HomeMy WebLinkAbout#13 - 2040 Comprehensive Plan Update STAFF REPORT
DATE: 02/05/2019
REGULAR
TO: Planning Commission
FROM: Ken Roberts, Planning Director
AGENDA ITEM: Approval of the 2040 Comprehensive Plan Update
REVIEWED BY: Jennifer Haskamp, Swanson Haskamp Consulting
Kristina Handt, City Administrator
INTRODUCTION
The City Council is being asked to review and approve the final draft of the 2040 Comprehensive Plan
Update and authorize staff to submit the proposed Comprehensive Plan update to the Metropolitan
Council.
BACKGROUND:
The City has been working with consultant Swanson Haskamp Consulting since February of 2017 on
the 2040 Comprehensive Plan Update (Update). As part of the update process, the city held several
community engagement events including 4th of July Parade, Arbor Day, Tri-Lakes Ski Show, Farmers
Market; Advisory Panel meetings; and two Open Houses. Two public hearings were held at the Planning
Commission meetings on May 7, 2018 and May 30, 2018 and two Council Workshops were held at the
March 13, 2018 and May 8, 2018.
As explained at the May 15, 2018 City Council meeting, the City’s 2040 Comprehensive Plan Update
(Update) was originally due to the Metropolitan Council by December 31, 2018. While the City wanted to
meet that deadline, an extension request was made (and it was granted) to extend this deadline to
February 28, 2019. Before the City can submit the Update to the Metropolitan Council, it must first
submit the Update to adjacent jurisdictions for review. These jurisdictions have up to six months to
complete this review, although it may not take this long. (This review period is now complete). The
next step is for the City Council to approve, with a 4/5 vote, to submit the Comprehensive Plan update to
the Metropolitan Council for their final review and approval.
On January 14, 2019, the Planning Commission held a public hearing, took testimony from two interested
parties and recommended approval of the final draft of the 2040 Comprehensive Plan Update. (See their
comments below).
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Neil Krueger, 4452 Lake Elmo Ave, has been part of the process for a long time and has submitted comments in the past. Krueger feels that the City could do a better job of responding to comments that are submitted. Krueger is wondering what the process is for the MUSA boundary to be changed. Krueger feels strongly about providing affordable housing. There was no discussion about the Manning/Hwy 36 area which has land in Lake Elmo. Krueger feels that design standards are very important and the term should be recognized in the Comprehensive Plan. Krueger is wondering if there will be enough fresh water to provide for the population that is proposed for the next 20 years and are there any assurances that we can provide water to residents. Susan Saffle, 110180 50th Street, greatest concern is fresh water for the City and if there will be enough for people as the population grows.
ISSUE BEFORE CITY COUNCIL:
Should the City Council approve the final draft of the 2040 Comprehensive Plan Update and authorize
staff to submit the updated Comprehensive Plan to the Metropolitan Council for their approval?
PROPOSAL DETAILS/ANALYSIS:
Option to Make Changes after Jurisdictional Review. The submittal for adjacent jurisdictional
review was sent in draft form. Therefore, the City Council can still make minor changes to the
Draft 2040 Comprehensive Plan. These changes cannot be significant however, in that they cannot
significantly impact traffic patterns or land use for adjacent jurisdictions. The City could still make
changes to the goals and strategies – but staff would not recommend any at this time.
Changes since the 2030 Comprehensive Plan. The City Council requested at the workshop on
May 8, 2018 that Staff outline the significant changes since the last Comprehensive Plan Update.
Below is a summary of these changes, categorized by Chapter:
• Chapter 1: Community & Planning Context
o This provides a summary of current demographic and socio-economic trends;
current market snapshot (both local and regional) and planning context (regional
context requirements by the Metropolitan Council and local context and objectives
guiding plan development). The regional context requirements reflect the
Metropolitan 2015 Systems statement, which forecast that Lake Elmo will more
than double its population and add more than 2.5 times the number of households
counted in the last census of 2010, and employment will add another 1,000 jobs,
increasing by 125% from now until 2040. The local context and objectives guiding
plan development describe the process through which the Update was drafted. It
also outlines changes from the 2030 Plan, which explains that the Update is a re-
write from the previous Plan, taking in to consideration current market place and
expected demand.
• Chapter 2: Vision, Goals & Strategies
o This chapter is similar to the 2030 Plan’s City-Wide Planning Policy. The former
plan’s City-Wide Planning Policy outlined goals that pertained to that planning
period, including agricultural preservation, goals for residential and non-residential
development, housing, environmental protection, municipal services,
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transportation, I-94 Freeway Corridor Planning Policy, and Village Area Planning
Policy. The 2040 Update provides a Vision Statement and outlines goals and
strategies. These goals and strategies were derived from a Strengths, Weaknesses,
Opportunities and Threats (SWOT) analysis exercise by the Advisory Panel. These
goals and strategies pertain to character and governance; land use; balanced
development and growth; and housing; parks, trails and open space; and
transportation and infrastructure.
• Chapter 3: Land Use
o Sewered Development. The previous existing land use plan did not include any
developed areas that were in the Metropolitan Urban Services Area (MUSA), and
the 2040 Update’s existing land use includes sewered development (Inwood,
Savona, Easton Village, etc.).
o Density. Densities within the plan have changed as follows:
Density ranges for Medium Density Residential and High Density
Residential were shifted from 4.5-7 units per acre (upa) to 4.0-8 upa and
7.5-15 upa to 8-15 upa, respectively, to allow for a better integration of uses
and more flexibility to respond to market demands.
Density ranges for Village Low Density Residential and Village Medium
Density Residential have hanged from 1.5-2.49 upa to 1.5-3 upa and 2.5-
4.99 upa to 3-8 upa, respectively, and a Village High Density Residential
Land Use with a density of 8-12 upa in order to provide for an increase in
types of housing stock, provide opportunities for a more affordable and
lifecycle housing, and bring higher concentration of people living close to
Village destinations and amenities.
o Mixed Use. The Mixed Use south of 10th Street has changed. The 2030 Plan stated
that mixed use areas south of 10th Street could be zoned in accordance with either
the base or adjacent land use category. This is not actually mixed use. The 2040
Update actually proposes mixed use commercial and mixed use business park land
uses in parts of the areas south of 10th Street, which assumes that land will develop
with a minimum of 50% residential use.
o Business Park. The Business Park land use category specifically exempts
residential use, warehousing, manufacturing, distribution, assembly and truck
terminals, whereas the 2030 Plan allowed such uses. The aforementioned mixed
use business park does, however, allow warehousing, showroom, light
manufacturing and residential use.
o Commercial. The Commercial category specifies that this land use category is to
be used for retail business and not to be used for residential, whereas the 2030 Plan
allowed for a broader range of uses, including residential. The mixed use
commercial category does allow residential use.
o Village.
Greenbelt Buffers. These are not within the 2040 Update. The City can still
require buffering through ordinance development including required
setbacks, landscaping, etc. to buffer less intensive uses from more intensive
uses.
Much of the area north of Stillwater Boulevard is now guided for
Commercial, while it was previously designated as Village Mixed Use.
Most of the area south of Stillwater Boulevard is planned Village Mixed
Use with areas to the east planned medium density residential.
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There is no longer a Village Plan. Rather, there is reference to creating three
districts within the Village: Civic, Elmo Station, and Old Village, which are
further described in the Balanced Development & Growth Chapter (Chapter
4).
o Rural Areas. Residential Estates and Rural Single Family land use designations
were combined into one Rural Single Family land use designation, which allows
development at a density of 0.1-2 units per acre. Additionally, there is no longer a
density requirement for Open Space Preservation developments. The Update
simply states that these developments generally average more than one residential
unit per 10 acres.
o MUSA. There is no change to the MUSA except for amendments since the 2030
Plan that the City Council has already approved.
o Staging Plan. The Staging Plan has changed slightly, and specifies specific
development time periods and includes the Village Area. The 2030 Plan designated
stages. The 2040 Update still designates the areas south of 10th Street in the same
order as the 2030 Plan.
• Chapter 4: Balanced Development & Growth
o This is a new chapter that describes what types of development patterns exist today,
where those patterns are changing and evolving and where they are likely to stay
the same.
• Chapter 5: Housing
o The housing chapter presents important housing principles that underscore the
dynamics behind the role and importance of housing as a key element within the
Plan; focuses on existing housing stock, summarizing important information
regarding the overall number, types, affordability, and occupants of housing units;
projected need for housing during this planning period; and practical
implementation tools to help the City achieve its identified housing goals. The 2030
Plan had similar goals, including providing more affordable and a wider variety of
housing.
• Chapter 6: Parks, Trails, and Open Space
o The Parks and Trails chapter focuses on refining and synthesizing information
contained within the 2030 Comprehensive Plan and preparing an update that is
more concise, clear and direct about the City’s goals and objectives for its future in
regards to parks and trails. It now functions at a higher level of detail that will focus
and more clearly demonstrate the interconnected quality of the Parks and Trails
system. There are wider park search areas, and the trail plan identifies a regional
trail search corridor and broader trail search corridors. This Chapter will evolve in
to an updated Park System Plan and a Trail System Plan that implements this
chapter as part of the implementation process.
• Chapter 7: Transportation
o The 2030 Plan has been updated to use new numbers in the 2040 Plan and also
includes updated road classification and new improvements to be made.
• Chapter 8: Surface Water
o Information updated.
• Chapter 9: Wastewater Facilities
o Information from the 2030 Plan was updated significantly, as the 2030 Plan only
planned for, and did not include, infrastructure.
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• Chapter 10: Water Supply
o It is required that the City update this section with the 2040 Comprehensive Plan
housing and population projections. The numbers will need to be updated once the
final population numbers are determined.
• Chapter 11: Implementation
o Rather than designating implementation within each individual chapter, there is an
implementation chapter that describes implementation for each chapter in the 2040
Comprehensive Plan Update.
Jurisdictional Review Comments:
The City received a few comments from adjacent jurisdictions about the proposed 2040
Comprehensive Plan Update. Many of the comments were recommending minor corrections
(especially to the maps), were notes of general support or had no comment.
The City of Afton sent comments about the proposed update. I have attached their comments for
your consideration. While staff appreciates their concerns and comments, it is our opinion they
are not significant enough to warrant changes to the proposed 2040 Comprehensive Plan Update.
Washington County also sent comments about the Draft Plan. I have attached their comments for
your consideration. Staff has incorporated many of their comments in this latest version of the
plan.
The Metropolitan Airports Commission (MAC) sent the City comments for the Transportation
Chapter (Aviation) relating to Lake Elmo Airport, its Master Plan and how that plan relates to the
City of Lake Elmo. They noted that they recently updated the Airport Master Plan and that the
Airport is now classified as a regional airport. They also noted the ongoing importance of runway
and airspace protection zones around the runways and that the City should take these into
consideration when reviewing new developments. We have incorporated their relevant comments
and changes into the Plan update as needed.
Since June of 2018, staff also made some minor spelling and grammar corrections and
clarifications to the draft 2040 Comprehensive Plan Update. They are included in the latest version
(dated 1-06-19) for your review. The latest version of the 2040 Comprehensive Plan update is
available on the City website and is available at lakeelmoplan2040.com/documents/ (To open: Right
click then click open hyperlink). This is the version of the proposed Comprehensive Plan the City Council
should be considering and making a decision about this evening. Staff has attached Chapter 3, the
Land Use Plan, and Chapter 5, the Housing Plan of the draft Comprehensive Plan Update to this
report as they had the most changes since June and are probably of most interest to the City
Council.
OPTIONS:
Staff is requesting that the City Council review and approve the January 6, 2019 version of the
Comprehensive Plan update and authorize staff to submit the updated Comprehensive Plan to the
Metropolitan Council. The City Council may:
1. Approve the proposed 2040 Comprehensive Plan update as written;
2. Approve the proposed 2040 Comprehensive Plan update with minor changes;
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3. Direct staff to send the draft 2040 Comprehensive Plan update back to the Planning
Commission for further study and possible changes; or
4. Take no action on the proposed 2040 Comprehensive Plan update.
RECOMMENDATIONS:
Staff recommends the City Council:
1. Approve the proposed 2040 Comprehensive Plan update with the Chapters dated 1-06-
2019 and 1-30-2019; and
2. Authorize staff to submit the proposed Comprehensive Plan to the Metropolitan Council.
by adopting the following motions:
1. “Move to adopt Resolution 2019-011 approving the proposed 2040
Comprehensive Plan Update (with the Chapters dated 1-06-2019 and 01-30-
2019):
and
2. Move to adopt Resolution 2019-012 authorizing staff to submit the updated
Comprehensive Plan (and all required materials) to the Metropolitan Council
for their approval.”
Note: The Metropolitan Council specifically requires the City Council adopt separate
motions for each of these items.
ATTACHMENTS:
1. 2040 Comprehensive Plan Update (1-6-19)
2. Chapter 3 – Land Use Plan Chapter dated 1-30-2019 of 2040 Plan Update
3. Chapter 5- Housing Chapter dated 1-30-2019 of the 2040 Plan Update
4. City of Afton comments
5. Washington County comments
6. Resolution of Comprehensive Plan Approval
7. Resolution Authorizing Plan Submittal to the Metropolitan Council
DRAFT Chapter 3: Land Use
Existing & Future
F
Draft 2040 Future Land Use Plan
Urban Reserve
V-UHD
V-MXD
V-ULD
V-UMD
MXD-BP
MXD-UHD
ULD
UMD
UHD
RAD
RE
RSF
RSFS
GC
C
LB
Institutional
BP
Park/OS
ROW
PSP
MUSA2040_Revised
2020 -
2030
2020
2020 SOUTH MUSASOUTH MUSAVILLAGEMUSA
2020
existing
existing
existing
2030-2040
post-2040 2030-2040
2020 -
2030
post-2040
post-2040
existing
2020
ex
i
s
t
i
n
g
post-2040
existing
existing
F
Draft 2040 Future Land Use Plan
Urban Reserve
V-UHD
V-MXD
V-ULD
V-UMD
MXD-BP
MXD-UHD
ULD
UMD
UHD
RAD
RE
RSF
RSFS
GC
C
LB
Institutional
BP
Park/OS
ROW
PSP
MUSA2040_Revised
2020 -20302020
2020 SOUTH MUSASOUTH MUSAVILLAGEMUSA
2020
existing
existing
existing
2030-2040
post-2040 2030-2040
2020 -
2030
post-2040
post-2040
existing
2020
ex
i
s
t
i
n
g
post-2040existing
existingIDEALAVEN60THSTN
10TH ST N
LAKEELMOAVENS TILLWATE R B LV D N
30TH ST N
KEATSAVENOLSONLAKETRLN 50TH ST N
MANNING AVE N
47TH ST N34TH ST NLAKE J A N E TRL N 4 5 T H ST N
INWOODAVENHorseshoe
ClearUnnamedDeMontrevilleOlsonJaneBerschen'sPond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
GoetschelKlawitterPondDeerPondCrombiePondHedge'sPond Dirk'sPond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.2.2018
Source: Washington County,
MNGEO, SHC
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
Institutional
BP
C
Park
PSP
Reserve
Closed Landfill
ROWIDEALAVEN60THSTN
10TH ST N
LAKEELMOAVENSTILLWATER BLVD N
30TH ST N
KEATSAVENOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE JA NE TRL N
4 5TH ST N
INWOODAVENHorseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.2.2018Source: Washington County, MNGEO, SHC
Closed Landfill
AP
ELU
RAD
RSF
LDR
MDR
V-LDR
V-MDRLB
BP
GB
C
MXDIndustrial
Institutional
Golf Course
PSP
Park/OS
Undeveloped
ROW
Comprehensive Plan 2040
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
2
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
1
INTRODUCTION
The City of Lake Elmo is a growing, engaged and dynamic community that has
experienced significant change over the past planning period. The City’s proximity
to jobs and access to regional amenities means that the City will likely continue to
experience external pressures to grow. Consequently, it is essential for the City to
develop a thoughtful, well-planned approach to its future land uses and growth strategy.
The following Chapter will focus first on existing land uses that will provide a baseline
from which the Future Land Use Plan (FLU) was derived. The FLU guides anticipated
densities of new neighborhoods, locations of future mixed-use and employment centers,
and guides land for commercial and retail services through 2040. The community
understands that while there is significant growth pressure and demand today for certain
types of development, that demand is likely to ebb and flow and change over the next
several decades as market trends fluctuate. More detail regarding current market trends
and development can be found in Chapter 4. Balanced Development & Growth within
this Plan; however, the pace of growth is addressed through the Staging Plan that is
included in subsequent sections of this Chapter. The Staging Plan provides sequential
geographic areas available for development and growth during prescribed time periods
that methodically allows for contiguous development and cost-effective expansion of
municipal services to undeveloped areas of the community.
The Future Land Use, Staging and Special Area plans contained within this Chapter,
if consistently followed and implemented, directly support the goals and objectives
contained within Chapter 1: Vision, Goals & Strategies. The intent of this chapter is to
demonstrate where land use changes are anticipated, where existing land use patterns are
guided to stay the same, and how these land uses patterns will continue to support the
identity and character of the community through this planning period.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
2
2040 Land Use Highlights – What’s to Come
»The Existing Land Use Patterns in the Rural Residential
areas should be protected through this planning period;
some new rural residential neighborhoods, including
open space developments, are anticipated to develop
consistent with the City’s rural tradition.
»New Future Land Use designations will allow for a better
response to market conditions and will allow greater
options in land use choices.
»Integration of more diverse neighborhood patterns and
densities will allow for a stronger commitment to the
staging plan.
»Refinement of staging and infrastructure phasing to
promote contiguous, efficient development patterns.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
3
Existing Land Use
The existing land use patterns reflect the City’s past commitment to the rural landscape
and investment in development of primarily single-family detached housing. Rural
residential neighborhoods with conventional rural subdivisions and open space
development subdivisions are sprinkled throughout much of the community’s
landscape. The many lakes of the City are dotted with smaller residential lots that
once were dominated by vacation homes that have now transitioned to full-time
residences. The Lake Elmo Regional Park Reserve is centered in the City providing
a hub of natural and recreational resources for both City and metro area residents.
The “Old Village” is the historical hub of activity in the City, and a mix of uses is
present today including some residential, commercial and office users. Business uses,
employment pockets and retail/service users are primarily located in or near the “Old
Village”, along the I-94 corridor, or at major intersections and thoroughfares.
In Lake Elmo’s 2030 Comprehensive Plan, the City’s existing land uses did not
include any areas that were connected to municipal services or located within the
Metropolitan Urban Service Area (MUSA). Now, in this 2040 Plan, the existing land
use patterns include neighborhoods that have been developed or are under construction
that were guided in the MUSA in the previous plan. The availability of municipal services
has allowed for the addition of new land use patterns that can be found in developing
neighborhoods such as Inwood, Savona, and Easton Village. Additionally, the Old Village
area has been incrementally served and connected to municipal services over the past
decade, which has allowed for existing small-lot residential neighborhoods to be served, as
well as new neighborhoods under development. While the developing neighborhoods in
the MUSA continue to be dominated by single-family detached uses, some diversification
has started to emerge as a few small pockets of medium-density residential uses are under
construction and development.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
4
Table 3-1. Existing Land Use
Existing Land Uses Residential Density
(dwelling units/acre)Acres % Total Acres
Agricultural Preserve (AP)0.025 414.70 2.67%
Rural Area Development (RAD)0.1 6,103.13 39.36%
Rural Estate (RE)0.1 -0.4 815.26 5.26%
Rural Single Family (RSF)0.66 - 2.0 1,754.14 11.31%
Low Density Residential (LDR)2 - 4 182.06 1.17%
Medium Density Residential (MDR)4 - 8 231.41 1.49%
Village - Low Density Residential (V-LDR)1 - 4 36.08 0.23%
Village - Medium Density Residential (V-MDR)4 - 6 48.18 0.31%
Mixed Use (MU)5 - 12 4.93 0.03%
Undeveloped (U)Various 392.15 2.53%
Limited Business (LB)NA 71.79 0.46%
Business Park (BP)NA 88.01 0.57%
General Business (GB)NA 70.09 0.45%
Commercial (C)NA 50.27 0.32%
Institutional (INST)NA 305.40 1.97%
Closed Landfill (CL)NA 67.53 0.44%
Public/Semi-Public (PSP)NA 123.55 0.80%
Golf Course (GC)NA 267.36 1.72%
Parks & Open Space (POS)NA 2,531.43 16.32%
Right of Way (ROW)NA 594.18 3.83%
Open Water NA 1,355.29 8.74%
TOTAL 15,506.96 100.00%
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
5
Map 3-1. Existing Land Use Map 2018
IDEALAVEN60TH ST N
10TH ST N
LAKEELMOAVENS TILLWATER BLV D N
30TH ST N
KEATSAVENOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TRL N
4 5 T H ST N
INWOODAVENHorseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.2.2018
Source: Washington County,
MNGEO, SHC
Closed Landfill
AP
ELU
RAD
RSF
LDR
MDR
V-LDR
V-MDR LB
BP
GB
C
MXD Industrial
Institutional
Golf Course
PSP
Park/OS
Undeveloped
ROW
Closed Landfill
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
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Existing Land Use Definitions
Agricultural Preserve (AP)
This land use designation identifies land enrolled in the Agricultural
Preserves program. Land in this designation is required to be guided for
no more than 1 dwelling unit per 40 acres and is protected from further
subdivision during the contract period.
Rural Area Development (RAD)
This land use designation represents the large areas of rural residential
development and agricultural uses within the City. Common uses found in
these areas include working farms, alternative agricultural uses as defined by
City Code and rural single-family detached residences. Development in these
areas requires 10+ acres, or a conditional use permit to authorize a cluster
development meeting the City’s Preserved Open Space regulations.
Rural Estate (RE)
This land use designation defines areas developed specifically for large lot
single-family detached housing typically on two or more acres of land, but
developed at densities more than one unit per ten acres.
Rural Single Family (RSF)
This land use designation identifies land that was platted for conventional
subdivision prior to 2005, and includes large lots that are primarily serviced
by private on-site well and septic system.
Low Density Residential (LDR)
This land use designation identifies land that has been developed with
primarily single-family detached housing with urban services between
2010 and 2018 at densities between 2.5 and 4 dwelling units per acre. This
existing land use is only located within the South MUSA.
Medium Density Residential (MDR)
This land use designation identifies land that has been developed primarily
with a mix of attached and detached single-family housing with urban
services between 2010 and 2018 at densities between 4.5 and 7 dwelling
units per acre and the manufactured home park that was developed in the
1960s. This existing land use is only located within the South MUSA.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
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Village - Low Density Residential (V-LDR)
This land use designation identifies land that has been developed with
primarily single-family detached housing with urban services between 2010
and 2018 at densities between 1.5 and 2.5 dwelling units per acre. This
existing land use is only located within the Village Planning MUSA.
Village - Medium Density Residential (V-MDR)
This land use designation identifies land that has been developed with
primarily single-family detached housing with urban services between
2010 and 2018 at densities between 2.5 and 5 dwelling units per acre. This
existing land use is only located within the Village Planning MUSA.
Mixed Use (MU)
This land use designation identifies land developed with a mix of
commercial and residential uses and is limited to land within the Village
Planning Area.
Undeveloped (U)
This land use designation identifies land within the South MUSA and Village
MUSA that has been approved for future sewered development through a
Preliminary Plat or PUD process, but Final Plat has not been completed.
Limited Business (LB)
This land use designation identifies areas that are developed with
commercial users that are not served by urban services. Users in this
designation are generally less intense than would be permitted in the
planned MUSA designations.
Business Park (BP)
This land use designation identifies areas used for professional businesses
including medical and research facilities, offices and corporate headquarters.
Users specifically excluded for existing park areas include warehousing,
manufacturing, distribution, assembly and truck terminals. Retail sales of
goods and services are allowed by conditional use permit.
General Business (GB)
This land use designation identifies areas used for general business activities
that currently include warehousing, light industrial and manufacturing uses.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
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Commercial (C)
This land use designation identifies areas that are used for retail and
service businesses. This land use can be found within the Village MUSA
and South MUSA.
Institutional (INST)
This land use designation identifies lands that are developed with public
or semi-public uses including users such as, but not limited to, religious
institutions, schools, libraries and other civic buildings.
Public/Semi-Public (PSP)
This land use designation identifies lands that support adjacent development
with stormwater ponds and other utilities and may include ancillary uses
such as trails and small open spaces.
Golf Course (GC)
This land use designation identifies land that is used for a private golf course
and ancillary uses that may include, but not be limited to, driving range,
clubhouse and other amenity centers.
Park & Open Space (POS)
This land use designation identifies land that is used for park, recreation,
trails, other natural resources preservation. Land within this designation is
publicly owned by either the City, county, or other public agency.
Closed Landfill Restricted (CL)
This land use designation identifies former landfills that are qualified to
be under the Closed Landfill Program of the Minnesota Pollution Control
Agency (MPCA). The purpose of this category is to limit uses of land within
the closed landfill, both actively filled and related lands, to minimal uses in
order to protect the land from human activity where response action systems
are in place and, at the same time, are protective of human health and safety.
Right of Way (ROW)
This land use designation includes all publicly dedicated areas that are used
for roadways, shoulders, ditches, and other improvements. It should be
noted that not all roads in the City are platted, and many are dedicated by
easement and therefore this land area is accounted for through the associated
land use designation. As a result there is more land dedicated to road use
than identified within the acreages identified on the existing land use table.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
9
FUTURE LAND USE
The Future Land Use Plan (FLU) was
developed by building on stated goals
and strategies as identified through the
planning process and documented in
Chapter 1: Vision, Goals & Strategies.
The resulting FLU carefully balances the
recommendations and considerations
of residents, stakeholders, staff, and
policy-makers while responding to and
incorporating the regulatory requirements
of the Metropolitan Council.
The FLU is in part shaped by the policy designations the City is required to meet as
part of the Metropolitan Council’s Thrive MSP 2040 Land Use Policy as provided
within the 2015 Lake Elmo System Statement. Lake Elmo falls into two categories of
Community Designation, as described in Chapter 2: Community Context. Each of these
designations carries responsibility for the related Community Role in the regional growth
of the metropolitan area in relation to future land use. These roles are outlined in the
Metropolitan Council’s Thrive 2040 Land Use Policy and include the following land use
practices for Lake Elmo:
Emerging Suburban Edge
• Plan and stage development for forecasted growth through 2040 and
beyond at overall average net densities of at least 3-5 dwelling units per
acre in the community. Target higher-intensity developments in areas with
better access to regional sewer and transportation infrastructure, connections
to local commercial activity centers, transit facilities, and recreational
amenities. Future land use must therefore plan to accommodate a minimum
residential density of 3 du/acre within this designation.
• Identify and protect an adequate supply of land to support growth for
future development beyond 2040, with regard to agricultural viability and
natural and historic resources preservation.
• Incorporate best management practices for stormwater management and
natural resources conservation and restoration in planning processes.
• Plan for local infrastructure needs including those needed to support
future growth.
LU Goal #1. Wo rk with residents,
developers, land owners and other
stakeholders through the development
process and require development that is
consistent with the Future Land Use Plan.
- Chapter 1: Vision, Goals & Strategies
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
10
Rural Residential
• Discourage future development of rural residential patterns (unsewered
lots of 2.5 acres or less) and where opportunities exist, plan for rural
development at densities that are not greater than 1 unit per 10 acres.
Future land use must therefore plan to limit development to a maximum
residential density of 0.1 du/acre within this designation.
• Implement conservation subdivision ordinances, cluster development
ordinances, and environmental protection provisions in local land
use ordinances, consistent with the Council’s flexible residential
development guidelines.
• Promote best management practices for stormwater management,
habitat restoration, and natural resource conservation in development
plans and projects.
The two distinctive Community Designations require the City to adopt and implement
a FLU that provides a minimum residential density within the areas defined as
Emerging Suburban Edge (where MUSA is designated), while implementing a maximum
residential density for the areas identified as Rural Residential (areas not included
within the MUSA in this planning period).
The FLU must also identify appropriate land use designations and guide corresponding
acreages that support the forecasted employment growth as identified within the
System Statement. Additionally, the FLU must guide adequate land area, at appropriate
densities, that may accommodate the City’s allocated number of affordable housing
units for the period between 2021 and 2030. The employment and affordable housing
requirements will be provided for within the MUSA, and are not expected to be
met within the Rural Residential Areas. The Emerging Suburban Areas are generally
consistent with the MUSA areas identified in the 2030 Comprehensive Plan with two
exceptions; 1) the existing single-family homes on the south side of Olson Lake are now
served by MUSA; and 2) the newly designated Golf Course Community located on the
east side of the community was incorporated into the MUSA through a Comprehensive
Plan Amendment in October 2017. With the exception of these two areas, the MUSA
and corresponding Emerging Suburban Area designations are unchanged from the
previous planning period, and all projected urbanized growth can be accommodated
within the boundaries as shown on Map 3-2. 2018-2040 MUSA.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
11IDEALAVEN60THSTN
10TH ST N
LAKEELMOAVENSTILLWATE R B LV D N
30TH ST N
KEATSAVENOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TRL N
4 5 T H ST N
INWOODAVENHorseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.2.2018
Source: Washington County,
MNGEO, SHC
Map 3-2. 2018 – 2040 MUSA
VILLAGE PLANNING AREA
(MUSA)
SOUTH PLANNING AREA
(MUSA)
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
12
Future Land Use Definitions
Agricultural Preserve (AP)
This land use designation identifies land enrolled in the Agricultural Preserves
program. Land in this designation is required to be guided for no more than 1
dwelling unit per 40 acres, and is protected from further subdivision during the
contract period.
Rural Area Development (RAD)
A large percentage of land in Lake Elmo falls within the Rural Area Development
designation, including single-family detached homes, working farms and agricultural
uses where land is undeveloped, cultivated in crops, or used for livestock. This
designation includes open space developments that are developed, or may be
developed, with clustered housing and may be served by a community septic system.
Open space developments generally average more than 1 residential unit per 10 acres
and include a dedicated open space protected through a conservation easement. This
designation is inclusive of large-lot rural single-family detached residential uses and
future conventional subdivision. Density across this land use designation is planned
to maintain maximum densities of 1 residential dwelling unit per 10 acres. This land
use designation is limited to areas not within the MUSA planning areas.
Rural Single Family (RSF)
This land use designation combines the previous Residential Estate and Rural
Single-Family categories into one designation to simplify intended land use
guidance. Development with this designation includes single-family detached
housing served by private on-site well and septic systems. Some areas with this
designation are allowed to have two-family dwellings based on zoning.
Rural Single Family Sewered (RSFS)
This land use designation identifies existing previously unsewered rural single- family
land uses located within the Village Planning Area. These properties have either
recently been served with municipal sewer and water, or are planned to be served as
part of the planned MUSA extensions within the Village Planning Area. Some areas
with this designation are allowed to have two-family dwellings based on zoning.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
13
Golf Course Community (GC)
In recognition that a Golf Course on the land formerly known as Tartan Park is a local
and regional amenity the City wishes to maintain, this specialized land use category has
been crafted to maximize the likelihood that a golf course can be maintained on the
property should a development proposal for the land come forward.
Low Density Residential (LDR)
This category includes development of single-family detached housing and two-
family attached dwellings with a density of 2.5 to 4 units per acre (2.5 – 4 du/
acre) and are planned to be serviced by public sewer and water. This land use is
limited to the part of the City within the South Planning Area.
Medium Density Residential (MDR)
This category allows for a variety of housing types including single-family detached,
duplexes, townhomes, and small two- and three-story apartment buildings and/or senior
living centers. The Medium Density Residential development is intended for a density
of 4.01 to 8 units per acre (4.01 – 8 du/acre). This land use is limited to the part of the
City within the South Planning Area.
High Density Residential (HDR)
This land use designation guides land for higher density residential development
including townhomes, small apartment buildings, and multi-family dwellings.
Residential density ranges between 8.01 and 15 units per acre (8.01 – 15 du/acre)
and provides opportunities for affordable housing to be incorporated into future
developments. This land use is limited to the part of the City within the South
Planning Area.
Mixed Use Commercial (MU-C)
This designation is a new land use designation and identifies where a mix of
commercial and residential uses may be integrated to benefit from proximity and
adjacencies to each other. Commercial uses in this category include service and
retail uses such as, but not limited to, restaurants, shops, convenience stores,
salons, studios and dry cleaners. Land with this designation is assumed to develop
with a minimum of 50% residential use with a density ranging from 10 to 15
dwelling units per acre (10 – 15 du/acre).
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
14
Mixed Use - Business Park (MU-BP)
This land use designation is new and identifies where a mix of general
business, business park, and residential uses may benefit or be compatible due
to proximity of uses. Business uses in this category include office and service
uses such as, but not limited to, offices and agencies, warehouse/showroom,
light manufacturing, and live/work development. Land with this designation
is assumed to develop with a minimum of 50% residential use with a density
ranging from 6 to 10 dwelling units per acre (6 – 10 du/acre).
Village – Low Density Residential (V-LDR)
This land use designation is planned for areas within the Village Planning Area
and identifies land intended for single-family detached housing development
serviced by municipal sewer and water. Density ranges between 1.5 and 3
dwelling units per acres (1.5 – 3 du/acre). This land use already exists, or
is developing, in much of the outside edges of the Village Planning Area,
transitioning from the village center districts to the rural land use pattern not
designated within the MUSA areas.
Village – Medium Density Residential (V-MDR)
This land use designation identifies proposed land use within the Village
Planning Area guided for single-family detached, duplexes, and townhomes/
villa housing types. Residential density ranges between 3.01 and 8 dwelling
units per acre (3.01 – 8 du/acre). This land use allows for a greater variety in
housing stock and brings more people closer to living within easy access of
Village destinations and amenities.
Village – High Density Residential (V-HDR)
This land use designation is a new planned land use within the Village Planning
Area and is guided for apartment buildings and multi-family dwellings with
a density between 8.01 and 12 units per acre (8.01 – 12 du/acre). This land
use is intended to provide for an increase in types of housing stock, provide
opportunities for more affordable and lifecycle housing, and bring a higher
concentration of people living closer to Village destinations and amenities.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
15
Village – Mixed Use (V-MU)
This land use designation is used in the center of the Village Planning Area to
identify an area where a mix of vertically integrated commercial/business and
residential uses provide development types that benefit from proximity to each
other. More residents in closer proximity to businesses bring greater traffic
to the businesses while these same businesses offer convenient and necessary
services and amenities to nearby residents. Together, the dynamics of a mixed-use
district can establish unique vitality, synergy of activity and a true community
destination. Land with this designation is assumed to redevelop or develop with
a minimum of 50% residential use with a density ranging from 5 to 10 dwelling
units per acre (5 – 10 du/acre).
Limited Business (LB)
This land use designation identifies areas that are developed with commercial users
that were not served by urban services. Users in this designation are generally less
intense than would be permitted in the planned MUSA designations.
Commercial (C)
The commercial land use includes areas that are used for retail business and
are primarily located within MUSA boundaries of the City. Small pockets of
commercial land can also be found where retail goods and services are located at
transportation intersections. This category excludes residential and industrial uses.
Business Park (BP)
This land use provides for a wide variety of professional businesses such as medical
and research facilities, offices and corporate headquarters. Retail sales of goods
and services are allowable uses by conditional use permit provided such uses are
goods and services for the employees of the permitted business use. This land use
designation excludes any residential use.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
16
Institutional (INST)
The Institutional land use category identifies land that is used for schools, religious
institutions, City hall, municipal buildings, libraries, and other institutional uses. This
land use is found throughout the City.
Public/Semi-Public (PSP)
The Public/Semi-Public land use category identifies land that is generally owned by
the City or other agency, whose primary purpose is to support adjacent developments
with stormwater management and other utilities. This land use may also include some
secondary uses such as public trails or small open spaces.
Closed Landfill Restricted (CL)
This land use designation identifies former landfills that are qualified to be under the
Closed Landfill Program of the Minnesota Pollution Control Agency (MPCA). The
purpose of this category is to limit uses of land within the closed landfill, both actively
filled and related lands, to minimal uses in order to protect the land from human
activity where response action systems are in place and, at the same time, are protective
of human health and safety.
Park & Open Space (Park)
This land use identifies land used for public recreation and protected open space managed
for park uses. Most land within this designation is owned by Washington County or the City
of Lake Elmo, but also includes land owned by other public and semi-public agencies.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
17
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
18
The following table identifies the total land area within the community and comprehensively includes all
existing land uses, not guided for change, and planned land uses. The planned land use designations are
generally consistent with the 2030 Land Use Plan, with some exceptions as noted:
• The nomenclature regarding sewered residential uses has been changed from “Urban Low
Density” to “Low Density Residential, “Urban Medium Density” to “Medium Density
Residential” and so forth. This change did not in all cases alter the definition or density
ranges but was renamed to better describe the planned land uses.
• The density ranges for Medium Density Residential and High Density Residential
were shifted to align with the required affordable housing density requirements as
noted within the Metropolitan Council’s Housing Policy Plan.
• Two mixed use residential land uses were added to areas within the MUSA to allow for
a better integration of uses and more flexibility to respond to market demands. These
use designations require a minimum residential component as described within the
Future Land Use definitions.
Table 3-2. Future Land Use Plan and Total Acreage
Future Land Use Residential Density
(dwelling units/acre)Total Acres % of Total
Acres
Agricultural Preserve (AP)0.025 414.73 2.67%
Rural Area Development (RAD)0.1 4,835.22 31.18%
Rural Single Family (RSF)0.1-2.0 2,398.76 15.48%
Rural Single Family Sewered (RSFS)0.1-2.0 149.79 0.97%
Golf Course Community (GC)1.5-2.49 442.96 2.86%
Low Density Residential (LDR)2.5 - 4 477.90 3.08%
Medium Density Residential (MDR)4.01 - 8 365.92 2.36%
High Density Residential (HDR)8.01 - 15 80.07 0.52%
Mixed Use – Commercial (MU-C)10 - 15 138.23 0.89%
Mixed Use - Business Park (MU-BP)6 - 10 92.20 0.59%
Village – Low Density Residential (V-LDR)1.5 - 3 382.69 2.47%
Village – Medium Density Residential (V-MDR)3.01 - 8 157.13 1.01%
Village – High Density Residential (V-HDR)8.01 - 12 21.99 0.14%
Village – Mixed Use (V-MU)5 - 10 74.10 0.48%
Commercial (C)NA 154.92 1.00%
Business Park (BP)NA 206.93 1.33%
Limited Business (LB)NA 45.76 0.30%
Institutional (INST)NA 304.05 1.96%
Closed Landfill NA 67.34 0.43%
Public/Semi-Public (PSP)NA 205.86 1.33%
Park/Open Space (Park)NA 2600.59 16.77%
Open Water NA 1355.29 8.74%
Right of Way (ROW) Includes RR ROW NA 534.54 3.45%
Total 15,506.97 100.00%
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
19IDEALAVEN
INWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENSTILLWATER B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TR L N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
2040 Future Land Use
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
LB
BP
C
Closed Landfill
Institutional
Park
PSP
ROW
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
Miles
Map 3-3. Future Land Use Map
Legend
Planned Roadway (Parkway)
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
20
Planned Growth Areas
Growth within Lake Elmo is expected to primarily occur
in areas designated within the MUSA, consistent with the
Metropolitan Council’s 2015 System Statement Projections.
The City geographically describes their primary growth
areas the South Planning Area and the Village Planning
Area. Within both of these MUSA boundaries, there is
adequate land to serve the projected population, households
and employment through 2040. As shown on Map 3-4
and Map 3-5, the areas planned for growth and change in
this planning period are identified. Corresponding Table
3-3. Net Developable Acreage of Residential Land Uses
provides the calculated density, and expected households, based on the FLU in each of
these areas. In addition to the anticipated growth in the areas served within the MUSA,
the City also anticipates some growth within the Rural Residential areas consistent with
previous plans, and as projected within the 2015 System Statement. Further description
regarding the development of the FLU and the growth strategy are provided within
Chapter 4: Balanced Development & Growth.
Map 3-4. Future Land Use – South Planning Area Planned Growth IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENS TIL LWATE R B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TRL N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
Miles
LU Goal #3. Continue to
educate residents, developers,
and stakeholders about the
guided land uses and where
sewered and non-sewered
development is guided.
- Chapter 1: Vision, Goals & Strategies
IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENSTILLWATER B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A NE TRL N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
2040 Future Land Use
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
LB
BP
C
Closed Landfill
Institutional
Park
PSP
ROW
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
MilesMUSAMUSA
Areas Planned for Growth
Planned Roadway (Parkway)
Legend
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
21
Map 3-5. Future Land Use – Village Planning Area Planned Growth IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENS TIL LWATER BLV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TRL N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
2040 Future Land Use
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
LB
BP
C
Closed Landfill
Institutional
Park
PSP
ROW
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
MilesIDEALAVEN
INWOODAVEN60THSTN
10TH ST N
LAKEELMOAVENS TIL LWATE R B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKEJANETRLN
45THSTN
Horseshoe
Clear
UnnamedDeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
Miles
Areas Planned for Growth
Planned Roadway (Parkway)
MUSA
MUSALegend
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
22
Table 3-3. Net Developable Acreage of Residential Land Uses
Future Land Use Residential Density
(dwelling units/net acre)
Total Net
Acres
Estimated
Households
Low Density Residential (LDR)2.5 - 4 233.43 584
Medium Density Residential (MDR)4.01 - 8 148.50 596
High Density Residential (HDR)8.01 - 15 79.99 640
Mixed Use – Commercial (MU-C)*10 - 15 62.19 622
Mixed Use - Business Park (MU-B)*6 - 10 46.05 276
Village – Low Density Residential (V-LDR)1.5 - 3 142.75 214
Village – Medium Density Residential (V-MDR)3.01 - 8 70.10 211
Village – High Density Residential (V-HDR)8.01 - 12 19.99 160
Village – Mixed Use (V-MU)*5 - 10 8.52 43
Total 2020-2040 Residential 811.56 3,346
Net Density 2020-2040 4.12 du/acre
Residential Plats 2010 - 2020 1,180.75 2,444
Total Sewered Households 2010-2040 1,914.81 5,790
Total Net Density 2010-2040 3.02 du/acre
*Only residential acreage included/calculated in table. Land Use designation assumption
that a minimum of 50% of total acreage is developed with residential use.
Total number of households does not exclude potential park areas as contemplated in Chapter 6: Parks Trails
and Open Spaces. Actual acres and resulting households to be adjusted and calculated at time of development
(Preliminary and Final Plat). Net density does exclude principal/arterial ROW, wetlands, and lake areas.
Density in Sewered Areas by 2040
Consistent with the Metropolitan Council’s policies, the density calculation performed
based on Table 3-3. Net Developable Acreage of Planned Residential Land Uses will
result in an average net density of approximately 3.0 dwelling units per acre. As
required, the household calculation in Table 3-3 was performed based on the minimum
units allowable per the density range.
As shown on Map 3-4 and Map 3-5, there are three land use designations at sufficient
densities to meet the City’s allocation of affordable housing per the Metropolitan
Council System Statement. Approximately 112 acres are collectively guided for these
three designations between 2021 and 2030, which meets the required allocation in this
planning period. (Further detail regarding affordable housing can be found in Chapter
5: Housing).
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
23
Revised Population & Household Projections
As noted in Table 3-3 the number of households, and thus the corresponding projected
population, is greater than the projections identified by the Metropolitan Council in
the 2015 System Statement. After much deliberation and discussion, the City concluded
that it would be more advantageous to plan for a thoughtful, contiguous land use
pattern throughout all MUSA areas rather than limiting the amount of land available
for urbanized services within this planning period to match the 2015 System Statement.
As denoted in subsequent sections of this Chapter and the Sanitary Sewer Chapter, the
City’s infrastructure may need additional improvements to its infrastructure to serve
the entire MUSA area depending on the ultimate commercial and/or business user and
density of the residential neighborhoods. Thus capacity of the infrastructure within
later staging areas will need to be evaluated, and development approvals contingent on
appropriate system upgrades. Regardless, this Plan identifies and guides all land within
the MUSA with an urbanized land use designation, and therefore the following table
provides the City’s adjusted projections based on the Future Land Use Plan and Staging
Plan contained in this Chapter. (There are no revisions to the employment forecasts, as
those are relatively consistent with the System Statement).
Table 3-4. Revised Population & Household Projections
2020 2030 2040
Population Unsewered 6,788 7,140 7,992
Population Sewered 5,032 11,196 15,743
Total Population 11,820 18,335 23,735
Households Unsewered 2,441 2,760 3,379
Households Sewered 1,850 4,116 5,788
Total Households 4,291 6,876 9,167
Source: Lake Elmo System Statement, SHC, City of Lake Elmo
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
24
Employment Locations
Existing and planned employment locations are generally located within the Village
Planning Area and South Planning Area. Land uses served by MUSA, or planned for
extension of services, will continue to be the primary locations for employment through
the forecasted planning period. There are some existing limited business land uses
located outside of MUSA designations that are anticipated to remain in operations
through this planning period, but are not accounted for in Table 3-4 because they are
existing, and no intensification of the land use is projected in these areas.
To determine the intensity of the commercial and business park uses in the guided
FLU, the maximum impervious surface coverage was estimated based on information
contained in the City’s Zoning Ordinance. The coverage calculation was converted
to square feet and the Metropolitan Council Environmental Services Sewer Area
Charge (SAC) 2017 Manual was used to determine allocated SAC units based on the
designation and potential users.
These land uses are identified on Map 3-3. Future Land Use Plan, Map 3-4. Future Land Use
Plan – South Planning Area and Map 3-5. Future Land Use Plan – Village Planning Area.
Table 3-5. Employment Locations and Intensity (Planned for Development)
Growth Area Land Use Planned
Acres
Intensity
(FAR)
Estimated Acres
(Square Feet)EMP
South
Planning Area Commercial 110 35%38.5
(1,677,060)559
Business Parkb 100 35%35
(1,524,600)320
Mixed Use - Commerciala 69.12 35%24.19
(1,053,804)351
Mixed Use - Business Parkab 46.1 35%16.14 (702,841)148
Village
Planning Area Commercial 14.9 35%5.21
(227,165)76
Mixed Use - Villagea 9.54 50%4.77
(207,781)69
Total EMP 1,523
aOnly commercial/business component is included in acreage. Approximately 50% of total land use designation used
for calculation per land use definition.
bBusiness Park Designations calculation assumes office/manufacturing/warehousing mix of general business users.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
25
Airport Impact
The Lake Elmo Regional Airport is located adjacent to the City’s eastern boundary
in West Lakeland Township. The airport is east of Manning Avenue and between the
railroad and 30th Street N. Parts of the airport safety zone and noise impact areas
impact a portion of the Village Planning Area in Lake Elmo. A new low density single-
family detached residential neighborhood is partially developed with subsequent phases
anticipated within this planning period. No development is allowed within the Runway
Protection Zone (RPZ). All land designated within the RPZ are designated as Public/
Semi-Public uses and are included within the City’s Greenway Overlay which restrict
any future development of land within this designation. The FLU is consistent with
allowed land uses within the safety zones for the Lake Elmo Regional Airport and
reflects this restriction. The City will continue to work with the Metropolitan Airports
Commission and MnDOT Aeronautics Division to update airport zoning regulations
that address noise and safety concerns within these zones as required.
Map 3-6. Airport Safety and Runway Protection INWOODAVEN60THSTN
10TH ST N
LAKEELMOAVENS TIL LWAT E R B LV D N
30TH ST N
KEATSAVE N
50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKEJANETRLN
45THSTN
Horseshoe
Clear
Unnamed
DeMontreville
Olson
OlsonJane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
21D_Refined_Alt_3500_RPZ
<all other values>
Layer
State Safety Zone A
State Safety Zone B
Runway Protection Zone
Existing Safety Zone
Safety Zone A
Safety Zone B
MUSA 2040 (Revised)
2040 Future Land Use
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
LB
BP
C
Closed Landfill
Institutional
Park
PSP
ROW
0 0.3 0.6 0.9 1.20.15
Miles
Source: MAC, City of Lake Elmo, SHC
LAKE ELMO
AIRPORT
Legend IDEALAVENINWOODAVEN10TH ST N
LAKEELMOAVENS TIL LWATE R BL V D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A NE TR L N
4 5 T H S T N
Horseshoe
Clear
UnnamedDeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
0 0.3 0.6 0.9 1.20.15
Miles
21D Refined Alt 3500 Safety Zone
State Safety Zone A
State Safety Zone B
Runway Protection Zone
Existing Safety Zone
Safety Zone A
Safety Zone B
Runway Protection Zone
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
26
Phasing & Staged Growth
The majority of the City’s growth in households and employment is anticipated to occur within
the designated MUSA boundaries; however, there will be some continued development in the
rural residential areas of the community consistent with the community’s land use designations.
Table 3-6 identifies gross acreages per land use designation, while calculations found in Table 3-3
provide net acreage calculations for each residential land use designation within the designated
MUSA as noted. The City’s objective is to plan for phased, contiguous growth to ensure adequate
infrastructure and capacity are available to support development. Map 3-7 identifies four staging
areas consistent with existing and planned water, wastewater and transportation infrastructure. The
City acknowledges that market conditions, as well as other external impacts may influence exactly
where and when development occurs, and this map is intended to signal to the City that it must
evaluate its infrastructure with respect to timing and development approvals. This is particularly
important in the last phase denoted as post-2035. Property withing this staging area should be
monitored for capacity and potential improvements based on actual development in earlier phasing
periods.
Map 3-7. MUSA Growth & Phasing Plan
IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENS TILLWATER B LVD N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A NE TRL N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County, MNGEO, City of Lake Elmo, SHC
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15 Miles
Current (2020)
2020 - 2030
2030-2040
2035-2040 +
Staging/Phase
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
27
Table 3-6. Future Land Use Forecast Gross Acreage per Decade
Future Land Use Residential Density
(dwelling units/acre)2020 Acres (%)2030 Acres (%)2040 Acres (%)
Agricultural Preserve (AP)0.025 414.73 (2.67%)414.73 (2.67%)414.73 (2.67%)
Rural Area Development (RAD)0.1 6,071.68 (39.15%)5,326.20 (%)4,837.37 (31.19%)
Rural Single Family (RSF)0.5 - 2 2,398.76 (15.47%)2,398.76 (15.47%)2,398.76 (15.47%)
Rural Single Family Sewered
(RSFS)0.5-2 149.79 (0.97%)149.79 (0.97%)149.79 (0.97%)
Golf Course Community 1.5-2.49 267.96 (1.73%)442.96 (2.86%)442.96 (2.86%)
Low Density Residential (LDR)2.5 - 4 216.16 (1.39%)336.60 (2.15%)477.90 (3.08%)
Medium Density Residential
(MDR)4.01 - 8 298.89 (1.93%)365.92 (2.36%)365.92 (2.36%)
High Density Residential (HDR)8.01 - 15 12.69 (0.08%)80.07 (0.52%)80.07 (0.52%)
Mixed Use - Commercial (MU-C)12 - 15 63.73 (0.41%)63.73 (0.41%)138.23 (0.89%)
Mixed Use - Business Park
(MU-BP)6 - 10 0 (0%)0 (0%)92.20 (0.59%)
Village – Low Density Residential
(V-LDR)1.5 - 3 202.78 (1.31%)225.45 (1.45%)377.54 (2.43%)
Village – Medium Density
Residential (V-MDR)3.01 - 5 78.31 (0.50%)157.13 (1.01%)157.13 (1.01%)
Village – High Density
Residential (V-HDR)8.01 -12 0 (0%)21.99 (0.14%)21.99 (0.14%)
Village – Mixed Use (V-MU)5 - 10 76.74 (0.49%)76.74 (0.49%)76.74 (0.49%)
Commercial (C)NA 41.16 (0.27%)129.18 (0.83%)154.92 (1.0%)
Business Park (BP)NA 99.80 (0.64%)206.93 (1.33%)206.93 (1.33%)
Limited Business (LB)NA 45.76 (0.30%)45.76 (0.30%)45.76 (0.30%)
Institutional (INST)NA 301.41 (1.94%)301.41 (1.94%)301.41 (1.94%)
Public/Semi-Public (PSP)*NA 206.56 (1.33%)206.56 (1.33%)206.56 (1.33%)
Closed Landfill NA 67.34 (0.43%)67.34 (0.43%)67.34 (0.43%)
Park (Park)*NA 2,602.89 (16.79%)2,602.89 (16.79%)2,602.89 (16.79%)
Open Water*NA 1,355.29 (8.75%)1,355.29 (8.75%)1,355.29 (8.75%)
ROW / RR ROW*NA 534.54 (3.45%)534.54 (3.45%)534.54 (3.45%)
TOTAL NA 15,506.97 (100%)15,506.97 (100%)15,506.97 (100%)
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
28
ADDITIONAL OBJECTIVES OF FUTURE LAND USES
The City’s Future Land Use Plan acknowledges and plans for continued household and
employment growth through 2040, but also includes preservation and continued support of
its rural residential landscape and robust parks and open space system. The City of Lake Elmo
has always been identified as an exceptional place to live because of its robust parks system,
protected high-quality natural resources, and proximity to major employment, healthcare
and retail centers. Even though the community is growing, and in some cases transitioning
from a primarily rural residential community, there is a desire and an opportunity to weave
the most important elements and characteristics into changing areas of the community to
ensure that the identity and character of the community continues for generations to come.
Equally important to the planned land uses, densities and projections is the
commitment to maintain open spaces, natural resources and parks and to promote
opportunities to provide healthy, vibrant, resilient neighborhoods.
The following sections should be used as an extension to the Future Land Use Plan
and should be incorporated or acknowledged in growth areas and in areas planned for
protection of existing uses. There is always an opportunity to do better, and the following
themes help support the future direction of the City’s land uses and decision-making.
Promoting Health with Land Use
As part of the 2040 Comprehensive Plan
Update process, the City obtained a grant
from Washington County Department of
Public Health and Environment through the
Statewide Health Improvement Partnership
(SHIP). There are many ways that the principles
of healthy neighborhoods, communities and
environments can be incorporated into existing
and future land uses. The following summary
identifies some of the ways in which health was
considered, and incorporated, into the Future
Land Use Plan.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
29
Mixed-Use Land Use Designations to Promote Health
The introduction of land uses that will promote a more compact, walkable, development
pattern was purposefully integrated throughout the growth areas as identified in
previous sections of this Chapter. In addition to creating new land use designations, the
City discussed opportunities to better connect existing neighborhoods though bikeways,
trails and other pedestrian routes to support active residents. This discussion included
how public and private trail connections may be used to achieve these objectives, and
the City acknowledges the need to better communicate and sign public trails and routes
so users are comfortable and informed using the system.
In addition to neighborhood pattern, the new mixed-use designations will permit the
incorporation of uses such as restaurants, markets, farmers markets, and other events
that can be designed to support an active lifestyle for the City’s residents, employees
and employers. With the growing popularity of farm-to-table dining and experiences
that focus on healthy living, Lake Elmo is well-positioned to capitalize on trends that
connect its rich rural and agricultural resources with health-conscious consumers seeking
fresh high-quality foods and products. As the community grows and new households are
added, it will be important for the City to ensure grocery and fresh foods are sold and
provided at locations nearby higher concentrations of residents.
Ensuring “Uses” that Support Health are Permitted and Accessible
Closely related to the introduction of more compact development patterns, is the need
to provide accessible options to purchase healthy and fresh foods and products. This can
be accomplished through ensuring that uses that support that objective are permitted
within the City’s land use designations and the zoning code. Connection and ease of access
are essential components to this objective, so pedestrian, bikeways and other routes to
locations with fresh products is important to consider as the City develops and evolves.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
30
Providing an Accessible and Connected Green Network
The City is committed to preservation of its
existing natural resource and open space network.
In addition to the existing network, the City
plans to expand the network as growth areas are
developed. Part of this planning process included
discussion and recommendations regarding
better park, trail and open space connections
for residents in existing neighborhoods and in
new growing neighborhoods. Natural resource
protection, identification, preservation and
development creates opportunities to create a
network of greenways and trails for residents to
utilize for recreation, connection with nature, connection between various neighborhoods
and destinations in and around Lake Elmo, and to build a more resilient (and green)
infrastructure. Trail development is an important way to promote health and activity in
the community. The City’s Future Land Use Plan should be implemented to be consistent
with Chapter 6: Parks, Trails & Open Space that identifies key trail, natural resource and
open space considerations as development occurs within the City’s growth areas.
Parks, Open Space and Natural Resources Integration
Nearly 18% of the City’s land acreage is publicly protected as Park or Open Space,
and an additional 11% of private lands area is protected with a conservation easement.
Natural resources, parks, and open space protection and enhancement is one of
the City’s character defining elements that makes the community a special place to
live, work and recreate. The City’s expansive natural resources, including woodland,
meadow, lakes and wetlands, and rural scenic amenities are sprinkled throughout the
heart of the community are valued assets for all residents. The presence of high quality
natural resources is important to the lasting effort of balanced development, enduring
biodiversity, and opportunity for recreation and connection for area residents. The effort
to preserve and enhance these features as an asset for the community and region is a
primary objective and specifically stated in several Goals and Strategies within Chapter
1: Vision, Goals & Strategies.
LU Goal #2. Enhance Lake
Elmo’s expansive network
of trails, open spaces,
and natural resources as
amenities in developing
areas of the community.
- Chapter 1: Vision, Goals & Strategies
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
31
Decision-making related to incorporation of greenways, natural resources, parks
and trails associated within this Future Land Use Plan should be consistent with the
information found in Chapter 6: Parks, Trails & Open Space.
Access and Transportation
A key component of implementing the Future Land Use Plan is to plan for appropriate
access and consider diverse modes of transportation. It is likely that as the growth areas
change and develop a more diverse demographic will move to the community and their
transportation demands may include alternate modes such as bikeways, pedestrian ways
and the desire for transit.
Incorporated on Map 3-3. Future Land Use Plan are the conceptual main thoroughfares
through the growth areas that are planned for within the Chapter 7: Transportation.
Identification of the east-west roadway connection in the South MUSA planning
boundary on the Future Land Use Plan is deliberate and was used to guide compatible
and appropriate land uses. It is the intent of the Future Land Use Plan that development
along the east-west corridor would support and plan for adequate right-of-way at time
of development that would include a multi-use trail that would promote mode choice
and accessibility to adjacent neighborhoods. Likewise, a new roadway connection in the
Village MUSA planning boundary is identified and the land use plan was developed to
encourage higher-densities near the roadway to improve access. More detail regarding
new roadways, and the existing transportation, transit, and bikeways system can be
found in Chapter 7: Transportation.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
32
Supporting Resiliency
The purpose of creating a Future Land Use Plan that provides a diverse land use pattern is
to allow for the City to adapt and change as needed through this planning period. Better
integration of land uses allows for the community to be thoughtful about innovation as
the environment changes and new technologies are developed, and creates opportunities
to adapt and be responsive. The idea of resiliency is woven throughout this Plan, and
is specifically discussed as it relates to the Green Network and Resilient Infrastructure
in Chapter 6. It is the intent of the City that the idea of a Green Network be used as
part of the decision-making process and allow for improvements in neighborhood and
development design as the community evolves and changes through 2040.
Solar Access
The City has incorporated standards into their zoning ordinances regarding siting of
structures and buildings to support access to solar resources. Given the City’s dominant
residential landscape pattern, options for private property owners including individual
homeowners and homeowners associations to capitalize on solar energy are supported by
the City’s adopted ordinances and official controls.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
33
Map 3-8. Gross Solar Potential
Lake
Elmo STILLWATE
R BLV
D
N
INWOOD AVE N34TH ST N
10TH ST NIDEAL AVE NKEATS AVE NDEMON
T
R
E
VI
L
L
E
T
R
L
N
OL
SONLAKETRLN50TH ST N
LAKEELMOAVEN47TH ST N
KIMBRO AVE NLAKE JANE TRL N JULEP AVE NGross Solar Potential
(Watt-hours per Year)
High : 1276008
Low : 900001
Solar Potential under 900,000 watt-hours per year
County Boundaries
City and Township Boundaries
Wetlands and Open Water Features
Gross Solar Potential
Source: University of Minnesota U-Spatial Statewide Solar Raster.
ANOKA
DAKOTA
HENNEPIN RAMSEY
SCOTT
WASHINGTON
CARVER
Extent of Main Map
0 1 2 3 40.5
Miles
12/20/2016
City of Lake Elmo, Washington County
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
34
SPECIAL RESOURCE PROTECTION
A consideration when developing the Future Land Use Plan was to inventory special or
unique resources in the community, and to allow these resources (where applicable) to
help guide where and when development would occur.
Historical Resources
There are no State or Locally registered historical districts or structures in Lake Elmo.
However, the City strongly supports the preservation of the “Old Village” Main Street,
where the Village first developed. During the 2030 Planning period, the City developed
a set of design guidelines which will help protect existing buildings and ensure new
construction integrates well with the existing character and building form of the district.
During this Plan development process the City studied the Old Village area, and
concluded that it would benefit from further refinement based on areas contained within
the previous Old Village boundary. The result, is that this Plan creates three distinct
Districts that describe the use, activities and desired plans based on location within the
City’s core village area. A full description of the Districts, and how they will shape the core
of the Village are provided in Chapter 4: Balanced Development & Growth.
LU Goal #4. Create strong
and vibrant Districts in the
Village Planning Area that
become a destination for all
residents of the community.
LU Goal #5. Identify and
Explore opportunities to
improve the streetscape in the
Old Village District, Elmo
Station District and Civic
Center District to create a
more walkable environment.
LU Goal #6. Maintain and
Strengthen the small-town
charm of the Old Village
District.
- Chapter 1: Vision, Goals & Strategies
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
35IDEALAVEN
INWOODAVEN60THSTN
10TH ST N
LAKEELMOAVENSTIL LWATE R B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKEJANETRLN
45THSTN
Horseshoe
ClearUnnamedDeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.23.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
AP
RAD
RSF
RSFS
GC
LDR
MDR
HDR
MU-BP
MU-C
V-LDR
V-MDR
V-HDR
V-MU
Institutional
Closed Landfill
ROW
BP
C
Park
PSP
0 0.3 0.6 0.9 1.20.15
Miles
District Plan - NEED TO CREATE - Old Village, Civic, Elmo Station
Village Planning AreaCivic District
Old Village
District
Village Planning Area
Elmo Station
District
Map 3-9. District Boundaries in Village Planning Area
IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENS TILLWATER B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A NE TRL N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
KlawitterPond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 6.11.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
Miles
Source: Metropolitan Council,City of Lake Elmo, SHC
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
36
Aggregate Resources
Per the Metropolitan Council’s 1997 Aggregate Resources information,
there are approximately 324 acres of land identified in the City has having
aggregate resource value. Today, there are two active aggregate sites,
one located in the northwestern quadrant of the community, which is
identified on the 1997 Aggregate Resource Inventory. The second active
site is located in the South MUSA boundary, near the Keats intersection
with 10th Street North. Adjacent to this site, and designated within the
City’s post-2035 phasing area, is additional land identified within the 1997
Aggregate Resource map. The existing active sites have been in operation
for several decades, and it is the City’s understanding that these sites are
nearing their useful life and may be exhausted in this planning period.
Beyond the active sites, the 1997 Aggregate Resource map identified areas
within exiting neighborhoods that are not likely to experience any demand
or opportunity for extraction. As aggregate resources are depleted, the
land will likely transition into suburban-style development, consistent
with the surrounding district. As mentioned, some of the land identified
with potential for aggregate resource extraction that has not been mined,
is designated within the City’s post-2035 phasing area, which does not
plan for or anticipate urbanized development over the next 15-years due to
existing development patterns and infrastructure planning.
Agricultural Preserve
The City’s agrarian and agricultural past continues to be valued by the
City, and landowners and homeowners that express interest in preserving
agricultural land through the Agricultural Preserve program will be
supported by the City. Currently, there are approximately 414-acres of
land protected by an Agricultural Preserve covenant per the Metropolitan
Council’s records, and those properties have been identified and guided
appropriately on the Existing and Future Land Use Plan contained within
this Chapter.
LAND USE 1.06.2019
City of Lake Elmo Comprehensive Plan 2040
37
Map 3-10. Aggregate Resource Locations
IDEALAVENINWOODAVEN60TH ST N
10TH ST N
LAKEELMOAVENSTILLWATE R B LV D N
30TH ST N
KEATSAVE NOLSONL
A
K
E
T
R
L
N50TH ST N
MANNING AVE N
47TH ST N
34TH ST N
LAKE J A N E TR L N
4 5 T H ST N
Horseshoe
Clear
Unnamed
DeMontreville
Olson
Jane
Berschen's
Pond
Elmo
Sunfish
Friedrich
Pond
Eagle
Point
Downs
H.J.
Brown
Pond
RoseGoose
Goose
Armstrong
Armstrong
Kramer
Goetschel
Klawitter
Pond
Deer
Pond
Crombie
Pond
Hedge's
Pond
Dirk's
Pond
Beutel's
Pond
Legion
Pond
FDraft Date: Rev. 5.23.2018
Source: Washington County,
MNGEO, City of Lake Elmo, SHC
Aggregate Resources 1997
MUSA 2040 (Revised)
0 0.3 0.6 0.9 1.20.15
Miles
Elmo
Jane
Olson
Downs
Rose
Eagle Point
DeMontreville
Sunfish
Horseshoe
Goose
Clear
Goetschel
Kramer
Armstrong
Unnamed
Legion Pond
Friedrich Pond
H.J. Brown Pond
Goose
Deer Pond
Armstrong
Crombie Pond
Klawitter Pond
Berschen's Pond
Hedge's Pond
Dirk's Pond
Beutel's Pond
FHomesteaded EMV
< $238,500
$238,501 - $450,000
$450,001 - $750,000
$750,001+
Draft Date: 4.5.2018
Source: Washington County,
MNGEO, SHC
Elmo
Jane
Olson
Downs
Rose
Eagle Point
DeMontreville
Sunfish
Horseshoe
Goose
Clear
Goetschel
Kramer
Armstrong
Unnamed
Legion Pond
Friedrich Pond
H.J. Brown Pond
Goose
Deer Pond
Armstrong
Crombie Pond
Klawitter Pond
Berschen's Pond
Hedge's Pond
Dirk's Pond
Beutel's Pond
FHomesteaded EMV
< $238,500
$238,501 - $450,000
$450,001 - $750,000
$750,001+
Draft Date: 4.5.2018
Source: Washington County,
MNGEO, SHC
DRAFT Chapter 5: Housing
Supply, Demand & Allocations
Comprehensive Plan 2040
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INTRODUCTION
The City’s housing stock is evolving and is slowly becoming more diverse as new
neighborhoods throughout the community are beginning to be developed. Prior
to the 2030 Plan, the City was dominated by single-family detached housing in a
predominantly rural residential setting. The historical development pattern is fairly
homogeneous, with some pockets of slightly smaller and older homes near the Old
Village District, and around the Tri-Lakes area that remain a vibrant, vital part of the
City’s housing stock. The City’s 2030 Comprehensive Plan was the first to introduce
suburban densities into the community, and with that guiding came the opportunity to
incorporate more diversity into the housing stock and create a more balanced housing
supply that would provide options to a broader demographic. Shortly after the 2030
Plan was put into effect, the housing bust and great recession hit, leaving the residential
housing market largely paralyzed, and places like Lake Elmo saw little to no new
residential development even though land had been guided to allow new neighborhoods
and housing. While very little happened the first half the decade due to the housing
bust, by 2015 renewed interest in housing began to emerge. The first signs of recovery
in Lake Elmo were consistent with regional and national trends, which first saw recovery
in the single-family detached housing market which is demonstrated in neighborhoods
such as Wildflower in the Village Planning Area, and Savona in the South Planning Area.
As the single-family residential housing market heated up and prices began to escalate,
interest in attached housing and multi-family products has slowly emerged as a more
cost-effective alternative. The delay in demand for attached and multi-family products is
particularly noticeable in communities like Lake Elmo; however, current regional trends
suggest that the housing market is likely to remain strong, and that Lake Elmo will
continue to see increasing demand for new, and more diverse housing stock over this
planning period.
Understanding that there will be demand for a more diverse housing stock, the Future
Land Use Plan included in Chapter 3 guides residential land use with a range of
densities to allow for development of spectrum of households from rural residential
neighborhoods to small apartment complexes. The purpose of this Chapter is to
evaluate Lake Elmo’s existing housing stock and to plan for future housing needs based
on not only the Future Land Use Plan, but the household and population projections
as stated within the City’s 2015 System Statement prepared by the Metropolitan
Council. Addressing and planning for the City’s housing stock is a critical part of this
Comprehensive Plan, because residential uses account for the largest existing and future
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2040 Housing Highlights
»Greater housing diversity (townhomes and
apartments added to mix of housing types,
beyond single-family homes).
»Intensification of housing in the South
Planning Area and Village Area.
»Protect the rural residential areas and
neighborhood patterns.
»Staging plan supports diverse housing stock
throughout each phasing area.
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land use category in Lake Elmo. Moreover, a diverse housing stock with access to open
space and essential goods and services is paramount to creating a healthy, sustainable,
and resilient community. It protects the community’s tax base against market
fluctuations; it helps the community’s economic competitiveness by assisting Lake
Elmo businesses with employee attraction and retention; it provides options for existing
residents to remain in the community should their life circumstances (e.g., aging-in-
place); and it offers future residents access to the same amenities and levels of service
that current residents have come to expect and appreciate.
The first part of this Chapter presents important housing principles that underscore
the dynamics behind the role and importance of housing as a key element in this Plan.
The second part of the Chapter focuses on the existing housing stock and summarizes
important information regarding the overall number of housing units, the type of units,
their affordability, and the profile of who lives in those units.
The existing housing stock provides a critical baseline of information from which the
City can plan and determine what types of housing products may be demanded over the
next 10-20 years, which then informed where to appropriately guide land areas suitable
to attract that type of development. Finally, the third part of this Chapter addresses
the projected need for housing during this planning period based on the existing
housing and neighborhood conditions and the 2015 System Statement requirements.
This section evaluates issues surrounding affordability and the Metropolitan Council’s
requirements for quantifying need based on income and provides corresponding
description of where and how the City might encourage a broader range of affordability
in its new neighborhoods. The final section links projected housing need to practical
implementation tools to help the City achieve its identified housing goals.
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HOUSING PRINCIPLES
The following sections provide context and information about the role housing plays in
the community, and how the principles can be supported through thoughtful planning
of the City’s future housing stock. Throughout this process, residents, stakeholders and
the Advisory Panel discussed the visible changes in the housing stock taking place in
the community, particularly within the growth areas. Though new development and
growth is planned to continue over the next planning period, the existing housing stock
and neighborhoods was also an important part of the discussion. What is clear, is that
the City is likely to continue to be dominated by residential uses and land use patterns
in both the existing areas of the community and in the areas guided for growth and
change. Since housing plays such a critical role in the character of the community, it
is important for the City to have a universal understanding of the principles that make
good houses, neighborhoods and community. The following are some core principles
from which this Housing Chapter is developed.
Housing Diversity
As described in the Balanced Development & Growth Chapter, and within the
introduction of this Chapter, the City has been slowly increasing and improving
diversity of its housing stock in new neighborhoods, but there are still critical gaps
in the City’s housing supply. To more effectively describe why diversity is important,
understanding what it means to have a diverse housing stock is a critical first step to
demonstrating why a diverse housing stock can have long-term positive effects on the
City and its residents. A community that has a diverse supply of housing is one that
includes different tenures (rental and ownership), types (single-family, townhome, and
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apartment), price points, sizes and styles. This residential mix can accommodate the
needs of a wide variety of households at different life stages, incomes and family types.
Furthermore, it provides more options as resident housing needs vary over time due
to changes in age, income, housing preference, family structure, or abilities. In turn,
this enables people to move into a community and remain in it as they experience
these life changes while staying close to their established social support networks. For
example, a long-term Lake Elmo resident who no longer wishes to care for a large yard
will likely choose to move to another housing type within their community with less
maintenance needs, if that option is available, before looking at other communities. A
diverse supply also provides options for young adults, who grew up in a community,
to move out of their parent’s home into an apartment or townhome nearby.
In addition to providing improved housing options for residents, a diverse supply of
single-family homes, townhomes, and apartments provides local governments with a
broad tax base that can withstand changes in economic and housing trends without
dramatic impacts on government budgets and services.
Age and housing types aside, a
diverse supply of housing price
points specifically helps to address
the needs of current and projected
local workers. Oftentimes employees
want to live close to where they
work. Employers need a diverse
housing supply to help attract and
hire the best qualified talent at all
wage levels with a variety of home
preferences. A full range of home
options is needed to match the
needs of a diverse workforce.
Housing Stability
For many people, a stable home is a critical component to their quality of life. Quality
of life can mean something different to many people, but with respect to housing it
is often associated with a feeling that their home feels safe in terms of its surrounding
neighborhood and the physical structure, and that they expect to be able to reside there
for the near future. This degree of certainty in a home is often the foundation needed
to pursue life goals and to fulfill their potential. A central aspect to a stable home is
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affordability, and the industry has generally quantified this as defined as paying no more
than 30% of gross income toward home expenses. If forced to pay more, a household
may forgo health care, food, education, transportation and other expenses in order to
pay their mortgage or rent and utilities. In that situation, an essential car repair may
mean making the difficult choice between reliable transportation and risking mortgage
defaults or evictions. Frequent moves, in an attempt to afford a suitable home, place a
lot of stress on households. For families with children, this often results in a change in
schools, daily work commutes, and access to supportive friends and family. For seniors,
it may impact access to healthcare, transportation and long established social networks.
A community with quality affordable housing helps to ensure the stability of both
neighborhoods and communities that greatly benefit its residents and businesses.
Workforce Housing
The Washington County Community Development Agency (CDA) conducted research
in 2016 that revealed a mismatch between the wages of many who work in Washington
County (County) and the cost of housing in the County. The study showed that this
mismatch is particularly pronounced in the City of Lake Elmo. The County has the
third highest median household income in the metro area and one of the highest costs
of living in the State. However, the average weekly wage for the workers employed in
the County is 37 percent lower than the metro area average. There are two contributing
factors: 1) many jobs in the County are low skill and do not pay enough to afford the
housing that currently exists in the County; and 2) there is a lack of modestly priced
options in the County affordable at that wage level. To be a vibrant and growing
community, it is important to have a good mix of jobs across a wide wage range as well
as enough housing that is accessible to all income levels so those that work in the County
also can call it home.
For the business sector to grow and expand, a reliable labor force is needed to fuel it.
Available and financially accessible housing helps to attract a talented workforce to fill
these job opportunities so they can live near their place of work. Workers often look for
jobs that are located near attractive housing options. This also helps to retain current
workers who wish to be at a company for the long term thereby avoiding unnecessary
and costly employee turn-overs.
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EXISTING HOUSING SUPPLY
The previous sections are intended to provide context from which to consider the City’s
existing housing stock, and to eventually consider how the City may plan for future
needs in the housing stock. This section provides information about the current housing
stock in Lake Elmo that is most relevant to consider when planning for the future of
the City’s housing. This information is a synthesis of more detailed housing and socio-
economic data that is included in Appendix A: Background report, which was used to
inform the remaining content of this Chapter.
Key Housing Characteristics
Total Housing Units and Recent Construction Trends
According to data from the Metropolitan
Council and the City of Lake Elmo, there are
3,606 housing units in Lake Elmo as of 2017.
As seen in Figure 5-1. Housing Construction
Permits 2001-2017, a 10-year period of very
limited new construction proceeds Lake Elmo’s current strong housing market and rapid
growth adding approximately 300 new housing units per year. It is important to keep in
mind, though, that the housing sector, like all real estate sectors, is cyclical. Therefore,
not every year during the planning period will likely see similar quantities of new
housing development. As a result, it will be important to track housing development on
an on-going basis to understand how broader market trends are influencing the growth
and change of Lake Elmo.
Figure 5-1. Housing Construction Permits 2001-2017 (units)
Sources: Metropolitan Council; City of Lake Elmo
3,606 Lake Elmo housing
units as of December 31, 2017
- Sources: Metropolitan Council:
City of Lake Elmo
Grand Total
87%Single Family
7%Townhome
7%Multifamily
52%Single Family
23%Townhome
24%Multifamily
42%Single Family
15%Townhome
43%Multifamily Sources: Metropolitan Council; City of Lake Elmo
0
5,000
10,000
15,000
20,000
25,000
201120122013201420152016Metro Area Housing UnitsCOUNTY METRO AREA
140
94
46
13 21 27 25 23 17 26 25 34 36 41
142
339
299
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Year Built
Although recent construction in Lake Elmo
is adding a lot of new housing units, over
40 percent of the City’s housing stock
(1,500 units) is more than 40 years old.
Therefore, it will be important for the
City to track the condition of these older
homes because they are at-risk of deferred
maintenance, which can rapidly result in
critical structural problems. At the same
time, well-maintained older housing can
be an important source of entry-housing.
Housing Type
Lake Elmo’s existing housing stock is dominated by detached, single-family homes
as seen in Figure 5-2. Housing Stock by Structure Type. According to data from the
Metropolitan Council, 82 percent of the City’s housing stock (2,955 units) consists
of single-family homes. Moreover, the remaining housing stock mostly consists of
manufactured housing or mobile homes, which account for 12 percent of the housing
stock of 428 units. This means only six percent of the housing stock (223 units) is
something other than a single-family home or manufactured home. More housing
choices will help older adults to remain in the City as they age-in-place and younger
adults to move into Lake Elmo.
Figure 5-2. Housing Stock by Structure Type (2017)
Single-Family82%
Mobile Homes
12%
All Other Housing Types 6%
Owner-Occupied92%
Renter-Occupied
8%
Sources: Metropolitan Council; City of Lake Elmo
Housing Goal #4. Protect
and preserve the existing
housing stock of established
neighborhoods.
- Chapter 1: Vision, Goals & Strategies
40% Lake Elmo housing
stock more than 40 years old
- Sources: US Census; Metropolitan Council;
City of Lake Elmo
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Although single-family homes can be a very flexible type of housing, it does mean that
the community has a lack of housing choices. This can have an impact on both existing
residents who may desire a different housing type and those who may want to move into
the community. This is especially true for older residents who no longer want or are able
to maintain a single-family home. Currently, the only option for Lake Elmo residents
in need of housing with support services is Arbor Glen Senior Living, which opened in
2017. However, for older adults who do not need support services, but would prefer
low maintenance housing, the options are limited to small pockets of new developments
such as the villa-style products in Inwood.
Key Demographics
The issue of being able to adequately house an aging population will only become more
important in the coming years. According to data from the US Census, Lake Elmo is
already a community with a high proportion of older adults. Illustrated in Figure 5-3.
Median Age of the Population, the median age of Lake Elmo residents in 2015 was 44
years, which was almost 8 years older than the metro area median age. The Minnesota
State Demographer anticipates Lake Elmo’s median age will increase, and by 2020, they
expect the City’s median age to be just over 46. Therefore, the housing needs of an older
population will become increasingly important in the years to come.
Figure 5-3. Median Age of the Population (2015)
37.3
42.4
43.9
46.1
34.2
36.0 36.5
37.7
33
38
43
2000 2010 2015 2020
LAKE ELMO
METRO AREA
Sources: US Census; Minnesota State Demographer; Perkins+Will
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At the same time, Lake Elmo has
surprisingly few residents age 25 to 34.
Currently, a little over five percent of the
City’s population is in this age group.
Metro-wide the percentage is three times
this amount at just over 15 percent. The
lack of young adults is likely the result of
few entry-level housing options.
Homeownership Level
The predominance of single-family homes helps explain why almost all of the housing
stock is owner-occupied (92% or 3,402 units) versus renter-occupied (8% or 204
units) as seen in Figure 5-4. Lake Elmo Homeownership. Although homeownership
is an important path to building wealth and promoting greater civic involvement,
depending on where households are in their lifecycle, homeownership also can be a
financial burden. For example, many older adults have health concerns that make
maintenance and upkeep of their housing a physical and financial challenge. Younger
persons who grow up in a community and want to form their own household often don’t
have the savings to enter homeownership. Without rental options, these population
groups are forced to leave the community to find housing that will accommodate their
circumstances. The only existing rental options are single-family homes or the recently
completed Arbor Glen Senior Living residence.
Figure 5-4. Lake Elmo Homeownership (2017)
Single-Family82%
Mobile Homes
12%
All Other Housing Types6%
Owner-Occupied92%
Renter-Occupied
8%
Sources: Metropolitan Council; City of Lake Elmo
5 % of Lake Elmo residents
are 25-34 years old
1 5% of Metro area residents are
25-34 years old
- Source: US Census
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Home Values and Household Income
Lake Elmo has high housing values compared to the larger metro area. According to the
Minneapolis Area Association of Realtors, the 2017 median sales price of homes in Lake
Elmo was $432,500, which was $185,000 more than the Metro area median sales price
of $247,900 illustrated in Figure 5-5. Median Home Sales Price. High home prices are
attributed to larger homes sizes, newer housing stock, and larger lot sizes as well as the
City’s advantageous location within the region given its proximity to numerous open
space amenities, retail shopping and services and major employment centers. Despite
the high average home prices, there are areas within the City with less costly housing. In
particular, older and smaller homes are concentrated near the Old Village, Tablyn Park,
and in the Cimarron manufactured home park.
Figure 5-5. Median Home Sales Price (2017)
$432,500
$247,900
LAKE
ELMO
METRO
AREA
Source: Minneapolis Area Association of Realtors
The cost of housing also has a strong influence on who lives in Lake Elmo. The result is
a community that is much older and wealthier than the Metro area. According to the US
Census, the 2015 median household income for Lake Elmo was just under $100,000,
which was 35 percent higher than the metro area median household income of $69,000
as seen in Figure 5-6. Median Household Income. High household incomes have more
to do with few younger households than a concentration of wealth. If the City had more
younger households, the median household income would likely be lower.
Figure 5-6. Median Household Income (2015)
$99,161
$69,233
LAKE
ELMO
METRO
AREA
Source: US Census
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Map 5-1. Assessor Estimated Home Values (2018)
Elmo
Jane
Olson
Downs
Rose
Eagle Point
DeMontreville
Sunfish
Horseshoe
Goose
Clear
Goetschel
Kramer
Armstrong
Unnamed
Legion Pond
Friedrich Pond
H.J. Brown Pond
Goose
Deer Pond
Armstrong
Crombie Pond
Klawitter Pond
Berschen's Pond
Hedge's Pond
Dirk's Pond
Beutel's Pond
FHomesteaded EMV
< $238,500
$238,501 - $450,000
$450,001 - $750,000
$750,001+
Draft Date: 4.5.2018
Source: Washington County,
MNGEO, SHC
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HOUSING DEMAND & AFFORDABILITY
The existing conditions of the City’s housing stock provide valuable insight and
information to assist in planning for what types of housing and price-points may be
demanded in the future as the City continues to grow. As described in the previous
sections of this Chapter, the existing housing stock is relatively homogeneous and
expensive. By planning for improved housing diversity, the City will experience a more
stable, well-rounded housing supply to meet the demands of a diverse demographic.
To assist in that planning effort, this section of the Housing Chapter analyzes the
affordability of Lake Elmo’s existing housing stock and compares it to the City’s ability
to meet the current and forecasted housing needs. One of the most important factors
in analyzing the housing stock is its affordability and marketability. As demonstrated
in previous sections of this Chapter, the majority of Lake Elmo’s housing stock is not
considered affordable. Some of the conditions that limit affordability are the newer
age of the housing stock, the larger size of the homes and lots, and also Lake Elmo’s
geographic location in the region. These same factors also contribute to the City’s
marketability and housing value. With newer and larger homes, the average market
value of the homes is more than that of other communities that may have more typical
suburban size lots, more modest homes, and an older housing stock.
Definition of Affordability
There are several different definitions of affordable housing. The definition of affordable
housing most frequently cited and measured in this Chapter is that housing is affordable
when households do not pay more than 30 percent of their income on housing costs.
(Defined by the U.S. Department of Housing and Urban Development or “HUD”).
When households have incomes at or below 80 percent of the area median income
(AMI) costs associated with market rate housing (whether ownership or rental) becomes
a challenge. This household group tends to pay more than 30 percent of their income
on housing and has less disposable income to pay for other goods and services such
as clothing, food, child care, transportation, and medical expenses. In addition, those
residents with lower incomes have significantly fewer housing choices to meet their
family needs.
As required by 2015 System Statements issued by the Metropolitan Council, cities
within the seven-county metropolitan area are required to plan for an allocated number
affordable housing units based on three levels of affordability. As prescribed by HUD
for the Twin Cities region, the three levels are: Extremely Low Income (30% of Area
Median Income “AMI” or less); Very Low Income (31-50% of AMI); and Low Income
(51-80% of AMI).
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Ownership Housing Affordability
Table 5-1 identifies the housing costs/prices that meet each of the affordability levels
for home ownership in Lake Elmo. The Metropolitan Council determines affordable
home prices based on monthly housing costs, assuming a 30-year fixed-rate mortgage at
prevailing interest rates, insurance, and utilities.
Ta ble 5-1. 2017 Affordable Purchase Price for Owner-Occupied Housing
Household Income Level Affordable Home Price
80% AMI ($68,000)$236,000
60% AMI ($54,240)$185,000
50% AMI ($45,200)$151,500
30% AMI ($27,100)$85,000
Source: Metropolitan Council
Table 5-2 identifies the monthly rental housing costs that meet each of the affordability
levels for rental housing in Lake Elmo. Based on HUD defined parameters, the
Metropolitan Council determines affordable rents based on the number of bedrooms
assuming that smaller units can and should accommodate smaller households.
Table 5-2. 2017 Affordable Rental Rates
# of Bedrooms 30% of AMI 50% of AMI 60% of AMI 80% of AMI
Studio/Efficiency $474 $791 $949 $1,265
1 Bedroom $508 $848 $1,017 $1,356
2 Bedroom $610 $1,017 $1,220 $1,627
3 Bedroom $705 $1,175 $1,410 $1,880
4 Bedroom $786 $1,311 $1,573 $2,097
Source: Metropolitan Council
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Existing Affordable Units
Table 5-3 compiles an inventory of the estimated market value of ownership housing
and of rental rates to determine what percentage of the City’s housing stock would be
considered affordable based on the levels established by HUD for the region. As shown,
24 percent of the City’s housing stock (865 units) is at or below 80 percent of AMI, with
13 percent of the housing stock (473 units) at or below 50 percent of AMI. A significant
proportion of the City’s affordable housing stock is located in the Cimarron manufactured
home park, and in the historic neighborhoods surrounding the Old Village District.
As suggested by the City’s median home sales price, Lake Elmo’s overall housing stock is
not affordable, especially when compared to the metro area’s percentage of housing units
that are considered affordable. Regionally, 68 percent of the housing stock is affordable
at or below 80 percent of AMI and 28 percent is affordable at or below 50 percent of
AMI.
Table 5-3. Lake Elmo Affordable Housing Stock
Lake Elmo Units Percentage of All
Housing Units
Metro Area Percentage
of All Housing Units
Units affordable to households with
income at or below 30% of AMI 373 10.3%6.5%
Units affordable to households with
income 31% to 50% of AMI 100 2.8%21.8%
Units affordable to households with
income 51% to 80% of AMI 392 10.9%39.9%
Total Units at or below 80% AMI 865 24.0%68.3%
Source: Metropolitan Council staff estimates for 2015 based on 2105 and 2016 MetroGIS Parcel
Datasets (ownership units), 2009-2013 Comprehensive Housing Affordability Strategy data from HUD
(rental units and household income), and the Council’s 2015 Manufactured Housing Parks Survey
(manufactured homes).
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Publicly Subsidized Units
As of 2017, Lake Elmo does not have any publicly subsidized housing units.
Cost Burdened Households
Directly correlated to affordability is the metric of cost burden, which is the proportion
of household income spent toward housing and utilities. When lower income households
spend more than 30 percent of their income toward housing and utilities this burden is
considered excessive because it begins to limit the money available for other essentials
such as food, clothing, transportation, and healthcare. Table 5-4 shows the number and
percentage of low-income Lake Elmo households that are cost burdened and compares
this against the metro area rate of cost burdened low-income households.
According to data from the Metropolitan Council, 418 Lake Elmo households have
incomes at or below AMI and also spend more than 30 percent of their income on
housing costs. This is just under 12 percent of the City’s households. This percentage
is less than half the Metro area rate of 23 percent. The low incidence of cost burdened
households is correlated with high proportion of households in their peak earning years
(i.e., age 45-64) with higher than average incomes and the existing housing supply.
As Lake Elmo’s population ages into retirement, and younger households are needed
to support local business expansion, housing that is cost burden to lower income
households will increase.
Table 5-4. Cost Burdened Households by Income Level
Lake Elmo
Units
Percentage of All
Households
Metro Area Percentage
of All Households
Income at or below 30% of AMI 200 5.5%10.0%
Income 31% to 50% of AMI 151 4.2%7.4%
Income 51% to 80% of AMI 67 1.9%5.8%
Total households at or
below 80% AMI 418 11.6%23.2%
Note: Housing cost burden refers to households whose housing costs are at least 30% of their income.
Source: U.S. Department of Housing and Urban Development, 2009-2013 Comprehensive Housing
Affordability Strategy (CHAS) data, with counts adjusted to better match Metropolitan Council 2015
household estimates.
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Affordable Housing Allocation for Lake Elmo
Included within the 2015 System Statement provided by the Metropolitan Council is an
allocation of affordable housing need for the City of Lake Elmo. The System Statement
requires the City to plan for an additional 508 Affordable Units over the next 20 years
(Table 5-5). Because of the limited supply of existing affordable housing, the Metropolitan
Council is establishing an allocation of new affordable units to meet both regional
goals for housing affordability and to ensure greater housing choice within Lake Elmo
as it grows and its housing needs become more diverse. As such, land use designations
contained within Chapter 3: Land Use assign appropriate densities to developing or
redevelopment areas to meet the Metropolitan Council’s affordable allocation.
Table 5-5. Affordable Housing Need Allocation through 2030 (Adjusted)
% of Area Median Income (AMI)Units
At or below 30% AMI 52
31 to 50% AMI 348
51 to 80% AMI 586
Total Units 986
Source: Metropolitan Council Email 1/25/2019, Metropolitan Council 2015 Systems Statement
Lake Elmo, SHC
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FUTURE HOUSING OPPORTUNITIES
Projected Housing Need
The Metropolitan Council’s 2015 System
Statement forecasts that Lake Elmo will
add approximately 3,500 new households
through 2040. This amount of household
growth will generate need for a more diverse
housing stock. As a community that is both
aging and growing, it will be important that
a much wider selection of housing be made
available in order to retain existing residents
and attract new ones. Therefore, the City
will need to accomodate more housing
options besides detached single-family units
on large lots and manufactured homes.
This Housing Chapter does not prescribe specific housing products or styles, but it
does identify where within the land use plan different housing types, primarily through
guided densities, can be accommodated. For example, the 2015 System Statement
allocates 508 new affordable housing units in Lake Elmo through 2030. It does not
stipulate that these be rental or owner;
it does not stipulate that these units be
attached or detached; nor does it stipulate
that they be publicly subsidized or
dependent on market dynamics. However,
housing affordability is strongly correlated
with the price of land. Therefore, areas that
allow higher densities are more likely to
accommodate a range of housing types and
price points.
3,500
Number of forecasted new households
in Lake Elmo through 2040
- Source: Metropolitan Council
508
Number of allocated affordable
housing units through 2030
- Source: Metropolitan Council
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Future Residential Uses in Planned Growth Areas
Higher Density Residential Areas
The Land Use Plan outlined in Chapter 3 identifies two planned growth areas both
within the Municipal Urban Services Area (MUSA): 1) the South Planning Area; and
2) the Village Planning Area. Both planned growth areas call for new residential land
uses at a sufficient density to accommodate a variety of housing types at densities that
could support the number of allocated affordable units at the three income levels. Table
5-6 below describes the future land use categories, the allowable density ranges, and the
minimum number of supportable future units. According to the guided densities and
staging plan, these three high density areas could accommodate, at minimum, a total of
approximately 1,134 dwelling units between 2020 and 2030, which exceeds the revised
required allocated affordable units based on the population and household projections
provided in this Plan.
Table 5-6. Planned Residential Uses Supportive of Affordable Housing
Future Land Use Residential Density
(dwelling units/acre)
Total
Acres Supportable Households
High Density Residential (HDR)8.01-15 79.99 640
Village High Density Residential (V-HDR)8.01-12 21.99 176
Mixed Use Commercial (MU-C)10-15 31.86 318
Total 2020-2030 Higher
Density Residential 133.84 1,134
Net Density 2020-2040 (All
Planned Residential Areas)8.6 dwelling units/acre
Source: SHC, Perkins+Will, City of Lake Elmo
Moreover, the two residential land use
categories would be proximate to mixed-
use and commercial districts in which
essential goods and services, transit, and
employment opportunities would be
planned to be available.
Housing Goal #1. Create land use
designations that support various housing
types throughout the community.
- Chapter 1: Vision, Goals & Strategies
HOUSING 1.30.2019
City of Lake Elmo Comprehensive Plan 2040
20
Other Sewered Residential Areas
In addition to new residential development envisioned in higher density areas between
2020 and 2030, the Housing Plan also calls for significant residential development in
the planned growth areas at lower densities and in future staging period. According to
the Land Use Plan, the growth areas could accommodate approximately 2,386 housing
units through 2040. These residential categories range from low density areas to mixed-use
districts that could support relatively high density development, such as housing above
ground floor commercial space, or horizontally integrated uses that are connected with
walking trails between job centers and apartments.
Rural Residential Areas
Lake Elmo has a rich history of supporting innovative conservation developments and
other unsewered residential neighborhoods. These residential areas preserve critical open
space and contribute to Lake Elmo’s high quality of life. Although this Plan does not plan
for significant residential growth in the rural
portions of Lake Elmo, some growth in this
area of the community is anticipated to occur
over this planning period. Like housing in the
sewered areas of the community, the City’s Rural
Residential housing stock is an important part
of the housing supply that must be planned for
and considered as the community grows. An
important consideration of any future residential
developments in these areas should respect past
efforts to protect and preserve important open
spaces, critical habitats, and water resources.
Maintaining Existing Housing & Neighborhoods
While the City is projected to more than double its households in this planning period,
there remains a significant portion of the housing supply that is aging and may begin
to experience deferred maintenance, and structural obsolescence if not maintained. As
such, it is critical that the City plan for and consider how existing neighborhoods and
structures, particularly as they age, will be maintained. Many of these neighborhoods
are constructed with high-end, large homes and lots but there are also areas of the City
with smaller houses and lots that are an important piece of the City’s history, as well as
a contributor to the small proportion of naturally occurring affordable houses in the
community. These neighborhoods, at all price-points, are an important part of the City’s
character, and it is important for the community to continue to prioritize these areas for
preservation and maintenance as an important part of the City’s housing stock.
Housing Goal #3. Endorse and sustain
existing neighborhood patterns
throughout the rural residential areas
of the community.
- Chapter 1: Vision, Goals & Strategies
HOUSING 1.30.2019
City of Lake Elmo Comprehensive Plan 2040
21
HOUSING RESOURCES, STRATEGIES & TOOLS
Table 5-7 outlines a variety of resources and tools to implement Lake Elmo’s identified housing needs and
stated housing goals. There is a wealth of resources available to assist communities in meeting their goals.
The table below should be considered a starting point. As the City’s housing needs evolve or become more
defined, it should expand with options.
Table 5-7. Housing Resources and Tools
Housing Goal Tool/Resource/Strategy Description
Protect and
Preserve
Housing Stock
of Existing
Neighborhoods
CDBG Work with Washington County CDA to use CDBG funds to help low- and
moderate-income homeowners with rehabilitation assistance.
Referrals
Review and update reference procedures and training for applicable staff,
including a plan to maintain our ability to refer our residents to any applicable
housing programs outside the scope of our local services.
CDA Septic Loan and
Grant Program
The Washington County CDA has loan and grant funds available to help
residents with individual septics that may be failing or out of compliance
with current standards.
Foreclosure prevention
In established neighborhoods, a rash of foreclosures, especially in
proximity to one another, can have a deleterious effect on the surrounding
neighborhood. Be aware of foreclosures and be able to direct homeowners
at-risk of foreclosure to resources that can help prevent foreclosures (can
http://www.foreclosure-response.org/policy_guide/index.html).
Explore ways
to integrate
lifecycle
housing
choices
throughout the
community
Washington County
Community Development
Agency (CDA)
Given the limited staff capacity of Lake Elmo, regularly coordinate with the
Washington County CDA to best align their resources with the City’s housing
needs and goals. The CDA has capacity, funding resources, and expertise to
assist smaller communities with their housing needs.
GROW Program Consider utilitizing GROW Program funds for City intiated redevelopment
efforts to support increased diversity in high-density residential areas.
Livable Communities
Demonstration Account
(LCDA)
Consider supporting/sponsoring an application to LCDA programs for
multi-family rental proposals in areas guided for high density residential and
targeted to households of all income levels.
Tax Abatement Consider tax abatement for large rental project proposals.
Zoning and Subdivision
ordinances
Review zoning and subdivision ordinances to identify any regulations that
inhibit the housing priorities in this document.
Expedited application
process
Streamline the pre-application process in order to minimize unnecessary
delay for projects that address our stated housing needs, prior to a formal
application submittal.
Site Assembly Consider strategies for assembling sites in high-density or mixed-use
districts that would increase appeal to developers.
Housing Bonds Work with Washington County CDA to raise housing bonds for the
development of low-income housing at various targeted income levels.
Tax Increment Financing
(TIF)
To help meet the need for low-income housing, consider establishing a TIF
district in an area guided for high density development.
Brownfield Clean-Up
In potential redevelopment areas in the Old Village or along the I-94 corridor,
explore EPA and MN DEED grant programs that provide funding and
assistance with planning, assessment, and site clean-up.
CITY OF LAKE ELMO, MINNESOTA
RESOLUTION 2019-011
A RESOLUTION APPROVING THE 2040 COMPREHENSIVE PLAN UPDATE
WHEREAS, Minnesota Statutes section 473.864 requires each local governmental unit
to review and, if necessary, amend its comprehensive plan and its fiscal devices and official
controls at least once every ten years to ensure its comprehensive plan conforms to metropolitan
system plans and ensure its fiscal devices and official controls do not conflict with the
comprehensive plan or permit activities that conflict with metropolitan system plans; and
WHEREAS, Minnesota Statutes sections 473.858 and 473.864 require local governmental
units to complete their “decennial” reviews by December 31, 2018; and
WHEREAS, the City received a time extension from the Metropolitan Council to
complete and submit their Comprehensive Plan update by February 28, 2019; and
WHEREAS, the City Council, Planning Commission and the City Staff have prepared a
proposed Comprehensive Plan intended to meet the requirements of the Metropolitan Land
Planning Act and Metropolitan Council guidelines and procedures; and
WHEREAS, pursuant to Minnesota Statutes section 473.858, the proposed
Comprehensive Plan was submitted to adjacent governmental units and affected special districts
and school districts for review and comment on June 5, 2018, and the statutory six-month review
and comment period has elapsed; and
WHEREAS, the Lake Elmo Planning Commission has considered the proposed
Comprehensive Plan and all public comments, and thereafter submitted its recommendations to
this City Council; and
WHEREAS, the City conducted public hearings on May 7, 2018, May 30, 2018 and on
January 14, 2019 relative to the adoption of the proposed Comprehensive Plan; and
WHEREAS, the City Council has reviewed the proposed Comprehensive Plan and those
recommendations, public comments and comments from adjacent jurisdictions and affected
districts; and
WHEREAS, Minnesota Statutes section 473.858 requires a local governmental unit to
submit its proposed comprehensive plan to the Metropolitan Council following recommendation
by the planning commission and after consideration but before final approval by the governing
body of the local governmental unit.
WHEREAS, based on its review of the proposed Comprehensive Plan and Planning
Commission and staff recommendations, the City Council is ready to approve the proposed
Comprehensive Plan; and
NOW THERE, BE IT RESOLVED BY THE CITY COUNCIL OF LAKE ELMO,
MINNESOTA, the proposed 2040 Comprehensive Plan Update (with Chapters dated 1-06-
2019 and 1-30-2019) is approved subject to the final approval of the Metropolitan Council.
Adopted by the Lake Elmo City Council on February 5, 2019.
_________________________________
Mayor
Attest:
_________________________________
City Clerk
CITY OF LAKE ELMO, MINNESOTA
RESOLUTION 2019-012
A RESOLUTION AUTHORIZING CITY STAFF TO SUBMIT THE 2040
COMPREHENSIVE PLAN UPDATE TO THE METROPOLITAN COUNCIL
WHEREAS, Minnesota Statutes section 473.864 requires each local governmental unit
to review and, if necessary, amend its comprehensive plan and its fiscal devices and official
controls at least once every ten years to ensure its comprehensive plan conforms to metropolitan
system plans and ensure its fiscal devices and official controls do not conflict with the
comprehensive plan or permit activities that conflict with metropolitan system plans; and
WHEREAS, Minnesota Statutes sections 473.858 and 473.864 require local governmental
units to complete their “decennial” reviews by December 31, 2018; and
WHEREAS, the City received a time extension from the Metropolitan Council to
complete and submit their Comprehensive Plan update by February 28, 2019; and
WHEREAS, the City Council, Planning Commission and the City Staff have prepared a
proposed Comprehensive Plan intended to meet the requirements of the Metropolitan Land
Planning Act and Metropolitan Council guidelines and procedures; and
WHEREAS, pursuant to Minnesota Statutes section 473.858, the proposed
Comprehensive Plan was submitted to adjacent governmental units and affected special districts
and school districts for review and comment on June 5, 2018, and the statutory six-month review
and comment period has elapsed; and
WHEREAS, the Lake Elmo Planning Commission has considered the proposed
Comprehensive Plan and all public comments, and thereafter submitted its recommendations to
this City Council; and
WHEREAS, the City conducted public hearings on May 7, 2018, May 30, 2018 and on
January 14, 2019 relative to the adoption of the proposed Comprehensive Plan; and
WHEREAS, the City Council has reviewed the proposed Comprehensive Plan and those
recommendations, public comments and comments from adjacent jurisdictions and affected
districts; and
WHEREAS, Minnesota Statutes section 473.858 requires a local governmental unit to
submit its proposed comprehensive plan to the Metropolitan Council following recommendation
by the planning commission and after consideration but before final approval by the governing
body of the local governmental unit.
WHEREAS, based on its review of the proposed Comprehensive Plan and Planning
Commission and staff recommendations, the City Council is ready to submit its proposed
Comprehensive Plan to the Metropolitan Council for review pursuant to Minnesota Statutes
section 473.864; and
NOW THERE, BE IT RESOLVED BY THE CITY COUNCIL OF LAKE ELMO,
MINNESOTA, AS FOLLOWS:
1. The City Administrator is directed to distribute said 2040 Comprehensive Plan Update to
the Metropolitan Council by February 28, 2019 pursuant to Minnesota Statutes section
473.864.
Adopted by the Lake Elmo City Council on February 5, 2019.
_________________________________
Mayor
Attest:
_________________________________
City Clerk