currently based on a flat rate, plus a fixed
charge per fire occurrence.
Policy:
The City will seek a longer term commitment with either Vadnais Heights or White
Bear Lake for fire protection services. In the future, these services might be charged
on an annual basis. The fees could be based on mutually agreed upon criteria, such as
assessed property valuation.
Road Maintenance
Approximately 2.1 miles of roads are currently maintained under Gem Lake
jurisdiction.
Policy:
The City will continue to contract for road maintenance.
Professional Assistance
There are no full-time employees of the City of Gem Lake. All professional assistance
including lawyers, engineers and planners are paid for on the basis of time and
materials. The City contracts with White Bear Township for City Administration and
other related services.
Policies:
Legal, engineering and planning assistance will continue to be on a time and materials
basis. The contracting of City Administration services by White Bear Township will be
continued.
SEH11. community facilities and services plan I page 55
�1
Municipal Building
Gem Lake recently constructed and opened a City Hall in January of 2008. This
structure is a joint project between the City of Gem Lake and White Bear Township.
The facility is expected to provide adequate space for the City for the next 20 or more
years.
Policy:
The City should review space needs every 5 to 10 years to determine if can be met with
the current building. There is adequate space on the current site to expand the
building if necessary.
Public Schools
District 624 provides education to Gem Lake residents.
Policy:
The City will continue to support high quality elementary and secondary public
education for residents of Gem Lake.
Health Facilities
At present, there are no hospital facilities in Gem Lake or in any of the contiguous
municipalities adjoining it. The closest hospital facility is St. John's Hospital in
Maplewood, approximately two miles away.
Policy:
Gem Lake should cooperate with other local governments in encouraging the
development of medical facilities within a more convenient proximity as area
population growth dictates. Plans for a medical clinic in the SW parcel of the City of
Gem lake Gateway and Village Planning area have been discussed.
Outdoor Recreational Facilities
There are no publicly held open spaces or recreational facilities within the
community. All existing outdoor recreation in Gem Lake must currently occur on
privately developed lands, vacant lots, or on the streets.
Policies:
• Some form of neighborhood -oriented park will be provided as the community
develops. This might include a picnic ground and/or playground facilities.
• The community will continue to rely on Ramsey County for development of larger
natural resource based recreational facilities.
• The City will explore bicycle trail options and methods for providing access to
regional trails.
• The City will encourage the continued operation of the private golf course now
located in the NE portion of the City.
SEH11. community facilities and services plan I page 56
12. Park and Open Space Plan
The 2030 Regional Parks Policy Plan adopted by the Met Council in June 2005 is the
official system plan for regional recreation open space. Local comprehensive plans
must conform to the principles of this parks policy.
This system statement summarizes significant elements of the metropolitan system
plan and highlights those elements that apply specifically to the City of Gem Lake. In
addition to reviewing this system statement, Gem Lake should consult the entire 2030
Regional Parks Policy Plan, the 2030 Regional Development Framework and other
pertinent regional planning and policy documents to ensure its comprehensive plan
and plan amendments conform to the metropolitan system plans. A PDF file of the
entire 2030 Regional Parks Policy Plan, the 2030 Regional Development Framework, the
Local Planning Handbook and other regional planning and policy documents of the
Metropolitan Council are available online at the Metropolitan Council's website:
http://www.metrocouncil.org/planning/framework/timeline.htm
To meet the needs of the region in 2030, the 2030 Regional Parks Policy Plan includes
the following changes to the current regional parks system:
Designate two existing county parks and three trails as "regional"
• In Washington County, Pine Point Park
• In Ramsey County, Tony Schmidt Park
• In Ramsey County/St. Paul, three regional trails — Trout Brook, Summit Avenue,
and Lexington Parkway
Acquire and develop three new parks. Search areas include:
• Northwestern Anoka County
• Empire Township in Dakota County. Please note that the Metropolitan Council
approved a park master plan and a boundary for the park has been established
• Blakeley Township in Scott County
Acquire and develop seven new trails. Search areas include:
• The Crow River, in Carver County and Three Rivers Park District
• Both a north/south and an east/west trail traversing Dakota County
• An east/west trail traversing Scott County
• In Three Rivers Park District, a trail connecting parts of Baker Park Reserve; a trail
connecting Baker and Crow -Hassan Park Reserves; and a trail connecting Crow -
Hassan and Elm Creek Park Reserves
Acquire land within the current boundaries of 30 existing parks and four
trails.
Acquire natural -resource lands adjacent to six existing parks and six
existing trails.
EH
12. park and open space plan I page 57
Beyond 2030
To meet the needs of the region beyond 2030, the Council proposes that four new
regional parks (or reserves) and three new trails be acquired. These parks and trails
would not be developed until after 2030, but the opportunity to acquire them will
likely be lost if the lands aren't identified and purchased before 2030. The goal is to
complete the acquisition of the regional park system and secure opportunities for
future generations. Search areas include:
• Parks: Miller Lake area and Minnesota River Bluff and Ravines in Carver County;
southwestern Dakota County; and Cedar Lake area in Scott County.
• Trails: Northwestern Anoka County; central to south Carver County; and Minnesota
River to Spring Lake in Scott County.
Refer to Figure 9 - All Additions and Changes to Regional Park System Plan map on the
following page.
H12. parts and open space plan I page S8
Figure 9: All additions and changes to Regional Park System Plan
Figure 9 - Regional Parks System Statementr July 2005
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Regional Parks and Trails in Gem Lake
The following regional parks and trails along the boundaries of the City of Gem Lake
as contained in the adopted 2030 Regional Parks Policy Plan are:
• Bruce Vento Regional Trail
• St. Anthony Rail Road Spur Regional Trail
Bruce Vento Regional Trail. This regional trail is partially complete and open to the
public. The section on the eastern border of the City of Gem Lake is not yet complete.
The trail alignment is shown in Figure 2 and is acknowledged by the City of Gem
Lake.
St. Anthony Rail Road Spur Regional Trail. This is a proposed regional trail that
would follow the existing railroad corridor long the northwest border of the City of
Gem Lake. Since there is an active railroad operating on this corridor tracks, trail
planning would not take place until there is a change in the status of the use of the
tracks. At that time, the County will work with Gem Lake and others to master plan the
trail. The general alignment of the proposed trail is shown in Figure 2 and is
acknowledged by the City of Gem Lake.
Figure 10 - Map of Gem Lake with Regional Parks and Trails shows the locations of all parks
and trails listed above within the City of Gem Lake, plus any additional parks and trails
adjacent to the City's border.
SHI12. park and open space plan I page 60
Figure 10: Map of Gem Lake with regional parks and trails in the city and adjacent to the
city
Figure 10 - Regional Parks System Statement Map July 2005
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City of Gem Lake Perks and Trails Policies
Parks
The City of Gem Lake does not see the need for a City park at this time, or in the
planning horizon of 2030. Should the City of Gem Lake consider a park, it most likely
would be a playground/picnic area located in the Northeast corner of the City near
the City Hall.
Trails
The City of Gem Lake would like to see trails constructed along existing roadways. A
marked bike trail now exists along the shoulder of Goose Lake Road in the City As
Goose Lake Road is a Ramsey County maintained road, the City suggests that a
blacktop trail be built along the side of the existing roadway when roadway
maintenance or construction occurs. Other trails could be constructed along the
Highway 61 right-of-way and along County Road E, either on the road right-of-way or
on private land being developed inside the border trees along the cities southern
border.
Private trails along land parcels in the City of Gem Lake constructed along easements
or property lines could be considered as trails, but are usually set up by agreements
between individual property owners and are not considered part of a formal trails
network, and will NOT be included in this Gem Lake Comprehensive Plan.
Potential trail connections between trails in the City of Gem Lake and the Bruce
Vento Trail could be located at Hoffman's Corner (Highway 61 & County Road E
area) or near the Schuenuman Road crossing of the current railroad track in the
Northeast corner of the City.
Potential trail connections to the St. Anthony Rail Road Spur trail could be made at:
• Tessier Road, where it intersects with this current rail road track
• Along a 40-foot wide strip of land running from Goose Lake Road to the railroad
tracks, that is currently owned by the railroad
• Otter Lake Road railroad crossing in front of the Gem Lake City Hall
SEH12. park and open space plan I page 62
13. Implementation
Background
Implementation of Gem Lake's comprehensive plan will occur on a number of fronts,
ranging from encouraging private investment to ownership and construction of public
improvements. After formally adopting the plan, the city can insure it orderly
implementation in a number of ways:
* Policies (land use types and locations)
• Regulations
• Public Investments
• Public Incentives
• Public Services
The comprehensive plan provides a rational basis for guiding development, making
public investments, encouraging private investments and establishing the policies and
regulations necessary to implement the plan. For the City of Gem Lake, plan
implementation means weaving together the needs of citizens and investors with
public policies, public investments and city regulations.
The comprehensive plan establishes the background and policies for the orderly
development and reinvestment in the City. Implementation strategies link plans to
actions and resources. Public investments serve development objectives and allocation
of available resources. Regulations can be a natural extension of the planning process
translating agreed upon ideas into practical application, with the assistance of clear
and publicly administer guidelines.
The first implementation step is the formal adoption of the comprehensive plan. Plan
adoption procedures are prescribed by state law. These procedures involve a report
and recommendation by the planning commission after public notice and public
hearing. This is followed by a 4/5 vote of the City Council.
The significant elements of Gem Lake's comprehensive plan revision include:
• An inventory of the physical and natural resources that impact public and private
development
• Identifying county, state, school district, watershed district and water management
organization and neighboring communities plans and policies
• Identifying, and coordinating with, Met Council system plans and plan review
policies
• Identifying current and future community values, needs, opportunities and
objectives
• Projecting population and land use trends
• Developing a comprehensive set of policies by which all other plan elements are
evaluated
• Identifying economic development strategies and policies
• Evaluating available vacant land
• Determining a logical distribution of land uses within the environmental and
natural resources protection framework
•H 13. implementation I page 63
• Identifying the supporting public service system plans including utilities,
transportation, parks and open space, fire protection, public facilities and schools
• Developing public investment strategy which considers direct and indirect financial
investment including public infrastructure
• Preparing to implement regulations
It is important to note that the comprehensive plan is much more than a simple map
with descriptive text. It is an interwoven blueprint for the physical and economic
development of the community.
Regulations
The major land use regulation tool is the zoning ordinance. Allied regulations include
those dealing with subdivision of land, wetlands, nuisances, property maintenance and
shore lands.
The City of Gem Lake's chief regulatory tool is the zoning ordinance.
Zoning Ordinance
The zoning ordinance guides the use of land and the placement of structures on that
land to assure a sense of order and to protect the public health, safety and general
welfare. The zoning ordinance has often been considered a protective
implementation tool, but it can also provide incentives to encourage good site design,
general harmony, adequate open space and the reduction of congestion. A number of
implementation issues and policies that need to be reviewed are discussed here.
Mixed Uses
A new mixed use district (defined by a planning venture of the City titled "Gateway &
Village Centers Vision Corridor") allows for a multitude of land uses for the business
district of the city centered around `Hoffman's Corners." This area is located at the
intersection of County Road E and Highway 61. It also extends west along County
Road E to cover two undeveloped land parcels of approximately 18 acres each.
The professional planner for this district recently envisioned many different uses
along two major transportation corridors. A 50/50 mix of office/commercial/retail
and residential is suggested.
With this Vision Corridor document, developers are presented a variety of planning
ideas for the five different land parcels that make up this area. The document allows
creative levee way for developer input, as long as concepts fit within the general
guidelines. Ideas expressed in the document range from the use of second story
condos over office or retail spaces, to the building of multi -story senior housing. Areas
for a medium scale retail shopping center, with many "shoulder type" retail uses, are
also suggested.
Any or all of these concepts would be constructed within a master plan and through a
PUD. The City desires that this development provide an "integrated community where
opportunities for shopping, working, recreation and social interaction can co -exist."
Given changing economic conditions and needs, tiered development by different
developers is a possibility that needs to be planned for. This would require careful
13. implementation I page 64
coordination to result in the unified look and feel that the City seeks for this Gateway
area.
Residential Densities
Residential densities listed in this plan refer to the required lot size per housing unit
or the number of units per acre. Lot size or density regulations allow a community to
provide reasonable estimates as to the size of the needed public infrastructure. This
insures that transportation, sewer, water, parks and other public services can be
delivered in an economical and efficient manner.
Varied densities permit a variety of differing housing types and give the community
the ability to attract a range of age and income groups. In this plan, higher densities
have typically been directed to areas of higher land values, adjacent to transportation
opportunities and other amenities.
In some cases, higher densities generally reduce the projected cost per unit for
amenities such as water, sewer, parkland and other services. Well planned high density
development can also accomplish lower service costs without sacrificing quality design.
In fact, quality design can reduce the visual impact of higher density area and relieve
the feeling of congestion that poorly plan developments often result in.
Paramount is the ability to create scale and quality of development that is consistent
with the site and the neighborhood. Clearly, density evaluation must examine building
scale (mass and height), building design and orientation, noise protection, vehicle
circulation and storage, useable open space, type of land (hilly, rolling, flat) and what
natural resources (forests, trees, water bodies) exist on them.
Related Zoning Ordinance Revision Considerations:
• The City of Gem Lake's existing comprehensive plan now designates four updated
single family residential development districts within the City. These districts are:
— Single Family Estate
— Single Family Executive
— Single Family Residential
— Mixed Use Residential
Appropriate changes must be made in the zoning ordinance to identify the land uses
for each of these districts and other features such as lot coverage, setbacks and
minimum lot frontage needed. The list of appropriate principal uses, allowed
accessory uses and conditional uses needs to be examined and possibly updated.
• All new construction plans (residential and commercial) must be reviewed by a plan
review committee. This committee will need to update plan review check -lists to
allow for the newer districts.
• Shore land management - Gem Lake and its attendant wetlands are currently
protected in the zoning ordinance with a 100-foot no construction buffer and a 150-
foot buffer where ISTS systems cannot be constructed. The area around the lake
and wetland is protected from tree and vegetation cutting from 50 feet into the lake
to 100 feet from the lake and wetlands. These distances should be reviewed against
DNR regulations to see if any changes are needed.
H13. implementation I page 65
The Vadnais Lake Water Management Organization (VLAWMO) has informed the
City that the water body known as Gem Lake does not have an outlet. Therefore,
inlets to the lake must be filtered and flow control added.
• Wetland protection - VLAWMO and Ramsey Washington County Metro Watershed
District (RWMWD) recently adopted updated water management plans that might
require changes in the storm water section of the zoning ordinance.
The Gem Lake has two years from the date these plans where adopted to update its
City storm water management plan appropriately.
• Subdivision regulations - The City of Gem Lake has adopted a new set of subdivision
regulations. These regulations should be reviewed to allow for smaller lots (and zero
lot line construction) that might occur with PUDs that include town homes or other
similar structures.
Private Investment
The basis for a comprehensive plan diminishes rapidly absent private investment.
Therefore, implementation policies recognize the desirability of encouraging private
land ownership, protection of environmentally sensitive areas, enhancement of
business/commercial opportunities, construction and maintenance of a broad range
of life -cycle housing, and provision of resident and visitor oriented retail and service
facilities. Promoting the qualities of the area and providing cost effective public
services are at the core of the public strategy to encourage and support private
investment.
Other public policies affecting private investments include tax increment financing,
special assessments, coordination of community and business promotion activities,
cooperative ventures and development sensitive regulatory frameworks.
Public Investments
In carrying out the objectives of the comprehensive plan, the components and staging
of public investment is important. Understanding the basis for, and phasing of, public
investments stimulates private investments in terms of location and timing. Public
capital improvements involve the acquisition of land and the construction of public
facilities. Public ownership has historically been the case, but varying ownership
arrangements are emerging. Many municipal capital improvement budgets also
include major equipment purchase such as fire trucks, road maintenance vehicles,
office furniture, and so on. Maintenance expenditures (such as resurfacing a road)
overlap between maintenance and capital expenditures. The majority of parkland and
roadway rights -of -way have been acquired through dedication. Subdivision regulations
provide for that dedication. In the case of future rights -of -way, they will need to be
purchased by agreement or condemnation.
Municipal Capital Improvement Program 2008-2018
Background
The capital improvement program provides a working strategy for guiding public
investment within the comprehensive planning framework. Resources are finite and
rarely meet all needs. A well thought out capital improvement program results in a
comprehensive "shopping list" where all desired investments are cataloged and
prioritized. Absence of current available funding should not keep a project off the
SEH13. implementation I page 66
shopping list (funding approaches are dynamic and changing) but will impact its
priority.
Funding Sources
A number of funding sources are available or can be made available to municipalities.
Some have specific requirements or limits. Increasingly, creative financing approaches
are being undertaken which leverage private or public funds and/or engage
partnerships with private business of other government entities. Some investment and
debt funding sources for public capital investments include:
General Fund — general property tax dollars and fees make up the broad category
general funds.
Enterprise Funds — water and sewer utilities usually operate as an "enterprise" account
that collects more than is spent for services purchased. The extra funds are kept in a
separate account that is used for operation, maintenance and upgrades of the
supported system. A one-time initial installation charge is also collected from each
connection made to the sewer or water system. This charge is called a Sewer
Availability Charge (SAC) or water availability charge (WAC), and is usually used to
expand capabilities.
General Obligation Bonds — certificates of indebtedness paid for by a property tax
levy, backed by the property values of the city and authorized by the voters or by
statutory provision.
Revenue Bonds — bonds supported by the specific revenue stream of the specific
investment (i.e. fees collected for an ice arena).
Tax Increment Financing — this revenue source is the captured increased property
value resulting from the investment, which would not have occurred without the
public financial assistance. This revenue is specifically pledged to qualified
improvements for a specified period of time.
Debt financing is not mandatory and the income stream could be used to pay investors
or lenders on a periodic or annual basis. Tax increment bonds are generally backed by
the full faith and credit of the City and its taxpayers.
The legislature has continued to reduce the flexibility of this tool in response of a
limited number of practices that have been considered objectionable. Changing of tax
rates for commercial properties at the state level also has significant impact on
revenue projections. The City of Gem Lake currently does not currently have any tax
increment financing districts.
Special Assessment Bonds — revenues are derived from the specially benefited
property served by the improvement.
Capital Improvement Reserve Funds — special assessments are required to be satisfied
when property ownership is transferred. The result is that advance payment of special
assessments in reserve produces additional earnings until they are applied to the bond
payment schedule. These funds can be used to restructure debt or to be used for
capital investments.
SEH13. implementation ( page 67
Utility bonds — a bond defrayed by the revenues derived from utility changes
Transportation Equity Act (TEA21) Funds — In conjunction with the Twin Cities
Metropolitan Planning Organization transportation planning and programming,
federal matching funds are available for transportation and enhancement related
projects.
Grants — A diminishing number of grants are available for specifically qualifying
projects, such as park and trail development, or utility improvements.
Loans — revenues to repay the loans would have to come from one of the sources listed
above, or from some specific future equity position in the project. The general policy
of public financial assistance should be loan before grant, to keep the money working
for the community.
Donations- private contributions given for general or specific purposes. A significant
amount of private wealth is anticipated to be passed to the next generation in the near
future. Having a policy in place for accepting donations would give security to donors,
insure the proper management of donated funds and, potentially, foster additional
gifts.
Donations or grants could come from individual, businesses or non -profits. Funding
sources from other governmental jurisdictions are somewhat limited, and fall into the
above categories. However, other jurisdictions do make investment decisions affecting
the City and need to be considered in collateral requirements. Pathway and trail
funding would be a case in point. The Minnesota Department of Natural Resources
and Ramsey County currently have primary jurisdiction when securing financial
participation from regional, state and federal government entities. Part of the
implementation process involves working with the various agencies and private
interest groups to secure the improvements, and to be prepared to provide local
supporting action and investments.
Investment Purposes
Pubic investment purposes are broadening to include equity positions in some private
(but public purpose) property, such as affordable housing. In some cases, historically
public facilities are being converted into private or joint ventures with or without
direct lease payments to or from the municipality. These investments fall into general
groups that might be labeled as land acquisition, facilities acquisition and
development projects.
There are also some limited incentive investments that are made to directly induce
private investment. Direct public investments would focus on land acquisition, public
improvements and community facilities.
Recent Capita) Investments
The City of Gem Lake made its first capital investment in 2007-2008 in conjunction
with White Bear Township (WBT) in building a joint Gem Lake City Hall/WBT
meeting room. This facility is jointly maintained, with WBT handling the grounds and
the City of Gem Lake handling the building.
. .i.
EH13. implementation I page 68
Future Capital Improvements
Projected future capital improvement projects can be classified in a number of
different ways to reflect the objectives of the comprehensive plan and the reality of
funding availability. A central debate revolves around whether or not the community
should plan for something if it does not have available resources. One school of
thought calls for planning only to realized funding. Another school of thought
suggests prioritizing needs (which nearly always exceed resources) and developing a
program that can respond to differing financing trends and programs. Establishing a
realistic but extended plan that exceeds available resources permits capturing
opportunities when new or special funding occasions occur.
Many funding sources are competitive and require long term planning and
perseverance. It is important to develop a comprehensive strategy that compiles
improvement by: 1) investment type (economic, development, parks), 2) priority
(immediate to future), 3) funding source (General Obligation Bond, Assessment,
etc.), 4) or other management category. The purpose of this comprehensive capital
improvement strategy is to continually match changing community objectives with
potential funding sources, thus assisting the City in determining priorities.
The current list of capital improvements, included as part of the section, does not
involve revenue source estimates or specific assistance in non -defined public assistance
areas. This allows the City to remain flexible in evaluating multiple potential funding
sources and selecting the best solution, given current conditions.
These is no absolute answer on the amount of debt that a community should carry,
only carefully weighed considerations relating to benchmark levels, community needs
and community acceptance. $ 900 to $1200 debt per capita provides a national
experience range benchmark. Consideration must also be given to overlapping debt
from other jurisdictions. Special assessments for street and water system
improvements, properly administered, are self-liquidating through special assessments
or service charges. Capital outlays are projected annually over the next 0 to 5 and 5 to
10 years.
Community Facilities
Sometime in the next 10+ years, an expansion of City Hall is anticipated. Depending
upon population growth, additional space will probably be needed for city offices and
record storage. The parking lot at the City Hall most likely also requires expansion.
Transportation
Trails
Trails have generally been installed as on -road facilities, coordinated with Ramsey
County road construction\,reconstruction projects. Expansion of the trail system is,
therefore, tied to County maintenance development and road turn -back programs.
The City of Gem Lake has partnered with Vadnais Heights to construct some bike
trails along County Road E. Additional connecting trails will be added by Gem Lake as
conditions and finances allow.
SEH 13. implementation I page 69
Road turnbacks and road construction
�1
The road turn -back program was set up by a state aid program, to align jurisdictional
responsibilities of county roads. An amount of funds was set aside to permit
transferring the roads and sufficient resources to bring them up to standard.
Several City of Gem Lake roads were replaced, rebuilt or overlaid in the last three
years. Approximately .7 miles of Scheueneman Road and Hoffman Road, located in
the Gem Lake Business District that were accepted by a "turn -back" from Ramsey
County in 2007 still needs repairs.
Capital Improvement Program List
Refer to the Capital Improvements Plan on next page.
�1
SEH
13. implementation I page 70
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