HomeMy WebLinkAbout1978 COMPREHENSIVE PLANGEM LAKE COMPREHENSIVE MUNICIPAL PLAN
Prepared for the
City of Gem Lake, Minnesota
By
Barton-Aschman Associates, Inc.
January, 1978
TABLE OF CONITEN"TB
Page
1.
USE OF THE PLAN 1
2.
COMMUNITY DEVELOPMENT TRENDS AND DETERMINANTS 4
3.
PLAN ASSUMPTIONS, GOALS, PROBLEMS AND ISSUES 20
4.
SUMMARY OF THE COMPREHENSIVE MUNICIPAL PLAN 24
5.
LAND USE PLAN 28
6.
TRANSPORTATION PLAN 38
7.
COMMUNITY FACILITIES AND SERVICES PLAN 45
8.
PLAN IMPLEMENTATION 49
LJST° or r1ovi $
Page
1.
Metropolitan Location of Gem Lake
5
2.
Municipal Boundaries
6
3.
Physiography
8
4.
Comprehensive Municipal Plan Map
25
5.
Land Committed to Urban Development
29
6.
Zoning Districts
31
7.
Planning Areas
35
8.
Street System Plan
42
9.
Proposed Functional Road Classification
43
10.
Sanitary Sewer Plan
47
LL4T OF TABLES
Page
1.
Population Trends and Projections by Governmental Units
Within a 5 Mile Radius of Gem Lake
9
2.
Selected Characteristics of the Population by Governmental
Unit Within a 5 Mile Radius of Gem Lake
11
3.
Existing and Projected Population, Households and
Employment in Gem Lake
13
4.
Employment Opportunities in Relation to Population: 1976
14
5.
Assessed Valuation of Real Property in Gem Lake, 1977
15
6.
Assessed Valuation and Tax Rates by Governmental Unit
Within a 5 Mile Radius of Gem Lake
16
7.
Selected Characteristics of Housing by Governmental Unit
Within a 5 Mile Radius of Gem Lake
18
8.
Estimate of Ultimate Gem Lake Population and Land Use
32
9.
Inventory of Roads, Streets, and Highways
39
10.
Summary of Existing Road Mileage by Jurisdiction and
Functional Classification
40
11.
Status of Ordinances, Plans, and Other Controls Guiding
Development Within Gem Lake
50
,i
Y. USE OF THE PLAN
Purpose of Preparing the Plan
The Comprehensive Municipal Plan of Gem Lake has been prepared with the
primary purpose of guiding the long-term physical development of the City
including 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 second comprehensive plan prepared for
the City.
The
first plan was prepared in 1962 but was not officially adopted by
the municipal
government. This
Plan draws freely upon the proposals of the
1962 plan,
but
incorporates more
recent development trends within Gem Lake
and in
the
immediate vicinity
of the City. New goals and policies of the
City are
also
established. This
Plan supersedes all of the contents of the
previous
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, hopefully, to the maximum extent possible, the citizens of Gem
Lake.
While the Plan is intended primarily as a policy document with the principal goal of
guiding the orderly physical development of the City, the Plan should not be
considered a detailed program for the effectuation of City policies nor should it be
considered a regulatory device for accomplishing this end. Rather, it is expected
that all plan effectuation 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 20 to 25 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 five member body appointed by the
City Council of Gem Lake. Members of the Committee 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: (a) to periodically review (not less frequently
than biannually) and make suggested additions and amendments to the Comprehen-
sive Plan, (b) to 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, (c) to review proposed public capital
investments of the City of Gem Lake to determine their consistency with the
Comprehensive Plan and (d) to 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 Citv 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. As the primary
policy making body of the City of Gem Lake, the Council has the following
principal responsibilities in relation to the Comprehensive Municipal Plan: (a) to
assure, to the maximum extent possible, that the policies contained within the
Comprehensive Plan document represent the viewpoint of the citizens of the
community, (b) to attempt to make incremental policy decisions in normal council
deliberations that are consistent with the Plan's provisions, (c) to make public
capital expenditures and related expenditures consistent with the principles of the
Plan, and (d) to 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 City Planning Commission and the City Council,
the plan is designed to be an educational device designed to convey to all people in
Gem Lake the manner in which the City is desired to develop. The plan is intended
to convey 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 Municipal 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 of Gem Lake is designed to be more than a mere
document spelling out general municipal policies. It is principally intended as a
decision -making aid primarily for (a) guiding the expenditure of public capital funds
and V establishing the underlying rationale for the development codes and
ordinances which more specifically control private development within the City.
Minnesota State Statute 462.356 (Subdivision 2) further spells out required
compliance with the Plan where public capital investments are involved:
"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 itlunicipal Plan of the City of Gem Lake is designed to be
amendable. The City Planning Commission has the authority granted by City
Council to annually review the contents of the Comprehensive Plan and to
recommend any potential amendments to the City Council. Any amendments to
the Comprehensive Plan beyond an editorial level will be executed only after a
public hearing which is 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 simple majority vote (of the members of the City
Council). All amendments will be placed on file with the Metropolitan Council of
the Twin Cities Area as well as with all governmental units with boundaries
contiguous to Gem Lake.
3
2. COMMUNITY DEVELOPMENT TRENDS AND DETERMINANTS
There are many phenomenon that should be considered as a basis for developing a
Comprehensive Plan for the City of Gem Lake. Perhaps most significantly, it
should be noted that the City is only a small part of the Minneapolis -St. Paul
metropolitan area. The nature of physical development within Gem Lake, its
natural resource base, its people, its economy, and its governmental plans must all
be placed in context with what is happening in the larger metropolitan area and,
more specifically, that portion of the metropolitan area in the immediate vicinity
of Gem Lake. The primary purpose of this chapter of the Plan is to examine those
trends that are most apt to act as determinants of the Comprehensive Municipal
Plan proposals.
Creation of Gem Lake
The City of Gem Lake was created through a referendum conducted in 1957. The
City was one of several municipal jurisdictions which incorporated durinrm
g the 1950's
in response to a rapid increase in urbanization pressures during that time period. In
addition to Gem Lake, the municipalities of Little Canada, Maplewood, North Oaks,
Shoreview, and Vadnais Heights, all within a five mile radius, were incorporated in
that same time period.
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 (see Figure 1). Gem Lake
is bounded on the north by the Town of White Bear. The City of White Bear Lake
generally bounds the City on the east. The City of Vadnais Heights bounds the City
partially on the east, entirely on the south and west, and partially on the north (see
Figure 2). The northern and eastern boundaries of the City are well defined by the
rights -of -way of the Northern -Pacific Railroad. Most of the southern boundary of
the City is County Road E. The western border of the City is LaBore Road. In
close proximity to the City's western border is Interstate Highway 35E. U.S. 61
cuts through the southeastern portion of the City.
Natural Features of Gem Lake
i J 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.
4
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Topography. The topography of the community is generally rolling exhibiting
glacial morainic surface features (see Figure 3). 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 knobs 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 Gem Lake lies on a low plateau over 950 feet
above sea level. This plateau drains north, west, and south (see Figure 3). Since
Gem Lake is in a relatively high elevation with respect to surrounding lands, no
permanent streams exist within the corporate limits. However, as is typical of
glacial landscapes, much of the municipality is imperfectly drained with much of
the surface water draining into low lying depressions with no surface outlets. The
largest of these depressions is Gem Lake which covers approximately 38 acres
counting its attendant wetlands. Much of the central portion of the City drains
into this feature. 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 drains into this surface
feature. There are many other smaller pockets of intermittent and permanent
surface water storage areas scattered throughout the municipality.
Soils. Much, if not most, of the surface soils within Gem Lake are glacial tills.
Consequently, the character of soils can vary considerable in a relatively small
area. Gravel pits displaying course soils are located in the northwestern portion of
the City. Gravel might also be expected in some of the other knobs in this
location. 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 (1) the knob areas and (2) in the northeastern area of the City where
coarser soils predominate.
Vegetation. Much of the City is 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 Vicinit
Gem Lake is located in the northeast portion of the Minneapolis -St. Paul
metropolitan area which is experiencing very rapid urbanization. This area reached
the population "take -off" stage during the 19501s, and this population increase
accelerated during the 19601s. It is expected that these population trends will
continue during the 19701s. As seen in Table 1, the population of governmental
units located primarily within a five mile radius of Gem Lake increased 42 percent
during the 1960-1970 time period. The City of Vadnais Heights, the City of White
Bear Lake, and the Town of White Bear, all contiguous to Gem Lake, increased an
aggregate of 51 percent during this same time period.
Current population trends as estimated by the Metropolitan Council substantiate
the expectation that rapid population growth in the vicinity of Gem Lake will
7
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continue in the near future. During the 1970 to 1976 time period, it was estimated
that governmental units within a five mile radius increased 16 percent in population
and contiguous governmental units increased 8 percent (see Table 1). This equates
to 27 percent and 13 percent respectively for a ten-year period.
Future population projections prepared by the Metropolitan Council call for
substantial population growth, at least up to the year 2000, with governmental units
within a five -mile radius increasing 65 percent and Contiguous government units
increasing 36 percent during the thirty year 1970 to 2000 period.
The City of Gem Lake has not as yet experienced rapid growth. During the 1960-
1970 period U.S. census figures indicate that the population of Gem Lake decreased
from 305 to 216, or 29 percent. The population decline, however, can partially be
explained in the reduction of persons per household from 3.92 to 3.72. (It is also
possible that this population reduction may be due to possible over -reporting of
population in the 1960 census due to the uncertain boundaries of the City at that
time.) During the 1970 to 1976 period, the Metropolitan Council estimates show
that the population of Gem Lake increased from 216 to 282 persons, an increase of
31 percent.
Even though the population of Gem Lake has not increased since its incorporation,
this condition is undoubtedly only temporary. The major reasons why the
population has not increased are probably (1) the strict development controls
established by the municipality, and (2) the withholding of a substantial amount of
the undeveloped acreage by a relatively few individuals who have had no desire to
develop the land. However, for the purposes of this Plan it should be expected that
the population of the community will substantially increase with the entry of
developable lands onto the market within the next twenty years.
Characteristics of the Population
There is a wide diversity in the characteristics of the population residing within the
various governmental units located in the vicinity of Gem Lake (see Table 2). In
general, the population of Gem Lake is older than other municipalities in the area,
with a relatively large percentage (40.2 percent) of the population over 35 years
old. Only Dellwood and North Oaks, which are relatively exclusive high income
suburbs have as high a percentage of the population over 35. Conversely, Gem
Lake has the lowest percentage of the population in the primary child bearing 25-34
age group (8.8 percent).
The 1970 average family income level in Gem Lake ($9,560) was by far the lowest
in Ramsey County and is possibly the lowest of all municipalities within the
contiguously urbanized portion of the metropolitan area. Approximately 8 percent
of the population within Gem Lake was viewed to be below the poverty line as
defined by the 1970 U.S. Census. Contrasting with this relatively low average
family income, there are families of substantially higher income on large tracts of
land, generally in the central portion of the City.
This variance in income with Gem Lake is also exhibited in the development
pattern within a five mile radius of Gem Lake. At one end of the spectrum are
10
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such wealthy communities such as Dellwood and North Oaks which had average
family incomes (in 1970) over $30,000 a year, and at the other end of the spectrum
several communities with incomes under $14,000 per year. Those governmental
units contiguous to Gem Lake exhibited average family incomes more similar to the
metropolitan norm.
Employment and Economic Base
As shown in Table 3 and 4 the City of Gem Lake has more job opportunities than
the population could reasonably be expected to support. Overall, the nature of
commercial development and employment opportunities is geared to a trade area
much larger than Gem Lake. Auto dealerships are the dominant commercial
enterprises with "highway service" establishments such as service stations and fast
food establishments constituting a large share of remaining commercial activity.
There is very little in the way of commercial development at this stage of the
community's development geared to serving the resident population. This is, of
course, due to the City's small population.
As a result of the proportionally high amount of commercial development within
the corporate limits, Gem Lake enjoys a relatively good tax base (the proportion of
total tax base by category of property is shown in Table 5). The average assessed
valuation per capita in 1977 was $8,400 as compared to an average of less than half
that amount for the aggregate of communities within a five mile radius of Gem
Lake (see Table 6). Partially as a result of this good tax base, the municipal tax
rate is very low (6.31) in comparison with most other communities in the area.
Development of Region -Serving Facilities
Within the last ten years there has been a very major change in the provision of
region -serving facilities which will tend to accelerate and shape the development
pattern in that portion of the metropolitan area in which Gem Lake is located.
These facilities include the following:
1. The completion of the Interstate Highway segments including I-694 located
approximately one mile south of Gem Lake and I-35E located to the west with
only a small segment of Vadnais Heights intervening (see Figures 1 and 2).
2. The extension of metropolitan trunk sewers to and beyond the City of Gem
Lake. This provision of major trunk interceptors has enhanced the potential
for large scale development in the Gem Lake vicinity.
3. The construction of a regional shopping center, Maplewood Mall, approxi-
mately two miles southeast of Gem Lake will serve as the major shopping
complex in the area for the foreseeable future.
4. Regional Open Space Acquisition and Development. Ramsey County has
pursued an aggressive open space acquisition and development plan. This plan
should affect urban development patterns as well as recreational opportuni-
ties in the area.
12
TABLE 3
EXISTING AND PROJECTED
POPULATION,
HOUSEHOLDS,
AND
EMPLOYMENT
IN GEM LAKE
Year
% Change
1960 1970
1973 1976
1980
1990
2000
1970-2000
Population
305 216
-- 282
400
700
900
(+317)
Households
78 54
-- 103
150
250
330
(+511)
Employment
-- 250
400 --
500
600
750
(+200)
Employment/
Population
Ratio
-- 1.16
-- --
1.25
0.86
0.83
--
Source: Metropolitan Council, Preliminary Allocations to Minor Civil Divisions,
1976.
13
W
TABLE 4
EMPLOYMENT OPPORTUNITIES IN RELATION TO POPULATION: 1976
Estimated Employment ( within Gem Lake) * 400
Resident Population (1976) 282
Estimated Labor Force ( typically approximately
40 percent of population) 113
Surplus Employment Opportunities 287
- Population That Existing Employment Could Support 1,000
*From Table 3; 1973 figure
11
14
TABLE 5
ASSESSED VALUATION
OF REAL
PROPERTY IN
GEM LAKE: 1977
Usage
Taxable
Percent of
Number of
Home -
Class
Market
Total Gem
Properties
steads
Value
Lake Real
($1,000)
Property
Value
Residential
4,465
65.8
174
95
Apartment
31
0.4
1
1
Seasonal Cabin
54
0.8
1
_-
Com mercial
1,955
28.8
17
--
Farm
283
4.2
9
_-
TOTAL
6,788
100.0
202
96
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Land Development In Gem Lake and Vicinit
Residential Development. Gem Lake residents are overwhelmingly housed in single
family homes 93 percent of dwelling units) as is typical of other suburban
communities in this suburban portion of the metropolitan area. However, there is a
considerable diversity of housing types in the vicinity of the City both in terms of
types and in values (see Table 7). For example, a very high percentage of all
housing units in adjacent Vadnais Heights is in mobile homes (23.4 percent).
Substantial shares of housing are in multiple family structures such as in White
Bear Lake (13.4 percent), Shoreview (13.0 percent), Maplewood (18.9 percent) and
North St. Paul (28.9 percent). Housing values also range considerably from very
high (over $50,000 in 1970) in North Oaks and Dellwood to relative low (under
$24,000 in 1970) in Gem Lake, Vadnais Heights, Maplewood, North St. Paul, and
Pine Springs.
The average quality of housing in Gem Lake is somewhat below other communities
in the area. The average value of owner -occupied housing ($20,705 in 1970) was
generally $4,000 or more below housing values in most communities within a five
mile radius. However, this figure may be misleading since several larger homes of
much higher value are also located in the City. Thus, the single family housing
stock in the community varies considerably, with most of the housing stock being
considerably below or above the norm for this portion of the metropolitan area.
Two other indicators, "Dwelling Units Overcrowded" and "Tenure of Housing" are of
importance in evaluating the housing stock as shown in Table 7. Gem Lake housing
is, on a percentage basis, typically more overcrowded and less owner -occupied than
in other communities in the area.
Commercial Development. Prior to the recent construction of Maplewood Mall
there was a decided lack of a full service retail commercial center to serve the
Gem Lake area. This center will be the dominant retail outlet within the area for
major shopping purposes. Residents of Gem Lake are able to obtain some
convenience items in the traditional "Hoffman's Corners" area located in the
southeastern portion of the City. Lands immediately south and west of Gem Lake's
corporate boundaries in Vadnais Heights are planned for commercial development.
As was indicated previously in the "Employment and Economic Base" section of this
chapter, the dominant investment in all commercial development within Gem Lake
was in auto dealerships catering to a trade area well beyond municipal boundaries.
Other commercial investments typically have a "highway service" character such as
service stations and fast food establishments.
Office and Other Employment Concentrations. There is a limited amount of office
development in the immediate vicinity of Gem Lake. These are small concentra-
tions 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 intersection of
Snelling and Highway 36.
Industrial Development. There are no sizeable concentrations of industrial
development within Gem Lake or within a five mile radius of the City. However,
there are some relatively small concentrations in Little Canada, Maplewood, North
17
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St. Paul, and Vadnais Heights. More significantly the abutting governmental units
of Vadnais Heights and White Bear (Town) have planned extensive amounts of
industrial land adjacent to Gem Lake. The Town of White Bear plans industrial
development abutting Gem Lake's northern corporate limit; Vadnais Heights plans
industrial development beginning a few hundred feet south of Gem Lake's southern
corporate boundary. The only land use within Gem Lake which could be classified
as industrial is a dairy located in the southeastern portion of the City.
Public Open Space and Recreation Areas. There are no publicly owned public open
space or recreational areas within Gem Lake. There is a commercial golf course
located in the northeastern portion of the City. Within the area substantial
amounts of open space or recreation areas are either existing, planned, or under
acquisition or development. Approximately two miles to the west are forest
preserve lands owned by the City of St. Paul. Approximately one mile to the
southeast of Gem Lake is a large community park within White Bear Lake. Most
significantly, very substantial acreages of open space are either planned for or
under acquistiion by Ramsey County. Much of this acreage is in the neighboring
City of Vadnais Heights. Approximately seven miles to the north the Metropolitan
Council has identified for high priority acquisition a major open space site in the
Lino Lakes area.
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 is the most developed of these and
exhibits a generally diversified development pattern similar to that of a
freestanding town (which it was until metropolitan urban development radiating out
of St. Paul reached out to its vicinity). That portion of White Bear Lake closest to
Gem Lake is planned principally for commercial development. Vadnais Heights,
which borders on the west and south portions of Gem Lake is predominantly
developing as a low density residential suburb. At present this community has a
small economic base for development. The Vadnais Heights plan (based on the
zoning map) calls for commercial development along the entire south and western
portion of the City of Gem Lake. White Bear Town on the north may eventually be
annexed by the City of White Bear Lake. At present, however, the town plans an
industrial district in this area.
19
3. PLAN ASSUMPTIONS, GOALS, PROBLEMS AND ISSUES
Beyond assessment of the existing and projected characteristics of development in
Gem Lake and vicinity, there is a need to (1) assess the assumptions upon which the
Plan is to be predicted, (2) establish basic community goals upon which the policy
proposals of the Plan may rest, and (3) identify the key issues which must be
resolved if the Plan is to become a reality. This Chapter of the Plan presents these
assumptions, goals, and issues as the key factors that establish the basis for the
Plan proposals in the succeeding chapters.
Plan Assumptions
1. The Plan is based on the assumption 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.
2. It is assumed that the comprehensive development plans and physical
development ordinances of the contiguous local units of government will
remain essentially as they are today.
3. It is assumed that additional shopping and employment opportunities within
municipalities located within a five mile radius of Gem Lake will become
available in reasonable proportion to popualtion increases.
4. It is assumed that a major open space acquisition and development plan will
be completed as proposed by Ramsey County.
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:
1. The residents of Gem Lake desire to preserve and maintain a "rustic"
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. This will require new development in an overall
J low -density pattern.
20
2. The residents of Gem Lake desire to create and maintain a high qualitv man-
made environment. ALI new residential and commercial developcL ment ,-1c
auxiliary structures and signs including low and moderate cost housing should
be developed to high standards consistent with the good aesthetic, architec-
tural, and common sense. Furthermore, all existing structures and ancillary
buildings and lands including low and moderate cost housing (now approxi-
mately 46 percent of all housing in Gem Lake) will be maintained to high
standards to enhance the quality of the life in Gem Lake.
3. The residents of Gem Lake wish to contain future commercial development
within the community. Existing commercial development is substantial in
relation to total community development providing more jobs than the size of
the local resident labor force. Substantial additional commercial develop-
ment would conflict with the goals of maintaining a rustic and high quality
natural environment.
4. The residents of Gem Lake desire to have a low -profile government that
provides only essential public services n—eeessary for their health, safety, and
welfare. This goal is based on a realistic appraisal of the small size of the
community, and due to the realities of service economics which justify
provision of services on a larger territorial basis. It is a further goal that
these public services should be obtained on a long-term contractual basis with
surrounding municipalities. This should keep per capita expenses in relation
to services rendered at the lowest possible level for both the residents of
Gem Lake and surrounding communities.
5. The residents of Gem Lake desire to cooperate with adjacent communities to
achieve a compatible land development and public services pattern. Recog-
nizing the small size of Gem Lake in relation to the substantial urbanizing
pattern in the vicinity, the City of Gem Lake will place considerable
importance in cooperating with other local units of government in encourag-
ing the compatible development of this sub -region of the metropolitan area.
Principal Issues
Gem Lake, like every public community, has a set of major issues that should be
faced if the City is to be developed in a form that is consistent with stated
community goals. At the time of Plan adoption, the issues listed below appear to
be most critical and, as such, establish a focus for many of the Plan proposals. The
succeeding chapters of this document address these issues in the course of
establishing specific plan proposals.
1. Density of Residential Development. Consistent with the goal of maintaining
a, "rustic" environment in a natural setting the City of Gem Lake will seek to
maintain a medium to low -density residential development pattern (approxi-
mately 0.3 to 2.0 dwelling units per net acre). This commitment lies in the
face of substantial pressure from developers who seek to construct higher
density developments. It is the position of Gem Lake that the community's
existing natural resource base, its existing land use, its limited ability to
provide a wide range of urban services, combined with the planned allowance
21
of higher development densities within other communities within a reasonable
radius of Gem Lake, all substantiate the City's position.
2. Limited Commercial Expansion. While Gem Lake has provided some
additional space for commercial expansion within its corporate limits, it is
recognized that there will be increased pressures for commercial expansion
both along U.S. 61 and along County Road E at the south corporate limits.
(This is a major conflict between the Gem Lake and Vadnais Heights plans.)
While these pressures are recognized, it is the City's intention to maintain a
stance of commercial containment in accordance with the Plan on the
grounds that (a) there is currently a higher ratio of commercial development
to residential development than the average (measured both in terms of acres
of land and employees), (b) at ultimate development there will be a normal
ratio of commercial to residential development, (c) additional commercial
expansion would undermine low -density character desired in the City, and (d)
ample land for commercial development is available in other communities in
the vicinity.
3. 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 vigorously insure
that all new development within the community is of high standards based on
various implementation controls and procedures. The City further intends to
insure high quality maintenance of existing man-made structures based on
vigorous enforcement of regulatory controls. These controls include, but are
not limited to, subdivison regulations, zoning regulations, and housing and
building code regulations. It is anticipated that these measures may be
resisted by some land developers, community residents, and businessmen as
exemplified by several instances of poor building maintenance in the past.
These resistances must be met, however, so that a high quality environment
can be maintained for all residents.
4. Provision of Public Utilities. It is anticipated that additional sanitary sewer
facilities and the initiation of public water distribution lines will be required
as the City further develops. These costly facilities will be required partly to
maintain the high quality natural environment cited as one of the community
goals, as well as to meet rising water quality standards. Provision of these
facilities may be cited as conflicting with the desire to maintain a low -profile
government at low cost, but it will be the position of Gem Lake that the
desirability of maintaining a high quality environment will take precedence.
5. Service Disagreements with Cooperating Governmental Units. Almost
invariably, when one governmental unit seeks the provision of services from
another governmental unit, a point of conflict arises over the quality and cost
of services. Recognizing the desirability of serving the Gem Lake portion of
the metropolitan area adequately, it will be the position of the Gem Lake
government to secure long-term service packages in an organized and
efficient manner in cooperation with several coordinating governmental units.
J
6. Lack of Public or Semi -Public Open Space and Recreational Areas. While at
'this stage of development there is little need for pubiici_v or semi -publicly
held open and recreational space, there will be a need for a close -in
"neighborhood" oriented facility as the community more fully develops.
7. Maintenance of Residential Quality in Existing Commercially Designated
Areas. The Plan supported by existing zoning calls for expansion of
commercial land development to include all developable land east of U.S. 61
some of which is currently being used for residential purposes. The area
possesses poor qualities for residential development including heavy traffic
volumes, rail traffic and no open space. As a result, particular attention
should be placed on maintaining these residential land uses in a reasonably
good state until such time as commercial land -uses replace the residential
structures.
23
4. SUMMARY OF THE COMPREHENSIVE MUNICIPAL PLAN
The principal intent of this chapter is to summarize in one place all of the principal
plan recommendations and policies embodied in the Comprehensive Municipal Plan
of Gem Lake. By summarizing it is hoped that the very diverse subject matter
covered in the Plan can be seen as a highly related set of proposals. The
succeeding Chapters (5, 6, and 7) of this document present in greater detail the
underlying conditions and rationales leading to the development of specific plan and
policy recommendations for the various elements of the Comprehensive Plan.
The Comprehensive Plan Map
The Comprehensive Municipal Plan of Gem Lake consists principally of policies
intended to guide the future physical development and redevelopment of Gem Lake.
These policies are clarified by tables and maps presented in this document. The
most significant of these is the "Comprehensive Municipal Plan Map" (Figure 4)
which represents in diagrammatic form some of the key physical development
policies of Gem Lake. The Plan Map indicates the desired physical development
state of the community at ultimate development. (As previously stated, it is
estimated that this stage should be reached within 20 to 25 years.) The Plan Map
displays the following policies: (a) the desired locations and intensities of
residential development, (b) the desired locations and types of commercial
development, (c) the roadway system, and (d) conservancy protection areas.
Land Development Policies
1. The dominant share of total land within Gem Lake should be residential
property at the community's ultimate development stage.
2. Most new development within Gem Lake is to be in the form of low density
housing (approximately 0.3 to 1.0 dwelling units per net acre).
3. Planning decisions will be made based on an ultimate community population_
of approximately 1,2�rsons.
4. Commercial development is to be contained within areas presently zoned for
such development.
5. Additional convenience retail commercial development serving City residents
is encouraged.
24
rI
6. All industrial uses except those which would be compatible within presently
zoned commercial districts are discouraged.
7. The present acreage of semi-public opens ace will be maintained. (Currently
a commercially run golf course is the only such open space.) A community -
oriented park will be provided as the community further develops.
8. Preservation of the water body called "Gem Lake" and its attendant wetland
areas will be supported by ordinances restricting activities that would
undermine its value. Activities such as providing additional surface water
run-off, filling or dredging of wetlands, and cutting of trees will be carefully
regulated.
9. A substantial improvement in the City's housing stock is encouraged.
10. Low income housing within the City is not encouraged due to the lack of good
public transportation to places of employment, restrictions on housing density
consistent with the goals of a rustic environment, and limited community
services.
Transportation Policies
1. Gem Lake supports the study of an improved connection of Otter Lake Road
and gggnty Road "F ".
2. Future private roads serving more than one property will be discouraged
3. Accommodating through traffic on new streets will be discouraged.
4. Future streets should be designed to discourage additional surface water run-
off into "Gem Lake" and its attendant wetlands.
5. Gem Lake will cooperate with other communities in surveying improved
public transit service.
6. Existing air space regulations will be routinely considered as part of the
community's development review process.
Communitv Facilities and Services Policies
1. Long-term commitments with adjacent local units of government for (a)
police protection, (b) fire protection, and (c) road maintenance are supported.
2. As the community develops a part-time and ultimately a full-time City
Official will be employed.
3. Sanitary sewers will be extended to developing portions of the community as
required, and pending the installation of such sewers, the City will move
J promptly to adopt a modern on -site sewage disposal ordinance which will call
for adequate installation, inspection and monitoring.
26
4. A centralized water supply system will be considered for extension to various
locations in the community at the same time as sanitary sewers.
5. Storm drainage facilities will be designed to minimize additional run-off into
the Gem Lake basin.
6. Storm sewers will be required as appropriate on new streets and will be
introduced on some existing roads.
7. As the community develops a municipal building will be constructed or leased
8. If a grade school is ever located within Gem Lake, its appropriate location
would be in the northeast development area of the City.
9. Gem Lake will attempt to develop a neighborhood oriented park as the
community develops.
Plan Amendments
1. It is the policy of Gem Lake to biannually review the Comprehensive
Municipal Plan.
Plan Implementation
I. Gem Lake has the following ordinances which are currently designed to
support the proposals of the Comprehensive Plan: (a) zoning ordinances, (b)
subdivison ordinance, (e) sign ordinance, and (d) building code.
2. Gem Lake will consider and adopt the following additional measures for
Comprehensive Plan implementation as may be required by developmental
pressures: (a) a capital improvement plan, (b) a comprehensive water supply
plan, (c) a planned unit development ordinance, (d) a land alternation and
conservancy ordinance, (e) an on -site waste disposal system and well
ordinance, (f) a lake -use ordinance, (g) an architectural control ordinance, (h)
an ordinance requiring developers to prepare project impact statements, and
(i) a housing code.
27
5. LAND USE PLAN
The policies as established for the land use component of the Comprehensive
Municipal Plan are based principally on three community goals: (1) The residents of
Gem Lake desire to preserve and maintain a "rustic" environment in a natural
setting, (2) The residents of Gem Lake desire to create and maintain a high quality
man-made environment, and (3) The residents of Gem Lake wish to contain future
commercial development within the community.
Land Committed to Urban Development
The generalized characteristics of existing land development as it currently exists
in Gem Lake are described in Chapter 2 of this plan report. These developed land
uses comprise approximately 1/4 of the total land acreage within Gem Lake. This
would suggest that the City is largely undeveloped and that a substantial change in
the existing character of the City can be expected. In actuality, over half of the
City is already committed to a certain type of urban development (see Figure 5).
Beyond existing land development, substantial acreage is already committed to its
"ultimate" or "long-term" use of the form of (a) roads, (b) undevelopable lakes,
ponds, and wetlands, and (c) substantial acreage of platted (but undeveloped)
residential land. With the exception of "in -filling" or redevelopment within the
developed portions of the community, most of the new growth within Gem Lake
will necessarily take place in the central portion of the City. Most of the
development in this area is low density residential of high quality in a setting of
very high natural environmental character. Recognizing this, many of the land
development policies of the City are directed toward insuring appropriate
development in this uncommitted area, while at the same time setting appropriate
guidelines for these portions of the community already committed to a particular
type of urban development.
General Land Development Policies
The following policies are intended to augment the previously stated community
goals which specifically referred to land development. These policies are, in turn,
intended to be considered as taking precedence over policies listed in the next
section of this chapter which detail desired development objectives within
prescribed "development areas" of the community.
1. The dominant share of total land within Gem Lake should be residential
property at the community's ultimate development stage. Residential uses
will constitute approximately 60 percent of all land in the community, and
28
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approximately 85 percent of all land that could reasonably be developed
(street area, water and wetland areas being considered undevelopable (see
Table 8).
2. It is the policy of Gem Lake to encourage the preponderance of new
development in the form of low density housing 0.3 to 1.0 dwelling units per
net acre). This policy is advocated for the following reasons: a most of the
undeveloped lands within the City lie adjacent to existing low density
residential development, (b) much of the vacant land is of high natural
environmental quality (hilly, wooded, wetlands), and (c) the municipality is
not well equipped to provide the higher level of municipal services that higher
density development would require.
3.
of Gem
approximately 1,200 persons. It is estimated that this threshold may be
reached in 15 to 20 years. This population threshold will be utilized in
planning for community facilities and in the provision of public services. This
population level suggests that Gem Lake will be heavily dependent on
cooperating with other governmental jurisdictions in the provision of certain
urban services.
4. It is the policy of Gem Lake to contain commercial uses to within their
presently zoned areas. This policy is viewed as being extremely important in
achieving the stated goals (a) of maintaining a high quality natural
environment and of (b) encouraging a high quality man-made environment.
Existing commercial development serves an area much larger than Gem Lake
proper. Commercial development in surrounding communities serves most of
the needs of Gem Lake residents. Since much of the commercially zoned land
in the City (as shown in Figure 6) is already developed, future commercial
expansion will be principally through (a) conversion of residentially developed
land within presently commercially zoned areas and (b) upgrading of existing
commercial development.
5. It is the policy of Gem Lake to specifically encourage additional "conven-
ience" retail development serving City residents. While substantial commer-
cial development exists within the City, most of this development is tailored
towards serving a market area substantially larger than Gem Lake. It is the
intention of the Gem Lake municipal government to encourage those who
would provide retail commercial and office facilities that would be of more
direct benefit to Gem Lake residents.
6. It is the policy of Gem Lake to discourage all industrial uses except those
which would be compatible within the defined commercial districts. Exten-
sive industrial development can be easily accommodated in other portions of
the Gem Lake sub -region of the metropolitan area.
7. It is the policy of Gem Lake to review proposed institutional developments on
a case by case basis. To the extent that institutional land uses such as
schools, hospitals, and other institutional uses are compatible with the City
30
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goals of maintaining a high quality natural and man-made environment, it is
possible that these would be permitted within residentially designated
portions of the community. However, for the purposes of this plan no major
institutional uses are anticipated.
8. It is the policy of Gem Lake to maintain the present acreage of semi-public
and public open spaces. At present the only land within the City which enjoys
public access is the semi-public commercial golf course in the northeast
corner of the community. At a minimum, this amount of public open space
acreage shall be maintained as the community reaches ultimate development.
It is the intention of the City to acquire land of similar quality which will
permit more intensive public recreation activities as the community reaches
ultimate development. The principal intention of this policy will be to permit
development of recreational facilities of a convenient neighborhood
character.
9. It is the policy of Gem Lake to preserve the environmental quality of the
water body called "Gem Lake" and its attendant wetland areas. No
construction or land alteration will be permitted within a 100 foot corridor
extending back from the high water mark of this area without a special
council permit.
10. It is the policy of Gem Lake to encourage a substantial improvement in the
housing stock of the City. Recognizing that a substantial portion of the
uncommitted lands in Gem Lake are in the interior portions of the City where
the established development character is of high quality, continuance of this
development pattern will be encouraged. Further recognizing that a
substantial proportion of the existing housing stock of Gem Lake is below the
norm for this sub -region of the metropolitan area and that maintenance
standards have not been at a high level, it is the intention of the City to
undertake strict code enforcement.
11. It is the policy of Gem Lake to accommodate its fair share of low and
moderate cost housing. While recognizing the urgent need in the greater
metropolitan area to provide low and moderate cost housing, it is a policy of
the community to discourage additional housing of this type within its
corporate limits for the following reasons: (a) most of the vacant unplatted
land of the community lies in the central portion of the City which already
has a development character of very high residential quality at low density,
(b) most of this vacant land has very high environmental qualities including
wetlands, wooded areas, and steep topography which would best be left in a
natural setting, (c) existing and proposed public transportation access to
principal places of employment, shopping, culture and education are rela-
tively poor in Gem Lake in relation to other more developed portions of this
metropolitan sub -region, (d) the relatively small threshold population of the
City mitigates against sophisticated public services which lower income
housing units often require, (e) a substantial amount of moderate and low cost
housing already exists in Gem Lake; specifically, according to the 1970
Census, of a total of 59 houses, 25 percent were in the low and moderate
category by reason of cost and 21 percent by reason of rental level, (f)
33
existing plans in adjacent and nearby municipalities will permit substantial
development of low and moderate income housing, and (g) Gem Lake believes
that it is more practical, and is prepared to cooperate with adjacent and
nearby communities in meeting the overall metropolitan need for low cost
market rate housing through transferring Gem Lake's quotas for such housing
under federal or state programs, and the related governmental costs thereof.
City Planning Area Policies
Beyond establishment of general land development policies, an additional set of
policies have been established to more clearly delineate the type of development
which is to be encouraged within the various "planning areas" identified within the
municipal boundaries of Gem Lake. These policies are listed below (see Figure 7)
and are preceeded by a brief discussion of existing conditions in each planning area.
Hoffman's Corners East. The Hoffman's Corners East planning area includes all
that portion of Gem Lake lying east of U.S. 61. This area is completely built up
with only a few vacant lots east of Scheuneman Road. The area contains two major
auto dealers, fast foods and restaurants, a small convenience retail commercial
center, and residential structures. The existing environment for residential living
is currently of a relatively low quality. With additional commercial development
anticipated,. conditions for housing will deteriorate further. Some of the existing
commercial development, particularly the "convenience" commercial, is of mar-
ginal quality.
In response to these existing conditions, the following specific policies for this
planning area are offered:
1. A gradual phase out of all residential uses in this planning area is encouraged.
In the meantime, strict housing code enforcement will be employed.
2. The improvement of "convenience" commercial facilities directed toward
serving the residents of Gem Lake is encouraged.
3. Sewer and water service should be extended throughout all of this
development area as needed.
Hoffman's Corners West. This small portion of the community (approximately 18
acres) is located in the northwest quadrant of the intersection of County Road E
and U.S. 61 and includes all area presently zoned commercially in that intersection
quadrant. Existing land use in this area includes an auto dealership, a dairy, and
dwelling units. This area is essentially completely developed. Commercial
development west and north of this development district will be vigorously resisted.
Northeast Development Area. This area of the City can be roughly described as
follows: a all of the City lying east of Scheuneman Road and north of U.S. 61, (b)
the portion of the City located northeast of Otter Lake Road, and (c) a portion of
the City located between Goose Lake Road and Scheuneman Road which generally
drains into a large pond. Most of this development area lying north of Goose Lake
Road and east of Scheuneman Road is developed with only a few vacant lots
34
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remaining. Most of the vacant land in this development area is located between
Goose Lake Road and Scheuneman Road. Existing land use in this area consists of a
pond, a golf course, and undeveloped residential estate lands. Residential
development is typically of a moderate to a low quality.
The following policies are established to guide further development in this portion
of the City:
1. Moderate to low residential development (24,000 to 31,000 square foot lots) is
encouraged.
2. Retail commercial development of a neighborhood service character is
encouraged in the extreme northeast corner of this area recognizing the
relatively poor environmental quality of this area for residential development
and the good accessibility of this site to most of Gem Lake's proposed
ultimate residential population. Such development could serve this portion of
Gem Lake plus adjacent portions of White Bear (Town) and White Bear Lake.
3. Public open space is encouraged in this development area. The present
position of the Gem Lake Golf Course is particularly well suited for eventual
conversion to a more intensively used public open space. The site is
conveniently located in relation to the planned more densely populated
l portions of the City, and would be easily accessible both from the west and
from the east.
4. Sewer and water facilities should be extended to this area as needed.
Northwest Development Area. This area comprises most of the City located north
of Goose Lake Road. At present this area is partially developed with medium to
low cost residential structures. There are some relatively undeveloped platted
lands, and several undeveloped lots.
The following policies are developed to guide development in this area:
1. Moderately low density residential development (one acre) is encouraged.
2. Sewer and water facilities should be extended to this area as needed.
Central Development Area. This is the largest development area within Gem Lake.
It is located north of County Road E, east of LaBore Road, south of Goose Lake
Road, and southwest of the northeast development area. Most of the uncommitted
land in the City lies within this development area. A partially developed
subdivision is located in the southwestern portion of the area. An additional large
amount of relatively uncommitted lands are located north of County Road E and
east of "Gem Lake." Lying principally north and west of "Gem Lake" are
residential structures on large lots. Overall, residential development quality in this
area is very high. Lying at the center of this development district is Gem Lake and
its attendant wetland areas. This area is environmentally very attractive with a
substantial amount of native vegetation and wildlife.
36
The following policies are proposed for this development area:
1. Encouragement of very low density (three acre lot minimum) residential
development on most vacant lands to maintain the high quality natural
environmental features of the area.
2. Encouragement of moderately low density (one acre minimum lots) residential
land in the southeastern portion of this development area. This land will act
as a transitional parcel between commercial development in the southeast
development area and the very low density residential development planned
to the northwest.
3. Very strict development controls adjacent to Gem Lake and its attendant
wetland areas (including grading, vegetation removal, and introduction of
extensive impervious surfaces.
4. Strict run-off control on all lands draining into Gem Lake.
37
6. TRANSPORTATION PLAN
The preparation of the transportation component of the Comprehensive Municipal
Plan of Gem Lake is based principally on goal number 5 (Chapter 3) which indicates
the desire of the community to cooperate with other units of government in
obtaining a mutually high level of community services. Recognizing that most of
Gem Lake's residents conduct most of their work, shopping, cultural and
educational, and recreational activities outside of the City limits, the quality of
the transportation system outside of the City is important. In addition to serving
goal number 5, the transportation plan of Gem Lake is also intended to indirectly
serve on goals 1 and 2 which call for a high quality man-made and natural
environment within 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 which will
accommodate both private and public motor vehicles. The functional classification
and jurisdictional responsibility for maintaining this sytem is summarized in Tables
9 and 10.
Arterials. The most heavily traveled arterial route through the community is U.S.
61 which serves as a major artery connecting Gem Lake with White Bear Lake and
the more intensively developed portions of the metropolitan area to the south. The
facility connects with the Interstate beltway loop (I-494, 694) around the Twin
Cities at a point approximately one mile south of the community corporate limits.
The only other arterial within the community is County Road E which forms part of
Gem Lake's southern corporate limits. The facility intersects with U.S. 61 in the
southeast portion of Gem Lake, serves the southern portion of White Bear Lake to
the east, and connects with I-35E' located approximately 1/4 mile west of the
western corporate limits of Gem Lake. This latter facility is the only "principal"
arterial near the City.
Collectors. Collector streets include LaBore Road on the western corporate
boundary, Goose Lake Road located in a southwestern -northeastern orientation
near the northern corporate limits 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 uses. These local streets comprise approximately
40 percent of the total roadway mileage within the community.
38
TABLE 9
INVENTORY OF ROADS, STREETS, AND HIGHWAYS
Name of Facility Functional Jurisdication Length
Classification (miles)
U.S. 61
County Road E*
Goose Lake Road
LaBore Road
Otter Lake Road
Scheuneman Road (north)
Scheuneman Road (south)
Hoffman Road
Tessier Road
Haven Lane
Big Fox Road
Little Fox Lane
(easement connecting
to County Road E )
Total
Minor
Arterial
Minor
Arterial
Collector
Collector
Collector
Local
Local
Local
Local
Local
Local
Local
Local
State
Ramsey County
Ramsey County
Ramsey County
Ramsey County
Ramsey County
Ramsey County
Ramsey County
Gem Lake
Gem Lake
Gem Lake
Gem Lake
Private
*East of TH 61 this facility is State Highway 244.
39
0.3
0.9
1.4
0.6
0.2
0.8
0.3
0.2
0.1
0.1
0.4
0.2
0.3
5.8
t
TABLE 10
SUMMARY OF EXISTING ROAD MILEAGE BY JURISDICTION AND
FUNCTIONAL CLASSIFICATION
Jurisdiction Minor Collector Local Total Percent of
Arterial Total
State 0.3 --- --- 0.3 (5)
Ramsey County 0.9 2.2 1.3 4.4 ( 76 )
Gem Lake --- --- 0.8 0.8 (14)
Private --- --- 0.3 0.3 (5)
Total 1.2 2.2 2.4 5.8 (100)
40
Jurisdiction. Ramsey County currently maintains approximately 3/4 of the total
5.8 miles of roadway within Gem Lake (see Table 10) including most of the arterial,
all of the collector, and over half of local street mileage. Gem Lake maintains
only 0.8 miles (approximately 14 percent) of the total mileage. The remaining
roads are under state or private jurisdiction.
Public Transit
The City is presently served by a MTC bus route serving the commercially oriented
southeastern corner of the community (via County Road E and U.S. 61). Since it is
a goal of the community to maintain a "rustic" environment in a natural setting
(goal #1), the resulting low density of residential development will not be
conclusive to substantial increases in bus services. Nevertheless some improve-
ments in the frequency of bus service along the minor arterial street system may
be desirable.
There are no major fixed transit facilities either existing or planned in Gem Lake.
Airports
There are no airports, proposed airport sites, search areas, or other related
facilities located in Gem Lake.
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.
1. Gem Lake supports the study of an improved connection of Otter Lake Road
and County Road "F". The Northeast Area Transportation Study Linder the
sponsorship of the Metropolitan Council and local communities including Gem
Lake has identified the need to establish a series of continuous arterial and
collector routes serving the northeastern portion of the metropolitan area
(see Figure 9). The relocation of Otter Lake Road connecting directly with
County Road "F" in neighboring White Bear Lake might further this objective.
2. Further development of private roads serving more than one property will be
discouraged. While the provision of private roads is consistent with the City's
desire to maintain a low profile government, over the long term this policy
may be detrimental to the City. A higher level of construction standards and
maintenance can probably be assured if the City acquires public rights -of -way
at the time of land development.
31 Accommodating through traffic on new streets will be discouraged. 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.
i/ 4. All future streets should be designed to discourage additional surface water
run-off into "Gem Lake" and its attendant wetlands. Recognizing that Gem
41
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Lake and its attendant wetlands do not have a natural outlet, additional storm
run-off created by the impervious surfaces of streets into this basin should be
discouraged (see also Chapter 5).
5. While the City of Gem Lake has only limited need for public transit service
due to planned low density development 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.
6. Gem Lake officially recognizes that any development affecting navigable air
v space within the community is subject to Minnesota Department of
Transportation, Aeronautics Division, Regulations. The community will
therefore routinely consider such regulations as part of the development
review process.
44
7. COMMUNITY FACH2IIES AND SERVICES PLAN
The Community Services and Facilities Component of the Comprehensive Municipal
Plan is based principally on goal 4 that establishes desire of the residents of the
community to maintain a "low profile" government providing a minimum of urban
services consistent with the needs of a low density "rustic" community, and goal
number 5 which identifies the community's desire to establish long-term service
commitments with other governmental units in the area. It would be undesirable to
maintain a separate municipal commitment for many community services given the
relatively small ultimate population planned for the community.
Policies for a number of critical urban facilities and services are identified in this
chapter. Many of these policies are indirectly or directly expressed in the previous
chapters outlining the Land -Use Plan and the Transportation Plan. A summary of
these policies follows.
Protection, Maintenance, and Professional Staffi
Police. Currently the City receives police protection on a contractual basis from
Ramsey County. As the population of Gem Lake increases, there will be a need to
increase police surveillance. Policy: The City of Gem Lake will seek to combine
with other governmental units in the area in developing a high quality sub -regional
police force.
Fire Protection. The City of Gem Lake currently contracts with the City of White
Bear Lake for fire protection services being charged a base rate plus a fixed charge
per fire occurrance. Policy: The City will seek a longer term commitment by an
association either with Vadnais Heights or White Bear Lake. Fire protection
services might be charged on an annual basis based on reasonable criteria such as
assessed property valuation.
Road Maintenance. Only 0.8 miles of roads are maintained under Gem Lake
jurisdiction. There are an additional 0.3 miles of semi-public streets which are
privately maintained. Policies: (a) The City will discourage future private roads in
order to assure a uniform construction and maintenance standard. (b) 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
retained on a contractual basis. Policies: (a) As the City grows, a part-time, and
ultimately a full-time City Official will be employed to handle day to day civic
45
affairs. (b) Legal, engineering, and planning assistance will continue to be on a
retainer basis.
Waste Management and Water Supply
Sanitary Sewerage System. At present centralized sanitary sewerage facilities
serve only the Hoffman's Corner area of the community and a short segment of
Scheuneman Road north of T.H. 61 (see Figure 10). Vadnais Heights has provided
sanitary sewers along the municipal border with Gem Lake. A new beltline
interceptor sewer line was completed in 1976 along the eastern border of Gem
Lake. Policies: (a) It is the policy of the City to extend sewer mains as needed as
shown in Figure 10. (b) Written working agreements with Vadnais Heights and
White Bear (Town) will be sought to coordinate required extension of sewerage
service through their territories. (c) Appropriate on -site disposal regulations will
be enforced in those areas not served by the centralized sanitary sewer system.
Staging of Sewerage Facilities. It is the intent of Gem Lake to completely sewer
all remaining portions of Scheuneman Road by 1985, and development fronting on
Goose Lake Road by 1990. Other sewer main extensions shown on Figure 10 will be
provided only if a professional engineering assessment indicates the need for such
extensions based on soils conditions and density of development criteria.
On -Site Waste Disposal. Appropriate on -site disposal regulations and enforcement
procedures will be adopted by ordinance and entered in those areas not served by
the centralized sanitary sewer system. (See Chapter 8 "Plan Implementation," for
on -site waste disposal and well ordinance.)
Water Supply System. At present there is no public water distribution system
within Gem Lake. All residential and non-residential development within the
community is served by privately developed wells. Public water distribution mains
are located in White Bear Lake, and in Vadnais Heights. Policies: (a) A centralized
water distribution system should be developed within Gem Lake based on a
comprehensive water service plan. The system might either be developed based on
a well supply within Gem Lake or by attachments to either the Vadnais Heights or
White Bear Lake system or both. (b) Water service should be extended at the same
time in the same priorities as the sanitary sewerage service in order to minimize
street reconstruction and traffic disruption.
Storm Drainage System. There is no storm drainage system within Gem Lake other
than ditches alongside roads within the corporate limits. Two portions of Gem
Lake drain internally into depressions with no surface outlet (see Figure 3, page 8).
The most critical of these is the basin draining into Gem Lake and its attendant
wetlands. Policies: (a) Attempt to restrict or minimize additional storm water
run-off into the Gem Lake Basin in order to protect the water quality of this area.
Particular attention should be placed on water retention to settle out undesirable
sediments and to minimize siltation. Impervious areas should be restricted within
100 feet of Gem Lake and its wetlands. (b) Surface water drainage into the north
pond might be encouraged recognizing that this pond has minimal ecosystem value
and may be more attractive if higher water levels are maintained. (c) Seek
cooperative agreements with White Bear (Town) and Vadnais Heights for surface
46
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drainage easements as needed. (d) Require storm
as an alternative to ditches which are a long-te
policy excludes the very low density (three acr
portion of the City. (e) Provide storm sewerag
portions of the community.
Special Facilities
e
sewers on new road construction
rm maintenance problem. This
e minimum) area in the central
in all commercially developed
Municipal Building. There is no public owned or leased space where community
records are maintained and no public location where a resident may call for
assistance. Policy: As Gem Lake develops, a municipal building should be
purchased or leased by Gem Lake to serve as the community's governmental center.
Public Schools. All primary and secondary school students who are Gem Lake
residents are bused to White Bear Lake. The ultimate population holding capacity
of Gem Lake will not in itself generate a sufficient school age population to justify
a grade school within the corporate limits. However, Gem Lake in combination
with the contiguous areas of Vadnais Heights and White Bear (Town) may create the
need for a grade school which might appropriately be located in Gem Lake. Policy:
If a grade school were to be located in Gem Lake it may be most appropriately
sited in the northeast corner of the community contiguous to the planned public
open space area.
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 in the
central area of St. Paul approximately seven miles distance. Policy: Gem Lake
should cooperate with other local governments in encouraging a hospital facility
within a more convenient proximity.
Outdoor Recreational Facilities. There are no publicly held open spaces or
recreational facilities within the community. All existing outdoor recreation with
the community must currently occur on (a) privately developed lands, (b) vacant
lots, or (c) the streets. Policies: (a) Consistent with the intention to acquire public
open space a neighborhood oriented park will be provided as the community
develops. This might include a picnic ground, a ball field, tennis courts, and
playground facilities. (b) The first preference for a community park shall be in the
northeast section of the community (see Figure 4). (c) It is expected that such a
park area will be acquired and constructed by 1990. (d) The community will
continue to rely on Ramsey County for development of larger natural resource
based recreational facilities.
48
8. PLAN IMPLEMENTATION
The goals and policies as set forth in the previous plan chapters which, in
combination, make up the Comprehensive Municipal Plan of Gem Lake, can be
effective only by vigorous enforcement supported by City ordinance, supplementary
plans, and ongoing policy decisions by the City's Planning Committee and Council.
The principal purposes of this plan chapter are to (a) list those ordinances currently
in effect that are intended to support the Comprehensive Plan, (b) identify desired
alterations to these ordinances to improve their relationship to the plan proposals,
and (c) list additional municipal ordinances and controls that might be applied to
further the goals of the Comprehensive Plan. The current status of existing and
proposed community development guides is summarized in Table 11.
Existing Municipal Development Ordinances and Plans
Zoning Ordinance. Gem Lake has an officially adopted zoning ordinance that has
been amended several times (see Figure 6 on page 31 which shows Gem Lake zoning
districts as of January 1978). The principal purpose of this ordinance is to detail
with greater specificity than the Comprehensive Municipal Plan the specific types
and intensities of land -use which are desired in various portions of Gem Lake.
Suggested ordinance alterations are the following:
1. Delete provisions allowing moderate -density residential development (less
than 1/4-acre lots) in commercial districts. Since it is a plan policy to
discourage further residential development in commercial districts, further
residential development of this density will not be allowed within Gem Lake.
2. Permit clustering of single-family homes or attached homes subject to the
same overall density regulations. (This is a "Planned Unit Development"
proposal which is discussed as a separate ordinance below.)
3. Reduce the number of commercial districts from three to two. Most
appropriately, combine the "Limited Business" and "Retail Business" districts
into one district.
Subdivision Ordinance. Gem Lake has an officially adopted subdivision ordinance.
The primary purpose of this ordinance is to establish construction standards and
responsibilities of those wishing to develop portions of the City. Particularly
important are standards for roadway construction and utilities. Suggested
ordinance additions and alterations include the following:
I. Include design standards for sewer and water facilities.
49
TABLE 11
STATUS OF ORDINANCES, PLANS AND OTHER CONTROLS GUIDING
DEVELOPMENT WITHIN GEM LAKE
Development Guide
1. Zoning ordinance
2. Subdivision ordinance
3. Sign ordinance
4. Housing code
5. Building code
6. Comprehensive sewerage plan
7. Planned upi
a'blevelopment
ordinance
8. Land alteNtagn and conservancy
ordinance
9. On -site w�s�j disposal and well
ordinance a'
10. Lake use ordinance (a)
11. Architectural control ordinance (a)
12. Developer impact statements(a'b)
13. Comprehensive water supply plan
14. Capital improvement plan
(1 year, 5 year, 10 year)
($)could be part of zoning ordinance
(b)could be part of subdivision ordinance
Status
Adopted, alterations proposed
Adopted, alterations proposed
Adopted
Adopted, suggested adoption of new
code
Adopted, state code manditory
Prepared, currently being revised
Proposed
Proposed
Proposed, under active investigation
for adoption
Proposed
Deferred consideration
Proposed
Deferred consideration
Proposed
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2. Include provisions and assign standards for storm water run-off.
3. Include specifications and standards for required street construction such as
pavement widths and building materials.
4. Disallow any further provision of private roadways serving more than one land
owner except in extenuating circumstances.
Sign Ordinance. Gem Lake has an officially adopted sign ordinance. The purpose of
this ordinance is to establish design standards for signs of various types within the
corporate limits of the community.
Housing Code. It is suggested that the city draft a new updated housing code along
state guidelines. The principal purpose of this code is to establish specific
standards for habitability of existing residential structures. Thus, the code can be
used as a guideline for requiring certain levels of maintenance within housing
structures and appurtenant property.
Building Code. Gem Lake has adopted the provisions of the 1958 building code of
White Bear Lake. The purpose of the building code is to establish specific
construction standards for all new structures in the community. It is suggested
that the City adopt the uniform state building code.
Comprehensive Sewerage Plan. A comprehensive sanitary sewerage plan was
prepared for the City of Gem Lai<e by Milner W. Carley and Associates in March of
1969 and revised most recently in 1977. The purpose of the plan was principally to
indicate the desired locations and sizes of trunk sewer lines within Gem Lake.
Subsequent capital improvement programming should include detailing the staging
and costs of the proposed trunk sewers.
Proposed Community Development Ordinances and Plans
Beyond the development enforcement tools which are now in effect within Gem
Lake, it is the policy of the municipal government to consider the following
additional plan effectuation measures:
Planned Unit Development Ordinance. This ordinance would be intended as a major
addition to the existing zoning ordin-- of the community. The principal intent of
the ordinance would not be to increase any prescribed residential densities within
the City but rather, would permit future developments to be designed with greater
flexibility in enhancing the goals of maintaining a high quality man-made and
natural environment within the City. Central to the planned unit development
approach would be the clustering or attachment of residential dwelling units in a
relatively small portion of a given development parcel with the intent of leaving a
greater portion of the parcel in relatively undisturbed natural open space.
Land Alteration and Conservanev Ordinance. The intent of such an ordinance
would be to restrict grading of land, removal of vegetation, and introduction of
impervious materials in selected portions (or all) of the City without receiving a
permit. The application of such a conservancy ordinance would be particularly
51
important in the protection of the central portion of the City, most particularly
that portion of the City immediately adjacent to Gem Lake and its attendant
wetlands. The ordinance could be either freestanding or prepared as an attachment
to the zoning or subdivision ordinances.
On -Site Waste Disposal and Well Ordinance. Recognizing that significant portions
of the City may not receive sanitary sewerage or water distribution services for
some time, it is appropriate to control carefully the quality of on -site disposal and
well systems within the City. It is the intent of Gem Lake to formally adopt
Minnesota Pollution Control Agency standards for on -site disposal systems and to
use these standards in the issuance of permits. The City further intends to
contract for professional expertise (either through adjacent communities or
independently) for ongoing inspection of such units.
Lake -Use Ordinance. Recognizing that Gem Lake and its attendant wetlands are a
relatively fragile environment, it may be appropriate to restrict the types of
activities that would be permitted on the surface of this body of water.
Restriction of certain activities such as swimming, or use of high powered motors
might be considered. This might be part of the community's zoning ordinance.
Architectural Control Ordinance. The purpose of this ordinance would be to
restrict the type of architectural styles that would be permitted in selected
portions of the City. The inclusion of such an ordinance would be particularly
appropriate in the center portion of the City where residential development of a
high quality is desired. This ordinance could be freestanding or an attachment to
the zoning ordinance.
Developer Impact Statements. It is entirely consistent with current development
practices to place the burden of proof upon a developer to indicate the type of
impact a proposed development would have on the remainder of the community.
The impacts that should be analyzed are principally (a) fiscal and (b) environmental.
The fiscal impact statement would establish the anticipated revenues of a proposed
project in relation to the added costs to administering units of government. The
environmental impact assessment would include comment on such factors as (a)
alteration of the natural environment (trees, topography), (b) provision of public or
semipublic open spaces, and (c) traffic impact on adjacent land development.
Comprehensive Water Supply Plan. The intention of a water distribution plan would
be similar to the already prepared and cost sanitary sewerage plan. The water
supply plan would indicate the locations and sizes of water distribution lines within
the community. The specific staging and cost of this plan should be indicated in
subsequent capital improvement plans.
Capital Improvement Plan. In order to guide long-term expenditures for costly
public facilities within the community, adoption of a capital improvement plan will
be considered for the following time frames:
1. A one-year improvement plan designed principally for local use to be
combined with the local municipal budget. (This would be updated annually.)
52
2. A less precise five-year plan, the principal intent of which would be to
coordinate with other governmental units (such as adjacent communities,
state agencies, county agencies, the Metropolitan Council and the Metropoli-
tan Waste Control Commission in the provision of public facilities.
3. A long-range capital improvement plan of ten to twenty years range to
establish a rough estimate of the magnitude of capital costs to be expended
by the City in the process of reaching its ultimate development holding
capacity.
The Capital Improvement Plan ought to include costs for the following types of
facilities and the specific locations within the community where these facilities are
to be provided:
1. Roadway improvements
2. Utility systems (sanitary sewer, water mains, storm sewer)
3. Open spaces to be acquired and/or developed
4. Other public facilities (municipal building)
Housing Implementation Program. Gem Lake recognizes that increasingly the
Federal, State, and some local governments are providing technical, planning, and
financial assistance to local communities. (A potential possibility would be a
metropolitan or sub -metropolitan housing and renewal authority (HRA) serving that
portion of the metropolitan area in which Gem Lake is located.) Gem Lake will be
alert to such assistance, particularly as it related to low and moderate cost housing
and improvement of same, so as to carry its share of the load in this regard.
53
b
BARTON-ASCHMAN ASSOCIATES, INC.
Evanston:820 Davis Street, Evanston, Illinois 60201 (312) 491-1000
Washington, D.C.: 1730 K Street, Northwest, Washington, D.C. 20006 (202) 466-8230
Minneapolis -St. Paul: Ten Cedar Square West/ Cede r- Riverside, 1610 South Sixth Street
Minneapolis, Minnesota 55404 (612) 332-0421
San Jose: 4320 Stevens Creek Boulevard, Suite 220, San Jose, California 95129 (408) 249-5300
Loa Angeles: Suite 334, Bradbury Building, 304 S. Broadway, Los Angeles, California 90013
(213)624-6662
Toronto: Barton-Aschman Canada Limited, 111 Avenue Road, Suite 604, Toronto, Ontario M5R 3J8
(416) 961-7110