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Minnesota’s Lake Superior Coastal Program

Town of Lakewood

Comprehensive Land Use Plan Update

Compiled by Gene Bromenshenkel

Town of Lakewood Deputy Clerk

Project Completion: June 30, 2008

Project No. MLSCP No. 306-05-08

Contract No. A93373

This Project was funded in part under the Coastal Zone Management Act, by
NOAA’s Office of Ocean and Coastal Resource Management, in
cooperation with Minnesota’s Lake Superior Coastal Program. Matching
funding provided by the Town of Lakewood. Facilitation of the Project
provided by the Center for Rural Planning in contract with the Town of
Lakewood.

I. Introduction

The Town of Lakewood’s Comprehensive Land Use Plan had not been
formally updated since the mid-1980’s. Minn. Statutes 394.232, Community-
Based Planning, Subp. 6, Plan Update requires local units of government to
update Plans every ten years. The Comprehensive Land Use Plan provides
the umbrella for zoning ordinances to be enacted by local units of
government.

With a steady increase in the Town’s population and changing demographics,


the proximity to Lake Superior and the City of Duluth, it was recommended
by the Lakewood Planning and Zoning Commission and the Lakewood Board
of Supervisors with encouragement from the Town’s citizens at Annual Town
Meetings, that the CLUP for Lakewood be updated. The North Shore
Management Board also encouraged local units of government that share the
shores of Lake Superior update their individual plans.

A previous survey of Town residents in 2002 indicated a need to review the


CLUP and the aspects related to a quality rural style of living including
overall environment, water quality protection and forested areas.

The long-range recommendations of the Board of Supervisors is that the


CLUP be updated, followed by a review of the Town’s Land Use Zoning
Ordinance.

II. Work Completed

A. Public Involvement: In development of the outline for updating the


Comprehensive Land Use Plan, citizens at the Annual Town Meeting and
the Board of Supervisors stressed the need for a multi-faceted approach to
involve the Town’s citizens in a variety of ways to provide a broad-based
input into the Update of the Plan. The following notes the steps included
to provide a broad-based involvement:
1. An RFP (Request for Proposals) was initiated to obtain a
facilitator for the process who would provide a broad-based
public involvement. Four RFP’s were received. Based on
resumes and previous similar work done, the Board of
Supervisors contracted with the Center for Rural Planning to
facilitate the process of the Plan update.
2. An introduction and statement of purpose letter was sent to each
resident household in the township announcing the plans and the
process of involvement for the public, including timetables.
3. A special section was set up on the Town’s web site for the
public to access progress and updates of the process.

4. A public open house was held in the second month of the process
to give the public an opportunity to ask questions as well as
provide input.
5. A resident four-page survey was sent to each household to
provide a broad-based input on the future desires for the
township. A 30% return was received on the survey.
6. Residents and property owners were encouraged to apply for
serving on a steering committee which would gather the
information from many sources and develop the draft of the
updated Plan. Thirty seven residents and property owners
applied for positions on the Committee. The Board of
Supervisors selected 17 plus four alternates to serve on the
Steering Committee. The members represented a broad-base of
interests, experiences and backgrounds and represented
businesses, homeowners, and property owners.
7. The Steering Committee met twice per month from April, 2007
through June of 2008. They developed a draft of the Plan and
proposed the draft to the Town’s Planning and Zoning
Commission and the Board of Supervisors for review of clarity.
8. The Steering Committee held two open houses in June of 2008 to
present the proposed updated Comprehensive Land Use Plan to
the public. The updated Proposed Plan included a vision for the
future, planning recommendations for maintaining the rural
character of the community, water resources protection,
environmental protection, housing, transportation, commercial
and industrial activity, and general land use measures.
9. A Public Hearing is required and will be held in August of 2008
prior to the Final Plan being adopted by the Town’s Board of
Supervisors. The Public Hearing was originally set for June,
2008. The public requested more time to review the proposed
Plan, thus the Board of Supervisors extended the review period
from June to August of 2008. The Proposed Plan is available in
hard copy at the Town Office and also on the Town’s web site at:
Lakewoodmn.com.

B. Performance Measures: Specific measures identified as goals and


policies are included in the Plan:
Land Use Goal 1: Maintain the existing rural and semi-rural mix of
the Town of Lakewood.
Goal #1 Policies:
Policy 1. Minimize residential development on small lots not
consistent with existing land use patterns.
Policy 2. Undeveloped parcels should be developed in harmony
with the surrounding area’s dominant use activity.
Policy 3. Allow reconstruction on nonconforming parcels,
providing there is a conforming well and sewage system.

Policy 4. To minimize land use conflicts, regulate with tools such


as screening, increased setbacks, buffer areas, and hours of
operation.
Policy 5. Encourage preservation of family farms and areas devoted
primarily to agricultural uses.

Land Use Goal 2: Protect and preserve the high quality of the
Town’s natural environment and scenic beauty.
Goal #2 Policies:
Policy 1. Permit future development in Lakewood only where
existing soil and slope conditions are suitable for structures and on-
site sewage disposal systems as reflected in St. Louis County
requirements.
Policy 2. Preserve wetlands, forested areas and drainage systems
that provide wildlife habitat and those that are essential to protect
the ground water and surface waters of the Town.
Policy 3. Encourage the use of natural features, earth tone colors
and other design tools that help blend the design of residential,
commercial and industrial development into the natural
environment.
Policy 4. FEMA designated and other flood management areas
shall not be developed.
Policy 5. Discourage practices which could contribute to rapid
runoff, erosion and sedimentation.
Policy 6. There will be no new commercial junk or salvage yards.
Policy 7. Encourage the protection and management of forest land
as a natural resource.

Land Use Goal 3: Provide for the orderly growth of commercial


and industrial activities within the commercial and industrial
concept areas.
Goal #3 Policies:
Policy 1. Allow for expansion of existing sites only where good
access can be provided without impairing the functional integrity
of existing roadways) and site design controls can be successfully
implemented to minimize land use conflicts. To minimize land
use conflicts regulate with tools such as screening, increased
setbacks, buffer areas, and hours of operation.
Policy 2. Ensure that new commercial or industrial development
will be compatible with the character and environment of the Town
through the following: site design controls; use of screening
between potential incompatible land uses; concentration (nodes) of
commercial and industrial uses whenever practicable.
Policy 3. Small-scale home occupations and businesses shall be
consistent with the existing land use and rural character of the

Town.

Land Use Goal 4: Maintain and promote safe and efficient travel
throughout the Township’s road network.
Goal #4 Policies:
Policy 1. Encourage needed improvements and maintenance of
existing roadways by carefully monitoring intensity of use and traffic
accidents.
Policy 2. Coordinate interior development and new accesses to
promote the efficient provision of public services in a timely and
fiscally responsible manner.
Policy 3. Promote shared or multiple use of existing transportation
and utility corridors to minimize consumption of land for
transportation related uses.

Land Use Goal 5: Encourage a range of recreational and open


space activities that meet the needs of local residents.
Goal #5 Policies:
Policy 1. Support and seek funding for community recreational
facilities, such as skating rinks, indoor centers, tennis courts, skiing,
hiking and biking trails, and public water access.
Policy 2. Create open space and opportunities for recreation that is
not detrimental to the natural environment through tools such as but
not limited to the following: conservation design that does not
increase the density allowed by the zoning district, the purchase of
development rights, planned residential development, scenic
easements, and cooperative land owner agreements.

Land Use Goal 6: Encourage Lakewood’s residents and

landowners to participate in land use and development decisions.

Goal #6 Policies:

Policy 1. Lakewood should continue to work with neighboring

jurisdictions to prevent incompatible land uses along its borders.

Policy 2. Public Services and facilities provided by the Township

should be consistent with the Land Use Plan and based upon need

and available financial resources.

C. Government Coordination & Decision-Making

1. A primary goal of updating the Town of Lakewood


Comprehensive Land Use Plan was the involvement of the
citizens and property owners in providing input for development
of the Plan. This was accomplished in a number of ways:
a. Public information about the Update and announcement of
ways the public could be involved. This included a special
mailing to each household in early 2007 to inform the

public of the entire process and the intended outcome of the


Update. A public open house was held at the Town Hall to
provide additional information about the Update process.
The Town’s web site was utilized to provide a continuous
update of the plans and process as it proceeded during the
course of one and one-half years. A printed survey was
sent to each household in the township to obtain
information about concerns and the future desires of
residents about such items as development, environmental
quality, business development, protection of natural
resources and other related items. A 30 % return was
received. A copy of the survey and survey results are found
in Appendix D.
b. A Steering Committee comprised of 21 town residents and
property owners gathered information and provided the
major leadership for the input on the Plan Update. The
public was invited and participated in each of the
Committee meetings which totaled 25 meetings.
c. The Town informed surrounding townships, County
Commissioners, St. Louis Co. Planning Dept., MDNR and
other relevant parties of the plans for updating the
Comprehensive Land Use Plan and invited their
participation.

D. Water Quality and Environment—The update of the Comprehensive


Land Use Plan included sections on reviewing the topography, water
quality (both surface and ground water), soils, runoff, wetlands, Lake
Superior Shoreline, and other environmental factors related to the future
and concern for the planning in the township. Challenges are identified in
the Plan and are included in the Goals and Policies as to addressing these
for future planning and development.

E. Concept Areas Identified---Geographic areas listed in the Plan as Concept


Areas were identified and the concerns and recommendations to address
the concerns outlined.

III. Results
A. Update of the Lakewood Comprehensive Land Use Plan identifies
sensitive environmental areas and concerns. General and specific
recommendations under goals and policies address how and when these
areas should be most noted in planning contexts.
B. The Comprehensive Land Use Plan provides an umbrella for decisions
made by the Board of Supervisors, Planning and Zoning Commission and
the Board of Adjustment as they deal with development requests, variance

requests and needs assessments about transportation, building, business


development, and water and sewer issues.
C. The update of the Plan also provides a guideline for St. Louis County
Planning, Soil and Water Planning and the North Shore Management
Board planning.
D. The update of the Comprehensive Land Use Plan provides guidelines for a
review and implementation of the Town’s Zoning Ordinance.
E. The update identified four main projects for achieving the goals and
policies of the updated Plan:
1. An assessment and amendment of the Town’s Zoning Ordinance
is needed.
2. Identification of resources and interested parties for identifying
the TMDL’s (Total Maximum Daily Load) for the Town’s
watershed is recommended.
3. Forming of a steering committee to analyze the needs for senior
assisted living is recommended.
4. Assessment of opportunities to identify funding sources for
hiking, biking, and ski trail systems in the Town.
F. The Plan will provide guidance for the development of areas adjacent to
and within the north shore coastal area through the goals established and
the policies recommended to implement the goals.
G. The Comprehensive Land Use Plan Update took additional time so that
the Steering Committee could formulate the vision, goals and policies.
The Steering Committee operated on the consensus model for decision-
making. At times this model found it difficult for the Committee to make
timely decisions due to the diversity of views, especially about business
development.

IV. Conclusions
A. The Plan will provide a guideline for the citizens and governing units of
the Town to plan for the future.
B. The Plan points to the need to update the current Zoning Ordinance.
C. Involvement of citizens is critical to the development of such a plan. It
needs to be recognized that a diversity of views and opinions about the
future and implementation of planning options are an opportunity, it also
means that such a process will be time consuming.
D. The development of a Comprehensive Land Use Plan should provide for
the community to express its desires for the future.

V. Appendices
A. Proposed Town of Lakewood Comprehensive Land Use Plan – June 5,
2008 (Final Plan to be adopted following 8-5-08 Public Hearing).
B. Appendix to Plan
C. Public Information Public Letter

D. Resident Survey and Survey Results Reports (3)


E. List of Steering Committee Members

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