2010-09-30 HEX# 10-007 Staff Reportk )(* l p-00"1
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Federal Way
DEPARTMENT OF COMMUNITY DEVELOPMENT SERVICES
STAFF REPORT TO THE
FEDERAL WAY HEARING EXAMINER
St. Luke's Lutheran Church Addition
Process IV `Bearing Examiner's Decision'
Federal Way File No. 10-100599-00-UP
PUBLIC HEARING
September 30, 2010
1:30 p.m.
City Council Chambers
Federal Way City Hall — 33325 8t' Avenue South
Report Prepared by:
David Lee, Associate Planner
Report Date:
September 15, 2010
Table of Contents
I. PROJECT INFORMATION AND BACKGROUND................................................................................... 3
II. REQUESTED DECISION AND PROJECT PROPOSAL............................................................................. 3
III. ENVIRONMENTAL REVIEW........................................................................................................... 4
IV. COMMENTS RECEIVED ON LAND USE APPLICATION....................................................................... 4
V. CONSULTED DEPARTMENTS AND AGENCIES................................................................................... 4
VI. GENERAL CHARACTERISTICS OF SITE AND VICINITY...................................................................... 4
VII. SITE DESIGN..................................................................................................................................... 5
VIII. COMMUNITY DESIGN GUIDELINES................................................................................................... 6
IX. TRANSPORTATION............................................................................................................................ 6
X. ANALYSIS OF FWRC 19.70.150(3) PROCESS IV DECISION CRITERIA ............................................. 7
XI. STATEMENT OF FACTS & CONCLUSIONS......................................................................................... 9
XII. STAFF RECOMMENDATION............................................................................................................. 10
LISTOF EXHIBITS........................................................................................................................................ 11
Staff Report to the Federal Way Hearing Examiner Page 2
St. Luke's Lutheran Church Addition 10-100599/Doe, I.D. 55714
I. PROJECT INFORMATION AND BACKGROUND
Name of Project: St. Luke's Lutheran Church Addition
City File No(s): Process IV File #10-100599-UP & Environmental File #10-100600-SE
Staff
Recommendation: Approval with Conditions
Summary of
Proposal: Proposal for an addition of a 14,000 square -foot, 2-story classroom
building, 600 square -foot storage/sprinkler room addition, 320 square -foot
entry addition to the southern elevation, new 3,100 square -foot paved
courtyard, and associated site improvements to an existing church.
Site Location: 515 South 312'h Stree, Federal Way, WA 98063.
A vicinity map is enclosed as Exhibit A.
Applicant: Community of Christ, 515 South 312t' Street, Federal Way, WA 98063
Agent: Robert Rowan, BPH Architects, 19624A 76`h Avenue West, Lynnwood,
WA 98036
Owner: Community of Christ, 515 South 312`h Street, Federal Way, WA 98063
(Exhibit B).
Comprehensive
Plan & Zoning
Designations:
Single -Family - High -Density Residential and RS 7.2, respectively.
Key Dates:
Master Land Use Application submitted February 12, 2010
Application determined complete March 4, 2010
Public notice pursuant to FWRC procedures March 6, 2010
Determination of Nonsignificance (DNS) issued July 31, 2010
Community Design Guidelines decision issued September 1, 2010
Notice of Public Hearing September 11, 2010
City Staff
Representative:
David Lee, Associate Planner, 253-835-2622
H. REQUESTED DECISION & PROJECT PROPOSAL
The applicant is requesting a Process IV "Hearing Examiner" decision pursuant to Chapter 19.70 of
the Federal Way Revised Code (FWRC). As the existing property is greater than five acres, the
applicant is required to obtain master plan approval as a component of the Process IV decision
pursuant to FWRC 19.200.050(2). The Process IV Master Land Use application is required as the
proposed addition exceeds the thresholds provided for improvements and additions pursuant to
FWRC 19.15.030(1), and the improvements are not exempt from environmental review pursuant to
the State Environmental Policy Act.
Proposal is for an addition of a 14,000 square -foot, 2-story classroom building, 600 square -foot
storage/sprinkler room addition, 320 square -foot entry addition to the southern elevation, new 3,100
Staff Report to the Federal Way Hearing Examiner Page 3
St. Luke's Lutheran Church Addition 10-100599/Doc ID 55714
square -foot paved courtyard, and associated site improvements to an existing church. Additionally,
the applicant proposes to eliminate 31 existing parking stalls.
III. ENVIRONMENTAL REVIEW
Pursuant to the State Environmental Policy Act (SEPA), the City issued a Determination of
Nonsignificance (Exhibit C) for the proposed action on July 31, 2010. During the DNS public
comment period, no comments were received by the City. The appeal period ended on August 23,
2010.
IV. COMMENTS RECEIVED ON LAND USE APPLICATION
As of the date of this report, no comments have been received on the Process IV `Hearing
Examiner's Decision' application.
V. CONSULTED DEPARTMENTS AND AGENCIES
The following departments, agencies, and individuals were advised of this application:
1. Development Review Committee (DRC), consisting of Community Development Services
Planning and Building Divisions; Public Works Development Services and Traffic Divisions;
Lakehaven Utility District; and South King Fire and Rescue District. DRC comments have been
incorporated into this report where applicable.
2. All property owners within 300 feet of the site were mailed the Notice of Application (NOA)
on March 6, 2010, and a Notice of Public Hearing, on September 10, 2010. The NOA and
Notice of Public Hearing were posted on the site, published in the Federal Way Mirror, and
posted on the City's official notice boards, in accordance with the City's public notice
requirements.
In accordance with SEPA and FWRC Title 14, `Environmental Policy," all property owners and
occupants within 300 feet of the site, and all affected agencies and tribes, were notified of the
proposed action and the City's environmental determination. In addition, the site was posted and
notice placed in the newspaper and on the City's official notice boards.
VI. GENERAL CHARACTERISTICS OF SITE AND VICINITY
The subject property was originally improved in 1964 prior to the incorporation of the City of
Federal Way and is comprised of four separate tax parcels totaling 18.15 acres (790,614 square
feet) located in an RS 7.2 zoning district. The surrounding land uses consist of a mix of other
church uses and single-family residential developments. The RS 7.2 zoning encompasses the
subject site. FWRC 19.200.050 allows church uses and material expansions to existing church uses
within RS 7.2 zones via Process IV land use approval.
The site is generally flat with the existing built environment totaling 5 5,09 8 square feet of gross
floor area. Soils on the subject property consist of Alderwood Gravelly Sandy Loam (AgB) and
Arents Alderwood Material (AmB), both at 0-6% slopes. A five-year and ten-year Wellhead
Capture Zone is located on the subject property. FWRC 14.30.010 has designated wellhead
protection areas as a `Critical Area.' The subject property is within the lower Puget Sound drainage
basin. Additionally, a Category III wetland with an associated 50-foot buffer exists in the southeast
corner of the site. The wetland nor the associated buffer is intruded upon by the improvements.
Staff Report to the Federal Way Hearing Examiner Page 4
St. Luke's Lutheran Church Addition 10-100599/Doc ID 55714
The subject property has two vehicle access points. One is located on South 312"' Street, and the
other is located off 6 h Avenue South. The Federal Way Comprehensive Plan (FWCP) has
designated South 312t' Street as a "Principal Arterial" and 6th Avenue South as a "Minor Collector."
VII. SITE DESIGN
a) Structure Improvements — Proposal for an addition of a 14,000 square -foot, 2-story classroom
building on the northwest corner of the existing church, 600 square -foot storage/sprinkler room
addition on the southeast elevation of the church, 320 square -foot entry addition to the
southwest elevation of the church, a new 3,100 square -foot paved courtyard, and associated site
improvements to an existing church.
b) Stormwater Improvements — The majority of the proposed new additions are to be built upon
existing impervious surfaces (existing parking lots, driveways, etc.) and will add less than
4,000 square feet of new impervious surface to the site. The engineered drainage system for the
proposed project will not alter existing discharge locations from the site. Runoff from
approximately 5.22 developed acres and approximately 24,000 square feet of 6`h Avenue South
will sheet flow to catch basins and be conveyed to the water quality system.
Currently, runoff from the project site discharges into an onsite wetland. In a 100-year storm
event, post -development flows to the wetland will remain basically the same. The proposed
project will not alter existing drainage locations from the site. Therefore, no adverse impacts to
downstream properties are anticipated.
The site is subject to Level 3 flow control. Construction activities will result in an
approximately 0.090-acre increase in impervious area on the subject site, resulting in a 0.02 cfs
increase in runoff. Therefore, flow control is not triggered by this project.
Erosion and sediment control measures will include limiting the area to be disturbed,
construction phasing, and utilizing temporary sediment traps. Silt fencing, interceptor ditches,
and proper cover measures will also be utilized.
The existing storm system will be modified to provide better treatment regiment with bioswales
followed by a leaf compost filter to meet the Resource Stream Protection Menu. The primary
pollutant removal mechanisms of the bioswales are filtration by grass blades that enhance
sedimentation, and trapping and adhesion of pollutants to the grass and thatch.
c) Parking — The applicant proposes to eliminate 31 existing parking stalls. According to the
parking study prepared by Gibson Traffic Consultants (submitted to the city on February 16,
2010, Exhibit D), the remaining 220 parking stalls adequately serves the existing church and
proposed additions.
d) Landscaping — Pursuant to FWRC 19.125.060(2), Type III landscaping 10 feet in width is
required along all property lines of nonresidential uses in the RS zoning district, except in those
areas where parking is adjacent to a residential zone. Due to the nature of the addition in
regards to geographic location, the Type III landscaping was only required along the northern
frontage of South 312ffi Street for the length of the new building elevation facing north and
along the western property line for the length of the new building elevation. Landscaping 10
feet in width has been provided for on both counts (Exhibit E). Additionally, to satisfy
Staff Report to the Federal Way Hearing Examiner Page 5
St. Luke's Lutheran Church Addition 10-100599/Doe. CD. 55714
requirements regarding facade articulation, there is an eight -foot -wide Type II landscape
screening along the base of the facade along the northwestern elevation. Final landscaping and
design plans for the Type III landscaping must be submitted, reviewed, installed, and approved
prior to certificate of occupancy.
e) Garbage & Recycling Receptacles — A new trash enclosure is to be placed along the western
property line near the vehicular turnaround. The proposed enclosure must conform to FWRC
19.125.150 placement and screening standards. Final landscaping and design plans for the
landscaping around the garbage enclosure must be submitted, reviewed, installed, and approved
prior to certificate of occupancy.
f) Lighting — Typical lighting fixtures both existing and new, with cut-off shields to prevent off -
site glare as required by FWRC 19.105.030, will be utilized. Additional soffit and porch
lighting will be provided in pedestrian areas surrounding the expansion areas.
g) Master Plan Approval — FWRC 19.200.050(2) requires the applicant obtain Master Plan
Approval through Process IV if the subject property is more than five acres. The building
additions and site work are currently the only projects planned for this site. Plan "MP" (Exhibit
E) depicts a future "Family Life Center", "Foyer Addition", and a major expansion in parking.
However, due to the costs associated with the current proposed project and possible buffer
intrusions into the wetland buffer that exists on the southern half of the site, these future
improvements were not evaluated for FWRC compliance and is not binding. Any future
developments on the site will require a separate Land Use approval process under codes in
effect at the time of application.
VH1. COMMUNITY DESIGN GUIDELINES
Pursuant to Process IV `Hearing Examiner's Decision' guidelines, the Director of Community
Development Services issued a written decision regarding the application's Community Design
Guidelines September 1, 2010 (Exhibit 7). The design components of the project were approved
pursuant to decision criteria set forth in FWRC 19.65.100(2). No appeals of the Director's design
decision were submitted to the City.
IX. TRANSPORTATION
South 312"' Street is classified as a principal collector street that corresponds to Federal Way
Roadway Section "K". This roadway section requires a 66-foot-wide paved section with vertical
curbs, six -foot -wide planter strip, eight -foot -wide sidewalk, and three -foot -wide utility strip within
a 100-foot right-of-way. The existing street has a paved width of 44 feet with curb, gutter, and six-
foot sidewalk within an 84-foot right-of-way. An eight -foot -wide right-of-way dedication is
required to complete the ultimate roadway section along the property frontage, which the church
has agreed to dedicate.
Improvements were also required along 6'' Avenue South, which is classified as a local street that
corresponds to Federal Way Roadway Section "W". This roadway section requires a 28-foot-wide
paved section with vertical curbs, four -foot planter strip, five-foot sidewalk, and three -foot -wide
utility strip within a 52-foot right-of-way. The existing street is fully improved with the exception
of streetlights, which the church has agreed to install. Street lighting plans and details for 61h
Avenue South shall be submitted, reviewed, approved and installed prior to certificate of
occupancy.
Staff Report to the Federal Way Hearing Examiner Page 6
St. Luke's Lutheran Church Addition 10-100599/Doc.I D 55714
The applicant is required to execute a Statutory Warranty Deed to dedicate an additional eight feet
of property to accommodate the required right-of-way width. A copy of the Statutory Warranty
Deed will be prepared for your signature and sent under separate cover. The Deed shall be executed
and recorded prior to issuance of the building permit. Street lighting plans and details for 6`h
Avenue South shall also be provided for review and approval. Street lighting shall be installed prior
to occupancy of the new building.
Additionally, the City requires all new development projects impacting projects listed in the City's
current adopted Transportation Improvement Plan (TIP) by one or more evening peak hour trips to
provide pro-rata share contributions towards these projects. The pro-rata contribution for each TIP
project is calculated as the number of new peak hour trips generated by the development divided by
the estimated total peak hour traffic volume at the time that phase of the development is completed.
The following determinations have been made in regards to the city concurrency analysis:
■ The proposed development is forecast to generate 8 new evening peak hour trips.
■ All intersections impacted by one or more evening peak hour trips from the proposed
development would meet the City of Federal Way LOS standards with programmed
improvements.
The proposed development will impacted two (2) TIP projects by at least one or more evening
peak hour trips and thus shall contribute $28,122.00 in pro-rata share contributions. The
mitigation fee shall be paid prior building permit issuance.
X. ANALYSIS OF FWRC 19.70.150(3) - PROCESS IV HEARING EXAMINER DECISIONAL CRITERIA
Process IV Decision Criteria - The applicant must meet five decisional criteria pursuant to FWRC
19.70.150(3). Staff has provided the following analysis of Process IV criteria:
1. It is consistent with the comprehensive plan.
Staff Response - This criterion has been met. The comprehensive plan is used, among other
documents, as a basis for implementing regulations such as zoning, critical areas requirements,
and the State Environmental Policy Act (SEPA). The proposed church addition and associated
site improvements, of which the Process IV request is a component, have undergone SEPA
review, and must comply with the Federal Way Comprehensive Plan (FWCP).
The Process IV request was reviewed and determined to be consistent with the
following goals and policies contained in FWCP:
a) 2.5 Urban Design and Form; "Improve the appearance and function of the built
environment" (Policy LUG I).
Staff Response — The church addition and associated site improvements shall
comply with current zoning and development codes including, but not limited to
Chapter 19.115 Community Design Guidelines
b) 2.8 Land Use Designations; "Protect residential areas from impacts of adjacent non-
residential uses" (Policy LUP15).
Staff Report to the Federal Way Hearing Examiner Page 7
St. Luke's Lutheran Church Addition 10-100599/no.. I D. 55714
Staff Response —Proposed perimeter landscaping will provide adequate screening of
church use and its location abutting a major arterial will protect residential areas from
traffic impacts.
c) 6.5 Capital Facilities Goals and Policies; "Provide the capital facilities needed to serve the
future growth anticipated by the FWCP" (Policy CFP13).
Staff Response — The dedication of eight feet of right-of-way abutting South 312h Street
will complete the ultimate roadway.
2. It is consistent with all applicable provisions of this chapter and all other applicable laws.
Staff Response - This criterion has been met. The Process IV request has been reviewed under
SEPA; the FWCP; all applicable provisions of FWRC including Title 14 `Environmental
Policy, Title 16 "Surface Water Management" and Title 19, "Zoning and Development Code;"
and is consistent with all applicable provisions and laws, provided all recommended conditions
of approval are met.
3. It is consistent with the public health, safety, and welfare.
Staff Response - This criterion has been met. The proposed church addition is consistent with
the public health, safety, and welfare. The proposal will provide adequate and safe pedestrian
circulation via delineated pathways within the subject property and to adjacent streets and
sidewalks. No adverse impacts to adjacent parcels are anticipated as a result of the proposal.
The Process IV request has been reviewed under SEPA; the FWCP; all applicable provisions of
FWRC; and construction permit plans will be reviewed utilizing the 2006International
Building Code. Proposal is consistent with all applicable provisions and laws, provided all
recommended conditions of approval are met.
4. The streets and utilities in the area of the subject property are adequate to serve the
anticipated demand from the proposal.
Staff Response - This criterion has been met. No significant adverse transportation impacts were
identified by the City of Federal Way in the Concurrency analysis or DNS issued for the
proposed action. The Traffic Division issued a Capacity Reserve Certificate (Exhibit G)
signifying the city's transportation level of service will not decline due to the proposed
development.
Lakehaven Utility District has indicated that only new service connection(s) will be required
for the proposed addition, and that no existing Lakehaven water and sewer facilities will be
affected by the proposed land use action nor will any new Lakehaven water/sewer facilities be
required.
5. The proposed access to the subject property is at the optimal location and configuration
for access.
Staff Response - This criterion has been met. The existing vehicle access points will remain per
street modification approval granted by the Public Works Department. The subject property is
adjacent to and has access points to a principal arterial (South 312h Street) and a minor collector
(6`h Avenue South) meeting FWRC 19.200.050(4) requirement. Pedestrian access will be
provided via delineated stamped concrete walkway on the two street frontages.
Staff Report to the Federal Way Hearing Examiner Page 8
St. Luke's Lutheran Church Addition 10-100599/Doc, i D. 55714
Xl. STATEMENT OF FACTS & CONCLUSIONS PRESENTED TO THE HEARING EXAMINER
Based on an analysis of the Process IV application, the environmental record, and applicable
decisional criteria, the Department of Community Development Services finds that:
1) Proposal is for an addition of a 14,000 square -foot, 2-story classroom building; 600 square -foot
storage/sprinkler room addition; 320 square -foot entry addition to the southern elevation; new
3,100 square -foot paved courtyard; and associated site improvements to an existing church.
2) The applicant submitted a Process IV Hearing Examiner Master Land Use (MLU) application
February 12, 2010.
3) There are two primary vehicular drop-off areas on the east (South 312th Street) and west (6th
Avenue South) side of the structure, which are perpendicular to pedestrian walkways. Both of
these pedestrian walkways lead to a main entrance.
4) The proposal embodies overall design continuity. The architectural elements of the structure
use a harmonized palate of colors, materials, and forms. The structure is designed to relate to
the site shape and topography. The architectural style, features, materials, colors, and textures
are appropriate for a church in a residential zone and they are consistent throughout the design.
The Director of Community Development Services has found the proposal meets applicable
requirements of FWRC Chapter 19.115 "Community Design Guidelines" and issued Design
Approval September 1, 2010. No appeals of the decision were filed with the City.
5) The site plan shows 10-foot-wide Type III landscaping along the northwestern property line
encompassing the new addition along South 312th Street and along the private easement on the
western property line. Final landscaping and design plans for the Type III landscaping and
garbage enclosure must be submitted, reviewed, installed, and approved prior to certificate of
occupancy.
6) The applicant proposes to eliminate 31 existing parking stalls. According to the parking study
prepared by Gibson Traffic Consultants (submitted to the city on February 16, 2010), the
remaining 220 parking stalls adequately serves the existing church and proposed additions.
7) South 312th Street is classified as a principal collector street that corresponds to Federal Way
Roadway Section "K". This roadway section requires a 66-foot-wide paved section with
vertical curbs, six -foot -wide planter strip, eight -foot -wide sidewalk, and three -foot -wide utility
strip within a 100-foot right-of-way. The existing street has a paved width of 44 feet with curb,
gutter, and six-foot sidewalk within an 84-foot right-of-way. An eight -foot -wide right-of-way
dedication is required to complete the ultimate roadway section along the property frontage,
which the church has agreed to dedicate.
Improvements were also required along 6th Avenue South, which is classified as a local street
that corresponds to Federal Way Roadway Section "W". This roadway section requires a 28-
foot-wide paved section with vertical curbs, four -foot planter strip, five-foot sidewalk, and
three -foot -wide utility strip within a 52-foot right-of-way. The existing street is fully improved
with the exception of streetlights, which the church has agreed to install. Street lighting plans
and details for 6"' Avenue South shall be submitted, reviewed, approved and installed prior to
certificate of occupancy.
Staff Report to the Federal Way Hearing Examiner Page 9
St. Luke's Lutheran Church Addition 10-100599/no5 zn. 5571a
The applicant is required to execute a Statutory Warranty Deed to dedicate an additional eight
feet of property to accommodate the required right-of-way width. A copy of the Statutory
Warranty Deed will be prepared for your signature and sent under separate cover. The Deed
shall be executed and recorded prior to issuance of the building permit. Street lighting plans and
details for 6'h Avenue South shall also be provided for review and approval. Street lighting shall
be installed prior to occupancy of the new building.
Additionally, the City requires all new development projects impacting projects listed in the
City's current adopted Transportation Improvement Plan (TIP) by one or more evening peak
hour trips to provide pro-rata share contributions towards these projects. The pro-rata
contribution for each TIP project is calculated as the number of new peak hour trips generated
by the development divided by the estimated total peak hour traffic volume at the time that
phase of the development is completed.
The following determinations have been made in regards to the city concurrency analysis:
■ The proposed development is forecast to generate 8 new evening peak hour trips.
■ All intersections impacted by one or more evening peak hour trips from the proposed
development would meet the City of Federal Way LOS standards with programmed
improvements.
■ The proposed development will impacted two (2) TIP projects by at least one or more
evening peak hour trips and thus shall contribute $28,122.00 in pro-rata share
contributions. The mitigation fee shall be paid prior building permit issuance.
8) An Environmental Determination of Nonsignificance (DNS, File #10-100600-00-SE) was
issued for the project on July 31, 2010, with no comments or appeals submitted to the City.
9) Pursuant to FWRC 19.65.100(2)(b), the project is consistent with the comprehensive plan,
consistent with all applicable provisions of the FWRC, consistent with the public health, safety,
and welfare, the streets and utilities in the area of the subject property are adequate to serve the
anticipated demand from the proposal, and the proposed access to the subject property is at the
optimal location and configuration.
10) As analyzed previously, city staff has concluded that the church addition and associated site
improvements have met all Process IV decisional criteria pursuant to FWRC 19.70.150(3).
11) Pursuant to FWRC 19.70.150(2), the Hearing Examiner shall issue a decision on the Process IV
Master Land Use application within 10 working days following the close of the public hearing.
XII. STAFF RECOMMENDATION
Based on analysis derived from this report, the Department of Community Development Services
recommends conditional approval of the church addition and associated site improvements as
depicted on the site plan Exhibit E, subject to the conditions listed below:
1. Statutory warranty deed shall be executed and recorded prior to issuance of the building permit.
2. $28,122.00 in pro-rata share contributions (traffic mitigation fee) shall be paid prior building
permit issuance.
Staff Report to the Federal Way Hearing Examiner Page 10
St. Luke's Lutheran Church Addition 10-100599/D c. I.D. 55714
LIST OF EXHIBITS
Note: Copies of the exhibits listed below are not attached to all copies of this report. All exhibits have
been provided to the Hearing Examiner. Copies of exhibits may be obtained upon request at the City of
Federal Way's Department of Community Development Services.
Exhibit A Vicinity Map
Exhibit B Master Land Use Application
Exhibit C SEPA DNS
Exhibit D Parking Study Prepared by Gibson Traffic Consultants, stamped "Resubmitted" June 4, 2010
Exhibit E Approved Plans, Stamped "Approved Planning" signed/dated September 1, 2010
Exhibit F Director's Design Decision Dated September 1, 2010
Exhibit G Capacity Reserve Certificate Signed September 20, 2010
TRANSMITTED TO THE PARTIES LISTED HEREAFTER:
Hearing Examiner — Phil Olbrechts, Ogden Murphy Wallace, 1601 5th Avenue, Suite 2100, Seattle, WA 98101
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St. Luke's Lutheran Church Addition 10-100599/Doc ID. 55714