Ord 04-460
ORDINANCE NO. 04-460
AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF
FEDERAL WAY, WASIDNGTON, ADOPTING A NEW CHAPTER
EIGHT "POTENTIAL ANNEXATION AREA SUBAREA PLAN" OF
THE CITY'S GROWTH MANAGEMENT ACT COMPREHENSIVE
PLAN, AMENDING CHAPTER TWO "LAND USE", AMENDING
CHAPTER FOUR "ECONOMIC DEVELOPMENT" AND
REPEALING THE EXISTING CHAPTER EIGHT "POTENTIAL
ANNEXATION AREAS."
WHEREAS, the Growth Management Act of 1990, as amended, (Chapter 36.70A RCW or
"GMA") requires the City of Federal Way to adopt a Comprehensive Plan which includes a land use
element (inclùding a land use map), housing element, capital facilities plan element, utilities element, and
transportation element (including transportation system map[s]); and
WHEREAS, the GMA also requires the City of Federal Way to adopt development regulations
implementing its Comprehensive Plan; and
WHEREAS, the Federal Way City Council adopted its Comprehensive Plan with land use map (the
"Plan") on November 21, 1995, and adopted development regulations and a zoning map implementing the
Plan on July 2, 1996; and subsequently amended the Comprehensive Plan, land use map, and zoning map
on December 23, 1998, September 14,2000, and November 1,2001 and March 27, 2003; and
WHEREAS, under RCW 36.70A130, the Plan and development regulations are subject to
continuing review and evaluation, but the Plan may be amended no more than once per year; and
WHEREAS, the Council shall be considering three separate actions to amend the Comprehensive
Plan, all of which will be acted upon simultaneously in order to comply with RCW 36.70AI30; and
WHEREAS, these actions include Ordinance No. 04-461 , a change in Comprehensive Plan
designation and zoning from Business Park (BP) to Multifamily Residential 3600 (RM 3600) and
associated development agreement and development plan for 46.58 acres located south of S. 336th Street
ORD # 04-460
, PAGE I
ORt GINAL
between Pacific Highway South and Interstate 5 pertaining to the Christian Faith Center proposed
development; and
WHEREAS, these actions include Ordinance No. 04-462
, a request from the Quadrant
Corporation to remove the planned extension of Weyerhaeuser Way South, north of South 320th Street
shown on Map III-27B (2003-2020 Regional Capital Improvement Plan [CIP]) from the Comprehensive
Plan and to delete this project from Table III-19 (Regional CIP Project List); and
WHEREAS, these actions include the adoption of a PotentÜil Annexation Area (P AA) Subarea
Plan, which will replace Chapter 8, "Potential Annexation Areas" of the Federal Way Comprehensive
Plan and address certain Comprehensive Plan text changes in Chapter 2, "Land Use" and Chapter 4,
"Economic Development" pertaining to the Community Business (Be) Comprehensive Plan designation
and zoning classification; and
WHEREAS, the last of these actions, adoption of a P AA Subarea Plan and associated text changes
to the "Land Use" and "Economic Development" Chapters of the Comprehensive Plan, is the subject of
this ordinance; and
WHEREAS, the City of Federal Way, in conjunction with neighboring jurisdictions has adopted
P AA boundaries; and
WHEREAS, the GMA encourages the annexation of urban and urbanizing areas within P AAs
where urban level facilities and services can be provided; and
WHEREAS, the GMA, State annexation law, County-Wide Planning Policies of King County,
King County Comprehensive Plan, and Federal Way Comprehensive Plan encourage cities to prepare in
advance a comprehensive subarea land use plan that will become effective if and when the P AAs are
annexed pursuant to Chapter 35.13 RCW; and
WHEREAS, King County partially funded and actively participated in research and preparation of
the proposed Comprehensive Plan text and map amendments; and
ORD # 04-460
, PAGE 2
WHEREAS, the proposed amendments to the Comprehensive Plan text and maps reflect and
incorporate new and expanded information pertaining to the P AA including, but not limited to,
Comprehensive Plan designations; zoning classifications; policies regarding land use; transportation;
environment; parks; housing; capital facilities; and public service: as well as fiscal impacts associated
with annexation; and
WHEREAS, RCW 35.13 .177 authorizes the City to adopt pre-annexation Comprehensive Plan
designations and zoning classifications as a component of the Comprehensive Plan, including adoption of
Comprehensive Plan and zoning maps, provided the designations shall not be amended within one year of
adoption; and
WHEREAS, the City may consider Comprehensive Plan and development regulation amendments
pursuant to Article IX, Chapter 22 of the Federal Way City Code (FWCC); and
WHEREAS, four individual property owners submitted requests for certain P AA Comprehensive
Plan designations and zoning classifications; and
WHEREAS, the four individual requests described above are incorporated into the proposed P AA
Subarea Plan Comprehensive Plan text and map amendments addressed in this ordinance (collectively
"Proposed P AA Subarea Plan Amendments"); and
WHEREAS, the Proposed P AA Subarea Plan Amendments include proposed modifications to the
BC zone locational criteria in the Land Use and Economic Development chapters of the Comprehensive
Plan; and
WHEREAS, on February 18, 2004, the City SEP A Responsible Official issued a Determination of
Non Significance on the Proposed P AA Subarea Plan Amendments; and
WHEREAS, the Proposed P AA Subarea Plan Amendments are consistent with all of the goals and
requirements set forth in the GMA, which encourages annexation planning; and
WHEREAS, the City, through its staff, Planning Commission, City Council Committees, and full
City Council, received, discussed, and considered public testimony and written comments, and materials
ORD#
04-460
, PAGE 3
regarding the Proposed P AA Subarea Plan Amendments, resulting from the following public outreach
and public hearings:
1.
Three public meetings with homeowner's associations;
2.
Three public open houses within the P AA and the City;
3.
A City Planning Commission public meeting held March 3, 2004;
4.
City Planning Commission public hearings held on March 17, 2004, April 7, 2004 and
April 21, 2004, following which it recommended adoption of the Plan text and map
amendments with three modifications;
s.
City Council Land Use and Transportation Committee public meetings on May 3, 2004
and May 24, 2004 following which it recommended adoption of the Plan text and map amendments with
four modifications; and
6.
Two City Council public hearings on June 1, 2004 and July 6, 2004, as required by RCW
35A.14.340; and
WHEREAS, the City Council desires to adopt the Proposed P AA Subarea Plan Amendments as
recommended by the Land Use and Transportation Committee.
Now, TIlEREFORE, the City Council of the City of Federal Way, Washington, does hereby ordain
as follows:
Section 1. Findings.
The Proposed P AA Subarea Plan Amendments reflect new or updated
information developed since the initial adoption of the Comprehensive Plan, and are specifically related
to the City's Potential Annexation Area. They bear a substantial relationship to public health, safety, and
welfare; are in the best interest of the residents of the City; and are consistent with the requirements of
Chapter 36.70A RCW, the King County County-Wide Planning Policies, and the unamended portion of
the City's Comprehensive Plan.
Section 2.
Comprehensive Plan Amendments Adoption.
The 1995 City of Federal Way
Comprehensive Plan, as thereafter amended in 1998, 2000, 2001 and 2003, including its Land Use
ORD # 04-460
, PAGE 4
element map, copies of which are on file with the Office of the City Clerk, hereby are and shall be
amended as set forth in Exhibit A (Potential Annexation Area Subarea Plan), B (Amended Land Use
Chapter) and C (Amended Economic Development Chapter) attached hereto. Copies of Exhibits A, Band
C are on file with the Office of the City Clerk and are hereby incorporated by this reference as if set forth
in full.
Section 3. Amendment Authority. The adoption of Plan amendments in Section 2 above is
pursuant to the authority granted by Chapters 36.70A and 35A.63 RCW, and pursuant to FWCC Section
22-541.
Section 4. Severability. The provisions of this ordinance are declared separate and severable.
The invalidity of any clause, sentence, paragraph, subdivision, section, or portion of this ordinance, or the
invalidity of the application thereof to any person or circumstance, shall not affect the validity of the
remainder ofthe ordinance, or the validity of its application to other persons or circumstances.
Section 5. Savings Clause. The 1995 City of Federal Way Comprehensive Plan, and 1996
Zoning Map, as thereafter amended in 1998, 2000, and 2001, shall remain in force and effect until the
amendments thereto become operative upon the effective date of this ordinance.
Section 6. Ratification. Any act consistent with the authority and prior to the effective date of
this ordinance is hereby ratified and affirmed.
Section 7. Effective Date. This ordinance shall take effect and be in force five (5) days from and
after its passage, approval, and publication, as provided by law.
PASSED by the City Council of the City of Federal Way this
July , 2004.
20th
day of
ORD # 04-460
, PAGE 5
CI7);;:¡& ~
Mayor, Dean McColgan ~
?lOr (1¿~LSÞU~~
City Clerk, N. Christine Green, CMC
APPROVED AS TO FORM:
~~~
City Attorney, Patricia A. Richardson
ORDINANCE No:
06/29/04
07/20/04
07/24/04
07/29/04
04-460
FILED WITII TIlE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
ORD # 04-460
, PAGE 6
EXHJBIT A
-
-
Federal Way
Potential Annexation Area
Subarea Plan
Proposed Final December 2003
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CITY OF 4fIII' ~
Federal Way
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
ACKNOWLEDGEMENTS
Federal Wav Otv Council:
Jeanne Burbidge (Mayor)
Jack Dovey
Eric Faison
Mary Gates
Linda Kochmar
Dean McColgan (Deputy Mayor)
Mike Park
Federal Wav Planning Commission:
John Caulfield (Chair)
William Drake
Dini Duclos
Hope Elder (Vice Chair)
Marta Justus Foldi
David Osaki
Grant Newport
Christine Nelson (Alternate #\)
Tony Moore (Alternate #2)
Merle Pfeifer (Alternate #3)
Lawson Bronson (Alternate #4)
Potential Annexation Area Steering Committee:
Hope Elder, Federal Way Planning Commission
William Drake, Federal Way Planning Commission
Eric Faison, Federal Way City Council
Linda Kochmar, Federal Way City Council
Lois Kutscha, Resident Representative
Thomas Murphy, Federal Way Chamber of
Commerce
Gail Pearson, Resident Representative
Paul Reitenbach, King County, DDES
Ed Stewart, Commissioner, Lakehaven Utility
District
Bev Twiddle, Commissioner, Lakehaven Utility
District
Geri Walker, Federal Way School District
Potential Annexation Area StajT Work Group
Representatives of the following Agency Departments and Divisions have participated:
Citv of Federal Way
Community Development Serviccs- Planning
Division
City Manager's Office
Management Services-Finance Division
Management Services-GIS Division
Parks and Recreation Department
Public Safety Department
Public Works-Solid Waste Division
Public Works-Surface Water Management Division
Public Works-Transportation Division
Other Agencies:
Federal Way Fire Department
Highline Utility District
King County DDES
Lakehaven Utility District
Puget Sound Energy
Agency Report Preparation Team:
Consultant Report Preparation Team:
City of Federal Way, Department of Community
Development Services, Project Management
City Federal Way, GIS Division, GIS Mapping
Services
King County, DDES, Data Coordination
Jones & Stokes, Project Management
ECONorthwest
Henderson, Young and Company
Mirai Associates
Tetra Tech/KCM, Inc.
December 2003
1
2
3
4
5
6
7
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CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
TABLE OF CONTENTS
INTRODUCTION ................................................................................................... 1
Purpose of Subarea Plan ..........................................,.,...".............."..................",..,........., I
PAA Location and General Characteristics """.""""""""'..""""""""""""""""""""'" I
Subarea Plan Relationship to Other Elements ."""""""""."""""""""."""'...........,.".... 2
Subarea Planning Process and Concepts '..""""""""""""".""""""'.""""""""""'."""'. 2
Public Input Process .....,....,...........,...........,......,....,.........................,....,..,......,..................3
POLICY BACKGROUND...........,...........................................................................5
2.1 Statewide Planning Goals................................................................,.................,....,..........5
2.2 Countywide Planning Policies """"""""""""""""""""""""""""""""""""""""..........6
2.3 City Planning Goals or Policies ...................................................................................,....8
2.4 Consistency of Subarea Plan with Key State, Countywide, and Local Planning Goals 8
CITY OF FEDERAL WAY POTENTIAL ANNEXATION AREA................................... 9
Federal Way PAA Boundary ......................................................................,............,.,......9
Accomplishments since 1991 Issue Paper...................................................................... 10
Feasibility Analysis.. ............. ............. .... .... ....... ........ ........ ............... ....... .......... 11
Annexation Feasibility Analysis Purpose....................................................................... II
Study Area Population...................,.................................................................................13
Feasibility Study Methodology... ......... .....,.. ............. .,.. .... .......... ......... ..... ..,.. ...... ........... 14
NATURAL ENVIRONMENT .................................................................................. 15
Summary of Inventory..................... .......... ..................... .............. ...............,....... ............ 15
Environmental Goals and Policies...... ......". ........ ......". ...... ....... ..... ............. ......... .......... 18
LAND USE ............................................................................................".............. 19
Existing Land Uses ......................................................................,................................... 19
Land Use Plan ......,......................................................,....................................................21
Land Use Goals and Policies...........................................................................................25
HOUSING ...........................................................................................................26
Summary of Inventory....,....... ......... ....................... ....".. .............,..... ...... .... ."......, ..........26
Housing Goals and Policies.............................................................................................28
PARKS AND RECREATION .................................................................................29
Summary of Parks Planning Efforts and Inventory ....................................,.................. 29
Future Parks and Recreation Needs ............................... ............., ..... ...... ..... ...... ..........." 30
Parks & Recreation Goals and Policies ..........................................................................33
SURF ACE WATER... ....... ..... ........... ....... ...... ...... ....... ..... ......... ..... .......... ..... ........., 34
Summary of Inventory.......... .....,............. ..."....... ...... ..,. ....... ......... .... ......... ..". .......... ...." 34
Future Surface Water Needs .....,.....................................................................................37
Surface Water Goals and Policies ............................................. ................. ............. ........41
TRANSPORTATION .............................................................................................42
10.1 Summary of Inventory ...............".................................................................................." 42
1 0.2 Existing and Future Transportation Levels of Service ..................................................43
10.3 Transportation Goals and Policies ..................................................................................49
P RIV ATE UTI LITI ES ........, ................... ........ ........ .......".. .......... ,.... .......... ......... ....., 51
l.l
1.2
1.3
1.4
1.5
3.1
3.2
4.1
4.2
4.3
5.1
5.2
6.1
6.2
6.3
7.1
7.2
8.1
8.2
8.3
9.1
9.2
9.3
ii
December 2003
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
12
11,1 Summary ofPAA Inventory """"",,""""""""""""""""""""""""""""""""""""""'" 51
11.2 Private Utilities Goals and Policies ................................................................................52
PUBLIC SERVICES AND CAPITAL FACILITIES .....................................................53
12.1 Inventory of Public Services Likely to Change as a Result of Annexation ................. 53
12,2 Summary of Fiscal Impacts and Strategies """""""""""""""""""""""""""""""""" 55
12,3 Services Unlikely to Change as a Result of Annexation:.............................................. 61
12.4 Public Services and Capital Facilities Goals and Policies ....................................,.......64
PUB LlC P ARTI C I P A TI 0 N................. ....................... """"""""'" """""""""" ...... 66
13.1 Public Participation Goal and Policies ...........,.................................,...................,.........66
GOVERNANCE AND INTER-JURISDICTIONAL COORDINATION...................... 67
14,1 Governance/Interjurisdictional Goals and Policies.............. """""" ........... ........ ....... .... 67
AN N EXA TI ON oo. .oo. .oo. .oo............oooooo......oo...oo ""'" oo..oooo.oooo.oo..oo................oo OOOO""" 68
15.1 Annexation Goals and Policies ............. ...... ........... ...... ......... """"""". """"""" ............. 69
TECHNICAL REFERENCES TO THE SUBAREA PLAN 'OOOOOO'OO"'OO"OO'OOOOOO"'oo..'OOOOOOOOOO 72
13
14
15
16
List of Tables
Table I Year 2000, 2002, 2003, and 2020 Population and Housing """""""""""""""""""" 13
Table 2 Existing Land Use by Parcel.......................................................................................... 19
Table 3 P AA Housing Sales and Affordability """"""""""""""""""""""""""""""""."""'" 28
Table 4 P AA Park Facilities Owned by King County............................................................... 29
Table 5 P AA and City Parks Levels of Service .........................................................................30
Table 6 Federal Way Potential Annexation Area Capital Cost for Parks and Recreation....... 31
Table 7 In-Road Surface Water Facilities...................................................................................35
Table 8 Regional Stormwater Facilities ..... ..". ...... ..... """""""" .................. ..... ....... ...... ............. 35
Table 9 Residential and Commercial Drainage Facilities.......................................................... 35
Table 10 Road Maintenance Problems in PAA.......................................................................... 37
Table II Road Maintenance Problems Near P AA.... .................................................................37
Table 12 Federal Way Potential Annexation Area Capital Cost for Surface Water Capital
Improvements...........................................""""""""""""""""""""""""""'"..............40
Table 13 Street Inventory within P AA """"""""""""""""""""""""""""""""""""""""""'" 43
Table 14 Future LOS and Recommended Improvements .........................................................45
Table 15 Federal Way Potential Annexation Area Capital Cost for Roadway
Improvements..............................................""""""""""""""""""""""""""'"...........47
Table 16 Operating Revenues Generated, by P AA (2003)........................................................56
Table 17 Operating Costs by Department by Potential Annexation Area (2003) .................... 57
Table 18 Annual Net Operating Revenues (or Operating Cost) of Annexation, by P AA
(2003).............................................................................................................................57
Table 19 Federal Way Potential Annexation'Area Capital Revenue to 2020..........................57
Table 20 Federal Way Potential Annexation Area Estimated Future Capital Costs................ 58
Table 21 Federal Way Potential Annexation Area Estimated Net Capital Revenues.............. 58
iii
December 2003
List of Maps
Each Map follows after Page 72:
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
Map I Federal Way PAA
Map II Community Level Subarea Boundaries
Map III Sensitive Areas
Map IV Geologic Hazards
Figure V 2002 Existing Land Use Distribution
Map VI Parks & Cultural Resources
Map VII-I Federal Way P AA Pre-Annexation Comprehenisve Plan Designations
Map VII-2 Federal Way PAA Pre-Annexation Zoning Map
Map VIII Surface Water Facilities
Map IX Arterials and Local Streets
Map X Existing Roadway Level of Service
Map XI Year 2020 Roadway Level of Service
Map XII 20 Year Proposed Intersection Improvements
Map XIII Fire Department Facilities
Map XIV Public School Facilities
Map XV Water Service
Map XVI Wastewater Service, Septic Repair and Complaints
iv
December 2003
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
1
INTRODUCTION
1.1
P.urpose of Subarea Plan
The City of Federal Way Potential Annexation Area (P AA) was established
through a series of interlocal agreements between the City of Federal Way and
neighboring south King County cities. Based upon the State of Washington
Growth Management Act (GMA) and King County Countywide Planning
Policies, the City would ultimately annex and provide services within its
designated P AA. While the City's Comprehensive Plan focuses upon plans and
policies for property in the City limits, this Subarea Plan augments the
Comprehensive Plan and addresses in more detail the Federal Way PAA, located
principally to the east of 1-5, with a small portion located west of 1-5 and north of
the City limits near the Redondo neighborhood.
Over time, property owners in the P AA have made annexation requests to the City
of Federal Way, which requires a thorough City analysis of service/capital
expenditures, revenues, and other issues. To review its P AA comprehensively
and in advance of individual requests, the City of Federal Way, with the support
of King County, initiated a PAA Subarea Plan and Annexation Feasibility Study
of which this PAA Subarea Plan is a part. By evaluating the feasibility of
potential annexations and planning for the future delivery of services, residents of
the P AA and the City can make more informed choices about their future.
Specific Subarea Plan purposes include:
. To act as an informational resource for the City and County staff, elected
officials, residents, property owners, and business owners;
.
To identify the P AA-specific goals, policies, pre-annexation
Comprehensive Plan and Zoning Map designations and capital plans; and
To provide the City with a framework to guide future annexations.
.
In coordination with the City's overall Comprehensive Plan, this PAA Subarea
Plan provides a Year 2020 long-range land use and policy plan to guide pre-
annexation planning efforts and annexation requests.
1.2
P AA Location and General Characteristics
The Federal Way PAA is located in South King County, and, with the exception
of a small future annexation area near the intersection of South 272nd Street and
Pacific Highway South (SR 99), lies generally east of the City of Federal Way
and Interstate 5. The P AA is characterized by a series of residential
neighborhoods focused around numerous lakes beginning with Star Lake at the
north and concluding with Five Mile Lake at the South. See Maps I and II.
December 2003
1.3
1.4
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
Subarea Plan Relationship to Other Elements
The GMA requires that the City of Federal Way prepare a 20-year comprehensive
plan that at a minimum addresses land use, housing, capital facilities, utilities,
transportation, economic development, and parks and recreation, Optionally, a
city or county may choose to include subarea plans and/or other elements, GMA
does not limit optional topics, Since its adoptioI1in 1995, the Federal Way
Comprehensive Plan has included policies identifying the need for comprehensive
land planning in its designated P AA,
The City's Comprehensive Plan was prepared in accordance with the GMA and
underwent an extensive public participation process including City residents,
property owners, and business owners as documented in the Federal Way
Comprehensive Plan Introduction. The City of Federal Way Comprehensive Plan
in its entirety contains ten elements: Land Use, Transportation, Economic
Development, Housing, Capital Facilities, City Center, Potential Annexation
Area, Natural Environment, and Private Utilities. The Consolidated Plan for
Housing and Human Services, and the Parks Recreation and Cultural Services
Plan are incorporated by reference. When adopted in final form, this P AA
Subarea Plan will be a component of the overall Federal Way Comprehensive
Plan focusing upon the 5,OOO-acre future annexation area, and will replace the
Potential Annexation Area Element of the Comprehensive Plan currently in place,
It is intended that the City's Comprehensive Plan Elements provide the general
goals and policies for land use, transportation, economic development, etc. for the
P AA as well as the City. However, the P AA Subarea Plan is intended to address
unique characteristics or situations relevant to the P AA. Future annexation
proposals will be evaluated, and, if approved, implemented in accordance with the
provisions of the Federal Way Comprehensive Plan, that will include the PAA
Subarea Plan,
Subarea Planning Process and Concepts
This P AA Subarea Plan has been prepared in accordance with an established
work program that included reviews by the City of Federal Way, King County,
and two working committees. The work program has included public
participation throughout the process. The key steps in this planning process
include:
.
Inventory: The inventory identifies current environmental and public
service conditions. See Federal Way Potential Annexation Area
Inventory, Final, March 18,2002.
Analysis: Several analyses have been undertaken including land use and
population review, levels of service (roads, surface water, police, etc.), and
preliminary cost and revenue estimates. (Federal Way Potential
Annexation Area Level (~rService Analysis, July 1 I, 2003; Federal Way
Potential Annexation Area Land Use Analysis Compilation, March 5,
2003.)
.
2
December 2003
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
.
Draft Plan: The March 2003 Draft P AA Subarea Plan contained draft
policies and plans, and was the basis for a fiscal analysis.
Final Plan: Based on public input and the fiscal review of the Draft Plan,
the Final Subarea Plan has been prepared. It is coordinated with the PAA
Annexation Few,.ibility Study including strategic alternatives such as
annexation area phasing and service provision phasing,
~dopted Plan: As part of the City's public hearing process, the Federal
Way Planning Commission will review and makè a recommendation to
the Federal Way City Council Land Use and Transportation Committee
(LUTe) regarding the adoption of the Subarea Plan. The LUTC will
review the Subarea Plan and the Planning Commission recommendation
and issue a recommendation to the Federal Way City Council regarding
the adoption of the Subarea Plan. The City Council will review the
Subarea Plan and the Planning Commission and LUTC recomrnendations
in its consideràtion of adopting the Subarea Plan.
.
.
As the PAA Subarea Plan and Annexation Feasibility Study have progressed to
date, key concepts have been elicited about the P AA:
.
The City of Federal Way recognizes annexation as a citizen-based
process. The Federal Way PAA Subarea Plan and Annexation Feasibility
Study are intended to provide for advanced planning of the PAA allowing
both citizens and the City to make informed choices about their future.
The PAA is part of the larger Federal Way community, but is distinct in its
own right. Given its proximity, inter-dependent transportation network,
shared school district/utility districts/emergency service providers, and the
City's subregional economic role, the P AA is inter-related with the City of
Federal Way. However, the P AA has its own unique characteristics -
residential neighborhood variety, natural features including headwaters to
several significant streams, a road system functioning with rural standards
in an urbanizing area, some economic nodes such as in Redondo, and
many other distinct features.
.
1.5
Public Input Process
Key to the development of the PAA Subarea Plan and Annexation Feasibility
Study has been and will be public participation. Public participation methods for
the PAA Subarea Plan and Annexation Feasibility Study have included:
. Articles for inclusion in City and Utility District newsletters, and City and
County website pages sites (www.cityoffederalway.com;
www.metrokc.gov, respectively), as well as a link from the Federal Way
School District website page to City and County website.
December 2003
3
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
.
Creation ofa PAA Study webpage on the City's website that provides an
opportunity for residents, property owners, and business owners to view
draft and final work products, provide comments and suggestions, as well
as other features,
. Coordination of draft work products with neighboring jurisdictions and
,- affected agencies,
. City facilitation of public neighborhood meetings with the North Lake,
Lake Kilarney, and lake Geneva Homeowner's Associations to explain
the purposes of the P AA Study and its scope of work,
. City-issued press releases announcing the publication of draft work
products and the hosting of public meetings.
. The maintenance of a comprehensive stakeholder list that is used for
mailing public meeting announcements and the announcement of the
issuance of recently issued draft work products.
.
The mailing of the City's quarterly newsletter to each P AA household.
Each newsletter provides an update regarding the status of the P AA study
and the announcement of recently issued draft work products.
Announcement of the publication of draft work products and hosting of
public meetings on the City's public access television station.
P AA Steering Committee, Planning Commission, and City Council
regular meetings open to the public. To date, Steering Committee
Meetings have been held in December 2001, January and February 2002,
and January and April 2003, and more are planned. Planning Commission
and City Council meetings are forthcoming.
.
.
.
Public open houses where residents, property owners, and business owners
can review infonnation of interest relevant to their neighborhood, and talk
individually with officials and staff. To date public open houses have
been held in February 2002, and January and September 2003, Meetings
were held at local public schools in the PAA and at the City of Federal
Way City Hall. At the meetings, the public could review the P AA
inventory, land use concepts, levels of service and fiscal analyses as well
as provide comments and ask questions.
Later in the process, public hearings before the PlalU1Ìng Commission
and/or City Council to present formal testimony, including written
comments in advance of the public hearings.
.
A Steering Committee was formed to act as a "sounding board" reviewing
products of the Subarea Plan and Annexation Feasibility Study, and assessing the
direction of the project, particularly the Subarea Plan. The P AA Steering
Committee consists of officials from the Federal Way City Council, Planning
Commission, School District, Chamber of Commerce, King County, Lakehaven
Utility District, and P AA Resident representatives.
December 2003
4
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
A Staff Work Group comprised of City staff from multiple departments, a County
staff representative, Utility District representatives, and Fire District staff
provided technical review of P AA Subarea Plan products and furnished data and
information to the Subarea Plan preparation team.
2 POLICY BACKGROUND
2.1
statewide Planning Goals
The GMA contains 13 statewide planning goals addressing:
. Urban growth . Natural resource industries
. Reduce sprawl . Open space and recreation
. Transportation . Environment
. Housing . Citizen participation and
. Economic development coordination
. Public facilities and services
. Property rights
. Historic preservation
. Permits
While all have been considered in the Subarea Planning process, three in
particular are most relevant to P AA planning efforts:
.
Urban growth - Encourage development in urban areas where adequate
public facilities and services exist, or can be provided in an efficient
manner.
Reduce sprawl - Reduce the inappropriate conversion of undeveloped
land into sprawling, low-density development.
Public facilities and services - Ensure that those public facilities and
services necessary to support development shall be adequate to serve the
development at the time the development is available for occupancy and
use, without decreasing current service levels below locally established
minimum standards.
In terms of urban growth and reduction of sprawl, the P AA contains primarily
single-family development, with a few commercial nodes along major arterial
roadways, where services are or can be extended, identified as neighborhood or
community centers. The land use/zoning pattern based on the Pre-Annexation
Comprehensive Plan and Zoning designations would result in urban densities of
about 4 units per net acre or greater, meeting GMA goals for urban level growth.
Select areas have Pre-Annexation Comprehensive Plan and Zoning Designations
to accommodate approximately I residential unit per acre on the periphery of the
.
.
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P AA, due to sensitive areas and infrastmcture limitations.
The ability of the City and Special Districts to provide public facilities and
services to the P AA is another key topic of this Subarea Plan, The principles
contained in the Subarea Plan are to meet community service and infrastmcture
needs cõnculTent with growth, to conduct additional capital planning in areas
where data gaps have been found (e.g. surface water), and to provide public
services in a cost-efficient manner recognizing the historic level of service
differences between the City and the County..
2.2
Countywide Planning Policies
In King County, the Countywide Planning Policies (CWPP's) that were enacted
pursuant to the GMA also provide guidance with regard to multi-jurisdictional
joint planning, annexation, and the phasing of urban development. The most
applicable policies are:
LU28
LU29
LU30
Within the Urban Growth Area, growth should be directed as follows: a)
first, to centers and urbanized areas with existing infrastructure capacity; b)
second, to areas which are already urbanized such that infrastructure
improvements can be easily extended; and c) last, to areas requiring major
infrastructure improvements.
All jurisdictions shall develop growth phasing plans consistent with
applicable capital facilities plans to maintain an urban area served with
adequate public facilities and services to maintain an urban area to meet
at least the six year intermediate household and employment target
ranges consistent with LU67 and LU68. These growth phasing plans
shall be based on locally adopted definitions, service levels, and
financing commitments, consistent with State GMA requirements. The
phasing for cities shall not extend beyond their Potential Annexation
Areas. Interlocal agreements shall be developed that specify the
applicable minimum zoning, development standards, impact mitigation,
and future annexation for the Potential Annexation Areas.
Where urban services cannot be provided within the next 10 years,
jurisdictions should develop policies and regulations to:
a. Phase and limit development such that planning, siting,
densities, and infrastructure decisions will support future
urban development when urban services become available.
b. Establish a process for converting land to urban densities
and uses once services are available.
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LU31
LU32
LU33
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Cities are the appropriate provider of local urban services to urban areas,
either directly or by contract. Counties are the appropriate provider of
most countywide services, Urban services shall not be extended through
the use of special purpose districts without the approval of the city in
whose potential annexation area the extension is proposed. Within the
urban area, as time and conditions warrant, cities should assume local
urban services provided by special purpose districts.
In collaboration with adjacent counties, cities, and King County, and in
consultation with residential groups in affected areas, each city shall
designate a potential annexation area. Each potential annexation area
shall be specific to each city, Potential annexation areas shall not
overlap. Within the potential annexation area, the city shall adopt criteria
for annexation, including conformance with Countywide Planning
Policies, and a schedule for providing urban services and facilities
within the potential annexation area. This process shall ensure that
unincorporated urban islands of King County are not created between
cities and strive to eliminate existing islands between cities.
A city may annex territory only within its designated potential annexation
area, All cities shall phase annexations to coincide with the ability for the
city to coordinate the provision of a full range of urban services to areas
to be annexed.
Land within a city's potential annexation area shall be developed
according to that city's and King County's growth phasing plans.
Undeveloped lands adjacent to that city should be annexed at the time
development is proposed to receive a full range of urban services.
Subsequent to establishing a potential annexation area, in-fill lands
within the potential annexation area that are not adjacent, or not practical
to annex, shall be developed pursuant to interlocal agreements between
the County and the affected city. The interlocal agreement shall establish
the type of development allowed in the potential annexation area and
standards for that development so that the area is developed in a manner
consistent with its future annexation potential. The interlocal agreement
shall specify, at a minimum, the applicable zoning, development
standards, impact mitigation, and future annexation within the potential
annexation area.
Several unincorporated areas are currently considering local governance
options. Unincorporated urban areas that are already urbanized and are
within a city's potential annexation area are encouraged to annex to that
city in order to receive urban services. Where annexation is
inappropriate, incorporation may be considered.
The CWPP's are particularly reflected in Subarea Plan sections 12 and 15, Public
Services and Capital Facilities, and Annexation.
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City Planning Goals or Policies
The Land Use Element of a Comprehensive Plan plays a central role in guiding
and directing all other Elements by indicating the desired land use pattern that
consequently drives the demand for infrastructure and services. The key City
Planning Goals are based then on the City's Land Use Concept in the Federal
Way Comprehensive Plan (see Federal Way Land Use Element, Map II-2),
In summary, the City of Federal Way land use concept is based upon creating
land use patterns that support multiple modes of transportation, with attention to
neighborhood enhancements and protection, and community amenities and needs
(design quality; parks; etc.) to ensure compatible land uses. These concepts
include the transformation of the City's retail core into a dense, mixed use City
Center, preservation of residential neighborhoods, a hierarchy of mixed-use retail
and employment nodes to serve the community, and development that recognizes
environmentally sensitive areas. The PAA, as part of the larger Federal Way
community, is reviewed in this Land Use Concept framework while also reviewed
with respect to unique P AA circumstances.
Consistency of Subarea Plan with Key State, Countywide, and
Local Planning Goals
This Subarea Plan has been prepared in accordance with the provisions of the
Washington State GMA, the King County Countywide Planning Policies, and the
City of Federal Way Comprehensive Plan to ensure coordinated planning. In
summary, the Subarea Plan is consistent with the following State, Regional, and
City "indicator" policies:
. Growth Management Act: The Subarea Plan applies urban densities to
accommodate growth, avoid sprawl, and provide services efficiently
within the Urban Growth Area. As described in Section 6, the
predominant land classification would support urban level densities except
in areas with significant environmental or infrastructure limitations. Public
service capital and operational needs and improvements are identified to
support the P AA land use plans.
. Countywide Planning Policies: The land capacity of the P AA would
accommodate the P AA housing target of 1,320 units and employment
target of 134 between 2001 and 2022, described further under Section 6.2.
Public service capital and operational needs and improvements are
identified to support the P AA land use plans, The phasing of services and
annexation areas is encouraged in Subarea Plan policies.
City Policies: Subarea Plan designations and policies support the
Comprehensive Plan such as the hierarchy of Commercial Centers by
providing for local-serving commercial and mixed-use nodes, and by
supporting the predominant residential character of the P AA.
.
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3 CITY OF FEDERAL WAY POTENTIAL ANNEXATION AREA
3.1
Federal Way PAA Boundary
Federal Way Adoption of P AA Boundary Process
The City of Federal Way formally began the process of evaluating its logical
service delivery areas and the boundaries of its P AA with the publication of a July
1991 issue paper. This paper examined the requirements of GMA as they relate to
UGA's, and included a discussion of how urban services were being provided.
The paper also described special purpose district boundaries, the transportation
system, parks and recreation facilities, and physical features that potentially affect
urban service delivery.
The analysis that was included in the 1991 issue paper provided the basis for a
proposed P AA area for the City. Staff presented the issue paper and proposed
Urban Growth Boundary to the Federal Way Planning Commission. The
Commission reviewed the proposal and held a public hearing. Most of the
testimony received by the Commission was supportive of the proposed urban
growth boundary. The Commission recommended that the City Council adopt the
proposed P AA boundary.
The City Council accepted the recommendation, but did not adopt it. Rather, the
Council directed staff to begin negotiations with the neighboring cities of Auburn,
Milton, Algona, Pacific, Des Moines, and Kent, all of whom had developed urban
growth boundaries that overlapped with Federal Way's proposal. The City
negotiated with each of its municipal neighbors for the better part of a year. By
the Fall of 1993, staff presented a revised P AA boundary to the City Council. The
Council reviewed the proposal and adopted the P AA boundary on December 21,
1993. That boundary was amended in 1994. The City executed interlocal
agreements with all of the neighboring cities based on the boundary shown on
MapI.
Neighborhood Analysis levels
F or purposes of data collection efficiencies and resources, the P AA has been
divided into three Major Subareas as well as seven smaller Community Level
Subareas. The Major and Community Level Subareas are as follows (see Map II):
. The Redondo East Community Level Subarea is in the Redondo East
Major Subarea (both with identical boundaries), west of 1-5 and is
approximately 43 acres in size.
.
Star Lake, Camelot, and North Lake Community Level Subareas comprise
the Northeast Major Subarea, east ofI-5 and north of SR-18, and total
approximately 2,527 acres in size.
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.
Lakeland, Parkway, and Jovita Community Level Subareas comprise the
Southeast Major Subarea, east of 1-5 and south of SR-18, and total
approximately 2,470 acres in size.
The Community Level Subarea Boundaries are shown on Map If.
The subarea boundaries are based upon City-defined Transportation Analysis
Zones which align with Census Tract geography, neighborhood affinities as
expressed in prior County planning efforts, and the ability of the County to
provide information within existing resources, as well as input from the P AA
Steering Committee in December 2001.
3.2
Accomplishments since 1991 Issue Paper
The following has been accomplished since completion of the 1991 Issue Paper:
.
Used technical information from neighboring jurisdictions and
information from affected citizens to identify and establish a P AA
boundary for the City of Federal Way.
Established an interlocal agreement on mutually agreeable P AA
boundaries with the following South King County Cities: Des Moines,
Kent, Auburn, Algona, Pacific, and Milton.
.
.
Completed a preliminary analysis of the P AA that identified potential
issues associated with annexation and a scope of work for a more
comprehensive study of the PAA.
Initiated a comprehensive study of the PAA in conjunction with King
County.
.
The comprehensive study of the P AA includes several phases as described above:
inventory, analysis, draft and final plan formulation, etc. The Federal Way PAA
Inventory (March 18, 2002) addresses a range of environmental, economic, and
social conditions within the Federal Way PAA. The Inventory is primarily a
compilation ofreadily available data from King County, Special Districts, and the
City of Federal Way, and was supplemented with some limited field review. The
purpose of the Inventory was to serve as a basis for additional planning and
analysis of the P AA including levels of services, current and future fiscal
conditions, and subarea planning.
The P AA Inventory was followed by a series of reports about levels of service
(LOS) in the PAA (Federal Way Potential Annexation Area Level of Service
Analysis, July 11,2003). The LOS reports address a wide range of governmental
services including community development, human services, parks/recreation,
police services, roads, surface water, solid waste, water and wastewater.
However, the LOS reports focus upon surface water and transportation in more
detail due to the complexity and importance of these services to the community
and the City. Also completed was a series ofland use classification and policy
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analyses analyzing current and proposed land use patterns and policy issues.
These recent P AA inventories and analyses are summarized and integrated as
appropriate into this Subarea Plan. Additional phases addressing costs and
revenues and annexation strategies in the AnnexatÎon Feasibility Study, December
2003, have also been integrated with this P AA Subarea Plan.
4 Feasibility Analysis
4.1
Annexation Feasibility Analysis Purpose
An Annexation Feasibility Study (December 2003) has been prepared to estimate
the long-term fiscal impact annexation would have on the City of Federal Way.
This section provides information on the basic assumptions and methodology of
the analysis. The results of the Feasibility Analysis are reviewed in the
appropriate topical section of this P AA Subarea Plan (e.g. transportation, surface
water, parks and recreation), but are summarized in total in Section 12.
As a baseline assessment, the Feasibility Study looks at the net fiscal gap the new,
expanded City of Federal Way would face if the City were to annex any of the
identified P AAs while trying to maintain current levels of services and current
levels of taxation and fees.
To account for the differences between the fiscal impacts associated with the day-
to-day operation of the City and the impacts associated with needed capital
investments, the Feasibility Study takes a three-pronged approach to assessing
impacts:
1. Estimate the incremental operating costs introduced by annexation of the
P AAs on an annual basis, and compare those costs to the incremental
revenues the City would receive from the same areas.
2. Discuss how the balance of operating costs and revenues would be likely
to change in future years.
3. Estimate the additional capital investments that the City would take on
with annexation and compare those costs to the additional capital revenues
the City could expect to receive from the P AAs.
To provide the most intuitive and up-to-date information about estimated impacts,
this analysis provides a snapshot of what the operating impacts would be if the
City were in the position of fully governing each P AA in 2003. The assessment of
operating impacts is based on 2003 costs of service and 2003 tax and fee
structures, as outlined in the City of Federal Way 2003/2004 Adopted Budget, and
is intended to represent a picture of fiscal impacts under steady-state operation. In
essence, these estimated steady-state operating impacts reflect the ongoing "costs"
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that the City would face each year, beginning perhaps, in the third year after
annexation and extending into perpetuity.l
Estimated costs of capital improvements are based on the most recent available
data (2002) and reflect estimates of the combined investments that will be
necessary through the planning horizon of 2020 (all presented in 2002 dollars).
There is no material effect on this fiscal analysis from using 2003 operating costs
impacts and 2002 capital costs, primarily because the capital improvement costs
are expressed in current (2002) dollars regardless of when the projects may be
built in the next 20 years.
The purpose 0 f estimating the hypothetical gap that would be created if the City
were to try to extend current service levels to the P AAs without increasing taxes
is to present decision makers and the public with a picture of the true "cost" of
annexation.
Ultimately, any such gap between costs and revenues is hypothetical. Cities have
no choice but to cover their costs of operation. Consequently, if Federal Way
were to annex any of the P AAs, any estimated "cost" associated with annexation
would have to be made up through some combination of (1) stretching City
resources through decreased levels of service and/or (2) increasing City revenues.
The Feasibility Study Implementation Strategies are integrated into the Subarea
Plan Section 12, and examine a variety of options to improve the financial
feasibility of future annexations.
The Feasibility Study provides fiscal analysis and annexation strategies that are
integrated into the Federal Way PAA Subarea Plan, particularly in terms of:
.
Identifying public services and capital improvements that would need to be in
place to serve the Subarea Plan current and future land use pattern over time,
and
Incorporating into Subarea Plan policies the strategies regarding agency
coordination, funding sources, future land use amendments, levels of service,
and others, that could improve the financial feasibility of annexations in the
PAA.
.
1 In the initial years of annexation costs could be either higher or lower than the estimated steady-
state impacts, depending on how the City chose to manage annexation. Among the determinants of
transition-period costs will be the direct and indirect costs of managing the transition and the pace
at which the City chooses to ramp up certain, discretionary service levels in the annexed area.
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4.2
study Area Population
Population data for the Annexation Feasibility Study covers several time periods.
The data is consistent among time periods, but different periods are used in order
to produce the most accurate forecast of operating and capital costs and revenues.
Baseline data was developed from the last US Census and other sources that used
the US Census. This enabled the study to start from a reliable base of data for the
year 2000.
The Operating Cost/Revenue analysis is a snapshot in time based on the City's
2003 budget and rates, with some trend analysis. As a result, population forecasts
for 2003 were prepared for use in the analysis of operations.
The Capital Cost/Revenue analysis covers the period 2002 through 2020 in order
to provide a long-range forecast similar to other long-range planning strategies for
capital. The data to support the capital improvements analysis is based on the
City's PAA market population and employment forecast from 2000 to 2020.
Table 1 shows the population and housing units for each Major Subarea and the
total P AA for the years 2000, 2002, 2003, and 2020.
The area included in this fiscal analysis comprises a substantial population equal
to approximately 25 percent of the 2002 population of the current City of Federal
Way (83,850, 2002).
Table 1. Year 2000, 2002, 2003, and 2020 Population and Housing
2000 2000 2002 2002 2003 2003 2020 2020
Subarea Population Housing Population Housing Population Housing Population Housing
Units Units Units Units
(Total)
Redondo 260 150 260 150 260 150 388 204
East
Northeast 11,600 3,900 II ,900 4,015 12,300 4,130 15,870 5,705
Subarea
Southeast 8,700 3,200 8,800 3,307 8,900 3,340 9,761 3,564
Subarea
PAA Total 20,560 7,250 20,960 7,472 21 ,460 7,620 26,019 9,473
Source: 2000 U S Census, and King County Office of Regional Policy and Planning, January 2002; ECONorthwest
2002 and 2003
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4.3
Feasibility Study Methodology
Cost and Revenue Forecasts
There are many ways to forecast costs and revenues associated with annexation.
Examples include per capita analysis or estimates that are based on the
experiences of a handful of so-called "comparable" cities. The City of Federal
Way desired an analysis with a high degree of reliability; therefore the Study
Approach to evaluating the fiscal impacts of annexation is based on a more
detailed analysis of the fundamental characteristics of the three Major PAA
Subareas and comparisons of those characteristics with the defining
characteristics of the existing City of Federal Way.
The Feasibility Study analysis looks at the fundamental drivers of demand for
City services within the existing boundaries of Federal Way, and based on a
comparison of similar drivers in the three P AAs, estimates the additional demand
for each service that would be introduced by annexation of each area.
In the case of law enforcement, for example, a typical assessment of service costs
might be based on figures like average-cost-per-resident or the cost associated
with extending police services in a manner that would maintain the City's current
count of officers-per-thousand-residents. While each of these measures is
attractive due to their ease of use, neither measure does a particularly good job of
capturing the true demand for police services.
To account for the unique characteristics of the PAA Major Subareas (and to
account for the many differences between the P AAs and the existing City of
Federal Way) the Feasibility Study estimates of the demand drivers for police
services take into account, first, differences in the level of commercial activity
among each of the areas, and second, the different characteristics of each area's
residential base.
Among households in each of the P AAs, the Study estimate of police demand
distinguishes between the typical demand characteristics associated with five
different combinations of housing type and tenure: (l) owner-occupied single-
family homes; (2) renter-occupied single-family; (3) owner-occupied multifamily;
(4) renter-occupied multifamily; and (5) mobile homes. The estimates of the
relative contribution of each of these segments of the residential base to police
demand is based on a series of statistical analyses of more than 100 cities across
Washington State.
Other examples of drivers used in this study include: land area (solid waste and
surface water services), signals/street lights/road miles/population (traffic and
road maintenance services) as well as several others.
Feasibility Study Assumptions
The Feasibility Study analysis is based on five assumptions:
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.
Redondo East, Northeast and Southeast P AAs would receive levels of
service similar to those now provided by the City of Federal Way.
The current level of service, staffing and expenditures in Federal Way is
the benchmark for forecasting comparable levels of service, staffing and
costs in the P AA.
Cities that have undertaken annexations in the past have found that there is
a surge in demand for services after annexation. The Study methodology
of "drivers" and "outputs" produces a more accurate forecast than a simple
population-driven forecast, but it may not fully capture the increment of
increased demand during the first few months after annexation.
The fiscal analysis includes cost and revenue estimates only for those
taxes or services that would change upon annexation. The local services
that would not change include water and sewer, firelEMS, schools,
regional transit, health services, and regional parks. In other words, after
annexation existing school and fire district boundaries will remain as they
are, and regional transit, health and regional parks will continue to be
provided by King County.
The Feasibility Study projections of revenues and costs for determining
fiscal analysis are conservative. This means that when a forecast includes
judgment as well as data, the Study selected lower alternatives for
revenues and higher alternatives for costs.
.
.
.
.
Again Feasibility Study results are integrated throughout the Subarea Plan by
relevant topic, but are fully summarized in Section 12.
5 NATURAL ENVIRONMENT
Environmentally sensitive areas in the P AA include wetlands, streams and lakes,
fish and wildlife habitat conservation areas, aquifer recharge areas, frequently
flooded areas, and geologic hazard areas. The March 18, 2002, P AA Inventory
Report provides a detailed inventory and description of these critical areas. Many
of these areas have already been identified, delineated, mapped, and classified. In
addition, the Inventory Report details the implications of Federal, State, and local
policies regarding environmentally sensitive areas pending any potential future
annexation.
5.1
Summary of Inventory
The Federal Endangered Species Act (ESA), Washington State Priority Habitat
and Species Program (PHS), and the State Growth Management Act (GMA)
provide levels of protection for endangered, threatened, or sensitive species and
habitats, and hazard protection. Please refer to Maps III and IV for locations of
sensitive and hazard areas within the P AA. A brief description of the results from
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research on the environment is provided below.
Wetlands
There are approximately 440 acres of wetlands in the P AA, with the largest
acreage of wetlands found in the Northeast Subarea. Within the smaller individual
Community Subareas, Lakeland has the largest acreage of wetlands. See Map III.
Both the County and City have regulations protecting wetlands with buffers and
other requirements varying by wetland class.
Streams
A distinctive characteristic of the P AA is that most of the area is a headwater to
several major streams (Hylebos Creek, Mullen Slough, and Mill Creek). Most of
the streams in the Federal Way PAA are classified by the County as Class 2 with
salmonids requiring a 100 foot buffer. If using the City of Federal Way
classification system, most streams would be considered Major Streams, also
requiring a 1O0-foot buffer.
Lakes
Lakes in the P AA include Star, Dollof, North, Killarney, Geneva, and Five Mile
lakes. The City of Federal Way Code has defined specific wetlands within the
City as the Regulated Lakes. i.e. those located in the City and contained in King
County Wetlands Inventory Notebook Volume 3, South. Upon annexation of
areas containing lakes, the City would designate specific lakes within the P AA as
Regulated Lakes. The setback requirement for Regulated Lakes is 25-feet
landward in every direction from the ordinary high water mark of the lake.
Fish and Wildlife Habitat Conservation Areas
Based on the State Priority Species and Habitat Mapping Program, within the
P AA there are three anadromous running streams. These include the headwaters
of West Hylebos creek, the south draining stream from Lake Dolloff and East
Hylebos Creek south of Lake Kilarney. King County has also identified
downstream and west of 1-5 in the City limits that Hylebos Creek has a "Chinook
distribution 500 foot buffer." The City definition of fish and wildlife areas is
found in the Federal Way City Code (FWCC 18-28 and 22-1).
The Federal Endangered Species Act listings of two fish, Chinook and bulltrout,
as threatened are resulting in reassessments of County and City policies and
permitting procedures. Interim ESA approaches in the King County permit
process include use of existing regulatory tools with greater emphasis on
application and enforcement as well as the adoption of more stringent
Comprehensive Plan policies. The City of Federal Way requires all project
applicants to fill out an "ESA Listed Salmonids Checklist," primarily using the
SEP A process to determine mitigation required beyond code requirements.
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Aquifer Recharge Areas
King County has mapped low, medium, and high potential groundwater
contamination areas in the P AA and has adopted numerous regulations addressing
critical aquifer recharge areas. These regulations address on-site sewage disposal
systems, clearing restrictions, and through some overlay districts restrict certain
land uses. The County is also in the process of preparing a Groundwater
Management Program, which is slated to produce a Groundwater Management
Plan for South King County, including Federal Way and its P AA. It is expected
that this plan will include a work program to guide future actions and will
establish a groundwater protection committee to guide its implementation.
The Lakehaven Utility District's main source of water is from four aquifer
systems that underlie the City: the Redondo-Milton Channel Aquifer, the Mirror
Lake Aquifer, the Federal Way Deep Aquifer, and the Eastern Upland Aquifer.
The locations of wells in relationship to the aquifer systems are shown on Map
III. Aquifer recharge areas are located in areas where permeable soil and rock
materials are relatively close to the land surface and where there is an excess of
water from precipitation. The Lakehaven Utility District notes that the precise
extent of the aquifer recharge areas is uncertain.
Highline Water District services a small part of the P AA in the Star Lake area.
Until 1962, all water came from the Highline District's wells. Today, about 90
percent of the water supply of the District is purchased from Seattle Public
Utilities. The District supplements its Seattle water source with local wells. The
wells, which draw from an intermediate aquifer approximately 400 feet
underground, were designed to furnish approximately 15 percent of the total
volume of water supplied by the District. The District has wells located in Des
Moines and also near Angle Lake outside of the PAA and Federal Way.
As defined in the City of Federal Way, Sensitive Area Ordinance, siting criteria
for wells must comply with State law. Futhermore, any improvement or use on a
subject property is subject to State requirements regarding separation of wells
from sources of pollution.
Frequently Flooded Areas
There are no Federal Emergency Management Agency (FEMA)-recognized
frequently flooded areas in the City of Federal Way. There is a lOa-year
floodplain located around Lake Dolloff in the P AA (See Map III). King County
regulations require that development activities including fill may not cause the
base flood elevation to rise. Federal Way has similar floodplain regulations in its
Surface and Stormwater Management Code, Chapter 21 of the Federal Way City
Code.
Geologic Hazard Areas
There are small portions of the Parkway, Jovita, and North Lake Subareas, which
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have Landslide Hazard Areas and Erosion Hazard Areas, mostly located near
streams or steep slope areas. There are also small portions of the Camelot and
Lakeland Subareas that have erosion hazard areas. The Star Lake Subarea has a
significant proportion of both Landslide Hazard and Erosion Hazard areas along
its eastern border. Please refer to Map IV.
5.2
Environmental Goals and Policies
- The following environmental goal and policies are provided to address P AA
environmental conditions.
Environmental Goal
Practice environmental stewardship by protecting, enhancing and promoting the
natural environment in and around the P AA.
Environmental Policies
P AA Env - 1 Prior to and upon annexation, the County and City in partnership
shall promote the protection of P AA wetland and lake complexes, as much of the
area is a headwater to significant fish-bearing streams, including Hylebos Creek,
Mullen Slough, and Mill Creek.
P AA Env - 2 The County shall, prior to annexation, manage the 100-year
floodplain of Lake Dolloff in accordance with Federal, State, and County laws
and guidelines. Regulations to prevent reductions in base flood storage volumes
should continue to be implemented. Upon annexation, the City shall continue the
policy and practice of floodplain management.
P AA Env - 3 Prior to and upon annexation, the County and City in partnership
should encourage the establishment of an active lake management system to
monitor and manage lake water quality. This management system should actively
involve property owners, homeowner's associations, lake management districts,
and agency stormwater utilities within the P AA.
P AA Env - 4 Prior to the annexation of large areas, updated surface water
basin management plans should be prepared by the County in conjunction with
the City for the PAA basins and sub-basins, particularly east ofI-5. Basins and
sub-basins should be prioritized for study and coordinated with all appropriate
State and local agencies. The topology, soils, drainage, flow and channel
monitoring, vegetation, habitat identification, utilities, RID maintenance, and
mitigation policies should be uniquely identified and defined for each basin/sub-
basin. .
P AA Env-5 In preparation of applying City Environmentally Sensitive Area
regulations in the future, the City and County should inventory and map steep
slope areas in the P AA.
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P AA Env-6 Prior to and upon annexation, the City should coordinate with the
King County Solid Waste Division regarding the environmental monitoring of the
closed Puyallup/Kit Corner Landfill.
P AA Env - 7 The City shall coordinate with King County through interlocal
agreements or other means to institute common environmental protection
standards while the area is in transition from County to City jurisdiction.
Standards would include, but are not limited to, wetland buffers and mitigation
standards, stream buffers, geologically hazardous area disturbance avoidance and
buffers, and others as appropriate.
6 lAND USE
6.1
Existing land Uses
With the exception of the Redondo East neighborhood, which lies along Pacific
Highway South and contains a higher percent of land devoted to multifamily or
commercial uses, the Federal Way P AA contains primarily single family
residential land uses as shown in Figure 5, and in Table 2. Of any neighborhood,
the Parkway neighborhood has the most acres in multiple family uses although
still primarily containing single family uses.
Table 2. Existing Land Use by Parcels
CATEGORY Redondo East Star Lake Camelot North Lake Lakeland Parkway Jovita
Acres % Acres % Acres % Acres % Acres % Acres % Acres %
Agriculture 0.0 0% 5.5 1% 0.0 0% 1.3 0% 0.0 0% 0.0 0% 0.0 0%
Commercial 4.8 11% 12.2 1% 7.2 1% 0.9 0% 47.0 3% 1.1 0% 0.0 0%
Easements 0.0 0% 6.0 1% 12.3 1% 0.1 0% 6.8 1% 2.8 0% 0.0 0%
Industrial \.9 4% 0.0 0% 0.0 0% 0.0 0% 10.5 1% 0.0 0% 0.0 0%
No Data 0.0 0% 1.1 0% 12.1 1% 0.0 0% 0.7 0% 0.0 1% 0.3 0%
Office 0.0 0% 0.0 0% 0.2 0% 2.3 1% 0.0 0% 0.0 0% 0.0 0%
Open Space, 0.2 1% 27.7 3% 35.8 3% \.8 0% 7.7 1% 56.9 9% 0.1 0%
Common
Areas &
Drainage
Public Park 0.0 0% 16.7 2% 18.4 1% 0.0 0% 64.7 5% 0.0 0% 0.0 0%
Quasi-Public 0.0 0% 46.0 5% 49.5 4% 0.0 0% 24.3 2% 0.0 0% 0.0 0%
Recreation 4.4 10% 0.0 0% 0.0 0% 0.0 0% 0.0 0% 0.0 0% 0.0 0%
Residential, 9.3 21% 6.2 0% 53.4 4% 1.4 0% 30.1 2% 82.8 11% 3.9 0%
Multi-Family
Residential, 6.9 16% 412.3 50% 702.6 54% 140.6 37% 643.0 47% 27 \.9 41% 217.3 49%
Single-Family
Rights-of-Way 7.0 16% 105.3 13% 190.6 15% 57.7 15% 179.2 13% 128.7 19% 56.8 13%
Utilities 0.0 0% 0.0 0% 0.0 0% 0.0 0% 0.0 0% 30.6 5% 0.0 0%
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CATEGORY Redondo East Star Lake Camelot North Lake Lakeland Parkway Jovita
Acres % Acres % Acres % Acres % Acres % Acres % Acres %
Vacant 8.8 20% 165.7 20% 202.0 15% 126.5 33% 295.9 22% 87.1 13% 167.1 37%
Water 0.0 0% 33.6 4% 20.7 1% 51.9 13% 52.6 4% 0.0 0% 0.0 0%
TOTAL 43.3 100% 838.3 100% 1304.8 100% 384.5 100% 1362.5 100% 661.9 100% 445.5 100%
Notes:
The acre figures are derived from the Arclnfo Geographic Infonnation System (GIS).
Multi family includes triplex, fourplcx, apartments, condominiums and group homes.
No Data is used for parcels where King County parcel infonnation was unavailable.
Easements include transportation and utility.
Not all right of way (ROW) is developed.
Source: King County Department of Assessments 2001 and City of Federal Way GIS Division, 2002
While the predominant land use in the P AA neighborhoods is residential, there
are several businesses including the following types:
.
Redondo - Convenience stores, taverns, fast food, auto service and repair,
personal services, offices, manufacturing, vehicle storage, and others
Star Lake - Tavern, nursery
Camelot - Gas stations, offices
North Lake - Nursery, gas station
.
.
.
.
Lakeland - Convenience store, espresso, auto repair, day care center
Parkway - Auto salvage and towing.
PAA Generally - Numerous home occupations (for example, home day
care operations, individual construction contractors, home-based
professional services, and others).
.
.
During the years 2000 and 2001, King County processed a variety of land use and
building permits, including preliminary plats containing approximately 576 lots,
as well as multifamily developments totaling about 605 units. The majority of the
preliminary plat lots were located in the Star Lake and Lakeland Neighborhoods,
and the majority of the multi-family units permitted were located in the North
Lake and Star Lake Neighborhoods. Residential development has continued since
the compilation of County data in 2000 and 2001.
Essential Public Facilities
RCW 36.70A.200 states that essential public facilities are "those facilities that are
typically difficult to site, such as:
. Airports,
.
State education facilities
State or regional transportation facilities as defined in RCW 47.06.140,
.
.
State and local correctional facilities,
Solid waste handling facilities,
.
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.
In-patient facilities including substance facilities, mental health facilities,
group homes, and
Secure community transition facilities as defined in RCW 71.09.020."
.
Essential public facilities can be government owned and operated facilities, or
privately owned facilities that are regulated by public entities. This definition is
not considered to be all-inclusive, but provides examples of facilities that are
difficult to site. No local comprehensive plan or development regulation may
preclude the siting of essential public facilities.
The P AA contains several essential public facilities including highways of
statewide significance such as 1-5 and SR-18, a WSDOT maintenance facility, the
closed & monitored Puyallup/Kit Corner Landfill (see section 12.1, Solid Waste),
group homes, and potentially others that remain to be identified beyond present
inventory efforts. Under County or City plans and rules, essential public facilities
are required to undergo a review process for siting them.
Cultural Resources
The King County Historic Preservation Program has identified historic properties
included in the King County Historic Resource Inventory. The only designated or
potentially eligible historic landmarks are in the Lakeland neighborhood of the
Southeast Subarea (see Map VI). The Sutherland Grocery and Gas Station, built
in the 1930's, was designated a King County Landmark in 2002. The two other
potentially eligible historic sites are the Westborg House, a farmhouse built in
1905 by M. Westborg on property originally part of a 160-acre homestead owned
by James Duncan, and the Fancher House, a home and barn built in 1923.
The King County Historic Preservation Program recommends an inventory update
to identify any additional historic properties in the P AA area as well as the City
limits since the last inventory was conducted 15 years ago. Additionally, the
County recommends an interlocal agreement for preservation services to provide
a mechanism and incentives for protecting significant historic properties within
the current and future annexed city boundaries.
6.2
land Use Plan
The predominant character of theP AA consists of single-family residential with
several nodes of commercial and multifamily uses, principally along arterial
roadways. The King County land use plans governing the P AA have generally
recognized this character. For the Federal Way PAA Subarea Plan, the base or
starting point for developing a comprehensive land use plan was first to match the
most similar City classification to the current County classification.
Although the basis of the PAA Subarea Plan is the King County Comprehensive
Land Use Plan, the City conducted a detailed review of existing land uses and
future land use/zoning classifications to determine if adjustments to the basic land
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classification system were warranted in certain locations of the P AA. Geographic
Information System (GIS) analysis produced a series of maps to help identify:
.
Nonconfonning Uses: Existing uses that either under the King County
classification/zoning system or the City potential classification/zoning
system may be considered nonconfonning - i.e. legally established land
uses that do not conform to existing zoning regulations.
Mobile Home Parks and Units: Mobile home parks and single
manufactured homes that mayor may not meet Federal Way manufactured
home park design standards.
Parcel Size and Minimum Lot Size Requirements: Parcels smaller than
the minimum lot size associated with potential zoning categories.
.
.
Additionally, other issues and locations were reviewed, including:
.
King County R -1 Zoning areas were reviewed to determine if
environmental characterIstics warrant Federal Way equivalent zoning (RS-
35.0) to King County's R-l (one residential dwelling per acre) zoning.
Potential Incompatibilities: The P AA Subarea Planning team reviewed
sites where there could be a potential for incompatibility with City
policies/codes, or other concerns.
.
The result of the land use and zoning analysis is a Land Use Plan that:
.
Recognizes and supports the predominant single- family suburban
character of the P AA.
Recognizes the need for neighborhood or community level business goods
and services at key nodes in the P AA such as at the intersection of
arterials.
.
Creates a consistent, compatible long-term land use pattern recognizing
the predominant and unique character of P AA neighborhoods.
land Use Capacity Analysis
.
The Federal Way PAA has an estimated Year 2003 population of21,460 with
most of the population residing in the Northeast Subarea. The GMA and
Countywide Planning Policies for King County require that King County and its
cities accommodate their fair share of the future growth projected for King
County. The PAA has been found to contain a large supply of vacant and
underdeveloped land, with the capacity to accommodate significant future
development (approximately 3,717 dwelling units as described further below).
Future development "targets", expressed in the number of housing units, are
determined through an interactive, multi-jurisdictional process between King
County and cities located within, considering land capacity, market factors, and
other parameters. Through this ongoing regional process, the P AA growth target
for the years 2001 to 2022 is established at 1,320 units. The employment target is
established at 134 jobs. The P AA land capacity yield can be compared with the
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growth targets to help determine the ability of the land use plan to meet growth
management obligations.
As part of a countywide effort to prepare an analysis of buildable lands pursuant
to GMA requirements, the County has estimated the capacity of vacant and
underdeveloped (land not developed to full potential) lands in the P AA.
Consistent with regionally established methods that are tailored to reflect King
County conditions, the total vacant and underdeveloped acres were discounted for
critical areas such as wetlands, streams, and steep slopes, rights-of-way and public
purpose lands, and market factors (i.e. not all property owners would want to sell
or develop). These acres were then multiplied by density factors based upon
achieved densities in developed projects over the period 1995-2000. The results
for the 20-year period of 200 1 to 2022 are a potential dwelling capacity of 3,754
units and an employment capacity of 134 jobs calculated by King County. The
City of Federal Way conducted a similar residential capacity analysis with results
of 3,717 dwelling units, very close to the County's analysis since similar land use
classifications are assumed.
It should be noted that a capacity analysis may make adjustments or discounts to
the amount of available land, but does not estimate the time or rate that growth
will occur, only the capacity of the land for additional development. The market
demand for homes and places of employment will in part determine the timing
and rate of growth within the 20-year planning period for the P AA. To help
identify potential market demands, the City conducted a market analysis for the
P AA with the Puget Sound Regional Council forecasts as a starting point. The
outcome of the market analysis is a year 2000 to year 2020 projection of2,223
dwelling units and 115 jobs, which for dwellings exceeds the P AA housing
targets, and for employment approaches the employment target, in a nearly
similar time horizon. For the purposes of capital facility planning the market
analysis figures are used to ensure that facility planning efforts do no overestimate
facility demand, capital needs, and funding requirements. The market analysis
population growth to 2020 and the City level of service standards have been the
basis for the capital needs projections in this Subarea Plan.
The County or City plans need to accommodate and direct growth in its
comprehensive plan, development regulations, and resource allocation decisions,
but the achievement of the Subarea Plan land use plan and other policy objectives
will be driven in large part by the private sector, including individual property
owner decisions. It is the County and City role to provide opportunities and
capacity to meet regional fair share growth, monitor growth, and respond to
changing needs and circumstances as they arise through regular review of
comprehensive plans, development regulations, and budgets.
Comprehensive Plan land Use; relationship to Pre-
Annexation Zoning
As part of implementing the P AA Subarea Plan, the City has the option of
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adopting a pre-annexation comprehensive plan and zoning map designations
(RCW 35.13.177), which would become effective upon annexation. Pre-
annexation comprehensive plan classification and zoning map designations could
provide more certainty to property owners and residents about the future character
of the area should they annex to the City. As part of the Federal Way PAA
Subarea Planning Process, a more specific P AA Pre-Annexation Zoning Map
shown in Map VII-2 has been prepared to correspond to the proposed P AA Pre-
Annexation Comprehensive Plan in Map VII-I.
The process of adopting a pre-annexation land use plan and pre-annexation
zoning would follow these steps in accordance with RCW 35.13:
After a proposed comprehensive plan or zoning regulation is prepared, the
legislative body of the city must hold at least two public hearings on it.
These hearings must be held at least 30 days apart. Notice of each hearing
must be published in a newspaper of general circulation in the annexing
city and in the area to be annexed. The notice must give the time and place
of hearing. A copy of the ordinance or resolution adopting the proposed
plan, any part of the proposed plan, or any amendment, together with any
map referred to or adopted by the ordinance or resolution, must be filed
with the county auditor and the city clerk. The ordinance, resolution, and
map must be duly certified as a true copy by the clerk of the annexing city.
The county auditor is to record the ordinance or resolution and keep the
map on file. (Municipal Research & Services Center of Washington,
Annexation Handbook, Revised December 2001 - Report No. 19)
The adopting ordinance for the pre-annexation plan and zoning should
specify the time interval following an annexation during which the
ordinance adopting the pre-annexation plan and zoning, must remain in
effect before it may be amended, supplemented or modified by subsequent
ordinance or resolution adopted by the annexing city or town. Any
amendment to the pre-annexation land use plan that is adopted as part of
the Comprehensive Plan is subject to the general GMA limitation that the
comprehensive plan may be amended no more frequently than once a year,
unless exceptions are met. (Municipal Research & Services Center of
Washington, Annexation Handbook, Revised December 2001 - Report
No. 19)
The Steering Committee has held public meetings in preparing the Subarea Plan.
Planning Commission and City Council public hearings are planned as part of the
remainder of the Subarea Plan process to fulfill local City public participation
requirements and the requirements to ultimately establish a Pre-Annexation
Comprehensive Plan and Zoning Map designations. See Section 1.5.
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6.3
land Use Goals and Policies
The P AA land use goal and policies are provided in this section, and address land
use character and land use planning in the P AA.
land Use Goal
Respect the character, integrity, and unique qualities of P AA neighborhoods in
land use planning efforts.
land Use Policies
General Policies
P AA LV - 1 Proposed annexations should be implemented to be consistent
with the pre-annexation land use plans and zoning of the Federal Way PAA
Subarea Plan. (See Policy P AA Annex-4.)
P AA LV - 2 City and County plans and regulations shall emphasize single-
family detached dwellings as the primary use in the P AA' s established single-
family neighborhoods.
P AA LV - 3 The City and County P AA commercial and multi-family land use
patterns and regulations should meet community needs, respect the hierarchy of
districts and centers in the Federal Way planning area, and support the Federal
Way City Center.
P AA LV - 4 The City and County P AA land use plan should provide sufficient
zoned capacity, and a variety of housing types, to address total household growth
targets for the P AA.
P AA LV - 5 Areas with significant environmental hazards, unique or fragile
ecosystems of high rank, order, and function, or long-term infrastructure
limitations, may be further protected beyond the application of development
regulations through Federal Way RS-35.0 zoning in the Star Lake, Jovita, and
Parkway neighborhoods.
P AA LV - 6 To promote financially self-supporting annexations, the City
should support the County in facilitating or conducting coordinated master or sub-
area planning of vacant, underdeveloped, or transitionalland areas in the P AA
that may present unique and/or highly visible sites for high tax generating land
uses, such as but not limited to auto sales. Expedited or advanced environmental
review, incentives to encourage assemblages of land, and/or coordinated and
comprehensive approaches to site development and environmental protection
should be considered.
Cultural Resources Policy
PAALV-7
Prior to and upon annexation, the City and County should
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coordinate with the King County Historic Preservation Program, the Cultural
Development Authority of King County, and local historical societies (such as the
Historic Society of Federal Way) to promote the preservation of historic resources
in the PAA.
P AA LU-8 The City and/or County should conduct a P AA historic inventory
update prior to or upon annexation.
P AA LU-9 The City should consider mechanisms to offer historic preservation
services-and incentives in the P AA upon the annexation of P AA properties into
the City, including, but not limited to, an interlocal agreement with King County
for resource evaluation and incentives.
Economic Development Policies
PAA LV - 10 Commercial locations, development standards, and pennitted
uses of City and County Comprehensive Plans and Zoning Regulations should
reflect a hierarchy of business districts, recognizing the Federal Way City Center
as the primary Citywide business center, and business districts in the P AA as
secondary and tertiary nodes catering to local and/or neighborhood needs.
P AA LU - 11 The City and County should support neighborhood level business
retention, improvement, and development on commercially zoned properties to
the east of 1-5 to meet the needs of local residents.
PAA LU -12 The City and County should promote the redevelopment and
strengthening of viable commercial centers, such as in the Redondo East
Community Subarea.
P AA LV - 13 Commercial development should be encouraged on properties
designated commercial on the P AA Comprehensive Plan Land Use and Zoning
maps to help meet the P AA employment target determined in the Countywide
Planning Policies.
Essential Public Facilities Policies
The Federal Way Comprehensive Plan Land Use Element policies address
essential public facilities. Additional policies are not proposed.
7 HOUSING
7.1
Summary of Inventory
The Federal Way PAA has an estimated Year 2003 population of21,460 with the
larger population residing in the Northeast Subarea. As of the Year 2000, a
majority of the dwelling units are single-family (83 percent; 6,050 units) in the
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P AA as a whole, and most dwellings are owner-occupied rather than rented
except in Redondo East.
Most of the single-family housing has typically been developed since 1960.
However, there are pockets of older, well-maintained homes occupied by long-
time area residents. The communities with the newest single-family housing
stock i.pclude Red°!ldo East, Star Lake, and Parkway. Few single-family homes
are considered to be in poor condition and most are considered average in all
neighborhoods. Neighborhoods with the highest percent of homes rated "good"
by the King County Assessor include Camelot, Jovita, and Lakeland.
There are about 1,200 multifamily units in the P AA (17 percent of total Year
2000 units). PAA multifamily complexes (excluding mobile home parks) are
described by the King County Assessor as average or low quality in condition.
The King County Countywide Planning Policies commit the City and the County
to ensuring there is capacity in their Comprehensive Plans to meet their assigned
targets, which for the P AA equals 1,320 additional housing units. There is
sufficient vacant and underdeveloped land in the P AA to accommodate this target
without significant zoning changes. It should be noted, however, that the timing
and rate of this growth would occur based upon market forces.
In addition to apportioning general housing growth targets, the Countywide
Planning Policies indicate that jurisdictions should promote affordable housing to
low and very low income households, at 20-25 percent and 17 percent of the
overall housing target respectively. In 1998, King County published a King
County Market Rate AfJordability Study. A review of the housing stock
affordability was conducted for the City of Federal Way, and all of
Unincorporated King County. The results show that Federal Way and
Unincorporated King County as a whole provide substantial percentages of
affordable housing, both ownership and rental, particularly in relation to other
King County locations. Housing sales information for the P AA would tend to
support the Countywide study. Considering principal and interest (7 percent
assumed) costs, most single-family homes would be affordable to households of
Low-Median income level (80 percent), and some are affordable to Moderate
Income households (60 percent). Relative to each other, the Jovita and Camelot
neighborhoods are the most affordable, and the Star Lake and Redondo East
neighborhoods are the least affordable. See Table 3.
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Table 3. P AA Housing Sales and Affordability
Housing/Mortgage Characteristic Camelot North Star Jovita Lakeland Parkway Redondo
Lake Lake East
Median Sales Price for SF Sales*
$162,500 $174,000 $245,000 $159,500 $203,000 $185,000 $214,900
Count of Transactions 466 35 259 70 186 264 10
200 I Average Assessed Value of Single
Family Homes $152,443 $187,658 $187,301 $160,798 $189,162 $172,263 $212,029
Monthly Mortgage Payment for 95% $1,026.59 $1,099.25 $1,547.79 $1,007.64 $1,282.45 $1,168.74 $1,357.63
Median Sales Price: 7% interest**
Annual Mortgage Costs for 95% Median $12,319.13 $13,190.94 $18,573.45 $12,091.70 $15,389.43 $14,024.85 $16,291.57
Sales Prices: 7% interest**
Year 2002, income level at 80% of median $54,400
King County Income, Family of 4
Year 2002, income level at 60% of median $46,740
King County Income, Family of 4
80% of Median Income x 30% of Annual $16,320.00
Income, Family of 4
60% of Median Income x 30% of Annual $14,022.00
Income, Family of 4
Notes: *Includes recorded sales valued at $25,000 and above for the years 1999, 2000, and most of 200 I.
** Assumes Mortgage Payment Factors (principal and interest only) 30 year fixed, 7 percent interest. The inclusion of
taxes and insurance, as well as a higher interest rate would raise monthly housing costs, but there appears to be a margin between
the mortgage figures and affordable monthly housing costs, which would mean conclusions would generally stay the same when
factoring in those other costs.
Source: ECONorthwest, Inc.; Bucher, Willis & Ratliff; U. S. Department of Housing and Urban Development
As growth occurs, a key policy would be to help maintain the conditions allowing
for housing affordable to a variety of incomes.
7.2
Housing Goals and Policies
For the PAA, the following housing goal and policy have been developed.
Housing Goal
Promote the preservation and enhancement existing residential neighborhoods,
and allow for new housing developments meeting future needs in the P AA.
Housing Policy
P AA House - 1 The City, in cooperation with King County, should promote
the preservation of existing housing. Private investment should be encouraged in
older residential neighborhoods, and multifamily complexes. Programs
supporting weatherization, home repair and rehabilitation, and infrastructure
maintenance should be supported.
The Federal Way Comprehensive Plan Housing Element policies address housing
stock protection, existing and future affordability, and special needs, and would
also be applicable to the P AA.
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8 PARKS AND RECREATION
8.1
Summary of Parks Planning Efforts and Inventory
The City of Federal Way Parks, Recreation, and Cultural Services (PRCS)
Department has prepared a Parks, Recreation, and Open Space Comprehensive
Plan, which was originally created in 1991 and updated in 1995 and 2000. The
PRCS plan is currently being updated and, once completed, will be adopted by
reference into the FWCP. The plan divides the City and P AA into subareas for
purposes of long-range planning.
The primary goal of the Parks, Recreation, and Open Space Comprehensive Plan
is to assure that a park serves every neighborhood in Federal Way. Currently, the
City is providing 10.1 acres of parks per 1,000 population in the current City
limits. The City's goal is to provide a level of service of 10.9 acres per 1,000 in
population within the City limits. The City's goal is to maintain this level of
service standard as Federal Way grows in population and size.
The City of Federal Way's existing parks and recreational areas are divided into
six categories. Each category represents a distinct type of recreational activity or
opportunity. Please note that this classification system is for the existing parks
only. The categories are: Neighborhood Parks, Community Parks, Regional Parks,
Special Use Areas, Trails, and Undeveloped Land/Open Space Areas. The total
parkland in Federal Way equals 846.0 acres as of year 2002.
The PAA is primarily served by five County park sites totaling 109.52 acres. See
Table 4. All of the active park facilities are located in the Lakeland community
subarea, while natural park and passive park areas are found in the Star Lake and
Camelot community subareas. Completed in 2000, the South County Ballfields
Phase 2 is the only recent capital project completed in the P AA. Furthermore,
King County Executive's Proposed 2002-2007 Capital Improvement Program
does not include plans for any new projects or improvements in the P AA.
Table 4. P AA Park Facilities Owned By King County
P AA Neighborhood Park Site Name County Park Plan Acreage
Classification
Star Lake Bingaman Pond Natural 16.72
Camelot Camelot Park Passive 18.08
Lakeland Five Mile Lake Park Active 31.7]
Lake Geneva Park Active 18.64
South County Ballfields Active 24.37
Total Acres 109.52
Source: Federal Way Potential Annexation Area Inventory, Final, March] 8,2002
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In addition to King County parks, the Federal Way School District (during non-
school hours) and the State of Washington also provide public recreation facilities
and opportunities in the P AA. These include sites located in the Camelot, and
North Lake community subareas. Private recreation facilities may also be required
in residential subdivisions and developments of five units or more in accordance
with King County development regulations and King County's determination of
recreation facility needs.
8.2
Future Parks and Recreation Needs
Currently, the PAA's existing amount of park acres does not meet the City's level
of service standard for parks and recreation (see Table 5). Additionally with
forecast growth additional demand for park services would occur. These existing
and forecast park and recreation needs to meet City levels of service would
require investment of capital and operating revenue sources to provide for park
services. Table 6 identifies the capital costs of providing park services to meet
existing and future parks & recreation needs for the major subareas of the P AA:
Redondo, Northeast (Star Lake, Camelot, and North Lake) and Southeast
(Lakeland, Jovita, Parkland). A discussion of public service operating and capital
costs and revenues, including Parks & Recreation, can be found in Section 12,
Public Services and Capital Facilities.
Table 5. P AA and City Parks Levels of Service
Redondo Northeast Southeast Federal Way
Level of Service Measure East P AA PAA PAA
Subarea Subarea
A. Neighborhood Park Land Acres per
1,000 Population. Total acres of
parks (2-7 acres) with playgrounds
divided by population (times 1,000)
Actual Level of Service (acres per 0.0 0.0 0.0 1.5
1,000)
Level of Service Standard (acres per NA* NA* NA* 1.7
1,000)
8. Community Park Land Acres per
1,000 Population. Total acres of
community-wide parks (15-25 acres)
for active use divided by population
(times 1,000)
Actual Level of Service (acres per 0 0 8.6 2.6
1,000)
Level of Service Standard (acres per NA* NA* NA* 2.8
1,000)
C. Trail Acres per 1,000 Population.
Total acres of trail system divided by
population (times 1,000) **
Actual Level of Service (acres per 0.0 0.0 0.0 1.1
1,000)
Level of Service Standard (acres per NA* NA* NA* 2.2
1,000)
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Redondo Northeast Southeast Federal Way
Level of Service Measure East P AA PAA PAA
Subarea Subarea
D. Open Space Acres per 1,000
Population' Total acres undeveloped
land by population (times 1,000)
Actual Level of Service (acres per 0.0 3.0 0.0 4.2
1,000)
Level of Service Standard (acres per NA* NA* NA* 6.0
1,000)
E. Community Center Square Feet per
1,000 Population' Total square feet -
divided by population (times 1,000)
Actual Level of Service (square feet 0.0 0.0 0.0 131
per 1,000)
Level of Service Standard (square feet NA* NA* NA* 600
per 1,000)
Source: Henderson, Young & Company, July 11,2003
* King County LOS standards are based on a parks classification system that is different than the City of
Federal Way
** There are no trails in the P AA meeting the City's definition of a trail.
Table 6. Federal Way Potential Annexation Area Capital Costs for Parks and Recreation
Project Costs in 2002 Dollars Year of Construction and
Project Costs in 2002 Dollars
Project Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
ID
1.00 Areawide CIP 0 0 0 0
Programs
2.00 Parkway Neighborhood
2.01 Neighborhood Parks 271,581 810,006 1,081,587 360,529 360,529 360,529
2.02 Community Parks 0 0 0 0 0 0
2.03 Trails 229,878 1,348,618 1,578,496 526,165 526,165 526,165
2.04 Open Space 1,198,152 5,573 1,203,725 401,242 401,242 401,242
2.05 Community Center 0 334,368 334,368 111,456 111,456 111,456
Subtotal Parkway 0 1,699,611 2,498,565 4,198,176 1,399,392 1,399,392 1,399,392
Neighborhood
3.00 Jovita Neighborhood
3.01 Neighborhood Parks 89,416 266,688 356,104 118,701 118,701 118,701
3.02 Community Parks 147,273 774,897 922,170 307,390 307,390 307,390
3.03 Trails 75,686 444,022 519,708 173,236 173,236 173,236
3.04 Open Space 394,482 1,835 396,317 132,106 132,106 132,106
3.05 Community Center 0 110,088 110,088 36,696 36,696 36,696
Subtotal Jovita 0 706,857 1,597,530 2,304,387 768,129 768,129 768,129
Neighborhood
4.00 Lakeland
Neighborhood
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Project Costs in 2002 Dollars Year of Construction and
Project Costs in 2002 Dollars
Project Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
ID
4.01 Neighborhood Parks ¡ 98,072 590,761 788,833 262,944 262,944 262,944
4.02 Community Parks 0 0 0 0 0 0
4.03 Trails 167,657 983,585 1,151,242 383,747 383,747 383,747
4.04 Open Space 873,846 4,064 877,910 292,637 292,637 2'ì2,637
4.05 Community Center 0 243,864 243,864 81,288 81,288 81,288
Subtotal Lake1and o 1,239,575 1,822,274 3,061,849 1,020,616 1,020,616 1,020,616
Neighborhood
Subtotal Southeast 0 3,646,043 5,918,369 9,564,412 3,188,137 3,188,137 3,188,137
Area
5.00 North Lake
Neighborhood
5.01 Neighborhood Parks 146,434 436,748 583,182 194,394 194,394 194,394
5.02 Community Parks 241,185 1,269,027 1,510,212 503,404 503,404 503,404
5.03 Trails 123,948 727,162 851,110 283,703 283,703 283,703
5.04 Open Space 646,032 3,005 649,037 2 I 6,346 216,346 216,346
5.05 Community Center 0 180,288 180,288 60,096 60,096 60,096
Subtotal North Lake 0 1,157,599 2,616,230 3,773,829 1,257,943 1,257,943 1,257,943
Neighborhood
6.00 Star Lake
Neighborhood
6.01 Neighborhood Parks 235,557 702,564 938,121 312,707 312,707 3 12,707
6.02 Community Parks 387,977 2,041,390 2,429,367 809,789 809,789 809,789
6.03 Trails 199,386 1,169,731 1,369,117 456,372 456,372 456,372
6.04 Open Space 320,264 1,490 321,754 107,251 107,251 107,251
6.05 Community Center 0 290,016 290,016 96,672 96,672 96,672
Subtotal Star Lake 0 1,143,184 4,205,191 5,348,375 1,782,792 1,782,792 1,782,792
Neighborhood'
7.00 Camelot Neighborhood
7.01 Neighborhood Parks 551,934 1,646,176 2,198,110 732,703 732,703 732,703
7.02 Community Parks 909,068 4,783,178 5,692,246 1,897,415 1,897,415 1,897,415
7.03 Trails 467,181 2,740,795 3,207,976 1,069,325 1,069,325 1,069,325
7.04 Open Space 1,657,564 7,710 1,665,274 555,091 555,091 555,091
7.05 Community Center 0 679,536 679,536 226,512 226,512 226,512
Subtotal Camelot 0 3,585,747 9,857,395 13,443,142 4,481,047 4,481,047 4,481,047
Neighborhood
Subtotal Northeast 0 5,886,530 16,678,816 22,565,346 7,521,782 7,521,782 7,521,782
Area
8.00 Redondo East
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Project Costs in 2002 Dollars Year of Construction and
Project Costs in 2002 Dollars
Project Capital Project List Design Acquisition Constr uction Total 2002-2007 2008-2014 201S-2020
ID
Neighborhood
~.OI Neighborhood Parks 22,690 67,675 90,365 30,122 30,122 30,122
~.O2 Community Parks 37,372 196,63~ 234,010 78,003 78.003 n,O()3
8.03 Trails 19,206 112,675 131,881 43,960 43,960 43.960
~.04 Open Spaee 100,104 466 !O(),570 33,523 33,523 33.523
8.05 Community Center () 27,936 27,936 9,312 9,312 9,312
Subtotal Redondo Area 0 179,372 405,390 584,762 194,921 194,921 194,921
Total 0 9,711,945 23,002,575 32,714,520 10,904,840 10,904,840 10,904,840
Source: Henderson Young and Company, 2003
To develop capital cost estimates, first, the standard for park land was multiplied
times the population of each neighborhood in the P AA to calculate the number of
acres of each type of park land that is needed to serve the population of each area.
Second, the acres needed were compared to the number of acres of existing parks.
Whenever the acres needed were more than the acres of existing parks, the
difference is the number of acres to be acquired through the Capital Improvement
Program (CIP). Third, the cost of acres to be acquired through the CIP was
estimated using City estimates of costs per acre. The CIP project costs were
calculated by multiplying the City's cost per acre (or mile, or square foot, as
appropriate) times the number of acres (or miles or square feet) needed for each
neighborhood.
The portion of the park capital cost estimate that would be attributed to meeting
the higher City parks level of service standard for the existing population (i.e. the
cost of the existing "deficiency" -- providing Federal Way's level of service to the
existing P AA population) is $25.6 million, and the cost of growth through the
year 2020 is $7.1 million for a total cost of $32.7 million. The Northeast Subarea
has low maintenance costs because it has little parkland now. The high capital
cost in this CIP will bring the Northeast Subarea up to the City's standard, and
that, in turn, will cause a significant increase in future operating costs.
8.3
Parks & Recreation Goals and Policies
The following goal and policies address P AA parks and recreation needs.
Parks Goal
Maintain current facilities and acquire new lands to meet P AA community park
and recreation needs.
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Parks Policies
P AA Park - 1 The City should continue to address the P AA in its
comprehensive parks, recreation, and open space system plans.
P AA Park - 2 , The City should review County park maintenance and operation
plans for each County park facility that may be transferred in the event of
annexation. The City will assess available resources at the time of annexation and
determine the appropriate level of maintenance for all acquired County facilities.
P AA Park - 3 Additional parkland, open space, and trails should be acquired
and developed according to the standards outlined in the City of Federal Way
Parks, Recreation, and Open Space Comprehensive Plan. Phasing in a gradually
increasing level of service standard may be appropriate based on agency resources
at the time of annexation.
9 SURFACE WATER
9.1
Summary of Inventory
The P AA is almost entirely within the nearly level upland plateau which is
immediately adjacent to steep slopes at the edge of the Green and White River
valleys, and Puget Sound (in the case of the Redondo Subarea). As a result,
historical stormwater systems within the P AA include a series of lake and wetland
complexes that drain in steep ravines to the rivers and streams below. The most
distinctive characteristic of the P AA is that most of the area is a headwater to
several significant streams (Hylebos Creek, Mullen Slough, and Mill Creek).
Five drainage basins have been identified by King County mapping within the
P AA. These designations also agree with the City of Federal Way designations:
Lower Green River, Mill Creek, White River, Hylebos Creek, and Lower Puget
Sound. See Map VIII.
Surface Water Facilities
Within the various drainage basins, the P AA contains a variety of surface water
facilities that require inspection and maintenance by several County divisions
and/or property owners as listed in Tables 7 through 9:
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Table 7. In-Road Surface Water Facilities
Measurement Unit Redondo Northeast Southeast
Facility Subarea Subarea Subarea
Curb And Gutter LF lineal feèt 1,902 252,806 92,206
Catch Basin & Manhole EA each 19 1,361.00 633
Paved Ditch And Gutter LF lineal feet 0 755 450
Open Ditch LF lineal feet 707 85,292.00 81,916.00
SP lineal feet
Enclosed System stonn pipe 1,557 149,913 70,980
Cross Tile And Access EA each 9 985 699
Cross Culverts EA each 7 614 332
Curb & Gutter And Thick RM road mile 0.3 55.2 22.5
Bridge Drains EA each 0 6 6
Auxiliary Pipe LF lineal feet I 2,697 1,611
Trash Racks EA each 0 0 0
Headwalls EA each 0 I 0
Cross Culverts LF lineal feet 0 590 0
Box Culverts EA each 0 0 0
RID Facilities EA each 0 2 1
Source: King County Roads Division, January 2002
Table 8. Regional Stormwater Facilities
Subarea Facility Name Address Type Of Facility
Northeast Sweet Briar Drainage 4700 S 29200 St. Pipe
Improvement (immediately east of 4613
S. 292nd )
Northeast P-32 (Camelot Park) 29800 36tn PI. S. Pump Station
Northeast Lake Dolloff Outlet 4200 308tn PI. S. Channel/weir
Southeast Peasley Canyon Culvert 5100 S. Peasley Canyon Rd. Culvert
Southeast S. 360tn St. Embankment 2100 S. 360tn St. Regional RID
Southeast Regency Woods Div I 37546 21st Ave. S. HOPE Pipe
Southeast Regency Woods Div I 37694 18tn PI. S. HOPE Pipe
Southeast Regency Woods Div 4 37934231'0 PI. S. HOPE Pipe
Southeast Regency Woods Div 4 37811 21st Ct. S. HOPE Pipe
Southeast Regency Woods Div 4 1817 S 380m PI. HOPE Pipe
Source: King County Department of Natural Resources, December 21, 200 I; January 29, 2002
Table 9. Residential and Commercial Drainage Facilities
Type Of Facility Subarea Number Of Facilities
Residential Northeast 40
Southeast 26
Redondo I
Total 67
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Type Of Facility Subarea Number Of Facilities
Commercial Northeast 9
Southeast 16
Redondo 4
Total 29
TOTAL 96
Source: King County Department of Natural Resources, December 21, 200 I; January 29, 2002.
Surface Water Level of Service Analysis, July 11,2003.
Regional and local surface water facilities are shown on Map VIII.
Surface Water Problems
One function of drainage system maintenance is to respond to complaints and
problems in connection with drainage conditions. The data in the P AA Inventory
report (March 18,2002) indicated that most of the citizen complaints have come
out of the Star Lake and Camelot neighborhoods in the Northeast subarea, two of
the more populated neighborhoods. However, out of 160 complaints received in
the past 5 years, only 8 remained open with the King County Roads Maintenance
Division as of December 2002. The closed complaints were resolved in various
ways: technical advice, determination that there was no identifiable problem,
maintenance work, referral to other agencies, etc. Most complaints appeared to be
resolved with routine responses. A few complaints required more study or action
for resolution. No information was obtained about their disposition. It is likely
that some of the more enduring problems overlap the drainage problems observed
by King County Road Maintenance, discussed below.
Discussion with King County Roads Maintenance Division 3 indicates a number
of locations with drainage related problems. Certain street locations are subject to
occasional flooding. Also, as noted in the P AA Inventory, the area around Lake
Dolloff, is in a designated floodplain. Recently the Roads Maintenance Division
addressed surface water problems with a 48-inch crosstile at Peasley Canyon
Road, and a pipe and catch basin within an easement to Lake Geneva. The
Peasley Canyon Road area is subject to landslide and erosion due to sensitive
environmental conditions (designated landslide and erosion hazard area). Lake
Geneva is subject to periodic maintenance for cleaning of inlets and drainage
structures, which indicates potential for periodic sediment and debris
accumulations.
More problematic drainage conditions indicated by King County Roads
Maintenance Division 3 are listed in Table 10. The drainage facilities and
locations listed are subject to flooding by excessive stormwater flows, and must
be monitored during storms. The problems are severe enough to warrant study of
a design solution for the facility and the local drainage system. Several other
nearby areas with known problems are also listed in the following Table I 1. The
problems may be related to drainage conditions in the P AA, possibly contributing
flow or groundwater, and Federal Way may be asked to participate in a solution to
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that problem. Problems on Tables 10 and 11 appear on Map VIII.
Table 10. Road Maintenance Problems in PAA King County Maintenance Division 3
No. Subarea Street Problem
I. Northeast SE nil St. ({I; [-5 2 Catch basins
2. Northeast 3366 S. 290 SI. 2 Catch basins
3. Northeast 3i1 Ave. S. & S. 304 Water over road signs. On going problem.
4. Southeast S 342 St. & 44 Ave. S. Crosstile e/of 44 Ave. S. Should be monitored.
Source: King County Roads Maintenance Division 3, 2002, Updated April 2003
Table 11. Road Maintenance Problems Near P AA King County Maintenance Division 3
No. Subarea Street Problem
5. Northeast S. 296 St. east of 64 Steep bank, excessive water. Should be monitored.
Ave. S. w/ofW. Valley
Rd from 64 Ave S.
Down to Merideth Hill
6. Northeast S. 296th St east of 61 Crosstile to pond. Should be monitored.
Ave. S. w/of55 Ave. S.
7. Northeast Lower Lk. Fenwick Rd. 36" inlet to MH/1ake overflow. Needs to be monitored.
S.
8. Northeast West Valley Hwy bit S Flooding. Needs to be monitored.
272 - S 285
9. Redondo East Old Star Lake Road All inlets and Catch basins. Needs to be monitored.
from S 272 to Military
Source: King County Roads Maintenance Division 3, 2002, Updated April 2003
It is anticipated that after annexation, Federal Way will experience a similar level
of complaints and responses in the P AA. Costs associated with complaint
response would include staff time to respond to inquiries and issues, and the
labor, equipment and materials to provide minor corrective actions. Non-routine
problems, i.e. street flooding, severe stream bank erosion, etc., may become more
identifiable over time and require further action. Certain problem areas may
require continual non-routine maintenance due to existing environmental
conditions (such as Peasley Canyon Road), or could become candidates for
further study and capital improvements (such as Lakes Geneva and Dolloff).
9.2
Future Surface Water Needs
As part of a more detailed level of service analysis (Federal Way Potential
Annexation Area Level of Service Analysis, July 11,2003), program and capital
improvements have been identified. To transition the P AA from the existing
County level of service to the Federal Way program for surface water, the
following actions will be needed:
. The City will need to conduct a field inventory of the storm drainage
conveyance system for inclusion in a map or GIS database.
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.
The City facilities and GIS databases will need to be updated to provide
coverage of the P AA.
The increased inventory of facilities to maintain, due to the annexation,
will over the long term require a propOliional increase in the Cit/s
maintenance budget.
Increased program spacc needs will possibly require larger maintenance
facilities than those currently planned by Federal Way and possibly
acceleratc the need for new facilities.
.
.
.
It is anticipated that after annexation, Federal Way will experience a level
of complaints and responses in the P AA similar to current levels. Costs
associated with complaint response would include staff time to respond to
inquiries and issues, and the labor, equipment and materials to provide
minor corrective actions.
Non-routine problems, i.e. street flooding, severe stream bank erosion,
etc., may become more identifiable over time and require further action.
Certain problem areas may require continual non-routine maintenance due
to existing environmental conditions (such as Peasley Canyon Road), or
could become candidates for further study and capital improvements (such
as Lakes Geneva and Dolloff).
.
.
Ten Regional Stormwater Facilities constructed and maintained by King
County will need to be maintained by Federal Way.
King County has identified 67 residential and 29 commercial drainage
facilities in the P AA. The residential facilities are inspected and
maintained by King County. The commercial facilities are inspected by
King County and maintained by the property owner. Federal Way will
need to evaluate the feasibility of inspection and maintenance.
An initial sustained cleaning effort will likely be needed to bring the ditch
system to a level of improvement where minimal routine maintenance
would be needed. This could take approximately two years, depending on
the levels of accumulations and restoration needed, and may need to
respond to the Tri-County Regional Road Maintenance Program, a
program that implements road maintenance practices that protect habitat
by reducing pollutants and sediment from reaching environmentally
sensitive areas such as rivers, streams and wetlands. The program also
encourages the removal of old road culverts and other blockages that
prevent fish from reaching spawning areas.
It is anticipated with the annexation that Federal Way may take a more
active role with the drainage and water quality aspects of the P AA lake
system. There are various options for Federal Way to set up the lake
management system, including use of homeowners associations, lake
management districts, and the City's stormwater management utility.
Upon annexation of the P AA, it is anticipated that Federal Way will
expand its water quality program to provide more lake water quality
.
.
.
.
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.
management and surface water quality monitoring. This could include a
variety of program elements, such as volunteer groups, monitoring
stations, community organization, and public education.
Federal Way will need to increase other stonnwater program components
to include the P AA. A notable expansion element will be a field inventory
of the storm drainage system, which is a part of the Illicit Discharge
Detection and Elimination requirement in the Phase II National Pollutant
Discharge Elimination System (NPDES) program.
.
Potential capital improvements are anticipated to include:
0 The four problem areas indicated in Table 10, from King County
Maintenance Division 3. Some additional improvements may be
needed depending on the outcome of complaints that have remained
open as shown in the P AA Inventory.
0
King County Executive Proposed Basin Plan for Hylebos Creek and
Lower Puget Sound include the following:
- Project 2442: S.360th Street Regional Detention Pond - Construct
a regional detention facility on tributary 00 116A at about S 360th
Street (extended). This project may be completed through a
partnership with the Washington State Department of
Transportation and the City of Federal Way.
- Project 2444: SR 161 Conveyance Upgrades- Upgrade three
culvert crossings at tributaries 00 16A, 0016, and 0006.
- Project 2446: SR 161 Regional Pond - Construct a regional
detention facility on tributary 0015 at SR 161.
As the Basin Plan is ten years old, it is likely that the conditions and
potential project list should be re-examined and prioritized.
0 There are several projects identified in the Mill Creek Special Area
Management Plan and Mill Creek Basin Flood Management Plan.
These projects are not within the P AA, however the City of Federal
Way may be asked to help adjacent jurisdictions with cost sharing in
the future if annexation occurs because King County was identified as
a possible agency which could provide cost sharing and because of the
location of the headwaters for these projects within the P AA. The
projects identified are as follows:
- Bingaman Creek Levee Overflow Improvements (King County).
- Study of Mullen Slough Intercept Hillside Drainage (King
County).
- Sediment Trap on Peasley Canyon Tributary (City of Auburn).
Due to the date of the basin study in 1997, some of these projects may
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have begun and may have received funding from other sources. These
projects are not within the P AA and were not included in P AA CIP
cost estimates.
To meet City surface water level of service standards, and accomplish the studies
and improvements identified in the P AA studies, capital cost estimates have been
developed and are summarized in Table 12.
Table 12. Federal Way Potential Annexation Area Capital Costs for Surface Water Capital
Improvements
Project Costs in 2002 Dollars (000) Year of Construction and 2002
Dollars (000)
Project 10 Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
1.00 Area Wide Programs
1.01 Stonn Drain System 300 300 300
Inventory and
Comprehensive Plan
Major Maintenance:
1.02 Ditch Cleaning 544 544
1.03 Stonnwater Facility 223 223
Cleaning
Subtotal Genera 300 1,067 1,067
2.00 Parkway Neighborhood
Hylebos Executive
Proposed Plan
2.01 2442-S 360th Regional Det. 1,565 1,565
Pond
2.02 2444-SR 161 Conveyance 372 372
Upgrades
4.00 Lakeland Neighborhood
Hylebos Executive
Proposed Plan
4.01 2446-SR 161 Regional 598 598
Pond
King County Road
Maintenance Div 3 -
Identified Problems
4.02 Crosstile east of 44 Ave. S 7 35 42 42
Subtotal Southeast Area 7 35 2,578 2,578
7.00 Camelot Neighborhood
King County Road
Maintenance Div 3 -
Identified ProblEms
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Project Costs in 2002 Dollars (000) Year of Construction and 2002
Dollars (000)
Project ID Capi tal Projcct List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
7.0] (I) 2 Catch basins 7 35 42 42
7.02 (2) 2 Catch basins 7 35 42 42
7.03 (5) Water over road signs 165 825 990 990
Subtotal Northeast Area 179 895 1,074 1,074
Subtotal Redondo Area 0 0 0 0 0 0 0
Total 486 0 930 4,719 4,719
Source: TetraTech/KCM, Inc., 2003
Notes:
(I) All projects assumed for construction in 5 years unless differently stated in source CIP document
(2) No separate cost given for design, acquisition for Hylebos, certain other CIP figures
(3) Estimated cost for maintenance problems and projects assume 100 percent contingency (very general
estimates). Pennitting costs were assumed to be included in the contingency.
(4) Costs escalated from original sources to 2002 dollars
(5) Does not include water quality program costs, including lake management
(6) Does not include routine maintenance increase, such as catch basin cleaning, street sweeping.
(7) There are several projects identified in the Mill Creek SAMP and Mill Creek Basin Flood Management Plan.
These projects are not within the PAA, however the City of Federal Way may be asked to help adjacent
jurisdictions with cost sharing in the future if annexation occurs because King County was identified as a possible
agency which could provide cost sharing and because of the location of the headwaters for these projects within
the PAA. However, there has been no detennination of specific cost share by Federal Way, and none are estimated
above.
(8) Cost data for estimates were derived from the following sources:
a. Federal Way estimates for ditch cleaning, with a 33 percent contingency.
b. Federal Way staff infonnation for pond cleaning costs. Pond facilities (wet ponds, infiltration facilities,
etc.) were estimated at $5,000 per facility. Other facilities (catch basins, tanks, etc.) were assumed at
$1,000 per facility. The costs were assumed to include some contingency; therefore, no additional
contingency was applied.
c. Planning cost estimates for stonnwater facilities developed for the City of Auburn 2002 Comprehensive
Drainage Plan. Conveyance costs included a ratio of four catch basins per 300 feet. When individual
catch basins or manholes were indicated, separate cost estimates for the catch basin or manhole were
made, using the planning cost estimates developed for the Washington State Department of
Transportation (WSDOT) outfall inventory project (2002).
d. Costs for certain stonnwater facilities, and costs for mobilization, traffic control, tax, engineering, and
land acquisition were obtained from planning cost estimates developed for WSDOT outfall inventory
project (2002).
A discussion of public service operating and capital costs and revenues including
the Surface Water enterprise fund, can be found in Section 12, Public Services
and Capital Facilities.
9.3
Surface Water Goals and Policies
Surface water management would be guided by the following goal and policies.
Surface Water Goal
Promote a P AA surface water system that protects the environment and property,
and allows for efficient operation and maintenance.
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Surface Water Policy
In addition to Natural Environment and Capital Facility policies, the following
policy is provided specific to surface water concerns:
P AA SW -1 Prior to annexations of large areas, the County, in conjunction
with the City and in partnership with other agencies, should further inventory
surface water facilities and conditions, and prepare hydrologic models and basin
plans for the P AA areas east of 1-5. Surface water analysis of the Redondo East
Subarea should occur as necessary, in conjunction with any area-wide subbasin or
basin plans for the vicinity.
10
TRANSPORTATION
10.1 Summary of Inventory
The Federal Way PAA is served by a series of arterial roadways that provide local
and regional transportation access. Refer to Map IX King County has been
responsible for maintenance of public roadways and accompanying facilities such
as shoulders, sidewalks, traffic signs, striping and signals, guardrails, and
landscaping.
The Washington State Department of Transportation (WSDOT) has jurisdiction
over state highways within the P AA. State Highways located within the
boundaries of the Study Area include Interstate 5 (1-5), SR-18, SR-99 (Pacific
Highway S) and SR-161 (Enchanted Parkway S). The City of Federal Way is
currently responsible for the maintenance of these facilities within the City limits,
except 1-5 and SR-18, which are currently maintained by WSDOT.
Transit service, including several park and ride facilities along the 1- 5 Corridor, is
provided by King County Metro.
The majority of the street network in the P AA is characteristically rural with
asphalt concrete pavement, gravel shoulders, and ditches for drainage purposes.
The street network is largely underdeveloped, with many cul-de-sacs and dead-
end streets creating insufficient connectivity. Furthermore, a general lack of
sidewalks and existing luminaires inhibit pedestrian traffic and present public
safety concerns. Luminaires are limited to street intersections along arterial streets
and newer subdivisions, with very few mid-block luminaires along arterial streets.
Most arterial corridors in the P AA, particularly in the Southeast, lack sidewalks
and, in most cases, are poorly lit. As shown in Table 13, sidewalks are a smaller
percent of lane road miles.
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Table 13. Street Inventory Within PAA
Inventory Item Redondo East Northeast Subarea Southeast Subarea
Subarea
All Road Miles* 0.3 miles 46.6 miles 28.9 miles
All Paved Road Surfaces,
Lane Miles 0.6 93.2 57.3
Curb & Gutter (linear 1,902 252,806 92,206
feet) (-0.4 miles) (~48 miles) (~17miles)
Paved Sidewalk, one side 0.4 miles 25.5 miles 12.3 miles
(miles)
Traffic Signals (EA)** 0 12 2
Luminaires (EA) 10 561 190
Street Signs (EA)*** 37 980 520
Notes:
*There are several street clusters in the Study Area for which road logs do not exist, including:
private streets (approx. 7 miles), as well as several unmaintained public gravel streets (approx. 7
miles), and in some cases relatively new public asphalt streets (about 1-2 miles), and these are not
included in the totals above.
* * Based upon City staff review and field confinnation, there appear to be nine signals, two
flashing beacons, one fire signal and two traffic signals on SR 161 (currently WSDOT
responsibility) that would become the City's responsibility upon annexation. Controllers would
need to be replaced to connect to the City's system.
*** King County does not inventory street name signs, which would understate the number of
signs maintained.
Source: King County Roads
The largest traffic volumes exist along east/west arterial routes, which provide
access to 1...:5. Over half of the arterial roadway miles within the study area have
accident rates that are higher than the average King County accident rates.
10.2 Existing and Future Transportation levels of Service
The purpose of the intersection level-of-service (LOS) analysis is to identify LOS
deficiencies in the City's P AA and then evaluate the improvements that will be
needed to meet the City's LOS standard.
LOS is a letter designation that describes a range of operating conditions along a
roadway segment or at an intersection. The Highway Capacity Manual 2000
(HCM2000) defines the LOS concept as "a quality measure describing
operational conditions within a traffic stream, generally in terms of such service
measures as speed and travel time, freedom to maneuver, traffic interruptions, and
comfort and convenience."
Six grades of LOS are defined for traffic operational analysis. They are given
letter designations A through F, with LOS A representing the best range of
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PAA Proposed Final Subarea Plan
operating conditions and LOS F the worst. The specific terms in which each level
of service is defined vary with the type of transportation facility involved. In
general, LOS A describes a free-flowing condition in which individual vehicles in
the traffic stream are not affected by the presence of other vehicles. LOS F
generally describes a breakdown in operations that occurs when traffic arriving at
a point is greater than the facility's capacity to discharge the traffic flow;
consequently, vehicle queues develop.
Existine LOS
For this study, LOS was analyzed at a total of twenty-five (25) intersections with
the results presented in Map X. Intersection LOS analyses were performed using
Highway Capacity Software Version 4.1 b (HCS2000). Representative
intersections in various parts of the P AA that the City and/or County monitor
now, or desire to monitor in the future when the roadways are constructed, were
analyzed. (Based on information from the Federal Way Potential Annexation
Area Level of Service Analysis, July 11,2003.)
In base year of 2000, the LOS analysis was done by using actual traffic counts
between years 2000 to 2002. Analysis indicated that all signalized intersections
operated at an acceptable LOS during the PM peak hour and most unsignalized
intersections were operating at an acceptable LOS. Exceptions included:
S 288th Street at 51st Avenue S
S 296th Street at 51 st A venue S
LOSF
LOSF
SR 99 at 16th Avenue S
LOSF
Future LOS
Analysis of the transportation impacts of future land use requires development of
future transportation networks. The future land use projection analyzed is based
on Puget Sound Regional Council (PSRC) projections and market analysis, and
was developed for the year 2020 (based on information from the Federal Way
Potential Annexation Area Level of Service Analysis, July 11,2003). In order to
determine a future road network, the City provided a future street improvement
list by analyzing the Transportation Improvement Programs, comprehensive
plans, and near term transportation improvement projects of King County, the
Washington State Department of Transportation, and the City of Federal Way.
In order to analyze the year 2020 LOS, future intersection volumes were
estimated using a calibrated EMME/2 transportation model. On behalf of the City,
Mirai Associates developed the EMME/2 model based on the forecasted land use
and future transportation improvements described briefly above. The results of the
analysis are shown in Map XI (based on information from the Federal Way
Potential Annexation Area Level of Service Analysis, July 11, 2003). Overall the
most congested locations included are those with two-way stop control, and those
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located in the Military Road corridor. 20-year intersection LOS deficiencies are
shown in Map XI. The average vehicle delay and LOS changes are:
Congested Locations
Military Road S at S 272IKJ Street
Military Road S at S 320tllStreet
S 27th Street at 55th A venue S
S 288th Street at 5 ¡st A venue S
Military Road S at S 312th Street
Peasley Canyon Way S at S Peasley Canyon Road
Military Road S at Peasley Canyon Way S
Military Road S at S Star Lake Road (N Jet.)
5151 Avenue S at S 296th Street
Military Road S at S 360th Street
28th A venue S at S 360th Street
SR 99 at 16th Avenue S
Average Vehicle Delay
and LOS Change
from 42 sec to 116 sec, from 0 to F
from 27 see to 73 see, from C to E
from 59 see to 195 sec, from E to F
from 64 sec to 361 sec, from F to F
Exceeds calculable limits (ECL)
from 26 see to 351 see, from D to F
from 34 see to 559 see, from 0 to F
from 39 sec to ECL, from E to F
from 106 see to 996 see, from F to F
from 22 see to ECL, from C to F
from 46 sec to 770 sec, from E to F
Exceeds calculable limits (ECL)
To determine the additional improvements needed to meet the City's LOS
standard, the lowest cost capacity improvement is sought to address identified
deficiency and then LOS analysis is conducted with the recommended
improvements to insure that all locations will meet the City's LOS standard. With
the recommended improvements listed in Table 14 and shown on Map XII, the
City's LOS standard is met at all future deficient locations.
Table 14. Future LOS and Recommended Improvements
2020 Recommended Improved
Intersection LOS Problem Improvements LOS
1. Military Road S @ S 272nd Street F Substantial demand for Add one additional 0
southbound traffic. southbound
through lane.
2. Military Road S @ S 320th Street E Substantial demand for Construct an D
eastbound right turn eastbound right
traffic. turn lane.
3. S 277th Street @ 55th A venue S F The northbound right turn Construct new E
demand is queuing while signalized
waiting for the eastbound intersection.
to westbound through
green cycle.
4. S 288th Street @ 51 st Avenue S F Insufficient intersection Construct a left 0
capacity for the A WSC turn lane from (25-sec
intersection. westbound to
southbound. delay)
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2020 Recommended Improved
Intersection LOS Problem Improvements LOS
Install a traffic D
signal. (47-scc
delay)
5. Military Road S @ S 312th Strect F Traffic demand on Install a traffic D
eastbound approach signal with one
exceeds the LOS for eastbound Icft turn
TWSC intersections. pocket and one
eastbound right
turn lane.
6. Peasley Canyon Way S @ S Peasley F Traffic demand on Install a traffic C
Canyon Road northbound approach signal.
exceeds the LOS for
TWSC intersections.
7. Military Road S @ Peasley Canyon F Traffic demand on the Install a traffic B
WayS east/west approaches signal at Military
exceeds the LOS for Road Sand S
TWSC intersections. 340th Street and
close the
southbound
movement on
Peasley Canyon
Way S from S
340th to Military
Road S.
8. Military Road S @ S Star Lake Road (N F Traffic demand on Install a traffic B
Jct.) westbound approach signal with an
exceeds the LOS for additional
TWSC intersections. southbound
through lane.
9. 51 st A venue S @ S 296th Street F Traffic demand on Install a traffic B
westbound approach signal with
exceeds the LOS for additional
TWSC intersections. southbound and
westbound left turn
pockets.
10. Military Road S @ S 360th Street F Traffic demand on the Install a traffic C
east/west approaches signal with
exceeds the LOS for additional
TWSC intersections. northbound and
southbound left
turn pockets.
II. 28th A venue S @ S 360th Street F Insufficient intersection Install a traffic C
capacity for the A WSC signal with one
intersection. southbound right
turn pocket and
one southbound
through lane.
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2020 Recommended Improved
Intersection LOS Problem Improvements LOS
12. SR99@ 16thAvenueS/S279thPlaceF Traffic demand on Install a traffic E
eastbound approach signal.
exceeds the LOS for
TWSC intersections.
Source: Jones & Stokes 2003 (Federal Way Potential Annexation Area Level o(Service Analysis,
Južv II. 2003)
Notes: A WSC = All Way Stop Controlled; TWSC = Two Way Stop Controlled
The total estimated capital cost for roadway improvements in the P AA, existing
and future needs to achieve levels of service, is $10,882,000 through 2020, as
- .-..
shown in Table 15. About 21 percent of the total capital facility cost estimate is
related to existing deficiencies ($2,241,000). Existing deficiencies due to levels
of service below E were found at:
.
S 288th Street at 51 st Avenue S
S 296th Street at 51 st Avenue S
SR 99 at 16th A venue S
.
.
Of the three subareas in the PAA, the Northeast Subarea has the largest estimated
roadway cost at $7,561,000. The largest part of this is the Military Road South
project described above. The Southeast Subarea has an estimated roadway capital
cost of$3,039,000, with the largest project consisting of a $1,188,000
improvement to the Military Road South/South 360th Street intersection. The
Redondo East Subarea has a total roadway cost of $282,000, which consists
entirely of the SR 99/16th Avenue South intersection improvement project.
Table 15. Federal Way Potential Annexation Area Capital Costs for Roadway
Improvements
Project Costs in 2002 Dollars (000) Year of Construction and
Project Costs in 2002 Dollars (000)
Project Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
lD
1.00 Areawide CIP Programs 0 0 0 0
2.00 Parkway Neighborhood
3.00 Jovita Neighborhood
3.01 Peasley Canyon Way S & S 41 0 234 275 275
Peasley Canyon Rd Intersection
Improvement
3.02 Peasley Canyon Way S & Military 158 16 916 1,090 1,090
Rd S Intersection Improvement
4.00 Lakeland Neighborhood
4.01 Military Rd S & S 360th St 162 84 942 1,188 1,188
Intersection Improvement
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Project Costs in 2002 Dollars (000) Year of Construction and
Project Costs in 2002 Dollars (000)
Project Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
ID
4.02 28th Ave 5 & 5 360th 5t 65 47 374 486 - 486
Intersection Improvement
Subtotal Southeast Area 426 147 2,466 3,039 1,188 1,576 275
5.00 North Lake Neighborhood
5.01 5 320th 5t & Military Rd 5 108 165 623 896 896
Intersection Improvement
6.00 Star Lake Neighborhood
6.01 Military Rd 5 & 5 272nd 5t 91 327 528 946 946
Intersection Improvement
6.02 Military Rd S & S Star Lake Rd 41 0 234 275 275
(N Jet) Intersection Improvement
6.03 Military Rd 5 Improvement - 5 305 496 1,770 2,571 0 801 1,770
272nd 5t to 5 Star Lake Road
6.04 5 277th 5t & 55th Ave 5 92 291 531 914 914
Intersection Improvement
7.00 Camelot Neighborhood
7.01 S 288th St & 51st Ave S 66 0 385 451 451
Intersection Improvement
7.02 S 296th St & 51st Ave S 206 109 1,193 1,508 1,508
Intersection Improvement
7.03 S 312nd St Improvement 0
Subtotal Northeast Area 909 1,388 5,264 7,561 2,234 1,747 3,580
8.00 Redondo East Neighborhood
8.01 SR-99 & 16th Ave S Intersection 41 0 241 282 282
Improvement
Subtotal Redondo Area 41 0 241 282 282 0 0
Subtotal LOS Projects 1,376 1,535 7,489 10,882 3,704 3,323 3,855
9.00 Southeast Areawide
9.01 Paving 19,200 19,200 6,400 6,400 6,400
9.02 Curb and Gutter 5,400 5,400 1,800 1,800 1,800
9.03 Sidewalk 7,400 7,400 2,400 2,600 2,400
Subtotal Southeast Area 32,000 32,000 10,600 10,800 10,600
10.00 Northeast Areawide
10.01 Paving 13,900 13,900 4,600 4,700 4,600
10.02 Curb and Gutter 6,100 6,100 2,000 2,100 2,000
[0.03 Sidewalk 10,900 10,900 3,600 3,700 3,600
Subtotal Northeast Area 30,900 30,900 10,200 10,500 10,200
11.00 Redondo East Neighborhood
11.01 Curb and Gutter 32 32 IO 12 10
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Project Costs in 2002 Dollars (000) Year of Construction and
Project Costs in 2002 Dollars (000)
Project Capital Project List Design Acquisition Construction Total 2002-2007 2008-2014 2015-2020
ID
11.02 Sidewalk :ì() 39 13 13 13
Subtotal Redondo Area 71 71 23 25 23
Subtotal Road Cross Section 0 0 62,971 62,971 20,823 21,325 20,8B
Improvements -
-~.
Total 1,376 1,535 70,460 73,853 24,527 24,648 24,678
Source: Jones & Stokes. 2003
Notes: Current expenses for similar construction work within the region were reviewed to detem1ine unit
prices for broad categories of construction line items and typiealpereentages for standard items. All LOS
project costs assume a 30 percent contingency factor.
While the focus of the capital cost estimates are the improvements required to
ensure the City's intersection LOS would be met, other capital costs may be
incurred to bring essentially rural road standards to the City's urban road
standards (e.g. curb, gutter, sidewalk, paving of public gravel or public
bituminous surface roads). These road cross-section improvements may be made
incrementally as new development makes street frontage improvements, or
through local improvement districts, or other means. The road cross-section
estimates were made in a preliminary fashion for order of magnitude level of
analysis, using as a basis data provided by the County on lane miles, feet of
sidewalk, etc. in the P AA. The Northeast Subarea and Southeast Subarea have
similar road cross-section costs at $30,900,000 and $32,000,000 respectively.
The cross-section improvements in Redondo East Subarea total $71,000. Please
refer to Table 15.
A discussion of public service operating and capital costs and revenues, including
Transportation, can be found in Section 12, Public Services and Capital Facilities.
10.3 Transportation Goals and Policies
Transportation would be guided by the following goal and policies.
Transportation Goal
Establish a safe, coordinated, and linked multi modal transportation system
serving local and area-wide travel needs.
Transportation Policies
P AA Trans - 1 Prior to annexations, particularly in the Northeast and
Southeast Subareas, the City and County should jointly classify streets in the P AA
consistent with Federal, State, and City guidelines, and future roadway usage.
Joint City-County street standards should also be established, such as the City of
Federal Way standards, a hybrid of standards, or others as determined by the City
and County. This may be achieved through an interlocal agreement and any
December 2003
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CITY OF FEDERAL WAY
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required County Comprehensive Plan amendments. The joint classification
system will help ensure a common set of standards are applied as new roadway
improvements are proposed and implemented in the P AA, and that the roadways
meet City standards upon annexation. The City classification system for the P AA
is presented in Map IX.
P AA Trans - 2 Joint City and County street standards identified in P AA Trans-
I should address:
. Property access
. Street signs
. Street lighting
. Pedestrian and bicycle safety
. Street widths.
P AA Trans - 3 As development proposals are proposed or capital
improvements are implemented in the P AA prior to annexation, the City and
County should encourage the connection of streets when considering subdivision
or street improvement proposals, unless prevented by topographic or
environmental constraints. The City and County should limit the use of cul-de-
sacs, dead-end streets, loops, and other designs that fOnD barriers to a coordinated
transportation network in the community.
P AA Trans - 4 The City should work with the County to ensure unifonn
maintenance standards for public streets are instituted and conducted by the
County until such time as annexation occurs.
P AA Trans - 5 Prior to annexation of P AA properties, the County, in
consultation with the City, should review high accident locations, and improve
street safety and functions focusing efforts at the most critical locations.
P AA Trans - 6 To ensure that City and County LOS standards are met as
development occurs prior to annexation, the City and County should agree to joint
implementation of LOS standards for concurrency. Development applicants
should prepare reports that contain dual analysis of the County's Transportation
Adequacy Measurement (TAM) and Roadway Segment level of service standards
and the City's LOS E intersection standard.
P AA Trans - 7 Prior to annexation of the Northeast and Southeast Subareas, a
coordinated Capital Improvement Program should be prepared between the City
and County to ensure that improvements required to meet levels of service are
implemented concurrent with development.
P AA Trans - 8 The City and County shall continue to coordinate with park-
and-ride and transit service providers in establishing appropriate LOS for the
P AA, promoting alternative modes and assisting the achievement of LOS
December 2003
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CITY OF FEDERAL WAY
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standards.
P AA Trans - 9 Prior to annexation of the Northeast and Southeast Subareas, as
part of a P AA interlocal agreement the City and County shall establish a regional
traffic planning and mitigation payment system.
11
PRIVATE UTILITIES
Utilities described in this section include electric (power), natural gas, telephone,
and cable. Public utilities are described under Public Services and Capital
Facilities. Private utility providers rely on coordination of information such as
population and employment forecasts as well as coordination of construction
activities, such as street improvements.
11.1 Summary of PAA Inventory
Electric
Electric utility service for the Federal Way PAA is provided by Puget Sound
Energy (PSE). The PSE grid provides a link between the Bonneville Power
Administration (BP A) Bulk Transmission System and the local distribution
system that connects with customers. Bulk transmission lines supply power into
the Federal Way distribution system and provide connections to Tacoma City
Light, King, and Pierce Counties. Power is transferred from the transmission
system to the PSE local distribution system at distribution sub-stations. There are
115,000 volt, 230,000 volt, and 500,000 volt transmission lines in the Federal
Way PAA.
Distribution substations transform voltages of 115kV (Kilovolt) or greater to
lower voltages of 12 or 34kV. Electric Substations serving the Federal Way PAA
include: Marine View; Lakota; Belmor; Christopher; Weyerhaeuser; Starwood;
Kitts Comer; and West Campus. Most of the Substations include one or two
25,000 kV A transformers. The load on the substation varies continuously, exactly
meeting the demand of the customers. The average PSE residential customer uses
approximately 2 kV A per person during peak winter conditions. Commercial
loads are highly business specific. (Based on information found in the Federal
Way Potential Annexation Area Inventory, Final, March 18, 2002.)
As new development occurs or consumer electrical demand increases, future
substations will be needed to meet the increased demand. The future substations
in the PSE long-range plan include: Federal Way; Dolloff; Twin Lakes;
Enchanted; Five Mile Lake; and Killarney. There are planned expansions at
Marine View Substation and the development of the Transmission line corridor
between Christopher and Marine View. There are also future 115 kV lines
planned in the Five Mile Lake area (in Lakeland). (Based on information found
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CITY OF FEDERAL WAY
PAA Proposed Final Subarea Plan
in the Federal Way Potential Annexation Area InventOlY, Final, March 18, 2002.)
Natural Gas
Puget Sound Energy provides natural gas to the Federal Way PAA. The PSE
customer count in the Federal Way PAA is approximately 5,250. Natural gas is
not an essential service, and-therefore PSE is not mandated to serve all areas.
Significant lines in or near the P AA include a 12" STW (steel wrap) supply main
located in Military Road South and 6" STW located in 288th Street. At this time
within the Federal Way P AA, no improvements are planned to existing facilities.
Long Range plans for the years 2006-2007 call for installation of a 16" STW High
Pressure supply main from Aub~rn Valley to the Star Lake area, and the route is
still in the planning stage. (Based on information found in the Federal Way
Potential Annexation Area Inventory, Final, March 18, 2002.)
Telephone
Qwest delivers telecommunication services to the Federal Way planning area as
regulated by WUTC. Qwest is required by law to provide adequate
telecommunications services on demand. Accordingly, Qwest will provide
facilities to accommodate whatever growth pattern occurs within the P AA. Due to
advances in technology, additional capacity is easily and quickly added to the
system. (Based on information found in the Federal Way Potential Annexation
Area Inventory, Final, March 18, 2002.)
Wireless Service and Cable Providers
Numerous wireless service providers currently serve the City of Federal Way and
the P AA. Com cast Cable serves the majority of the City and P AA. (Based on
information found in the Federal Way Potential Annexation Area Inventory,
Final, March 18, 2002.)
11.2 Private Utilities Goals and Policies
Coordination with private utilities is addressed in the following goal and policy.
Private Utilities Goal
Facilitate provision of electric, natural gas, telecommunication, and cable services
to the greater Federal Way community.
Private Utilities Policy
P AA Utility - 1 The County and City should coordinate with electric, natural
gas and telecommunication providers to ensure P AA services support planned
growth, meet desired customer service needs, and result in a comparable
community system in the greater Federal Way area.
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12
PUBLIC SERVICES AND CAPITAL FACILITIES
This section provides a summary of current and projected public services and
capital facilities in the P AA, addressing local government as well as special
district services and facilities. For services that the City would provide if the
P AA were to be annexed, an analysis of operating and capital costs and revenues
is provided based upon the Federal Way Potential Annexation Area Annexation
Feasibility Report, December 20a3.
12.1 Inventory of Public Services Likely to Change as a Result of
Annexation
General Government
The City of Federal Way and King County house a variety of operations such as
administration, public safety, court services, community/senior centers, and
maintenance bases at government facilities.
The P AA contains the following County government facility: Lake Dolloff
Community Policing Storefront just west of 51 st Avenue S. in the Camelot
neighborhood. A private, non-profit senior center operates in the P AA at S. 352nd
Street in the Lakeland neighborhood. While this facility has received some King
County and City of Federal Way funding, it is not owned or operated by either
jurisdiction. Also, the North Lake Improvement Club clubhouse is a non-profit
center available for public use, although not owned or operated by the City of
Federal Way or King County.
The operating costs that could be borne by the City, if it annexed the P AA and
provided General Government services, is estimated in Table 17 further below.
(Also see Section 8 regarding capital costs for community centers.)
Parks and Recreation
Please refer to subsections 8 and 12.2.
Police Services
The King County Sheriff provides police protection services to the P AA. The
P AA is served by Precinct 3, George Sector, with its headquarters in Maple
Valley. However, there is a local storefront police station near Lake Dolloff in
the Camelot neighborhood. The substation is not manned for general public
visitors, and one must call and leave a message.
Although calls for service in the P AA have decreased by five percent between
1999 and 2000, during this time period the number of traffic citations and traffic
accident events increased by 17 and 12 percent respectively. As of 2000, the
crime rate of 35.26 per 1,000 population was nearly equal to the crime rate for the
December 2003
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CITY OF FEDERAL WAY
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countywide area patrolled by the Sheriffs Office. According to the King County
Executive's Proposed 2002-2007 Capital Improvement Program, there are no
new proposed or expanded capital facilities in the Federal Way P AA.
At the time of incorporation, the City contracted with the King County Sheriffs
Department for police services. In the spring of 1995, the City decided to
terminate its contract relationship with King County and form its own police
department. The City's Public Safety Department began limited service on
September 16, 1996, and was fully operational on October 16, 1996. Federal
Way's Public Safety Department could be expanded at some time in the future so
that it could effectively provide services to the P AA. (A comparison of levels of
service in the County and City can be found in Federal Way Potential Annexation
Area Level of Service Analysis, July 11,2003.)
State laws require and establish procedures for the lateral transfer to a City of
qualified county sheriff's office employees who would otherwise be laid off as a
result of the annexation of unincorporated territory into that city (RCW 35.13.360
to 400). The City would not be required to put all transferring employees on the
police department payroll. It is within the City's discretion to detennine what
staffing provides an adequate level of law enforcement service.
Estimates of public safety operating costs to the City should annexation occur are
provided in Table 17 below.
Solid Waste
The King County Department of Natural Resources, Solid Waste Division,
operates King County's transfer and disposal system comprised of a regional
landfill, eight transfer stations, and two rural drop boxes for residential and non-
residential self-haul customers and commercial haulers. The closest waste
transfer station to the PAA and the City of Federal Way is in the City of Algona.
Unincorporated areas of King County are served by private garbage collection
companies, which receive oversight through the Washington State Utilities and
Transportation Commission (WUTC). While Federal Way Disposal serves the
City of Federal Way, local haulers within the PAA operate within two service
areas: Allied Service Area (SeaTac Disposal) and Waste Management and Allied
Service Area (Sea- Tac Disposal and RST Disposal), with the dividing line at
about S. 300th Street.
In the event of annexation, the City may decide to contract for solid waste
collection or undertake solid waste collection itself. However, in accordance with
State Law, the holder of the franchise or permit in the annexing area may continue
to operate for the remaining term of the original franchise or permit, or for seven
years, whichever time period is shorter (RCW 35A.14.900).
In the Parkway neighborhood, the Puyallup/Kit Corner Landfill is sited southeast
of the 1-5 and SR-18 interchange. This landfill was closed in the mid-1960's prior
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CITY OF FEDERAL WAY
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to existing regulations requiring extensive environmental controls.
Environmental systems are being monitored and maintained, and gas extraction
systems are in place.
Estimates of solid waste operating costs to the City should annexation occur are
provided in Table 17 below.
Surface Water
See Subsections 9 and 12.2.
Transportation
See Subsection 10 and 12.2.
12.2 Summary of Fiscal Impacts and Strategies
Fiscal Impacts Summary
The City of Federal Way would experience a significant negative fiscal impact on
its operating budget if the Southeast and Northeast Major Subareas (Southeast:
Lakeland, Jovita, Parkway neighborhoods; Northeast: Star Lake, Camelot, and
North Lake neighborhoods) were annexed to the City and the City used the same
revenue sources and rates, and provided the same level of services as it provides
to the residents and businesses in the current boundaries of the City. The annual
deficit would be just under $3.6 million ($8.2 million cost; $4.6 million revenue).
The cost of providing the City's levels of service in the PAA would exceed
revenues from the P AA by 78 percent annually.
The net operating revenue (or net costs) presented here represent the gap between
operating revenues generated in each of the PAAs under the City's 2003 revenue
structure and the costs of extending 2003 levels of City services to the same areas.
In order to present a full picture of operating impacts, this presentation combines
fiscal impacts across a number of disparate City Funds. The City would
undoubtedly continue City policy that Surface Water Management (SWM) costs
would be covered by Surface Water Fees within the structure of the Surface
Water Enterprise Fund. Such a strategy would require increased SWM fees and/or
decreased levels of SWM services by $538,000 (the difference between estimated
SWM operating costs ($823,000) given current service levels and estimated
revenues ($285,000). The remaining $3.0 million gap, then, would be bridged
through some combination of other strategies.
Another way of understanding the fiscal impact of the approximately $3.4 million
deficit is to see how it compares to the combined revenue of the City of Federal
Way and the combined Northeast/Southeast PAA subareas. If Federal Way and
the Northeast and Southeast P AA subareas are viewed as a single City of over
105,000 population, the annual deficit of $3.6 million equals six percent of the
combined operating revenue. It would be like running a business that loses six
December 2003
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CITY OF FEDERAL WAY
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percent every year.
In addition, the City of Federal Way would experience major costs for capital
improvements in the P AA totaling over $48.3 million. Dedicated capital revenue
is anticipated to be 532.0 million through the year2020, leaving an unfunded cost
of S ¡ 6.3 million (which averages $0.9 million per year through 2020). As noted
for operating costs above, City policy for surface water (and other enterprise
activities) is to cover costs with fee revenue. Assuming that the City would use
enterprise policy to cover the $4.7 million cost of stormwater capital, the
remaining deficit would be $11,564,520 (which is an annual average of
$642,473). In addition, the City will undoubtedly receive mitigation payments or
impact fees from development in the P AA, which were not possible to estimate at
this time, but they would reduce the size of the deficit.
Tables 16 to 21 provide the cost and revenue information supporting the
conclusions above:
Table 16. Operating Revenues Generated, by P AA (2003)
Northeast Southeast
PAA PAA Redondo Total
Property Tax $947,000 $699,000 $24,000 $1,670,000
State Shared Revenues $365,000 $264,000 $8,000 $637,000
Sales Tax - Criminal
Justice $246,000 $178,000 $5,000 $429,000
Local Retail Sales Tax $107,000 $173,000 $79,000 $359,000
Utility Taxes (O&M) * $196,000 $135,000 $6,544 $337,544
Surface Water Fees $159,000 $116,000 $10,000 $285,000
Fines and Forfeits $106,000 $115,000 $6,000 $227,000
Building Permit Fees $121,000 $90,000 $7,000 $218,000
Vehicle License Fee - - - -
Franchise Fees $102,000 $74,000 $2,000 $178,000
Solid Waste Revenues $41,000 $41,000 $1,000 $83,000
Development Services $39,000 $27,000 $1,000 $67,000
Fees
Recreation Fees $23,000 $33,000 $500 $56,500
Zoning Fees $7,000 $5,000 $1,000 $13,000
Gambling Tax $13,000 - $16,000 $29,000
Business License Fees $4,000 $3,000 $1,000 $8,000
Total $2,476,000 $1,953,000 $168,044 $4,597,044
Revenues per Resident $201 $219 $646 $214
Source: ECONorthwest analysis.
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Table 17. Operating Costs by Department by Potential Annexation Area (2003)
Northeast Southeast
PAA PAA Redondo Total
City Council $26,000 $26,000 $1,000 $53,000
City Manager $193,000 $204,000 $10,000 $407,000
Community Development $299,000 $22 I ,000 $13,300 $533,300
Law $129,000 $136,000 $6,000 $271,000
Management Services * $182,000 $187,000 $7,000 $376,000
Parks & Recreation $55,000 $406,000 $1,000 $462,000
Public Safety $1,651,000 $1,780,000 $98,000 $3,529,000
Public Works $1,457,000 $1,038,000 $21,000 $2,516,000
Total $3,992,000 $3,998,000 $157,300 $8,147,300
Costs per Resident $325 $449 $605 $380
Source: ECONorthwest analysis.
Table 18. Annual Net Operating Revenues (or Operating Cost) of Annexation, by PAA
(2003)
Northeast Southeast
PAA PAA Redondo Total
$2,476,000 $1,953,000
Operating Revenues $168,044 $4,597,044
Operating Cost $3,992,000 $3,998,000 $157,300 $8,147,300
Net Revenues or Cost -$1,516,000 -$2,045,000 $10,344 * -$3,550,256
Costs oer Resident -$123 -$230 $41 -$166
Source: ECONorthwest analysis.
* Given the uncertainties surrounding estimates of costs and revenues for a small area like Redondo, the
reported net revenue of $1 0,344 for the Redondo area could be viewed as essentially equal to zero.
Table 19 Federal Way Potential Annexation Area Capital Revenue to 2020
Capital Revenues Northeast Southeast Redondo All Subareas
Real Estate Excise Taxes $ 300,000 $ 222,000 $ 7,000 $ 530,000
Utility Taxes (Capital) 694,000 480,000 20,000 1,194,000
Annual Total $ 995,000 $ 702,000 $ 27,000 $1,724,000
CIP Planning Horizon
(years 2002-2020) 18 18 18 18
2020 Total of Annual
Revenue 17,910,000 12,636,000 486,000 31,032,000
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Capital Revenues Northeast Southeast Redondo All Subareas
Grants for Roads 1,000,000 0 0 1,000,000
2020 Revenue Total 18,910,000 12,636,000 486,000 32,032,000
Source: ECONorthwcst 2003
Table 20. Federal Way Potential Annexation Area Estimated Future Capital Costs
Redondo
Area Wide Northeast Southeast East TOTAL
Subarea Subarea Subarea
Parks and
Recreation $-0- $22,565,346 $9,564,412 $584,762 $32,714,520
Roads: Level
of Service -0- 7,561,000 3,039,000 282,000 $10,882,000
Surface Water 1,067,000* 1,074,000 2,578,000 -0- $4,719,000
Total $1,067,000 $31,200,346 $15,181,412 $866,762 $48,315,520
Sources: Jones & Stokes, Henderson Young & Company, TetraTech/KCM, Inc., 2003
* Area wide capital programs include a joint P AA stonn drain system inventory and
comprehensive plan, and major maintenance of ditches and other stonnwater facilities.
Table 21. Federal Way Potential Annexation Area Estimated Net Capital Revenues
Northeast Southeast Redondo
Area Wide Subarea Subarea Subarea TOTAL
Capital Revenue $18,910,000 $12,636,000 $486,000 $ 32,032,000
Capital Cost 1,067,000 31,200,346 15,181,412 866,762 48,315,520
Net Revenue (1,067,000) (12,290,346) (2,545,412) (380,762) (16,283,520)
Sources: ECONorthwest, Jones & Stokes, Henderson Young & Company, TetraTech/KCM, Inc.,
2003
Implementation Strategies
To address the fiscal impact the Federal Way Potential Annexation Area
Annexation Feasibility Report, December 2003 identifies six categories of
strategies that could be pursued to address the significant negative fiscal impacts
of annexation, as follows, without a priority order:
1. State and County Support: With this option, the City could
indicate that its ability to annex the Southeast and Northeast Subareas is
contingent upon the State of Washington and/or King County providing
new resources to offset the significant cost of such annexations.
Examples could include a new local option sales tax per State Law that
authorizes King County to submit such a tax for voter approval, State
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grants, and unexpènded County impact fees being provided to the City.
The County's ability to continue to service urban unincorporated islands
has decreased over the last several years, and the County has been
cutting back services. Accordingly, in August 2003, it was reported that
King County will offer a total of $1 0 million to a number of cities that
annex unincorporated areas in their P AAs. Details were not announced,
and will depend on the County's budget decisions.
2. Local Taxpayers: With this option, the City could use one or
more general taxes to have all taxpayers in Federal Way and the
combined annexation area share in paying the annual operating deficit.
The City could ask voters to approve long-term debt in the form of a
general obligation bond that is used to build capital improvements. Of
particular interest are enterprise funds. Like many cities, Federal Way
has a policy that costs of enterprise funds, such as Surface Water
Management and Solid Waste are to be covered by user fees. Such a
strategy would require increased fees and/or decreased levels of
services. Federal Way could increase user fees throughout the City and
P AA for its stormwater utility and/or solid waste utility and use the
proceeds to offset the increased cost of providing those services in the
PAA.
3. Tax Base Expansion: A long-term strategy for Federal Way could
be to increase City revenue by increasing the tax base in the P AA and/or
in the City limits. Some businesses, like automobile dealerships,
generate significantly more tax revenue than the cost of the public
services they receive. These strategies could be pursued independently
by the City of Federal Way, but King County could make annexation
more attractive if it were to take the lead in rezoning selected parcels in
the P AA in accordance with provisions of the approved Subarea Plan
and assisting in the economic development strategies to develop those
areas. A caveat would be that the City of Federal Way and the PAAs
currently have vacant and underdeveloped land to absorb decades of
anticipated commercial growth.
4. Special Districts: One strategy to generate revenue to pay for
Federal Way's level of service in the annexation area would be to create
a special district and charge a property tax levy in that district.
Washington law allows the creation of limited special purpose districts
for a number of purposes, such as roads, parks, transportation, and "local
improvements." Voter approval is required to create special districts
that have taxing authority. Property owner approval is required to create
special districts that use special assessments. There is some risk
associated with using special districts as a strategy to pay for providing
urban levels of service the P AA. A vote on creating a special taxing
district would occur subsequent to an annexation vote. If voters approve
annexation, but do not approve the creation of the district(s), the City
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would be left with insufficient money to provide its level of service.
5. Reduced or Phased Levels of Service: Another way for the City
to address the difference in levels of service between Federal Way and
the County wouÍd be to pennanently provide a lower level of service for
one or more services, either broadly citywide or only within specific
areas. A second strategy for addressing the difference in level of service
would be to phase-in the increases in level of service in the annexation
area.
Phasing would reduce costs during the transition, and it would provide
Federal Way with time to recruit and hire personnel an'd acquire
facilities and equipment. However, eventually, phased levels of service
will grow to equal the standards achieved by the City of Federal Way.
When that occurs, service levels will be the same throughout the City,
and the City will experience the full fiscal impacts of those levels of
service.
A variation on phased or reduced levels of service could include
alternative service delivery strategies or customized strategies for
specific neighborhoods tailored to the needs or characteristics of the
PAA location. For example, crime prevention programs could vary by
neighborhood depending on the type residential dwellings, commercial
uses, and previous crime rate statistics.
6. Phased Annexation: This strategy would involve annexing those
areas that are financially self-supporting first and then annexing other
areas later, perhaps in conjunction with other strategies to improve fiscal
impact of these subsequent annexations. Phased annexation based on
fiscal impacts could be accomplished by annexing Redondo first because
it has no operating cash deficit. The Northeast P AA subarea, or portions
thereof, could be annexed next because its operating costs exceed
revenues by 61 percent. Last to be annexed could be the Southeast
P AA subarea, because its costs are estimated to be more than double the
revenue it would generate (i.e., the deficit is 105 percent). Phasing can
also be accomplished by smaller areas, such as community subareas.
For example, if community subareas were annexed in order of their
fiscal impact, from least to most net operating cost, the following would
be the phasing sequence: Northlake, Lakeland, Star Lake, Jovita,
Camelot, and Parkway. If other Implementation Strategies are
considered and employed to detennine phasing for annexation. the order
might be different than the preceding list. It should be noted that
phasing annexation emphasizes differences among the areas, and misses
the opportunity to mitigate the apparent differences among areas by
taking them all at the same time, thus effectively averaging the "highs"
and "lows" of both revenues and costs.
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Some implementation strategies may be suitable to different portions of the P AA
while others may not be. Study of the altematives prior to or at the time of
annexation requests would be warranted.
12.3 Services Unlikely to Change as a Result of Annexation:
In the event of annexation, some services currently being provided in the P AA
through special districts will not change. The current service providers, levels of
service, or costs of services including fire protection, library, schools, water and
wastewater will remain unchanged. However, it is important that the City and
service providers coordinate planning efforts to match services and facilities with
the current and future population and employment levels. Each of the services are
summarized below based on the March 18,2002 PAA Inventory.
Fire Services
The Federal Way Fire Department provides service to the City of Federal Way
and most of the surrounding unincorporated area in the Federal Way PAA.
However, the Fire Department is not part of the City of Federal Way government.
The Department was formed in 1980 from a series of mergers, which united
several smaller fire districts in the area, some of which had been in existence
since 1946. The resulting boundary encompasses some 34 square miles and has an
estimated population of over 100,000.
Services provided by the Federal Way Fire Department include fire suppression,
fire prevention (building inspection and public information), emergency medical,
and communications center operation for 911 emergency calls. Emergency
medical response calls or service make up a majority of the calls for the
Department.
The PAA is served by four of the Department's six stations (Map VIII). One of
these stations is located outside of the P AA, within the Redondo area. The other
fire stations serving the P AA are located within the Lakeland and Camelot
community subareas. The fire station in the Camelot area lies on the border of the
Camelot and North Lake community sub areas.
A 1996 Des Moines annexation (W oodmonURedondo) could result in area
currently served by the Federal Way Fire Department to be served by Fire District
26 if either party should give the required 12-month notice to eliminate the
contract allowing the Federal Way Fire Department to continue providing service.
Ifthe contract is eliminated, District 26 would take ownership of Station 66. The
Federal Way Fire Department has purchased property at South 288th and
Interstate 5 as a contingency should they need to replace Station 66. This would
accommodate the building of a new station that is more centrally located in the
north end of the City. This realignment of stations, response areas, and revenues
would require closure of Station 65 (4966 South 298th). Both Stations 65 and 66
serve portions of the Federal Way PAA.
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F or the City and P AA Planning efforts, the City has worked closely with the
Department in reviewing the Fire District Master Plan, which complies with the
GMA. The Department's Master Plan identifies the new facilities the Department
will need to continue providing service as its service area grows. The City
included the Department's new facilities requirements and cost and revenue
estimates in the City's Capital Facilities chapter.
Library Services
Library services are provided by King County. There are no public libraries
inside the P AA, but there are six libraries of different sizes serving residents of
the P AA including:
Algona-Pacific Library - 5,250 square feet (medium)
255 Ellingson Road
Auburn Library - 15,000 square feet (resource)
1102 Auburn Way South
Federal Way 320th Library- 10,000 square feet (large)
848 S. 320th St.
Federal Way Regional Library - 25, 000 square feet (regional)
34200 1st Way S.
Kent Regional - 22,500 square feet (regional)
212 2nd Avenue N.
Woodmont Library - 5,250 square feet (medium)
26809 Pacific Highway South
King County Library System (KCLS) plans for capital projects, including
expansions, depend on the KCLS Board determining whether they wish to
propose a bond issue to King County voters and whether it passes. The KCLS
staff and Board have discussed many possible projects for such a bond issue and
some of the libraries serving the P AA have been included. However, there are no
capital plans or funds to provide library services in the P AA at this time.
Schools/Education
Probably more than any other special district, a school district provides an area
with a sense of community. The Federal Way School District #210 (as outlined on
Map XIV) extends from the county line south to South 252nd west of 1-5 and South
232nd Street, east ofl-5 to the north, and for the most part along the edge of the
plateau to the east. A school district provides a common thread, be it through
school activities such as organized sports, or through voting during elections.
City staff meets regularly with School District #210 administrators to discuss
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CITY OF FEDERAL WAY
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growth management and school development issues. The District primarily serves
students in the Cities of Federal Way, Des Moines, and Kent, and unincorporated
King County. The District administration has indicated in these meetings that they
would prefer to work with one jurisdiction as the District attempts to anticipate
growth and develop plans for new school facilities.
Seven schools are located in the P AA, including five elementary schools, one
junior high school, and one high school (as outlined on Map XIV). Aside from
Thomas Jefferson High School, all schools within and serving the P AA have
some student dcmand beyond the building capacity, rcquiring the use of portable
classrooms.
Water and Wastewater
The Lakehaven Utility District and Highline Water District provide water service
to properties within the P AA. As indicated on Map XV, the current Lakehaven
Utility District boundary is generally bordered on the south by the Pierce/King
County line, on the east by the Green River Valley, and on the west by Puget
Sound. The Lakehaven Utility District's northern boundary is generally bordered
by South 272nd Street with a narrow strip extending along Puget Sound to South
252nd Street.
Maps contained in the Lakehaven District's water system comprehensive plan
describe an extensive system of wells, storage tanks, and distribution mains. The
water distribution infrastructure is sufficient to provide water to virtually all of the
Lakehaven Utility District.
The Highline Water District water service area boundary encompasses most of the
PAA Star Lake community subarea and parts of the City of Federal Way (Map
XV).
Both the 1998 Lakehaven Utility District Comprehensive Water System Plan and
2002 Highline Water District Capital Improvement Plan have identified the
following water quality and service goals and objectives: maintain their water
systems and water quality to the highest level of service and at least the level
required by applicable regulations; participate in the conservation efforts to
maximize existing water supply resources and develop new water resources; and
install new water distribution systems as necessary to serve the existing and future
populations within their Districts. Both Districts have existing rate structures and
capability to ensure this level of service.
Wastewater systems in the P AA include both septic and sanitary sewer systems.
Sanitary sewer service is available in several areas outside the City limits
including the Camelot/ Star Lake area, north of Lake Dolloff, Redondo,
Woodmont, a small area east of 1-5 and south of Kitts Corner Road, and portions
of the Weyerhaeuser Corporate campus east of 1-5. See Map XVI.
Relevant to the P AA, the Lakehaven Utility District plans estimate that sewer
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service will be extended to the east-central area of the District in the near future
and the area is projected to reach its target population in the Year 2007, based on
the Lakehaven Sewer Master Plan which estimated growth based upon City of
Federal Way traffic analysis zone growth projections available in approximately
1999. The number of onsite septic systems throughout the District was estimated
to be 7,500. The Utility District plan assumptions are that 50 percent of the onsite
systems will be replaced with sanitary sewer connections by the year 2017.
Under ultimate development conditions, it is anticipated that all areas that could
feasibly and economically be served would be served.
The City of Federal Way's responsibility with regard to the water and wastewater
systems will be limited to updating the FWCP in future years in accordance with
the City's regular planning efforts, and providing development applications to the
Lakehaven Utility District and Highline Water District for their input as part of
the City's Development Review Committee process.
12.4 Public Services and Capital Facilities Goals and Policies
The provision of public services and capital facilities would be guided by the
following goal and policies.
Public Services and Capital Facilities Goal
Provide effective, efficient, and quality capital facilities and services at the level
necessary to meet community needs and support allowed growth.
Public Services and Capital Facilities Policies
In addition to Governance and Intergovernmental Coordination Policies, the
following policies are proposed:
P AA CapFac - 1 Prior to annexation, the City, in conjunction with King
County, should develop and maintain an inventory of capital facilities in the P AA.
As new infonnation becomes available, supplementary inventories should be
completed for surface water facilities and roadway improvements to bridge gaps
in infonnation identified in the Final Potential Annexation Area Inventory, Ci~y of
Federal Way, March 18, 2002.
P AA CapFac - 2 City and County plans should address the P AA to ensure that
systems are reviewed comprehensively, and in order to support desired
annexation phasing.
P AA CapFac - 3 Through an interlocal agreement prior to annexation, shared
City-County capital facility maintenance standards should be implemented.
Standards, funding, and practices should seek to avoid maintenance deferrals prior
to annexation. Maintenance standards should be consistent with approved
functional plans for transportation, stonnwater, parks, and other systems that
would become a part of the City system upon annexation.
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P AA CapFac - 4 The City should allow for a variety of service delivery or
revenue enhancement optionsto increase the feasibility of annexation. Based on
the P AA Annexation Feasibility StucÚ', these options may include, but are not
limited to:
a. State of Washington and/or King County providing new resources to
offseuhe significant cost of annexation, through such options as New
Local Option Sales Tax, State Grants, unspent County Impact Fees,
County monetary incentives to annex, or others.
b. The County or City posing to voters general obligation bonds or
general taxes.
c. The County or City proposing to create special limited districts in
P AAs to pay for specific costs.
d. Tax base expansion per Policy LU-6.
e. Increase in fees for enterprise funds such as surface water management
or the solid waste program.
f.
When considering annexation proposals, the City could provide a
lower level of service for one or more services. The reduction could
be City-wide (e.g. lower park standards) or just in the PAAs (e.g.
lower roadway pavement rating in the newly annexed neighborhoods).
g. When considering annexation proposals, the City could explore
alternative service delivery strategies or customized strategies for
specific neighborhoods tailored to the needs or characteristics of the
P AA location.
h. The City could address the difference in County and City levels of
service by phasing-in the increases in level of service in the annexation
area.
1.
The City could annex those areas that are financially self-supporting
first and then annex other areas in conjunction with other strategies to
improve fiscal impact of these subsequent annexations, such as
identified in "a" to "h" above.
P AA CapFac-5 To avoid City assumption of nonconforming infrastructure, a
coordinated Capital Improvement Program should be prepared between the City
and County. Such a program should be developed prior to annexation,
particularly of the Northeast and Southeast subareas, to ensure that improvements
required to meet levels of service are implemented concurrent with new
development. When considering annexation proposals that have significant
existing nonconforming infrastructure, the City should consider service delivery
and revenue enhancement options identified in Policy P AA CapFac-4.
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13
PUBLIC PARTICIPATION
GMA requires public participation in the adoption and amendment of
Comprehensive Plans and Development Regulations, including the preparation of
Subarea Plans like the Federal Way P AA Subarea Plan. Public participation
efforts in the development of the Federal Way PAA Subarea Plan are addressed in
prior sections of this report, and have included public meetings, open houses, and
various means of advertisements.
Once adopted, the approved P AA Subarea Plan will require some implementing
activities including interlocal agreements, and additional capital planning.
Implementing activities depending on the nature of the activity may result in
additional opportunities for public input in accordance with State and local laws.
Also, if the Subarea Plan is amended in the future which is allowed typically on
an annual basis by the GMA, other public participation efforts would be needed.
Finally, the annexation process would require public notification and participation
efforts pursuant to State laws.
13.1 Public Participation Goal and Policies
The following goal and policy would help direct public participation efforts in the
PAA.
Public Participation Goal
Actively seek public involvement in PAA planning efforts.
Public Participation Policy
PAA Pub-l Consistent with Washington State law, the City of Federal Way
recognizes annexation as a process which requires and benefits from public
participation. As the City is the designated future municipal service provider to
the P AA, the City should inform P AA residents, property owners, and business
owners of City activities and invite participation from P AA residents, property
owners, and business owners through the following efforts:
a. Encourage City staff and elected officials to regularly attend civic and
community organization meetings.
b. Seek broad representation on boards, commiSSIOns, and advisory
groups.
c. Prior to action on City plans and regulations, seek and integrate public
input through public workshops, meetings and hearings.
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14
GOVERNANCE AND INTER-JURISDICTIONAL
COORDINATION
In accordance with the provisions of the GMA, new development should occur in
designated urban growth areas, and urban services should primarily be provided
by cities. In consultation with the County, a P AA for Federal Way has been
designated in which it is anticipated that the City would ultimately provide
services as property owners and citizens elect to annex. This will require a
transition from County governance to City governance. Additionally, GMA
requires coordination between land use and services/capital planning, such as
between the City of Federal Way, neighboring cities, special districts and the
County, for which the Countywide Planning Policies help provide a regional
framework.
While some servic~ providers would not change, such as special districts
including the Lakehaven Utility District, Highline Water District, Federal Way
Fire Department, and Federal Way School District, other services provided by the
County including police and corrections services, surface water management, land
use and building permitting, human services, and others would change. (A
comparison of services and levels of service between the two agencies is
identified in Federal Way Potential Annexation Area Level of Service Analysis,
July 11,2003; a detailed discussion of fiscal impacts is found in the Annexation
Feasibility Study, December 2003.) Section 12 provides strategies to minimize
negative impacts to public services and facilities impacted negatively by
annexation.
14.1 Governance/lnterjurisdictional Goals and Policies
Governance and interjurisdictional coordination would be directed by the
following goal and policies.
Governance/lnterjurisdictional Coordination Goal
Coordinate PAA planning efforts with other neighboring jurisdictions and
agencies.
Governance/lnterjurisdictional Coordination Policies
P AA Gov - 1 The City shall coordinate with King County to ensure service
provision and land development prior to City annexation is consistent with the
goals and policies of this Plan. Methods to allow for coordination may include,
but are not limited to, execution of an Interlocal Agreement between the City of
Federal Way and King County to:
a. Establish guidelines for development plan review, impact fees, and SEP A
mitigation consistent with the P AA Subarea Plan; and
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b. Define service delivery responsibilities, level of service standards, and
capital facility implementation consistent with the P AA Subarea Plan.
P AA Gov - 2 Through regional planning efforts, the County and City should
ensure P AA plans are compatible with neighboring jurisdictions, including ~ing
and Pierce Counties, and the Cities of Algona, Auburn, Edgewood, Kent, Milton,
and Pacific.
PAA Gov - 3 Coordinated planning efforts between the City, County,
Lakehaven Utility District, Highline Water District, Puget Sound Energy, Federal
Way School District and Federal Way Fire Department should continue to assure
managed growth supportive of the P AA land use, annexation phasing, and service
delivery objectives.
15
ANNEXATION
For purposes of efficient services, coordinated land planning and development,
and unity between economically and socially related areas, annexation may be
desired by citizens, property owners, and the City. As noted above, the GMA
provides for coordinated urban growth area planning between counties and cities
with the intent that urban and urbanizing areas ultimately be served by
municipalities. In the GMA framework, annexations may occur only within a
jurisdiction's designated PAA. By addressing its city limits and PAA in its
Comprehensive Plan, the City is responding to the GMA framework to manage
growth, provide efficient services, and meet community needs in the broader
Federal Way community.
There are currently four methods of annexation applicable to the Federal Way
PAA.
.
The Election Method, Initiated by Ten Percent Petition, is initiated by the
collection of signatures from qualified electors in the area proposed for
annexation equal to ten percent of the number of voters in the last general
election in that area. This method would require an election by the
residents of the area being considered for annexation. This method could
be used to annex portions of or all of the P AA at a time.
The Election Method, Initiated by Resolution, may be initiated by City
Council resolution. This method would require an election by the
residents of the area being considered for annexation. This method could
be used to annex portions of or all of the P AA at a time.
.
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.
In May 2003, legislation became effective which adopted a new "Petition
Method of Annexation" designed to overcome the State Supreme Court's
findings of constitutional defects in the State's previous petition method.
Under the new law, the annexation petition must be signed by property
owners (owning a majority of the area) and by registered voters (a
majority in the area). If there are no registered voters (vacant, commercial,
or industrial property, or property that has residents but no registered
voters), then only owners of a majority of the area need sign. This method
could be used to annex portions of or all of the P AA at a time.
In July 2003, another "Island Method of Annexation" became effective. It
allows a legislative body to initiate an annexation process for an urban
island of territory by adopting a resolution commencing negotiations for
an interlocal agreement between the initiating city and the county. At
least 60 percent of the is land must be contiguous to one or more cities. A
public hearing is required by the county and the city separately or jointly,
before the agreement is executed. Following adoption and execution of
the agreement by both legislative bodies, the city legisla tive body is to
adopt an ordinance providing for the annexation of the territory described
in the agreement. Generally, a petition or public vote is not required. The
method has a vote requirement if property owners reject annexation
through obtaining a certain number of petition signatures. This Island
method could be used to annex all of the Redondo East, and/or all of the
Northeast and Southeast P AAs as a whole. It may be possible to use the
Island method to annex portions of the Major Subareas.
.
As identified in Section 12, no individual strategy or combination of strategies
will make annexation feasible for the Major or Community Level Subareas (other
than Redondo), without significant sacrifices or costs to the City in the form of
reduced levels of service or financial impacts to citizens. Annexation of smaller
areas involve portions of the cost of the entire P AA; therefore requests for small
area annexations should be reviewed in the context of the annexation strategies
and policies in Section 12, as well as the policies below.
15.1 Annexation Goals and Policies
Annexation Goals
Provide a framework for processing annexation requests.
Annexation Policies
P AA Annex - 1 The City should give priority consideration to annexation
proposals that are financially self-sufficient or those where the fiscal impact can
be improved through annexation strategies such as those identified in Policy P AA
CapFac-4. As areas become feasible for annexation, such areas may be prioritized
for annexation in accordance with the following:
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a. Priority criteria should include:
.
Neighborhood willingness to annex;
Land use developability where urban densities may be achieved, rate of
growth indicating City oversight of growing area would ensure compatible
development with City goals and requirements, and other similar land use
factors;
.
.
Ability to provide a b"alance in costs and revenues to the City;
City's ability to provide appropriate levels of service;
The annexation include~eas with regionally serving infrastructure that
meets City of Federal Way Level-of-Service (LOS) standards.
Infrastructure examples may include parks and recreation facilities,
arterial roadways, regional surface water detention facilities, etc.
Annexation areas containing nonconforming infrastructure should have
sufficient planning and funding mechanisms in place to assure existing
LOS deficiencies are addressed. Sufficient planning mechanisms may
include affected areas being addressed in capital facility plans. Sufficient
funding mechanisms may include anticipated utility tax revenues from the
affected area, and the establishment of a Local Improvement District to
minimize any gaps in tax revenues.
Logical and reasonable service areas based on Policies P AA Annex -2 and
PAA Annex-3.
.
.
.
b. Annexation of the geographic subareas may be phased over several
years.
P AA Annex - 2 The City should process annexation requests in accordance
with review criteria. Review criteria should include:
a. The proposal meets the priority criteria of P AA Annex - I.
b. Annexations are an appropriate size. Appropriate size means an area
that warrants the staff time and expense involved in processing
annexation requests and complies with the goals of the GMA and the
CWPPs.
c. Annexations generally should not have or create abnormally irregular
boundaries.
d. The annexation must, to the greatest extent possible, preserve natural
neighborhoods and communities.
e. The annexation proposal should use physical boundaries, including but
not limited to bodies of water, highways, and land contours, including
meeting provisions ofPAA Annex-3;
December 2003
70
CITY OF FEDERAL WAY
PM Proposed Final Subarea Plan
f.
The annexation proposal should create and/or preserve logical service
areas, including meeting provisions of P AA Annex-3.
P AA Annex 3: The City will use, but may not be limited to, the following factors
in determining the specific location of an annexation proposal boundary:
a. The annexation boundary, where appropriate, shculd adjust any impractical or
irregular boundaries created in the past.
b. The annexation boundary should provide a contiguous and regular boundary
with current City limits.
c. The annexation boundary, where appropriate, should be drawn along property
and/or existing or future right-of-way boundaries. Annexation boundaries,
where possible, should not be drawn along right-of-way centerlines.
d. P AA roadways contiguous to a proposed annexation area should not be
included within the proposed annexation boundary, unless the roadways are
contiguous to current City limits.
e. When a proposed annexation is located in the vicinity of a P AA King County
surface water management facility, the City Public Works Department should
evaluate the facility and the water basins it serves to determine whether the
boundary should be modified to include the public facility.
f. When a proposed annexation is located in the vicinity of a P AA public
recreation facility, the City Parks, Recreation, and Cultural Services
Department should evaluate the financial feasibility of modifying the
annexation boundary to include the public facility.
g. When a proposed annexation includes portions of a natural lake, the
annexation boundary should be modified to include or exclude the entire lake
area from the proposed annexation.
h. When a proposed annexation is located in the vicinity ofa PAA special
purpose district facility (i.e. school, fire station, etc.), the City should consult
with the respective district regarding modifying the boundary to include the
special purpose district facility.
P AA Annex - 4 Upon annexation, properties shall be required to assume
FWCP designations and zoning as found in the adopted P AA Subarea Plan (Maps
VII-I and VII-2).
a. The adopting ordinance for the pre-annexation plan and zoning shall
specify the time interval following an annexation during which the
ordinance adopting the pre-annexation plan and zoning, must remain
in effect before it may be amended by the City.
December 2003
71
CITY OF FEDERAL WAY
PAA Proposed Final Subarea Plan
b. Any amendment to the pre-annexation land use plan that is adopted as
part of the Comprehensive Plan is subject to the general GMA
limitation that the comprehensive plan may be amended no more
frequently than once a year, unless exceptions are met.
P AA Annex - 5 Where appropriate, the City and/or County should allow
development agreements in the P AA that are consistent with the approved
Subarea Plan.
P AA Annex - 6 The City will require owners of land annexing into Federal
Way to assume their proportion of existing City bonded indebtedness.
P AA Annex - 7 The City and County will work with affected neighborhoods
upon annexation to provide a smooth transition from King County to City of
Federal Way administration.
P AA Annex - 8 The City should establish departmental service needs prior to
major annexations through a fiscal impact analysis. As revenues from each
annexation area are collected, increase City services to maintain current citywide
levels of service or determine other level of service phasing, reduction, or
customization as identified in Policy P AA CapFac-4.
P AA Annex - 9 The City should evaluate the unincorporated lands beyond the
P AA boundaries, including but not limited to, the Browns Point and Dash Point
areas of Pierce County and the southwest King County "gap" area, that may be
appropriate to include within the P AA. The City should work with King County
and Pierce County and neighboring jurisdictions regarding the potential addition
of any lands to the Federal Way P AA.
16
TECHNICAL REFERENCES TO THE SUBAREA PLAN
The following technical references are available under separate cover:
A. City o{ Federal Way PotentÏal Annexation Area InventOlY, Final,
March 18, 2002.
B. "Federal Way Potential Annexation Area Level of Service Analysis,"
July 11, 2003.
C. "Federal Way Potential Annexation Area Land Use Analysis
Compilation," March 5, 2003.
D. Federal Way Potential Annexation Area Annexation FeasÏbilÏ(v Study,
December 2003.
December 2003
72
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City of
Federal Way-
Potential
Annexation Area
Federal Way
PAA
Legend:
D Federal Way
D Algona
D Auburn
D Des Moines
D Kent
D Milton
D
D
D
D
D Kent, P.A.A.
D
D
Pacific
Federal Way, P A.A.
Algona. P.AA
Auburn, P AA.
Milton, P.A.A.
Pacific, P.A.A.
VIcinity Map
0
Scale:
112 Mile
~
N
~
Map Date: December, 2003
Cltv at Federal W~.
33&0 First Wæ¡ S,
Federal WI'¡. WA 9&003
{258} 661-4000
WNN.ci .fedllral-my.wa.uS
Ple3le NolB:
This map 18 Intandlld for use
as a graphical repruentallon
ONLY. The City of Federal
Wr¡ makec no warranty
31 to itB 1cc1Ø'iC'f.
A Federal Way
Map I
.m ~8/dac4I¡ """"p.atri
F¡ f
L¡ ~
I I'
-r r~ \
1 I
City of
Federal Way -
Potential
Annexation Area
Community
Level
Subarea
Boundaries
Legend:
Potential Annexation Area -
Community Level Subal'8lU!:
0 Redondo East (Redondo East)
0 Star Lake (Northeast)
D Camelot (Northeast)
0 North Lake (Nortneast)
D Jovita (Southeast)
D Lak8land (SouIheut)
0 Parkway (Sou1he~
Other Areas:
0 Incorporated Area
D Unincorporal8d Area
Source: City 01 Federal Way, GIS Division &
) )8rtrnønt of Community Development Services,
BWR. ECONor1hweat. PM Sœerlng Committee,
December 2001
VIcinity Map
Scale:
0 112 Mile
~
N
~
Map Dale: Døcørnbør, 201)3
CIty of Fedehl W~.
33S80 First Ww¡ S,
Federal Way. WA 91003
(258) 681-4000
WHN.d .f8deral-way .WLUS
Pleu. Note:
This map Islnt8nd8d lor U8e
u a graphical r8prtStntlllon
ONLY. The City of Fedenl
Way makes no warranty
u tD itB acctnGY.
A Fëdaral Way
Map II
...I1n~m_p.anol
City of
Federal Way -
Potential
Annexation Area
I Sensitive Areas
LeglJl1d:
. Lak8haven Utility Dlrtr1ct Well
. PriYaIe Wall (All U691i, In Use and Un~.d)
BluafGr8S'I Heron Breedng NII&t
N Streams
1/ Anadromous FIsh Runs
Raådllnt Fish Pnsent
¡'I Rlpar1an ARIaS
N Urban Natural Opon Space
IV Water Fo\o\r1
..N D&8pAqulfer
Eutom Upland Aquffor
. . ¡V RlIdondo
. Millon Channel Aqai1er
..N r.trror Laka Aquifer
Susceptibility to GrollldNatar Contaminalion -
Medium Sensitivity
SuBceplibil ity to G rollldNatar Contaminalion -
High SenslllVIIV
100 Yaar Flooq¡lain
We1Iandc
Sourœ: KIng County GIS Center, December 2001,
CIty 01 Federal Way Col!1)rehenalve PliID, 2000,
Labhaven Utility Dlrtr1ct, 2002
Sheldon and AllOCideB, April 2002 and
SbtAI of Wlitlnrrtcn
this documøntll not uubctltute for a 1Ield 8,"av.
ADDITIONAl. SENSInVE AREAS MAY EXIST.
CI.
c.w
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b
c:
u
5>
Scale:
0 1/2 Mile
Notð:
WlJUands and l1roama
~ wore ldontlftad In a
199& CI~Federai
Wf1!o/ stJ¡ . Wikllife
N hatiIIat allan
comIC from till SIne of
WaahlngIXIn
Please NoI8:
Till, map Is llitendad for uae
IS a gnptlcal npr888ntaUon
ONLY. The CIty c:i Federal
Wr¡ maJœs no warranty
18 to ita iIIòIiurac;y.
~
Map Dale: December, 2003
City of Fedenl W~,
33S80 Firat WtIt( S,
Federal Wry. WA 91003
(258) 681-4000
w..wt.c;j .fedoral-wlY.wa.us
A F8deral Way
Map III
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City of
Federal Way -
Potential
Annexation Area
Geologic
Hazards
Legend:
ISSJ landslide Hazard Areas
Eroclon Hazard Areas
c
(Thera are NO coal ll'ine hazards or
511Ì5mic hazard5 in tni5 araa.)
Potential AnntXition Am-
Comml81ity LlIVe' Subareas:
Redondo East (RedQndo East)
D
D Star LakII (Nartheasl)
D Camlllot (Northea&t)
D Norlll LaJœ (Northeast)
D Jovtta (Southlllst)
D Lakaland (Soult1ea&1)
D Par1<way (Soutfleut)
OItIðr Araas:
D IncorpolilÚld Area
D Unincorporated Area
Sou roe: King Coul11y GIS Center, December20C1
1111s document 15 nat a sub&1itutø
for a field 5UMIY- ADDITIONAL
SENSmVE AREAS ÞM.V EXIST.
.,.
CI.
..,
:E
~
c;;;;
u
so:
"
, .'
Scale: ~
0 1/2 Mile
~ N
Map Date: Dec&mbtr, 2003 PltaSeNo18:
~ at Federal Wit/. Thfs map Is IntendBd for ule
0 Firat W:¡; S, 18 a~~hlcaJ npr8l8ntrt1on
Federal W~, A 9&003 ONl. e CIty of Federal
(258) 661 000 Ware maims no watTInty
W/NI.d .f8deraJ -wi'! .WLUS 18 0 1111 accurac;y.
,
'"
~
I
AFëdaralWay
Map IV
.1IIo_b~oc4.VII1.....1
Figure V
Potential Annexation Area
2002 Existing land Use Distribution
(Based on Total Acres)
158.8 73.2
306
. Commercial
13 Easements
iï lndustrial
13 No Data
0 Office
iii Open Space. Common Areas & Drainage
¡¡¡ Public Park
. Quasi-Public
. Recreation
0 Residential, Multi-Family
13 Residential. Single-Family
13 Rights-aI-Way
. Utilities
0 Vacant
CJ Water
I?~ Ie' (¡ tJ' -'rl.J. ,'J !7'\ ~
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r'Mlnon ~---lJ-rn'....l_;¡ ~ I -< I II r ~
City of
Federal Way -
Potential
Annexation Area
Parks & Cultural
Resou rces
Legend:
Recrelllonal Fac111les:
0 FIshing Ace888, We Geneva
0 Fishing Ace_. Lake Killamey
G) Federal Way Sailor Centar
ø NorthlaIcB Improvement Club
CultlJraI RecolJn:e£
0 Fancher House
Ð Sutherland's Gas SUllen
and GrooOIY
0 Westberg Hou..
Comm..,1ty Level
Subuea Boundary
. Public Pam
D Incorpora:ted Area
D Unincorponbld Area
Sourœ: City of Fedoral Way GIS,
lOng COlllty Department at NItur:II
RIICOIJI'C8S, December 2001, Fed&nI Way
Senior Center, FøbrullY 2002 and
State of Wunnøton. Department of
FIlii and W1lc1lfe, FebrualY. 2002
CI.
<U
2
~
c:;;
u
:>
Scale: ~
0 1ft! Mile
~ N
Map Date: Decambtr, 2003 PllI3I!eNG18:
~ at Federal W~, Till, map I8lntend8d for use
0 FIr8t W:6 s, 18 I rn~caI nplt8entllfon
Federal W~, A SaO03 ONL. e CIty cI Fede raI
(258) 661 000 w~ maIœc no wamnty
VMW.d .federal-wIY .wa.us IS i1I accuraw.
ÂFedaraiWay
Map VI
/kfwgId<I8t I'IIIn ........... 00Vþ IIta.amI
~
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~ .,..
I
.
I
. .
I Auburn
.
I
'-I
...
-...
,
,. ...
.
Millon
City of
Federal Way -
Potential
Annexation Area
Federal Way P AA
Pre-A nnexation
Comprehensive
Plan
Designations
LlI lII1d:
. Commll1itY BuliinB&6
~ Multi family
. N8igtmorhood BUliilUlK
. PaIb and Open Space
~ OfIIce Park
D SIngle FaniIy, Mec:lum Density
D Single FamiIv, ligh DlII1lity
SOUI'Ge: City of Federal W~
CI.
ca
~
b
¡;;;
u
so:
Scale:
0 1/2 Mile
~
N
~
Map Dale: Declllnbtr, 2003 Please Nom:
Ctlv at Fed.nI W 11/. Till. map 1,lntended for Ulil
33SS0 Am Ww¡ S, 18 a grap~caI npr88entrt!on
F8deralWay. WA 91003 ONLY. TheCllyii Fed8ra1
(258) 861-4000 Way maJœc no wamnty
WNN.ci.f8deraJ-wI' .wa.ue 18 to ita lŒuracy.
A Fëdaral Way
Map VII-1
../1- -~......I
~
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@
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.
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llilon
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.
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...
-...
I
I
I
J
.
I
.
City of
Federal Way -
Potential
Annexation Area
Federal Way
Pre-Annexation
Zoning Map
Legend:
. BC (Communty Bu8lneel¡
!'ill BN (NllÎghbomDOd 8ulÌnllla)
. OP (Office Part)
D RS.\5.D (1 UnltJ35,ooo Sf)
D 1\&8.11 (1 UnltJ9,lIOO Sf)
D RS7.2 (1 Unltl7,200 SF)
D RS5.o (1 UnitJ5,OOO SF)
~ RM3llOO {1 Unltl35OO Sf}
D RM2400 (1 Unlt/2400 Sf)
. RM1800 (1 Unlll1lOO SF)
SoUrte: C~ of Federal Wr:¡
CL
...
::IE
z:;.
c
u
5
Scale: ~
0 1/2 Mile
~ N
Map Dale: December, 2003 PlweNotB:
~ at Fedel'll w~. Thil map Is Imended for UI8
0 Firat w:t,. S, 18 a ~~hleal npr8lentl1 on
Federal w~. A 9&003 OHL. e CIty of Federal
(258) 661 000 W~ maJœs no warranty
VMW.d .f8dltraJ -wI'j.wa.ua IS 0 ita ilŒuracv.
A Fedøral Way
Map VII-2
..Aa.......~_........
\~ i I ~ "B77:mIlST ( 'I'~' -W-J T 'J ! I¡\'\ \..\j\
} ;¡ if ~. L'(I J ~ T '
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-c ~ ar~~ ./ j~ '~", 1% )1 e-IU2ClflC
/. I ' - .. ~~ f-iJ t-.
~ -!. ì~-' I .j,~ It I h I Iu f I I
Milton /- -ì-rffi~~ ~S¡ \ . ,'----' I ~
City of
Federal Way -
Potential
Annexation Area
Su rface Water
Facilities
Legend:
. Conveyance FlClllty
. Rllådential Surface Walar Facility
 Commercial Suhct WatBr FaclII1y
Regional StDrmwaJør FacIÐIII18:
0 Lab Dolloff Out!et
a P-82 (Camalal Pari<)
0 Peasløy Canyon Culvert
0 Rllgðnc¡y Wood&, DIY 1
ø Ragancy Woods, DIY"
0 Regency Wood&, DIY" (2)
0 S 36Oth SI Embukmont
0 SW8et Bñar Drmaga IlT'CIrovamant
0 Regenc¡y Woods, Div 1
e Regency Woods, Div .. (8)
D Problem, (In P AA) Sea 1&xl
0 Problam, (Outside P.AA) See text.
N Shams
100 Villi" Floo~laln
IJ] W81Iandc
Hyftlbos Creek: B.ln
Lower Greon RIver Buln
Lower Pullet Sound Basin
Mil Creek Buln
WIitB River Basin
Source: KQ County
GIS Cen1er,'becember
2001, (jog County
Department of NlluraJ
RelOQ'ÇlI, December
2001 & January -
~ March 2002,
:E KIng Coll1l¥ Asliet
~ Oevelopnnt and
C Manaaam8llt Section,
ëJ March 2002
>
Scale:
0 112 Mile ~ NotIr.
Wøtlands and mama
~ N wera idøntifilld in a
1998 CI~ of Fed..
W ¡r¡ It1J .
Map Dlla: Decamber, 20D3 PI&a8aNO1B:
~ of Federal W IY. Tillt map Is Imendad for ute
0 Am W~ s, IS a ~1,ijcal npr88entrtlon
Fadaral W~t A 11&008 ONL. e CIty Of Federal
(258) 681 000 W?t maJœ8 no warmty
VMW.d .fedar1l-wlY.WLUs 1& 0 ill acr;uracy.
A Fedaral Way
Map VIII
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City of
Federal Way -
Potential
Annexation Area
Arterials &
Local Streets
Legllltd:
Fedaral Way S1ro&t CI.sllcat!ons:
N Pltnclpal Arterial
N "'nor Arteñal
N Principal Coltctor
N NlnorCole~or
Potential Ann8Xl1lon Area-
Comm... ity LlIYal S ubareaa:
D Rodondo Em (Redondo EI81)
D Star Lak& (Norllleast)
D Camelot (Northtut)
D North laJœ (Northeast)
D .Jovita (Southeast)
D Lalœland (SouIt1eait)
D Parkway (Southeast)
O1f1ar Areas:
D Incorporated Area
D Unincorpormd kea
Sourœ: KIna County GIS Center, December2DO1,
City of Federal Wav C~rehensÎYII Plan, 2000
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Map Date: December, 20M Please No1B:
CI\v of Federal W~, ThIs map II Intended for uae
33S80 FIr8t W", S, 18 a grap~caI npr8llentlt!on
FedaraiWay, WA 91003 ONLY. TheCityCi Federal
(258) 651-4000 Way malœc no warranty
WHN.d.federal-wlY.wa.us 1& to ita II:CUI'ICV.
A fedøral Way
Map IX
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City of
Federal Way-
Potential
Annexation Area
Existing
Roadway
Level of Service
Legend:
LOYal of Sorvice Intersections:
0 Me8bi CftyLOS
. Failed krtorseclion (Before Mitigation)
Fedll~ Way SInIt CIa5sifications:
N Pltne/pal Arterial
N "'nor Artertll
N Priltcipal Coleclor
N "'nor Coloctor
D Incorpor:rt.edArta
D Unlnçorpormd Area
Potential Annexlllon Area-
Commll1lly Love'S ubareu:
D Redondo Em (Redondo Eaø1)
D Star Lab (Nortl!east)
D Camalat (Northeast)
D Hortl! LakII (Northeast)
D Jovita (Southeast)
D Lalœland (SouihtIast)
D ParKway (South.1St)
Source: King County GIS Center, December 2001,
CIty of Fedenl WI¥ Cofl1)rehenBIV8 PIIII, 2000,
Jones & Stoke" 2002
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Map Dale: December, 20D3 PleaseNo1B:
~ of Fedel'll W~, Thla map 18 Intendad for U88
0 Am w~ s, 18 a ~~~caI npr888ntrt!on
Fedoral W~. A 91003 ONL. 0 CIty or Federal
(258) 661 000 W1t maJœc no wamnty
VNNI Jj .fedoral "NIY .wa.us 18 0 ita accuracy.
A Fëderal Way
MapX
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City of
Federal Way -
Potential
Annexation Area
Vear2020
Roadway
Level of Service
LIIgIll1d:
Level at Servico Intersections:
0 Me- CRy LOS
. Failed Intersection (Ikrforo Miligalioo)
Federal W æ¡ Strait CIKsífications:
N Prtnclpal Artertal
N "'nor Artella!
N Principal Cohcfor
N "'nor Coloctor
D Incorporatad Area
D Unlncorponl:8d Area
Potential AnntXa1Ion Area-
Comm 181!ty Laval S ubareu:
D Redondo Eat (Redondo East)
D Star LíIIœ (Nor1l1aast)
D Camelat (Northeast)
D Nor1l1 LaJg (Northeast)
D Jovita (Soutl1ea&t)
D LaIaIIand (SouihIIaãt)
D Parkwa1 (SOutltla&t)
SOUI'CI: King County GIS Center, DllClmber2001,
CIty at Faden! Wav Co~rel1en81V8 P18II, 2000,
.Ionos & Stokes, 2002
0.
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Map Dale: December, 2003 Please Nom:
~atFedenlW~. TIlle map Illmended for ute
0 Ant W~ S, 18 a ~~~caI npr988nt1t!on
Federal W~. A 91003 ONL. eCllydF8deral
(253) 661 000 W?t malœl no WIITIIrty
YNIN.ci .federal "NIY.wa.us 1& 0 ita ilŒuracy.
A fedaral Way
Map XI
~.aml
City of
Federal Way-
Potential
Annexation Area
20 Year
Proposed
I nte rsecti 0 n
Improvements
~UT:-~~
,---' ILt L.&gsnd:
;-1 ~ _.. . Propoeed Inllllrsection
Improvement
I
~ I Auburn
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Map Dale: December, 2003
Cltv of Federal WII(,
33S3O First Wæ( S,
Federal Wr¡. WA 91003
(258) 6&1-1000
w.wv .ci.fed&raI~.wa.u8
Pleue Nots:
This map Ie Intandlld for use
as a graphical rtpl'tsentallon
ONLY. The City of Federal
Wtt¡ makec no Wlrranty
as to itII accura1ò'.
å Fëderaa Way
Map XII
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City of
Federal Way -
Potential
Annexation Area
Fi re Department
Facilities
Legend:
. Fir8 Station
IV Fire Dletr1at Boundazy
Comm~ity LIVII
Subarea Boundary
D Incorpormd Area
D Unincorporated Aria
Sourœ: FedmI W¡y Fin! Department,
CIty of Federal Way GIS DMslon,
FobrLm)' 2002
Q.
<IS
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b
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5
Scale: ~
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~ N
MaP Dale: December, 2003 PlweNo1B:
:L of Federal W~, Tille map Illntned for uee
0 FIrcI w~;S, 18 a ~~~caI npr.errta1lon
Federal W~. A 91003 ONL. e CIty or Federal
(258) 6&1 000 W?; makBc no wamnty
VNNI sj. f8deral-YR/.wa.JJ8 18 0 ita aŒUraCV.
 fëdaral Way
Map XIII
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City of
Federal Way -
Potential
Annexation Area
Public School
Facilities
legend:
N School District Bollldary
. ElemlllTtary School
. Junior High School
D Sanlor High Scholll
Potlll1lial Annemion At8a.
Carom II1Ity Lavel S ubareaa:
D Radondo East (Redondo East)
D Star Lake (Nortf1eas1)
D Camelot (Northeast)
D Nortl1 LaIcII (Northeast)
D Jovita (Southllllij
D lalœland (Southøas1)
D Partwav (Southeut)
OtI1or ArNS:
D Incorpor;rted Arta
D Unlncorpol'lted Area
Sou roe: FodonI Way School DI5tr1Gt.
CIty at Federal Wa:¡ GIS DIVIsion, 2001
Scale: ~
0 1nMlle
~ N
Map Dale: December, 2003 Pl8a.8eNO1B:
~ at Federal WtII, TIll, map 18 Intended for tile
OAmW~s. 18 a~~caI npr8lerrta1lon
Federal W~t A 9&003 ONl. Cllyót Federal
(258) 651 000 W~ malœ8 no warranty
WNN .c;i,fedor1l ~.wa.u8 1& 0 ita m:uracv.
A~Way Map XIV
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Federal Way -
Potential
Annexation Area
I Water Service
legend:
. Booster Pump Station
~ Intertie Vault
W Tank
. Well (lake haven Utility District water source)
i-tii lakehaven Utility District Boundary
'.Y
,,""'¡" Water Service Area Boundary
N Water mains under 10"
N Water mains over 10"
Potential Annexation Area,
Community level Subareas:
D Redondo East (Redondo East)
D Star lake (Northeast)
D Camelot (Northeast)
D North lake (Northeast)
D Jovita (Southeast)
D lakeland (Southeast)
D Parkway (Southeast)
Other Areas:
D Incorporated Area
D Unincorporated Area
Source: Highline Water District, 2001,
lakehaven Utility District, 2002
a.
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Scale:
0 1/2 Mile
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Map Date: December, 2003
City of Federal Way,
33530 First Way S,
Federal Way, WA 98003
(253) 661-4000
www,ci.federal-way,wa,us
Please Note:
This map is intended for use
as a graphical representation
ONLY. The City of Federal
Way makes no warranty
as to its accuracy,
å Federal Way
Map XV
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City of
Federal Way-
Potential
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Wastewater
Service,
Septic Repairs
and Complaints
Legend:
. Septic Repairs (Complete/Pending)
@ Septic Complaints
.... Booster Pump Station
~~:;~'f lakehaven Utility District Boundary
;A'i Sewer Service Area Boundary
N Sewer mains under 10"
N Sewer mains over 10'
D Incorporated Area
D Unincorporated Area
Potential Annexation Area-
Community level Subareas:
D Redondo East (Redondo East)
D Star lake (Northeast)
D Camelot (Northeast)
D North lake (Northeast)
D Jovita (Southeast)
D lakeland (Southeast)
D Parkway (Southeast)
Source: Lakehaven Utility District, 2002
King County, 2002
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Map Date: December, 2003
City of Federal Way,
33530 First Way S,
Federal Way, WA 98003
(253) 661-4000
WWN.ci.federal-way.wa.us
Please Note:
This map is intended for use
as a graphical representation
ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
å Fè'derat Way
Map XVI
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EXHIBIT
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l.lo.
CHAPTER TWO - LAND USE
2.0
INTRODUCTION
Through the CityShape and Vision process, the community produced a general concept of
what the City should look and function like in the future. This general concept was used to
form the basis ofthe Land Use chapter. The Land Use chapter serves as the foundation of
the Federal Way Comprehensive Plan (FWCP) by providing a framework for Federal
Way's future development, and by setting forth policy direction for Federal Way's current
and future land uses.
Development of land, according to adopted policies and land use designations discussed in
this chapter, should result in an appropriate balance of services, employment, and housing.
The land use policies are supplemented by a Comprehensive Plan Designations Map (Map
II-], maps are located at the end of the chapter) that provides a visual illustration ofthe
proposed physical distribution and location of various land uses. This map allocates a
supply of land for such uses as services, employment, parks, open space, and housing to
meet future demand.
2.1
THE LAND USE CONCEPT
Federal Way's existing land use pattern (the physical location of uses) exists as a result of
development administered by King County until 1990 and subsequent development under
Federal Way's jurisdiction. As shown in Map II-2 (Generalized Existing Land Use) and
Figure II-] (Percent Gross Land Area By Existing Land Use, page 2), in September 2001,
42 percent of Federal Way's gross'land area was developed as single-family development,
11 percent as multiple-family development, and 12 percent for office, retail, and
manufacturing uses. Updates to the FWCP will not substantially modify this land use
pattern.
What will change is how various pieces of the land use pattern interact to achieve common
land use goals. Figure II-2 (page 3) depicts the land use concept. The land use concept
should result in the following: .
# Transformation of the retail core into an intensely developed City Center that is
the focus of civic activity which provides a sustainable balance of jobs and
housing;
#
Preservation and enhancement of existing residential neighborhoods;
Figure II-]
FWCP - Chapter Two. Land Use
Percent Gross Land Area by Existing Land Use, September
2001
Commercial
5%
Drainage
1%
Office
4%
Open Space
6%
Par1<s
6%
Note: Does not include right-or-way
#
Creation of a network of parks and open space areas;
#
Diversification of the City's employment base by creating distinct employment
areas;
#
Promotion of new retail and service employment opportunities around the 1-
5/South 320th and I-5/SR 18 interchanges.
#
Promotion of new opportunities for residential development near transit centers;
#
Provision of community and commercial services to residential communities;
#
To the extent practicable, preservation of environmentally sensitive areas;
#
Promotion of convenient residentially scaled shopping for residential
neighborhoods;
#
Promotion of housing in the City's commercial areas close to shopping and
employment;
#
Promotion of redevelopment of "strip commercial" areas along major arterials into
attractive, mixed-use corridors served by auto and transit;
#
Promotion of the development of well designed commercial and office
developments; and
#
Accommodation of adopted growth targets for households and jobs and Puget
Revised 2002
11-2
FWCP - Chapter Two, Land Use
Sound Regional Council (PSRC) growth projections within the proposed land use
plan area.
Revised 2002
11-3
FWCP - Chapter Two, Land Use
Figure 11-2
The Concept Plan Diagram
Concentrate new development in the
High_y 99/1-5 corridor.
Develop infl'3$tructure to support'
corridor devetopment.
Transfonn retail core into a new
mixed-use City Cenœr.
,
Preserve and enhance existing single-
family neighborhoôds.
Crea.t~ a netwOric of parks and open
'.("1 ""'"'~
Diversify employment base by
creating distinct employment areas.
'~,- rJJJ.
Create new inteMive residèntiaf .
communities supported by transit.
Provide community and com'mercial
services to residential comm~nities.
Revised 2002
11-4
FWCP - Chapter Two. Land Use
2.2
RELATIONSHIP TO OTHER LAND USE CHAPTERS
The land use concept set forth in this chapter is consistent with all FWCP chapters.
Internal consistency among the chapters of the FWCP translates into coordinated growth
and an efficient use of limited resources. Below is a brief discussion of how the Land Use
chapter relates to the other chapters of the FWCP.
Economic Development
Federal Way's economy is disproportionately divided. Based on PSRC's 2000 Covered
Estimates by jurisdiction~ retail and service industries compose more than 70 percent of
Federal Way's employment base. Covered estimates are jobs that are covered by
unemployment insurance. Dependence on retail trade stems primarily from the City's
evolution into a regional shopping destination for South King County and northeast Pierce
County. Increased regional competition from other retail areas, such as Tukwila and the
Auburn SuperMall, may impact the City's ability to capture future retail dollars. To
improve Federal Way's economic outlook, the economic development strategy is to
promote a more diverse economy. A diversified economy should achieve a better balance
between jobs and housing and supports the City's quality of life.
In conjunction with the Economic Development chapter, this Land Use chapter promotes
the following:
#
A City Center composed of mid-rise office buildings, mixed-use retail, and
housing.
#
CoIDfl'ffinity Business and Business Park development in the South 34Sth Street
area.
#
Community Business development in the South 34Sth Street area and around the 1-
5/South 320th and I-5/SR IS interchanges.
#
Continued development of West Campus.
#
Continued development of East Campus (Weyerhaeuser Corporate and Office
Park properties).
#
Redevelopment and development of the SR-99 corridor into an area of quality
commercial and mixed use development.
#
Continued use of design standards for non-singleJamily areas.
The land use map designations support development necessary to achieve the above (see
Revised 2002
11-5
FWCP-ChapterTwo, Land Use
the Comprehensive Plan Designations Map II-i). A complete discussion of economic
development is set forth in the Economic Development chapter.
Capital Facilities
Capital facilities provided by the City include: transportation and streets, parks and open
space, and surface water management.
Infrastructure and Urban Services
The amount and availability of urban services and infrastructure influences the location
and pace of future growth. The City is responsible for the construction and maintenance of
parks and recreation facilities, streets and transportation improvements, and surface water
facilities. Providing for future growth while maintaining existing improvements depends
upon the community's willingness to pay for the construction and financing of new
facilities and the maintenance of existing facilities. As outlined in the Capital Facilities
Plan, new infrastructure and services may be financed by voter-approved bonds, impact
fees, grants, designated capital taxes (real estate excise tax, fuel tax, utility tax), and
money from the City's general fund.
To capitalize on the City's available resources for urban services and infrastructure, this
Land Use chapter recognizes that concentrating growth is far more cost effective than
allowing continued urban sprawl. Concentrating growth also supports the enhancement of
future transit improvements.
Water Availability
Based on reports from the Lakehaven Utility District, the estimated available yield from the
underlying aquifers is 10.1 million gallons per day (MGD, 10-year average based on
average annual rainfall). The District controls which well to use, thus which aquifers are
being pumped from, based on a number of considerations including water levels and
rainfall. In order to reduce detrimental impacts to its groundwater supplies in the recent
past, the District has also augmented its groundwater supplies with wholesale water
purchased from the City of Tacoma through water system interties. In addition, the District
has entered into a long-term agreement with the City of Tacoma and other South King
County utilities to participate in the construction of Tacoma's Second Supply Project (a
second water diversion from the Green River), which will provide additional water supplies
to the region. As a result, the water levels in the aquifers have remained stable, and the
District's water supply capacity will increase to 14.7 MGD on an annual average basis
when Tacoma's Second Supply Project is completed in 2004. Concentrating growth, along
with conservation measures, should help to conserve water.
Water Quality
Maintaining a clean source of water is vital to the health and livability of the City.
Preserving water quality ensures a clean source of drinking water; and, continued health of
the City's streams and lakes. Maintaining water quality is also important for maintaining
the health of the aquifers that rely on surface water for recharge. Contamination of an
aquifer, by contaminated surface water, could lead to serious health concerns and/or
expensive treatment requirements. To address this concern and impacts of new
Revised 2002
11-6
FWCP - Chapter Two, Land Use
development, the City prepared a Surface Water Management Plan. The plan specifies
actions to ensure water quality including the development of regional detention! retention
facilities to control rate and quality of water runoff. Furthermore, development of a
wellhead protection program with the Lakehaven Utility District should provide guidelines
to avoid possible contamination. Policies contained in the Natural Environment chapter
provide direction for development near wellheads and in aquifer recharge areas. For a
complete discussion, please refer to the Capital Facilities chapter.
Parks & Open Space
One of the most important and valued elements of a high quality living and working
environment is a parks and open space system. Providing parks and open spaces
contributes to a reduction in environmental impacts such as noise and air pollution;
increases the value of adjacent properties; provides areas for passive and active recreation;
and helps preserve the natural beauty of the City. To maximize open space opportunities,
the City will coordinate with adjacent jurisdictions to create a region-wide open space
system as contemplated in the Countywide Planning Policies (CWPPs).
Map II-1 depicts areas where existing and/or proposed parks and open spaces are located.
This map is consistent with the City's Comprehensive Parks, Recreation, and Open Space
Plan. For a complete discussion, please refer to the Comprehensive Parks, Recreation, and
Open Space Plan.
Potential Annexation Area
To facilitate intergovernmental planning and policy coordination, the CWPPs require each
jurisdiction to, ". ..designate a potential annexation area" (P AA). The City's P AA lies
within unincorporated King County, generally east of the present City boundary. The
boundary has been defined through cooperative agreements between the City and adjacent
jurisdictions.
In Noyember 2001, the The City of Federal Way, in partnership with King County,
initiated the preparation of the Federal Way P f..A has prepared a Subarea Plan and
Annexation Feasibility Study for the P AA. The P AA Subarea Plan has been incorporated
as Chapter Eight, Potential Annexation. This 'Nark will produce two distinct blit
interrelated products: a The Subarea Plan for integration in the F\VCP, containing contains
policies and plans addressing the full range of land uses, capital facilities, public services,
and environmental issues relating to the P AA. and an The Annexation Feasibility Study~
which has been incorporated by reference, that will guide the City and inform the citizens
about the feasibility and phasing of any potential future annexations. A complete
discussion regarding the City's PAA can be found in the Potential Annexation Area
chapter.
Natural Environment
Federal Way's natural beauty is apparent. Lakes, streams, wetlands, and Puget Sound
Revised 2002
11-7
FWCP - Chapter Two, Land Use
provide a scenic backdrop as well as a source for active and passive recreation. The Land
Use chapter seeks to protect Federal Way's unique natural resources through policies that
support the preservation of these areas for future generations. For a complete discussion,
please refer to the Natural Environment chapter.
Housing
Housing is a basic need and a major factor in the quality of life for individuals and
families. An adequate supply of affordable, attractive, and functional housing is
fundamental to achieving a sense of community. The central issue related to land use is
supplying enough land to accommodate projected growth for a range of incomes and
households. Presently, housing is provided primarily in single-family subdivisions or
multiple-unit complexes.
This plan devises strategies to increase housing options and choices. The Land Use
chapter advocates changes to current development codes to increase flexibility in platting
land and encourage housing as part of mixed-use developments in commercial areas. The
latter provides an opportunity to locate housing closer to employment and shopping, and
to create affordable housing. A complete discussion of housing can be found in the
Housing chapter.
City Center
Map 11-1 depicts two City Center land use designations-the City Center Core and City
Center Frame. The creation of an identifiable and vibrant "downtown" is one of the
primary goals identified by the community during the CityShape planning process. The
policies of the Land Use and City Center chapters envision a concentrated City Center
comprised of mixed-use developments, pedestrian-oriented streetscapes, livable and
affordable housing, a network of public spaces and parks, and development of superior
design and quality. The City Center will provide a central gathering place for the
community where civic and cultural activities and events take place. A complete
discussion ofthe City Center can be found in the City Center Chapter.
2.3
POLICY BACKGROUND
State and county land use policies provide a statutory framework for the development of City
land use policies. It is important to briefly review state and county level policies to better
understand historical conditions that have shaped the goals and policies in this chapter.
Growth Management Act
The Growth Management Act (GMA) acknowledges that, "...a lack of common goals
Revised 2002
11-8
FWCP - Chapter Two, Land Use
expressing the public's interest in conservation and the wise use of our lands pose a threat
to the environment, sustainable economic development, and the health, safety and high
quality of life enjoyed by residents of this state" (RCW 36.70A.OIO). The GMA provides
a framework for content and adoption of local comprehensive plans. The GMA provides
13 goals to be, "... used exclusively for the purpose of guiding development of
comprehensive plans and development regulations." A number of the GMA goals pertain
to land use. They are as follows:
Urban Growth - Encourage development in urban areas where adequate public facilities and
services exist or can be provided in an efficient manner.
Reduce Sprawl - Reduce the inappropriate conversion of undeveloped land into sprawling,
low-density development.
Housing - Encourage the availability of affordable housing to all economic segments of the
population of the state, promote a variety of residential densities and housing types, and
encourage preservation of existing housing stock.
Open Space and Recreation - Encourage the retention of open space and development of
recreational opportunities, conserve fish and wildlife habitat, increase access to natural
resource lands and water, and develop parks.
Environment - Protect the environment and enhance the state's high quality of life, including
air and water quality and the availability of water.
Public Facilities and Services - Ensure that those public facilities and services necessary to
support development shall be adequate to serve the development at the time the
development is available for occupancy and use without decreasing current service levels
below locally established minimum standards.
Historic Preservation - Identify and encourage the preservation of lands, sites, and structures
that have historical or archaeological significance.
Property Rights - Private property shall not be taken for public use without just
compensation having been made. The property rights of landowners shall be protected
from arbitrary and discriminatory actions pursuant to state and federal law.
Regional Policies
Vision 2020 and the CWPPs, both required by GMA, provide a regional framework to
achieve the goals of the GMA. Vision 2020 is the long-range growth management,
economic, and transportation strategy for the central Puget Sound region encompassing
King, Kitsap, Pierce, and Snohomish counties. It provides broad direction agreed to by
member jurisdictions. Most notable is Vision 2020's direction for regional transportation.
An important connection between Vision 2020 policies and the City's land use policies is
development of an urban center, referred to as the City Center Core in the FWCP. Urban
Revised 2002
11-9
FWCP - Chapter Two, Land Use
centers are to accommodate a significant share of new growth, services, and facilities. The
idea is to, "... build an environment in the urban centers that will attract residents and
businesses" by concentrating residences, shopping, and employment in close proximity to
each other and regional transit.
The CWPPs are a further refinement of policy direction contained in the GMA and Vision
2020 and are a result of a collaborative process between King County and the suburban
cities within. Policies contained herein have been prepared to implement the CWPPs as
they apply to the City. CWPPs provide a framework for both the county and its respective
cities. Adherence to these policies ensures that plans within the county are consistent with
one another. These policies address such issues as the designation of urban growth areas,
land use, affordable housing, provision of urban services for future development,
transportation, and contiguous and orderly development. CWPPs have the most direct
impact on land use policies in this chapter. By undertaking the following actions, the Land
Use chapter is consistent with CWPP's direction:
#
Promoting phased development for efficient use of land and urban services;
#
Creating a City Center (urban center) as an area of concentrated employment and
housing, served by high capacity transit, public facilities, parks, and open space;
#
Limiting growth outside the City Center to areas that are already urbanized;
#
Encouraging in-fill development;
#
Expanding business and office park development to include limited commercial; and
#
Establishing incentives to achieve desired goals.
2.4
PROJECTED GROWTH & DEVELOPMENT CAPACITY
Projected Growth
According to the 2000 U.S. Census, 83,259 people called Federal Way home. As of April
2002, the population had grown to 83,850 (based on the Washington State Office of
Financial Management [OFM] population estimates). Most of the growth to date occurred
during the decades of the 1960s and 1980s, during which time the City's population
doubled. Federal Way is now the eighth largest city in the state and the fourth largest in
King County.
Future population and employment growth has been forecasted by OFM (Figure II-3, page
10). This future population and employment growth will be distributed between jurisdictions
and unincorporated urban King County through a methodology that has been prepared by
Revised 2002
11-10
FWCP - Chapter Two, Land Use
the King County Planning Directors and approved by the Growth Management Planning
Population Projection
King County
2.5
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1990
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Council (GMPC). This methodology is more fully discussed in the next section.
Figure II-3
Source: Office or Financial Management, 2002 Update to Growth Management Act Medium Review Population Projections
Development Capacity
The purpose of Buildable Lands is to measure capacity to accommodate projected growth
and to evaluate the effectiveness oflocal plans and regulations. King County and five
other cities must report to the state by September 1, 2002, and every five years thereafter,
on their capacity to accommodate growth during the 20-year Growth Management period.
In order to accomplish this, the Buildable Lands program requires annual data collection
to determine the amount and density of new development, an inventory of the land supply
suitable for development, and an assessment of each jurisdiction and the entire Urban
Growth Area (UGA) to accommodate expected growth.
In order to determine whether Federal Way has the capacity to accommodate future
growth, City staff prepared a land inventory of buildable lands. Buildable lands are those
parcels that are either vacant or redevelopable and are free of constraints to development,
such as being environmentally sensitive. The capacity for future development in terms of
number of new housing units and square footage of new commercial square footage is
then derived based on densities achieved by development over the previous five year
period, 1996 through 2000.
King County Assessor's records were used to identify vacant and redevelopable land. In
general, parcels were divided into three categories: fully-developed and parcels that were
excluded from the capacity analysis; parcels that could be redeveloped; and parcels that
Revised 2002
11-11
FWCP - Chapter Two, Land Use
were vacant. With the exception of surplus lands owned by public agencies, such as the
City, county, state, and utility, school, and fire districts-parcels owned by public agencies
were excluded from the capacity analysis, as they are unlikely to be developed for private
use. Common areas and open space in subdivisions were also excluded from the
inventory. Commercial and industrial zoned parcels categorized as redevelopable are those
where the ratio of improvements to land value is less than 50 percent. In residential zones,
redevelopable parcels are those parcels which can be subdivided, or where the density can
otherwise be increased, for example, redeveloped from single-family to multiple-family.
The City has mapped environmental constraints (such as wetlands, streams, and
geologically hazardous areas) and their respective setbacks, and therefore, critical areas
were taken out at a parcel level. The remaining lands were then summarized by zoning
designation. A series of discounts were then further applied. These discounts included
right-of-way and public purpose factors.
In addition to the reductions outlined above, a market discount factor was applied on a
case-by-case basis depending on local conditions. Application of the market factor
(discount) acknowledges that not all potentially developable parcels will be available for
development and that some parcels may not be financially feasible to develop or
redevelop.
This year, the methodology for capacity analysis was modified to conform to the Buildable
Lands requirements. In the past, capacity analysis was based on the theoretical maximum
development allowed by zoning. In the current analysis, densities achieved over the last
five years were used. For residential areas, the average number of units per acre achieved
was used, and for commercial areas, average attained floor area ratios (FAR) were used.
Densities and F ARs were then divided into the available land totals for residential and
commercial land respectively, to estimate development potential. For redevelopable areas,
the current existing building area or number of units were subtracted in order to determine
additional capacity. Lastly, the number of units or the building square footage of pending
projects was added to the subtotals, for a final estimate of capacity. Based on this
methodology, Federal Way has the capacity for 5,538 new residential units and 16,194
new jobs.
2001 - 2022 Household and Job Targets
During their September 25,2002 meeting, the GMPC adopted a motion to add targets for
new households and jobs for the period 2001 - 2022. These targets were based on a
methodology developed over a two-year period by the King County Planning Directors.
This methodology is summarized in the following section.
King County was divided into four subareas. These four subareas are SeaShore, East King
County, South King County, and Rural Cities. The City of Federal Way is part of the
South King County Subarea that includes Renton, Burien, SeaTac, Tukwila,_Normandy
Park, Des Moines, Kent, Covington, Maple Valley, Black Diamond, Federal Way,
Auburn, Milton, Pacific, Algona, West Hill PAA, East Renton PAA, Fairwoodl Soos
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FWCP - Chapter Two, Land Use
Creek P AA, and Southwest King County P AAs.
The PSRC's 2000 to 2020 small area employment forecasts were used as a basis for
allocating population forecasts to these subareas by applying the employment percentages
to the OFM countywide population forecast so that the proportion of housing to jobs is
balanced at a certain ratio.
The household size of the various subareas were then determined based on the 2000
census, and adjusted downwards for 2022 based on the assumption that household sizes
would decrease in the future. The household size for each subarea was used to determine
how many new housing units would be needed to accommodate new population in 2022.
Next, the remainder of the current household target by subarea at the end of2000 was
compared to the new households needed to accommodate new population. If South King
County were to achieve their remaining household 2012 target, this would actually exceed
the number of households needed to accommodate the 2000 to 2022 projected new
households for the subarea (Table II-I). As a result, the methodology proposed that South
King County receive no new targets for the 2012 - 2022 target extension period.
However, because South King County's remaining target of 50,430 households exceeded
the 42,355 new households needed to accommodate 2001 - 2022 growth, the methodology
proposed to credit the sub-regions the difference, thus reducing remaining targets. Table II-2
(page 13) shows the 2001 - 2022 household targets by jurisdiction in the South King
County Subarea with the adjustment made for the credit.
As in the case of the household target extensions, the starting point for employment
allocations was forecast from estimates derived for each city by the PSRC 2000 to 2020
small area employment forecasts. Future employment was then allocated to jurisdictions
based on location of current employment, as well as location of commercial and industrial
zones. The adopted 2001 - 2022 job targets are shown in Table II-2.
Table II-]
Household Targets by King County Urban Subarea
Subarea 1992-2012 Target Remainder New Household Additional Total Households
20 Year Achieved of Current Targets to Households to Accommodate
Target 1993-2000 Target at Accommodate Needed Beyond 30- Year Population
End of 2000 New 2000-2022 Current Target (1992-2022)
Population
SeaShore 57,905 16,375 41,530 56,369 14,839 72,744
East King 48,348 25,665 22,683 47,645 24,962 73,310
County
South King 73,387 22,957 50,430 42,355 N/A 65,312
County
Rural Cities 8,828 3,265 5,563 2,255 Na 5,520
Surplus (11,585) N/A
Total 188,468 68,262 120,206 148,624 28,418 216,886
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FWCP - Chapter Two, Land Use
S
hID
c
S b
Table II-2
H h Id
dJ bT
2001 2022
out n2 ounty u area ouse 0 an 0 ar2ets, -
Jurisdiction Number of Households Number of Jobs
Algona 298 108
Auburn 5,928 6,079
Black Diamond 1.099 2,525
Burien 1,552 1,712
Covington 1,173 900
Des Moines 1,576 1,695
Federal Way 6,188 7,481
Kent 4,284 11,500
Milton 50 1,054
Maple Valley 300 804
Normandy Park 100 67
Pacific 996 108
Renton 6,198 27,597
SeaTac 4,478 9,288
Tukwila 3,200 16,000
Unincorporated King County 4,935 2,582
Total 42,355 89,500
Development Capacity and Targets
As discussed in the previous sections, in 2001 when the data for the Buildable Lands
Study was prepared, the City of Federal Way had a capacity for 5,538 new residential
housing units and 16,194 new jobs. In comparison, the adopted 2001 - 2022 targets are
6,188 new residential units and 7,481 new jobs. As a result, at that time the City had an
8,713 surplus capacity for jobs and a deficit capacity of 650 residential units in
relationship to its targets. Based on residential units in the pipeline today, the City now has
a deficit capacity of 41 0 residential units.
In order to increase residential capacity to meet the adopted targets, City staff will propose
that a definition of density for conventional subdivisions be added to Federal Way City
Code (FWCC) Chapter 20, "Subdivisions." The definition of density will be based on
gross acreage, which should result in relatively more lots than presently allowed, based on
the requirement for minimum lot sizes. In addition, City staff will continue to monitor the
City's progress towards reaching its targets, and will propose additional changes to the
City Council, if warranted.
2.5
URBAN DESIGN AND FORM
In addition to guiding development, the Land Use chapter also guides the quality and
character of the City's future development pattern through goals and policies related to the
form, function, and appearance of the built environment. These goals and policies, related
to quality development, serve and will continue to serve as a basis from which to develop
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FWCP - Chapter Two, Land Use
appropriate implementation measures. Design guidelines, adopted in 1996 and 1999 are
used as an integral component of the development review process. Design guidelines
address location and type of pedestrian amenities and public spaces; pedestrian and
vehicle circulation; building setbacks, orientation, form, and scale; landscaping; and
mixed-use design.
Goal
LUGI
Improve the appearance and function of the built environment.
Policies
LUPI
Use residential design performance standards to maintain neighborhood
character and ensure compatibility with surrounding uses.
LUP2
Use design and performance standards to achieve a greater range of housing
options in multiple-family designations.
LUP3
Use design and performance standards to create attractive and desirable
commercial and office developments.
2.6
DEVELOPMENT REVIEW PROCESS
The Land Use chapter provides the policy foundation for implementing zoning and
development regulations. In developing policy concerning future land use regulations, or
revisions to existing regulations, every effort has been made to instill certainty and
efficiency in the development process. State legislation has focused on developing
streamlined and timely permit processing. The City has conducted Developer Forums to
solicit input regarding the City's permit processing system. Comments received during the
Forums provided invaluable information to evaluate the City's permit system. In 2002, the
City formed a stakeholders group that reviewed the City's permitting process and made
recommendations on how to improve or modify the regulations and processes. Through
the following policies, the City continues to strive to provide an efficient and timely
review system.
Goal
LUG2
Develop an efficient and timely development review process based on a publici
private partnership.
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FWCP - Chapter Two, Land Use
2.7
Policies
LUP4
LUP5
LUP6
LUP7
LUP8
Maximize efficiency of the development review process.
Assist developers with proposals by continuing to offer preapplication meetings
in order to produce projects that will be reviewed efficiently.
Conduct regular reviews of development regulations to determine how to
improve upon the permit review process.
Integrate and coordinate construction of public infrastructure with private
development to minimize costs wherever possible.
Increase efficiency in the permit process by responding to state legislation
concerning development review processes.
CITYWIDE POLICIES
Citywide policies apply to all FWCP designations. These general policies are intended to
maintain the quality of the living and working environment and ensure that the interests,
economy, and welfare of the community are considered.
Policies
LUP9
LUPI0
LUPll
LUP12
LUP13
Designate and zone land to provide for Federal Way's share of regionally
adopted demand forecasts for residential, commercial, and industrial uses for
the next 20 years.
Support a diverse community comprised of neighborhoods that provide a range
of housing options; a vibrant City Center; well designed and functioning
commercial areas; and distinctive neighborhood retail areas.
Support the continuation of a strong residential community.
Evaluate household and employment forecasts on a periodic basis to ensure that
land use policies based on previous assumptions are current.
Distribute park and recreational opportunities equitably throughout the City.
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2.8
LAND USE DESIGNATIONS
The land use designations in the FWCP recognize the relationships between broad
patterns of land uses. The designations set forth locational criteria for each specific class
of uses consistent with the long-term objectives of the FWCP. These designations provide
the purpose and intent for specific zoning districts. The location of comprehensive plan
land use designations are shown on the Comprehensive Plan Designations Map (Map II-
i).
Residential Areas
Single Family
Federal Way is known for its quality single-family neighborhoods. This section contains
goals and policies that will shape future development and protect or improve the character
and livability of established neighborhoods.
The demand for and development of single-family housing is expected to continue for the
foreseeable future. Single-family development will occur as in-fill development of vacant
lots scattered throughout existing neighborhoods and as subdivisions on vacant tracts of
land. To address future housing needs, the Land Use chapter encourages new techniques
for developing single-family subdivisions. Such techniques include clustering, planned
unit developments, lot size averaging, zero lot line development,ßccessory dwelling units
and special needs housing.
Single Family Low Density
The Single Family Low Density designation retains larger urban lots in order to avoid
development pressure on or near environmentally sensitive areas and to retain areas that
have unique area-wide circumstance. There are two notable locations: Spring Valley,
located in the southern portion of the City; and along Puget Sound near Dumas Bay in the
vicinity of Camp Kilworth and the Palisades Retreat property.
The Single Family Low Density designation continues the historic application of low
density zoning in areas that lack urban services and infrastructure. Moreover, the
application of large urban lot zoning is appropriate to avoid excessive development
pressures on or near environmentally sensitive areas as well as to serve as a buffer between
adjacent land use designations of higher densities. Upon provision of urban services, such
as water and sewer, an increase in density may be warranted.
The Single Family Low Density designation in the Spring Valley and Dumas Bay areas
have numerous environmentally sensitive features including, but not limited to: wetlands,
flooding potential, geologically hazardous areas, streams (including salmonid habitat), and
wildlife habitat, and groundwater infiltration potential. Due to the sensitive nature of this
area, the Draft Hylebos Creek and Lower Puget Sound Plan recommends zoning of one
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lot per five acres.
Single Family Medium Density
The Single Family Medium Density designation creates urban lots with a density range of
one to three dwelling units per acre to avoid developing on or near environmentally
sensitive areas. The Single Family Medium Density designation can be found along the
Puget Sound shoreline and south of South 356th Street, both east and west of SR 99. Lot
sizes of 35,000 and 15,000 square feet provide for a transition in density between land
designated as Single Family High Density Residential and Single Family Low Density
Residential. Some areas designated as Single Family Medium Density Residential still
lack urban services and infrastructure. Upon provision of urban services, such as water
and sewer, an increase in density may be warranted.
The relatively large lot sizes along the Puget Sound shoreline areas are appropriate due to
geological features including steep slopes and landslide hazards commonly associated with
marine bluffs. As with the Single Family Low designation, the Single Family Medium
designations south of South 356th are located in the West Branch Hylebos Creek Sub-
Basin. As noted in the Single Family Low Density description, this sub-basin contains a
number of environmentally sensitive areas.
Single Family High Density
A majority ofthe single-family residential land in the City is designated as Single Family
High Density. Urban densities of approximately 4.5, 6.0, and 8.7 dwelling units per acre
in the RS 9.6, RS 7.2, and RS 5.0 zoning districts respectively, provide for a range of
housing densities. Single Family High Density residential designations are located within
close and convenient proximity to neighborhood business centers, areas of existing or
future employment, transit, and existing urban infrastructure and services. Future Single
Family High Density development should have good access to collector and arterial
streets.
Goal
LUG3
Preserve and protect Federal Way's single-family neighborhoods.
LUG3.1 Provide wide range of housing densities and types in the single-family
designated areas.
Policies
LUP14
Maintain and protect the character of existing and future single-family
neighborhoods through strict enforcement of the City's land use regulations.
LUP15
Protect residential areas from impacts of adjacent non-residential uses.
LUP16
Revise existing land use regulations to provide for innovation and flexibility in
the design of new single-family developments and in-fill.
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LUP17
Encourage the development of transportation routes and facilities to serve
single-family neighborhoods. Special attention should be given to pedestrian
circulation.
LUP18
Encourage the development of parks and the dedication of open space in and
adjacent to residential areas to preserve the natural setting of Federal Way.
LUP19
Consider special development techniques (e.g., zero lot lines, lot size averaging,
and planned unit developments) in single-family areas, provided they result in
residential development consistent with the quality and character of existing
neighborhoods.
L UP20
Preserve site characteristics that enhance residential development (trees, water-
courses, vistas, and similar features) using site planning techniques such as
clustering, planned unit developments, and lot size averaging.
Multiple Family
The multiple-family residential land use designation represents an opportunity to provide a
range of housing types to accommodate anticipated residential growth. The increase in
population, decline in average family size, and increased cost of single-family homes have
created heavy demand for new housing types. The Land Use chapter encourages the
development of housing types, such as duplexes, townhouses, and condominiums in
existing multiple-family areas and within mixed-use development in commercial areas.
During the 1980s, the City's landscape changed, as a number oflarge apartment
complexes were constructed. These apartments, often built without regard to scale or
amenities, created a general dissatisfaction with the appearance of multiple-family
development. In 1999, the City amended its Community Design Guidelines to address the
appearance and scale of multiple family dwelling units. Incentives for creating desired
development such as duplexes and townhouses should be considered.
Multiple Family
Multiple Family uses in large part are in areas currently zoned for multiple-family
development. Designations of 3600, 2400, and 1800 square feet per dwelling unit,
corresponding to densities of 12, 18, and 24 dwelling units per acre respectively, will
continue to be used. Opportunities for new development will occur through redevelopment
and build-out of remaining parcels. Residential design guidelines that address design and
appearance of multiple-family developments were adopted in 1999. The primary goal of
residential design guidelines is to develop multiple-family housing that is reflective of the
community's character and appearance.
Goal
LUG4
Provide a wide range of housing types and densities commensurate with the
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FWCP - Chapter Two, Land Use
Policies
LUP21
L UP22
LUP23
LUP24
LUP25
community's needs and preferences.
Allow and encourage a variety of multiple-family housing types in designated
commercial areas, especially in the City Center Core and City Center Frame
areas.
Use design and performance standards for multiple-family developments to
achieve integration in commercial developments. Performance standards should
focus on scale, appearance, and compatibility.
Support multiple-family development with transportation and capital facilities
improvements.
Multiple-family residential development should be designed to provide privacy
and common open space. Variations in facades and rooflines should be used to
add character and interest to multiple-family developments.
Encourage the establishment of street patterns and amenities that encourage
walking, bicycling, and transit use.
Commercial Designations
Existing commercial areas are auto-oriented and characterized by one-story low intensity
development. In the future, these areas will become more intensively developed and
pedestrian oriented, and in some designations, accommodate housing. Transforming
existing areas into places where people want to live, shop, and work requires changes.
Commercial areas should contain street furniture, trees, pedestrian shelters, well marked
crosswalks, and buildings oriented to and along the street to provide interest and allow
easy pedestrian access.
General Policies for Commercial, Office, and Business Park
The following general policies apply to all commercial, office, and business park
designations. In some instances, specific goals and policies may follow a specific land use
designation
Policies
LUP26
LUP27
LUP28
Provide employment and business opportunities by allocating adequate land for
commercial, office, and business park development.
Encourage development of regional uses in the City Center.
Provide for a mix of commercial and residential uses in commercial areas.
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FWCP - Chapter Two, Land Use
LUP29
L UP30
LUP31
LUP32
LUP33
LUP34
Use Community Design Guidelines to promote common open space, public art,
and plazas in commercial and office developments.
Ensure compatibility between mixed-use developments and residential areas by
regulating height, scale, setbacks, and buffers.
Use Community Design Guidelines to encourage quality design and pedestrian
and vehicle circulation in office, commercial, and business park developments.
Use Community Design Guidelines to encourage commercial development to
locate along street edge (where deemed appropriate) to provide pedestrian street
access. Provide pedestrian access between developments and to transit stations.
Identify and designate streets where on-street parking can be safely provided
without unduly slowing traffic flow or jeopardizing traffic safety.
Provide developer incentives for inclusion of housing in commercial projects.
Business Park
The Business Park designation encompasses the uses found in areas where large
undeveloped and underdeveloped parcels, having convenient access to Interstate 5 and
Highway 18, provide a natural location for business park development. The Business Park
designation is intended to capture the demand for higher quality, mixed-use business parks
which permit a mixture of light manufacturing, warehouse/distribution, office, and limited
retail uses to serve the immediate needs in the area. In the past few years, the City has
observed a marked increase in requests to change parcels from the Business Park
designation to another comprehensive plan designation. As a result, the City should
explore potential changes to the allowable mix of uses in the Business Park zone in order
to meet changing market conditions.
Goal
LUGS
Policies
LUP3S
LUP36
LUP37
Develop a quality business park area that supports surrounding commercial
areas.
Encourage quality, mixed-use development for office, manufacturing, and
distribution centers.
Develop business parks that fit into their surroundings by grouping similar
industries in order to reduce or eliminate land use conflicts, allow sharing of
public facilities and services, and improve traffic flow and safety.
Limit retail uses to those that serve the needs of people employed in the area.
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Commercial
City Center Core
The intent of establishing the City Center Core is to create a higher density, mixed-use
designation where office, retail, government uses, and residential uses are concentrated.
Other uses such as cultural/civic facilities, community services, and housing will be highly
encouraged.
City Center Frame
The City Center Frame designation will have a look and feel similar to the Core and will
provide a zone of less dense, mixed-use development physically surrounding a portion of
the City Center Core. Together, they are meant to complement each other to create a
"downtown" area. A more detailed description, along with goals and policies regarding the
City Center Core and Frame, can be found in the City Center chapter.
Community Business
The Community Business designation presently encompasses two major retail areas of the
City. It covers the "strip" retail areas along SR-99 and the large "bulk" retail area found
near the South 348th Street area, approximately between SR-99 and 1-5. Community
Business allows a large range of uses and is the City's largest retail designation in terms of
area. The Community Business designation generally runs along both sides of SR-99 from
South 272nd to South 348th. A wide range of development types, appearance, ages,
function, and scale can be found along SR-99. Older, single-story developments provide
excellent opportunities for redevelopment. It may be appropriate to extend the Community
Business designation to areas adjacent to the I-5/South 320th and I-5/SR 18 interchanges
as part of the initial adoption of the PAA Subarea Plan or as part ofthe annual
comprehensive plan amendment process.
Due in part to convenient access and available land, the South 348th Street area has
become a preferred location for large bulk retailers such as Eagle Hardware, Home Depot,
and Costco. Due to the size of these facilities, the challenge will be to develop these uses
into well functioning, aesthetically pleasing retail environments.
To create retail areas that are aesthetically and functionally attractive, revised development
standards, applied through Community Business zoning and Community Design
Guidelines, address design quality, mixed-use, and the integration of auto, pedestrian, and
transit circulation. Site design, modulation, and setback requirements are also addressed.
Through regulations in the Community Business land use chart, the size and scale of
hotels, motels, and office uses have been limited in scale so as not to compete with the
City Center.
Goal
LUG6
Transform Community Business areas into vital, attractive, mixed-use areas
that appeal to pedestrians and motorists and enhance the community's image.
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FWCP - Chapter Two, Land Use
Policies
LUP38
LUP39
Encourage transformation of Pacific Highway (SR-99) Community Business
corridor into a quality mixed-use retail area. Retail development along the
corridor, exclusive of the City Center, should be designed to integrate auto,
pedestrian, and transit circulation. Integration of public amenities and open
space into retail and office development should also be encouraged.
Encourage auto-oriented large bulk retailers to locate in the South 348th Street
Community Business area.
Neighborhood Business
There are a dozen various sized nodes of Neighborhood Business located throughout the
City. These nodes are areas that have historically provided retail and/or services to
adjacent residential areas. The FWCP recognizes the importance of firmly fixed
boundaries to prevent commercial intrusion into adjacent neighborhoods.
Neighborhood Business areas are intended to provide convenient goods (e.g., groceries
and hardware) and services (e.g., dry cleaners, dentist, bank) at a pedestrian and
neighborhood scale close to adjacent residential uses. Developments combining residential
and commercial uses provide a convenient living environment within these nodes. In the
future, attention should be given to design features that enhance the appearance or
function of these areas. Improvements may include sidewalks, open space and street trees,
and parking either on street or oriented away from the street edge. The function of
neighborhood business areas can also be enhanced by safe pedestrian, bicycle, and transit
connections to surrounding neighborhoods.
The need to address expansion or intensification may occur in the future depending on
population growth. Future neighborhood business locations should be carefully chosen
and sized to meet the needs of adjacent residential areas.
Goal
LUG7
Policies
LUP40
LUP41
LUP42
Provide neighborhood and community scale retail centers for the City's
neighborhoods.
Integrate retail developments into surrounding neighborhoods through attention
to quality design and function.
Encourage pedestrian and bicycle access to neighborhood shopping and
semces.
Encourage neighborhood retail and personal services to locate at appropriate
locations where local economic demand and design solutions demonstrate
compatibility with the neighborhood.
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FWCP - Chapter Two, Land Use
LUP43
Retail and personal services should be encouraged to group together within
planned centers to allow for ease of pedestrian movement.
L UP44
Neighborhood Business centers should consist of neighborhood scale retail and
personal services.
LUP45
Encourage mixed residential and commercial development in Neighborhood
Business designations where compatibility with nearby uses can be demonstrated.
LUP46
Neighborhood Business areas should be served by transit.
LUP47
The City shall limit new commercial development to existing commercial areas
to protect residential areas.
Commercial Recreation
The Commercial Recreation designation acknowledges the unique recreational
opportunity associated with the Enchanted Park property. Enchanted Park is an indoor/
outdoor amusement facility most noted for its water park. A pre annexation concomitant
development agreement has established the comprehensive plan designation and zoning
(Office Park-4) particular to Enchanted Park.
Office
Federal Way is well known for its quality office parks. Developments within the East and
West Campus areas embody good design and are representative of desired future office
park development. Office park development in West Campus is complemented by the
Weyerhaeuser Corporate Headquarters in East Campus. Together, office and corporate
park development will provide new job opportunities within the community.
Professional Office
The Professional Office designation is intended to allow for well-designed small-scale
office development compatible to adjacent residential neighborhoods.
Office Park
The Office Park designation emphasizes high quality office development that allows for a
mix of office and compatible manufacturing type activities. This classification also permits
a limited amount of retail support services, along with the current mix of office and light
manufacturing uses.
Corporate Park
The Corporate Park designation applies to the Weyerhaeuser Corporate Campus, generally
located east of Interstate Highway 5. The property is a unique site, both in terms of its
development capacity and natural features.
Office Park designations with OP-l, 2, and 3 zoning and some residential designations
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FWCP - Chapter Two, Land Use
north of Highway 18 surround the Corporate Park designation. The Corporate_Park zone is
currently being developed as corporate headquarters, offices, and ancillary uses. These
types of developments are characterized by large contiguous sites containing landscaping, .
open space, and buildings of superior quality. Development standards and conditions for
the Corporate Park designation is unique to Weyerhaeuser's property and are outlined in a
preannexation concomitant development agreement between the City and Weyerhaeuser
Corporation.
Goal
LUG8
Create office and corporate park development that is known regionally for its
design and function.
Policy
LUP48
Continue to encourage quality office development in the East Campus
Corporate Park designation.
2.8.5 SHORELINE MASTER PROGRAM
Purpose
The Shoreline Management Act (SMA) identifies seven land and water use elements that,
if appropriate to the community, are to be dealt with in the development of area-wide
shoreline goals. They include: shoreline use, economic development, public access,
conservation, recreation, historical/cultural, and circulation. Master programs are also
encouraged to include any other elements which, because of present uses or future needs,
are deemed appropriate to effectuate the policy of the SMA.
Residential land use of shorelines of the state within Federal Way makes up the largest
share of the developed shorelines in the City. Much of the undeveloped shoreline is in
private ownership, subdivided into small lots and presently zoned to allow for residential
use. Because of present and future needs of residential shoreline use, goals and policies
have been formulated as part of a residential element to guide and plan for that
development.
The following comprehensive set of shoreline goals provide the foundation and framework
on which the balance of the master program has been based. These goals and policies are
reflective of the level of achievement believed to be intrinsically desirable for all shoreline
uses, needs, and developments, and establish a program policy commensurate with the
intent and objectives of the SMA. The policies contained herein should be enforced
through the applicable chapters of the FWCC.
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FWCP - Chapter Two, Land Use
Shoreline Use Element
An element which deals with the distribution, location, and extent of: 1) the use of
shorelines and adjacent areas for housing, transportation, office, public buildings and
utilities, education, and natural resources; 2) the use of the water for aquaculture and
recreation; and 3) the use of the water, shoreline, and uplands for other categories ofland
and water uses and activities not specified in this master program.
Goal
LUG9
Policies
LUP49
LUP50
LUP51
LUP52
LUP53
LUP54
LUP55
LUP56
Preserve or develop shorelines, adjacent uplands, and adjacent water areas in
a manner that assures a balance of shoreline uses with minimal adverse effect
on the quality of life, water, and environment.
Shoreline land and water areas particularly suited for specific and appropriate
uses should be designated and reserved for such uses.
Shoreline land and water uses should satisfy the economic, social, and physical
needs of the regional population, but should not exceed the physical carrying
capacity of the shoreline areas.
Where appropriate, land and water uses should be located to restore or enhance
the land and water environments.
Like or compatible shoreline uses should be clustered or distributed in a rational
manner, rather than allowed to develop haphazardly.
Multiple uses of shoreline should be encouraged where location and integration
of compatible uses or activities are feasible.
Unique and fragile areas of the shoreline should be protected from uses or
activities that will have an adverse effect on the land or water environment.
Non-residential uses or activities that are not shoreline dependent should be
encouraged to locate or relocate away from the shoreline.
Federal Way shall consider the goals, objectives, and policies within the
shoreline master program in all land use management actions regarding the use
or development of adjacent uplands or the water areas, adjacent uplands and
associated wetlands or streams within its jurisdiction where such use or
development will have an adverse effect on designated shorelines.
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Public Access Element
An element making provision for public access to publicly-owned shorelines and assessing
the need for providing public access to shoreline areas.
Goal
LUGIO Increase public access to shoreline areas provided that private rights, public
safety, and the natural shoreline character are not adversely affected.
Policies
LUP57
Development of public access should respect and protect the enjoyment of
private rights on shoreline property.
a. Shoreline access areas should be planned to include ancillary facilities such
as parking and sanitation when appropriate.
b. Shoreline access and ancillary facilities should be designed and developed
to provide adequate protection for adjacent private properties.
LUP58
Public access should be maintained and regulated.
a. Public access should be policed and improved consistent with intensity of
use.
b. The provision to restrict access as to nature, time, number of people, and
area may be appropriate for public pedestrian easements and other public
access areas where there are spawning grounds, fragile aquatic life habitats,
or potential hazard for pedestrian safety.
c. Facilities in public shoreline access areas should be properly maintained
and operated.
LUP59
Design of access should provide for the public health, safety, and enjoyment.
a. Appropriate signs should be used to designate publicly owned shorelines.
b. Within the shoreline environment, pedestrian and non-motorized access
should be encouraged.
c. Public access to and along the water's edge should be available in publicly
owned shorelines that are tolerant of human activity.
LUP60
Priority for access acquisition should consider resource desirability, availability,
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FWCP - Chapter Two, Land Use
LUP61
LUP62
LUP63
and proximity of population.
a.
A shoreline element in the parks acquisition and development program
should be encouraged so that future shoreline access is acquired and
developed by established criteria and standards as part of an overall master
plan.
Public access should be provided in new shoreline developments.
a. There should be incentives to encourage private property owners to provide
shoreline access.
b. Public pedestrian easements should be provided in future land use
authorizations, and in the case of Federal Way projects along lakes, streams,
ponds, and marine lands, whenever shoreline features are appropriate for
public use. Shorelines of the City that include, but are not limited to, any of
the following conditions should be considered for pedestrian easements:
1. Areas of significant, historical, geological, and/or biological
circumstances.
2. Areas presently being legally used, or historically having been legally
used, by the public along the shoreline for access.
3. Where public funds have been expended on or related to the water
body.
Shorelines of the City should be available to all people for passive use and
enjoyment.
a. Viewpoints, lookouts, and vistas of shorelines of the City should be publicly
accessible.
b. New developments should minimize visual and physical obstruction of the
water from shoreline roads and upland owners.
General policies.
a. Where appropriate, utility and transportation rights-of-way on the shoreline
should be made available for public access and use.
b. Publicly-owned street ends that abut the shoreline should be retained and/or
reclaimed for public access.
c.
Shoreline recreational facilities and other public access points should be
connected by trails, bicycle pathways, and other access links where
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FWCP - Chapter Two, Land Use
appropriate.
d. Public pedestrian easements and access points should be of a nature and
scale that would be compatible with the abutting and adjacent land use as
well as natural features, including aquatic life.
e.
Access development should respect and protect ecological and aesthetic
values in the shorelines of the City.
Conservation Element
An element which deals with the preservation of natural shoreline resources, considering,
but not limited to, such characteristics as scenic vistas, park-ways, vital estuarine areas for
fish and wildlife protection, beaches, and other valuable natural or aesthetic features.
Goal
LUGll Assure preservation of unique and non-renewable natural resources and assure
conservation of renewable natural resources for the benefit of existing and
future generations and the public interest.
Policies
LUP64
Shorelines that are of unique or valuable natural character should be acquired
for public benefit, commensurate with preservation ofthe ecosystem.
a. Unique and fragile areas in shoreline areas should be designated and
retained as open space. Access and use should be restricted or prohibited
when necessary for their preservation.
b. When appropriate, Federal Way should acquire those shoreline areas which
are unique or valuable. Subsequent use of such areas should be governed by
their ecological carrying capacity.
LUP65
All renewable natural resources should be managed so that use or consumption
does not exceed replenishment.
a. Through policies and actions, Federal Way should encourage the
management and conservation of fish, shellfish, wildlife, and other
renewable resources.
LUP66
Resource conservation should be an integral part of shoreline planning.
a. When feasible, Federal Way should initiate programs to reverse any
substantial adverse impacts caused by existing shoreline development.
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FWCP - Chapter Two, Land Use
LUP67
LUP68
LUP69
b. All future shoreline development should be planned, designed, and sited to
minimize adverse impact upon the natural shoreline environment.
Scenic, aesthetic, and ecological qualities of natural and developed shorelines
should be recognized and preserved as valuable resources.
a.
When appropriate, natural flora and fauna should be preserved or restored.
b. In shoreline areas, the natural topography should not be substantially altered.
c. Shoreline structures should be sited and designed to minimize view
obstruction and should be visually compatible with the shoreline character.
d. Wildlife and aquatic habitats, including spawning grounds, should be
protected, improved, and, if appropriate, increased.
Resources should be managed to enhance the environment with minimal
adverse effect.
a. Aquaculture in shoreline areas should be conducted with all reasonable
precautions to insure the preservation of the natural character and quality of
the shoreline.
b. Shoreline activity and development should be planned, constructed, and
operated to minimize adverse effects on the natural processes of the
shoreline, and should maintain or enhance the quality of air, soil, and water
on the shoreline.
c. Any structure or activity in or near the water should be constructed in such a
way that it will minimize adverse physical or chemical effects on water
quality, vegetation, fish, shellfish, or wildlife.
d. Use or activity which substantially degrades the natural resources ofthe
shoreline should not be allowed.
Salmon and steelhead habitats support valuable recreational and commercial
fisheries. These habitats should be protected because of their importance to the
aquatic ecosystem and the state and local economy.
a.
Salmon and steelhead habitats are:
1. Gravel bottomed streams used for spawning;
2. Streams, lakes, and wetlands used for rearing, feeding, and cover and
refuge from predators and high waters;
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3. Streams and salt water bodies used as migration corridors; and
4. Shallow areas of salt water bodies used for rearing, feeding, and cover
and refuge from predators and currents.
b. Non-water-dependent or non-water-related uses, activities, structures, and
landfills should not be located in salmon and steelhead habitats.
c. Where alternative locations exist, water-dependent and water-related uses,
activities, structures, and landfills should not be located in salmon and
steelhead habitats.
d. Where uses, activities, structures, and landfills must locate in salmon and
steelhead habitats, impacts on these areas should be lessened to the maximum
extent possible. Significant unavoidable impacts should be mitigated by
creating in-kind replacement habitat near the project where feasible. Where
in-kind replacement mitigation is not feasible, rehabilitating degraded habitat
may be required. Mitigation proposals should be developed in consultation
with the affected local government, the Department of Fish eries, the
Department of Wildlife, and affected Indian Nations.
e. Developments which are outside salmon and steelhead habitats but which
have the potential to significantly affect these habitats should be located and
designed so they do not create significant negative impacts on salmon and
steelhead habitats.
f.
Bioengineering is the preferred bank protection technique for rivers and
streams used by salmon and steelhead.
g. Open pile bridges are preferred for crossing water areas used by salmon and
steelhead.
h. Impervious surfaces shall be minimized in upland developments to reduce
stonnwater runoff peaks. Structures and uses creating significant impervious
surfaces shall include stormwater detention systems to reduce stormwater
runoff peaks.
1.
The discharge of silt into waterways shall be minimized during in-water and
upland construction.
J.
Adopt-A-Stream programs and similar efforts to rehabilitate salmon and
steelhead spawning streams are encouraged.
k. Fishery enhancement projects are encouraged where they will not
significantly interfere with other beneficial uses.
1.
Project proponents should contact the Habitat Management Division ofthe
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FWCP - Chapter Two, Land Use
Department of Fisheries, the Habitat Division of the Department of Wildlife
or affected Indian Nations early in the development process to determine if
the proposal will occur in or adjacent to a salmon and steelhead habitat.
m. When reviewing permits for uses, activities, and structures proposed for salt
water areas, streams, wetlands, ponds connected to streams, and shorelines
adjacent to these areas; staff should contact the Habitat Management
Division of the Department of Fisheries or the Habitat Division of the
Department of Wildlife to determine if the proposal will occur in or affect
an adjacent salmon or steelhead habitat. Staff should also contact affected
Indian Nations.
Recreation Element
An element for the preservation and expansion of all types of recreational opportunities
through programs of acquisition, development, and various means of less-than- fee
acquisition.
Goal
LUG12
Provide additional shoreline dependent and water oriented recreation
opportunities that are diverse, convenient, and adequate for the regional
population consistent with the carrying capacity of the land and water
resources.
Policies
LUP70
Areas containing special shoreline recreation qualities not easily duplicated
should be available for public use and enjoyment.
a. Opportunities should be provided for the public to understand natural
shoreline processes and experience natural resource features.
b. Public viewing and interpretation should be encouraged at or near
governmental shorelim: activities when consistent with security and public
safety.
LUP71
Shoreline recreational use and development should enhance environmental
quality with minimal adverse effect on the natural resources.
a.
Stretches of relatively inaccessible and unspoiled shoreline should be
available and designated as low intensity recreational use areas with minimal
development. Service facilities such as footpaths, periphery parking, and
adequate sanitary facilities should only be allowed where appropriate.
b. Beaches and other predominantly undeveloped shorelines already popular
should be available and designated as medium intensity recreational use
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FWCP-ChapterTwo, Land Use
LUP72
LUP73
areas to be free from expansive development; intensity of use should respect
and protect the natural qualities of the area.
c.
Small or linear portions of the shoreline suitable for recreational purposes
should be available and designated as transitional use areas that allow for
variable intensities of use, which may include vista points, pedestrian
walkways, water entry points, and access from the water; utilizing stream
floodplains, street ends, steep slopes, and shoreline areas adjacent to
waterfront roads.
d. At suitable locations, shorelines should be made available and designated as
high intensive use areas that provide for a wide variety of activities.
e. Overall design and development in shoreline recreational areas should be
responsive to the site characteristics of those areas and be consistent with
the level of use in the area concerned.
f.
Recreation areas on the shoreline should have adequate surveillance and
maintenance.
g. The public should be provided with additional off-site and on-site guidance
and control to protect shoreline resources.
h. Where a wide berm is needed for dry beach recreation, and physical
conditions permit sand retention, consideration should be given to creating a
Class I beach 1 when such development does not destroy valuable biota or
unique physical conditions.
1.
Access to recreational shoreline areas afforded by water and land circulation
systems should be determined by the concept of optimum carrying capacity
and recreational quality.
J.
Non-water oriented recreational facility development should be kept inland
away from the water's edge, except where appropriate in high intensive
shoreline use areas.
The provision of adequate public shoreline recreation lands should be based on
an acquisition plan with a clear public intent.
A balanced variety of recreational opportunities should be provided for people
of different ages, health, family status, and financial ability.
a.
Appropriatespecialized recreation facilities should be provided for the
developmentally disabled, or others who might need them.
'Pursuant to Federal Way City Code Chapter 18, Article III, Section 18-163, a "Class I beach means a beach
or shore having dependable, geologicaIly fuIly developed, and normaIly dry backshore above high tide."
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FWCP - Chapter Two, Land Use
b. Shoreline recreation areas should provide opportunities for different use
intensities ranging from low (solitude) to high (many people).
c. Opportunities for shoreline recreational experiences should include
developing access that accommodates a range of differences in people's
physical mobility, capabilities, and skill levels.
d. Shoreline recreational experiences should include a wide range of different
areas from remote/outdoor undeveloped areas to highly developed indoor/
outdoor areas.
e. Recreational development should meet the demands of population growth
consistent with the carrying capacity of the land and water resources.
Circulation Element
An element dealing with the location and extent of existing and proposed major
thoroughfares, transportation routes, and other public facilities; and coordinating those
facilities with the shoreline use elements.
Goal
LUG13
Circulation systems in shoreline areas should be limited to those that are
shoreline dependent or would serve shoreline dependent uses. The physical and
social environment shall be protected from the adverse effect of those systems
on the quality of water, life, or environment.
Policies
LUP74
New surface transportation development should be designed to provide the best
possible service with the least possible infringement upon the shoreline
environment.
a. New transportation facilities and improvements to existing facilities that
substantially increase levels of air, noise, odor, visual, or water pollution
should be discouraged.
b. Transportation corridors should be designed to harmonize with the
topography and other natural characteristics of the shoreline through which
they traverse.
b. Surface transportation facilities in shoreline areas should be set back from
the ordinary high water mark far enough to make unnecessary such
protective measures as rip-rap or other bank stabilization, landfill,
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FWCP - Chapter Two, Land Use
LUP75
LUP76
LUP77
LUP78
bulkheads, groins, jetties, or substantial site regrade.
Circulation systems should be located and attractively designed so as not to
unnecessarily or unreasonably pollute the physical environment or reduce the
benefits people derive from their property; and they should encourage
alternative routes and modes of travel.
a. Motorized vehicular traffic on beaches and other natural shoreline areas
should be prohibited.
b. Transportation facilities providing access to shoreline developments should
be planned and designed in scale and character with the use proposed.
c.
Circulation routes should provide for non-motorized means of travel.
Circulation systems disruptive to public shoreline access and other shoreline
uses should be relocated where feasible.
a. Transportation elements disruptive to the shoreline character that cannot
feasibly be relocated should be conditioned or landscaped to minimize
visual and noise pollution.
Shoreline circulation systems should be adaptable to changes in technology.
a. Federal Way should promote and encourage modes of transportation that
consume the least amount of energy while providing the best efficiency with
the least possible pollution.
General policies.
a. New transportation developments in shoreline areas should provide turnout
areas for scenic stops and off road rest areas where the topography, view,
and natural features warrant.
b. Shoreline roadway corridors with unique or historic significance, or of great
aesthetic quality, should be retained and maintained for those
characteristics.
c. New transportation facilities crossing lakes, streams, or wetlands should be
encouraged to locate in existing corridors, except where any adverse impact
can be minimized by selecting an alternate corridor.
Residential Element
An element dealing with housing densities, residential subdivisions, shoreline access,
necessary support services, and locations of single-family dwellings (including
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FWCP - Chapter Two, Land Use
manufactured homes) and multiple-family dwellings without distinction between part-time
or full-time occupancy.
Goal
LUG14 Shoreline residential areas shall permit a variety of housing types and designs
with densities and locations consistent with the ability of physical and natural
features to accommodate them.
Policies
LUP79
Residential developments should be excluded from shoreline areas known to
contain development hazards or which would adversely impact sensitive areas
as identified in Chapter 18, Division 6 of the FWCc.
a. Residential development should be prohibited within the 100-year
floodplain.
b. Residential development should be prohibited in areas of severe or very
severe landslide hazard.
c. Residential development should be regulated in shoreline areas with slopes
of 40 percent or greater.
d. Shoreline areas containing other potential hazards (e. g., geological
conditions, unstable subsurface conditions, erosion hazards, or groundwater
or seepage problems) should be limited or restricted for development.
e. The burden of pro oft hat development of these areas is feasible, safe, and
ecologically sound is the responsibility of the developer.
LUP80
Residential developments should have minimal impact on the land and water
environment of the shoreline and minimize visual and physical obstruction.
a. Residential development should be regulated in identified unique and
fragile areas as required under the City's sensitive areas regulations.
b. Residential development on piers or over water should not be permitted.
c. Landfill for residential development which reduces water surface or
floodplain capacity should not be permitted.
d. In residential developments the water's edge should be kept free of
buildings and fences.
e. Every reasonable effort should be made to insure the retention of natural
shoreline vegetation and other natural features of the landscape during site
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FWCP - Chapter Two, Land Use
development and construction.
LUP81
Residential use of shorelines should not displace or encroach upon shoreline
dependent uses.
LUP82
Residential densities should be determined with regard for the physical
capabilities of the shoreline areas, public services requirements, and effects such
densities have on the environment.
a. Subdivisions and new development should be designed to adequately
protect the water and shoreline aesthetic characteristics.
b. New residential development should only be allowed in those shoreline
areas where the provision for sewage disposal and drainage ways are of
such a standard that adjoining water bodies would not be adversely affected
by pollution or siltation.
c. Residential development along shorelines should be set back from the
ordinary high water mark far enough to make unnecessary such protective
measures as filling, bulk heading, construction groins or jetties, or
substantial regrading of the site.
d. Residential developments should be designed to enhance the appearance of
the shoreline and not substantially interfere with the public's view and
access to the water.
Shoreline Environments
Purpose
In order to more effectively implement the goals, objectives, and policies of this master
program and the SMA, the shorelines of the state within Federal Way have been categorized
into four separate environment designations. The purpose of these designations is to
differentiate between areas whose geographical features and existing development pattern
imply differing objectives regarding their use and future development.
Each environment represents a particular emphasis in the type of uses and the extent of
development that should occur within it. The system is designed to encourage uses in each
environment which enhance the character of the environment while at the same time
requiring reasonable standards and restrictions on development so that the character of the
environment is not destroyed.
The determination as to which designation should be given to any specific shoreline area has
been based on, and is reflective of, the existing development pattern; the biophysical
capabilities and limitations of the land; and the goals and aspirations of the local citizenry.
Each environment category includes: (1) a definition describing the development, use,
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FWCP - Chapter Two, Land Use
and/or features which characterize the area; (2) a purpose which clarifies the meaning and
intent of the designation; and, (3) general policies designed to regulate use and
development consistent with the character of the environment.
Urban Environment
The urban environment is an area of high-intensity land use including residential, office,
and recreational development. The environment is particularly suitable to those areas
presently subjected to intensive land use pressure, as well as areas planned to
accommodate urban expansion.
The purpose of designating the urban environment is to ensure optimum utilization of
shorelines within urbanized areas by permitting intensive use and by managing
development so that it enhances and maintains the shoreline for a multiplicity of urban
uses. The environment is designed to reflect a policy of increasing utilization and
efficiency of urban areas, promote a more intensive level of use through redevelopment of
areas now underutilized, and encourage multiple use of the shoreline if the major use is
shoreline dependent.
Policies
L UP83
LUP84
LUP85
LUP86
LUP87
LUP88
LUP89
Emphasis should be given to development within already developed areas.
Emphasis should be given to developing visual and physical access to the
shoreline in the urban environment.
To enhance the waterfront and insure maximum public use, commercial
facilities should be designed to permit pedestrian waterfront activities consistent
with public safety and security.
Multiple use of the shoreline should be encouraged.
Redevelopment and renewal of substandard areas should be encouraged in order
to accommodate future users and make maximum use of the shoreline resource.
Aesthetic considerations should be actively promoted by means of sign control
regulations, architectural design standards, landscaping requirements, and other
such means.
Development should not significantly degrade the quality of the environment,
including water quality and air quality, nor create conditions that would
accentuate erosion, drainage problems, or other adverse impacts on adjacent
environments.
Rural Environment
The rural environment is intended for shoreline areas characterized by agricultural uses,
low density residential (where most urban services are not available), and areas which
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FWCP - Chapter Two, Land Use
provide buffer zones and open space between predominantly urban areas. Undeveloped
shorelines not planned for urban expansion or which do not have a high priority for
designation in an alternative environment, and recreational uses compatible with
agricultural activities are appropriate for the rural environment.
The purpose of designating the rural environment is to preserve agricultural land, restrict
intensive development along undeveloped shorelines, function as a buffer between urban
areas, and maintain open spaces and opportunities for recreational uses within the
ecological carrying capacity of the land and water resource. New developments in a rural
environment should reflect the character of the surrounding area by limiting density,
providing permanent open space, and maintaining adequate building setbacks from the
water to prevent shoreline resources fÌ"om being destroyed for other rural types of uses.
Policies
LUP90
LUP91
Recreational access to the shorelines should be encouraged. Recreational
facilities should be located and designed to minimize conflicts with other
activities.
New development should reflect the character of the surrounding area by
limiting residential density, providing permanent open space, and maintaining
adequate building setbacks from the water.
Conservancy Environment
The conservancy environment consists of shoreline areas that are primarily free from
intensive development. It is the most suitable designation for shoreline areas of high
scenic or historical values, for areas unsuitable for development due to biophysical
limitations, and for commercial forest lands.
Conservancy areas are intended to maintain their existing character. This designation is
designed to protect, conserve, and manage existing natural resources and valuable historic
and cultural areas. The preferred uses are those which are nonconsumptive of the physical
and biological resources of the area.
Policies
LUP92
LUP93
LUP94
LUP95
New development should be restricted to those that are compatible with the
natural and biophysical limitations of the land and water.
Diverse recreational activities that are compatible with the conservancy
environment should be encouraged.
Development that would be a hazard to public health and safety, or would
materially interfere with the natural processes, should not be allowed.
The flood hazard overzone regulations shall apply to development within flood
plains.
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FWCP - Chapter Two, Land Use
LUP96
Structural flood control devices should be strongly discouraged in the
conservancy environment.
LUP97
In areas with poorly draining soils, development should not be allowed unless
connected to a sewer line.
LUP98
Development should be regulated so as to minimize the following: erosion or
sedimentation, the adverse impact on aquatic habitats, and substantial
degradation of the existing character of the conservancy environment.
Natural Environment
The natural environment consists of areas characterized by the presence of some unique
natural features considered valuable in their undisturbed or original condition and which
are relatively intolerant of intensive human use. Such areas should be essentially free from
development or be capable of being easily restored to natural condition, and they should
be large enough to protect the value of the resource.
The purpose of designating the natural environment is to preserve and restore those natural
resource systems existing relatively free of human influence. These systems require severe
restrictions of intensities and types of uses permitted so as to maintain the integrity of the
natural environment.
Policies
LUP99
Natural areas should remain free from all development that would adversely
affect their natural character.
LUPIOO The intensity and type of uses permitted should be restricted in order to
maintain the natural systems and resources in their natural condition.
LUPIOI Limited access should be allowed to those areas in the natural environment.
LUPIO2 Uses which are consumptive of the physical and biological resources, or which
may degrade the actual or potential value of the natural environment, should be
prohibited.
LUPIO3 Uses and activities in locations adjacent to natural areas should be strictly regulated
to insure that the integrity of the natural environment is not compromised.
Shoreline Use Activities
Purpose
Shoreline use activities are specific uses, or groups of similar uses, that have been outlined
by the Department of Ecology Final Guidelines as being characteristic of the shorelines of
the state. They have been formulated as implementing tools to further carry out the intent
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FWCP - Chapter Two, Land Use
and policy of this master program and the SMA. They also represent a major criterion to
be used in evaluating proposed development and alterations to the shoreline environment;
with their ultimate influence, to a large extent, dependent upon how well they are
enforced.
The policies that make up each use activity have been founded on the premise that all
reasonable and appropriate uses require regulatory control. Other provisions such as a
view enhancement, public access, erosion control, water quality, long term benefits, and
aesthetic considerations have also been reflected in policy statements.
Shoreline uses and activities not specifically identified, and for which policies have not
been developed, will be evaluated on a case-by-case basis and will be required to meet the
intent of the goals and objectives of this master program, the policy of the SMA, and shall
be consistent with the management policy and character of the shoreline environment in
which they propose to locate.
Aquatic Resource Practices
Of all facets of economic shoreline activity, production from fisheries is the most
vulnerable to massive destruction from an error in environmental control. Close
monitoring of water quality and an aggressive policy of pollution abatement and control
are mandatory for full realization and sustenance of this economic base.
Aquaculture addresses state hatcheries, commercial hatcheries and beds, and natural
hatcheries and beds within Federal Way shorelines. Underwater aquaria are considered as
aquaculture although the use is principally recreational.
Aquaculture has two modes:
I. The harvest of uncontained plant and animal populations that exist on the
nutrients and foods available in the environment restock themselves according
to the fecundity ofthe population, and survive as the food and nature allow.
2. Artificial stocking or raising of stock in feedlots or pens using selective
breeding and controlled feeding programs for increasing production and
rearing a uniform product.
Pen culture requires confinement and the presence of fixed structures that compete for
space. Pens, rafts, and hatcheries require certain environmental conditions to assure the
survival of their contained populations. Some of these conditions are small wave forces,
good flow, good water quality, temperature limits, good anchoring ground and
accessibility, and, possibly, good natural food and nutrient supply.
The confinement of fish or shellfish in concentration imposes an extreme biological load
in a small area. Dense populations degrade water quality and deposit heavy fecal
sediments below the pens or on the floor of embayments. The principal impacts of
aquacultural activity within the shoreline are:
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FWCP - Chapter Two, Land Use
I. Pollutants in the water body such as fish, organic wastes, and additives for
feeding and disease control.
2. Navigation hazards such as holding pens, rafts, nets, and stakes.
3. Watercourse alteration to supply water.
4. Netting and flooring of riverbeds for spawning channels.
5. Shoreline access limitations where shellfish are being protected and contained.
Policies
LUPIO4 Federal Way's support should be given to the State Departments of Fisheries
and Game to improve stream conditions, open new spawning areas, and
establish new fish runs.
LUPIO5 Pens and structures for commercial aquaculture should not be located on Class I
beaches, or swimming beaches.
LUPIO6 Aquacultural enterprises should be located in areas that would not significantly
restrict navigation.
LUPIO7 In aquaculture enterprises, development of multiple aquaculture systems should
be encouraged.
LUPIO8 Aquacultural structures should use open pile construction where significant
littoral drift occurs.
LUPIO9 Prior to use of an area for aquacultural enterprises, consideration should be
given to the capability of the water body to absorb potential wastes.
L UPll 0 Shoreline areas having extremely high natural potential for aquaculture should
be preserved for that purpose.
Commercial Development
Commercial development pertains generally to the use or construction of facilities for
transaction and sale of goods and services as opposed to industrial development (treatment
together with ports) which pertains to the design and fabrication of products.
The principal impact factors upon the shoreline from commercial development are
pollutants (e.g., erosion, sedimentary, chemical, and microbial) and aesthetic destruction.
Erosive pollutants from commercial development are generated from surface runoff and
both surface and sub-surface subsidence. Chemical pollution is derived from fuel spillage.
Microbial loading arises from poor containment of organic wastes associated with human
habitation and recreational activities.
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Policies
LUPIll Consideration should be made ofthe effect a structure will have on scenic value.
L UPII2 Commercial structures and ancillary facilities that are not shoreline dependent or
water-oriented should be placed inland away from the immediate water's edge.
LUP113 The use of porous materials should be encouraged for paved areas to allow
water to penetrate and percolate into the soil. Use of holding systems should be
encouraged to control the runoff rate from parking lots and rooftops.
LUPl14 Commercial enterprises locating within shoreline areas should be constructed to
withstand normal rain and flooding conditions without contributing pollution to
the watercourse or shoreline.
LUP115 Commercial development that is not shoreline dependent should provide a
buffer zone of vegetation for erosion control.
Utilities
Few, if any, utility systems could be installed completely without coming under the
jurisdiction of this master program. The focus of the policies in this section is on how
these utility facilities within the shoreline environment can be planned, designed,
constructed, maintained, and rehabilitated to be consistent with the intent of the SMA.
Types of utility facilities in Federal Way vary from regional transmission by trunklines,
pipelines, and transmission lines to subregional distribution facilities. These are essentially
pipes and wires. Regional facilities generally are high voltage or high pressure systems with
substantial potential impact in case of failure. Their impacts on the environment are also
generally greater because of their scale and safety requirements.
The types of utilities covered are communications (radio, TV, and telephone), energy
distribution (petroleum products, natural gas, and electricity), water, sanitary sewers, and
storm sewers.
Policies
LUP116 Utilities that lead to growth should not be extended into or along shorelines
without prior approval of such extension by appropriate land use authority.
LUP117 Utilities located in shoreline environments inappropriate for development
should not make service available to those areas.
LUP118 In developed shorelines not served by utilities, utility construction should be
encouraged to locate where it can be shown that water quality will be
maintained or improved.
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FWCP-ChapterTwo, Land Use
LUPI19 Federal Way should be consulted prior to, or at the time of, application for
construction of regional utility facilities to be located in or along shorelines.
LUP120 Utility corridors crossing shorelines ofthe state should be encouraged to
consolidate and concentrate or share rights-of-way where:
a.
Public access (including view) would be improved.
b. Concentration or sharing would not hinder the ability of the utility systems
to be installed, operated, or maintained safely.
c. Water quality would be as good or better than if separate corridors were
present.
LUP121 Public access consistent with public safety and security should be encouraged
where rights-of-way for regional utility facilities cross shorelines of the City.
LUPI22 New utility facilities should be located so as neither to require extensive
shoreline protection nor to restrict water flow, circulation, or navigation.
LUP123 Utility facilities and rights-of-way should be selected to preserve the natural
landscape and minimize conflicts with present and planned uses of the land on
which they are located.
LUP124 New utility routes should be designed to minimize detrimental visual impact
from the water and adjacent uplands.
LUPl2S New freestanding personal wireless service facilities are discouraged from
locating within the shoreline environment.
Shoreline Protection
Shoreline protection is action taken to reduce adverse impacts caused by current, flood,
wake, or wave action. This action includes all structural and nonstructural means to reduce
these impacts due to flooding, erosion, and accretion. Specific structural and nonstructural
means included in this use activity are bulkheads, rip-rap, bank stabilization, and other
means of shoreline protection.
The means taken to reduce damage caused by erosion, accretion, and flooding must
recognize the positive aspects of each, so that the benefits of these natural occurrences will
be retained, even as the problems are dealt with. Erosion does not exist without accretion
of material eroded, be it a bench or a sandbar. Likewise, accretion cannot occur unless
material has been eroded.
Policies
LUP126 Structural solutions to reduce shoreline damage should be allowed only after it
is demonstrated that nonstructural solutions would not be able to reduce the
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FWCP - Chapter Two, Land Use
damage.
LUPI27
Planning of shoreline protection should encompass sizable stretches of lake or
marine shorelines. This planning should consider off-site erosion, accretion, or
flood damage that might occur as a result of shoreline protection structures or
activities.
LUP128 . Shoreline protection on marine and lake shorelines should not be used as the
reason for creating new or newly usable land.
LUP129 Shoreline protection structures should allow passage of ground and surface
waters into the main water body.
LUP130 Shoreline protection should not reduce the volume and storage capacity of rivers
and adjacent wetlands or flood plains.
LUP131 Whenever shoreline protection is needed, bioengineered alternatives such as
natural berms and erosion control vegetation plans should be favored over hard
surfaced structural alternatives such as concrete bulkheads and sheet piles.
LUP132 The burden of proof for the need for shoreline protection to protect existing or
proposed developments rests on the applicant.
LUP133 Shoreline protection activities that may necessitate new or increased shoreline
protection on the same or other affected properties where there has been no
previous need for protection should be discouraged.
LUP134 New development should be encouraged to locate so as not to require shoreline
protection.
LUP13S Areas of significance in the spawning, nesting, rearing, or residency of aquatic
and terrestrial biota should be given special consideration in reviewing of
shoreline protection actions.
LUP136 Shoreline protection actions should be discouraged in areas where they would
block beach parent material.
LUP137 Multiple uses of shoreline protection structures or nonstructural solutions
should be encouraged.
Transportation Facilities
The circulation network use category addresses transportation facilities such as roads,
railroads, bridges, trails, and related facilities. The impact of these facilities on shorelines
can be substantial. Some existing facilities were constructed to serve transportation needs
of the moment with a minimum expenditure and very little assessment of their primary or
secondary impacts on shoreline aesthetics, public access to the water, and resultant effects
on adjacent properties and water quality. Planning for new transportation facilities within
Revised 2002
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FWCP - Chapter Two, Land Use
the shoreline area today requires a greater awareness of the environmental impacts
transportation facilities will have on shorelines, in addition to the necessity for integrating
future shoreline land use plans with the transportation system that serves developments on
the shoreline.
Policies
LUP138 Pedestrian access should be built where access to public shorelines is desirable
and has been cut offby linear transportation corridors. New linear facilities
should enable pedestrian access to public shorelines where access is desirable.
LUP139
New surface transportation facilities not related to, and necessary for the support
of, shoreline activities should be set back from the ordinary high water mark far
enough to make unnecessary protective measures such as rip rap or other bank
stabilization, land-fill, bulkheads, groins, jetties, or substantial site regrade.
LUP140 Shoreline transportation facilities should be encouraged to include in their
design and development multi-modal provisions where public safety can be
assured.
LUP141 Shoreline transportation facilities should be planned to fit the topography and
minimize cuts and fills; and should be designed, located, and maintained to
minimize erosion and degradation of water quality and to give special
consideration to shoreline aesthetics.
LUP142 Transportation and utility facilities should be encouraged to coordinate joint use
of rights-of-way and to consolidate crossings of water bodies when doing so can
minimize adverse impact to the shoreline.
LUP143 Transportation facilities should avoid shoreline areas known to contain
development hazards (e.g. slide and slump areas, poor foundation soils,
marshes, etc.).
LUP144 Transportation facilities should minimize shoreline rights-of-way by orienting
generally perpendicular to the shoreline where topographic conditions will
allow.
LUP14S Shoreline roadways should have a high priority for arterial beautification funds.
LUP146 Abandoned road or railroad rights-of-way that contain unique shoreline
amenities should be acquired for public benefit.
LUP147 Federal Way should extend its trail and bicycle trail system, particularly as it
relates to shorelines, to western Federal Way.
LUP148 All transportation facilities in shoreline areas should be constructed and
maintained to cause the least possible adverse impacts on the land and water
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FWCP - Chapter Two, Land Use
environments, should respect the natural character of the shoreline, and should
make every effort to preserve wildlife, aquatic life, and their habitats.
Piers and Moorages
A pier is a structure built over or floating upon the water extending from the shore. Some are
used as a landing place for marine transport or for recreational watercraft. Piers are designed
and constructed as either water (floating) or pile supported, both of which have positive and
negative environmental aspects. Floating piers generally have less of a visual impact than
those on piling and they provide excellent protection for swimmers from boat traffic. Floating
piers however, interrupt littoral drift and can starve down current beaches where pile piers do
not. Pile piers can provide a diverse habitat for marine life. Both types can create impediments
to boat traffic and near-shore trolling. Pier construction requires regulation to protect
navigation rights, preserve shoreline aesthetics, and maintain the usable water surface and
aquatic lands for life forms characteristic and important to those areas.
Policies
L UP149 Open pile pier construction should be preferred where there is significant littoral
drift, where scenic values will not be impaired, and where minimal alteration to
the shoreline and minimal damage to aquatic resources can be assured.
LUP1S0 Floating pier construction should be preferred in those areas where scenic
values are high.
LUP1SI Piers should be discouraged where conflicts with recreational boaters and other
recreational water activities would be created by pier construction.
LUP1S2 The random proliferation of single purpose piers should be discouraged.
Preference should be given to shared use of piers in all shoreline areas.
LUP1S3
Temporary moorages should be permitted for vessels used in the construction of
shoreline facilities. The design and construction of such moorages shall be such
that upon termination of the project the aquatic life can be returned to their
original condition within one year at no cost to the environment or the public.
LUP1S4 Shoreline structures that are abandoned or structurally unsafe should be abated.
LUP1SS Substantial additions or alterations, including but not limited to substantial
developments, should be in conformance with the policies and regulations set
forth in the master program.
LUP1S6 Piers, docks, buoys, and other moorages should only be authorized after
consideration of:
a. The effect such structures have on wild-life and aquatic life, water quality,
scenic and aesthetic values, unique and fragile areas, submerged lands, and
shoreline vegetation.
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FWCP - Chapter Two, Land Use
b. The effect such structures have on navigation, water circulation,
recreational and commercial boating, sediment movement and littoral drift,
and shoreline access.
LUP1S7 Moorage buoys should be preferred over floating and pile constructed piers on
all tidal waters.
LUP1S8 Floating structures and open pile structures are preferred over landfills or solid
structures in water areas used by salmon and steelhead.
Recreation
Recreational experiences that depend on, or utilize, the shoreline include: harvesting
activities offish, shellfish, fowl, minerals, and driftwood; various forms of boating,
swimming, and shoreline pathways; and watching or recording activities, such as
photography, painting, or the viewing of water dependent activities. Principal focal points
are at parks and access beaches, road ends, viewpoints, features of special interest, water-
access points, and destination points for boaters. Facilities at these focal points may
include fishing piers, swimming floats, paths, parking areas, boat ramps, moorings, and
accessory recreational facilities.
The management of recreational land is determined by balancing the recreational carrying
capacity (or impact of the environment on people) and the ecological carrying capacity (the
impact of people on the environment). Measures to accomplish this are by designation of
areas for use-intensity, interpretation, and regulation. These different recreational use areas
coincide with the four environmentsCnatural, conservancy, rural, and urban. There are
multiple benefits derived from the park program, for example: recreational lands contribute
substantially to open space by conservation of land, preserving historic sites, offering
aesthetic relief and variety, contributing to a healthful environment, and shaping and
preserving the community form. In addition to the provisions of recreational opportunities,
Federal Way coordinates with other governmental agencies, commercial, and volunteer
groups to provide these opportunities for the public. The policies are directed toward
providing shoreline dependent and water oriented recreational opportunities. They are also
directed at protecting health and safety by separating incompatible activities and channeling
them into their most appropriate environments.
Policies
LUPIS9 The development of recreational acquisition plans should give emphasis to the
acquisition of prime recreation lands prior to their being preempted for other uses.
LUP160 In open spaces having an established sense of nature, improvements should be
limited to those that are necessary and unlikely to detract from the primary
values of the site.
LUP161 The siting of all developments should aim to enhance and protect the area
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FWCP - Chapter Two, Land Use
concerned.
LUPI62 Structural forms should harmonize the topography, reinforce the use area,
minimize damage to natural resources, and support recreation with minimal
conflict.
LUPI63 New buildings should be made sympathetic to the scale, form, and proportion of
older development to promote harmony in the visual relationships and
transitions between new and older buildings.
LUP164 Whenever possible, natural materials should be used in developing shoreline
recreational areas.
LUP16S Artificial irrigation and fertilization should be restricted to high-intensity use
areas.
LUP166 Existing buildings that enhance the character of the shoreline should be used for
recreation wherever possible.
LUP167 Underwater parks should be extensions of shoreline parks, or be created or
enhanced by artificial reefs where natural conditions or aquatic life could be
observed with minimal interference.
LUP168 Public recreational shoreline areas should serve as emergency havens of refuge
for boaters.
LUP169
Physical and/or visual access to the water should use steep slopes, view points
from bluffs, stream valleys, and features of special interest where it is possible
to place pathways consistent with public safety without requiring extensive
flood or erosion protection.
LUP170 The acquisition of public easements to the shoreline through private or quasi-
public shorelines should be encouraged.
LUP171
Existing public recreation shorelines should be restored where it is possible to
revegetate; resite roads and parking areas that are close to the shoreline; and
remove stream channelization and shoreline protection devices when the facility
has either deteriorated or is inconsistent with the general goals of this program.
LUPIn Prime-fishing areas should be given priority for recreational use.
L UP173 Boating activities that increase shore erosion should be discouraged.
L UP17 4 Effective interpretation should be provided to raise the quality of visitor
experiences and provide an understanding of the resource.
Residential Development
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FWCP - Chapter Two, Land Use
The shorelines in Federal Way are more widely used for residential purposes than for any
other use. Much of the undeveloped shoreline is privately owned, subdivided into small
lots, and zoned to permit residential development.
The pressure to develop shorelines for residential uses has continued to result in property
subdivision and escalating waterfront land values. Residential development of shorelines
is accomplished in a variety of ways from large plats and subdivisions to single lot
development for housing; any of which, if poorly planned, can culminate in the
degradation of the shoreline environment and water resource. .
The SMA generally exempts, ".. . construction on shorelands by an owner, lessee or
contract purchaser of a single-family residence for his own use or the use of his family..."
from its permit requirements. However, even though single-family homes are not
considered substantial developments, the intent of the act has established the basis for
planning and regulating them.
Policies
LUP17S Residential developments should be permitted only where there are adequate
provisions for utilities, circulation, access, site layout, and building design.
LUP176 Subdivisions should be designed at a level of density, site coverage, and
occupancy compatible with the physical capabilities of the shoreline and water
body.
LUP177 Residential development plans submitted for approval should contain provisions
for protection of groundwater supplies, erosion control, landscaping, and
maintenance of the shoreline integrity.
LUP178 Residential subdivisions should be designed so as to protect water quality,
shoreline aesthetic characteristics, vistas, and normal public use of the water.
LUP179 Subdivisions should provide public pedestrian access to the shorelines within the
development in accordance with public access element of this master program.
LUP180
The established velocity, quantity, and quality of stormwater discharge should
be considered in terms of the sensitivity of the proposed receiving environment.
The disposal mode selected should minimize changes in infiltration, runoff, and
groundwater recharge.
LUP181 Developers of recreational projects such as summer homes, cabins,
campgrounds, and similar facilities should satisfactorily demonstrate:
a. The suitability of the site to accommodate the proposed development
without adversely affecting the shoreline environment and water resource.
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FWCP - Chapter Two, Land Use
b. Adequate provisions for all necessary utilities, including refuse disposal,
and the compatibility of the development with adjacent properties and
surrounding land uses.
c. That recreational opportunity exists on the site and does not depend on
adjacent public land to furnish the activity.
2.9
ESSENTIAL PUBLIC FACILITIES
Pursuant to the GMA, no comprehensive plan can preclude the siting of essential public
facilities and each should include a process for siting essential public facilities. The GMA
includes these provisions because siting certain public facilities has become difficult due
to the impacts many of these facilities have on the community. In Chapter 22 of the
FWCC, the City has defined essential public facilities and provided a land use process for
siting them. Essential public facilities include those facilities that are typically difficult to
site, such as airports, state or regional transportation systems, correctional facilities, and
mental health facilities.
Policy
LUP182 The FWCC shall include a list oflocally defined essential public facilities that
shall include the list of essential state public facilities maintained by the office
of financial management.
2.10 PHASING
Phasing focuses growth to those areas where public investments for services are targeted.
By doing so, these areas become more attractive for development. Consistent with the
CWPPs, Federal Way proposes to use a tiered system for accommodating future growth.
The primary purpose of this technique is to assure a logical sequence of growth outward
from developed areas.
Future growth will be directed to the City Center and other areas with existing
infrastructure and urban services. This will be followed by focusing growth to areas where
in-fill potential exists. Lastly, growth will be directed toward areas of undeveloped land or
to the City's P AA. For those areas of the City that are lacking services, these lands should
be retained or reserved until build out has occurred in developed areas.
Based on the phased growth concept outlined above, the City should develop criteria for a
phasing plan over the next 10 and 20 years. Phased growth will promote efficient use of
Revised 2002
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FWCP - Chapter Two, Land Use
land by:
#
Reducing taxpayers costs by locating new development nearest to existing urban
servIces;
#
Adding predictability to service & facility planning;
#
Reducing commuter miles and protecting air quality by locating housing and jobs
near each other;
#
Encouraging in-fill and redevelopment where environmental impacts have already
occurred; and
#
Reserving land for future parks and open space.
Policies
LUP183
Establish priority areas for public facility and service improvements, especially
for transportation. Priority areas should be located where public facility and
service improvements would effectively advance Federal Way's growth vision.
Priority areas will shift over time as improvements are installed and an
acceptable level of service is attained.
LUP184
When and where service deficiencies are identified, the City, along with service
providers, will develop capital improvement programs to remedy identified
deficiencies in a timely fashion or will phase growth until such programs can be
completed.
LUP18S Work with King County through the development of an interlocal agreement to
assign phasing to the City's P AA.
LUP186 The City should limit spending on capital facilities in those areas of the City and
P AA that are not designated as priority areas for capital projects.
2.11 INCENTIVES
In certain designations, incentives allowing more development than otherwise permitted
should be used to encourage features that provide a public benefit and/or contribute to the
mitigation of growth impacts. For example, development in the City Center that provides
common open space or affordable housing units, may gain additional floors or a reduction
in the number of parking stalls. In addition, in order to encourage development in the City
Center, the City is in the process of discussing a Housing Tax Exemption for multiple
Revised 2002
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FWCP - Chapter Two, Land Use
family housing and is considering preparing an Environmental Impact Statement (EIS) for
a portion of the City Center. Incentives can play an important role in the development of
the City Center and must be substantial enough to influence market conditions by making
them attractive to the development community.
Policies
LUP187 Develop incentives to encourage desired development in commercial areas,
especially in the City Center Core and Frame.
LUP188 Consider incentives for desired multiple-family residential development
(townhouses, duplexes, etc.).
2.12 HISTORIC RESOURCES
Historic preservation involves the identification, maintenance, renovation, and reuse of
buildings and sites important to a community's history. Buildings or sites may be
associated with a particular style or period in the community's past, or with historic or
significant historic events or persons. Historic preservation to date has largely been
undertaken by the Historical Society of Federal Way. Historic preservation is listed as the
13th goal in the GMA which encourages jurisdictions to, "Identify and encourage the
preservation of lands, sites, and structures, that have historical or archaeological
significance. "
Goal
LUGIS Use historic resources as an important element in the overall design o/the City.
Policies
LUP189 Identify vista points and landmarks such as major trees, buildings, and land
forms for preservation.
LUP190 Develop a process to designate historic landmark sites and structures. Use
developer incentives or other mechanisms to ensure that these sites and
structures will continue to be a part of the community.
L UPI91 Recognize the heritage ofthe community by naming (or renaming) parks,
streets, and other public places after major figures and/or events.
LUPI92 Zoning should be compatible with and conducive to continued preservation of
historic neighborhoods and properties.
Revised 2002
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FWCP - Chapter Two, Land Use
LUP193 Safeguard and manifest Federal Way's heritage by preserving those sites,
buildings, structures, and objects which reflect significant elements of the City's
history.
LUP194 Catalog historic sites using the City's geographic information system.
LUP19S Undertake an effort to publicly commemorate historic sites.
LUP196 The City shall continue to work with the Historical Society of Federal Way
towards attainment of historic resource policies.
2.13 IMPLEMENTATION
The following actions are recommended to implement the policy direction outlined in this
chapter. Implementation will occur over time and is dependent on resources available to
the City and community. The following items are not listed in order of importance or
preference.
Establish Comprehensive Planning and Zoning for Potential Annexation Area
Comprehensive planning and the assignment of zoning designations should be completed
for the City's P AA. This will provide the City with needed direction relating to future
annexations and growth. Planning for this area pursuant to WAC 365-195 requires a
considerable planning effort and policy development. An interlocal agreement between
King County and the City regarding planning actions should be prepared.
Residential Code Revisions for Multiple Family
Residential code revisions to implement design standards for multiple-family residential
development were adopted in late 1998.
Subdivision Code Revisions
Amendments to the subdivision code have been adopted to bring the code into compliance
with state law and recent state legislation. Revisions to the subdivision code have provided
platting options for single-family development, such as clustering and zero lot line
development.
Area-Wide Rezone
Following adoption of the 1995 FWCP, a new zoning map was prepared and adopted to
support the comprehensive plan designations. This update includes some site specific
requests for changes to comprehensive plan designations. The zoning map will be
amended to conform to the changes in land use designations.
The Land Use Plan and Zoning Code
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FWCP - Chapter Two, Land Use
Implementation of policies and goals of the Land Use chapter is done in large part through
the zoning code. Following adoption of the 1995 FWCP, the City made revisions to the
zoning code, consistent with FWCP direction. The zoning conversion chart, Table II-3
(page 55), shows the connection between the various zoning designations and the
comprehensive plan designations.
Phasing Plan
A phasing plan shall be prepared to prioritize areas of new growth based on available and
proposed infrastructure improvements.
Project Environmental Impact Statement for City Center
To facilitate growth in the City Center and Frame, the City should complete Planned
Action SEP A (PAS). By doing so, development consistent with the direction outlined in
the PAS will not have to go through prolonged environmental review. This can be a
powerful incentive for private development in the City Center.
Subarea Plans
Over the years, citizens from various areas of the City have come forth to testify before the
Planning Commission and City Council regarding their neighborhood or business area.
Development of subarea plans can lead to area specific visions and policies. This type of
specific planning, developed with citizen input and direction, can lead to improved
confidence and ownership in the community. Areas where subarea planning should be
considered include: SR-99 Corridor, South 348th Street area, and Twin Lakes
neighborhood.
Incentives
Develop an incentives program, for both residential and commercial development.
Incentives should be substantial enough to attract development and should be used to
create affordable and desired types of housing and to encourage development within the
City Center. u
Comprehensive Plan Classification Zoning Classification
Single Family - Low Density Residential Suburban Estates (SE), one dwelling unit per five acres
Single Faniily - Medium Density Residential RS 35,000 & 15,000
Single Family - High Density Residential RS 9600, 7200, 5000
Multiple Family Residential RM 3600, 2400, 1800
City Center Core City Center Core
City Center Frame City Center Frame
Office Park Office Park, Office Park 1, 2, & 3
Professional Office Professional Office
Community Business Community Business
Business Park Business Park
Table II-3
Land Use Classifications
Revised 2002
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FWCP-ChapterTwo, Land Use
Neighborhood Business Neighborhood Business
Corporate Park Corporate Park-l
Commercial Recreation Office Park-4
Open Space & Parks A variety of zoning is assigned.
Revised 2002
II-56
~ir'
PugetSound
CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
COMPREHENSIVE PLAN
DESIGNATIONS
REVISED MARCH, 2003
LANDUSE ELEMENT
¡\'
Federal Way City Umils
1\' Potential Aonexation Area
- City Center Core
- City Center Frame
- Corporate Park
IiIIIIIIII Office Park
~ Professional Office
~ CommerciaJlRecreation
c:::a Business Park
- Neighborhood Business
- Community Business
- Parks and Open Space
- Multi-Family
c::::J Single Family-High Density
IiE1 Single Family-Medium Density
c::::J Single Family-Low Density
-SCAlE-
1 Inch equals 3,750 Feøt
~ Federal Way
MAP 11-1
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ibe CIIy '" Fi!deral Way mat!18 no warranty sa 1D hi aœur3CY
Mo, "'",d Febrlllry '000 r_I>8"""'..."".",""
.-:t~'
PugetSound
CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
GENERALIZED
EXISTING LAND USE
lANDUSE ELEMENT
,., Federal Way City Umits
/'" Potential Annexatlon Area
",' Other City Limits
N County Boundary
",' Federal Way City Center
iOrS Agriculture
- Commercial
- Industrial
- Olllce
I!I!!!!I!II Public Pcuk
IüiII R861denllal - Multi-Family
c:J R86idential. Single Family
Œ33TI Open Space, Common
Areas, and Drainage
- Quasi Public (i.e. så1ools.
govemmentservlces. ate.)
ITIJIJ Vacant
~ Recreation
.. UtiUties
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MAP 11-2
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EXHIBIT
c
CHAPTER FOUR - ECONOMIC DEVELOPMENT
4.0
INTRODUCTION
The Growth Management Act (GMA) includes economic development as one of its basic
goals and it is a theme that runs throughout the GMA. It considers the need to stimulate
economic development throughout the state, but requires that these activities be balanced
with the need to protect the physical environment. It encourages the efficient use of land,
the availability of urban services, and the financing strategies necessary to pay for
infrastructure. Finally, the GMA mandates that communities do their planning and then
provide the zoning and regulatory environment so that appropriate development can
occur. It recognizes that while the public sector can shape and influence development, it
is the private sector that generates community growth.
The Puget Sound Regional Council (PSRC) has also adopted region-wide goals and
objectives to guide multi-jurisdictional transportation and land use policies that will be
implemented through local comprehensive plans. Economic development is implicit in
many of the goals and objectives of VISION 2020. The VISION 2020 strategy
emphasizes that continued economic stability and diversity is dependent upon public and
private sector collaboration to identify needs, such as infrastructure and land, and to
invest in services that will promote economic activity. VISION 2020 also emphasizes
that the stability of the regional economy increases when it develops and diversifies
through the retention and strengthening of existing businesses and the creation of new
business.
King County, through its growth management planning policies and process, re-
emphasizes the economic development implications of growth management. The
Countywide Planning Policies (CWPPs) promote the creation of a healthy and diverse
economic climate. The CWPPs describe the need to strengthen, expand, and diversify the
economy. They encourage protection of our natural resources and enhancement of our
human resources through education and job training. The CWPPs also speak to the need
to make an adequate supply of land available for economic development by providing
necessary infrastructure and a reasonable permitting process.
Within this policy framework, Federal Way has outlined a vision of its economic
development future. Its vision is to transform itself from largely a bedroom-community
of Seattle into a diversified, full-service, and self-contained city (Map IV-I, located at the
end of the chapter). However, in doing so, it is important to remember that Federal Way
is part of the larger Puget Sound economy, and therefore, this transformation will depend
in large part on the market forces at work within the greater region. To achieve this
vision, the City must diversify its employment base by adding more professional and
managerial jobs, and by increasing the overall number of jobs in order to improve the
balance between jobs and households in the City. The potential is there. Federal Way's
unique location between the two regional centers of Seattle and Tacoma, both with large
concentrations of population and large, successful ports, and its relationship within the
FWCP - Chapter Four, Economic Development
Central Puget Sound region represent significant opportunities. The City is also home to
Weyerhaeuser's Corporate Headquarters, located within East Campus, and the West
Campus Office Park, two of the premier office park areas in the region. In addition, the
City holds unique regional attractions for entertainment and recreation, such as
Celebration Park, King County Aquatic Center, and Six Flags Enchanted Parks/Wild
Waves.
The City's economic development vision is based on the following: 1) economic and
demographic analysis; 2) market analysis oflong-term real estate development in Federal
Way; 3) synthesis ofreal estate and development trends in the Central Puget Sound area;
and 4) review and comment from the Planning Commission.
4.1
SUMMARY OF EXISTING CONDITIONS AND TRENDS
Overview
Since the last update to this chapter of the Federal Way Comprehensive Plan (FWCP),
there have been significant changes in the local, regional, national, and international
economic conditions.
Previously riding a sustained, strong economic wave associated with extraordinary
growth in the high-tech industries, strong growth in the airline industry, and generally
positive national and international perceptions of the Pacific Northwest, the Seattle-
Tacoma metropolitan region, and the State of Washington, Washington began to show
early signs of an economic downturn by mid-200 I. Riots in nearby Seattle, first
associated with the meeting of the World Trade Organization in November 1999, and
later with the 200 I Mardi Gras festivities, had begun a series of negative publicity images
of Seattle and the Seattle area. This negative publicity was exacerbated by the February
28,2001, Nisqually Earthquake, and later in 2001 by the Boeing Company's
announcement that it was moving its corporate headquarters to Chicago. In addition, by
mid-200 1, the national economy had begun to slow down, the "dot-com" industry had
suffered a generalized melt-down, and the Pacific Rim countries, upon which so much of
this state's trade depends, continued to slide further into their own recessions.
The effects ofthe September 11,2001, terrorist attacks on this country jolted the
economies of most of the world's countries and regions, but had a particularly hard
impact on the Puget Sound region. As air-travel-related commerce plummeted
worldwide, the Boeing Company, its affiliates, and related industries, saw sharp drops in
orders, and Boeing announced its intentions to lay off tens of thousands of workers over
the ensuing two years.
By the beginning of 2002, lay-offs around the Puget Sound region became a
commonplace occurrence, stemming from cutbacks at Boeing, other companies related to
the airline and travel industries, and numerous "dot-com" and high-tech companies.
However, according to the 2002 King County Annual Growth Report, the King County
Revised 2002
IV-2
FWCP - Chapter Four, Economic Development
economy remains strong despite severe shocks. Unemployment has risen to 6.2 percent as
of June 2002, but that level is no worse than the historical average. Aerospace
employment in the Puget Sound region now stands at 72,000, with about 47,000 ofthat in
King County. Although well below its record employment levels, the aerospace sector
continues to provide high wages to local workers. High tech continues to expand despite
the shakeout of a few companies. Other services, wholesale, and retail lost employment
before the recession hit aerospace, so they may be ready to grow again in the coming
year.
The significant overall income growth in software and other sectors propelled King
County into eighth place among all 3,100 counties in the United States in total payroll
paid during 1998. Measured at $41 billion by the Census Bureau, King County's total
business payroll exceeded that of 26 states, including Oregon, which has twice as many
people as King County. Among other issues raised by such large numbers is that ofthe
disparity of wealth and income between King County and the other parts of Washington
State outside the Puget Sound region. In 1998, more than 52 percent of wages paid in the
state were in King County, in contrast to our 29 percent share of the state's population.
Some of that difference reflects high tech jobs in Seattle and the Eastside, as well as high
wage manufacturing jobs in South King County.
Long-range prospects are mixed. Boeing forecasts production of around 250 airplanes
this year and next. Sale of those planes will bring in billions of dollars, much of which
will be reinvested in the Puget Sound economy. But with the move of Boeing
headquarters to Chicago, long-term prospects for aerospace are less certain, although the
company has continued to emphasize its investment in the Puget Sound region. Sales tax
and other government revenues are declining at a time when public investment is needed.
The area is doing remarkably well so far, but if these underlying issues are not addressed,
there could be lasting consequences to King County and the Puget Sound region.
Due to the markedly weaker economic conditions now in the Puget Sound region than
during most ofthe past decade, economic development efforts in Federal Way will have
to become more creative, innovative, and broader in scope. The traditional focus on
retaining and attracting businesses will not be enough. New efforts, reaching into other
economic sectors and using new and innovative strategies, will be necessary.
General Patterns of Existing Development
Previous development trends indicate that the non-residential areas of Federal Way
reflect a community that has the ability to absorb higher density (more compact) uses and
greater development as growth in the Central Puget Sound region continues. And even
though Federal Way is a new city in a suburban area, much of its future will be tied to
redevelopment and transformation. Federal Way is characterized by:
#
High-quality single- and multiple-family residential areas
#
A range of housing that includes very modest tract homes, manufactured
dwellings, and large luxury waterfront homes
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FWCP - Chapter Four, Economic Development
#
Auto-oriented, suburban scale regional and community shopping centers and
strip centers
#
Corporate headquarters
#
Two high-quality business and office parks-West Campus and East Campus
#
Little developed space for quality business, flex-tech, and office parks
#
Semi-rural areas, wildlife areas, truck stops, areas without utilities, and much
vacant open space
#
Recreation/amusement parks
#
A waterfront primarily occupied by high-quality homes, but not particularly
accessible to the public
#
Many marginal commercial areas with redevelopment potential along Pacific
Highway South (SR-99) that are vestiges of a prior era
Demographics
Federal Way historically has been primarily a suburban, bedroom community. It has
more households than jobs and as a result, provides more workers to the region than it
attracts. However, since the City's incorporation, this balance between homes and jobs
has shifted. Based on US Census data, the City's residential population grew by 23
percent from 67,554 in 1990 to 83,259 in 2000, while the City's covered employment has
grown by 44 percent from 21,756 in 1990 (as reported by the 2001 King County Annual
Growth Report) to 31,315 in 2000 (PSRC's 2000 Covered Employment Estimates).
These figures indicate that during the past decade the City has begun to shed its
"bedroom community" status, with more opportunities for residents to stay within
Federal Way for their employment, as well as becoming more of an employment
destination for residents from beyond Federal Way.
The 2000 Census information shows that Federal Way's median income levels have
grown substantially since 1990, with the City leading the South King County cities in the
percentage of wage-earning households, as well as median household income. The 1990
Census reported median household income at $38,311. The figure grew by 29 percent
over the decade leading to the 2000 census, with a median household income reported of
$49,278, which is higher than the median household incomes of any ofthe other major
South King County cities (Renton, Kent, Burien, Auburn, Tukwila, and SeaTac), as well
as Seattle.
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FWCP - Chapter Four, Economic Development
Moreover, it is interesting to note that the median household income of wage-earning
households (which comprise 87.3 percent of all Federal Way households) was reported at
$57,748. This median household income figure is also higher than that of any of the other
major South King County cities, as well as higher than the South King County's average
of $55,637. Similarly, Federal Way's percentage of wage-earning households (87.3
percent) is higher than any of the other major South King County cities (which range
from 79.9 to 86.8 percent). As a result, and given the City's large population, Federal
Way has the highest annual gross income of any of the South King County cities.
However, Federal Way and the South King County cities continue to lag behind the East
King County cities in terms of median household income, which range from $60,332 in
Kirkland to $66,735 in Redmond.
Federal Way's Regional Role
Federal Way is optimally located at a mid-point in the Seattle-Tacoma metropolitan
region at the intersection ofI-5 and SR-18, with easy access to the Port of Tacoma, Port
of Seattle, and SeaTac International Airport. Federal Way's location is a prime asset as
traffic congestion and concerns over personal and freight mobility within the region
become paramount issues for commerce and industry, as well as commuters.
Nevertheless, the economic boom of the past decade has largely been concentrated in the
Eastside communities, Downtown Seattle and South Snohomish County. However, with
changes in the high-tech industry, increasing traffic congestion, soaring housing prices,
and increasing limits to growth in those areas, the "Southend bias" may become a thing
of the past, leaving Federal Way in an even better position from a regional perspective.
Economic Base
Federal Way's retail base is diverse and attracts customers from outside the City limits.
Its market share, however, is relatively low compared to other Southwest King County
communities. Although Federal Way retailers capture a good deal of the City's primary
and secondary market expenditures for general merchandise and food trade, a high
percentage of the local populace goes elsewhere to shop for automobiles, apparel/
accessories, miscellaneous retail purchase, building material, and furniture. Overall, the
capture rate for retail sales as a function of the City's primary and secondary trade area
total retail expenditures is relatively low, about 51 percent (Federal Way City Center
Market Analysis, prepared by ECO Northwest, July 2002).
PSRC's 2000 Covered Employment Estimates reported that in 2000, covered employment
(those jobs covered by the state's unemployment insurance program) within Federal Way
and throughout King County could be broken down as shown in Table IV-l (page 6).
As can be seen from this data, in 2000, Federal Way's strongest employment sectors were
Finance, Insurance, and Real Estate, and Retail, which exceed the countywide averages
considerably. The City had noticeably fewer jobs than average in the Manufacturing and
Wholesale, Transportation, Communications, and Utilities sectors. Based on recent
events in the employment sector, these numbers may be lower today.
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FWCP - Chapter Four, Economic Development
e era ayan n2 ounty
Employment Category Federal Way Employees Countywide Employees
(Percenta2e) (Percenta2e)
Construction and Resources 1,029 (3.3%) 69,949 (6.1%)
Finance, Insurance, and Real Estate 13,947 (44.5%) 440,364 (38.3%)
Manufacturing 3,103 (9.9%) 147,933 (12.9%)
Retail 8,158 (26.1%) 189,457 (16.5%)
Wholesale, Transportation, 1,606 (5.1%) 158,307 (13.8%)
Communications, and Utilities
Education 2,042 (6.5%) 64,454 (5.6%)
Government 1,431 (4.6%) 80,542 (7%)
Total 31,315 1,151,006
Table IV-I
2000 Covered Employment Estimates
Fd lW dID C
Market Share
Industrial and business park space available to rent in Federal Way is a minuscule share
of the Southend/Green River/Seattle market area. The South King County industrial area
(including industrial parks, business parks, and flex-tech hybrid business/office parks) is
currently the strongest real estate market in Western Washington.
The industrial areas of south Seattle, Green River Valley, and FifefTacoma constitute one
of the strongest markets for industrial, warehouse, wholesale, distributing, etc.,
businesses in the Western United States. The City of Federal Way is in a strategic
position to capitalize on these markets by providing prime office space and room for new
office development, as well as quality housing.
Retail and Lodging Development
Developed and opened in 1975, the SeaTac Mall was the primary force behind the
growth of retail in Federal Way during the 1980s. After a period of some decline in
recent years, SeaTac Mall is currently a prime candidate for updating, redevelopment
and/or repositioning to acquire a stronger market position. In 1995, Pavilons Centre
replaced the old Federal Way Shopping Center, and in 2001 the Pavilions Center Phase II
came on line, with more development at that location yet to come. In 1998, SeaTac
Village was given a complete face-lift incorporating the City's commercial design
guidelines. In addition, in the late 1990s, a new Walmart store moved into the City Center
Frame, and there have been several renovations and remodeling of existing retail
structures, including the conversion of the old Safeway building at the southwest corner
of South 320th and Pacific Highway into Rite Aid and the old K-Mart into Safeway.
Within the last two years, a 45,000 square foot Best Buy has opened in the City Center
Frame and a 52,000 square foot Albertson's remodel has occurred in the Community
Business zone along Pacific Highway South.
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FWCP - Chapter Four, Eoonomic Development
Between 1995 and 2000, four hotels/motels have been constructed in and around the City
Center. These include Holiday Inn, Courtyard Marriott, Extended Stay, and Comfort Inn.
In addition, a Holiday Inn Express and Sunnyside Motel (Travel Lodge) have been built
south of the City Center along Pacific Highway. Hawthorne Suites, a 65 unit Country
Inn, has been recently constructed along Pacific Highway South in the Community
Business zone south of the City Center.
Office Development
Federal Way's East and West Campus Developments set a standard in the region as two
of the best examples of master-planned office campuses in the Pacific Northwest. The
quality of development in this area is decidedly different than elsewhere in Federal Way
and Southwest King County.
Within the last two years, the majority of new office development has been located
within Federal Way's East Campus which has seen the following development: Foss
Office Building at 108,000 square feet; Capital One Office Building at 143,000 square
feet; and Federal Way Office Building and Warehouse at 70,767 square feet.
The West Campus area has seen little new office development. Although permits have
been issued for additional office development in the West Campus, rising vacancy rates
there have stalled additional development for the near term.
In the City Center no new additional office development has occurred since the last
comprehensive plan update, and office buildings continue to constitute a minority of the
City Center's development.
Other commercial areas within the City have seen limited amounts of office development,
such as the recent Lloyd Enterprises building at 34667 Pacific Highway South.
Business Park (Light Industrial) Development
There has been no substantive Business Park development since the City's incorporation.
This lack of recent Business Park development suggests the influence of market forces
outside of the City limits, where cheaper land and established industrial parks act as a
draw for prospective business park development.
Residential Development
One of Federal Way's strengths is the range and quality of its housing stock. The quality,
quantity, and range of options for housing are major factors in business siting decisions.
According to the 1990 US Census data, the median value of owner-occupied homes in
Federal Way was $118,800. In contrast, the average sales price of Federal Way owner-
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FWCP - Chapter Four, Economic Development
occupied homes in 200 I, as reported by the King County Office of Regional Policy and
Planning, was $194,092, with single-family homes averaging $213,060 and condominiums
averaging $112,135. These figures contrast with other King County cities, as outlined in
Table IV-2.
2001 A
S I
P"
Table IV-2
fO 0
" dH
"Ki
c
vera2e a es rIces 0 wner- ccuple omes m n2 ounty
Place All Homes Single-Family Condos
Federal Way $194,092 $213,060 $112,135
Auburn $197,965 $216,549 $124,089
Renton $215,341 $248,271 $149,608
Kent $198,844 $222,580 $142,577
Des Moines $206,379 $207,302 $202,142
Seattle $318,671 $342,922 $240,619
King County $295,158 $321,700 $198,822
As one can see ftom the above data, homes in Federal Way are generally more affordable
than in the immediately surrounding communities and are far more affordable than homes
in Seattle and the Eastside communities.
While single-family houses remain Federal Way's dominant housing type, the majority of
housing starts since the late 1980s were multiple-family. Multiple-family units as a
percentage of all housing units increased from less than 10 percent in 1970 to nearly 40
percent in 1990. During the late 1980s, there were twice as many multiple-family housing
units constructed in Federal Way than single-family housing units. From 1990 to 1992,
permitting of multiple-family construction stopped, and single-family construction
slowed to about one-third of late 1980 levels.
It is interesting to note than in 1990 median monthly rental rate for Federal Way was
$476, while the median monthly rental rate for King County communities varied between
$398 and $458. That is, Federal Way's multifamily housing stock was on the higher end
of cost within the region. Since then, Seattle and some Eastside locations have become
particularly expensive, and Federal Way's multifamily housing stock is substantially
more affordable than those locations, while averaging competitively with nearby
communities, as seen in Table IV-3 (page 9).
Since 1996, the vast majority of multi-family housing development has taken place in the
senior/assisted living market. During that time approximately 792 senior or assisted
housing units have been added in the City, in addition to 240 skilled-care beds. This is
compared with approximately 135 non-senior multifamily housing units. The lack of
multi-family construction beyond this sub-market speaks to the recent market forces that
appear to have discouraged investment in market rate multi-family development that
commands lower rents than the King County average, as seen above. In order for the City
to successfully encourage multi-family housing at a rate commensurate with the long
range housing targets established under the GMA, City policy must address the market
factors unique to this type of development activity.
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FWCP - Chapter Four, Economic Development
A
Table IV-3
M If F 1 R t S
2002
vera2e U 1- amllY en s, I' rIn~
Place Two Bedroom! All Units
One Bath
Federal Way $710 $749
Auburn $684 $716
Renton $811 $869
Kent $712 $747
Des Moines $701 $686
North Seattle $852 $787
Queen Anne $1,104 $923
Bellevue-West $1,129 $1,200
King County $839 $869
Institutional, Educational, Cultural, and Recreational Development
Federal Way enjoys a variety of affordable, high-quality health care. The City boasts
three outstanding health care facilities, St. Francis Hospital, Virginia Mason Clinic, and
Group Health. These facilities continue to grow and expand in the services they offer the
region. In the last two years, Virginia Mason has developed a 30,000 square foot building
addition, and St. Francis Hospital is currently constructing a 62,000 square foot addition.
Built in 1998, the Knutzen Family provides a venue for professional theatre and the
symphony. The Federal Way Parks, Recreation, and Cultural Services Department offers a
summer concert series at Steel Lake Park, which is also home to the annual Family Fest
celebration. Each year, Federal Way's July 4th Red, White, and Blues festival is held at
Celebration Park, where the nationally acclaimed tournament soccer and baseball facilities
draw additional tourist activities.
Federal Way offers a number of collegiate and vocational opportunities. Highline
Community College operates a local branch campus in Federal Way. The Eton Vocation
College, located in the heart of Federal Way, is a vocational college focused on job
training for today's competitive market.
In 2001, the DeVry Institute of Technology opened their first Northwest Campus in
Federal Way. This 100,000 square foot facility provides technology training customized
to increase employee workplace skills.
Summary
In summary, Federal Way's role in both the Central Puget Sound area and Southwest
King County has been defined by its inventory of prime office space in campus-like
settings, wide variety of retail and services, and large stock of quality housing. These
basic sectors are enhanced by Federal Way's regional role as a center for amateur
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FWCP - Chapter Four, Economic Development
athletics. Much of the highway oriented commercial space that was developed in the
1970s and 80s in response to rapid population growth has been starting to undergo
redevelopment, and this trend will continue. The West Campus and East Campus areas
serve as models for the quality of modern commercial, office, and business park space
Federal Way will need in order to attract its share of future regional growth. Urban design
and infrastructure in other areas of Federal Way must be brought up to these standards. In
addition, the existence oflarge parcels ofland ownership in the 344th/356th area and
31ih/324th area of the core corridor will give Federal Way a development advantage.
Federal Way will continue to foster the development of institutional and cultural
amenities designed to enhance the City's regional image as a desirable community
offering a high quality environment for living and working.
Federal Way's Competitive Position in Southwest King County
Subregion
While many of the development patterns are set in the Southwest King County subregion,
Federal Way and five other cities have seen, or will see, significant change. These
additional five cities are Auburn, Kent, Renton, SeaTac, and Tukwila.
Table IV-4 (page 11) encapsulates each of these cities' current market niches, as well as
their opportunities and challenges, in order to help understand how Federal Way relates
to its neighbors. As can be seen in the table, much of the area surrounding Federal Way is
dedicated to industrial, light manufacturing, low-scale office parks, wholesale/warehouse,
distribution, etc., especially in Auburn and Kent. Much of this is not in direct competition
with Federal Way. Tukwila is the major retail center for South King County and provides
the region's stiffest competition for regional retailers and retail establishments, such as
department and furniture stores, specialty apparel, etc. While the trade area for Tukwila's
retail sector is large, Federal Way lies at the most distant point in South King County
from the Tukwila/Southcenter retail center, and its trade area overlaps or competes the
least with Tukwila. The City of SeaTac provides little competition in the office,
industrial, and retail sectors, but has successfully captured the airport-related lodging
industry, with several higher-quality establishments, including conference facilities.
Renton has historically had a strong economic base tied to the Boeing Company, with
both healthy manufacturing and office sectors; however, both of these sectors have seen a
substantial weakening with the Boeing Company headquarters relocation, work force lay-
offs, and space consolidation. Auburn and Kent have also experienced a substantial
increase in vacant light-industrial building space due to Boeing Company reductions.
Notwithstanding relative levels of competition from other communities in specific
commercial sectors, Federal Way does experience a "competitive" relationship with
several nearby municipal governments that must be taken into account. The City of
Renton is a recognized leader in the county with respect to economic development, with a
particular focus on downtown redevelopment and economic diversification. That city has
invested public funds in land assembly projects that have attracted substantial residential,
mixed-use, and auto dealership developments. Following Renton's lead are the
communities of Kent and Tukwila, which have also targeted key redevelopment
opportunities, acquiring/assembling land and attracting desired mixed-use development.
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FWCP - Chapter Four, Economic Development
Similarly, Renton and Kent provide tax incentives for certain residential development and
provide other financial incentives to desired redevelopment projects. In addition,
Tukwila, Renton, and Kent have made substantial personnel and facilities investments in
improving customer service and turn-around times associated with development permits.
In addition to these five cities in Southwest King County, Tacoma is an important
competitor to Federal Way. Tacoma is an older city that has made many efforts to
improve its downtown and image for more than a quarter century. Tacoma city
government has an aggressive economic development mission and is recognized
regionally and nationally as a leader in the field. It has continually devoted its own funds,
as well as state and federal grants, to stimulate economic development. Tacoma has a
strategic location on the highway system and a strong port with much unrealized
potential. In addition, both the city and suburbs have vacant and redevelopable land, as
well as relatively cheap accessible land for residential development.
Table IV-4
Summary of Economic Conditions in Southwest King County Cities
Auburn Federal Way Kent Renton SeaTac Tukwila
Current -Industrial areas -Regional mall -Industrial land -Business parks -Airport related -Regional retail
Niche -Vacant land -West Campus -Boeing -Mid-rise office -Redevelopable land -Boeing
-Regional mall -East Campus -Business parks -Mid-rise office -Redevelopable light
-Weyerhaeuser Hdq -Vacant land -Mid- and high-rise industrial
-Vacant land & lodging and -Mid-rise office
redevelopable land conference centers -Mid-rise and high-
rise lodging and
conference centers
Opportunities -Commuter rail -Weyerhaeuser -Boeing facilities -Boeing & -Adjacent to SeaTac -Strong retail identify
-Established office, -West Campus -Commuter rail PACCAR~s mfg. & Airport & concentration
business parks, & -East Campus -Established office, office complex -Major HCT -Redevelopment
industrial areas -Large concentration business parks & -Mid-rise buildings Stations planned potential
-Cross-valley hwy of retail industrial areas -Potential -One large strategic -Location at cross-
connector planned -Land assembled for -Cross-valley hwy redevelopment parcel assembled roads 1-405/1-5
redevelopment connector planned areas -Future hwy - cross- -Boeing office/mfg
-Central location -Strengthening -Strengthening roads (1-5 & complexes
between downtown downtown SR509) from -Proximity to SeaTac
Tacoma & Seattle -New Pennit Center -Strong economic Seattle will open Airport & to Port of
-1-5/SR 18 and investment in development focus acres for office and Seattle
crossroads development -City partnership business parks -Commuter rail
-HCT stations revIew resources with private sector unanticipated
-City partnership in redevelopment -Pern1Ît process rec-
with private sector ognized for speed
in redevelopment ofturnaround
-City partnership
with private sector
in redevelopment
Challenges -Distance from 1-5 & -Dispersed -Industrial image -Limited retail -Adjacent to SeaTac -Limited vacant land
major economic development -No prospect for attractions Airport for business &
concentrations pattern HCT -Limited land for -Massive office parks
-Low-scale -Not on commuter -Off-center location business & office redevelopment -Freeway access not
development rail on SR 167 parks required easy or obvious
-OfT-center location -Weak downtown -Small land holdings -Not anticipated to -Land assembly -Limited vacant land
-Wetlands inCBD be on HCT line required -No obvious center or
-Reduction in Boeing -Wetlands -Off-center cross- -Not on commuter focal point within
presence; vacant -Reduction in Boeing roads (1-405 & SR rail Tukwila
buildings presence; vacant 167) -Limited quality -Limited quality
buildings -Reduction in Boeing -residential supply -residential supply
presence; vacant -No obvious center
buildings or focal point
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FWCP - Chapter Four, Economic Development
In summary, any program of economic development for Federal Way must monitor
conditions and trends in Tacoma and Southwest King County, and act decisively and
aggressively to increase the City's strategic position.
Summary of Achievements
Although the City of Federal Way's economic development efforts are relatively new,
several important accomplishments in formulating the City's economic development
strategy have already been accomplished.
#
The City of Federal Way/Federal Way Chamber Economic Development
Committee meets monthly to discuss and develop economic development
strategies and maintain a close and cooperative working relationship.
#
The City has developed Celebration Park which, in addition to the recreational
amenities for City residents, includes tournament-quality soccer and softball
facilities that attract players and tournaments from throughout the Pacific
Northwest, thereby contributing substantial economic activity to Federal Way
through expenditures for lodging, shopping, dining, and other services.
#
In 2001 the City officially incorporated an Economic Development Division
within the Community Development Services Department and hired a Director.
#
With increasing lodging tax revenues, the City of Federal Way Lodging Tax
Advisory Committee has expanded its work plan to include more direct efforts to
stimulate tourism and visitorship to the City.
#
The City has co-founded and co-manages the South King County Technology
Alliance, a working committee of various municipal entities and businesses
within South King County dedicated to fostering further development of the
technology sector within South King County.
#
The City has embarked on a concerted effort, led by senior management, to
improve permit processes and reduce regulatory hurdles to development. In 200 I,
the City worked collaboratively with the Federal Way Chamber and other
stakeholders to raise the thresholds that trigger right-of-way improvements
associated with redevelopment, remodeling, and reuse of existing buildings. In
2002, the City has embarked upon a permit-process improvement effort that
includes a public stakeholder advisory committee and study of best practices
from around the region, and is intended to place Federal Way at the forefront of
regional municipalities in regulating land use and construction effectively and
efficiently.
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FWCP - Chapter Four, Economic Development
4.2
THE ECONOMIC DEVELOPMENT VISION FOR FEDERAL WAY
The vision for economic development in Federal Way can be encapsulated into four basic
areas: I) to retain existing businesses and attract new businesses in order to build a
diverse economic base; 2) to increase the number of jobs within the City relative to the
population of City residents within the labor force; 3) to foster redevelopment of the City
Center from a low-scale, suburbanized commercial area to a full-service, high-density,
mixed-use, and more pedestrian-fuendly urban core and community focal point; and 4) to
build upon and expand the City's recreational and cultural assets to increase visitors to
the City and encourage greater visitor spending within the local economy. The strategy
encourages or accelerates the trends and transformations that are already occurring in this
community. The major objectives of the strategy include the following:
# Provide a better balance between housing and jobs by increasing the number of
jobs within the City relative to the number of households.
#
Diversify the economic base by encouraging higher paying white collar and
technical jobs while preserving and enhancing the strong retail base.
#
Generate more demand for hotel room-nights through growth in office and
business part space.
#
Foster horizontal mixed-use employment sector growth in the South 34Sth Street
area in the near term (2000-2005).
#
Foster continued Corporate and Office Park employment sector growth in East
and West Campus in the mid-term (2000-2010). It should be noted that East
Campus has recently been experiencing a high rate of growth and may reach
build out during this time period.
#
Emphasize private redevelopment and land assembly through the I-5/SR-99
corridor, especially in the City Center, as well as the 34Sth and 336th areas.
#
Redevelop and improve the quality of the mixed use development along Pacific
Highway South from South 272nd Street to South 356th Street (2000-2010).
#
Foster mid-rise, mixed-use employment sector growth in the City Center (2000-
2020).
#
Encourage quality development throughout the City to attract desirable economic
development in Federal Way.
#
Maintain and improve the quality and character of the existing residential
neighborhoods.
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FWCP - Chapter Four, Economic Development
#
Promote high quality, higher density residential neighborhoods in the City Center
and Highway 99 corridor in close proximity to jobs and good public transportation.
#
Continue to work with the lodging providers to promote year-round vistorship to
the City to encourage visitor spending as an important component of a growing
local economy.
#
Work with other agencies to provide services for education and training, as well
as social services and other remedial programs for the underemployed and the
unemployed.
Future Regional Role for Federal Way
#
Encourage greater diversity in the economic base by aggressive pursuit of a
broader range ofthe components of the regional economic activity, as well as
greater participation in international/Pacific Rim economic activity.
#
Increase its share of local resident-serving retail and services, and increase its
share of regional, national, and international oriented business firms.
#
Increase its capture of region-serving office development.
#
Emphasize private redevelopment and land assembly through the I-5/SR-99
corridor, especially in the City Center, as well as the 348th and 336th areas.
#
Strengthen the City Center as the City's focal point for commercial and
community activities. Transform the City Center into a regional commercial
destination, as well as a major transit hub.
#
Generate more demand for hotel room-nights through growth in business park
and office space, as well as recreational and cultural amenities that draw visitors
from throughout the Pacific Northwest and beyond.
#
Take advantage of its location with respect to the Ports of Tacoma and Seattle, as
well as the SeaTac International Airport.
# Public and private sectors in the Federal Way area act cooperatively and
. aggressively to attract firms from throughout the region, the nation, and other
countries.
#
Actively pursue relationships with areas in other parts of the Pacific Rim region
for trade, commerce, and cultural advantage.
#
Actively pursue cooperation and collaboration with other nearby municipalities,
organizations, and firms to market Federal Way and South King County for
technology-related enterprises.
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FWCP - Chapter Four, Economic Development
Retail Areas
#
SeaTac Mall and other regional retailers within the City redevelop/reposition to meet
changing consumer demand and become more competitive with other regional
retailers.
#
High-volume retail in Federal Way increases faster than population.
#
Growth in resident-serving retail occurs in the City Center, existing commercial
nodes, new nodes around the 1-5/South 320th and 1-5/SR 18 interchanges, and in
redevelopment areas along SR-99.
# Neighborhood scale retail development keeps pace with population growth and to an
increasing extent, is accommodated within mixed-use buildings in more concentrated
neighborhood villages.
#
Pedestrian-oriented retail development emerges gradually in the redeveloped City
Center.
#
Small amounts of retail use occur on the ground floor of offices, residential buildings,
and parking structures.
#
Neighborhood scale retail development in concentrated neighborhood villages
emerges in response to growth in multiple-family concentrations in the I-5/SR-99
corridor and new single-family development on the east side ofI-5.
#
Old, outdated strip centers along the SR-99 corridor redevelop as a mix of retail,
office, and dense residential uses.
#
The large truck-stop facility at the intersection of Enchanted Parkway and South
348th Street is redeveloped into a retail or mixed-use commercial center.
Office Development
#
Offices of regional, national, and/or international firms locate in West Campus, East
Campus, and the City Center.
#
Garden, high-rise, and mid-rise office space, and modem light-industrial buildings
increase rapidly in areas with land assembled for business parks and in redeveloped
retail areas.
#
Office development is integrated with retail, residential, and business parks.
#
Federal Way attracts more corporate regional headquarters and regional offices.
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FWCP - Chapter Four, Economic Development
#
Smaller, older, outdated office structures are replaced with newer uses.
#
Integrated, campus-like high amenity areas are encouraged for corporate
headquarters and modem research/development of high technology uses east ofl-5.
#
Development of technical and research space increases in East and West Campus.
#
Federal Way attracts more high-tech firms and firms whose business is related to
high-tech industries.
Business Park (Light Industrial) Development
#
Business parks contain a mix of uses in and among buildings as dictated by the
market for high quality spaçe.
# The City should explore potential changes to the Business Park zoning designation to
meet changing market conditions and make the development of Business Park-zoned
land more economically viable.
Residential Areas
#
High quality residential areas are important for attracting and retaining businesses.
#
A range of housing types, densities, and prices allow the broad spectrum of
employees to live near their work and recreation.
#
The City of Federal Way encourages integration of high density housing with retail
and other uses, especially along SR-99 and in the City Center.
Institutional, Educational, Cultural, and Recreational Development
#
The City of Federal Way will continue to work closely with existing institutional
entities (such as St. Francis Hospital, Federal Way School District, King County
Library, etc.) as important components of a full-service local economy.
#
Federal Way's reputation as an important center for amateur sports competition and
participation grows stronger, leading to potentially new facilities and venues, as well
as increased visitorship and visitor spending in the local economy.
# Federal Way's cultural assets increase in both scope and number, gaining greater
patronage and attracting visitors from beyond the City limits. New cultural
establishments are developed in Federal Way, such as museums, exhibitions, and
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FWCP - Chapter Four, Economic Development
performance venues. Likewise, new cultural events become established in Federal
Way, such as music festivals, art shows/festivals, etc.
#
#
Stimulate quality development of region-serving institutional and technical facilities.
Existing recreational amusement facilities continue to develop as regional tourist
attractions.
#
The City of Federal Way creates working partnerships with institutions of higher
education in order to encourage and support their expansion and further integration
within the Federal Way economy, as well as to identify and exploit increasing
opportunities for economic development.
4.3
FORECAST OF ECONOMIC GROWTH IN FEDERAL WAY
The growth forecasts used in this chapter are derived from the 2000 Market Analysis and
2002 City Center Market Analysis, prepared by ECONorthwest, while other chapters are
based on the PSRC regional forecasting model.
In summary, probably the strongest sector in the near-term (five years) will be the retail/
services sector. About 1.5 mì1lion additional square feet of retail tenant space may be
expected during the next 20 years, with commercial areas throughout the City and the
City Center alike sharing in the development. One particular sector that appears under-
represented is the quality restaurant sector, in which the City will likely see additional
development.
Demand for new office development will likely be somewhat low in the near term, as
office vacancies have risen substantially and rents have correspondingly fallen, region-
wide. In addition, several office buildings, particularly in the West Campus area, exhibit
substantial vacancies that can readily absorb near-term demand in the City. Nevertheless,
the long-term picture looks good, with continued demand for and interest in office space
in Federal Way, particularly in the East and West Campus areas. City Center office
development will likely lag behind for most of the planning horizon. However, generous
zoning, panoramic views, and proximity to the freeways and transit may start to make the
City Center a more attractive location for mid- to high-rise office development in the 10
to 20-year time frame.
With regard to housing, only a small amount ofland remains in the single-family zoning
districts to accommodate new single-family dwellings. As a consequence, the vast
majority of new residential development will have to take the form of townhouses, walk-
up apartments, mid-rise apartments, and mixed-use buildings and/or high-rise residential
buildings. As with the condition for single-family development, the majority ofthe multi-
family-zoned land is also already developed, leaving primarily the commercial zones and
City Center as the potential location of a great deal of the future residential development.
Nevertheless, higher land values and construction costs, and lower relative rental rates
compared with other communities in the region, act as barriers to residential development
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FWCP - Chapter Four, Economic Development
within the City Center in the near term, unless public-sector actions create financial
incentives, reduce development costs, or otherwise create conditions attractive to housing
developers. Therefore, in the short term, most multi-family housing developments will
continue to be seen in the remaining multifamily-zoned areas and in the neighborhood
commercial areas or other commercial areas along Pacific Highway South. While multi-
family housing is generally not permitted in the Business Park zones, this zone will
continue to accommodate senior housing developments, as has been seen in recent years.
In the longer term, assuming no public-sector incentives, as rental rates rise and demand
increases, housing developers will likely respond to the opportunities for development
within the City Center, and begin to add multi-family housing there, as well.
Substantial new lodging development in Federal Way is not anticipated in the near term,
unless actions are taken to increase demand substantially. With business travel somewhat
cut back due to increasingly burdensome airline-travel procedures since September 11,
200 I, the demand for hotel rooms has dropped. Business-related travel may be slow to
return to earlier levels. Sports-related lodging demand during the late Spring, Summer,
and early Fall has been solid over the past few years and is expected to increase, although
development of new lodging facilities will likely not follow increased demand during
only a few months of the year. If sports- or event-related facilities are developed within
the City that could accommodate off-season events, it is likely that more near-term
demand for lodging would rise and could occasion development of new facilities within
the five-year timeframe.
Like all forecasts, these should be periodically monitored relative to the real estate market
and economic conditions in South King County, the Central Puget Sound region, and
Federal Way. In addition, the economic development policies and underlying assumptions
related to local and regional decisions concerning infrastructure, transportation systems,
and land use regulation should be carefully monitored.
4.4
IMPLEMENTATION
Attributes of Successful Economic Development Programs
Successful economic development programs typically have the following attributes. First,
they receive material support and leadership from the mayor, City Council, and senior City
staff. Second, the municipal leadership is willing to work creatively and cooperatively with
private sector leaders and businesses to accomplish economic development goals. They
have the ability and find the resources to target infrastructure projects and programs to
encourage development or redevelopment of specific areas. To do this, they work
aggressively to secure state and federal funds for local public and private assistance.
Likewise, City staff is empathetic toward economic development goals and
knowledgeable about working within City legal constraints, budget constraints, and
community tolerances to assist businesses and the real estate development process. The
staff also has the ability to react and make decisions quickly and consistently to provide
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FWCP - Chapter Four, Economic Development
assistance for private sector dealings with the public planning and regulatory processes.
The staff s ability to link several programs, team up with other departments, and leverage
limited funds allows them to take meaningful and effective action. In addition, the City
should be creative and open to exploring and adopting innovative regulatory and
incentive programs to attract and retain businesses and development projects, such as
SEP A planned actions and developer agreements. Key among such programs should be
any feasible efforts aimed at predictable and streamlined permitting processes.
The City's Role in the Economic Life of a Community
In the State of Washington, the direct actions that cities can take to encourage economic
development have historically been more limited than in other states. Nevertheless, in the
past few years several new and important tools have been made available to local
communities to help encourage redevelopment, retain/attract jobs, and foster "smart
growth." These tools include:
#
Community redevelopment financing (similar to tax increment financing)
#
Limited tax abatement for multifamily development
#
Community empowerment zone designation
#
Community renewal act (updated and expanded version of former urban renewal)
#
Tax deferrals and exemptions for high technology businesses and investment, as
well as manufacturing investment
#
Industrial revenue bonds
Notwithstanding these state programs, there are still substantial constraints on the scope
of actions a city government can do with respect to economic development activities.
However, one of the most significant direct actions a city can take is to provide the
necessary infrastructure. This includes: 1) developing long term facilities expansion
plans; 2) designing the specific systems and projects; 3) raising or borrowing local funds
to finance the projects or act as a conduit for state, federal, and intergovernmental funds;
and, 4) forming public-private partnerships to jointly construct projects.
Second, a city can deliver high quality and cost effective urban services. These necessary
services include police and fire protection; parks, recreation, and cultural services; social
services and job training; and a well-run land use planning and regulatory process. In
addition, a city can actively participate in public/private groups designed to help
businesses and the development community as they work their way through the state and
federal regulatory processes.
Third, a city can directly impact economic development by doing market research or by
being a landowner and developer. For example, a city could develop, maintain, and
disseminate data and analysis on local development conditions and trends, as well as
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FWCP - Chapter Four, Economic Development
monitor important trends and assumptions upon which plans, programs, and strategies are
based. In addition, a city can buy land, aggregate parcels, and make necessary
improvement so that it is ready for new development or redevelopment. For some projects,
a city can issue industrial revenue bonds or other tax-free municipal bonds. This also
allows a city to joint venture with a private sector partners for appropriate development.
In terms of indirect roles, a city can act as a facilitator to convene public and private
entities to work on issues of local importance and reach consensus. Preparation of a
comprehensive plan is an example of this important indirect action. A city can act as a
representative oflocal resident's and business's interests in resolving regional and
countywide problems such as traffic congestion, housing, and human service issues. A
city can also mobilize local community support for important projects and problem
solving; and work to improve the overall image of the community and in doing so, make
the community more attractive for economic development.
Lastly, a city's public investment in municipal facilities, such as city administrative
offices, judicial/court facilities, community centers, and cultural and recreational venues
can be a factor in inducing further economic development. By targeting a subarea for an
infusion of redevelopment investment and daytime population, nearby businesses not
only may see a greater captive market, but may also be encouraged to remodel, renovate,
and/or improve their establishments. Cultural and recreational facilities can have a wide
range of economic impact, from simply attracting residents to a particular part of the city
(e.g., city center) more frequently where they may patronize other businesses, to
attracting visitors from around the region and country who will bring new revenue to the
local economy through lodging, restaurant, and goods/services expenditures.
General Approaches to an Economic Development Strategy
There are basically four local economic development strategies that impact the level of
private business growth in a community.
#
First, studies of employment growth experience in local communities in the United
States show that the large majority of new jobs are generated by expansion and
retention of businesses that are already located in the community. A city's role in
this strategy is to help businesses resolve problems so that they can expand locally
rather than move to another community. Problem resolution includes helping a
business find a larger more suitable site, work through a land use or zoning
regulation problem, or access necessary infrastructure. This strategy typically has
low to moderate cost implications and a high probability of success.
#
Second, the relocation of firms from other parts of the country or new plant
locations are rare and do not account for a significant share oflocal employment
growth relative to overall employment growth in the United States. However,
when new firms do relocate to the community, the boost in the local economy
can be great and the "press" can attract the attention of other firms. Local
governments can attract new business to their community through aggressive
marketing strategies (websites, brochures, etc.), close collaboration with regional
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FWCP - Chapter Four, Economic Development
economic development councils and chambers of commerce, and through
financial incentives. This strategy has high risk for the number of successes and
has a high cost.
#
Third, new businesses that are the result of new business start-ups, spin-offs from
existing local firms, and new business ideas and technologies are another
effective way that communities increase employment and businesses within a
local area. Local government encourages new business formation usually through
indirect methods. These strategies can have moderate-to-high costs depending on
the specific actions and low-to-moderate degree of success.
#
Fourth, tourism and visitorship can be very important components of a local
economy. A city with recreational or cultural assets that draw visitors can build
upon these assets to increase the numbers of visitors, the length of their stays, and
the amount of money they spend in the local economy. Local government can
work to market the community and its assets beyond the immediate region to
bring in new economic activity and can invest in recreational or cultural
infrastructure to attract more events and/or visitors.
Human Resource Programs
In addition to the economic development strategies discussed in the previous section,
human resource development programs are another general way whereby cities can
support economic development. These programs are often not included as parts of an
economic development program because they focus on assisting people-the human
resource for businesses. However, improving and remediating human resources is an
important long run approach. The previous four general approaches to economic
development strategies try to raise revenues, reduce costs, or reduce risks for business
location, facility investment decisions, and operating decisions of businesses.
Human resource programs make a community attractive to new and existing businesses
by improving the local labor force. Components of a human resources program may
include: I) providing temporary support for underemployed workers, unemployed
workers, and their families; 2) providing job training and retraining to improve an
individual's ability to enter or remain in the work force; 3) creating referral and other
programs that allow labor resources to become more mobile and to respond to
information about job openings; and, 4) by providing social service programs that meet
the needs of community residents who are temporarily not able to participate in the
economy. In many instances a City's human resources program addresses some, if not all,
ofthese human resource development objectives.
Economic Development Strategy For Federal Way
As with many cities, Federal Way will have limited funds with which to pursue its
economic development goals. The City will have to use its resources in a focused and
prioritized manner to have a positive impact on the local economic base. Table IV-5
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FWCP - Chapter Four, Economic Development
(page 22) summarizes how Federal Way will implement an appropriate economic
development strategy.
Table IV-5
Economic Development Areas and Actions
Sub Area of Who Initiates What Land Uses Are How Are They
Federal Way Action Encouraged Encouraged Reasons Timing
PRIMARY ECONOMIC AREAS
City Center Public wi Midlhigh-rise office. Sound Transit Station. To increase capture of Emphasis 5-IO
private support. High-density MF In-fill infrastructure. regional growth. (20) years.
residential. Public amenities. To provide community
Civic/cultural, Market amenities and assets focal point/core.
recreational, Potential tax incentives. To obtain more full-range
Pedestrian-oriented SEPA Planned Action~ of goodsl services in City~
retail.
344thto Public wi Mix oflow-rise office Regulations that encourage Large parcels allow this Emphasis 0-5
356th/SR99 private support. & light industry. high-quality design. subarea to respond to the (10) years.
"Big box" retail. Aggressive infrastructure market for business &
Investment. industrial park uses in
Large land assembly. Southwest King County.
West Campus Current Buildout & maintain Facilitate buildout through One of the City's prime Ongoing in
landowners. quality. predictable, efficient commercial amenities as response to
perrmttmg process. one of the highest quality market.
Assist maintenance of master planned
infrastructure and public developments in the
areas. Pacific Northwest.
East Campus Weyerhaeuser High-quality corporate Predictable, efficient One of City's prime In response to
Corp. & office parks. permitting process. commercial amenities. market &
Assist maintenance of Large landownership with corporate
infrastructure and public vision, resources, & track actions.
areas. record can attract major
Investors.
336th linkage: Public wi High density MF. Land use & capital Provide housing & su- As appropriate
four primary private support. Low rise office. improvements for gradual pport services for for market.
economic dvpt Supportive retail. redevelopment/in-fill. economIc areas.
areas. Public amenities. Transportation infrastructure.
Old Hwy 99 Public wi High capacity & Land use & capital Provide a range ofho- As appropriate
outside of main private support. business related. improvements for gradual using & support services for market.
economic areas. High density MF redevelopment & in-fill. & retail for economic &
residential. Aesthetic improvements residential areas.
Low rise office. through sign code and urban
Auto-oriented retail. design guidelines.
Neighborhood
commercial.
High densitv MF Predictable, efficient
Areas around 1- residential.
permitting process. Provide a range ofho-
5/South 320th Current Low rise office.
Aesthetic i1T1Provements using & support services As appropriate
and I-5/SR 18 landowners. Auto-oriented retail. through sign code and urban & retail for economic & for market.
interchanges. Neighborhood
design guidelines. residential areas.
commercial.
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FWCP - Chapter Four, Economic Development
Economic Development Goals
The City of Federal Way will not wait for market forces to create the future, but will act
to shape and accelerate the evolving market trends in the direction of its vision. The City
will pursue the following goals to implement economic development.
Goals
EDGI
EDG2
EDG3
EDG4
EDG5
The City will emphasize redevelopment that transforms the City from a
suburban bedroom community to a full-service community with an urban core.
The City will encourage concentration of non-residential development into four
pnmary areas:
P High-density mixed-use development in the City Center (3lih and 3201\
SR-99 to 1-5)
P Mixed-use development in the area around 348th and SR-99 and around
the 1-5/South 320th and 1-5/SR 18 interchanges
P High-quality office park development, including corporate headquarters,
continued in and around West Campus
P High-quality office development, including corporate headquarters in a
park-like campus setting east of 1-5
The City will help facilitate redevelopment of existing neighborhood
commercial centers in the SR-99 corridor and the 336th area between West and
East Campus.
The City will channel further residential growth into existing multi-family and
commercial-zoned areas, with a particular goal of encouraging residential
development in the City Center.
The City will encourage and support the development of recreational and
cultural facilities and/or events that will bring additional visitors to Federal
Way, and/or increase visitor spending.
EDG6 The City will encourage and support existing businesses to remain and/or expand
their facilities within Federal Way.
Economic Development Policies
EDPI
EDP2
Redevelopment of the City Center will receive special attention in the FWCP.
The City will explore the feasibility and utility of a process to master plan the
City Center, jointly funded by public and private entities, to encourage
appropriate redevelopment.
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FWCP - Chapter Four, Economic Development
EDP3
EDP4
EDP5
EDP6
EDP7
EDP8
EDP9
The City will continue to seek high-quality urban design and infrastructure
standards for these areas.
The City will prepare a SEP A Planned Action for the City Center so that
compliant development proposals may receive permit approvals with a
minimum of environmental review.
The City will complete designs for public infrastructure to be jointly funded by
the City and private landowners.
The City will work actively to formulate ways for joint public/private funding
of infrastructure.
The City will develop zoning, permitting, and potential financial incentives that
encourage prioritized development consistent with comprehensive and subarea
plans and orderly, phased growth.
In order to encourage efficient and desired development and redevelopment of
existing land designated and zoned for various types of commercial uses, when
considering proposals for comprehensive plan amendments and rezones to
commercial designations and from one commercial designation to another, the
City will consider development trends in commercially zoned areas, market
demand for various types of commercial land, and amount of vacant
commercial land.
The City will utilize innovative planning techniques such as Planned Unit
Developments, and developer agreements to aid in efficient and predicable
permitting for large developments.
EDPIO The City will explore innovative financing techniques such as Local
Improvement Districts, Industrial Revenue Bonds, and other innovative
financing tools to encourage desired redevelopment.
EDPll The City will work with the private sector to actively encourage the retention
and expansion of existing businesses, as well as bring in new development,
businesses, and jobs to the community.
EDP12 The City will promote the community by working with the Federal Way
Chamber and the private sector to develop marketing tools that attract new
businesses, visitors, and investments.
EDP13
The City will develop and manage an economic development web page that
promotes business and development within the community, provides an interactive
database of information of value to businesses and developers, and involves the
participation of the Federal Way Chamber and other stakeholder groups.
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FWCP - Chapter Four, Economic Development
EDP14 The City will fund its portion of the public/private groups to allow them to do
an effective job in marketing the community.
EDP15 The City will continue to utilize design guidelines to enhance the urban
environment to retain and attract businesses and residents.
EDP16 The City will adopt streamlined permitting processes consistent with state and
federal regulations to reduce the upfront costs oflocating businesses in the City.
EDP17 The City will continue to pursue aggressive public safety programs designed to
protect residents, businesses, and their investments.
EDP18 The City will encourage strong public and private leadership to solicit
community support for internal and external funding assistance.
EDP19 The City will periodically monitor local and regional trends to be able to adjust
plans, policies, and programs.
EDP20 The City will actively work with representative groups of business and property
owners, including the Federal Way Chamber and other local business
associations, to enhance citywide and subarea improvements and planning.
EDP21 The City, in conjunction with the local business community, will actively pursue
ties to Pacific Rim nations and businesses to stimulate related business activity.
EDP22
The City recognizes the importance of cultural and recreational activity to its
economy and through the Arts Commission and Parks Department will pursue
joint ventures with private groups and individuals in developing cultural and
recreational opportunities.
EDP23 The City will encourage the expansion of existing and development of new
multi-purpose facilities to host cultural and recreational activities in order to
increase the number of visitors to Federal Way and resultant visitor spending.
EDP24
The City will continue to market the community for, and encourage development
of, businesses in the high-tech sector. This effort will include exploration of
regulatory and/or financial incentives to attract high-tech businesses and
collaboration with regional communities, businesses, and local institutions of
higher education to promote Federal Way and South King County.
EDP25
The City of Federal Way will strive to create working partnerships with
institutions of higher education in order to encourage and support their
expansion and further integration within the Federal Way economy, as well as
to identify and exploit increasing opportunities for economic development.
EDP26 The City will consider opportunities to partner with local human-service
organizations to assist in providing human resources development programs for
unemployed or under-employed workers.
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FWCP - Chapter Four, Economic Development
The foregoing policies will assist the City of Federal Way to pursue an accelerated
transformation toward the community's vision of its future.
Table IV-6 (page 27) describes the four major employment, economic activity areas of
the City that will receive the bulk of future commercial and industrial development. The
table summarizes the characteristics, location, and planning process required as well as
the major transformation required. The major public and private actions required for each
area are listed.
The Land Use and City Center chapters of the FWCP describe these four areas in more
detail. Table IV-6 describes the current ownership pattern and major activities where the
City will act affirmatively to transform these areas so that an increased share of regional
growth will be attracted to the City. In the areas of multiple ownership, control and
implementation of the community's vision will require more explicit effort and resources
. from the City government. Both West and East Campus have, or will develop, their own
high standards for quality of the new development.
The type of development expected to occur in each of the four major economic sectors
important to Federal Way's vision is related in Table IV-7 (page 28). Also related in the
table are who the main competitors will be for each of these four areas. The land use
policies and regulations for each area should accommodate and encourage these
activities. These policies and regulations are discussed in the Land Use, City Center, and
Transportation chapters of the FWCP. U
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Vertical Mixed City Center Master-Planned Mixed Master Planned Corporate Horizontal Mixed-Use
Campus Campus Business Parks
Area 31zth1320th West Campus East oft-S 344th13S6th
Ownership Diverse Diverse Single Diverse
Planninl!: Joint PubliclPrivate Private emphasis Private Emphasis Joint Public/Private
Major Transformation Activity Increase office and residential Infill and continue trend Vacant to high quality corporate Scattered industrial retai I
sectors in mixed-use buildings since 1974. headquarters & high tech. to qualitv mixed used.
Maior Public Actions
Comprehensive Plans C C C C
Subarea Plans C Private Private C
Design Standards C C C C
Environmental Impact Analvsis C C C C
Infrastructure Planning C C C C
Infrastructure Design C Private Private C
Financing Joint Private Private Joint
Examples Seattle CBD West Campus Redmond Willows Road High Tech Corridor
Burnaby BC High Tech Corridor Harbor Pointe Renton
Bellevue Tukwila
Vancouver, W A Kent
Walnut Creek, CA Auburn
Scottsdale, AZ Lynwood
FWCP - Chapter Four, Economic Development
C~City initiates and leads action
D
Table IV-6
t Zones: D
I
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FWCP - Chapter Four, Economic Development
Market Segment Characteristics Current Competitive Vertical Mixed Master-Planned Master-Planned Horizontal Mixed-
Examples City Center Mixed Camnus Cornorate Park Use Business Parks
RETAIL
High Cube Freeway access Moderate amenities 348th & SRI8
High Volume Cheap land/space X
Locates retail or light industrial areas
Festival High density population & employment Pike Place Market
Regional draw Bellevue Square X
Retail & restaurants Westlake Center
Mall stores Edmonds LaConner
Employment & Resident High auto or pedestrian traffic Southcenter X X X X
Supporting Tacoma Mall Auburn
Mall Rapidly growing population Southcenter X
Mall-like Freeway access Tacoma Mall
Hotel Serves employmen't centers SeaTac Tacoma X Only at freeway
Provides meeting space Tukwila intersection
OFFICE
Garden $Heavy landscape $Low pedestrian levels Older Bellevue
$Low/moderate inlout traffic Redmond
$Small businesslprofessional & business Renton & Tukwila X X
services, FIRES
$Serves local & regional business along arterials
$Auto oriented $Residential areas close
Mid-rise $Larger tenants, sub-regional & regional Bellevue Tukwila
$Moderate landscape $Moderate in & out Renton Lynnwood
$Small/medium business services, medial/dental Queen Anne Factoria X X X Occasionally if part of
FIRES Lake Union Tacoma Master Plan
$Branch offices $Some transit Elliott Way
$Surface parking or on deck Freeway interchanges
High RiselHigher $ Pedestrian traffic $High amenities SeattJe
$Public transit $ Larger businesses Bellevue
$Moderate traffic $Professional services Tacoma
$Headquarters, branch offices X X
$Regional serving F.l.R.E.S.
$Underground or deck parking
BUSINESS PARKS
$Auto/truck oriented $Warehouselretail High Tech Corridor
$Cheap land $Govemment offices Eastside
$Employment density Renton
$Manufacturing assembly Tukwila X X
$Office local/regional Kent
$Professional & business service Lynn wood
$Distribution & service
D
I
Table IV-7
Zones and L
dU
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ENUM~W
---,
CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
SOUTHWEST KING COUNTY
AND
NORTH PIERCE COUNTY
SUB-REGION
ECONOMIC DEVELOPMENT ELEMENT
N State Boundary
.:".: County Boundary
N State Highways
N Federal Way City limits
+.
-SCALE-
11""" &qUols 21.000 FolII:
,~ Federal Way
MAP IV-1
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The City of Federal Way mabc no warranty IS In hi aa:uracy
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