Res 04-436
RESOLUTION NO. 04-436
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF FEDERAL
WAY, WASHINGTON, DOCUMENTING PROGRESS TO DATE AND
ESTABLISHING A SCHEDULE FOR COMPLETING THE SEVEN-
YEAR UPDATE TO THE CITY'S GROWTH MANAGEMENT ACT
COMPREHENSIVE PLAN AND DEVELOPMENT REGULATIONS
WHEREAS, the Growth Management Act of 1990, as amended, (Chapter 36.70A RCW or "GMA")
requires the City ofF edera1 Way to adopt a comprehensive plan which includes a land use element (including 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, RCW 36. 70A.130( 4) requires that the City of Federal Way, a "fully planning" city within King
County shall update its comprehensive plan and development regulations, as necessary, to reflect local needs,
new data, and current laws; and
WHEREAS, updates can be done on a continuing basis, but must be done in a deliberate manner every
seven years according to a schedule established by RCW 36.70A.130(4); and
WHEREAS, the deliberate GMA Update process includes four basic steps: (1) establishment of a public
participation program that identifies procedures and schedules for the review, evaluation, and possible revision
process; (2) review of relevant plans and regulations; (3) analysis of need for revisions; and (4) adoption of an
appropriate resolution and/or amendments; and
WHEREAS, RCW 36.70A.130(1) requires counties and cities to "take legislative action" to determine
whether or not to revise a plan or regulation; 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
RES # 04-436 , PAGE 1
ORIGINAL
2, 1996; and subsequently amended the comprehensive plan, land use map, and zoning map on December 23,
1998, September 14, 2000, November I, 2001, March 27,2003, and July 20,2004; and
WHEREAS, the City Council adopted the seven-year update process to its comprehensive plan on March 27,
2003; and
WHEREAS, pursuant to Article IX, Chapter 22 ofthe Federal Way City Code (FWCC), and consistent with
RCW 36.70A.130(2), the City accepts applications for amendments to its comprehensive plan and
development regulations no later than September 30th of each year for review and action during the following
year; and
WHEREAS, under RCW 36.70A.130, the plan and development regulations are subject to continuing
review and evaluation, but the plan may be amended no more than one time per year; and
WHEREAS, as part of its comprehensive plan and development regulations update, the City has established
a public participation program, which consists of a docket program, notification of citizens interested in
applying for amendments to the comprehensive plan and development regulations; publishing notices in the
paper, and posting notices on all official notice boards; and
WHEREAS, as part of the seven-year update completed on March 27,2003, and subsequent amendments,
the City has updated all chapters of the comprehensive plan to reflect local needs, new data, and current laws,
as shown in Exhibit A, attached hereto; and
WHEREAS, in compliance with the Growth Management Act (RCW 36. 70A.215), the City ofF ederal Way
has determined the actual density of housing development, and has determined that development to be
consistent with the City's comprehensive plan; and
WHEREAS, prior to the update deadline of December 1,2004, the City has reviewed its comprehensive plan
and development regulations and has determined which revisions to the plans and regulations have been
completed and which revisions are still outstanding; and
WHEREAS, subsequent to its seven-year update, the City has been made aware of new Hearings Boards
decisions, which may affect its compliance with the Growth Management Act;
RES # 04-436 , PAGE 2
Now, THEREFORE, the City Council of the City of Federal Way does hereby resolve as follows:
Section 1. Compliance
A. The City of Federal Way comprehensive plan and development regulations, as set forth in Exhibit A
attached hereto, is in substantial compliance with the GMA.
B. The City will continue to update its comprehensive plan and development regulations annually.
C. As part of its 2005 Comprehensive Plan Update, which commenced October 1, 2004, the City will
update its Transportation element to address concurrency requirements, as necessary; the Housing element of
the City of F ederal Way Comprehensive Plan will be amended as necessary to adopt policies that facilitate the
provision of sufficient development capacity to accommodate its housing targets for the 2001-2022 planning
period of 6, 188 households; the Official Zoning Map and/or its development regulations shall be amended as
necessary to address reasonable measures to provide sufficient capacity to accommodate its housing targets for
the 2001-2022 planning period of 6,188 households; and the comprehensive plan designations and zoning map
will be amended as necessary based on a review of existing comprehensive plan designations and zones with
densities of less than four dwelling units per net acre to determine whether they contain environmentally
sensitive systems that are large in scope (e.g., watershed or drainage sub-basin), their structure and functions
are complex and their rank order value is high.
Section 2. Severability. The provisions of this resolution are declared separate and severable. The
invalidity of any clause, sentence, paragraph, subdivision, section, or portion of this resolution, or the invalidity
of the application thereof to any person or circumstance, shall not affect the validity of the remainder of the
resolution, or the validity of its application to any other persons or circumstances.
Section 3. Ratification. Any act consistent with the authority and prior to the effective date of this
resolution is hereby ratified and affirmed.
RES # 04-436 , PAGE 3
Section 4. Effective Date. This resolution shall be effective immediately upon passage by the Federal Way
City Council.
ADOPTED by the City Council ofthe City of Federal Way at a regular meeting of the City Council on the
7th day of December
,2004.
ApPROVED: I
City Clerk, N. Christine Green, CMC
ApPROVED AS TO FORM:
/)
-r~4 ;r~
City Attorney, Patricia A. Richardson
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
RESOLUTION NO.:
11/30/04
12/7 /04
12/7 /04
04-436
1:\2004 Comprehensive Plan\Update Status\111504 Packet\Resolution.doc/l1l30/2004 3:02 PM
RES # 04-436 , PAGE 4
CITY OF ~
Federal Way
COMPREHENSIVE PLAN
Adopted November 1995
Revised December 1998
Revised 2000, 2002, 2003
Table of Contents
CITY OF FEDERAL WAY
Comprehensive Plan
Chapter Page
Contents Lists of Tables, Maps, Figures, and Charts C-2
One Introduction 1-1
Two Land Use 11-1
Three Transportation 111-1
Four Economic Development IV-l
Five Housing V-I
Six Capital Facilities VI-l
Seven City Center VII-l
Eight Potential Annexation Areas VIII-l
Nine Natural Environment IX-l
Ten Private Utilities X-I
Glossary of Terms G-l
List of Acronyms G-ll
FWCP - Table of Cootents
List of Tables
Chapter Two - Land Use
Table 11-1
Table 11-2
Table 11-3
Household Targets by King County Urban Subarea
South King County Subarea Household Targets, 2001-2022
Land Use Classifications
Chapter Three - Transportation
Table 111-1
Table 111-2
Table 111-3
Table 111-4
Table 111-5
Table 111-6
Table 111-7
Table 111-8
Table 111-9
Table 111-10
Table 111-11
Table 111-12
Table 111-13
Table 111-14
Table 111-15
Table 111-16
Table 111-17
Table 111-18
Table 111-19
Table 111-20
Table 111-21
Transportation Plan Chapter Subsection
Key Service Providers
Characteristics of Functional Classifications of Streets
Washington State Access Classification System,chapter 468.52 WAC (7-14-94)
City of Federal Way Access Management Standards
Planning and Operational Levels of Service
Major Street and Roadway Improvements
Transportation Systems Management (TSM) Strategies Applicable to Federal Wa
Intelligent Traveler Systems (ITS) Applications in Federal Way
Purposes of Walking and Biking Trips
Non-Motorized User Problems and Solutions
Transportation Improvement Program (TIP) NORMotorized Improvements
Evaluation of Transportation Demand Management (TDM) Strategies
Federal Way Mode Split Survey Results
METRO Improvement Plan Projects in Federal Way
Work Trips and Mode Split Estimates
TIP High Occupancy Vehicle (HOV) Improvements Federal Way
Transportation Improvement Plan (TIP) - 1998-2004
Capital Improvement Program (CIP)- 2005-2015
Federal Way Comprehensive Plan's Impacts to Highways of Statewide
Significance - 2000 to 2020
Impact to City Streets From State's Failure to Irovide Adequate Capacity
on Highways of Statewide Significance in 2020
Chapter Four -Economic Development
Table IV-l
Table IV-2
Table IV-3
2000 Covered Employment Estimates
2001 Sales Prices of OwneF-Occupied Homes in King County
Average Mult~Family Rents, Spring 2002
Revised 2003
C-2
FWCP - Table of Cootents
Table IV-4
Table IV-5
Table IV-6
Table IV-7
Summary of Economic Conditions in Southwest King County Cities
Economic Development Areas and Actions
Development Zones: Description
Development Zones and Land Use
Chapter Five - Housing
Table V-l
Table V-2
2000 H.U.D. Income Levels by Household Size
Affordable Housing for Various Income Segments
Chapter Six - Capital Facilities
Table VI-l
Table VI-2
Table VI-3
Table VI-4
Table VI-5
Table VI-6
Table VI-7
Table VI-8
Table VI-9
Table VI-l 0
City of Federal Way Facilities Plan- 1998 to 2014, Surface Water
Management Component
Summary of Existing Park; and Recreation Areas
Parks Six-Year Capital Improvements Plan, 2002-2007
Summary of Existing Community Facilities
Project Community Facility Needs, 2001- 2010
Summary of Existing Faciliiies Capacities
Federal Way School District Student Forecast
Federal Way School District Si~Year Finance Plan
Lakehaven Utility District 2001/2002 Capital Improvement Projects- Water
Department
Lakehaven Utiliiy District 2001/2002 Capital Improvement Projects-
Wastewater Department
Chapter Seven - City Center
Table VII-l Gross Floor Area of Land Uses, City Center, January 2002
Chapter Eight - Potential Annexation Areas
Table VIlI-l
Table VIII-2
Table VIII-3
Table VIII-4
Table VIII-5
Table VIII-6
Year 2000,2002,2003, Old 2020 Population and Housing
Existing Land Use by Parcels
P AA Housing Sales and Affordability
P AA Park Facilities Owned by King County
P AA and City Parks Levels of Service
Federal Way Potential Annexation Area Capital Costs for Parks and Recreation
Revised 2003
C-3
FWCP - Table of Cootents
Table VIII-7
Table VIII-8
Table VIII-9
Table VIII-l 0
Table VIII-II
Table VIII-12
Table VIII-13
Table VIII-14
Table VIII-15
Table VIII-16
Table VIII-17
Table VIII-18
Table VIII-19
Table VIII-20
Table VIII-21
In-Road Surface Water Facilities
Regional Stormwater Facilities
Residential and Commercial Drainage Facilities
Road Maintenance Problems in P AA King County Maintenance Division 3
Road Maintenance Problems Near P AA King County Maintenance Division 3
Federal Way Potential Annexation Area Capital Costs for Surface Water
Capital Improvements
Street Inventay Within P AA
Future LOS and Recommended Improvements
Federal Way Potential Annexation Area Capital Costs for Roadway
Improvements
Operating Revenues Generated by P AA (2003)
Operating Costs by Departrrent by Potential Annexation Area (2003)
Annual Net Operating Revenues (or Operating Cost) of Annexation,
by P AA (2003)
Federal Way Potential Annexation Area Capital Revenue to 2020
Federal Way Potential Amexation Area Estimated Future Capital Costs
Federal Way Potential Annexation Area Estimated Net Capital Revenues
Revised 2003
C-4
FWCP - Table of Cootents
List of Maps
Chapter Two - Land Use
Map 11-1
Map 11-2
Comprehensive Plan Designations
Generalized Existing Land Use
Chapter Three - Transportation
Map 111-1
Map 111-2
Map 111-3
Map 111-4
Map 111-5
Maplll-6
Map 111-7
Map 111-8
Map 111-9
Map 111-10
Map 111-11
Map 111-12
Map 111-13
Map 111-14
Map 111-15
Map 111-16
Map 111-17
Map 111-18
Map 111-19
Map 111-20
Map 111-21
Map 111-22
Map 111-23
Map 111-24
Map 111-25
Map 111-26
Map 111-27 A
Map 111-27B
Travel Patterns from Residential Areas in the Federal Way Planning Area
Existing Significant Streets and Highways
Existing and Planned Traffic Signals
2000 Traffic Volumes
Functional Classification of Existing and Planned Streets and Highways
Planned Street Sections
State Access Management Classifications
City Access Management Classifications
2002 Congested Streets and Highways
2008 Congestion with Existing Streets and Highways
2008 Congestion with Proposed Street and Highway Improvements
2020 Congestion with 2008 Street and Highway Improvements
2020 Congestion with 2020 Improvements
High Collision Rate Intersections (1997- 1999)
High Collision Rate Corridors (1997- 1999)
High Collision Severity Intersections (1997- 1999)
High Collision Severity Corridors
Sidewalks Inventory on Major Streets(2002)
Bicycle Facilities Plan
All Day Transit Service, Effective June 2002
Peak Hour Transit Service, Effective June 2002
Proposed Transit Routes
Helicopter Landing Areas
Recommended Heliport Siting Areas
Through Truck Route Plan
2003-2008 Transportation Improvement Plan
2009-2020 Capital Improvement Plan
2003-2020 Regional Capital Improvement Plan
Chapter Four - Economic Development
Map IV-l
Southwest King County and North Pierce County Su13Region
Revised 2003
C-5
FWCP - Table of Cootents
Chapter Six - Capital Facilities
Map VI-l
Map VI-2
Map VI-3
Map VI-4
Map VI-5
Map VI-6
Map VI-7
Map VI-8
Map VI-9
Map VI-I0
Map VI-II
Map VI-12
Map VI-13
Map VI-14
Hylebos and Lower puget Sound Basins
Surface Water Trunk Systems (Includes Natural and Manmade Features)
Parks Plan Planning Areas
Major Parks and Open Space
City Facilities
Federal Way School District #210
Lakehaven Water Service Area
Highline Water Service Area
Water utility Major Components
2001/2002 Water CIP Location Map
Lakehaven Sewer Service Area and Basins
Sewer utility Major Components
2001/2002 Wastewater CIP Location Map
Federal Way Fire Department #39
Chapter Seven - City Center
Map VII-l
Map VII-2
Map VII-3
Map VII-4
Map VII-5
Map VII-6
Map VII-7
Map VII-8
Map VII-9
Vicinity Map
Boundaries of City Center Area
The Concept Plan
City Center Land Use Designations
Enhanced Street Network
Principal Pedestrian and Bicycle Connections
Potential Transit Alignments and stops
Potential Open Space and Bicycle Routes
Phasing Concept, 1995-2005
Chapter Eight - Potential Annexation Areas
Map VIII-l
Map VIII-2
Map VIII-3
Map VIII-4
Map VIII-5
Map VIII-6
Map VIII-7
Map VIII-8
Map VIII-9
Map VIlI-l 0
Federal Way PAA
Community Level Subarea Boundaries
Sensitive Areas
Geologic Hazards
Parks and Cultural Resources
Pre-Annexation Comprehensive Plan Designations
Pre-Annexation Zoning Map
Surface Water Facilities
Arterials & Local Streets
Existing Roadway Level of Service
Revised 2003
C-6
FWCP - Table of Cootents
Map VIII-II
Map VIII-12
Map VIII-13
Map VIII-14
Map VIII-IS
Map VIII-16
Year 2020 Roadway Level of Service
20 Year Proposed Intersection Improvements
Fire Department Facilities
Public School Facilities
Water Service
Wastewater Service, Septic Repairs and Complaints
Chapter Nine - Natural Environment
Map IX-l
Map IX-IA
Map IX-2
Map IX-3
Map IX-4
Map IX-S
Map IX-6
Map IX-7
Map IX-8
Aquifers
Aquifers and Wells
Areas Susceptible to Groundwater Contamination
Wellhead Capture Zones
Wellhead Capture Zones
Wellhead Capture Zones
Surface Water ResoulCes
Geologic Hazards
Priority Habitats and Species
Chapter Ten - Public Utilities
Map X-I
Map X-2
Map X-3
Map X-4
Map X-S
Council Approved P AA Boundary
Existing and Proposed Improvements to the SUGTransmission System, Puget
Sound Energy - Gas
puget Sound Energy Gas Supply Mains, Puget Sound Energy - Gas
Proposed Improvements, puget Sound Energy - Gas
Cable Service by AT&T Broadband,cable TV
Revised 2003
C-7
FWCP - Table of Cootents
List of Figures
Chapter Two - Land Use
Figure 11-1
Figure 11-2
Figure 11-3
Percent Gross Land Area by Existing land Use, September 2001
The Concept Plan Diagram
Population Projection, King County
Chapter Three - Transportation
Figure 111-1
Figure 111-2
Figure 111-3
Figure 111-4
Figure 111-5
Historical Transportation Infrastructure
Current Multimodal Transportation Systems
Roadway Cross Section A and B
Roadway Cross Section C and D
Roadway Cross Section E and F
Roadway Cross Section G and H
Roadway Cross Section I and J
Roadway Cross Section K and L
Roadway Cross Section M and N
Roadway Cross Section 0 and P
Roadway Cross Section Q and R
Roadway Cross Section Sand T
Roadway Cross Section U and V
Roadway Cross Section Wand X
Roadway Cross Section Y and Z
Special Cross Sections
Land Use Intensity vs. Transit Demand
Chapter Five - Housing
Figure V-I
Figure V-2
Federal W.ay Age Distribution by Population in 2000
Federal Way's Housing Stock
Chapter Seven - City Center
Figure VII-l
Figure VII-2
Figure VII-3
Aerial View of City Center
Potential Core Area Development
Potential Frame Area Develcpment
Revised 2003
C-8
FWCP - Table of Cootents
Figure VII-4
Figure VII-5
Figure VII-6
Potential Redevelopment of Surface Parking Areas
Illustration of City Center, 1995 Conditions
Illustration of City Center Evolution, 2025
Chapter Eight - Potential Annexation Areas
Figure VIII-l Potential Annexation Area 2002 Existing Land Use Distribution
Chapter Ten - Private Utilities
Figure X-I
Figure X-2
Figure X-3
Electricity Supply from Source to Customer
Typical Puget Sound Energy Distribution System
Cable Source to Customer
Revised 2003
C-9
CHAPTER ONE -INTRODUCTION
1.0 INTRODUCTION
The Federal Way Comprehensive Plan (FWCP) lays out a vision for the future of Federal
Way during a 20-year period and responds to the requirements of the Growth Management
Act (GMA) of 1990 and subsequent amendments. The FWCP also carries out Vision
2020, the Puget Sound region's multiple urban growth centers concept, and King
County's Countywide Planning Policies (CWPPs), which call for multiple urban centers
and a strong urban growth boundary.
This chapter gives an overview of the comprehensive planning effort, profiles Federal
Way's past and present, and concludes with a discussion of Federal Way's vision for its
future. This plan contains a glossary of terms at the end of the document to help the reader
with terms that may not be clear or understandable.
1.1 THE COMPREHENSIVE PLANNING EFFORT
Why Plan?
Federal Way plans for people. People need a safe and secure place to live, an economy
that provides jobs, a transportation system that allows them to get around, and schools,
colleges, and recreational opportunities. It is the city government's responsibility to
provide public services and facilities, develop policies, and adopt regulations to guide the
growth of a city that meets the needs of its people. From incorporation to the present, the
guide for Federal Way's growth and development has been the Comprehensive Plan.
What Is a Comprehensive Plan?
The role of the FWCP is to state clearly our community's vision for its future, and to
articulate a plan for accomplishing this vision over a 20-year period. The FWCP seeks to
answer a number of questions:
. What areas are most suitable for development or redevelopment?
. What areas should be preserved in their natural state?
. Where should growth occur?
. How can we manage that growth to realize our vision for the community?
. How should we address traffic congestion?
. How many parks do we need, of what size, kind, and where?
. What steps should we take to encourage economic development?
FWCP - Chapter One, Introduction
. How can we encourage preservation of our historic resources?
. How can we ensure an adequate supply of affordable housing for all income levels?
. What utilities and public services will we need?
. How will the community pay for all of these things?
Each of the FWCP's chapters addresses these questions, and more, in the areas of
transportation, land use, economic development, capital facilities, utilities, and housing.
The answers form the policies, which guide implementation of our community vision. The
policy statements within each chapter are used to guide new or revised zoning and other
regulations. The FWCP also sets a clear frame-work for where the community will need to
spend money on capital facilities, how much, and identifies available funding sources. As
a whole, the FWCP offers a flexible framework for Federal Way's future, allowing for
adaptation to real conditions over time.
Why Revise Our Plan?
Between 1990, when the interim comprehensive plan was first adopted by the City of
Federal Way, and 2002, the City has grown from 19.9 square miles and 67,554 people, to
21.5 square miles and 83,850 people. This rapid growth and change in the character of the
City has naturally provided impetus to revise and update the comprehensive plap.. The
FWCP, and the code amendments which follow it, reflect the unique characteristics of our
community and public input on Federal Way's vision for its future.
Requirements of the Growth Management Act
The GMA (RCW 36.70A. 140) was passed by the Washington State Legislature in 1990,
with amendments added in 1991 and subsequent years. The legislature passed the GMA in
recognition of the rate of growth that was occurring throughout the state, particularly on
the west side of the Cascades. The legislature was responding not only to the rate of
growth, but also to the type and location of growth. Two-thirds of the state's population
and household growth in the 1980s took place in unincorporated areas, and produced
sprawling subdivisions, commercial strips, and urbanization ofland, which only ten years
before, was rural. This rapid growth pattern resulted in increased traffic congestion and
inadequate public services, and has threatened forestland, agricultural land, and
environmentally sensitive areas such as wetlands. These impacts have been felt in Federal
Way, just as they have been felt in other parts of the state.
The GMA requires that each jurisdiction produce a comprehensive plan that contains, at a
minimum, elements pertaining to land use, transportation, capital facilities, housing, and
private utilities. These elements must be consistent with one another. Jurisdictions also are
required to adopt policies and regulations protecting resource lands and critical areas, such
as agricultural land, wetlands, and hillsides. Each jurisdiction must coordinate its plan
with the plans of surrounding jurisdictions.
Revised 2002
1-2
FWCP - Chapter One, Introduction
The GMA also requires that each city designate an urban growth boundary (UGA), or
potential annexation area (P AA) as they are called in King County. The P AA defines the
area within which the city anticipates it could provide the full range of urban services at
some time in the future. It also represents the area within which the city will consider
annexations and the boundary beyond which it will not annex.
Perhaps what most distinguishes the GMA from previous planning statutes is the
requirement that public services be available or funded at some designated level of service
before development may occur. If a jurisdiction cannot provide services to an area, then it
may not permit development in that area.
The 1991 amendments to the GMA require all counties planning under the act to adopt
Countywide Planning Policies (CWPPs). The jurisdictions in King County formed a group
called the Growth Management Planning Council (GMPC) composed of elected officials
from the King County Council, City of Seattle, and suburban cities. The mission of the
GMPC was to draft the CWPPs for King County. These policies were adopted in 1992 and
are binding on the jurisdictions in the County. In 1994, major amendments to the CWPPs
were proposed by the GMPC. These amendments were subsequently adopted by King
County and are binding on all jurisdictions in the County, although it should be noted that
Federal Way voted not to ratify. Since 1994, the CWPPs have been updated as needed.
After approval and ratification by the King County Council, amendments are forwarded to
the cities for ratification. Amendments to the CWPPs only become effective when ratified
by at least 30 percent of the city and county governments, representing 70 percent of the
population of King County.
The FWCP has been prepared according to the provisions of the GMA and the CWPPs.
However, Federal Way's plan also contains many components that are not referenced in the
GMA; these additional components are included in the plan due to their importance to the
Federal Way community. Although Federal Way's goals and policies for growth and the
provision of services are guided by GMA requirements, and are based in part upon state
and regional goals, they primarily reflect the vision and goals of our own citizens.
How Was the Plan Developed?
The ideas in the FWCP were developed through discussion, debate, and the creative
thinking of thousands of Federal Way citizens, working with City staff and elected
officials. Consistent with the GMA, the City of Federal Way provided early and
continuous opportunities for citizens to participate in CityShape. CityShape was the name
given to the City's comprehensive planning project. CityShape was the process used to
develop the FWCP.
CityShape, the process, started in the Fall of 1992 with a series of open houses and field
trips. The first open house was held on September 16th, and featured displays from all City
departments and the various special service districts. The event had two objectives. The
first was to explain to citizens how urban services are delivered, how much those services
cost, and how citizens could be involved in the development of the City's new
Revised 2002
1-3
FWCP - Chapter One, Introduction
comprehensive plan. The second objective was to have people describe their likes and
dislikes about the City as it existed in 1992 and share their thoughts about what the City
ought to look like in 20 years.
The second major CityShape event occurred on October 26, 1992. The event was a field
trip to Burnaby and Vancouver, British Columbia, to look at one possible future for
Federal Way. The Vancouver area has a light rail system called Sky Train and Burnaby
has a high density suburban shopping mall 20 miles southeast of downtown Vancouver.
The City took 70 members of its various Boards and Commissions to look at how light rail
works; how land use is influenced by rail and vice versa; what a redeveloped, mixed use,
high intensity shopping mall looks like; and how attractive higher density residential
neighborhoods can look, given specific development guidelines.
On November 19, 1992, the City conducted a second open house. This time the objective
was to review and evaluate three land use plan alternatives. The first alternative was a
slow growth concept with a land use pattern that was fairly similar to what currently exists
in the City. The second was a moderate growth concept that focused the majority of new
growth in a redeveloped, higher density, mixed use downtown. The third alternative was a
higher growth scenario that included the downtown concept of alternative two, but also
envisioned an expanded office parklbusiness park concept in the vicinity of West Campus
and the 348th Street corridor. Those present seemed to favor a hybrid with characteristics
of alternatives two and three.
Economic development and growth was the topic of the third open house held January 21,
1993. The CityShape staff team presented three economic development alternatives with
low, medium, and higher growth concepts. Participants expressed support for a medium to
high growth scenario that diversified the economic base in Federal Way and gave the
community about as many jobs as there are projected households in the year 2012.
The next open house was held on March 10, 1993, and focused on the vision for a City
Center. Attendees completed two exercises. The first was to evaluate three alternative
orientations for a downtown: east/west along 320th Street, north/south in the vicinity of
20th Avenue, and along a diagonal from Steel Lake Park to 320th and Highway 99. The
second exercise was to use building blocks to accommodate projected growth in the
downtown. The higher the density, the smaller the area for downtown. The lower the
density, the more spread out the downtown. Participants concluded that a higher density,
pedestrian-friendly downtown oriented north/south from the center of SeaTac Mall made
good sense and accommodated a high capacity transit system.
On June 2, 1993, the City staff provided interested citizens with a short course in
transportation planning. The presentation identified the congested street corridors as they
were in 1992 and projected how and where congestion would increase by 2012, given the
impacts of growth. Staff also presented five different arterial improvement alternatives
which would either maintain or reduce congestion by 20 12, together with some estimate of
the effectiveness of particular arterial improvements for resolving transportation problems
in the community. The participants concluded that the maximum construction option
called "super widening" was not appropriate or even feasible. They did, however, favor a
Revised 2002
14
FWCP - Chapter One, Introduction
more modest list of arterial improvements, including a "diagonal parkway" along the BP A
power line, which generally maintained the I 992 level of service.
The last two public forums dealt with capital facilities planning. The first of these was
held June 22, 1993. At this session, staff gave participants level of service options for
streets and parks, provided cost estimates associated with each level of service, and asked
participants working in groups to agree on the level of service they wanted for streets and
parks based on their willingness to pay for service. With a high level of consensus,
participants were willing to pay for a parks level of service of 10.5 acres per thousand
population. Given the cost for streets, the desired level of service was to lower the
standard about 60 percent from the 1993 level.
The second capital facilities public forum was held December 9, 1993, and focused on
how to pay for services. At this forum, each work group was given a work sheet that
described total capital costs for parks and streets, and data describing the revenue sources
available to cities and how much revenue each source could potentially generate. The
objective was to develop a financing package, including recommended taxing levels,
which would pay for the desired street and park system. There was a lot of disagreement,
but voter-approved bond issues, impact fees, and to a lesser extent, utility taxes received
some support as the preferred revenue sources. On the other hand, there was near total
agreement that there should be no business and occupation tax in Federal Way.
In November 1993, the City published a draft environmental impact statement that
evaluated the various growth, land use, City Center, transportation, and capital facilities
options. In addition, the staff-consulting team began writing the various chapters of the
FWCP, consistent with the direction that emerged from the field trips, open houses, and
public meetings. Early in 1994, the City's Planning Commission began holding work
sessions, to which the public was invited, to review each of the chapters as they were
written and provide comments and feedback as appropriate. The Commission started with
the Private Utilities chapter on March 2, followed by Housing (3-9-94), Potential
Annexation (3-16-94), Natural Environment (4-13-94), Economic Development (4-27-94),
Land Use and City Center (6-1-94), Capital Facilities (8-3-94), and ended with the
Transportation Chapter on September 7, 1994.
In the Fall of 1994, staff was ready to begin assimilating the individual chapters to create
an integrated comprehensive plan. As part of that process, staff concluded it was again
time to touch base with the City Council to ensure the FWCP was on target with their
expectations. To facilitate the discussion, staff prepared a two-page vision statement that
summarized the FWCP.
The City Council reviewed the vision statement at a retreat on February 24, and 25, 1995,
and indicated it was on target. The vision statement was subsequently expanded to a 20
page executive summary ofthe FWCP, including general policy direction. On Apri118,
1995, the City Council conducted a public hearing on the expanded vision statement and,
based in part on the testimony, proposed some amendments to it. On May 2, 1995, the
City Council formally reviewed the expanded vision statement and directed staff to
complete the FWCP as soon as possible.
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FWCP - Chapter One, Introduction
To this point, the narrative has focused on the formal public participation process.
Concurrently, there were a series of meetings to which staff was invited to talk about the
future of Federal Way, vision, land use planning in general, and the comprehensive plan
more specifically. There were hundreds of these meetings over the course of two years. They
included slide shows, small discussion groups, meetings with neighborhood associations, the
Chamber of Commerce's monthly luncheon and its subcommittees, real estate brokers,
property owners, elementary and high school classrooms, displays at the mall, civic
organizations, and many others. The result was broad based interest and participation in the
development of the City's new comprehensive plan. At the time the FWCP was released, the
mailing list contained over 700 names, all of which were notified that the Hearing Draft
Comprehensive Plan was available for public review and comment.
The Hearing Draft of the FWCP was completed and released for public review on July 5,
1995. Subsequently, the FWCP was adopted on November 21, 1995, by the City Council
per Ordinance 95-248. Thereafter, amendments to the FWCP were adopted per
Ordinances 98-330 on December 15, 1998, 00-372 on September 14, 2000, and 01-405 on
November 15, 2001.
Organization of The Plan
While we cannot predict the future, we can attempt to shape the type of community in
which we live, work, and play. The FWCP functions as the City's statement of how it will
meet the challenges posed by growth in the 21 sl century.
The heart of the FWCP is the nine individual elements that outline goals and policies. The
FWCP includes five elements that are mandated by the GMA: land use, transportation,
capital facilities, housing, and private utilities. It also includes four elements which the
GMA does not mandate, but that are very appropriate. The first is an economic
development element that is not only recommended by the CWPP, but also recognizes
Federal Way's position as a major employer in South King County. The second is an
annexation element as has been discussed earlier in this chapter. The third is a chapter that
describes the City's commitment to the preservation of the natural environment and the
policy direction to make it happen. Finally, the FWCP includes a subarea plan for the City
Center that reflects the City's vision for the future and helps to implement the regional
vision for a hierarchy of urban centers in the Puget Sound.
Each of these elements has been coordinated with the others, resulting in a plan that is
internally consistent. Each of the goals in the FWCP, while expressing a specific policy
direction, also functions as part of a coordinated expression of the City's vision for the
future. Plan implementation is the next step and is discussed in the final section of this
chapter.
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FWCP - Chapter One, Introduction
1.2 FEDERAL WAY'S COMMUNITY PROFILE:
PAST AND PRESENT
Planning for the future requires a good understanding of how our community has grown
and changed in the past. The following discussion provides that backdrop as a context for
subsequent chapters.
The earliest recorded accounts of the Federal Way area tell of Native American families
who resided in the area of the Muckleshoot Reservation on the east side of the Green
River Valley and traveled west to the shores ofPuget Sound for the plentiful fisheries
resources. Generations of Muckleshoot Indians wore a westward trail across the heavily
forested plateau to the area which is now Saltwater State Park. The arrival of the white
man in the nineteenth century resulted in a steady decline in the Indian population and by
1890, nearly the entire population had disappeared from the area.
Isolated on a triangular shaped plateau rising steeply from Puget Sound, the Federal Way
area had little waterfront access or roadways and accordingly, was sparingly developed
compared to Tacoma and Seattle. As late as the turn of the century, the original settlers at
Dash Point and Dumas Bay had to row to Tacoma for supplies and maiL Old Military
Road, constructed around 1856 and extending north from Fort Steilacoom, past Star Lake
to Seattle and Fort Lawton, was the first road through the area.
Over time, narrow dirt roads were added to provide east/west access and by 1900, a road
was constructed between Star Lake and Redondo. The second crossroad, the "Seattle
Road," connected old Military Road and Kent. The Seattle- Ta.coma Interurban Line,
completed in 1901, provided a fast and easy way to reach these urban cities. Improved
access brought many visitors to the area and Star Lake became a popular summer
recreation site.
By the I 920s, Federal Highway 99, the interstate that linked the western states from north
to south, was complete. At this time, Federal Way was still primarily forest and farmland.
Fred Hoyt had a cabin on Dumas Bay and started a road to Tacoma (still called Hoyt Road).
The timber companies, which had a major logging operation going, built an early railroad
line and were instrumental in getting Marine View Highway (now Dash Point Road) built
in the early 1920s. This roadway spurred development along the coastline. Soon thereafter,
Peasley Canyon Road was built to connect Military Road with the Auburn Valley. This
road later became known as South 320th Street. In these early days, roadways set the stage
for development in the area and they still play an important role in the City today.
By the start of World War II, a number of small, thriving communities made up the area
that is now Federal Way. Some communities were clustered around lakes, such as Steel
Lake, Star Lake, and Lake Geneva. Others were sited to take advantage of the view of
Puget Sound, like Adelaide and Buenna. As each of these communities grew, residents
built small schoolhouses for their children. By the late 1940s, King County consolidated
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FWCP - Chapter One, Introduction
the many individual red schoolhouses into the Federal Way School District, from which
the City gets its name.
During this same period, a library was built along the edge of Highway 99, and between
308th Street and 320th Street, a small "downtown" developed with a general store, lumber
yard, realty office, beauty parlor, feed store, and gas station. By the end of the 1950s, the
ten blocks between 308th and 320th Streets became the first roadside commercial district.
One of the more unique developments was Santa Faire, a family oriented theme park. New
shopping areas were added around the park, helping to create a "community focus" for the
residents of the area.
As this commercial area developed, the rest of Federal Way was changing as well. The
Boeing Company expanded their operations in Renton and the Kent Valley and began
advertising nationally for engineers. Those engineers in turn began roaming the wooded
acreage in Federal Way in search of housing. One of the earliest residential developments
was Marine Hills, built in 1958 overlooking Puget Sound. Weyerhaeuser, one of the early
timber companies, had large land holdings in the area and began to develop their land into
high quality housing with amenities like golf courses.
Weyerhaeuser's development company also began developing commercial property, creating
the West Campus business park. The plan was to integrate offices and businesses with lush
landscaping. Though initially the corporate office market was not strong, West Campus has
grown almost to capacity, providing space for many civic buildings such as City Hall, the
police station, the area's major health care centers, and higher density housing.
Another major landmark in the area is SeaTac Mall, built in the mid-1970s on what was
farmland south of 320th Street. The Mall is one of the largest in South King County and is
the anchor for retail development in the area. The Mall was a result of population growth in
the region and its location was determined by the 320th Street intersection with Interstate 5.
The Interstate supplanted Highway 99 as the main artery for commuter traffic in the County.
By the mid 1980s, South King County was growing quickly. Retail growth occurred along
Highway 99, especially at the 320th Street intersection. Roads and office space were
developed to accommodate the increased growth. Residential growth was also prominent,
following plans developed by King County, with a large number of apartment homes. The
changes to the community, with increased housing and traffic, created a movement for
greater self-determination. In 1989, the citizens of this area voted for incorporation and the
City of Federal Way was born, incorporating on February 28, 1990.
Federal Way's Future Vision
Federal Way's challenge for the future is to protect what the community believes is most
important, while meeting the state's growth management goals. The following paragraphs
describe what Federal Way will look like in the year 2022, and beyond, if it balances these
growth management mandates with the needs and desires of Federal Way citizens.
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FWCP - Chapter One, Introduction
Federal Way is a great place to live, work, and play because of its:
Government For and By the People: All governmental entities reflect the can-do attitude of
Federal Way citizens and partner with them to provide quality services, often through
volunteerism. Governmental entities reflect the community's values of diversity,
innovation, and participation. Together, the community and its neighborhoods have built a
sense of identity and ownership for Federal Way and its future. Fiscally conservative,
innovative financial and management (contracting model) strategies, along with economic
growth, have allowed the community to enjoy a moderate tax rate, with bond issues
approved to support major projects. The community vision has maintained a focus and
continuity for staff and fiscal resources on the defined vision.
Responsible Growth: The community realized that some level of growth in all segments of
the community (economic, population, housing, etc.) was inevitable, and chose to channel
that growth into.very specific development goals. The overall character of the community
has remained much as it was 20 years ago. Infrastructure has been developed concurrently
with growth, preserving the community's quality of life.
Development goals have fostered the preservation of a primarily residential community and
open natural areas, with concentrated urban development in the City's Center. An increase
in the number of corporate headquarters, annexation of the Potential Annexation Areas
(P AA), and build out of available single-family sites, at competitive prices, has
accommodated Federal Way's population target. Some new multiple-family development is
concentrated in the City Center/99 corridor area, primarily through downtown
condominiums. This pedestrian friendly, multi-use City Center, with multi-story and
underground parking facilities works well for many. Federal Way citizens enjoy the
pedestrian plazas of the City Center.
Statewide planning goal #6 states, "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." The City supports preservation of
private property rights; however, property rights must be balanced with the health, safety,
and general welfare of the community.
Economic Vitality: Strategically located in the Pacific Rim, between SeaTac Airport and the
Port of Tacoma, Federal Way provides jobs as an international and regional retail and
employment center. Federal Way is also home to several corporate headquarters located in
East and West Campus. Companies choose Federal Way for its sense of neighborhood
identity, mix of housing stock, proximity to natural resources (mountains, oceans, and
waterways), and safety. The growth in the corporate headquarters segment of the economy
has netted economic spinoffs for Federal Way's small business community, as small
business provides support services for the corporate park companies. Growth in the small
business economy has generated some redevelopment of previously large retail warehouse
facilities to accommodate office, retail, and light manufacturing. Quality jobs have boosted
disposable income, supporting expansion of Federal Way's retail and commercial sectors.
The resulting enhancements to the community's tax base have helped to support a high
quality of community life.
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FWCP - Chapter One, Introduction
Efficient Traffic System: Federal Way's transportation system links neighborhoods with the
City Center, and Federal Way with other communities in the Puget Sound region.
Concentrated economic growth in East and West Campus and the City Center has allowed
mass transit to connect Federal Way's economic core with the economic and leisure hubs
ofPuget Sound communities. Concentrated growth has allowed the community to
maintain the infrastructure in outlying areas, focusing new infrastructure in the City's
Center. Youth have found the transportation system easy and safe to use in getting to
school.
Safety, Infrastructure, and Utilities: This issue has been addressed at the neighborhood level,
where community-based policing philosophies and citizen efforts to create a sense of
neighborhood with real and perceived safety are most effective. A professional and
compassionate law enforcement force communicates clearly with the community's diverse
populations and business community, providing a visible community presence, as well as
acceptable emergency call response times. Improvements in safety have been a
cornerstone for the community's economic and residential growth. The utility and fire
districts share this community vision and have targeted their efforts and resources to
continue to provide effective and efficient delivery of water, sewer, telephone, television,
power, and fire services. Increased coordination between these districts and the City, and
these districts and their regional counter-parts, has ensured adequate service expansion to
make the community's development vision a reality.
Caringfor Our Own: Governmental and social service agencies work in concert to provide a
caring and safe environment for all Federal Way citizens. Ever-improving educational
institutions, public and private, serve all interests and ages throughout the community.
Neighborhoods have joined with the schools in their area to improve student achievement,
school facilities, and resources. Strong educational institutions and the leadership of the
Federal Way School District, Highline Community College, and DeVry University have
contributed to the community's economic growth, providing a trained work force and
quality education for the families of employees who locate here. The City has been the
catalyst for creating a one-stop shopping center for human services, with programs at all
levels of government requiring greater participation from clients in improving their
individual situations.
Quality Culture, Environment, and Play: Parks, trails, sports, and cultural arts facilities cater
to the active lifestyle of Federal Way citizens. By partnering with the Federal Way School
District and other agencies, the community has developed a long-range plan for facilities,
parks, and services, which is yielding more and better facilities, and joint facility
utilization than anyone agency could provide alone. A performing and cultural arts center
has been built, although it will require operating subsidies for its first eight years.
The Federal Way area is blessed with a bounty of natural beauty and scenery. This bounty
includes dramatic vistas ofMt. Rainier; numerous lakes, streams, and wetlands; the
pastoral setting in the Spring Valley area; and views of Puget Sound and Vashon Island
from the saltwater ridge. The City is committed to preserving this vast natural resource for
the citizens and future citizens of Federal Way.
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FWCP - Chapter One, Introduction
Regional Player: Finally, Federal Way institutions and citizens are regional partners and
participants in the economic, political, and cultural life of Puget Sound. This participation
has yielded funding opportunities for community facilities, including housing and human
services. Other regional efforts have safeguarded the community against outside impacts
that detract from our community's quality oflife. Regional participation has crossed the
seas with sister city relationships which are supported by Federal Way citizens. These
relationships have had significant cultural, educational, and economic benefits for the
community.
This vision will not be easily achieved. It will require difficult choices. In order to grow
gracefully, and remain a healthy and desirable community, tomorrow's higher density
growth areas must be accompanied by improved amenities for urban life. More resources
will be required to maintain the high quality of life we currently enjoy, thanks to our
parks, streets, and other public services. A combined effort of the public sector,
neighborhood groups, businesses, schools, and individual citizens will be required. The
early and continuing cooperation and collaboration of these groups in this process will
ensure this vision will be realized.
Getting to the Future from the Present
The FWCP is intended to manage growth and change in Federal Way over the next 20
years. The future described in the FWCP cannot be achieved all at once. Over the life of
the FWCP, growth will likely occur more slowly at times, more rapidly at others, and in
somewhat different patterns and sequences than is currently foreseen. The best a
comprehensive plan can be is a well-educated guess about how to accommodate people
and conditions that cannot be known in advance. An effective comprehensive plan must
be flexible enough to succeed within a range of likely conditions and must be adjusted as
those conditions are monitored and evaluated, while maintaining a steady aim at its
ultimate goals.
How Will The Plan Be Implemented?
Adopting a comprehensive plan is the first step toward realizing the City's vision. The
vision is achieved when the comprehensive plan is implemented. Federal Way's
implementation program is comprised of a combination of short-term and long-term
actions. Short-term actions include the approval of rezones that match the FWCP's land
use designations. Other actions include the annual update ofthe City's six year Capital
Improvement Program, which describes the street, park, and surface water utility projects
the City intends to build. There are also long-term actions including subarea planning,
monitoring, evaluating, and amending the FWCP as conditions change; and developing a
capital investment program that allocates resources to projects that will spur the City's
development in the direction envisioned in the FWCP.
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FWCP - Chapter One, Introduction
Subarea Plans: Subarea plans will follow the adoption of the FWCP and will produce
amendments that tailor the FWCP's citywide perspective to individual areas, whether they
are neighborhood retail nodes or light manufacturing areas. The FWCP contains a subarea
plan for the City Center. Subarea plans are expected to continue to aid in adjusting and
fine-tuning the FWCP over time.
Coordination with Other Jurisdictions: Federal Way representatives have participated with
King County, other cities, and the Puget Sound Regional Council in numerous
discussions. Some issues have been addressed and others have been identified for
additional discussion. Undoubtedly, continued regional planning forums will need to be
created to meet the GMA's challenge for regional action toward creating, implementing,
and funding a shared vision for the greater Puget Sound region.
Regulatory Provisions: Implementing the FWCP will include retaining, modifying, and/or
replacing existing regulations, and/or drafting new regulations consistent with the policies
and goals of the FWCP. For instance, in 2002 the City formed a stakeholders group that
reviewed the City's permitting process and made recommendations on how to improve
and/or modify the regulations and pro~ess.
A Strategic Investment Strategy: This will describe a framework for making resource
allocation decisions in an environment where wants and needs always exceed the finite
resources available. Tradeoffs among many possible investment choices will be made to
achieve the FWCP's goals. The framework will add dimension to the FWCP's goals by
enabling them to be addressed over time.
Human Services, Public Safety, and Environmental Planning: These will continue to build
upon the foundation established by the FWCP. Much of the FWCP, as developed to fulfill
the GMA, addresses physical development and its related regulatory and fiscal support.
Federal Way works with other levels of government, non-profit providers, and citizen
groups to support an array of activities and services that contribute to the quality of life of
Federal Way's citizens. These include public safety; health, cultural, educational, and
environmental activities; and human services. To ensure that the interrelationships of all
aspects of urban life are addressed, planning will be undertaken by the City in a way that
is supportive of and coordinated with the FWCP.
Monitoring and Evaluation: This will be done periodically to assess progress toward .
achieving FWCP goals, as well as to measure the conditions and changes occurring within
the City. Monitoring and evaluation will help ensure consistency within and among the
FWCP elements, as well as with the GMA, the CWPPs, and county and regional growth
plans. Monitoring and evaluation will lead to both FWCP amendments and improved
ability to project future conditions.
Citizen participation in City processes will build upon the dialogue between government
and citizens that began with the development and adoption of the FWCP. The City will
strive to find improved means to communicate with, and involve citizens in planning and
decision-making. The City will strive to provide information that can be easily understood
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FWCP - Chapter One, Introduction
and to provide access for public involvement. This will include processes for making
amendments to and implementing the FWCP.
Application of the Plan
The principal purpose of the comprehensive plan is to provide policies that guide the
development of the City in the context of regional growth management. These policies can
be looked to by citizens and all levels of government in planning for the future of Federal
VVay. .
The FWCP format generally presents a discussion about an issue followed by a goal, and
some policies related to that goal. Goals describe what the City hopes to realize over time,
and are not mandates or guarantees. Policies describe actions that will need to be taken if
the City is to realize its goals. Policies should be read as if preceded by the words, "It is
the City's general policy to...." A policy helps guide the creation or change of specific
rules or strategies (such as development regulations, budgets, or program area plans). City
officials will generally make decisions on specific City actions by following ordinances,
resolutions, budgets, or program area plans that themselves reflect relevant FWCP
policies, rather than by referring directly to the FWCP. Implementation of most policies
involves a range of City actions over time, so one cannot simply ask whether a specific
action or project would fulfill a particular FWCP policy. For example, a policy that the
City will "give priority to" a particular need indicates that need will be treated as
important, not that it will take precedence in every City decision.
Some policies use the words "shall" or "should," "ensure" or "encourage," and so forth. In
general, such words describe the relative degree of emphasis that the policy imparts, but
not necessarily to establish specific legal duty to perform a particular act, to undertake a
program or project, or to achieve a specific result. Whether such a result is intended must
be determined by reading the policy as a whole, and by examining the context of other
related policies in the FVVCP.
Some policies may appear to conflict, particularly in the context of a specific fact situation
or viewed from the different perspectives of persons whose interests may conflict on a
given issue. A classic example is the "conflict" between policies calling for "preservation
ofthe environment" and policies that "promote economic development." Because FVVCP
policies do not exist in isolation and must be viewed in the context of all potentially
relevant policies, it is largely in the application of those policies that the interests, which
they embody, are reconciled and balanced by the legislative and executive branches of
City government.
Before the FVVCP was adopted, the City of Federal Way had many policies in place that
were approved over the course of many years, and which affect the full range of programs
and services provided by the City. To the extent a conflict may arise between such a policy
and the FWCP, the FWCP will generally prevail, except that policies that are used in the
application of existing development regulations shall continue to be used until those
regulations are made consistent with the FVVCP pursuant to RCW 36.70A040.
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FWCP - Chapter One, Introduction
Discussion is provided to explain the context in which decisions on goals and policies
have been made, the reasons for those decisions, and how the goals and policies are
related. The discussion portions of the FWCP do not establish or modify policies, but they
may help to interpret policies.
Comprehensive Plan Amendment Process
The City will update the FWCP annually in order to keep this document current with the
community's vision and the City Council's policy direction. In addition to updating
chapters, such as Capital Facilities, the public will also be notified that a comprehensive
plan amendment will be taking place. Individual requests will be considered during the
annual update process.
Acknowledgments
The City Council and staff thank the hundreds of citizens who have made the CityShape
project a success. We look forward to working with you and others over the coming years
to make your vision Federal Way's future.
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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 of the 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-I, maps are located at the end of the chapter) that provides a visual illustration of the
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-I (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,
II 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;
. Creation of a network of parks and open space areas;
FWCP - Chapter Two, Land Use
Figure II-l
Percent Gross Land Area by Existing Land Use, September
2001
Commercial
5%
Single Family
42%
Drainage
1%
Office
4%
Open Space
5%
Parks
6%
Note: Does not include right-of-way.
. Diversification of the City's employment base by creating distinct employment
areas;
· Promotion of new retail and service employment opportunities around the I-51
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
Sound Regional Council (PSRC) growth projections within the proposed land use
plan area.
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FWCP - Chapter Two, land Use
Figure II-2
The Concept Plan Diagram
Concentrate new development in the
Highway 99/1-5 c:omdOf'.
Develop infrast:n.lct&.lre to support!
cunidOf' development.
Transfonn retail core into a new
mixed-use CityCcn~.
"
Preserve and enhance existing single-
iamily ncighbomoOds.
Create. a hetwork of parks and open
<(pal axrido~
Owersify employment base by
aeating distinct employment areas.
'~, ~..
Create new intemive residential -
communities supported by tr.lnsit.
Provide community and com1merciaJ
services to residential comm~nities.
Preserve environmentally sensitive
land from adverse development.
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FWCP-ChaplerTwo, 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.
· Business Park development in the South 348th Street area.
· Community Business development in the South 348th Street area and around the 1-
5/South 320th and 1-5/SR 18 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-single family areas.
The land use map designations support development necessary to achieve the above (see
the Comprehensive Plan Designations Map 11-1). A complete discussion of economic
development is set forth in the Economic Development chapter.
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FWCP-ChapterTwQ, Land Use
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
development, the City prepared a Surface Water Management Plan. The plan specifies
actions to ensure water quality including the development of regional detention! retention
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FWCP - Chapter Two. Land Use
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-I 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" (PAA). The City's PAA 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.
The City of Federal Way, in partnership with King County, 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. The Subarea Plan contains policies
and plans addressing the full range of land uses, capital facilities, public services, and
environmental issues relating to the P AA. The Annexation Feasibility Study, which has
been incorporated by reference, 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
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 ofthese areas for future generations. For a complete discussion,
please refer to the Natural Environment chapter.
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FWCP - Chapter Two, Land Use
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 II-I depicts two City Center land use designations-the City Center Core and City
Center Frame. The creation ofan 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 of the 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
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
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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 ofthe 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
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.
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FWCP - Chapter Two, Land Use
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
the King County Planning Directors and approved by the Growth Management Planning
Council (GMPC). This methodology is more fully discussed in the next section.
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FWCP-ChapterTwo. Land Use
Figure II-3
Source: Office of Financial Management, 2002 Update to Growth Management Act Medium Review Population Projections
Population Projection
King County
2.5
2
-
~ ........................... 1.86
o ____ 1.74
~ 1.5 ::::-12i2f-
5 1.27........................................
~ 1 ~16 ~u~.~
:>
a. . .. . .. .. .. . . . . .. .. . . . . .. .. .. . .. .. . . . .. . .. . . .. . .. . .
o
a. 0.5
o I
1970 1980 1990 2000 2010 2020 2025
Development Capacity
The purpose of Buildable Lands is to measure capacity to accommodate projected growth
and to evaluate the effectiveness of local 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
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
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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 200 I - 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
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
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FWCP - Chapter Two, Land Use
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 ofthe 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 11-2
(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 (page 13).
Table II-l
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-ChapterTwQ, Land Use
Table II-2
South King County Subarea Household and Job Targets, 2001-2022
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 200 I 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 200 I - 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
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FWCP-ChapterTwo, Land Use
to quality development, serve and will continue to serve as a basis from which to develop
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
LUGl Improve the appearance andfunction of the built environment.
Policies
LUPl
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 attra<;tive 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
Policies
LUP4
Maximize efficiency of the development review process.
LUP5
Assist developers with proposals by continuing to offer preapplication meetings
in order to produce projects that will be reviewed efficiently.
LUP6
Conduct regular reviews of development regulations to determine how to
improve upon the permit review process.
LUP7
Integrate and coordinate construction of public infrastructure with private
development to minimize costs wherever possible.
LUP8
Increase efficiency in the perIilit process by responding to state legislation
concerning development review processes.
2.7 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 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.
LUPIO 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.
LUPll Support the continuation of a strong residential community.
LUP12 Evaluate household and employment forecasts on a periodic basis to ensure that
land use policies based on previous assumptions are current.
LUP13 Distribute park and recreational opportunities equitably throughout the City.
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FWCP - Chapter Two, Land Use
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 ofthe 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,_accessory 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
lot per five acres.
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FWCP-ChapterTwo, Land Use
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 ofSR 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 of the 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.
LUP20 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 siz: 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 of large 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 of3600, 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
community's needs and preferences.
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Policies
LUP21 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.
LUP22 Use design and performance standards for multiple-family developments to
achieve integration in commercial developments. Performance standards should
focus on scale, appearance, and compatibility.
LUP23 Support multiple-family development with transportation and capital facilities
improvements.
LUP24 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.
LUP25 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 Provide employment and business opportunities by allocating adequate land for
commercial, office, and business park development.
LUP27 Encourage development of regional uses in the City Center.
LUP28 Provide for a mix of commercial and residential uses in commercial areas.
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FWCP - Chapter Two, Land Use
LUP29 Use Community Design Guidelines to promote common open space, public art,
and plazas in commercial and office developments.
LUP30 Ensure compatibility between mixed-use developments and residential areas by
regulating height, scale, setbacks, and buffers.
LUP31 Use Community Design Guidelines to encourage quality design and pedestrian
and vehicle circulation in office, commercial, and business park developments.
LUP32 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.
LUP33 Identify and designate streets where on-street parking can be safely provided
without unduly slowing traffic flow or jeopardizing traffic safety.
LUP34 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 Develop a quality business park area that supports surrounding commercial
areas.
Policies
LUP3S Encourage quality, mixed-use development for office, manufacturing, and
distribution centers.
LUP36 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.
LUP37 Limit retail uses to those that serve the needs of people employed in the area.
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FWCP - Chapter Two, Land Use
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 34Sth 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 34Sth. 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 IS interchanges
as part of the initial adoption of the PAA Subarea Plan or as part of the annual
comprehensive plan amendment process.
Due in part to convenient access and available land, the South 34Sth Street area has
become a preferred location for large bulk retailers such as Eagle Hardware, Home Depot,
and Costco. Due to the size ofthese 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 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.
LUP39 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 adjac~nt residential areas.
Goal
LUG7 Provide neighborhood and community scale retail centers for the City's
neighborhoods.
Policies
LUP40 Integrate retail developments into surrounding neighborhoods through attention
to quality design and function.
LUP41 Encourage pedestrian and bicycle access to neighborhood shopping and
services.
LUP42 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.
LUP44 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 preannexation concomitant
development agreement has established the comprehensive plan designation and zoning
(Office Pat'k-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.
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FWCP - Chapter Two, Land Use
Office Park designations with OP-I, 2, and 3 zoning and some residential designations
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 junction.
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-ChapterTwQ, Land Use
Shoreline Use Element
An element which deals with the distribution, location, and extent of: I) 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 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.
Policies
LUP49 Shoreline land and water areas particularly suited for specific and appropriate
uses should be designated and reserved for such uses. .
LUP50 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.
LUP51 Where appropriate, land and water uses should be located to restore or enhance
the land and water environments.
LUP52 Like or compatible shoreline uses should be clustered or distributed in a rational
manner, rather than allowed to develop haphazardly.
LUP53 Multiple uses of shoreline should be encouraged where location and integration
of compatible uses or activities are feasible.
LUP54 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.
LUP55 Non-residential uses or activities that are not shoreline dependent should be
encouraged to locate or relocate away from the shoreline.
LUP56 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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FWCP - Chapter Two, Land Use
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,
and proximity of population.
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FWCP-ChapterTwQ, Land Use
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.
LUP61 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 ofthe 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.
LUP62 Shorelines ofthe 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.
LUP63 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
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.
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FWCP - Chapter Two, land Use
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
LUG 11 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 of the 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.
b. All future shoreline development should be planned, designed, and sited to
minimize adverse impact upon the natural shoreline environment.
LUP67 Scenic, aesthetic, and ecological qualities of natural and developed shorelines
should be recognized and preserved as valuable resources.
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FWCP-ChapterTwo. Land Use
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.
LUP68 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 of the
shoreline should not be allowed.
LUP69 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:
I. Gravel bottomed streams used for spawning;
2. Streams, lakes, and wetlands used for rearing, feeding, and cover and
refuge from predators and high waters;
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.
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FWCP - Chapter Two, Land Use
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 Fisheries, 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.
I. 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
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
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FWCP - Chapter Two, Land Use
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
LUG 12 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 shoreline 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
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
Revised 2003 11.31
FWCP - Chapter Two. Land Use
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 beach1 when such development does not destroy valuable biota or
unique physical conditions.
l. 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.
LUP72 The provision of adequate public shoreline recreation lands should be based on
an acquisition plan with a clear public intent.
LUP73 A balanced variety of recreational opportunities should be provided for people
of different ages, health, family status, and financial ability.
a. Appropriate specialized recreation facilities should be provided for the
developmentally disabled, or others who might need them.
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.
'Pursuant to Federal Way City Code Chapter 18, Article III, Section 18-163, a "Class I beach means a beach
or shore having dependable, geologically fully developed, and normally dry backshore above high tide."
Revised 2003
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FWCP - Chapter Two, Land Use
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,
bulkheads, groins, jetties, or substantial site regrade.
LUP75 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.
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FWCP - Chapter Two, Land Use
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.
LUP76 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.
LUP77 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.
LUP78 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
manufactured homes) and multiple-family dwellings without distinction between part-time
or full-time occupancy.
Goal
LUG 14 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.
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FWCP-ChapterTwQ, Land Use
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 proof that 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
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.
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FWCP-ChapterTwo, Land Use
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: (I) a definition describing the development, use,
andlor 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.
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The purpose of designating the urban enyironment 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
LUP83 Emphasis should be given to development within already developed areas.
LUP84 Emphasis should be given to developing visual and physical access to the
shoreline in the urban environment.
LUP85 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.
LUP86 Multiple use of the shoreline should be encouraged.
LUP87 Redevelopment and renewal of substandard areas should be encouraged in order
to accommodate future users and make maximum use of the shoreline resource.
LUP88 Aesthetic considerations should be actively promoted by means of sign control
regulations, architectural design standards, landscaping requirements, and other
such means.
LUP89 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
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,
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providing permanent open space, and maintaining adequate building setbacks from the
water to prevent shoreline resources from being destroyed for other rural types of uses.
Policies
LUP90 Recreational access to the shorelines should be encouraged. Recreational
facilities should be located and designed to minimize conflicts with other
activities.
LUP91 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 non consumptive of the physical
and biological resources of the area.
Policies
LUP92 New development should be restricted to those that are compatible with the
natural and biophysical limitations of the land and water.
LUP93 Diverse recreational activities that are compatible with the conservancy
environment should be encouraged.
LUP94 Development that would be a hazard to public health and safety, or would
materially interfere with the natural processes, should not be allowed.
LUP95 The flood hazard overzone regulations shall apply to development within flood
plains.
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.
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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.
LUPIOl Limited access should be allowed to those areas in the natural environment.
LUPI02 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.
LUPI03 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
and policy ofthis 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.
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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:
1. 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 of the 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 oftheir 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:
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.
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Policies
LUPI04 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.
LUPI05 Pens and structures for commercial aquaculture should not be located on Class I
beaches, or swimming beaches.
LUPI06 Aquacultural enterprises should be located in areas that would not significantly
restrict navigation.
LUPI07 In aquaculture enterprises, development of multiple aquaculture systems should
be encouraged.
LUPI08 Aquacultural structures should use open pile construction where significant
littoral drift occurs.
LUPI09 Prior to use of an area for aquacultural enterprises, consideration should be
given to the capability of the water body to absorb potential wastes.
LUPllO 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.
Policies
LUPlll Consideration should be made of the effect a structure will have on scenic value.
LUP1l2 Commercial structures and ancillary facilities that are not shoreline dependent or
water-oriented should be placed inland away from the immediate water's edge.
LUPl13 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 roof tops.
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LUP114 Commercial enterprises locating within shoreline areas should be constructed to
withstand normal rain and flooding conditions without contributing pollution to
the watercourse or shoreline.
LUPl15 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.
LUPl18 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.
LUP119 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 of the 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.
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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.
LUP122 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.
LUP125 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 non structural 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
damage.
LUP127 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.
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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
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 off by linear transportation corridors. New linear facilities
should enable pedestrian access to public shorelines where access is desirable.
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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.
LUP145 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
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 positiye 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 littcr-al drift and can starve down current beaches where pile piers do
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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
LUP149 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.
LUP150 Floating pier construction should be preferred in those areas where scenic
values are high.
LUP151 Piers should be discouraged where conflicts with recreational boaters and other
recreational water activities would be created by pier construction.
LUP152 The random proliferation of single purpose piers should be discouraged.
Preference should be given to shared use of piers in all shoreline areas.
LUP153 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.
LUP154 Shoreline structures that are abandoned or structurally unsafe should be abated.
LUP155 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.
LUP156 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.
b. The effect such structures have on navigation, water circulation,
recreational and commercial boating, sediment movement and littoral drift,
and shoreline access.
LUP157 Moorage buoys should be preferred over floating and pile constructed piers on
all tidal waters.
LUP158 Floating structures and open pile structures are preferred over landfills or solid
structures in water areas used by salmon and steel head.
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Recreation
Recreational experiences that depend on, or utilize, the shoreline include: harvesting
activities of fish, 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
LUP159 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
concerned.
LUP162 Structural forms should harmonize the topography, reinforce the use area,
minimize damage to natural resources, and support recreation with minimal
conflict.
LUP163 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.
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LUP164 Whenever possible, natural materials should be used in developing shoreline
recreational areas.
LUP165 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 andlor 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.
LUPI71 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.
LUPI72 Prime-fishing areas should be given priority for recreational use.
LUP173 Boating activities that increase shore erosion should be discouraged.
LUP174 Effective interpretation should be provided to raise the quality of visitor
experiences and provide an understanding of the resource.
Residential Development
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.
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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
LUP175 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 ofthe 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.
b. Adequate provisions for all necessary utilities, including refuse disposal,
and the compatibility ofthe 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.
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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 of locally 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 PAA. 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
land by:
. Reducing taxpayers costs by locating new development nearest to existing urban
services;
. Adding predictability to service & facility planning;
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. 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.
LUP185 Work with King County through the development of an interlocal agreement to
assign phasing to the City's PAA.
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
family housing and is considering preparing an Environmental Impact Statement (EIS) for
a portion ofthe 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.
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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
LUG15 Use historic resources as an important element in the overall design of 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.
LUPI91 Recognize the heritage of the 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.
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.
Revised 2003
II-52
FWCP-ChapterTwo, Land Use
LUP195 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
Implementation of policies and goals ofthe 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 Il-3
(page 55), shows the connection between the various zoning designations and the
comprehensive plan designations.
Revised 2003
II-53
FWCP - Chapter Two, Land Use
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 o~nership 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.
Table II-3
Land Use Classifications
Comprehensive Plan Classification Zoning Classification
Single Family - Low Density Residential Suburban Estates (SE), one dwelling unit per five acres
Single Family - 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
Neighborhood Business Neighborhood Business
Corporate Park Corporate Park-l
Commercial Recreation Office Park-4
Open Space & Parks A variety of zoning is assigned.
Revised 2003
II-54
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II
I
CHAPTER THREE - TRANSPORTATION
3.0 INTRODUCTION
The Transportation chapter of the Federal Way Comprehensive Plan (FWCP) establishes
the framework for providing a transportation system (facilities and services) and focuses
on actions needed to create and manage the transportation infrastructure and services.
The GMA (RCW 36.70A020[3]) "...encourages efficient multi-modal transportation
systems that are based on regional priorities and coordinated with county and city
comprehensive plans." In addition, the act outlines guidelines for the preparation of the
transportation plan, which is a mandatory element ofthe plan. Specifically, these
guidelines (RCW 36.70A070[6]) include:
. The land use assumptions used in the plan;
. Facility ~nd service needs, including:
. An inventory of existing facilities;
. Level of service standards for all facilities and services;
. An action plan for bringing system deficits up to standard;
. Forecasts of future traffic growth; and
. Identification of system expansion and transportation system
management needs.
. A financing plan which includes:
. A comparison of funding needs vs. available resources;
. A six-year financing strategy; and
. An assessment of how funding deficits will be managed.
· Intergovernmental coordination efforts;
· A demand management strategy; and
. A concurrency management strategy.
This transportation plan is consistent with GMA requirements in terms of the general
policy direction and that it includes all components required in a GMA compliant plan.
This plan is also consistent with the direction provided by the Metropolitan
Transportation ~lan as outlined in Vision 2020 and the FWCP Land Use chapter. As
discussed in Vision 2020, this plan proposes a more diverse, multi-modal transportation
system by encouraging viable alternatives to the single occupant vehicle, including car
and van pooling, non-motorized vehicles, and improved public transit which allows
integration for a possible future High Capacity Transit system. The FWCP also includes a
land use chapter that is supportive of this vision and the region's transportation future. It
encourages densities and intensities in locations that support a more diverse, multi-modal
transportation system.
FWCP - Chapter Three, Transportation
Finally, this transportation plan conforms to the Countywide Planning Policies (CWPPs)
for King County as adopted in 1992 and amended in 1994. These policies include
Framework policies FW18-20 and Transportation Polices Tl-T23. In essence, these
policies encourage development of a High Capacity Transit System, Public Transit, High
Occupancy Vehicles (HOV), Transportation Demand Management and Systems
Management options, Non-Motorized Travel, and regional coordination and cooperation.
The policies also discuss the importance of level of service standards as they relate to
financing and concurrency management strategies.
Background
The process of providing a transportation system involves numerous agencies at the local,
state, and national levels. The cycle of providing a system involves planning, change
approval, funding, implementing, operating, monitoring, and administering the elements
of the system. Some components are provided by other agencies, such as METRO, Sound
Transit, and the Washington State Department of Transportation (WSDOT); the City can
only influence their efforts and system components.
The Transportation chapter, including the administrative procedures developed from it,
guides the provision of facilities. Until recently, the cycle of planning and providing
facilities could be summarized as shown in Figure //1-1 (page 3).
Through a combination of national and state legislation, as well as regional planning
efforts, the process has been changing in recent years. Physical and economic limitations
of continued expansion of the highway system and other factors such as environmental
issues have been key factors in the shift. Figure /1/-2 (page 4) reflects the process as it
might be viewed today.
Areas of Required Action
The City has direct influence over certain aspects of the transportation system and
indirect influence over others. Table /1/-1 (page 5) provides a structure for understanding
these areas of responsibility. It also reflects the organization of the remainder of the
chapter for the Transportation plan.
The Growth Management Act (GMA) requires that the Puget Sound Regional Council
(PSRC) certify the transportation chapters of local comprehensive plans. Certification is
based upon conformity with state legislation concerning transportation chapters and
consistency of the City's plan with the Metropolitan Transportation Plan, which has
become known as Vision 2020. Conformity focuses on five requirements for the
Transportation chapter:
Revised 2003
111-2
FWCP - Chapter Three, Transportation
Figure lII-l
Historical Transportation Infrastructure
The Planning - Implementation Cycle
Land Use Plan
Transportation Plan
Transportation
Improvement Program
Regional, State & Federal
Funding Application Process
Funding
Implementation Process
Design
Right-of-Way
Bidding
Construction
..
Operation
I
Revised 2003
111-3
FWCP - Chapter Three. Transportation
Figure III-2
Current Multi-Modal Transportation Systems
Planning, Implementation, & Management
Land Use Vision
Existing Conditions
LOS Standards
Federal Legislation :
State Legislation :
Regional Policies :
Transportation Plan
Facilities
Services
Region/State
.. ..
Local Transportation I Regional Systems,
Improvement Program Policies, Agreements, Etc.
~ Transportation /
System Management
Funding -
-..
IMPLEMENTATION
Local Regional
........ ...........
Streets & Roads Transit System
Transit Amenities HighwayslHOV System
TOM Programs TOM Programs
Non-Motorized Non-Motorized
....-.............-.... .........................
I OPERATION
!
I MONITORING
Revised 2003
111-4
FWCP - Chapter Three, Transportation
Table IIl-l
T rt f PI Ch t S b t'
ranspo a Ion an apler u see Ion
Section Facility/Service Example of City Activities
3.0 Introduction N/A
3.1 Streets and Roadways Provision, maintenance, and better use of streets.
3.2 Transportation System Geometric and signalization improvements, access management,
Management capacity enhancements.
3.3 . Non-Motorized Transportation Sidewalks, bike trails, transit access, ways between/within
neighborhoods.
3.4 Transportation Demand Alternate modes (carpool, vanpool, transit), parking policies, CTR
Management legislation.
3.5 Local and Regional Transit Buses, provision for stops, etc. in design standards, land uses,
corridors, transit centers.
3,6 HOV Facilities HOV lanes, transit signal priority, park & ride lots/transit centers.
3.7 Aviation Design guidelines for heliports; Influence regional airport efforts.
3.8 Freight and Goods Develop local standards and truck routes; SR 167-99 olanninl!.
3,9 Marine Plan and accommodate ancillary needs of Port of Tacoma
Financing (improvement districts, impact fees, grants).
3.10 Implementation Strategies Implementation (prioritization and programming). Monitoring
(traffic counts, accident records, plan comparison).
· Consistency with the Land Use chapter
· Identific~tion of facility and service needs
· A financial plan to support the transportation plan
. An intergovernmental coordination plan
· Development of Transportation Demand Management strategies
Existing Conditions
The following sections provide a summary of Federal Way's existing transportation
characteristics. This information was developed during the preparation of the 1993
Community Profile report.
Who Travels Where and Why?
Travel patterns in the Federal Way planning area are shown on Map 111-1 (maps are
located at the end of the chapter).
· About 57 percent of person trips originating each day in Federal Way are
completed within the City and the immediate area.
· One in three trips originating in the City are destined to points along the Seattle/
Tacoma high capacity transit corridor.
· Nearly 15 percent of Federal Way travel is focused on the residence, either as the
point of origin or destination.
Revised 2003 111.5
FWCP - Chapter Three, Transportation
How Do People Travel?
. As in much of suburban King County, the Single Occupant Vehicle (SOY) is the
dominant mode of long distance travel. Nearly 8 out of 10 work trips occur by this
mode.
. Between 15 and 20 percent of all work trips are made by HOV~. Of these, less than
three percent are by transit.
. The average occupancy of vehicles is similar to the suburban Seattle average at 1.2
people per vehicle. Raising the average occupancy would reduce congestion.
. Most area employers (68 percent of those responding to a City survey) reported that
bus service exists within one block of their work place.
. Biking and walking modes are used for about seven percent of all trips. The value is
somewhat lower for work trips.
What Role Do Park & Ride Lots Play?
. Park and ride facilities are in high demand in Federal Way, as throughout the region.
Of to day's four lots, with a total of2,500 spaces, three of the four are filled on the
average weekday. Increased bus service at the Twin Lakes lot may result in greater
use. Adding a lot at SR99 at South 276lh Street will increase area capacity by about
650 stalls. However, Metro studies have identified the need to double the present
supply by 2010.
. Utilization of the existing park & ride lots (at South 272nd, South 320Ih, South 348th,
and Twin Lakes) is a mix of regional traffic. Federal Way users range from a low of
13 percent at the Twin Lakes Park and Ride lot to a high of 60 percent in the South
348lh Street facility.
Are There Areas Needing Increased Transit Service?
. Areas outside Federal Way which generate or attract city trips and which are not
heavily serviced by transit include:
. The Kent Valley (Renton, Kent, Auburn, and Puyallup)
. Tacoma
. Rainier Valley - Duwamish South
Are There Existing Street Deficiencies?
. Congested intersections are located predominately in the City Center area and along
Highway 99. East/west routes that experience high levels of demand include South
3201h Street and South 348th Street. Congestion occurs not only in the morning and
evening commute times, but also during midday, everyday of the week in retail areas.
Revised 2003 111-6
FWCP - Chapter Three. Transportation
. Traffic accidents cost travelers in the City over $39 million per year, based on 1999
collision data. Most accidents are congestion related.
Federal Way's Subarea Roles
In establishing a future direction for the City's transportation system, it is vital not only to
understand existing characteristics of travel, but also the nature of land uses which
generate travel.
Subareas of the City are readily identifiable. They range from mixed-use centers along
the 1-5 corridor to residential areas that developed with widely varied land use patterns.
Following is a summary of the present characteristics in the subareas of the City.
Western Residential Area
The Western Residential Area consists primarily of suburban type dwelling units. Over
half of all residential dwellings in the study area are in this area. While transit is provided
to the area, the development patterns have been designed to accommodate the auto and
not transit.
The steady progression of residential development in the western areas of the City has
resulted in a mix of middle and upper income residences. Dwelling unit density is around
three to five units per acre. This density does not readily support transit service, nor does
the existing street pattern (cul-de-sacs and few through roads). For example, the Twin
Lakes area was designed with serpentine, discontinuous streets and cul-de-sacs that make
it difficult for transit penetration and pedestrian connectivity. In general, there are too few
streets; the arterial streets are used for nearly all traffic circulation, and there is a strong
need for more east/west corridors.
The present street pattern focuses east/west trips from the Western Residential Area into
the business core. This, combined with the north/south commute patterns, (predominantly
to work centers along the 1-5 and SR-99 corridors) and business district generated
commercial and retail trips, results in high congestion in the business district, especially
during the evening commutes.
Commercial Core Area
The primary commercial areas lie west of 1-5 and east of about II th Place South. This
includes SeaTac Mall retail, SR 99 corridor, and office uses in the West Campus area.
About II ,000 job opportunities attract Federal Way and regional trips to this area.
Consumers and clients of core area businesses also contribute to the travel patterns of the
area. While the Western Residential Area contains the highest concentration of housing,
the Core Area witnesses the greatest traffic demand. Today's 77,000 evening peak hour
trips to and from the area are expected to increase to nearly 116,000 trips by 2015.
Compounding the problems associated with the attractiveness of the area, trips beginning
Revised 2003
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FWCP - Chapter Three, Transportation
and ending in the Western Residential Area are funneled through this area by the limited
system of east/west arterial streets, principally South 320th and South 348th as these
connect to 1-5.
There is a need for improved circulation, fewer commute trips to help reduce peak period
congestion, improved transit and access to transit, and a means to improve goods and
services circulation both internally and to the regional transportation networks.
East of 1-5 Area
The lowest level of development in and about the City falls east ofI-5, within Federal
Way's Potential Annexation Area (PAA). This presents the possibility of large increases
in travel demand in the future. As this development occurs, it will be imperative to the
success of the overall vision that supportive development and transportation patterns be
encouraged. In other words, there is a need for a sufficient grid of more interconnecting
streets.
Regional Perspective
Vision 2020, developed in the early 1990s, was updated in 1995 by PSRC as its
Metropolitan Transportation Plan (MTP). The objective is to assure compliance with
federal and state legislation that has been enacted since the original adoption of the
metropolitan plan. Key strategies of Vision 2020 include:
. Creation of a regional system of central places framed by open space.
. Investment in a variety of mobility and demand management options to support
the central places.
. Maintaining economic opportunity while managing growth.
. Conservation of environmental resources.
. Early mitigation of adverse effects of concentrating development.
. Monitoring and updating of Vision 2020.
The MTP is the product of the current planning efforts. It is coordinated and managed by
PSRC and:
. Identifies the transportation system of regional significance.
. Determines modal performance expectations.
. Documents needed improvements under Vision 2020, incorporating local level
growth management plans, financial needs, and a regional congestion management
system.
Revised 2003 111-8
FWCP - Chapter Three, Transportation
A structure for monitoring progress towards the achievement of the plan and
improvement to mobility issues is being designed. The City's role in this process has
already been established through the involyement of key staff and elected officials at the
regional and state;levels. Coordination and planning with PSRC, WSDOT, METRO,
King County, and the Sound Transit principally is an on-going local effort.
The City is well positioned to capitalize on its close proximity to the Ports of Tacoma and
Seattle, and the SeaTac Airport. It is important to maintain efficient access and to support
the viability of these international transportation facilities.
Service Providers
Table 1II-2lists k~y service providers in the region, and their primary functions with
which the City maintains contacts through the planning process. Pertinent information on
the impacts of their programs is noted in the text of the plan.
Table /11-2
K S P'd
ey ervlce rOVl ers
Service Providers Primary Functions
State Department of State Highways, Park & Ride lots, HOV lanes
Transportation (WSDOT)
METRO Transit, Park & Ride, CTR Coordination
Sound Transit High Capacity Regional Transit
Pierce Transit Transit, Park & Ride, CTR Coordination
Pierce County Connecting Roadways & Traffic and Land Use Change Impacts
King County Connecting Roadways, Traffic Control Devices Maintenance, & Traffic and
Land Use Change Impacts
Private Utilities Puget Sound Energy, US West, and TCI for Utilities on ROW
Lakehaven Utility District Utilities Within Right of Way
Fire District Fire Hydrants in Right of Way
Neighboring Cities Tacoma, Des Moines, Kent, Auburn, Pacific, Algona, Edgewood, Milton, and
Fife for Traffic and Land Use Change Impacts, Connecting Roadways
Summary of Major Needs
In summary, Federal Way has defined its role through the end of the 20th Century and
into the 21 st Century as one supporting the regional direction; becoming an urban center
and developing the appropriate combination of transportation services and facilities to
support the inherent development pattern of the proposed land use plan. The following
major needs or improvements are related to transportation in Federal Way:
. Assure Port and SeaTac Airport access.
. Assure free moving intra- and interstate highways. This provides free moving
people, freight, and goods to maintain economic viability of the region.
Revised 2003 111-9
FWCP - Chapter Three, Transportation
. Provide a transportation system that supports the City's Land Use Plan.
. Provide for additional arterial streets and interconnecting streets in both business
and residential areas to reduce congestion and reliance on the few existing
arterials.
. Provide additional east/west arterials or other ways to relieve east/west travel
congestion.
. Improve pedestrian and bicycle facilities with better access between cul-de-sacs,
neighborhoods, to transit corridors and centers, and within business areas.
. Provide alternatives to SOVS to reduce their use, relieve congestion on streets
(especially in peak hours), and provide more rapid movement of people, goods,
and services on streets. This may include helicopter, rail, increased transit, park
and ride lots, car and vanpools, telecommuting, and information highway products.
. Provide transportation system management techniques to improve mobility. This
may include impact fees to build better transportation facilities, parking fees to
reduce SOY use, subsidies for bus passes, car and vanpool use, free business area
shuttle buses, and land use regulations that support transportation system
improvements.
. Provide a transportation system that protects and enhances the environment and
quality of life.
. Provide the funding needed to maintain existing infrastructure and implement
needed transportation system improvements.
. Provide cooperative transportation solutions that are inter-jurisdictionally
coordinated to meet local and regional needs.
Transportation Goals & Policies
Goal
TGl Maintain mobility for residents and businesses through a balanced, integrated
system of transportation alternatives that:
a, Meets local and regional needs through inter-jurisdictionally coordinated
and integrated systems.
b. Reduces auto dependency, especially SOV use.
c. Supports the land use vision and plan.
Revised 2003 111-10
FWCP - Chapter Three, Transportation
d. Protects and enhances the environment and quality of life.
e. Provides acceptable levels of service for each transportation mode that is
also commensurate with their planned levels of funding.
Policies
TPl Integrate land use and transportation plan decisions to support the land use vision
and plan.
TP2 Implement federal, state, and countywide planning policies.
TP3 Provide integrated, multiple travel options to residents and workers, especially
those with disabilities that are also effective alternatives to the SOY.
TP4 Give priority to transit and supportive needs.
TPS Protect neighborhoods from traffic impacts.
TP6 Give priority to transportation alternatives that improve mobility in terms of
people and goods moved for the least cost.
TP7 Establish mobility levels of service appropriate for the alternatives and location.
TP8 Provide funding necessary for transportation needs at the appropriate levels of
service.
3.1 STREETS AND ROADWAYS
In Federal Way, the predominant mode of travel will likely remain the private
automobile. It is clear that major expansion of the highway system with the intent of
expanding capacity for the single occupant auto will less frequently meet federal, state,
and regional policies. Modifications to the transportation system that are likely to receive
funding are those that will promote the increased movement of people and goods as
opposed to vehicles.
Alternatives that move people rapidly to their destinations must be provided as
congestion grows and driving time increases for users of single-occupant vehicles. The
future transportation system will be reprioritized to promote HOYs, trains, buses,
carpools, and vanpools along existing rights-of-way, and to incorporate high capacity
transit if it becomes available to Federal Way.
As part of adoption of its transportation plan, in 1995, the City accomplished the following:
Revised 2003
111-11
FWCP - Chapter Three. Transportation
. Adopted Functional Classification of Streets
. Adopted Access Management Classification
. Adopted Street Standards
. Adopted Level of SerVice (LOS) Standards
. Prioritized list of street and roadway improvements that support the Land Use Plan
. Adopted Financing Plan
In addition, in October 2001 the City hired a consultant to prepare a Traffic Impact Fee
and Concurrency Management System.
Existing Conditions
An extensive inventory of the existing roadway system in Federal Way was reported in
the City's 1993 Community Profile. The following excerpts on existing conditions are
taken from that document.
Street and Highway System
Federal Way is served by a network of publicly maintained streets and highways
connecting local communities and urban centers in the Puget Sound region, as shown in
Map III-2. There are two major freeways in the Federal Way planning area:
. Interstate 5 (1-5) is five lanes north of South 320th Street and four lanes south of
South 320th Street, with a posted speed limit of 60 mph. This freeway serves as
the main north/south freeway for regional travel in western Washington.
. State Route J 8 (SR J 8) is two lanes in each direction, with a posted speed limit of
60 mph. This freeway acts as an east/west alternative to 1-90, connecting to 1-90
east ofIssaquah and serving the communities of Auburn, eastern Kent, Covington,
and Maple Valley.
These freeways have been classified by WSDOT as Highways of Statewide Significance,
a connotation used for urban freeways and rural arterials in prioritizing transportation
funding.
Primary roadways in the Federal Way planning area include:
. Pacific Highway South (SR 99)
. Military Road South
. I st A venue South
. 2lst Avenue SW
. South 272nd Street
. South 288th Street
Revised 2003 111-12
FWCP - Chapter Three, Transportation
. South SW 312th Street
. South 32Qth StreetJPeasley Canyon Road
. South 3361h Street
. South 348th Street/Campus Drive SW
. SR 509 (Dash Point Road)
. Enchanted Parkway (SR 161)
. South SW 356th Street
These roadways serve major activity centers within Federal Way, including commercial
activities in the South 320th Street corridor between Pacific Highway South (SR 99) and
1-5 (the City Cen~er), commercial developments along Pacific Highway South, at South
348th Street and Enchanted Parkway South, and several smaller commercial centers
located within various residential areas. The roadway system also serves concentrations
of office uses located within the City Center, West Campus, and the Weyerhaeuser
Headquarters/East Campus area. The roadway system within the City connects to the
surrounding regiqnal transportation network, which provides access to other major
activity centers iqcluding Seattle, SeaTac Airport, Tacoma, the Port of Tacoma, Kent,
and Auburn.
Traffic Signal Locations
Map III-3 shows the locations of signalized intersections within the Federal Way
planning area. Currently, signals are maintained and operated by the City under a contract
with King County. The ability to coordinate signals along congested minor and principal
arterials is important to achieve the maximum capacity of a given facility. South 320th
Street currently has 13 signalized intersections that are irregularly spaced and, in some
cases, spaced too close to each other.
Coordination of the signal system on South 320th Street was implemented in 1993, from
1-5 to 1 51 Avenue South, together with the coordination of signals on SR 99 from South
288th to South 324th Street. In addition, coordination ofthe signal system along SR 99
from South 336th Street to South 3561h Street and along South 3481h Street from 1-5 to 15t
Avenue South was implemented in 1995. Signals were coordinated on SW Campus Drive
and 21 5t Avenue SW in 1998. Benefits of signal coordination are quantified in Section
3.2, under Signalization Improvements.
Traffic Volumes
The 2000 average weekday traffic volumes on selected arterials are shown on Map 111-4.
The roadway with the highest daily traffic volume is 1-5. This facility carried nearly
171,000 vehicles on an average weekday in 2000 (WSDOT, 2000). Historical growth on 1-
5 has fluctuated in recent years in the Federal Way vicinity. Between 1985 and 1990, the
average daily traffic increased at an average annual rate of 5.3 percent. However, from
1992 to 2000, the average daily traffic increased at an average annual rate of one percent.
Revised 2003
111-13
FWCP - Chapter Three, Transportation
Federal Way's busiest arterial, South 320th Street between 1-5 and SR 99, carries
approximately 60,000 vehicles per day. On South 320th Street, average weekday traffic
has grown at an annual rate of one percent since 1992. Other arterial roadways with
significant daily traffic are portions of Pacific Highway South and South 348th Street,
carrying 42,000 and 59,000 vehicles per day, respectively.
Forecasts of Future Travel
Travel can be described in terms of the purpose of the trip and the trip beginning and end
points. Federal Way exhibits a wide variety of travel purposes. Trips range from children
walking to school to adults commuting. Not all of these trips are typically analyzed in
transportation planning, although emphasis is increasing for non-motorized trips and
transportation management systems.
To assist in categorizing trips, the area of interest was divided into Transportation
Analysis Zones, or T AZ. This structure allows a link between travel data and land use
data. Estimates of the number of households and employees were made for each TAZ.
These land use estimates were then translated into traffic demand on major arterials using
a computer modeling process. The model was used to estimate existing and future traffic
volumes within the Federal Way planning area. The model can also be used to estimate
demands for various modes of travel, including auto, carpool, and transit.
There is a fairly consistent relationship between the number of trips produced each day
and the density of residential dwelling units. Depending on the density of the area and
other factors, it is possible to forecast the total number of trips produced in an area. In a
similar fashion, employment densities can be used to forecast person trips attracted to an
area. Each parcel of land generates traffic based on its type of use and intensity of
development. The evening peak hour is a modeling standard, since it usually is when the
highest demand occurs.
Future Travel Demand
The community visioning process explored a series of future (20 I 0) land use intensities
and configurations. Concepts of future development that would accomplish regional and
City goals were explored. The concepts were then turned into estimates of travel demand
and the necessary transportation improvements were identified. Through the
Environmental Impact Statement (EIS) process, a recommended alternative was
identified, which includes significant improvements to the existing street system, along
with other transportation demand management and transit actions. In general, between
1990 and 20 I 0, an increase in total person trips of approximately 40 percent is predicted.
Revised 2003
111.14
FWCP - Chapter Three, Transportation
City Action Areas for Transportation Plan Adoption
Functional Classification of Streets
Public streets are classified according to their functions related to mobility and land
access. These functional classifications help facilitate planning for access and circulation,
standardization of road designs, and provision of a hierarchy for roadway funding. The
classification system is typically shown in map form, which can be used by planners and
developers alike to determine improvements and program needs. The types of functional
classifications for Federal Way are described below.
Freeway - A multi-lane, high speed, high capacity roadway intended exclusively for
motorized traffic with all access controlled by interchanges and road crossings separated
by bridges.
Principal Arterial- A roadway connecting major community centers and facilities, often
constructed with partial limitations on access and minimum direct access to abutting land
uses.
Minor Arterial- A roadway connecting centers and facilities within the community and
serving some through traffic while providing greater access to abutting properties.
Collector - A roadway connecting two or more neighborhoods or commercial areas, while
also providing a high degree of property access within a localized area. Collectors have
been separated into principal and minor designations according to the degree of travel
between areas and the expected traffic volumes.
Local Street - All other roadways not otherwise classified, providing direct access to abutting
land uses and serving as feeders to facilities with higher functional classifications.
Designation of roadway functional classification is an integral part of managing street use
and land development. In Washington, as in most states, classification of streets is
necessary for receipt of state and federal highway funds. Inconsistent or misdesignation
offunctional class (usually in the form of under-classification) can lead to poor relations
with residents and the traveling public. Studies have shown that traffic volumes in excess
of about 1000 vehicles per day on residential streets produce markedly increased
objection on the part of local residents. Misdesignation of a street segment to a lower
classification when the amount of expected traffic warrants a higher class can also result
in under-design of facilities producing long-term capacity problems.
Table III-3 (page 30) summarizes the typical characteristics of each functional
classification. The latest functional classifications of roadways in the Federal Way
planning area are shown in Map III-5.
Illustrative examples of cross-sections A through Z are shown in Figure III-3 (a-b) to
Figure III-4 (pages I 6-29) respectively, for the street system within Federal Way.
Revised 2003
111-15
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FWCP - Chapter Three, Transportation
Table III-3
Characteristics of Functional Classifications of Streets
Number Ril!ht ofWav Width' Expected
Road Classification of Lanes Existinl! Code Posted Soeed Daily Traffic
Interstate/Freewavs I 4+ (varies) Varies 60mph 30,000+
Principal Arteriaf 2 to 7 68' to 124' 35-50moh 5,000+
Minor ArteriaI> 2 to 5 68' to 106' 30-40moh 5,000-35,000
Princioal Collector4 2 to 5 68' to 100' 25-35mph 5,000-25,000
Minor Collectors 2 to 3 60' to 80' 25-35moh 1,000-5,000
Local Street" 2 36' to 66' 25-35moh uo to 1,000
General Comments
I Limited access, state jurisdiction.
2 Connects subregional activity centers and communities.
3 Provides major movement capacity; collecting neighborhood and business traffic to higher level arterials.
4 Connections between neighborhood or commercial areas. Design consideration for trucks.
5 Channels local traffic to principal collectors or arterials. Design for buses per METRO standards.
6 Primary function is access to abutting land use. Though traffic can be discouraged by use of traffic control devices.
7 The exact cross-sections and standards for a particular street within the community will be established through the CitY's
Development Standards.
Map 1II-6 illustrates which cross-section would be used for each arterial and collectpr
within the community. Since the City does not plan local street networks, the appliqable
street cross-section for local streets will be established through the City's developm~nt
review process, which is ongoing.
Access Management Classification
Access management is the regulation of intersection and driveway spacing to impro~e the
safety and preserve capacity of major streets. Roadway crash rates are heavily depe*dent
on the spacing of turning conflicts. By reducing the number of driveways and tumi g
movements through shared access to multiple parcels, and restricting turning move ents
in congested areas, the safety and efficiency of the City's streets can be maintained.;
Access is one of the major factors influencing functional classification. Generally, ~igher
classifications (interstates or freeways) serve a limited access function, while lower!
classifications (local roads, cul-de-sac streets) serve a local access function. The Stte of
Washington approved legislation requiring that access onto state facilities be grante by
permit and that such access conform to an access management classification system
(RCW 47.50). The WSDOT put into place two administrative codes. The first ident fies
the administrative process (including permit fees for issuing access permits on state!
facilities), and the second defines the access classification system (WAC 468.51 an4
468.52, respectively).
A summary of the access classifications from WAC 468.52 is provided in Table III-'r4
(page 31). The criteria used to define the classification system included functional
classification, adjacent land use (existing and proposed), speeds, setting (urban or r~ral),
and traffic volumes. The classification system was developed with assistance from tfle
cities by the WSDOT Northwest Region planning office.
The authority to permit access to state facilities lies with the state in unincorporated lareas
and with the cities in incorporated areas. WAC 468.51 requires that cities with permlit
authority adopt a classification system equal to or more restrictive than that propose~ by
WSDOT. WSDOT required cities to establish an appropriate access classification s~stem
Revised 2003
111-30
FWCP — Chapter Three, Transportation
by mid 1996. All state routes within the City also needed to be classified, with the •
exception of SR 18 and I-5, which are limited access facilities and not subject to the
access classification system.
Table III-S (page 32) illustrates the City's adopted access classification system. The
primary purpose of access management is to improve safety; therefore, higher access
classifications are triggered either by crash rates or lane configurations that are less safe
at higher volumes. Similarly, access spacing standards are the most restrictive for turning
movements with the highest potential for accidents. Map III-7 indicates WSDOT's access
classification on state highways in Federal Way.
Map III-8 indicates the access classifications within the City. These access standards
would be implemented as part of review of land development, as an element of street
improvement projects, and to ameliorate locations with high crash rates as a part of traffic
safety maintenance.
Street Standards
As the transportation system evolves, periodic review of the FWCP, changes to the
subdivision code, and street standards are necessary. Street standards within city code
convey the vision of the FWCP in greater detail. Similar to the classification map, they
guide the development process activities. For example, components of the subdivision
code can require certain types of street standards (e.g. widths, parking, etc.) to support
designated transit compatible development. Street design . standards show preferred cross
sections for each arterial and street segment in the City. •
Table III-4
Washin on State Access Classification S stem Cha ter 468.52 WAC 7-14-94
Posted Typical p�anned Minimum
Planned Private
Class Functional Characteristics Speed Median Intersection Connection
(MPH) Treatment Spacing* S acin *
High speed/volume, long trips serving: in[erstate, Restrictive, where 1320 feet
1 interregional, intercity travel. Service to abutting land 50 to 55 multi-lane is 1.0 mi pne per pazcel
subordinate to service of ma or trat�ic movements. warranted.
Medium to high speeds/volumes, medium to long trips Urban: 35 Restrictive, where
serving: interregional, intercity, intracity traveL to 50 660 fcet.
2 Service to abutiing land subordinate to service of Rural: 45 multi-lane is 0.5 mi pne per parcel.
traffic movement. to 55 N'�T�ted.
Moderate speeds/volumes, short trips serving: Restrictive where Rural: 0.5 mi
intercity, intra-city, intercommunity VaveL Balance Urban: 30 multi-lane is Urban: 0.5 mi/
3 between land access and mobility. Used where land to 40 N Two- tess with signal 350 feet
use is less than maximum build out, but developmen[ Rural: 45 � left-tum lane progr�sion
otential is hi h. to 55 ma be utilized. anal sis.
Moderate speeds/volumes, short trips serving: Rural: 0.5 mi
intercity, intra-city, intercommunity trave(. Balance Urban: 30 Restrictive if Urban: 0.5 mi/
4 between land access and mobility. Used where level to 35 average daily less with signal 250 feet
of development is more intensive and major land use Rural: 35 traffic volumes progression
chan es less likel than dass 3. to 45 exceed 25,OOQ �al sis.
I,ow to moderate speeds, moderate to high volumes, 025 mi/less with
5 primarily short trips in intra-city and inUa-community 25-35 Non-restrictive signal 125 feet
travel. Service of land access dominant funcrion. progression
anal is.
Note: 7'his table is for summary purposes only and is not included in the WAC. Source: WSDOT 'See text of the WAC for exceptio�.
•
Revised 20a3 11131
�
FWCP — Chapter Three, Transportation
•
Table III-S
of Federal Way Access
Standards
Through Minimum
Access Signal
Classification Median Traffic Crossing �ft-Turn Out �ft- Right- Right- progression
Lanes Movements Turn In Turn Out Turn In „M,_.___ ___._.
Only at signalized Only at signalized
1 Raised 6 intersections. intersections. 330 150 150 40%
2 Raised 4 330 330 330 150 150 30%
Two-Way
3 Left-Turn 4 150 150* 150* 150* I50* 20%
Lane
TwaWay
4 L.eft-Turn 2 150* 150* 150" 150* 150" 10%
Lane
�Does not apply to Singlo-Family Residential uses.
•'Greater spacing may be required in order to minimize contlicu with queued tra�c.
sssIf the existing efficiency is less than the standard; new haffic signals may not reduce the existing efficiency.
a) Raised Medians will be required if any of the following conditions are met:
1) T6ere are more than two through traffic lanes in each direction on the street being accessed.
2) The street being accessed has a crash rate over ]0 crashes per million vehicle miles, and currently has a two-way left-turn lane.
b) Two-way left-turn lanes will be required if the street being aceessed has a crash rate over 10 crashes per million vehicle miles, and cumntly dces not
have a left-turn lane.
Level of Service (LOS) Standards
Level of Service (LOS) on a street or roadway is a qualitative description of traffic flow
• conditions during a specific time period. This measure considers travel conditions as
perceived by motorists and passengers in terms of travel speed, travel time, freedom to
maneuver traffic interruptions, delays, comfort, and convenience. Levels of service have
traditionally been given letter designations from A through F, with LOS A representing
ideal operating conditions, and LOS F representing "forced flow" conditions beyond
capacity.
According to the Highway Capacity Manual (HCM), level of service is quantified
differently for roadway segments as opposed to intersections. For example, on roadway
segments the LOS is defined by the general spacing of cars traveling on the street and
their level of interference with one another. At intersections, however, the LOS is defined
by the length of delay a driver experiences in passing through the intersection or waiting
to turn into or out of a side street. The definitions for each level of service and
methodologies for calculating LOS are contained in the Transportation Research Board
Special Report 209, Highway Capacity Manual (2000):
Level of service is used by the City of Federal Way for two primary purposes: (1) to
calculate the amount of transportation facilities the City needs in the future, and (2) to
measure the adequacy of the public services which serve existing and proposed
development. T'he first use of LOS is addressed in this section, in which alternative
improvement scenarios are evaluated against these levels of service. The second use of
LOS relates to the "concurrency" requirement of GMA, as described in Section 3.10; The
two uses of LOS utilize the same basic standards and methodology, such that consistency
is maintained.
•
Revised 2003 111�2
FWCP — Chapter Three, Transportation
LOS Standard — The City's goal is to maintain or improve upon a PM peak hour roadway
LOS so that it is at least within capacity. The plan expects some change in the present
patterns of travel behavior through increased use of non-SOV modes, such as walking,
bicycling, transit, carpooling, and vanpooling. The LOS standard should reflect the
impact of increased non-SOV modes of transportation.
LOS Methodology — Within urbanized areas, most of the roadway congestion occurs at
signalized intersections. However, it is not always practical to measure traffic flows at
every intersection, and this type of detailed analysis does not provide a full perspective
on how well the overall roadway network is performing. Due to the complex nature of
traffic flows and the ability of motorists to take alternative routes for similar trips, the
City of Federal Way has selected a LOS methodology that is an expansion of the
traditional LOS measurements presented in the Highway Capacity Manual. The City uses
the following two criteria for measuring LOS.
Corridor and Roadway Segment VolumelCapacity (i�/C) Ratio — The volume/capacity (v/c)
ratio directly compares the volume on a roadway segment with the capacity of that
segment to carry traffic volumes. The ratio, expressed in a range as shown in Table III-6,
can then be used as a planning level LOS indicator.
Table III
and Operational Levels of Service
Analysis Procedure � A � B
Planning� (v/c) 0.00 - 0.60 0.61 - 0.70
C � D � E � F
0.71 - 0.80 0.81 - 0.90 0.91 - 1.00 > 1.00
o.00 - io.00 � io.00 - Zo.00 � zo.00 - ao.00 � 40.00 - 60.00 � 60.00 - so.00 �>so.00
m Research Circular 212, Interim Materials on Highway Capacity. Highway Capacity Manual (2000).
The capacity of the roadway segment reflects the condition of the road (e.g. width of lanes,
amount of driveway disturbances, whether there exists a left turning lane, etc.) and the type
of traffic control along its length (e.g. frequent traffic signals reduce capacity). A v/c
greater than 0.90 is used to identify locations for a more rigorous operational analysis. In an
operational analysis, the lenel of service standard for planning purposes will be a v/c of
1.00, with a LOS of E, using a 120-second cycle at signalized intersections. In order to
reflect an emphasis on non-SOV modes, LOS will be measured by average delay per
person rather than the Highway Capacity Manual's average delay per vehicle. The City
chooses this methodology to determine development impacts and mitigations.
Current LOS Deficiencies — Map III-9 illustrates the 2002 PM peak hour level of service
deficiencies on Federal Way's arterials. This figure indicates that Pacific Highway South
(SR 99), Enchanted Parkway, and portions of South 348� Street are among the most
congested corridors in Federal Way. These are the primary routes that carry commuters,
shoppers, business trips, freight and goods, and other vehicles throughout the day and
especially during peak periods.
•
•
�
Revised 2003 III-33
FWCP — Chapter Three, Transportation
�
Future LOS Deficiencies — Map III-10 illustrates the expected 2008 PM peak hour level of
service deficiencies for the "current trends" if no additional improvements are constructed.
Map III-11 depicts 2008 congested streets with proposed street improvements. The current
trends condition assumes that limited roadway improvements would be made on the
existing street system, while the recommended plan includes significant im�rovements to
several major and minor arterial routes. Without improvements, South 320 Street, Pacific
Highway South (SR 99), Enchanted Parkway, l Avenue South, and portions of South
348"' Street would remain the most congested corridors in Federal Way. The recommended
plan would improve conditions along all of these streets.
Map III-12 depicts congested streets in 2020 if only the improvements in the
Transportation Improvement Plan (TIP) are constructed. Map III-13 depicts congested
streets if the Capital Improvement Plan (CIP) improvements are constructed.
LOS on State Facilities — In the 2020 Current Trends Alternative, the entire portion of I-5 in
the Federal Way planning area will experience severe peak-direction congestion in the
PM peak hour. Major portions of SR 18 will be congested.
Traffic Safety
When considering transportation improvements, enhancements to traffic safety must be
considered. Intersections with high collision rates are shown in Map III-14 and major
street segments with high collision rates are shown in Map III-IS. In addition, Map III-16
• shows high collision severity intersections for 1997 to 1999, and May III-17 shows high
collision severity corridors.
The majority of crashes in Federal Way are related to congestion. Intersections with high
levels of congestion create frustration for drivers who may then perform risky measures.
Common manifestations of frustration include runn.ing a red traffic signal or a signalized
intersection producing too small a gap at an unsigna(iaed intersection, or speeding on
local streets to make up for time lost at a congested location. Many accidents in
neighborhoods are related to speeding, but also to poor sight distance at unsignalized
intersections. These safety issues can be addressed by implementing the following
measures:
• Identify high crash rate locations on an annual basis, and identify projects to
improve safety at these locations.
• Implement access management measures to reduce turning conflicts in high crash
rate corridors.
• Enforce intersection sight distance standards to remove vision obstructions on the
corners of intersections and at driveways.
• Where supported by neighborhoods, install traffic calming measures in
residential areas.
•
Revised 2003 III-34
FWCP — Chapter Three, Transportation
• Educate the public through project open houses and press releases on safety
benefits of transportation projects.
• Increase enforcement of traffic laws, particularly laws pertaining to behaviors
that cause the most severe and highest frequency of crashes.
Street and Roadway Improvement Plan
Table III-7 (page 36) lists major street and roadway projects that are included in the 2020
recommended transportation plan. These projects will have the most significant impact
on reducing corridor and system-wide congestion within the City. A full listing of
recommended street and roadway improvements is provided in the Transportation
Improvement Program, described in the "Implementation Strategies" section.
The WSDOT has jurisdiction over state highways in the City. These include I-5, SR 18
(South 348 Street), SR 99 (Pacific Highway South), SR 161 (Enchanted Pazkway
South), and SR 509 (Dash Point Road). However, since many residents depend on these
and other state facilities in the region, it is important the City consider the policies and
efforts of the WSDOT. The City is responsible for the maintenance of state routes (except
I-5 and SR-18 east of 16�' Avenue South) within the City limits and for the issuance of
right-of-way use permits subject to WSDOT review.
•
The state has enacted several policies to relieve the various problems facing travelers.
These policies include: •
• Improve personal mobility (emphasizing movement of people and goods, over
vehicles).
• Enhance transportation to support economic opportunities.
• Coordinate regional transportation planning and implementation.
• Improve energy and environmental efficiency.
• Promote public-private and public-public partnerships.
• Improve freight and goods mobility.
• Enhance transportation to support tourism. -
• Promote land use patterns to improve mobility.
• Improve public transportation.
• Enhance transportation system efficiency (i.e., management).
• Improve air quality.
•
Revised 2003 III-35
FWCP - Chapter Three, Transportation
�
Table lil-7
•
Ma'or Street and Roadwa Im rovements
# FACILITi' FROM TO DESCRIPTION OF IMPROVEMENTS
1 Military Rd S S 272'� S 288`h W�den to five lanes - provisions for bicycles, sidewalks,
illumination, landsca in , ro ac uisition.
Widen to three lanes - provisions for bicycles, sidewalks,
2 Military Rd S S 288`� 31� S illumination, landscaping, property acquisition (incl. S
304` to 28�' S .
Widen to five lanes - provisions for bicycles, sidewalks,
3 S 356` l S SR 161 signal modification, illumination, landscaping, property
ac uisition, coordination with re ional storm detention.
Construct over crossing of I-5, construct new (5) lane
4 S 312cn 28tn S Military Rd S roadway, provisions for bicycles, sidewalks, illumination,
landsca in , ro e ac uisition.
5 S 312` Military Rd S 51�` S Construct new (5) lane roadway, provisions for bicycles,
sidewalks, illumination, landsca in , ro e a uisition.
6 SR 99 S 272n Dash Pt Rd Construct Arterial HOV lanes, both directions.
7 SR 99 � Dash Pt Rd S 312`� Construct Arterial HOV lanes, both directions.
8 SR 99 S 312` S 324`�' Construct Arterial HOV lanes, both directions.
9 SR 99 S 324`� S 340` Construct Arterial HOV lanes, both directions.
10 Dash Pt Rd SR 99 1 S Widen to three/four lanes.
11 S 316` 51�` S W Valley Hwy Extension.
12 I-5 SR 18 SR-161 Construct collectoddistributor roads beside I-5 to extend
the SR-18 interchan e south to SR-161.
13 SR-161 SR 18 Military Widen to five lanes, curb, gutter, sidewalk,.and
illumination.
14 SW 336 Wy/ 26`� Pl SW Hoyt Rd SW Widen to five lanes, curb, gutter, sidewalk, and
SW 340 St illumination.
15 S 320`� St SR 99 1�` Ave S Construct arterial HOV lanes.
16 SR 99 S 340` S 356`" Construct arterial HOV lanes.
17 S 348` SR 99 1 Ave S Construct arterial HOV lanes.
The City's plan has been developed in awareness of these policies and supporting
programs. The City's plan is in compliance with the WSDOT's direction and vision. The
transportation plan for Federal Way relies on the State in the following action areas:
• HOV system completion on I-5 and other freeways.
• Implementation of the State System Plan. This plan identifies, in priority order, the
need for maintenance, preservation, safety, economic initiatives, environmental
retrofit, and mobility (capacity) improvements. The latter may not be fully funded
and may therefore affect the implementation of the following WSDOT projects:
•
Revised 2003
III-36
FWCP — Chapter Three, Transporta6on
•
• HOV access improvements, primarily I-5 medians.
• Interchange improvements for I-5 from SR 18 to SR 161.
• Improve access between I-5 and the City Center.
• Arterial HOV and other enhancements on SR 99 south from South
272" Street to South 356�' Street.
• Improvements to SR 509 (Dash Point Road) between SR 99 and 21 �`
Avenue SW.
• SR 509 extension from Burien along the western and southern
sections of SeaTac Airport south to I-5.
� The SR 509 extension north from Tacoma to the new SR 167
connection on I-5 at Fife. This extension will likely occur in the 2015
planning horizon. To have I-5 and 509 coincident along I-5 from Fife
to South 272 would be consistent with this plan.
• Continued improvements to monitoring, with possible provision of information
systems regarding travel conditions.
+ Right-of-way acquisition for rail and the above improvements before construction.
• The addition of park and ride lots and added capacity for existing ones.
• SR 18 improvements east of SR 99. •
• Advanced vehicle identification (AVI) on SR 99 to provide transit priority.
I-S HOV Lanes — As noted in the section on transit and HOVs, a major improvement along
I-5 proposed by the state is extending HOV improvements south to the Pierce County
line. These changes are consistent with the assumptions included by the City in its
analysis efforts, and support the concepts envisioned in the plan. WSDOT has also
identified the next generation of improvements to the HOV system on I-5 (and other
regional facilities). This effort will identify ways to improve HOV and transit access to
the freeway (predominately along the medians of these highways). Such concepts are,
again, consistent with this plan.
SR 509 — Two projects will affect this facility; both outside the City of Federal Way. To the
north, there is on-going planning for extension of SR 509 from Burien along the western
and southern sections of SeaTac Airport to I-5. It is consistent with the concepts embodied
in this plan. The Tier I EIS for the SR 509 South Extension Project has selected Alternative
C as the preliminary preferred alternative. This particular alternative would join.I-5 near
South 210` Street, and add capacity to I-5 south to South 320�' Street.
The second modification to SR 509 will be south of Federal Way. SR 167's connection to
Tacoma from Puyallup will be improved during the planning horizon. As part of this
effort, the connection with SR 509 in Tacoma will be modified. The state has not
resolved the issues related to modifying this connection. Analyses will look into the best
� •
Rev�sed 2003 Iil-37
FWCP — Chapter Three, TranspoRa6on
• methods to accomplish this connection, and will likely examine how best to connect to an
improved SR 509 to the north (see preceding paragraph). An option to have I-5 and 509
coincident along I-5 is consistent with this plan:
Other Action Areas
Sound Transit is reviewing a high capacity transit system alternative for a second phase
in early 2006. The City plan identifies stations/transit centers on or near the I-5/SR-99
corridor at South 272 Street, South 316`'' Street, South 336�' Street, and South 348`�
Street. Until light rail transit is extended to Federal Way, the transit centers would be for
bus transit only. The integration of the road system for vehicles and buses with high
capacity transit is incorporated into this plan.
METRO and Pierce Transit provide bus and park & ride facilities to Federal Way. T'hese
are also identified and integrated into the City's plan. King County, Pierce County,
Tacoma, Kent, Auburn, Algona, Pacific, Edgewood, Milton, and Des Moines presently
border Federal Way or its potential annexation area. An integrated street system with
these adjoining jurisdictions is incorporated into this plan. Sound Transit's approved plan
includes regional bus service to connect transit centers. These could connect Fecteral Way
with Tacoma and Lakewood to the south, with Tukwila and Seattle to the north, and to
the northeast with Auburn, Kent, Renton, and Bellewe.
The City is concemed about the high levels of congestion within and around each of the
three interchange areas serving the City on I-5. The City will work with WSDOT and
• other affected agencies to assure adequate access between I-5 and the City. Projects being
considered include all three interchanges and are prioritized in the following order:
I-S /SR 18 /SR 161 "Triangle"— WSDOT teamed with the City, King County, and the City
of Milton to develop alternatives to resolve several capacity and safety issues surrounding
the outmoded cloverleaf interchange at I-5 and SR 18. A design study is nearing
completion and two alternatives have been developed, with several similar attributes:
• Direct ramp connections between I-5 south and SR 18 east
� Direct ramp connections between I-5 north and SR 161
• Reduction or elimination of weaving areas
• Potential ramp connections between I-5 south and South 375 Street
This project is the City's highest priority project on I-S.
I-S / South 320 Street — The City is leading a design study starting in 2003 to develop
alternatives to improve access between I-5 and the City Center. The existing interchange has
been identified by WSDOT as a High Accident Location and is at capacity now. Failure to
resolve these issues could be a deterrent to planned development in the City Center.
This project is the City's second highest priority project on I-5.
•
Revised 2003 III-38�
FWCP — Chapter Three, Transportation
I-5 /South 272" Street — As an outgrowth of Sound Transit's plans to improve transit access •
between I-5 and Park and Ride Lots near South 272" Street, WSDOT, Sound Transit,
King County, and the cities of Kerit and Federal Way have been involved in design
analyses to resolve short- and long-term capacity problems at this interchange.
Transportation Goais & Policies
It is proposed that the City adopt the following goals and policies with respect to
transportation facility improvements that allow it to maintain options into the future,
especially with respect to transit enhancements. This may result in a conservative
approach to highway improvements that might slow the rate of progress in the area of
non-SOV mode use.
Goal
TG2 Provide a safe, e�cient, convenient, and financially sustainable transportation
system with su�cient capacity to move people, goods, and services at an
acceptable level of service.
The City shall develop and adopt policies for the construction, reconstruction,
maintenance, and preservation of new and existing facilities.
Policies
Policies that affect streets and roadways are divided into five categories: General, •
Functional, Safety, Multimodal, and Community/Aesthetic.
Generad
TP9 Identify and implement changes to the transportation system that reduces reliance
on the single occupant vehicle. Support state, regional, and local visions and
policies.
TP10 Protect existing and acquire future right-of-way consistent with functional
classification cross-section (transit, rail, bike, and pedestrian) needs. Require
developments to dedicate right-of-way as needed for development commensurate
with the impacts of the development. At a minimum, setback limits shall be used
to assure that buildings are not placed within the right-of-way requirements for
planned transportation facilities. Right-of-way dedication shall be commensurate
with a development's impact to the existing and planned transportation system.
TPll Coordinate street and roadway improvement programs with appropriate state,
regional, and local agencies. �
TP12 Maintain the transportation forecasting model for use in impact analysis, capital
facilities planning, and monitoring of the plan.
�J
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FWCP — Chapter Three, TranspoRation
•
TP13 The maintenance and preservation of existing streets, roadways, and related
infrastructure shall take precedence over major street improvement projects that
enhance system capacity.
Functional
TP14 Provide access between major development areas identified in the recommended
alternative, while improving business access and protecting City neighborhoods.
TP15 Specify an appropriate arterial LOS which balances the economic, ecological,
accessibility, and livability needs of City residents, consumers, employers, and
employees.
TP16 The City's LOS standard shall be E. This is defined herein as a volume/capacity
ratio less than 1.00 in accordance with Highway Capacity Manual (2000)
operational analysis procedures. At signalized intersections, the analysis shall be
conducted using a 120-second cycle length and level of service E is defined as less
than 80 seconds of delay per vehicle. Where transit or HOV facilities are provided,
the LOS shall be measured by average delay and volume/capacity ratio per person
rather than per vehicle. This standard shall be used to identify concurrency needs
and mitigation of development impacts. For long-range transportation planning
and concurrency analysis, a volume/capacity ratio of 0.90 or greater will be used
• to identify locations for the more detailed operational analysis.
TP17 Expand arterial capacity by constructing channelization improvements at
intersections when they are an alternative to creating new lanes along a roadway
corridor.
TP18 Determine street classifications by balancing travel needs with changing right-of-
way uses and neighborhood character.
TP19 Limit single-occupant vehicle capacity increases to those required to maintain the
existing LOS, either by providing new streets or by widening existing streets.
Maintain existing and preserve future street connections vital to system integrity.
TP20 Take advantage of opportunities to open new road connections to create route
alternatives, especially in areas with few access choices.
TP21 Enhance traffic circulation and access with closer spacing of through streets,
unless geographical constraints do not permit. Limit the area to be served by a
single access point commensurate with planned density.
Safety
TP22 Develop access management standards to minimize the number of curb cuts on
arterials to improve pedestrian and vehicle safety.
•
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FWCP — Chapter Three, Transportation
•
TP23 Minimize through traffic on residential streets by maximizing through travel
opportunities on arterial and collector streets.
TP24 Consider safety first in the design of intersection improvements.
TP25 Allow improvements to traffic flow only where they contribute to traffic and
pedestrian safety, high capacity transit and HOV system enhancements, and
reduce air pollution.
TP26 Employ traffic calming measures in neighborhoods (where feasible) where traffic
volumes and speeds on local streets consistently exceed reasonable levels.
TP27 Prohibit parking on arterial and collector streets, except on low volume business
district streets in the City Center when neither safety nor transit operations would
be compromised.
TP28 Improve safety on residential streets by:
a. Reducing street widths while maintaining on-street parking.
b. Increasing separation between sidewalks and streets.
c. Reducing design speeds to discourage speeding.
d. Limiting the length of straight streets to discourage speeding.
e. Discouraging the use of four-legged intersections. •
Multimodal
TP29 Reduce reliance on the single occupant auto by prioritizing and implementing
supportive local-level transit, HOV, and non-motorized improvements.
TP30 Identify and plan for multi-modal freeway, arterial, and collector street
improvements which ensure more efficient use of existing roads and
enhancement of HOV, transit, and related non-motorized operations.
TP31 Integrate the traffic circulation network with high capacity transit, HOV, bicycle,
and pedestrian networks with consideration to regional system needs, including
air and port facilities.
TP32 Structure the City's improvement program to strategically place increments of
public and private investment that complement the multi-modal vision of the
plan. This should include "matching" improvements to supplement the efforts by
other agencies to provide HOV and transit facilities.
TP33 Acquire rights-of-way for high capacity transit whenever possible in advance of
their need, and make accommodations for any improvements, whether public or
private, to provide for future high capacity transit needs without major
redevelopment (e.g., locate structures so they would not need to be altered to
accommodate future high capacity transit facilities). •
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FWCP — Chapter Three, Transportation
•
Community/Aesthetic
TP34 Design arterials to fit with the planned character of areas they pass through.
TP35 Minimize visual distraction to drivers on arterials.
TP36 Make arterial travel a pleasing visual experience in order to reduce driver
frustration and speed.
TP37 Keep through traffic to state routes and arterials. Discourage the use of local or
neighborhood streets for through movements (unless part of an overall process of
creating a street grid).
TP38 Include sufficient area in rights-of-way for bike lanes, sidewalks, and landscaped
medians to provide separation from motorized traffic as funds allow. Use
landscaped medians to separate opposing traffic when safety and aesthetic
purposes dictate the need.
3.2 TRANSPORTATION SYSTEMS MANAGEMENT (TSM)
�
Transportation Systems Management (TSM) focuses on maximizing use of the existing
systems travel capacity. The concept was first originated in the mid-1970s by the U.S.
Department of Transportation. Since that time, it has been applied by a host of different
ways in cities and metropolitan areas around the country. More recently, the 1991 Federal
Transportation Act (ISTEA) expanded the vision of TSM introducing the term
Congestion Management Systems (CMS). The terms CMS and TSM are synonymous in
this document.
Again, the focus of TSM is to identify ways to manage the transportation system (usually
streets and highways, from a local agency perspective) to maximize the carrying capacity
of existing facilities. TSM activities can include new construction, but they typically
modify an existing facility. TSM options can be grouped into the following categories:
• Geometric Improvements
� Access Management
� Signalization Improvements
• Capacity Enhancements
These groupings cover a host of alternative actions. Not all are appropriate for a city to
undertake. The more popular and successful ones are listed in Table III-8, TSMStrategies
Applicable to Federal Way (page 43).
C�
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FWCP - Chapter Three. Transportation
Table 1II-8
ies A licable to Federal Wa
Low or None High
Ge'pmetric Improvements
-Channelization
-Bus Turnouts
-Exclusive Turn Lanes
-Itlitersection Widen in
Sifnalization Improvements
-New Signals
-Signal Removal
-Coordination
- TimingIPhasing Optimization
-Monitorin
Aqcess Management
- T\lrn Prohibitions
-AK.:cess Management
-Driveway Restrictions/Removal
-S nin
Capacity Enhancements
-Arterial Frontage Roads
-Railroad Over-Crossings
-Intersection Grade Se aration
./
./
./
./
./
./
./
./
./
./
./
./
./
./
./
./
Geometric Improvements
The term Geometric Improvements refers to projects intended to "re-shape" the physical
layout of roads. Through reported problems and periodic monitoring (see section on
Monitoring which follows), isolated improvements can be defined which will improve
the operation of traffic and increase safety.
Such improvements are under the City's control. While there are national and state level
guidelines, the City's adopted design standards guide the design of these improvements.
Sometimes called Spot Improvements, their low cost and net increase in efficiency make
them particularlx popular.
Signalization Improvements
Signalization improvements include traffic signal installation or removal, and operational
strategies. Historically, the City has relied on other agencies to service its traffic signals.
The county has maintained some signals under contract to the City, while the state has
operated those on certain state routes. This has produced a fragmented approach to traffic
control. Recognizing this, the City recently initiated a central computer system to control
key intersections in the City Center. This program consolidated all signals under King
County-contract~d maintenance and operation. Only signals at 1-5 off-ramps remain
under WSDOT j~risdiction, although signal timing is maintained by the City to provide
signal coordination.
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FWCP - Chapter Three. Transportation
Traffic along South 320th Street, South 348th Street, and SR 99 benefit from coordination
and improvement to signal timing and phasing. A decrease in delay of up to 29 percent
was measured in an earlier study. The cost of such improvements has been rapidly
recovered by this reduction in delay to drivers. Air quality is also enhanced due to fewer
unnecessary stops. In addition, transit reliability has increased.
Coordinated signal systems require periodic attention to maintain their efficiency because
traffic conditions change over time. While Federal Way is not directly operating the
signal systems, it has focused on hiring traffic personnel in the Public Works Department
who have experience in this area and can manage the contracted work.
Monitoring of the system is another activity that the City controls directly. Whether or
not the City operates the signals, a monitoring and reporting program should be set up.
This would include the gathering of traffic information, its processing, and the reporting
of the results in a systematic fashion. Changes in operating conditions should be reported
to responsible officials on a regular basis and should be used as part of the prioritization
process in making local improvements (see the section on Implementation Strategies). The
City has developed a master plan to provide signal communications, coordination, and
monitoring as shown in Map 111-3.
Access Management
Access Management is another means to manage traffic flow efficiency. These measures
can be instituted by the City on its facilities. Further, WSDOT encourages the City to
manage access to state routes in the City, often by use of controls and restrictions. (See
the Roads and Streets section for access management category designations.) Controls and
restrictions are often placed where recurrent safety problems have been noted.
Signing, which is a form of traffic control, is important to the motoring public. One
component often overlooked is directional or informational signing. Another reminds
travelers of regulations. Since a number of jurisdictions operate roads in and about
Federal Way, a comprehensive effort to coordinate signing would be useful in placing
street improvements. Such a system would route motorists and other travelers to the most
appropriate route (see section on Intelligent Traveler Systems).
Capacity Enhancements
Capacity enhancements typically include road widening. They are construction oriented
(as opposed to operational), and are often constructed to assure an existing road segment
operates as efficiently as nearby segments. For example, traffic monitoring might indicate
a section of freeway carries more local, short trips than long distance, through trips. By
adding a parallel frontage road, the freeway might operate more efficiently. Another
example might consist of two heavily used streets being grade separated at their
intersection point to accommodate flow. Intersections such as South 320th Street at SR
Revised 2003
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FWCP - Chapter Three, Transportation
99, South 348th Street at SR 161, and South 348th Street at SR 99 may be considered for
such improvements in future planning cycles.
I
Capacity enhancements typically are higher in cost than other TSM strategies. Funding
from outside sour~es is limited. Therefore, such projects must be carefully justified.
Advanced Technology and TSM
Applications of n~w technology can also be categorized as TSM measures. Originally called
Intelligent Vehicle Highway Systems and now known as Intelligent Traveler Systems, they
are being rapidly developed for all modes of travel. Key to many of them is improved
traveler informatipn. As described further below, their application holds great merit for
managing congestion, improving safety, and informing travelers of multiple travel options.
An Intelligent Traveler Systems Plan was recently prepared for the State of Washington.
Directed by WSDOT, it established a framework for implementation of a variety of ITS
options. Table IIJ;.9 (page 46) lists the main categories of ITS application, their relative
applicability in F~deral Way, and the degree of impact each might have on the City's
vision and plan.
TSM Projects
The following pn)jects have been identified under the City's TSM program.
Traffic Signal Coordination
. Signal Coordination on SR 99 5 South 288'11 to South 356'11. Complete signal
coordination along major arterial sections. Completed July 1996. Retimed 2001.
. Signal Coordination on South 348'11 5/-5 to )" South. Complete signal coordination
along major arterial sections. Completed December 1995. Retimed 1998.
. Signal Coordination on South 32(/11 5/-5 to )" South. Completed July 1996. Retimed
2002.
. Signal Coordination on SW Campus Drive. Completed December 1998.
. Signal Coordination on 21" Avenue SW Completed December 1998.
. Signal Coordination on SR161 (Enchanted Parkway). Completed December 1998.
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FWCP - Chapter Three, Transportation
Table II/-9
Intelligent Traveler Systems (ITS) Applications in Federal Way
ITS CATEGORY EXAMPLE ApPLICATION AREA DEGREE OF CITY IMPACT TO
CONTROl. VISION
Public Transit Monitoring of Transit Operations ~ ~
Automatic Fare Payment ~ ~
Dynamic Ridesharing ~ ~
./ HOV Lanes & Parking /I /I
./ Priority Treatment /I /I
./ HOV -Signal Priority /I /I
HOV -Automated Highways ~ ~
,/ Employer-Based TDM Initiatives ~ /I
Vehicle Guidance & Control ~ ~
Road Use Pricing ~ ~
Feny Management N/A N/A
Traveler Information Traveler Information Databases ~ /I
Trip Planning (Pre-trip) ~ /I
Trip Guidance En Route ~ ~
Vehicle Monitoring & Warning Systems ~ ~
Traffic Management Incident Detection & Management ~ ~
./ Traffic Network Monitoring /I /I
Communication Systems ~ ~
./ Traffic Control Systems /I /I
Construction Management ~ ~
Freight & Fleet Management Route Planning & Scheduling ~ ~
Vehicle & Cargo Monitoring ~ ~
Regulatory Support /I ~
Internodal Port Transfers N/A N/A
Other Services Emergency Service System Mgt. /I ~
Enforcement Services /I ~
Traveler Safety/Security ~ ~
Air Quality Monitoring & Pricing ~ ~
/1- High/Positive
-7- Somewhat/Possibly
~- Low/Questionable
,/ - Pursue
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FWCP - Chapter Three, Transportation
Traffic Signalization
. South 31 ih @ gh Avenue South. Place traffic signal to manage changing traffic
conditions.
. 21" Avenue SW@ SW 325,h. Place traffic signal to manage changing traffic
conditions. Completed April 1998.
. SW Dash Point Road @ 8,h Avenue SW Install left turn lane and traffic signal.
. SW Dash Point Road @ 21" Avenue SW Install right turn lane, traffic signal,
illuminate intersection. Completed April 1998.
. SW 34dh Street @ 35,h Avenue SW Signalization and school crossing illumination.
Completed December 1996.
. SR 99 @ South 33(jh Street. Signalize. Completed January 2001.
Intersection Improvements (Channelization, Geometries, etc.)
. South 336'h Street: 13,h Avenue South - 19h Avenue South, Right Turn Lane @ SR 99.
Construct eastbound right turn lane and westbound left-turn lane.
. South 356'h Street Right Turn Lane @ SR 99. ISO-foot right turn lane. Completed.
· Continuing Minor Traffic Improvements. Place signal revisions and other traffic
controls at various locations to manage the dynamics of short-term changes in traffic
conditions.
. SW Campus Drive @ 6th Avenue SW Install new traffic signal and left turn storage
lanes. Completed.
. South 32(jh @ SR 99. Redesign intersection to accommodate changing traffic
patterns. Cot;I1pleted July 2001.
. SW 34(jh @ Hoyt Road SW Construct left turn lanes and signalize. Completed March
2000.
. South 336'h @ 2dh Avenue South. Add left turn lanes to accommodate changing
traffic demand.
. South 28gh @ 2dh South. Add left turn lanes to accommodate changing traffic
demand. .
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FWCP - Chapter Three, Transportation
Transportation Goals & Policies
Goal
TG3 Extend the functional life of the existing transportation system and increase its
safe, efficient operation through application ofTSM strategies.
Policies
TP39 Continue to implement traffic signal coordination projects as the primary
component of a TSM program. As funds permit, monitoring of traffic operations
will be carried out to assure efficient timing of traffic signals.
TP40 The Manual of Uniform Traffic Control Devices, developed at the federal level,
will be employed in the design and placement of traffic controls.
TP41 Public comments and requests will supplement routine traffic monitoring to
identify and correct traffic control needs, as well as other noted system
deficiencies.
TP42 Arterial HOY improvements will be constructed along key corridors to improve
flow and encourage use of these more efficient modes.
TP43 Minor capital projects, placing spot (localized) traffic improvements, will be
carried out to extend the capacity of system components.
TP44 Capacity enhancements will be made where other, lower cost improvements will
not correct deficiencies. They will be carefully justified to compete for limited
funds.
TP45 Employers will be encouraged to institute complementing TSM actions to those
under-taken by the City. This will create consistency and understanding, thereby
improving travel conditions.
TP46 Intelligent Traveler System options will be monitored by staff, who will
periodically recommend additional ITS- TSM options.
TP47 Access Management, placing restrictions on left turns across major arterial
streets, will be used to reduce crash rates and extend capacity of major arterials.
TP48 As technology permits, and the City's HOY system is implemented,
opportunities will be sought to modify the signal coordination strategies to
provide priority to HOYs.
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FWCP - Chapter Three. Transportation
TP49 Incident r~sponse timing plans should be developed for parallel arterials to
accommodate diversion oftraffic from freeways caused by lane closures.
3.3 NON-MOTORIZED MODES
The two most popular modes of non-motorized transportation are walking and bicycling.
Walking constitut~s the greatest percentage of personal travel. Unfortunately, short trips
(under one mile) are usually not counted in urban travel statistics. We make at least as many
short trips as longer trips by motorized vehicles. When travel by younger generations is
considered, the il1)portance and magnitude of short trips can be better appreciated.
As pointed out ina recent State Department of Community, Trade, and Economic
Development report, the popularity of bicycling has increased in the US since the 1970s.
A 1991 survey found that 1.67 percent of Americans and 2.9 percent of people in the
Western states commuted to work by bike in October 1990. The Census Work Trip data
for Federal Way l1eported slightly less than one percent bicycle use and about two percent
walking for work!trips in 1990.' The 2000 Census reports that in 1999, approximately 1.3
percent of work ellS 16 years and over walked to work. Table III-lO summarizes the trip
purposes reported in 1990 as part of the National Personal Transportation Study.
P
Table III-lO
fW lki dB.ki T.
urposes 0 a ngan I ng ripS
PURPOSE WALK BIKE
Work 11% 10%
Shopping 18% 10%
School/Church 20% 14%
SocialIRecreational 34% 55%
Other 17% 11%
Table III-fO indicates that U.S. citizens may not have discovered the bicycle as a
commute vehicl~, and that opportunities for walking to work are limited. It is possible
that the location of jobs relative to homes and the lack of connections between major
travel points contribute to this. Can this change? One needs only look to other nations to
find examples of bicycle use, especially to access other modes of transportation. In
Germany, for example 43 percent of arrivals at rail stations are by bike. A 15 percent
figure is common in Japan.
I Your Community's Transportation System. Deportment of Community Development. State of Washington,
Olympia, WA, April 1993.
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FWCP - Chapter Three. Transportation
Nationally, 54 percent of the population lives within five miles of their work place. There
is a tremendous opportunity for people to walk or bike if we provide safe, direct
pedestrian, and bicycle facilities.
Safety is another area of concern for pedestrians and cyclists. The WSDOT reports that
the vast majority of pedestrians killed or injured are struck while crossing the roadway,
most often at intersections. Nearly half of all bicycle/automobile accidents occur at
intersections. The state is monitoring pedestrian and bicycle accidents as performance
measures of the service objectives.
Funding is no less an issue with non-motorized facilities than road and transit services.
The ability of the City of Federal Way to provide non-motorized facilities is limited by
funding sources and competing program needs. The extent of this constraint becomes
apparent when the estimated $300,000 cost to provide needed wheelchair ramps for
transportation-disadvantaged persons in Federal Way is compared to the recent annual
budget amount of $30,000.
Walking and biking do not appear to playa major role in satisfying urban travel needs at
present. This will not occur until we provide a safe network for pedestrians and bicyclists
and develop a system that is oriented towards pedestrians and bicyclists. Walking and
bicycle ways are a potential means of providing increased accessibility for the full range
of citizens; including young, old, and transportation-disadvantaged. A safe network of
non-motorized facilities will provide the opportunity for recreational and commuter users
to reduce their dependence on automobiles.
State & Regional Coordination Issues
On the federal and state level, coordination, plannin& and implementation of non-
motorized facilities has gained significant support as an alternative mode of
transportation. The 1990 Intermodal Surface Transportation Efficiency Act (ISTEA)
emphasizes the benefits of non-motorized modes of travel and provides a revenue
resource for funding planning and implementation activities. The State of Washington
has developed service objectives for bicycle and pedestrian transportation systems
primarily to increase use and improve safety. The state has also defined the non-
motorized systems in terms of state-owned and state-interest. The state-owned system
refers to state highways, interstates, ferries, and Amtrak. "State-interest facilities are
local, regional, or statewide facilities that are vital to the statewide economy and the
mobility of people and goods. " On a regional level, the Metropolitan Transportation Plan
(PSRC 1995, MTP-3), identifies major issues to be addressed by the plan including:
. Identify performance based strategies;
. Develop criteria for identifying regionally significant projects;
. Establish funding levels and financially constrained plans;
Revised 2003 III-50
FWCP - Chapter Three. Transportation
. Develop l?etter standards;
. Ensure consistency in planning among local jurisdictions;
. Establish :priorities for funding; and,
. Involve tme public and provide coordination.
To provide regional guidance and coordination, the MTP calls for a significant increase
in facilities that support pedestrian and bicycle travel. The three components of the MTP
strategy include development of a regional network of non-motorized transportation
facilities, development of local networks for non-motorized travel, and development of a
transit network tijat is fully accessible to pedestrians and bicyclists. These strategies are
consistent with and incorporated into the non-motorized section of this chapter of the
FWCP. I
To develop a facility plan and strategies for non-motorized modes of travel, attention to the
perceived needs of regional and local users will help create a viable system. Table III-]]
lists common problems related to the use of non-motorized travel and options to improve
these uses.
Table III-II
Non-Motorized User Problems and Solutions
Problem Solution Alternatives
Lack ofFacil~ies, Route Complete system elements and gaps.
Discontinuities Review and condition new development.
Trip Too Long Interconnect developments and cul-de-sacs with trails.
Create closer opportunities Gobs housing balance).
Bike Security Add storage facilities at destination and on transit.
.
Clothing/Cleanliness Add showers, changing areas, and restrooms.
Personal Security Assure lighting, wider facilities, motorist compliance with laws.
Re-time signals. Where appropriate, separate from vehicles.
Unaware of ~ystem Designate (sign) routes.
Public education, advertising, provide maps.
Pedestrian System
Background
Walking supports many trip purposes. Significant foot traffic occurs in areas with
concentrations of children and high population densities, such as downtown and retail
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FWCP - Chapter Three, Transportation
centers. Also, as the American population ages, higher numbers of elderly, who no longer
can drive or who choose walking for exercise, are using walkways (sidewalks, paths, and
trails ).
Planning for walkways requires an understanding of the patterns of foot traffic and a
decision on which trips can be appropriately supported through investment by the public
sector. For example, a community such as Federal Way, much of which has been built
with neighborhood streets, may find it can only afford to place sidewalks along major
streets. For financial reasons, it may be necessary to accommodate foot and bicycle
traffic on residential streets within the neighborhood, but provides pedestrian separation
from traffic on busier streets through the placement of sidewalks. Pedestrian facilities
were inventoried and are shown in Map III-l8. This inventory has recently been revised.
Several arterial streets do not have sidewalks or have sidewalks that are substandard. In
1993, the city adopted a policy that makes the city responsible for maintaining sidewalks.
A program to construct missing segments of sidewalk, or to construct sidewalks only
within certain arterial classification, should be considered.
Pedestrian Improvement Options
Street lighting, hand/guardrails, directional signing, wheelchair ramps, and traffic signal
crossing indications are some of the amenities which may be required as part of a
pedestrian system. Many existing facilities in Federal Way do not have these amenities
and inhibit safe pedestrian improvement and access to transit. The actual provision of
these amenities is usually assured through the adoption of design and construction
standards, which are applied to new or significantly reconstructed facilities, such as
streets, subdivisions, public, and commercial buildings.
The Americans with Disabilities Act (ADA) requires designs that provide access for the
mobility impaired, and that are required for all facilities affording public access. This act
also requires the retrofitting of buildings and their access for the mobility impaired. This
applies to the need to place ramps at all crosswalks and intersections on City streets.
There are also many older areas of Federal Way that have no sidewalks and pedestrian
amenities, the lack of which tends to impair safe pedestrian movement. An assessment of
needed pedestrian amenities and the condition of existing sidewalks should be carried out
to prioritize, fund, and construct a functional pedestrian system.
Education and Training
The public, especially grade school children, should be educated on pedestrian safety.
Programs such as "Ped-Bee" (Bellevue, Kirkland) teach children traffic and pedestrian
safety.
As the American public grows older, it will be increasingly necessary to consider their
needs. A recent study by the Center for Applied Research reports that 20 to 40 percent of
the elderly who do not drive depend upon walking for their travel needs. The report also
points to the fact that traffic signals may fail to take the slow walking speed of these
individuals into consideration. The Federal Highway Administration is presently
considering the study's findings. While there is no immediate action required by the City,
it is likely that municipalities such as Federal Way will be prompted to give more explicit
consideration to the walking needs of the elderly in the future.
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FWCP - Chapter Three, Transportation
,
A strategic objective for Federal Way's pedestrian system should be as follows:
I
. Short Term Strategy. Improve safety and complement the transit system, making
it more accessible. It is necessary to attend to the safety needs of pedestrians,
correcting locations having high crash rates, and making ADA required ramp
improvements. Connections to the transit system can also be made to provide a
missing link in what could be a "seamless" public transit system. In extending the
pedestrian system to provide access to the transit system, transit amenities such
as bus shelters should also be provided.
. Mid Term Strategy. Provide extensions to the walkway system. Logical, safe, and
convenient connections to parks, schools, neighborhoods, retail areas, transit, and
other points of attraction should be considered. The major interim extension of
the network should provide connections to and within neighborhood and business
centers. This will support the neighborhood area and concepts imbedded in the
plan vision. A network of walkways and trails on roadways should be integrated
into the Farks Comprehensive Plan and its trail system to provide for the needs of
both recr~ation and commuter uses.
. Long Term Strategy. Focus public and private investment in the City Center. At
present, the pedestrian system does not contribute to the identity of the
downtown. The future system must link commercial establishments, public open
space, and public buildings with transportation facilities.
Pedestrian facility development is supported by zoning regulations and development
review in the fonn of the City's design guidelines, to make sure pedestrian access is
accounted for and is consistent with this plan.
Through a collective vision for the denser core area, this can become an attractive feature
for Federal Way.: Without it, the resulting pedestrian environment will remain forbidding.
Bicycle System
Background
The Federal Way Bicycle Advisory Committee (FWBAC), Federal Way's citizen
advocacy group bfbicycling enthusiasts, wishes to see Federal Way become one of the
best cities for non-motorized modes of travel. Their goals are to make available to the
citizens an interconnected network of bike facilities for commute, utilitarian, and
recreational users. Incorporated by this reference to the FWCP is the "City of Federal
Way Bicycle Pl~n," May 1994, which is intended to act as a guide for policy makers
when making or; planning for needed bicycle improvements in the greater Federal Way
area. The following summarizes key recommendations and gives some examples of
possible programs:
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FWCP - Chapter Three, Transportation
. Staffing. PSRC's MTP acknowledges that communities with dedicated bicycle
planners are more likely to have extensive programs for pedestrians and
bicyclists, a well-developed facility plan, and design standards for bicycle
facilities. A Bike Planner is recommended to facilitate and implement non-
motorized programs. This planner could also implement other components of the
transportation plan such as TDM, grants, and the TIP.
. Education and Training. The public needs to be made aware of alternatives to the
single occupancy vehicle (SOV) and that bicycles have equal rights to cars on the
road. Volunteers and FWBAC members could assist with education programs
promoting safety and rules of the road for bicyclists. Programs for grade school
children would be beneficial. Users could learn from "Bicycle Buddies."
Programs such as "Safety Town" and bicycle rodeos teach children traffic and
bicycle safety.
. Promotion. Bicycles should be promoted as an alternative means of
transportation for commuting and for recreation. Publications could have bike-
riding tips. Maps of bike routes need to be published. Nationally, 54 percent of
all people work within five miles of work. Safe and direct bike rides on trails or
routes could increase the use of bicycles as a commuting alternative.
. Enforcement. Cars and bicyclists that disobey the rules of the road make the
roads less safe for everyone. Greater enforcement would be beneficial.
. Plan. The adoption of a Non-Motorized Facilities Plan developed with the FWCP
will provide a classification of the types and locations of bike trails and routes to
provide an interconnected network of facilities to meet the needs of Federal Way.
. Standards. The adoption of design standards for bicycle facilities will ensure that
the safety and quality standards of the community are met. This includes trail
widths, pavement markings, signs, bike racks, and lighting for both public and
private facilities. Safety can be enhanced by identifying how intersections and
driveways are designed and what kinds of catch basin lids and pavement
markings are to be used. WSDOT and AASHTO have developed design
standards for bicycle facilities.
. Facilities. The TIP provides a prioritized listing of non-motorized improvements.
These are shown in Table III-I2 (page 55). A small CIP category should be
identified for improvements to non-motorized modes of travel, such as replacing
catch basin grates that are not bike safe, constructing small improvements such as
minor discontinuities of bike facilities and to install signs and pavement markings.
Major capital improvements for streets should incorporate non-motorized
facilities. Additionally, prioritized projects just for bicyclists will also help provide
continuity for the principal bike facilities shown on the Non-Motorized Facilities
Plan and provide a basis to compete for available funding sources.
Revised 2003 III-54
FWCP - Chapter Three, Transportation
Building owners and employers should be encouraged to provide bicycle
parking, bicycle security, showers, and lockers. Transit agencies also should be
encouraged to provide bicycle parking, security, and a means of transporting
bicycles so they can be used at trip destinations.
on- o onze mprovemen s
LOCATION IMPROVEMENT COST YEAR
BPA Trail Phase II: I't Ave S to SW Campus Dr (Completed) Trail Development $0.631 Million 1995
Military Road: 1-5 North to 1-5 South Shoulder Improvement $1.I 76 Million 2006+
S 312'h St: Dash Pt Rd to 1st Ave S Shoulder Improvement $0.308 Million 2002
Weyerhaeuser Way S 320'h St to S 349th St Shoulder Improvement $0.652 Million 2002
BPA Trail Phase Ill: SW Campus Dr to SW 356th St. (Completed) Trail Development $1.947 Million 2001
BPA Trail Phase IV: SW 356th St to City Limits Trail Development $1.230 Million 2004+
I't Ave S: S 292nd St to S 312th St Shoulder Improvement $0.282 Million 2004+
9th Ave S: S 333rd St to S 348th St Widen for Bike Lanes $2. Million 2004+
TIPN
Table III-12
M t dI
t
. Funding.. Reliable on-going funding is needed to accommodate the state,
regional, and local goals in providing and supporting non-motorized modes of
transportation. Grants are one source to pursue. The following is a list of national
grant sources that indicates the level of interest in bicycling as transportation.
. National Highway System (NHS)
. Surface Transportation Project (STP)
. Congestion Mitigation and Air Quality (CMAQ) Improvement Program
· Federal Lands
. Scernic Byways Program
. National Recreational Trails
. Federal Transit Title III
Bicycle Improvement Options
In competing for limited funding sources, it is essential that this section's recommendations,
like the pedestrian/walkway system, be programmed for implementation in a logical
fashion. The following are the criteria proposed for establishing the prioritized order of
improvements. They are listed in their recommended order of precedence.
1. Maintenance and operations.
Mainten/lnce oftrails, signs, etc.
Regular!sweeping of trails.
Safety Improvements:
. Replace catch basin grates that are not bicycle safe.
. Reh-tove hazards and minor discontinuities of trails.
. Striping and pavement markings for bike trail delineation.
. Signs
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FWCP - Chapter Three, Transportation
2. Public and private development or redevelopment.
. Off-road developments
. Schools
. Parks
. Subdivisions
3. Roadway construction or reconstruction.
Include bike facilities as a part of all projects as funding allows.
4. Bike facility construction projects that provide access to:
. Transit
· Parks
. Neighborhood centers
. Libraries
. Work sites
. Churches
. Schools
5. Completion of sections of the regional trail system (when identified by PSRC).
6. Creation of a commuter biking system.
7. Creation of a recreational biking system.
Non-Motorized Facilities Plan
To assist the City in identifying important facilities for non-motorized modes of travel, as
well as provide guidance for the location of improvements in the non-motorized plan, a
facility plan has been developed. Consistency and coordination with regional and other
adjacent agency plans and projects will ensure a seamless system of pedestrian and
bicycle facilities. Pierce County, Tacoma, and King County have to some degree
identified important facilities. The Pierce County and Tacoma plan identif~ important
bicycle connections at SW Hoyt Road, SW Dash Point Road and SW 3561 Street. These
connections are also identified on the Federal Way Plan. The closest regionally
significant non-motorized facility to Federal Way is the Interurban Trail. Access east!
west to the Interurban Trail from Federal Way is provided on shared facilities on South
320'h Street, South 288th Street, and South 272nd Street. The Federal Way Bicycle
Facilities Plan is shown in Map 111-19.
The state, region (PSRC), and King County have identified improvements to non-
motorized facilities to enhance non-motorized transportation. The FWBAC also
identified improvements needed to accommodate non-motorized facilities. Improvements
identified by FWBAC will be considered along with the Federal Way and Regional
Transportation Improvement Programs.
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FWCP - Chapter Three, Transportation
This plan illustrates the proposed system of designated bicycle facilities for the City. The
complete system will be composed of three types of non-motorized facilities, classified as
follows:
Class 1 facilities are separate trails, operating in their own rights of way.
Class 2 facilities are signed bike routes that operate jointly with roadways.
Class 3 facili~ies are shared road facilities.
Under this plan, the common element will be shared road facilities. Where there is
sufficient right-of~way, cyclists can be allowed to share the road with motorized vehicles.
No signing or striping will be placed on these facilities.
Another common element of the bicycle system will be a network of bike routes and bike
lanes. Routes will be established where there is sufficient on-street width to
accommodate cyclists in traffic. To maintain continuity and guide travelers, the system
will be designed with distinctive markers, possibly designed in a citywide competition.
Where the needs of the cyclist warrant, Class 2 bike lanes can be installed using approved
pavement marking techniques and signing.
A limited number of Class 1 bike trails separated from vehicles will be provided through
the plan. Key among these facilities will be a cross-town trail along the BP A Power Line
right-of-way, bet)Veen 11th Place South at South 324th Street and SW 356th Street at about
16th Avenue SW.'This facility will provide a non-motorized link between residential
neighborhoods, the Aquatic Center, Panther Lake, and commercial/retail areas, including
SeaTac Mall.
Transportation Goals & Policies
Non-motorized transportation facilities will be increasingly important to the City in
meeting the travell needs of its residents and workers and to reduce our dependence on
automobiles. Th~ pedestrian and bicycle systems can be implemented through a
prioritized series of improvements to complement the transit, and HOV systems as well
as create a key lipk to business, cultural, recreational, and residential elements that are a
part of the FWCP Vision.
Goal
TG4 Enhance community livability and transportation by providing a connected
system 0'/ pedestrian and bicycle ways that is integrated into a coordinated
regional network.
Policies
TP50 Provide sidewalks on both sides of all arterial streets as funding allows.
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FWCP - Chapter Three, Transportation
TP51 Provide a one-mile grid of bicycle facilities connecting major activity centers,
recreational facilities, and schools.
TP52 Incorporate pedestrian and bicycle features as design elements in the City Center
as reflected in the FWCP Vision and City Center Street Design Guidelines.
TP53 Ensure that City facilities and amenities are ADA compatible.
TP54 Work to extend the existing system of sidewalks, bikeways, and equestrian ways
in the city to provide safe access to public transit, neighborhood and business
centers, parks, schools, public facilities, and other recreational attractions.
TP55 Work with other agencies, particularly relating to regionally significant facilities,
to pursue funding for pedestrian and bicycle amenities.
TP56 Inform and educate the public on safety and use of non-motorized facilities.
TP57 Ensure non-motorized facilities are safe and well maintained.
Actions
1. Work with high capacity transit agencies to ensure such non-motorized travel
amenities as shelters, benches, bicycle racks, lighting, and information kiosks are
incorporated in the design and improvement of transit facilities.
2. Establish a funding program that prioritizes the most critical non-motorized
improvements first, while realizing opportunities for property owners,
neighborhoods, or business groups to create portions of the system through public-
private partnerships.
3. Facilitate the School District's designation of a system of safe school walking routes,
and, where possible, make capital budget decisions that support such a system.
4. Emphasize the enforcement of laws that reduce pedestrian, cyclist, and vehicle conflict.
5. Improve public awareness of the laws that protect pedestrians and cyclists and of
non-motorized facility locations.
6. Include maintenance of non-motorized facilities in the City's on-going transportation
servIces program.
7. Acquire access paths between existing developments, cul-de-sacs, public facilities,
business areas, and transit followed by trail construction to improve non-motorized
circulation. Require the same for all new developments or redevelopments.
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FWCP - Chapter Three, Transportation
3.4 TRANSPORTATION DEMAND MANAGEMENT (TOM)
Several pieces of recent legislation have led the City into the realm of Transportation
Demand Management (TDM). These include the State GMA, Commute Trip Reduction
Act (CTRA), and ,federal level requirements under both TEA-21 and Clean Air Act
Amendments as reflected in the State Implementation Plan.
The GMA cites the need for a variety of "management actions;" including the
requirement that the transportation chapter of each plan include an identification of
system expansion needs and transportation system management (TSM) needs to meet
current and future demands. The act goes on to note:
After adoption of the Comprehensive Plan ...localjurisdictions must adopt and
enforce ordinances which prohibit development approval if the development
causes the level of service on a transportation facility to decline below the
standards adopted in the transportation element of the comprehensive plan,
unless transportation improvements or strategies to accommodate the impacts
of development are made concurrent with the development. These strategies
may include ...demand management and other transportation systems
management strategies (emphasis added).
The purpose of the following section is to provide recommendations on the appropriate
approach to TDM for a suburban city such as Federal Way. Since the preponderance of
employment is currently outside the City, there can only be limited influence on traffic
congestion within Federal Way by travel management through TDM. Options must be
selected accordingly.
Table 111-13 (page 60) stratifies various TDM alternatives by their functional grouping
and potential effectiveness, implementation difficulties, and expected cost effectiveness.
Fortunately, several of the more effective options are within the purview of the City.
PSRC's Vision 2020 identified five basic strategies that overlap with those presented in
Table 111-13. These strategies are:
· Telecommuting
· Parking ,Pricing and Subsidy Removal
· Compressed W ork Week
· Employer-Based Management
· Parking Supply Strategies
PSRC also recognizes that the following issues must be addressed to support successful
TDM implementation in the region:
· Lack of data on effectiveness
· Emerging technological and social shifts
· Lack of regional coordination
· Need for TDM strategies to address non-commute trips
· Lack of funding flexibility to finance TDM investments
· Lack of alternatives to single occupant vehicle (SOY) travel
· Lack of public support
Revised 2003 III-59
FWCP - Chapter Three, Transportation
While TDM actions are aimed at reducing travel demand or, at least, shifting it to more
opportune travel times, several focus on consolidating person trips to fewer vehicles. The
City views HOV and transit use as key to reducing travel demand. As discussed in later
sections, provision of on-street and off-street HOV facilities and controls will support this
strategy. For example, arterial HOV lanes will complement the regional system.
Similarly, traffic signal priority and preferential parking, access, and egress for HOV will
further bolster the program.
va ua Ion 0 ra egles
Who Pays
Evaluation Criteria for Vl Vl .€'
Incremental .... .... <<i
<U <U 0..
Transportation Demand Potential Effectiveness Implementation Difficulties ~ >. .0
Cost 0
Management (TDM) Strategies 0.. l:: c.. .0
~ ., E ;::l
f-o :j "'-l ::E
PUBLIC MODE SUPPORT MEASURES
Public Education and Promotion Increases the effectiveness of None Low-medium ./ ./ ./
other strategies up to 3%
Area-wide Ride matching 0.1-3.6% VMT reduction None Low ./ ./
Services
Transit Services Up to 2.5% VMT reduction Ongoing competition for Medium-high ./ ./ ./
public funds
Up to 8.3% commute VMT High fares compared to
Vanpool Service transit; finding riders & Medium ./ ./
reduction dri vers
Transit and Vanpool Fares Up to 2.5% regional VMT Competition for public funds; Medium ./ ./ ./
reduction equity concerns
Non-Motorized Modes 0-2% regional VMT Minimal for low cost actions; Low-high ./ ./ ./
reduction great for high cost actions
HOV Faci"tities Up to 1.5% VMT reduction & High cost; public acceptance Medium-high ./
.2% trip reduction
Park and Ride Lots 0-0.5% VMT reduction None Medium-high ./
EMPLOYER BASED TDM MEASURES
Monetary Incentives 8-18% trip reduction at site Tax implications for some Low-medium ./
subsidies
Alternative Work Schedules As much as a 1 % regional Employee or management Low ./
VMT reduction reluctance
Commute Support Programs 0.1-2.0% regional VMT None Low ./
reduction
Guaranteed Ride Home Unknown Liability concerns of Low ./ ./
employers
20-30% site reduction in SOY Low to
Parking Management Employee opposition ./ ./
trips revenue
producing
Space; local zoning Low to
Facility Amenities Minimal alone revenue ./
requirements producing
Table III-I3
Elf fTDM St t
Revised 2003
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FWCP - Chapter Three, Transportation
Who Pays
Evaluation Criteria for '" Vl .g
Incremental ... ... <il
Potential I Effectiveness 01) 01) 0-
Transportation Demand Implementation Difficulties ~ ;....
Cost 0 .;:;
Management (TOM) Strategies 0.. !:: i5. .E
td '" E ;::l
f-< :j ~ :::E
Transportation Management 6-7% commute trip Funding and political support Low-medium ./ ./
Associations reduction"' required
*These results are from pre CTR experiences. A broader range of effectiveness would be expected in the presence of CTR legislation.
PRICING STRATEGIES
4-10% regional VMT Public resistance; legislative Revenue
Gasoline Tax Increases action; travel alternatives ./
reduction required producing
0.1-11 % regional VMT Public resistance; legislative Revenue
VMTTax action; travel alternatives ./
reduction required producing
Public and political
Congestion Pricing Up to 5% regional VMT resistance; travel alternatives Revenue ./
reductioq required; technical and producing
enforcement difficulties
1-5% re$ional VMT and trip Legislative action; negative Revenue
Parking Tax public sentiment; opposition ./ ./
reductiol\ from private sector producing
TELECOMMUNICATIONS STRATEGIES
Telecommuting Up to 10% commute VMT Prevailing corporate culture Low ./
reduction
Advanced Telecommunications Moderat~ to high Untested, unproven concepts Low-high ./ ./
LAND USE STRATEGIES
Development Impact Mitigation Varies with mitigation Landowner and developer Low to ./ ./
requirements resistance medium
Mixed Land Use/Jobs Housing VMT reductions up to 10% Public resistance; slow rate of Low to ./ ./ ./
Balance effective change medium
Transit-Oriented and Pedestrian Increase in transit, bike, and Requires design review; Medium to ./ ./ ./
Friendly Design I pedestrian trips developer resistance high
VMT reductions of up to 10% Public and developer Medium to
Residential Density Increases resistance to required ./
per household densities high
Employment Center Density SOY work trip reductions of Large increase in density Medium to
often required to realize ./ ./
Increases up to 50% significant change high
1 to 5% region-wide VMT Local council action required;
Parking Management public/retailer resistance; Low ./ ./
reduction enforcement issues
Unknown; probably reflects Requires policy changes, Low to
On-Site Amenities effectiveness of mixed use public, and private inertia are ./
development barriers medium
POLICY & REGULATORY STRATEGIES
.1 - 4%regional VMT Legislative action required;
Trip Reduction Ordinances resistance to expanded Low-medium ./ ./ ./
reduction regulation
Restrict Access to Facilities and 2.8-10% VMT reduction Political will to face public Low to high ./
Activity Centers opposition
Revised 2003
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FWCP - Chapter Three, Transportation
Who Pays
Evaluation Criteria for tIl tIl .€
Incremental ... ... <;;
Il) Il) 0-
Transportation Demand Potential Effectiveness Implementation Difficulties ~ >-. .u
Cost 0
Management (TDM) Strategies 0- ~ 0.. .2
~ '" E ::l
E-< :j ~ ::E
Support New Institutional Unknown Require strong advocacy, Low to high ./
Arrangements public, & private support
Increase HOV lanes to 3+ Possible 1.5% reduction Legislative action needed; Low ./
public resistance
Parking Restrictions 1-5% trip reduction Public, developer resistance Low ./
Effectiveness of TOM Alternatives
Recently, WSDOT conducted a study of the effectiveness of alternative TDM strategies.
This work was carried out for the National Association of Regional Councils and
provides interesting conclusions. The study looked into both the cost ofTDM strategies
and the potential reduction in vehicle miles traveled (and air pollution) resulting from the
efforts. Interestingly, this work identifies the least and the most effective strategies,
which are summarized in Table III-I3 (page 60). The researchers noted that land use
planning and related strategies are also potentially highly cost-effective.
Commute Trip Reduction Act
The Commute Trip Reduction Act was passed by the State Legislature in 1991 and
revised in 1997. It is also a part of the State Clean Air Act. The intention of the law is to
improve air quality, reduce traffic congestion, and decease fuel consumption. It focuses
attention on larger employers with the intent of reaching concentrations of workers who
might use shared-ride and non-motorized modes to travel to and from work. Working
from 1992, or employer's survey year data, as the base year, employers are encouraged to
reduce SOY use and vehicle miles of travel (VMT) by 15 percent in the first two years,
20 percent in four years, 25 percent in six years and 35 percent in 12 years. In 1992 the
baseline characteristics were established for South King County (including Federal Way)
at an 85 percent share to SOY's and an average trip length of9.3 miles.
In 1993, Federal Way adopted an ordinance consistent with the CTR guidelines. In
adopting the ordinance, the City agreed to file an annual report on the program and to
accept advice from METRO on alternative strategies that local employers might be
encouraged to use in meeting the goals. The City also agreed to conduct a review of its
parking requirements as part of the process and to play an active role in the regional
process. It is the City's intent to also set an example for other employers through the
establishment of CTR programs among its employees. In 1999, Federal Way revised the
1993 ordinance to be consistent with the state CTR guidelines.
Revised 2003
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FWCP - Chapter Three, Transportation
Based on recent (4001) surveys of F ederal Way Employers, the actual percentage of drive
alone trips was 77~94 percent. The round trip VMT in Federal Way was reduced by
1,830,538 miles. The over-all mode split results from the 1995 and 2001 surveys are
shown in Table IIl-14. Similar to the issues stated in the MTP, reasons for driving alone
included convenience and a lack of alternatives.
Table II1-14
Fd IW MdSrS R
e era ay 0 e iplIt urvey esu ts
MODE MODE SPLIT
1995 2001
SOV i(Single Occupant Vehicle) 86% 77.94%
Carpool 04% 12.70%
Vanpool 01% 1. 78%
Busffransit 01% 0.96%
Compressed Work Week n/a 3.67%
Bicy<;le n/a 0.31%
Walk 10% 0.37%
Telecommute 01% 1.24%
Other 03% 1.02%
Recommendations
Based upon the above, the following recommendations are made:
1. Encourage voluntary expansion of the CTR Program to employers of less than 100
employet;:s. The encouragement by employers may be as diverse as subsidized bus
passes, car pool space priority, bike racks, shower facilities, van pools, car pool
information access, telecommuting, variable work hours, etc.
2. Encourage the formation and expansion of area-wide ride-sharing programs. Such
programs operate with little direct cost to the City and are highly cost-effective.
3. Facilitate the creation of Park and Ride facilities and transit centers to supplement
the regiOnal system, either directly through acquisition of property or indirectly
through development conditions where employer vans are required to shuttle
employe~s to Park and Ride facilities or transit centers.
4. Facilitate enhancements to the HOV System. This may include the acquisition of
property for HOV lanes, construction of arterial HOV lanes on City arterials and
State highways, and priority treatments for buses at traffic signals. At the very
least, opportunities to support improved access to the State system of HOY lanes
should ge identified and supported.
Revised 2003
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FWCP - Chapter Three, Transportation
5. Increase density of land uses and encourage a mix of uses to locate near bus
routes, park and ride lots, and transit centers through the adoption of the FWCP
and its supporting zoning. This policy is vital to the creation of a regional bus and
rail system and will also be an effective way to reduce traffic congestion and air
pollution.
6. Encourage mini transit centers in the City Center, neighborhood shopping areas,
and multifamily nodes, together with enhanced pedestrian and bicycle access and
security.
7. Improve pedestrian and bicycle access to bus routes and transit centers. This can
be a requirement of subdivision, development, and redevelopment. The City may
need to acquire easements and construct trail connections. Development
incentives could be granted for providing such amenities that are pedestrian,
bike, and transit friendly.
8. While bicycle, pedestrian, and bus transit services and facilities may be desirable
for other reasons; they should not be looked on as highly cost-effective strategies
to the exclusion of those actions listed above.
Transportation Goals & Policies
Through TOM options, the City can maximize the effectiveness of the public investment
dollar. Many jurisdictions are finding non-construction, or management actions, critical
to the overall achievement of congestion management and protection of neighborhoods.
As such, the TOM goals for Federal Way can be expressed as follows.
Goal
TG5-
a. Employ and promote the application of non-construction, and transit/HOV
construction actions to preserve and enhance mobility and assist in achievement
of the land use vision.
b. Develop methods to successfully measure and achieve the following HOV &
Transit mode split-levels by the year 2010:
. 15 percent of all daily trips over one mile in length;
. 30 percent of all work trips; and
. 40 percent of trips between major activity centers.
c. Assist all eTR affected and voluntary employers in the Federal Way planning
area to achieve the Commute Trip Reduction Act travel reduction goals.
d Ensure that all members of the community, including those with transportation
disadvantages, have viable travel options or alternatives.
Revised 2003
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FWCP - Chapter Three, Transportation
e. Use transportation demand management to help achieve an appropriate arterial
level of s4rvice that balances the economic, ecological, accessibility, and
livability needs of the City's residents, consumers, employers, and employees.
Policies
TP58 Support the achievement of City and regional mode split goals through
encouragement of local and regional work at home and transportation
coordination programs such as ride matching services and vanpools.
TP59 Support other transportation demand management programs that can be shown to
be cost-effective in achieving plan goals, while allowing residents and employers
discretion to choose the methods they wish to employ.
TP60 Develop an arterial street HOY system and related enhancement, which
complenjents the regional freeway HOY system, through the following actions:
· Place emphasis on the development of HOY and transit priority
improvements; especially those requiring minimal cost or construction.
These improvements should pace the extension of the regional system and
minimize the gap between traveler needs and system capacity.
· Establish an urban traffic control system that gives priority to buses and
HOYs.
. Establish policy that when arterials require more than four through lanes to
maintain the adopted LOS, additional travel lanes will be for HaYs. As
HaY lanes reach the adopted LOS standard, increase the vehicle occupancy
requirements for their use (e.g. increase from two or more to three or more
occupants). LOS will then be calculated by the average delay per person.
TP61 Provide improved operational efficiency to the City's transportation system and
support regional monitoring programs through regular, structured reporting,
monitoring, and performance evaluation.
TP62 Modify the development review process by:
. Incorporating revised impact analysis procedures that comply with GMA
concurrency and other requirements. The revisions need to include revised
Le~el of Service standards.
. St~eamlining it to the extent possible to minimize private development
costs. Where developments are consistent with this plan, they should be
aUpwed to proceed by mitigating site impacts; developing appropriate
components of the HaY, transit, non-motorized and motorized chapters;
Revised 2003 111-65
FWCP - Chapter Three, Transportation
and participating in an equitable citywide improvement funding or
mitigation payment program.
. Incorporating requirements of the Americans with Disabilities Act.
. Requiring explicit consideration of pedestrian and bicycle circulation, as
well as parking and general circulation needs.
TP63 Adopt a flexible level of service standard which employs a measurement factor
that accommodates demand management to help balance likely levels of growth,
with opportunities to create a multi-modal transportation system.
TP64 Encourage non-motorized improvements which minimize the need for residents
to use motorized modes by providing: I) access to activity centers; 2) linkage to
transit, park & ride lots, and school bus networks; 3) completion of planned
pedestrian/jogging or bicycle trails; and 4) designating a network of streets that
can safely and efficiently accommodate bicycles.
TP65 Enhance a non-motorized system by the following actions:
. In instances where the citywide system of bike lanes, trails, and sidewalks
crosses or abuts new development or redevelopment, consider requiring the
developer to mitigate the impact of the development on the City's
transportation system by constructing bike lanes, trails, and sidewalks that
interface with the existing system.
. Coordinate development of the non-motorized system with surrounding
jurisdictions and regional system extensions.
. Extend the existing system of City sidewalks to all streets.
TP66 Recognize that TDM requires coordination, and work with regionalrepresentative
and other adjacent communities to develop coordinated TDM strategies.
3.5 LOCAL AND REGIONAL TRANSIT
Public transit service is provided to area residents by a combination of fixed-route,
express, dial-a-ride, and subscription bus services. King County METRO serves the City
directly, while Pierce Transit buses provide connections from the Park and Ride lot on 1-5
at South 320th to Tacoma and Puyallup. Sound Transit serves the Federal Way and Star
Lake Park and Ride lots with regional express buses between SeaTac and Tacoma, and
between Federal Way and Bellevue. Amenities supporting transit patronage include Park
and Ride lots and waiting-area shelters. The Federal Way School District and King
County's Multi-Service Center also provide special, local area bus services.
Revised 2003
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FWCP - Chapter Three. Transportation
Locally and natiol,lally, public transit services, ranging from local buses to regional rail,
are witnessing increased attention. Despite declining transit ridership in the late 1980s
and early 90s, these services are being viewed at the regional, state, and federal levels as
essential to meet public travel needs. Many people with low incomes or special mobility
needs depend on transit. The City of Federal Way supports the provision of viable transit
services as a component in a multimodal transportation system.
Coupled with car pooling and van pooling, improved transit service is viewed by the City
of Federal Way as essential to providing area residents with mobility options in the
future. Unlike road services however, the City is constrained by state law and federal
regulations in its ability to provide these alternatives.
The City's involvement with the provision of transit services is indirect-through such
efforts as supportive land use planning (to generate sufficient transit patronage) and
roadway design features (to accommodate transit and other high occupancy vehicles).
The City's planning process has focused on development of a transit-supportive
environment, including improved pedestrian and bicycle access to transit. Public Works
projects anticipate enhanced regular route, local bus service, and the possible
implementation of a regional light rail system.
Expansion of regional transit and HOV systems is critical to the achievement of Vision
2020, which guides the regional Metropolitan Transportation Plan. Federal Way's vision,
which includes a City Center with surrounding commercial and residential land uses, is
enhanced by both an improved regional bus system and a rail system. Local circulation
routes will also be essential. The Federal Way plan has been structured with primary
emphasis on locations that can become transit centers. In the interim, transit centers will
be focused at Park and Ride lots.
Existing Conditions
An extensive inVlentory of existing transit services in and about Federal Way was
reported in the qity's 1993 Community Profile. The following excerpts on existing
conditions are taken from that document.
Map 1II-20 indiqates Federal Way's existing regular, express, and Dial-A-Ride route
locations, as we~l as its park and ride lot locations and planned bus routes. There are 24
regular and expr~ss service routes that provide nearly 250 bus trips to, within, and
through Federal ;Way each day. In total, about 3,000 to 3,500 person trips are made by
regular, express, and Dial-A-Ride service each day. About one percent of all daily (and
three percent of peak hour) Federal Way trips are made by transit, which is comparable to
other suburban areas.
The majority of:service is provided to park and ride facilities where more than half of
Federal Way's transit riders access transit. Routes into the neighborhoods of the City are
Revised 2003
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FWCP - Chapter Three, Transportation
oriented to the higher density areas where there is lower auto ownership and greater
reliance on transit.
Under a demonstration project, METRO instituted Dial-A-Ride Transit (DART) service
to portions of the City in 1992. Today, DART service follows a semi-fixed routing with
service provided to patrons who do not live or work on fixed routes.
Is transit service available today? In a 1991 survey by Federal Way, the answer seemed to
be a resounding "No." Distributed to approximately 30,000 residents, nearly 2,000
responded, many of who (87 percent) were auto drivers. When asked for reasons why
they did not use transit, the following responses were received:
. Auto required for work/personal errands - 47%
. Buses do not go to destination - 33%
. Auto saves time - 30%
. Bus schedules are not convenient - 29%
. Bus stops too far away - 23%
. Parking is free/low cost at work - 23%
. Transfers are inconvenient - 20%
However, in another survey, among 75 employers of varying size, nearly 75 percent
indicated that service is available within one block of their establishment.
Local Transit Service Development
Most transit service to and from Federal Way is oriented toward downtown Seattle.
Historic, radial expansion of the system from the downtown is one reason for this. More
significant is that density, congestion, and parking costs have kept transit competitive in
the downtown Seattle market.
It was not prudent for METRO to expand service for the growing suburban market where
there was little congestion and parking was abundantly available. However, suburban-to-
suburban travel demand and local congestion have increased the need to reevaluate and
begin planning for cross-town service.
The potential for improvement was corroborated by comparing auto and transit travel
times. The 1996-200 I METRO Six Year Plan accommodate~ these changes in customer
needs by setting policies that would shift layout of the system to multiple Hubs and
Spokes focused on transit centers with rapid service between centers. This provides radial
local service to take customers to a city center. Thus, citizens would be able to catch
express service to such destinations as Auburn, Puyallup, Tacoma, and Seattle. In
addition, the 1996 voter approval of Sound Transit's Sound Move Initiative provides
greater means to serve emerging travel patterns.
Revised 2003
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FWCP - Chapter Three, Transportation
Other Factors Affeqting Transit Use
While transit routes exist within Federal Way neighborhoods, the existing street layout, with
its many cul-de-sacs and dead-end streets, is not always conducive to transit use. Buses
cannot run along ~very residential street. They usually operate on collector and arterial
streets, thus residents often have.to walk several blocks to reach a route. Research has
shown that when potential patrons have to walk over 3 miles, many will not use transit.
Because of the distance between residences and bus stops, and frequent express-type
service to Park aQd Ride lots, many transit users travel to the three Federal Way lots near
1-5. However, these lots are nearly always at capacity. Efforts to expand their capacity by
both METRO an<il WSDOT have been hampered by the relatively high cost of land to
provide for expansion. Despite high land costs, WSDOT recently constructed a new 600-
space Park and Riide lot at 21 sl SWat SW 344th Street, and Metro plans to construct
another Park and:Ride lot at Pacific Highway South and South 276th Street. Sound Transit
is proposing a CiTY Center Transit Center with an up to 1200 stall parking structure,
connecting to an HOV direct access ramp to 1-5 via South 312lh Street.
In considering future land use and transportation alternatives for the City, a balance must
be sought between creating transit compatible land uses and providing system access
from park and riqe facilities and stations.
Dial-a-Ride Transi. (DART)
As noted above, this service was introduced by METRO in 1992 and is being evaluated
for its potential as a component of future transit service in suburban communities such as
Federal Way. Di~l-A-Ride service is demand activated by the users. Users originally
phoned in and van service was provided within two hours. Unlike regular route service,
only the area beipg served was defined, not the routes. The service has since been
modified to opeqlte with semi-fixed routes, which due in part to greater schedule
reliability, has dl1amatically increased ridership. Should ridership continue to improve,
regular fixed route service may soon be attainable.
Paratransit Service
In addition to the service program for general-purpose travel, METRO has embarked on a
significant program to improve services for persons who cannot use regular route bus
service. This prqgram has been developed to meet the requirements of the Americans
With Disabilities Act (ADA) of 1990. It provides high quality public transportation
service to eligiblie customers.
People with limited resources who are either 65 or older or who have disabilities may
qualify for Paratransit. Called ACCESS Transportation, Paratransit service currently
provides door-ta-door transportation Monday through Friday for 25 cents. Monthly and
annual pass stickers are available as well. Key elements to METRO's Paratransit Plan are
the provision of:
. SuppleO!lental service in Western King County within 12 miles on either side of
regular route service;
Revised 2003 111-69
FWCP - Chapter Three, Transportation
. Next-day reservations up to 14 days in advance, with trips scheduled seven days
a week;
. Fares held to the same level as one-zone regular bus fares; and
. Scheduled service to be the same as the near-by, regular routes.
Federal Way is within a METRO service area from 5 a.m. to 2 a.m.
Regional Transit Improvements
The METRO Six Year Plan is consistent with the regional public transportation concepts
embodied in Sound Transit's plan for longer range rail and bus improvements. It provides
a first step toward building an integrated system of expanded services and capital
facilities. Now that a regional transportation system has been approved by voters, Federal
Way's land use and transportation plans accommodate its impacts and implications.
The City's Role
Supporting activities by the City, either under the shorter range METRO Plan or the
Regional Transit Plan (RTP), would include preferential traffic signal treatment for
regional (express) buses, and cooperation with WSDOT in improving access to the state
highways in the area.
The land use plan will support both the regional and local transit systems through
configuration ofland uses and allowable densities. Historically, most of Federal Way was
developed at five units to the acre or less. The land use chapter ofthe FWCP includes
higher densities in the City Center and along the SR-99 corridor. A threshold in transit
planning seeks 15 to 20 dwelling units per acre to support HCT systems. The results of
such intensification are shown in Figure 1II-5 (page 72), which depicts the ability of
differing development densities to generate higher transit mode splits.
The primary area supporting HCT will be concentrated along Highway 99 north and
south of South 320lh Street. The City Center will be located northeast of the intersection
of these two arterial roadways. Higher density residential areas will be located in the City
Center core and frame, increasing in intensity in areas surrounding transit centers or
major transfer points such as Park and Rides.
Improvement Priorities
Metro (King County Metropolitan Services) has identified transit service improvements
in south King County in their draft six-year plan. These improvements are depicted in
Table III-J5 (page 71).
Revised 2003
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FWCP - Chapter Three, Transportation
ntprovemen an rOJec S In e era ay
Target Service Level
Cate20ry RoutelDescription Peak/Midday/Evenin2
Transit Service 187 NeighborhQod service between Federal Way Hub and SW Federal Way. 30/30/60
177 Peak direction express service - Federal Way Hub to Seattle CBD. Sat/Sun 30/60
181 East-west local service between the Federal Way, Auburn, and Green River 36 trips/day
Community College Hubs; continuing through Kent East Hill to Lake 30/30/60
Meridian P&R and Kent Hub. Sat/Sun 30/60
183 East-west local service between Federal Way and Kent includes stops in 30/30/60
Camelot, Star Lake P&R, and Kent West Hill. Sat/Sun 60/60
188 Add service to 21st Avenue SW. 30/30/60
903 Revise to cPnnect to Pierce Transit Route 61 serving Northeast Tacoma. Sat/Sun 60/60
194 Two way el(press service connecting Federal Way Hub, SeaTac Hub, and 30/30/30
Seattle CBO, includes stops at Star Lake and Kent-Des Moines P&R=s. Sat/Sun 30/30
Transit Hub Park & Federal Way transit hub with passenger and bus layover facilities; New_600-stall Twin Lakes P&R lot; Expand Star
Ride Lake P&R by approximately 500 stalls, either on the surface to the north of the existing lot, or by the construction of
a parking structure on the existing site.
Speed & Reliability Current speed and' reliability study underway on SR 99 from Boeing Access Road to South Federal Way P&R.
Non-motorized Collaborate with local jurisdictions in the planning and design of bicycle and pedestrian access improvements (e.g.,
Access bike lanes, curb cuts, gutters, sidewalks, and rail crossing improvements).
METRO I
Table III-IS
tPl P
t . F d
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Revised 2003
111-71
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FWCP - Chapter Three, Transportation
To support expanped regional transit, a more extensive feeder bus system will be needed.
METRO and Pierce Transit have worked with the City in developing concepts for
improved transit ~ervice in and about the City in the future to support the FWCP land use
vision. Key features include:
I
Expanded Bus Routt Coverage - Existing Peak Hour Transit Service and potential new bus
routes are depicted on Maps III-20, III-2I, and 1II-22, respectively.
Improved Regular ~oute Bus Service - Buses would run every 15-30 minutes, linking
neighborhoods, Qreen River Community College, Yalley employers, and other south
county cities. Trainsfers to Pierce County buses would also be made easier.
Dial-A-Ride Service - This on-call service would be modified as needed to complement
regular route seniice. New technology would help provide a more flexible set of services,
penetrating neighborhoods where regular buses are prohibited. Paratransit services would
also expand door~to-door service for people with disabilities.
Transit Main Street$ - Selected travel corridors would be designed to combine frequent bus
service with neig~borhoods and City Center shops or services. Comfort, safety, as well as
bicycle and pedestrian access would be emphasized along these corridors.
Transit Priority - As with regional express routes, special lanes and signals could allow
local buses, as well as vanpools and car pools, to by-pass congestion. Areas under
consideration, through regionally funded studies, include SR 99, South 348t\ and South
320th Streets. Diamond lanes for HaYs, including buses, would be completed along SR
4' th
99, and South 3 :8 Street.
Traveler InformatianSystems - Through the application of high-tech communications
systems, METR0 has already begun installing devices to track the location of vehicles
and to provide the traveling public with real-time information on system options. These
systems will be enhanced under a comprehensive system of transit, HCT, HaY, and
freeway monitoring. As described later in the plan, it is anticipated that a vastly improved
traveler information system will make both the local and regional transit system more
attractive to loc~l residents.
Six- Year Plan Impl'rmentation - In 1996, METRO appointed several citizens in South King
County to recorrjmend improvements in transit service to implement the Six-Year Plan.
This group met for over a year and has recommended the development of a grid pattern
of local service toutes and consolidating commuter routes to Seattle, and increasing the
frequency of rOl.\tes connecting to other communities. The first phase was implemented in
September 1997~ and modified the following routes:
. Route 181 was rerouted to South 336th Street, 20th Avenue South and South 324lh
Street, ihstead ofWeyerhaeuser Way South and South 320th Street. Frequencies
were increased to 30 minutes midday.
Revised 2003 111-73
FWCP - Chapter Three, Transportation
. Route 902 was replaced with a new Route 183 from the Federal Way Transit
Center to the Kent Transit Center via the Star Lake Park & Ride. Overlapping
portions of Route 192 were deleted.
. Route 903 was rerouted to 1 st A venue South and South 320th Street from South
356th Street and 20th Avenue South between West Campus and the Federal Way
Transit Center, providing all-day service to 1 st Avenue South.
. Route 194 was rerouted to 9th A venue South from Pacific Highway South,
providing all-day service to several CTR affected employers.
The second phase of improvements would restructure routes in the remainder of Federal
Way and was implemented in June 1998. A sample route structure is shown in Maps III-
20 and 21. The ultimate conceptual plan is shown in Map III-22.
Sound Transit Improvements - Express bus service is provided between Tacoma and
Seattle, and another route connects Federal Way with Auburn, Kent, Renton, and
Bellevue. The voter-approved Sound Move Initiative will also provide improvements to
the Federal Way Transit Center and the Star Lake Park & Ride. Atboth locations, direct
access roadways will be constructed from the Park & Rides to the HOV lanes on 1-5.
Plans for extending light-rail between SeaTac and Tacoma will also be reviewed.
Federal Way Transit Center Location - The Federal Way Transit Center is currently located
at the Federal Way Park & Ride. At the time of adoption, the City Center chapter of the
FWCP proposed a new location at South 316th Street and 20th Avenue South. The primary
driver for this location was the assumption that light-rail between Seattle and Tacoma
would follow SR 99. Since adoption of the plan, conditions have changed and discussion
of alternate locations has emerged. Sound Transit's Sound Move Initiative allocated $4
Million for the construction of a new Transit Center, in coordination with the
enhancement and/or relocation of the existing Transit Center and direct access ramps.
The Transit Center is considered by the City as a major anchor to the urban center
designation in the Vision 2020 plan adopted by the PSRC. The location of the Transit
Center should be surrounded by property that has potential to redevelop into transit-
supportive uses, thus assisting to ensure both the success of the Transit Center itself and
the economic vitality of the City Center.
Based on thee considerations, the Transit Center and any associated capital facilities
(such as park and ride facilities) should be located as closely as possible to the
geographic center of the City Center. This point is located at the intersection of 20th
Avenue South and the proposed South 318th Street. In no case should the Transit Center
be located east of 23rd Avenue South, as the proximity to 1-5 would limit redevelopment
to transit-supportive land uses.
As a result of analysis of 10 potential sites, the preferred site for this Transit Center was
selected as the southwest comer of South 316th Street and 23 rd Avenue South, as it
balanced proximity to 1-5 and to the geographic center of the City Center.
Revised 2003
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FWCP - Chapter Three, Transportation
The Result of Transit Expansion
The net result expected from placement of improved transit locally and in the region is
meaningful imprdvement to mode split (the percentage use of each mode). The predicted
(and present) values are as shown in Table 1II-16. While not large in magnitude, with
only a 13 percentishare of trips by transit and other HaY s in 2010, one must view the
impacts during peak periods and along congested travel corridors in assessing the
implications. It is,possible, after the turn ofthe century, that:
. One in every four Federal Way Work trips will be by HaY and transit modes;
. One in every three Regional Daily trips will be by these modes; and,
. Over 50 percent of all work trips to urban centers such as Federal Way will be by
HCT an~ HaY.
or npsan 0 e ~p I sima es
, Current 2010
Mode Fe~eralWay Region Federal Way Region
Work Tr!ips Daily Trips Daily Trips Work Trips Daily Trips Daily Trips
Drive Alone 79% 86% 72% 70-74% 81-85% 62-68%
CarNan Pool 14% 8% 15% 18-20% 8-10% 16-18%
Transit 3% 1% 6% 4-5% 2-3% 8-10%
Other 4% 5% 7% 4-5% 5-6% 8-10%
W kT.
Table III-16
dMdSrtEf t
Guiding the Protess
To strategically position itself in the regional transit funding process, Federal Way's plan
has been prepared to integrate with the Metropolitan Transportation Plan, METRO's Six
Year Plan and the RTP. Road improvements that have been identified will focus service
to the transit centers or Park and Ride lots and support access to the regional system or
provide an incre~ent of capacity that would relieve congestion and air pollution.
To foster achievement of the transit vision, a series of supportive actions are necessary.
The land use distributions should take advantage of opportunities to increase densities in
a transit friendly fashion. In the core area, street planning would, in many cases, provide
exclusive access routes to transit centers as the area increases in density.
I
,
A staged implementation of service in the City Center will be required. This can be
accomplished by creating incentives for developers and through investment of public
dollars to prote<h options and provide logical increments of service. The provision of
transit corridors, improved traffic circulation, and improved non-motorized access to
transit will also ibe necessary.
Revised 2003
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FWCP - Chapter Three, Transportation
Key interim and long-term improvements must continue to focus on transit service to
transit centers and Park and Ride lots. As the City moves toward 2010, strategically
located lots, with bus, bike, and pedestrian access will be necessary. Complementing this,
the City can look to the land use development process and the rising interest of employers
to provide "self-managed" travel options. The City will encourage transit-oriented land
use patterns, especially along intensified corridors. The state's Commute Trip Reduction
(CTR) legislation will also guide these efforts.
Transit extension into many of the City's neighborhoods will not be possible due to the
configuration of the existing street network. However, opportunities do exist to connect
neighborhood collector streets. Such extensions into neighborhoods will require
strengthening of roads or their structural failure will be rapid. Most routes will remain on
major streets where traffic flow improvements can be made to expedite service.
Enhancements to transit (HCT and HOY) flow will become increasingly popular as
signal preemption techniques are perfected. Several of these systems are being tested at
present. The likely sequence of the longer-term development and travel events is shown
in Section 3.6.
Transportation Goals & Policies
Goal
TG6-
a. Prepare and provide for an enhanced, high capacity transit system, maintaining
area residents' mobility and travel options.
b. Foster phased improvements that expand transit services in time to meet the
demand for these services.
Policies
TP67 Promote the creation and use of a regional transit system that provides a cost-
effective alternative mode of travel to the single occupant auto, and assists the
region in attaining air quality standards. This system should be extended to the
City on a timely basis and be preceded by phased implementation of increased
levels of local and regional bus and HOY services which maximize accessibility
to regional jobs and maintains Federal Way as a regional activity center.
TP68 IdentifY and promote development of a local level transit system that
complements the regional system while meeting the travel needs of City
residents, consumers, employers, and employees. This system should provide
convenient connections from city neighborhood activity centers to the regional
transportation system.
Revised 2003 11/.76
FWCP - Chapter Three. Transportation
TP69 The target levels of mode split (share) to transit and HOY's for planning
I
purposes Fhould be:
.
15 ~ercent of all daily person trips;
30 percent of all daily work trips; and
40 percent of all work trips between major activity centers.
.
.
TP70 The regional and local transit systems should be designed to meet the
requirem~nts of the elderly and disabled (as prescribed by the ADA) and should
take adv$ntage oftechnological advances in transportation reflected in Advanced
Public T~ansit Systems (e.g., traveler information, system monitoring,
performapce monitoring, etc.).
TP71 The cityiwill continue to cooperate with regional and local transit providers to
develop facilities that make transit a more attractive option (e.g., bus shelters,
rapid intermodal connections, frequent all day service, safe and attractive
facilities).
TP72 The development of successful transit commuter options (e.g., subscription
buses, special commuter services, local shuttles) should be supported by the City.
TP73 Through, subarea planning, with the cooperation oftransit service providers, work
to make transit part of each neighborhood through appropriate design, service
types, arid public involvement.
TP74 Enhance the viability of regional and local transit service by establishing design
standards for streets that move transit, pedestrian, and cyclists in the City Center.
TP75 Preserv~ right-of-way for transit facilities as development applications are
reviewe? and permitted.
TP76 Create a,n incentive program that rewards development that establishes densities
supportiiye of the adopted regional transit plan.
I
TP77 Encourage the use of incentives to stimulate transit, car, and van pool use.
3.6 HIGH-OCCUPANCY VEHICLE FACILITIES
A Regional Fre~way High-Occupancy Vehicle (HOY) System Plan, or core HOY
system, has been designated for the freeway system in the region. The HOV system
includes using the middle lanes of 1-5 south from Seattle through Federal Way to
Tacoma, includ~ng possible direct access to the South 272nd and South 320th Street transit
centers along I-D.
Revised 2003
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FWCP - Chapter Three. Transportation
HOY facilities are viewed at the regional, state, and federal levels as essential to meet
public service needs. Also, HOY facilities may provide vital accessibility to developing
urban centers in the Puget Sound Region. This core HOY system is currently under study
(WSDOT Puget Sound Region Pre-Design Studies) to identify direct access locations that
will enhance the HOY system and improve transit and non-transit HOY travel times.
HOV System
The legislature has, in the past, committed to completing the WSDOT core freeway HOY
lane system. The Puget Sound Regional Council's (PSRC) Vision 2020 (the Metropolitan
Transportation Plan) includes completion of the Core HOY system as the cornerstone to
promoting HOY travel in the region. Features will include ramp meters and queue bypass
lanes, as well as integration of Intelligent Yehicle Highway System (IYHS) features such
as dynamic signing, radio information, and advanced vehicle detection. Emphasis will be
placed on providing improved access routes from large employers and where congestion
exists today. Generally, HOY lanes will be added to existing facilities, but where there is
sufficient capacity to allow conversion of general-purpose lanes, this will afford a cost
effective alternative.
At the regional level, the HOY system will be available to a mix of vehicles. The occupancy
level will be varied to maintain at least an average peak hour operating speed of 45 mph. As
demand increases and speed is lowered below this threshold, the level may be varied, for
example, from two or more people per vehicle to three or more. WSDOT created the Office of
Urban Mobility (now the Planning and Policy Office) to coordinate long range and emerging
transportation planning issues between WSDOT, PSRC, and its member jurisdictions. Among
its projects will be the evaluation of alternative HOY treatments to provide the most effective
combination of facilities to maximize speeds and reliability of bus service.
Regional planning has applied HOY planning on a local scale. The King County Arterial
HOY plan, Au~ust 1993, identifies 1-5, SR 99 (Pacific Highway), South/SW 320lh Street,
and South 34St Street as potential corridors for implementation of HOY and transit
priority treatments. The plan specifically identifies:
. Proposed (median) HOY lanes on 1-5 extended from SR 516 to Pierce County
· Freeway Access study on SR IS
. HOY Corridor and Access Study at South 272nd Street
. HOY lanes on South 34Sth and access improvements to 1-5
. HOY Corridor Studies on South/SW 320th Street and SR 99
. Intersection Improvements on South/SW 320lh at pi Avenue South and 21st
Avenue SW
. New or improved park and rides and a transit center within the City
Sound Transit will construct direct access HOY connections at South 272nd Street and
South 320th Street. WSDOT agrees to the need ofHOY lanes with automatic vehicle
identification (A YI) to provide priority to transit vehicles on SR 99 north of South 356th
Street and includes them in their system plan.
Revised 2003
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FWCP - Chapter Three, Transportation
,
The Future HOV System
HOV enhanceme*ts within the Federal Way planning area will consist of signal priority
treatments, exclusive lanes, increased park and ride opportunities, and other
improvements to be identified as demand increases. These latter improvements can
include separate (preferential) access lanes or roadways. This means utilizing HOV lanes
on highways and arterial streets wherever practical, if transit and car pool movements can
be enhanced, and ,optimizing the occupancy rate to move the most people possible.
TIP Improvements
Improvements in :the City's Transportation Improvement Program (TIP) to support the
HOV system are ldentified in Table 1/1-17 (page 80). Many of these HOV facility needs
will need to be p~ovided by outside agencies, including Sound Transit, WSDOT, and
METRO. Federal Way is working closely with these agencies to implement these
improvements o~er the next several years.
Transportation Goals & Policies
Goals
TG7-
a. Place hi#h priority on development of HOV and transit priority lanes.
b. Develop:arterial HOV lanes on bus routes with priority for transit at traffic signals.
c. Work with the transit agencies, WSDOT and King County, in applyingfor
fundingJor HOV improvements that complement transit and non-transit HOV
facilitieS, and park and rides within Federal Way.
d. Work wi~h WSDOT to complete the Core HOV system on 1-5 as planned.
3.7 AVIATION
I
Another vitalli~k in the fabric of area transportation is the aviation system. As pointed
out in the Comrq.unity Profile, this extends beyond regional aviation to local issues
surrounding flig~ts over portions of the City ("overflights") and local helicopter activity.
Revised 2003
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FWCP - Chapter Three, Transportation
Table //1-17
TIP HOV I t F d I W
mprovemen s e era ay
Location Improvement Cost Year
S 348th 1-5 to SR 99 HOY /Signal Coordination $6.9 Million 1995 Completed
21st and SW 344th Park & Ride $8.8 Million 2001 Completed
Regional CIP
SR 99/SW 3361h Transit Center Unknown 2010+
City Center, S 3 16th @ 23,d S Transit Center $38 Million 2005
SR 99/S 272nd Park & Ride $12.7 Million 2004
SR 161/S 356th Transit Center Park & Ride $13.1 Million 2010+
SR 99, S 272nd to Dash Pt HOY Lanes $20.2 Million 2006
SR 99, Dash Pt to 31th HOY Lanes $13.9 Million 2008
SR 99, S 312th to S 3241h HOY Lanes $7.2 Million 2003
SR 99, S 3241h to S 340lh HOY Lanes $24.0 Million 2004
SR 99, S 340lh to S 3561h HOY Lanes $18.6 Million 2010+
S 272nd @ 1-5 In-Line Station $25 Million 2007
S 3Ith@I-5 Direct HOY Access $27 Million 2005
S 320th St: SR 99 - 1st Ave S HOY Lanes $15 Million 2010+
S 3481h St: SR 99 - I sl Ave S HOY Lanes $12 Million 2010+
S 272nd St: SR 99 - Military Rd S HOY Lanes $7 Million 2007
At the regional level, there has been recurrent debate over the issue of maintaining
SeaTac as the regional facility or establishing a new airport. The City recognizes the
economic benefits of its proximity to the airport, as well as the liability to Federal Way's
quality of life which air traffic can produce. The City will continue to insist upon
maintaining the quality of life expected by area residents.
local level Opportunities
Federal Way experiences a relatively high level of helicopter overflights today, due in
part to its proximity to Boeing Field and also to the routine use of 1-5 as a flight corridor
in order to minimize noise. Map lII-23 shows 12 landing areas in Federal Way currently
used by helicopters. The City is the base for 12 helicopter operators. Together, these
operators field a combined fleet of38 rotorcraft. This fleet serves the following types of
purposes: 1) Business Operations, associated with corporate activity and air taxi services;
2) Emergency Services, including activity associated with S1. Francis Hospital, the
Federal Way Fire Department, and King County Police; 3) Law Enforcement (primarily
King County Police); 4) Government Flights, which are primarily military helicopters
from Fort Lewis south of Tacoma; and 5) Disaster Mitigation.
Revised 2003
111-80
FWCP - Chapter Three, Transportation
The planning and 'siting of helicopter facilities has been divided into emergency and
commercial uses ~nd facilities. Potential roles of heliports and a process for selecting
prospective sites fu1 Federal Way have been identified. Given potential roles and siting
considerations, the discussion of possible courses of action can be pursued within the
. I
commumty.
,
Potential roles fot! heliports in Federal Way would add disaster mitigation to business,
emergency servid~, and law enforcement activities. Planning efforts are currently
underway between Seattle and King County to incorporate helicopters and designated
landing facilities tnto the region's emergency preparedness planning. Public heliports in
Federal Way wo~ld be a key link in a regional disaster mitigation system. Potential
improvements to existing heliport operations were identified in the heliport planning
process. They inqlude improved safety, better utilization of emergency response
resources, and impreased reliability of helicopter operations. Safety can be improved: on
the ground (thro~gh improved, properly designed surfaces and fencing of the landing
area), and in the air (through proper identification and illumination). Reliability would be
increased through placement of modern equipment that would improve the safety of poor
weather operations. The practice of providing standby fire protection support, which now
occurs for transf~r of St. Francis Hospital patients, could be eliminated.
The Heliport Master Plan (HMP) of June 1994, by Ketchum and Company, is used as a
guide for goals and policies that decision makers may use in the implementation of
heliport facilities, in the City of Federal Way's Transportation Comprehensive Plan. This
plan identifies key elements that should be considered as part of the next phase and the
public discussion on options to pursue. It advocates that the following questions be
evaluated in ma~ing the decision:
Economic - When will the development for emergency and commercial uses of heliports be
justified? '
Environmenta/- \\{hat will the noise effects be and will mitigation measures be sufficient to
meet community interests?
Operationa/- Doe~ the facility work in terms of air operations and routine maintenance?
And, does the a~a accommodate the physical needs of such flights?
Finally, in selecting candidate sites, a sequential process of narrowing alternatives would
be employed. Fifteen large zones would be evaluated, initially using general criteria.
Then, the "short' listed" zones would be further screened for specific sites capable of sup-
porting a heliport facility. The HMP provides an in depth site selection matrix and is
provided for us~ in this decision-making. The result of a preliminary evaluation in the
HMP is shown in Map III-24.
I
The Heliport M~ster Plan recommends the following:
,
· The City should appoint a representative to the Puget Sound Heliport System
Plan (PSHSP) Advisory Committee, which is investigating a system of heliports.
Revised 2003 111-81
FWCP - Chapter Three. Transportation
. S1. Francis Hospital should consider an emergency heliport on its property for a
trial period.
. The Federal Way Fire Department should eliminate its policy of attending each
ambulance/helicopter transfer at Weyerhaeuser.
. Appropriate agencies should establish an EMS-only heliport.
. Identify primary medical helicopter transfer points by a Global Positioning
System (GPS) points and on Airlift Northwest helicopter navigational computers.
. The City should develop a heliport ordinance/code section consistent with the
PSHSP and Puget Sound Helicopter Emergency Lifesaver Plan (PS/HELP).
. The City of Federal Way should participate in the PS/HELP.
Transportation Goals & Policies
Goal
TG8-
a. Support the area's economy by assuring residents and area employers access to
afull range of travel modes, including intercity airportfacilities, while
maintaining the quality of life reflected in the plan vision.
b. Provide guided opportunities for the improvement of heliport facilities and
services in and around the City.
Policies
TP78 Continue to represent the community in matters pertaining to the regional
airport(s).
TP79 Promote extension of fixed guide way facilities to the regional airport as an
effective means of resolving congestion problems that affect City residents and
businesses.
TP80 Finalize and adopt guidelines for short range, local area rotorcraft facility
installation and use. These will be designed to minimize noise and safety risks
and recognizing the jurisdiction of the Federal Aviation Administration.
Revised 2003 111-82
FWCP - Chapter Three, Transportation
3.8
I
FREIGHT AND GOODS
I
Transportation related decisions could have a significant impact on freight and goods
movement, affecting the economic competitiveness of local and regional businesses.
When freight and: goods movement was confined mostly to rail on separate right-of-way,
there was not a g~eat need to include freight and goods in urban planning processes. That
situation has challged.
Today, even at the local level, our dependence on trucks for deliveries has been
heightened. Indu~try' s adoption of "just-in-time" inventory systems and increasingly
popular overnigh~ small parcel services, as limited examples, have increased demand for
limited roadway space. Combined with increased urban (commuter) congestion, trucks
are not able to pert'orm their role in the economy as efficiently as they did a decade ago.
The general approach to transportation planning has failed to systematically consider
freight and goods movement needs. Recent state and national legislation, encouraging
such an approach, recognizes that local government has long played a role in managing
this component qf our transportation system.
At the locallevet development standards assure the provision of adequate on-site
facilities such as~loading docks; the width, frequency, and location of driveways; the
turning radius at:intersections for curbs; and pavement standards to carry trucks and bus
loads. Other government actions include restriction of over-sized vehicles on roads and
bridges that cannot support their weight or size, and the designation of truck routes.
Similar activitie~ can be found at the regional and state levels.
,
local level Needs/Opportunities
Federal Way displays a unique set of circumstances with respect to freight and goods
movement. An understanding of its history, as well as current issues and projects, can
contribute to ad<Jlption of appropriate long term policies and action strategies.
While extensive: truck and rail oriented development has not taken place in Federal Way,
freight and gooqs movement, primarily by trucks passing through the City, has obviously
had its impacts. Situated between the major urban centers of Tacoma and Seattle, the
Federal Way planning area has been influenced by four major arterials. Military Road,
the original arterial through the area, still displays the benefits of a design aimed at
accommodating heavier freight and goods vehicles. Its concrete road sections no longer
carry large numbers of pass-through truck traffic. It now provides local access for truck
deliveries to estfiblished neighborhoods.
Until the inters*e system was developed in the 1960s and 70s, Highway 99 served as the
truck route through the area. Today SR 99 provides a distribution function, mostly for
Revised 2003
111-83
FWCP - Chapter Three. Transportation
delivery purposes, but also affording access to such regional facilities as the US Postal
facility just west of Pacific Highway near South 336th Street. Along its southern sections,
crossing into Pierce County, truck drivers find an alternate route to a congested 1-5.
Today, the major roadways for freight and goods movement into and through the area are
provided by 1-5 and, to a lesser extent, SR 18. As the regional economy has grown, the
volume of truck traffic along these highways has increased. Today, the highest
concentration of regional truck traffic passes through Federal Way's section of the 1-5
corridor. As pointed out in the following sections, the volume of this traffic influences
congestion as well as economic competitiveness. Map III-25 depicts the City's truck
route plan, including existing and proposed truck routes.
Regional Activities
Trucking centers in Federal Way include the Evergreen Center, which has SR 99, SR 18,
and SR 161 on three of its sides, and Ernie's Center on SR 99 at South 330th Street. These
facilities cater to this important segment of our economy, the movement of freight and
goods.
Looking toward the future, several regional road projects may affect freight and goods
movement through the area. Improvements along 1-5, which will make truck traffic more
efficient, include truck-climbing lanes in the Southcenter area. At present, there are major
points of delay for peak hour traffic. Trucks arriving on 1-5 and on SR 18 just east of 1-5
from 1-405 have problems, since they are not able to approach the hill climb at posted
speed and delay other travelers, many of whom are headed to Federal Way. Perhaps one
of the most significant improvements proposed in the region's Metropolitan
Transportation Plan (MTP), is the improved connection ofSR 167 with 1-5 at Fife and
into the Port of Tacoma. The current industrial development in the area of the Port masks
the growing importance of the Green River Valley, both as a transportation corridor and
as a generator of freight and goods movement. Increasing accessibility to the SR 167
corridor will provide an alternate route for truck based freight and goods movement. Hill
climbs from the valley floor, either along 1-5 or SR 18, might be avoided, relieving
capacity problems along these facilities.
SR 509 is being studied for consideration of an extension, tying back to 1-5 at South 21 oth
Street. This route will open an alternate route to the Port of Seattle's international freight
facilities, as well as to provide access to the airport industrial complex. To the extent that
this new route's design considers impacts to 1-5, SR 99, and local street system in Federal
Way, it provides great benefit to Federal Way.
Other long range actions that will affect freight and goods movement in this north/south
corridor include Intelligent Traveler Service (ITS}-with improved (truck) vehicle
identification, and commuter rail service in the Green River Valley. ITS features
(described in greater detail under Demand Management) will be incorporated into the
"high tech," 1-5 corridor being designed under the state DOT's Venture Program.
Advanced communication systems will allow better detection of slow-downs, accidents,
Revised 2003
/11-84
FWCP - Chapter Three. Transportation
and even hazardo~s vehicles moving through Federal Way, which certainly affect the
City's local resid~nts traveling these regional facilities.
I
i
To the extent that I Commuter Rail service in the Valley can avoid impacting freight and
I .
goods movement,' it is viewed as a positive step in the direction of providing high
capacity transit t~ the south end of the region. Care must be taken to avoid forcing a shift
in cargo carrying ~apacity from rail to truck in the south county corridor. Highway
commuter needs warrant keeping this "traffic" on rails.
Consistent with tl:!1e requirements set at the federal level, PSRC and WSDOT are focusing
increased efforts iowards understanding freight and goods movement and identifying
solutions to prob~ms faced by local, regional, state, and international shippers. Using
studies by the Port of Seattle and WSDOT, PSRC and the Economic Development
Council have est~blished a Freight Mobility Roundtable. The Roundtable brings together
key carriers, pro~ucers, and consumers, as well as nationally recognized consultants on
the topic. This effort is seen as setting the pace for other areas around the country. The
Roundtable efforts will be linked with a series of other efforts by the Regional Council,
including:
I
. Buildingla commodities flow database;
. Identifyif1g current and future problem areas that inhibit or restrict the
effective: movement of freight and goods;
. Recomtniending road, intermodal, and other system improvements to
address these problems, while meeting federal and state Clean Air Act
stricture~; and
. Developing planning guidelines for use at the local level.
The benefits of s/lpporting these regional activities will be maintenance of accessibility
for City residen~ and businesses.
local Needs
Within the City, continued growth of local truck traffic can be anticipated. Densification
ofthe urban cor*, along SR 99 and South 320th, as well as the South 348th corridor, will
lead to increased numbers of trucks along primary arterials.
Street design stapdards and road classifications adopted under this plan will assure that
new and rehabilitated facilities are built to appropriate standards.
Where paveme~t, bridge, and neighborhood traffic management systems, or planned land
uses indicate that roadways cannot handle truck traffic, designated truck routes will be
adopted to prot~t existing investments and assure continued quality of life.
With the enhanqement of neighborhood centers, truck deliveries may increase as
consumer activity shifts to these areas. While localized neighborhood intrusion is
unlikely, isolated cases can be managed using traffic calming techniques.
Revised 2003
11I~5
FWCP - Chapter Three, Transportation
To accomplish effective planning and management of freight and goods movement in the
area, traffic monitoring (volume counts) will include vehicle classification, allowing the
patterns of use to be better understood. Another technique that can be employed to assure
adequate consideration of truck needs is the involvement of those industries and
businesses generating the traffic in roundtable discussions, such as the regional activities
described above.
Transportation Goals and Objectives
Freight and goods movement is recognized as a vital link in the chain of local and regional
economies. Yet, the characteristics of larger vehicles (trucks in the case of Federal Way)
can produce significant impacts to area mobility, livability, and infrastructure. With these
factors in mind, the City adopts the following goals and strategies.
Goal
TG9- Improve movement of freight and goods throughout the region and within the
City, while maintaining quality of life, realizing the vision of our comprehensive
plan, and minimizing undue impacts to City irifrastructure.
Objectives and Strategies
. Cooperate with state and regional agencies in identifying freight and goods
movement needs of area employers.
. Provide or encourage improvements that enhance the movement of goods and
services to businesses in the greater Federal Way area.
. Encourage interests to view Federal Way as a viable resource area for ancillary
freight and goods activity, drawing upon its excellent location along the 1-5 Corridor,
other state routes, and proximity to air and port facilities.
. Establish revised code requirements and a designated truck route system that
accommodates the needs of both the private sector and residents.
. Discourage the use of road facilities by vehicles carrying hazardous materials and
those with weight, size, or other characteristics that would be injurious to people and
property in the City.
. Adopt revised code provisions which acknowledge the characteristics of modern
trucks and provide a balance between movement needs and quality of life.
. Support regional transportation projects that are appropriately designed and will
preserve the capacity ofI-5 and state routes.
Revised 2003 111-86
FWCP - Chapter Three, Transportation
. Involve majo~ generators of area freight and goods movement in discussions to
identify their ~eeds and priorities as part of improvement programming.
3.9 MARINE
The City ofFede~1 Way has no marine facilities to be addressed in the plan. However,
its proximity to tge Port of Tacoma and the support role it can provide to its facilities is
recognized and the following goals and objectives are proposed.
Transportation G~als and Objectives
Goal
TG 10- To fosterithe development of the local economy for Federal Way residents and
employer~ as may be possible through access to regional marine facilities.
Objectives
. Encourage the planning and construction of improved regional highway, rail, and
marine facilities in the area of the Port of Tacoma.
. Coordinate with local business organizations, and provide feedback on international
and regional ~ransportation issues and on transport needs and opportunities related to
all modes of transportation.
. Encourage international relationships; such as our sister-city relationship with
Hachinohe, tb foster marine related trade.
I
3.10 IMPLEMENT ATlbN STRATEGIES
Provision of transportation facilities and services requires the timing of new projects to
meet the needs of the community. At the same time, existing facilities must be
maintained and the public's investment protected, maximizing the life of the
infrastructure. The purpose of this section is to describe various strategies available to the
City to impleme~t the preferred transportation and land use plan.
The preferred pl~n proposes a balanced investment among modes of travel, increasing the
commitment to travel by transit, ridesharing, bicyclists, and pedestrians. This strategy
may create somewhat higher levels of roadway congestion near transit centers, but will
provide more travel options for those who choose to use other modes of travel. Growth
management requires an implementation program which earmarks sufficient financial
Revised 2003
1II~7
FWCP - Chapter Three, Transportation
resources, while putting into place a Concurrency Management System to regulate the
pace and scale of new growth within the community.
The implementation plan for Federal Way focuses on the next six-year time period within
which to forecast needs and to identify reliable options for transportation funding. In
reality, the City's implementation program began in 1990 at incorporation. During the
past 12 years, several major transportation improvements have been completed or will
soon be operational. While these improvements have occurred, the actual City growth
rate has been lower than projected, thus creating fewer impacts on the transportation
system. Since the City also has modest growth expectations over the next six years, the
proposed transportation improvement program for 2003-2008 is expected to maintain
concurrency on the arterial system.
At present, the City's transportation system is provided by a variety of agencies. The City
operates, improves, and maintains most of the streets and roadways, although the State
operates 1-5 and SR 18, east of SR 161. Private development may construct various local
street improvements, which then become the property of the public and must be
maintained by the City. The City is also responsible for the management ofthe
transportation system, which includes the setting of standards for design, maintenance
and operations, and review and approval of modifications.
Transportation Improvement Program
The TIP counts on strong coordination with other agencies to help finance needed
improvements on the state highway system, facilities in adjacent jurisdictions, along with
expanded transit services provided by Metro.
Map 111-26 shows, and Table 111-18 (page 89) lists, the City's TIP for 2003 to 2008, as of
June 2002. Map 1II-27A, Map 1II-27B, and Table 111-19 (page 91) depict the City's 2009-
2020 CIP for City and regional projects that will be required beyond the six-year
planning horizon in the TIP. Most of the projects listed in the table have been identified
throughout the planning process and reflect differing degrees of evaluation. They provide
a usable estimate of transportation needs for matching broad estimates of forecast
revenues. For programming purposes, these projects have been prioritized using the
methodology below.
Project Prioritization
Prioritization is part of the process associated with implementing projects in the order
most needed. It is a tactical effort to determine the sequence of events to meet strategic
goals, as summarized in the TIP. To determine the sequence of improvements in the
City's TIP, several factors had to be balanced. These included consideration as to when
improvements would be needed, the City's ability to compete for funds, as well as
providing improvements across motorized and non-motorized projects. Nine factors used
to rank projects are shown as follows (page 95).
Revised 2003
111-88
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FWCP - Chapter Three. Transportation
Factors Used in Priqritization of Improvements
Transportation Effectiveness
1. Concuvency requirement
2. Corridor Congestion relief (volume/capacity)
3. Enhan~ed Safety
I
Alternative Modes
4. Transi1 HOY Supportive
5. Non-~otorized Supportive
Environmental
I
6. Air quality improvement
!
Implementafion
7. Cost Ejffectiveness
8. Ease 9f Implementation
9. Community Support
A project was given a rating for each factor on a scale of 0 to 5. The ratings were then
summed across all of the factors to produce a total "score" for each project. Projects were
prioritized in ordFr of highest to lowest score.
Plan Highlights
The projects andiprograms listed in Tables III-i8 and IIi-i9 represent a broad range of
multi-modal transportation improvements. Key system investment features include the
following:
.
Transpo~ation System Management improvements along key arterials, including
installat~on of new traffic signals at needed locations.
.
Severalpliles of roadway improvements.
.
New cotlector extensions on new alignments.
.
Region~1 HaY lanes along 1-5, SR 99, South 320lh Street, and South 348th Street.
.
Transit centers at the City Center and on SR-99 at South 3361\ South 272nd, and
South 3~6th Street.
.
Expansi~m of local and regional transit service, according to METRO's six-year
plan an4 Sound Transit's Sound Move Initiative.
.
Non-m~torized investments for pedestrians and bicycles along identified corridors.
Revised 2003
111-95
FWCP - Chapter Three, Transportation
. Substantial funding for ongoing road maintenance and annual programs, including
overlays, bridge replacements, minor capital improvements, and neighborhood
safety.
Maintenance and Operations
Planned expenditures of $6,859, 177 for the proposed transportation investment program
will be for 2002 maintenance, operations, and annual programs within the City.
Maintenance of the existing system is critical to the success of the FWCP and the ability
of the City to accommodate increases in jobs and housing. The maintenance of the
existing network, along with low-cost traffic management actions, will improve the
system's ability to move people and goods without making significant changes to the
overall travel patterns or physical dimension of the streets. While several roadway
capacity expansions are being proposed, most of the City's future street network is
already in place. It will carry much higher volumes oftraffic, which will contribute to
increasing maintenance requirements, which are included in the above total maintenance
and operation costs.
financing
The purpose of a transportation financing strategy is to develop an adequate and equitable
funding program to implement transportation improvements in a timely manner. Without
adequate funding the transportation plan cannot be implemented in an efficient and cost-
effective manner. Furthermore, the inability to fund transportation projects could result in
unacceptable levels of congestion and roadway safety. The financing program recognizes
various user groups, including traffic from existing and future City of Federal Way
development, and regional or sub-regional traffic.
Funding sources are not fixed and require annual review and reprogramming. Where non-
City funds are sought, the City's projects may be competing for limited funds. Without
attention to financing requirements, the operation, maintenance, and expansion of the
transportation system will not occur in a timely fashion.
Funding Needs
Given that the City has only been incorporated since 1990, there is not a long history of
financial expenditure that can be reviewed. The needs forecast through the planning
process call for $288,900,000 in total funding needs, plus $595,162,000 for non-City
projects, as listed in Table III-lB.
Funding Strategy
Already implemented in Federal Way is a portion of its funding of long term
transportation improvements under this plan. The following improvements, begun in
1990, have been or will be completed:
Revised 2003
111-96
FWCP - Chapter Three, Transportation
I
South 34~th Street, SR 161 to SR 99 - Completed
SR 161, ~outh 3481h to 1-5 Overpass - Completed
161h Avenue South, SR 99 to South 3481h Street - Completed
South 35~th Street, 21 sl Avenue SW to 1 sl Avenue South - Completed
South 32Qlh Street Corridor Signal Interconnect, 1-5 to 1 sl Avenue - Completed
SR 99 Corridor Signal Interconnect, 2881h to 3561h - Completed
South 34Slh Corridor Signal Interconnect, SR 18 to 1 sl Avenue South - Completed
BP A Trai~ Phases 1, 2, and 3, Illh Place South to 3561h Street - Completed
Numerour traffic signal installations and upgrades
In addition, in 19~5, the City passed a $7.5 million StreetfTraffic Bond to construct 10
improvement projects (see TIP list, Table III-18, for remaining projects). The projects are
funded by a utilitY tax in the amount of 1.37 percent for construction and 0.28 percent for
maintenance and operations over the 10-year life of the bonds.
!
,
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.
.
.
.
.
.
.
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These projects, w~en combined with the City's commitments over the next six years, will
help maintain an ~cceptable level of transportation mobility for residents and businesses.
The City aggress~vely pursues federal and state funding sources for arterial street projects
in order to maximize the use of City funds to maintain City streets and fund improvements
to streets that wo~ld not fare well in grant-funding selection criteria. For the purposes of
identifying fundi~g sources in compliance with GMA requirements, the following
strategies are useo.
. Surface transportation Program grants would be used to fund 86.5 percent of the
cost of p(ojects that improve multi-modal mobility on arterial streets. State
Transportation Improvement Board (TIB) funding would be used to provide the
remaininF 13.5 percent of the cost of projects.
. Hazard Elimination Program grants would be used to fund safety improvement
projects VP to the maximum grant amount of $400,000. The City would fund the
remaind~r of the cost of the project, or ten percent, whichever is greater.
. Transporttation Enhancement Program grants would be used to fund 80 percent of
the cost ?f non-motorized capital projects. The City would fund the remaining 20
percent. .
I
. State TIe grants would be used to fund 80 percent of the cost of the remaining
arterial $treet projects. The City would fund the remaining 20 percent.
I
. Street prpjects on collectors would be funded by the City or adjacent development.
. Local st~eet improvements would be funded by development.
I
Based on these ~riteria, the TIP would be funded as follows:
Revised 2003
111-97
FWCP - Chapter Three. Transportation
. Surface Transportation Program (Statewide and Regional): $31,741,500
. Hazard Elimination Program: $600,000
. Transportation Enhancement Program: $1,648,500
. Transportation Improvement Board: $19,525,200
. City funds: $1,751,900
The City would be able to fund this level of improvements over the six-year period.
Funding Sources
Funding sources for operation and expansion of the City's transportation system fall into
several categories. Some sources consist of reliable annual funds, others are periodic,
such as grants, and some are available options. The use, availability, and applicability of
these various sources are not always at the discretion of the City. Most sources have
limitations imposed by either the enabling legislation or City policy.
The following two categories of funds are available to fund the TIP:
1. Existing Annual Sources: The City has control over the establishment and
programming of a variety of funding sources enabled by state legislation. Currently
the City utilizes the following options:
City General Funds: The general fund was established to provide services typically
offered by local governments, and derives its funding primarily from local tax
sources. The general fund provided $861,227 to the street fund in 2001.
State Motor Fuel Tax: The Street Fund was established to account for the receipt and
disbursement of state levied unrestricted motor vehicle fuel taxes which must be
accounted for in a separate fund: $1,190,457 was received in 2001.
Restricted State Fuel Tax: The Arterial Street Fund was established by state law to
account for the use of state shared fuel tax revenues dedicated for this purpose:
$547,250 was received in 2001.
Motor Vehicle Excise Tax (MVET): This revenue source was removed in the
aftermath of Initiative 695.
Vehicle Registration Fee: A vehicle registration fee was approved in 1993 by the
State Legislature to address transportation needs within growing communities. The
2001 amount received was $690,231.
Transportation Development Charges (SEP A Mitigation): The City is assessing traffic
impact mitigation for new development as a part ofSEPA review. The mitigation
amount is based upon the percentage of traffic, directly attributable to the new
development that uses the facility that is the subject of each needed City improvement
project. That percentage is then multiplied by the cost of that improvement project.
The resulting amount is the portion of the cost of each improvement that is to be paid
by the owner of the new development. The City collected $704,777 in 2001.
Revised 2003
111-98
FWCP - Chapter Three, Transportation
Other Minor $ervices: These include Commute Trip Reduction (CTR) revenues and
street use penlnit fees.
I
2. Other Periodk or Available Sources: Additional funding will be generated through
other sources~ Some are currently utilized; others may be used in the future. Funding
also is derive~ from outside sources (State, Federal, County, Metro) and often
requires appl~cation.
I
Transportatiop Equity Act (TEA-21 ): This is a federal program designed to improve
the transport1tion system that helps air quality and relieves congestion.
The City has ~een awarded $6,564,000 towards projects in the current TIP. This
equals an ave~age of $1,094,000 per year.
State Transp<>rtation Improvement Board (TIB) Fund: This is a statewide
transportation fund available to local agencies for roadway improvements. The City
has been awarded $13,828,000 towards projects in the current TIP. This equals an
average of $2,305,000 per year.
I
Bond Issue: 11\ written promise to pay a specified sum of money at a specified future
date. Bonds are typically used for long-term debts and to pay for specific capital
expenditures~ The City has financed bond measures for transportation projects as well
as increasing;the City's overlay program by $800,000 for the next 10 years.
I
Traffic Impaft Fees: A traffic impact fee ordinance can be established to provide
regulatory mitigation. The fee could take into account such elements as the benefits or
impacts of d4velopments in various subareas of the City, impacts at key locations,
projects that promote alternative transportation, buses, car, and van pools, etc., and
development! incentives for increased public facilities investments, especially in areas
such as the Qity Center. Traffic impact fees would be based upon actual direct impact
of new develbpment on the transportation system. In October 2001, the City hired a
consultant to! prepare a Traffic Impact Fee and Concurrency Management System.
,
Recently, the Citb-' has been very successful at obtaining grant funding. The six-year TIP
is fully funded tHrough the year 2004. A key reason for this success was the ability to
provide mOre th~n the minimum requirement of local matching funds. Additional local
revenues would help in assuring critical projects are funded.
I
Concurrency
The transportati~n chapter of the GMA (RCW36.70A) requires each city and county
planning under qJMA requirements to incorporate a Concurrency Management System
(CMS) into thei~ comprehensive plan. A CMS is a policy to determine whether adequate
public facilities tre available to serve new developments. In this manner, concurrency
balances the transportation investment program with land use changes envisioned by the
City over the ne~t several years.
Revised 2003
111-99
FWCP - Chapter Three, Transportation
Legislative Requirement
The transportation element section of the Washington State GMA reads: "Local
jurisdictions must adopt and enforce ordinances which prohibit development approval if
the development causes the level of service on a transportation facility to decline below
standards adopted in the transportation element of the comprehensive plan, unless
transportation improvements or strategies to accommodate the impacts of development
are made concurrent with development (RCW 36. 70A.070). "
The phrase "concurrent with development" means that public infrastructure
improvements and strategies required to service land development be in place, or
financially planned for, within six years of development. In Washington State, the
transportation CMS's must include all arterials and transit routes; but may include other
transportation services and facilities.
Highways of Statewide Significance (HSS) are exempt from concurrency requirements,
but local agencies are required to identify their comprehensive plan's impacts on the HSS
network. In Federal Way, the HSS network consists ofI-5 and SR 18 east ofI-5. These
impacts are quantified in Table III-20:
Table III-20
Federal Way Comprehensive Plan's Impacts to Highways of Statewide
Significance - 2000 to 2020
Highway 1-5 1-5 1-5 1-5 SR 18
Segment North of South North of South North ofSR 18 South of SR 18 East ofI-5
272 nd Street 320th Street
Increase in 459 476 357 137 750
Hourly Volumes
However, it should also be recognized that City streets act as an overflow conduit for the
HSS network due to the failure of the state to provide adequate capacity on the HSS
. network. A sample of these impacts is quantified in Table III-21.
Table III-21
Impacts to City Streets From State's Failure to Provide Adequate Capacity
on Highways of Statewide Significance in 2020
Roadway SR99 SR99 SR99 SR99 SR 161
Segment North City North of South South of South South City South City
Limits 320th Street 324th Street Limits Limits
Increase in 1020 391 431 1252 323
Hourly Volumes
Revised 2003
111-100
FWCP - Chapter Three, Transportation
I
A comparison oHhese tables indicates that the City's streets generally would be more
impacted by regi~nal traffic than the planned growth would impact the HSS network.
I
I
Concurrency Management
I
The application qf concurrency for transportation assures that improvements and
programs for accommodating planned growth are provided as development permits are
issued. The conc*rrency strategy balances three primary factors: available financial
resources, accept~ble transportation system performance conditions, and the community's
long-range vision for land use and transportation. The City has identified probable
financial capabil~1:ies, anticipated system performance conditions (level-of-service), and
has proposed a roster oftransportation investments and programs that implement the
FWCP.
The FWCP pres~nts an allocation of estimated available transportation resources matched
to planned impro~ements, which are scheduled over the planning period. With the
general estimate$ of costs, revenues, and timing for construction, as required by the
GMA, the plan predicts the acceptance of development permits that are consistent with its
policies. I
The GMA requi~s that a contingency plan be outlined in case the City should fail to
obtain the resources anticipated to make the necessary transportation improvements to
maintain the adopted LOS standards. This analysis is sometimes termed "plan-level
concurrency." Strategies for maintaining or rectifying adopted LOS standards in the event
of a budget shorfall include the following:
I
. Increase!the level of funding commitments in subsequent years;
. Review~nd adjust the City's overall land use vision to lower the overall
transportation demand;
. Reprioritize improvements to address system capacity needs as the highest
priority;! and
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. Modify (i.e., lower) the LOS standard to match available resources.
Modifying the LOS standard cannot be recommended because safety problems usually
result from incr~ased congestion and adversely impact air quality and transit operations
where HOV fadlities do not exist. The adopted LOS standard accounts for HOVs and
transit by basin~ it on average delay per person rather than delay per vehicle.
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Reprioritizing i$provements to address capacity would result in a lack of funding for
safety and non-$otorized transportation. This would be inconsistent with adopted goals
and policies to encourage non-motorized transportation and maintain roadway safety.
Revised 2003
111-101
FWCP - Chapter Three, Transportation
Lowering transportation demand to match available capacity would restrict the City's
ability to function as an urban center consistent with county and regional plans.
Furthermore, the City has little ability to reduce traffic through the City caused by growth
in neighboring jurisdictions or overflow from congested freeways. Therefore,
improvement in funding for transportation appears to be the most realistic alternative.
Of the previously listed funding sources for transportation, there are some that the City
can control and some that the City can influence. The City can control the general fund,
SEP A mitigation, bond issues, and traffic impact fees. These local funding sources can be
used to leverage grants at the state (TIB) and federal (TEA-2l) levels. State and federal
increases in funding are increasingly difficult to obtain; therefore, in order to be
competitive for grant funding, local funding becomes increasingly important.
Bond issues can be successful but must have a funding source themselves, either property
or utility taxes. In order to be successful, bond issues must have a list of projects to be
funded, voter support, and a time line for completion. The projects to be funded must
consider voters' concerns about who benefits from the projects and what impacts the
projects may have. For example, if a project is perceived as benefiting residents of
another city or the business community to the exclusion of Federal Way residents, the
bond measure may fail. Finally, the impermanence of bond issue funding complicates the
City's ability to effectively plan for large projects, which due to their size, may have to be
phased. If a multi-year multi-phase project was not funded consistently, the full benefits
of the project may not be realized.
Under state law, counties may authorize a local option gas tax up to 10 percent of the
state gas tax. In King County, it is estimated that if passed, a local gas tax of2.3 cents per
gallon would generate $836,000 per year for Federal Way, if distributed per capita under
existing state law. However, until the county acts on such a proposal, it is unknown how
funds would be distributed.
General fund revenue is generally not used much for transportation purposes because
many voters believe that gas tax revenues should be adequate for funding transportation
needs. It is also generally unpopular to have street projects compete against human
services, parks, police, etc.
SEP A mitigation is used extensively and is effective for mitigation of incremental impacts,
but is cumbersome to administer when addressing cumulative impacts. As currently
practiced in Federal Way, it is unfair to large developments in that no mitigation is
assessed for projects that generate less than 10 peak hour trips (e.g. a nine-lot single-family
plat). It also funds a relatively small percentage of a total project's cost because existing
traffic is included in the calculation of a development's "fair share" of the project, even if
the project would not be necessary if there were no new developments. Hence, existing
property owners and residents still subsidize projects to accommodate new growth, but
only larger developments pay mitigation, so small developments are subsidized even more.
A transportation impact fee (TIF) addresses the disadvantages of other local funding
sources. It can be assessed to al(developments based on new vehicular trips for roadway
Revised 2003
111-102
FWCP - Chapter Three, Transportation
capacity, transit tr~ps for transit improvements, and non-motorized trips for non-
motorized improvements. It does not compete against other City services. It pays only for
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improvements ne~ded to accommodate new development, and funding follows the pace
of growth. It doesl not require City residents or property owners to subsidize projects for
new growth. It treats new development fairly, regardless of size. It also lends simplicity
and predictabilityito the development community because developers know what
mitigation expenses will be. It would simplify development review because lengthy
impact analyses ~ould only be required for the largest developments, thus reducing costs
for medium-sizedl developments. The increased cost to small developments, particularly
developments sm~ll enough to not trigger SEPA mitigation under the City's existing
procedures, are e4sily outweighed by the afore-mentioned advantages of a TIF.
Regular updatinglofthe FWCP and Transportation chapter will afford opportunities for
the City to modifY the LOS standard or to secure other funding sources necessary to
implement the carital improvements needed to maintain the adopted level of service
standard. I
Concurrency Te$ting
I
State law require$ that a concurrency "test" be applied to all development proposals as a
condition of granting a development permit. A concurrency test compares a proposed
development's n~ed for public facilities and services to the "capacity" of the facilities and
services that are ~vailable to meet demand. Other questions that need to be addressed are
at what point in the development process does concurrency apply, what types of
development pe~its are subject to the concurrency test, and should fees be charged for
concurrency testing to cover staff and administrative costs associated with the testing.
I
,
,
Federal Way's a,proach is to implement transportation improvements and programs that
it can afford to finance. These improvements and programs are based upon the FWCP,
which includes ai level-of-service standard for the transportation system. The primary
purpose of the qmcurrency Management Program is to allocate available resources
based on the tim~ng and location of development, and to assess mitigation fees based
upon each new d~velopment's share of the improvements that are planned in the subarea
within which it i$ located. Level-of-Service measures the outcome of and progress toward
the planned groWth rate.
Concurrency M(Jnagement and SEP A
While concurre*y requirements are similar in many ways to the requirements ofthe
State Environme~tal Protection Act (SEP A), there are some important differences, as
follows:
. Concurrbncy requirements are more demanding; if they are not met, denial of the
project ~s mandated.
Revised 2003 111-103
FWCP - Chapter Three, Transportation
. Concurrency is based on a Level-of Service (LOS) standard; SEP A has no
specific standard as its basis.
. Concurrency requirements only apply to capacity issues; SEP A requirements
apply to all environmental impacts of a project, including transportation safety.
. Concurrency has timing rights related to development; SEP A does not.
Therefore, concurrency does not replace SEP A, but rather becomes an integral part of a
comprehensive program that relates private and public commitments to improving the
entire transportation system. SEP A will focus primarily on site impacts that could result in
additional transportation requirements in specific instances (particularly access to the site
or impacts in the immediate vicinity that could not have been anticipated in the overall
transportation investment strategy for the system). Concurrency conclusions in the FWCP
do not excuse projects from SEPA review. However, they do address major system
infrastructure issues that must be properly administered under both SEP A and the GMA.
Monitoring
The cycle of managing transportation facilities and services has recently been expanded.
Emphasis is now being placed on monitoring the transportation system to assure that the
community's vision, as reflected in the FWCP, is being met.
In addition, all projects that are complex in nature or involve significant capital
expenditures have a value engineering study performed in order to select the most cost
effect alternative. As a part of the project implementation phase, all projects are required
to be reviewed and approved by the City Council at the 30 percent, 85 percent, and 100
percent design phases.
In the past, transportation planning merely forecasted expected growth in demand and
sought ways to provide the needed capacity. Today, federal and state level legislation
place requirements (and authority) on the PSRC to monitor aspects of the transportation
land use process. For example, federal congestion management systems require a
regional performance monitoring system. PSRC is currently developing such a
monitoring system that is expected to provide key information on the achievement of
plan goals and objectives. Within this context, Federal Way may be called upon to
monitor local actions including:
. Project Implementation (versus planned improvement program)
· Program Status and Implementation (e.g., CTR programs)
. Policy Adoption (versus those called for in the plan)
· Motorized and Non-motorized Traffic Volumes and Vehicle Occupancy on local
facilities (versus that forecast by the City plan)
Revised 2003 111-104
FWCP - Chapter Three, Transportation
· Land Use! Development Approvals or Density Patterns (vs. plan-anticipated
I
growth) .
. Parking data such as pricing, policies, and management
!
Concurrency ma~agement requires the City to monitor the progress of transportation
improvements against the impacts of growth occurring within the community. This test will
be crucial in mea$uring the ongoing performance of the FWCP over the coming years.
,
Transportation Goals and Policies
I
Goal
TGl1 Develop ,find implementfunding mechanisms to:
I
I .
a. Leverage state and federal funds for transportation improvements.
b. Mee~ GMA 's concurrency requirements.
I
,
c. Provrde consistent, fair, and predictable assessment of sufficient mitigation
fees .for development consistent with SEP A.
,
,
d. Assl{re that adequate transportation infrastructure is provided to
accommodate forecast growth.
Policies
TP81 Prioritiz~ transportation projects considering concurrency, safety, support for
non-SOY modes, environmental impacts, and cost effectiveness.
I
TP82 Assure cpst-effective maintenance of transportation facilities under the City's
jurisdict.on.
I
I
TP83 Utilize the City's traffic signal system for data collection to monitor consistency
with coqcurrency requirements.
TP84 Develop a concurrency ordinance by 2002 as required by the GMA consistent
with the!City's adopted LOS standard.
I
,
TP85 Develop a transportation impact fee by 2002 to simplify development review,
assess ~itigation fees consistently and fairly, improve the City's ability to
leveragc:j grant funding for transportation funding, and provide adequate
infrastrqcture to accommodate new growth.
Revised 2003 111-105
FWCP - Chapter Three, Transportation
TP86 Adopt interlocal agreements with neighboring jurisdictions to identify methods to
assure consistency between comprehensive plans, and adopt fair and consistent
means of addressing the impacts of growth and development between
jurisdictions without undue administrative burdens.
Summary of Implementation Goals and Policies for Transportation
Careful management is recognized as the key to fruition of the FWCP's vision. The
transportation system has multiple users and multiple funding sources. The
implementation plan for Federal Way focuses on the next six years within which to
forecast needs and to identify reliable options for transportation funding. The actions
needed during this period take into account transportation investments the City has
undertaken since incorporation, combined with realistic expectations of growth. The City
currently conducts value engineering on large construction projects and should continue
to do so. All construction projects will be presented before the City Council at increments
of 30 percent, 85 percent, and 100 percent for review and approval.
In emphasizing multiple modes of travel, it is recognized that resources will have to be
spread and balanced among modes. In achieving this goal, the City should undertake
various strategies to implement its transportation plan by 2020. The near term efforts
should focus on projects to: 1) mitigate safety problems; 2) preserve and protect the
existing infrastructure; 3) expand multiple modes of travel and assure access for the
transportation disadvantaged; 4) mitigate localized traffic congestion problems; and 5)
expand the system for new growth. These actions are expected to maintain reasonable
levels of service on the arterial highway system during this period.
Investment Focus
. Emphasize early investment in lower cost Transportation Systems Management
actions aimed at improving the performance of the existing street system. Actions
will include intersection spot improvements, new and coordinated traffic signals, and
neighborhood traffic management.
· Identify and preserve necessary rights-of-way at the earliest opportunity.
· Work with transit providers to promote expanded local and regional bus services and
to encourage a transit supported land use pattern.
. Expand current park and ride facilities and develop support programs to encourage
use by Federal Way residents.
. Create a street network within the City Center that includes a by-pass circulation
route for through traffic and express transit.
Revised 2003 111.106
FWCP - Chapter Three, Transportation
. Develop and ,pply clear development standards to obtain necessary infrastructure
changes as prpperty develops.
I
. Improve the nedestrian environment citywide, with special focus along SR 99 and
within the Cit Center. Focus on safe and efficient pedestrian facilities and improve
the ability of pedestrians to safely travel throughout the community.
Implementation PrJcess
I
I
. Work closely: with adjacent local agencies and preferably; prepare interlocal
agreements (~specially WSDOT and Metro) to formally establish commitments for
coordinated tfansportation planning and implementation.
.
Develop a comprehensive Transportation Investment Strategy using a two-stage
approach. Th~ first stage should be an updated six-year TIP, the second stage being a
long-range c~mparison of transportation needs and revenues through 2020 and beyond.
.
Work towards obtaining new funding sources that: have the greatest local control for
utilization on the most pressing local transportation needs; have the least strings
attached; mi~imize staff time for obtaining and reporting on the use of the funds; are
received on ~ regular (such as quarterly) basis; are predictable; inflation adjusted; and
can be count~d on for long term financial project planning.
I
.
Formally establish a process for prioritizing, designing, financing, and monitoring the
completion qftransportation system projects and programs. Identify clear
departmenta~ roles and responsibilities.
i
.
Monitor the $tatus of the transportation system so that progress towards the plan's
vision can b~ assured and improvements are in place in time to meet forecast demands.
.
Develop a Cpncurrency Management Strategy for the City that facilitates the full
integration qfthe programming and administration of transportation improvements,
services, and programs with the FWCP.
I
.
Assure that ~ransportation system improvements are programmed to be available for
use within s.x years of development permit approval if level of service is forecast to
be exceeded: within the subarea of the permit.
.
,
Monitor and make adjustments as needed to transportation level-of-service standards
and approach based on growth rates, comprehensive plan amendments, and financing
for projects.:
i
I
Integrate a tt"ansportation impact program within the development mitigation
structure.
.
Revised 2003
111-107
FWCP - Chapter Three. Transportation
. Work with the regional bus providers to promote a transit-supported land use pattern.
. Program projects to: 1) mitigate safety problems; 2) preserve and protect the existing
infrastructure; 3) expand multiple modes of travel and assure access for the
transportation disadvantaged; 4) mitigate localized traffic congestion problems; and
5) expand the system for new growth.
Revised 2003 111-108
Map 111-1
TRAVEL PAT~ERNS FROM
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CHAPTER FOUR - CONOMIC DEVELOPMENT
4.0 INTRODUCTIO
The Growth M agement Act (GMA) includes economic development as one of its basic
goals and it is a eme that runs throughout the GMA. It considers the need to stimulate
economic develo ment throughout the state, but requires that these activities be balanced
with the need to rotect the physical environment. It encourages the efficient use of land,
the availability 0 urban services, and the financing strategies necessary to pay for
infrastructure. Fi ally, the GMA mandates that communities do their planning and then
provide the zoni g and regulatory environment so that appropriate development can
occur. It recogni es that while the public sector can shape and influence development, it
is the private sec or that generates community growth.
The Puget Soun Regional Council (PSRC) has also adopted region-wide goals and
objectives to gui e multi-jurisdictional transportation and land use policies that will be
implemented thr ugh local comprehensive plans. Economic development is implicit in
many of the goal and objectives of VISION 2020. The VISION 2020 strategy
emphasizes that ontinued economic stability and diversity is dependent upon public and
private sector co laboration to identify needs, such as infrastructure and land, and to
invest in service that will promote economic activity. VISION 2020 also emphasizes
that the stability f the regional economy increases when it develops and diversifies
through the rete ion and strengthening of existing businesses and the creation of new
business.
King County, th ough its growth management planning policies and process, re-
emphasizes the onomic development implications of growth management. The
Countywide PIa ning Policies (CWPPs) promote the creation ofa healthy and diverse
economic climat . The CWPPs describe the need to strengthen, expand, and diversify the
economy. They ncourage protection of our natural resources and enhancement of our
human resource through education and job training. The CWPPs also speak to the need
to make an adeq ate supply of land available for economic development by providing
necessary infras ucture and a reasonable permitting process.
Within this poli framework, Federal Way has outlined a vision of its economic
development fut reo Its vision is to transform itself from largely a bedroom-community of
Seattle into a di ersified, full-service, and self-contained city (Map IV-I, located at the end
of the chapter). owever, in doing so, it is important to remember that Federal Way is part
of the larger Pu t Sound economy, and therefore, this transformation will depend in large
part on the mark t forces at work within the greater region. To achieve this vision, the City
must diversify it employment base by adding more professional and managerial jobs, and
by increasing th overall number of jobs in order to improve the balance between jobs and
households in th City. The potential is there. Federal Way's unique location between the
two regional ce ers of Seattle and Tacoma, both with large concentrations of population
and large, succe sful ports, and its relationship within the Central Puget Sound region
represent signifi ant opportunities. The City is also home to Weyerhaeuser's Corporate
FWCP - Chapter Four, Economic Development
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 of long-term real estate development in Federal
Way; 3) synthesis of real 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 1. Riots in nearby Seattle, first
associated with the meeting of the World Trade Organization in November 1999, and
later with the 2001 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-2001, 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 of the 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 layoff 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 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
Revised 2003
IV-2
FWCP - Chapter Four, Economic Development
Sound region no stands at 72,000, with about 47,000 of that in King County. Although
well below its re ord employment levels, the aerospace sector continues to provide high
wages to local w rkers. High tech continues to expand despite the shakeout of a few
companies. Othe services, wholesale, and retail lost employment before the recession hit
aerospace, so the may be ready to grow again in the coming year.
The significant ~erall 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 199 . Measured at $41 billion by the Census Bureau, King County's total
business payroll xceeded that of 26 states, including Oregon, which has twice as many
people as King ounty. Among other issues raised by such large numbers is that of the
disparity of weal h 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 Ki g County, in contrast to our 29 percent share of the state's population.
Some of that dif erence reflects high tech jobs in Seattle and the Eastside, as well as high
wage manufactu ingjobs in South King County.
Long-range pros ects are mixed. Boeing forecasts production of around 250 airplanes
this year and ne t. Sale of those planes will bring in billions of dollars, much of which
will be reinveste in the Puget Sound economy. But with the move of Boeing
headquarters to hicago, long-term prospects for aerospace are less certain, although the
company has co tinued to emphasize its investment in the Puget Sound region. Sales tax
and other gove ment revenues are declining at a time when public investment is needed.
The area is doin remarkably well so far, but if these underlying issues are not addressed,
there could be la ting consequences to King County and the Puget Sound region.
Due to the mark dly weaker economic conditions now in the Puget Sound region than
during most oft e past decade, economic development efforts in Federal Way will have
to become more reative, innovative, and broader in scope. The traditional focus on
retaining and a acting businesses will not be enough. New efforts, reaching into other
economic sector and using new and innovative strategies, will be necessary.
General Pattern of Existing Development
Previous develo ment trends indicate that the non-residential areas of Federal Way
reflect a commu ity that has the ability to absorb higher density (more compact) uses and
greater develop ent as growth in the Central Puget Sound region continues. And even
though Federal ay is a new city in a suburban area, much of its future will be tied to
redevelopment nd transformation. Federal Way is characterized by:
. ality single- and multiple-family residential areas
. A range of housing that includes very modest tract homes, manufactured
dwellin s, and large luxury waterfront homes
. Auto-or ented, suburban scale regional and community shopping centers and
strip ce ters
Revised 2003 IV-3
FWCP - Chapter Four, Economic Development
· 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 of the other major
South King County cities (Renton, Kent, Burien, Auburn, Tukwila, and SeaTac), as well
as Seattle.
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
Revised 2003
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FWCP - Chapter Four, Economic Development
percent) is high r than any of the other major South King County cities (which range
from 79.9 to 86. percent). As a result, and given the City's large population, Federal
Way has the hig est annual gross income of any of the South King County cities.
However, Feder I Way and the South King County cities continue to lag behind the East
King County cit es in terms of median household income, which range from $60,332 in
Kirkland to $66, 35 in Redmond.
Federal Way's R. gional Role
Federal Way is , ptimally located at a mid-point in the Seattle-Tacoma metropolitan
region at the int rsection ofI-5 and SR-18, with easy access to the Port of Tacoma, Port
of Seattle, and S aTac International Airport. Federal Way's location is a prime asset as
traffic congestio and concerns over personal and freight mobility within the region
become paramo nt issues for commerce and industry, as well as commuters.
Nevertheless, th economic boom of the past decade has largely been concentrated in the
Eastside commu ities, Downtown Seattle and South Snohomish County. However, with
changes in the h gh-tech industry, increasing traffic congestion, soaring housing prices,
and increasing l"mits to growth in those areas, the "Southend bias" may become a thing
of the past, leav. g Federal Way in an even better position from a regional perspective.
Economic Base
Federal Way's 11 tail 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. A though Federal Way retailers capture a good deal of the City's primary
and secondary arket expenditures for general merchandise and food trade, a high
percentage ofth local populace goes elsewhere to shop for automobiles, apparel!
accessories, mis ellaneous retail purchase, building material, and furniture. Overall, the
capture rate for etail sales as a function of the City's primary and secondary trade area
total retail expe ditures is relatively low, about 51 percent (Federal Way City Center
Market Analysis prepared by ECO Northwest, July 2002).
PSRC's 2000 C vered Employment Estimates reported that in 2000, covered employment
(those jobs cove ed by the state's unemployment insurance program) within Federal Way
and throughout ing County could be broken down as shown in Table IV-J (page 6).
As can be seen om this data, in 2000, Federal Way's strongest employment sectors were
Finance, Insura ce, and Real Estate, and Retail, which exceed the countywide averages
considerably. T e City had noticeably fewer jobs than average in the Manufacturing and
Wholesale, Tra. sportation, Communications, and Utilities sectors. Based on recent
events in the e loyment sector, these numbers may be lower today.
Revised 2003
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FWCP - Chapter Four, Economic Development
Table IV-l
2000 Covered Employment Estimates
Federal Way and Kin2 County
Employment Category Federal Way Employees Countywide Employees
(percentage) (Percentage)
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
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 Fifeffacoma 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 comer
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, Economic Development
Between 1995 a d 2000, four hotels/motels have been constructed in and around the City
Center. These in lude Holiday Inn, Courtyard Marriott, Extended Stay, and Comfort Inn.
In addition, a Ho iday 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 re ntly constructed along Pacific Highway South in the Community
Business zone s uth of the City Center.
Office Develop
Federal Way's st and West Campus Developments set a standard in the region as two
of the best exam les of master-planned office campuses in the Pacific Northwest. The
quality of devel pment in this area is decidedly different than elsewhere in Federal Way
and Southwest ing County.
Within the last
within Federal
Office Building
feet; and Federa
o years, the majority of new office development has been located
ay's East Campus which has seen the following development: Foss
t 108,000 square feet; Capital One Office Building at 143,000 square
Way Office Building and Warehouse at 70,767 square feet.
The West Camp s area has seen little new office development. Although permits have
been issued for dditional office development in the West Campus, rising vacancy rates
there have stalle additional development for the near term.
In the City Cent r no new additional office development has occurred since the last
comprehensive Ian update, and office buildings continue to constitute a minority of the
City Center's d elopment.
Other commerci I areas within the City have seen limited amounts of office development,
such as the rece t Lloyd Enterprises building at 34667 Pacific Highway South.
Business Park (L ght Industrial) Development
There has been 0 substantive Business Park development since the City's incorporation.
This lack of rec nt Business Park development suggests the influence of market forces
outside ofthe C ty limits, where cheaper land and established industrial parks act as a
draw for prospe tive business park development.
Residential Dev lopment
One of Federal ay's strengths is the range and quality of its housing stock. The quality,
quantity, and ra ge of options for housing are major factors in business siting decisions.
According to th 1990 US Census data, the median value of owner-occupied homes in
Federal Way w s $118,800. In contrast, the average sales price of Federal Way owner-
Revised 2003
IV-7
FWCP - Chapter Four, Economic Development
occupied homes in 2001, 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.
200
s
P'
Table IV-2
o 0 . dH
"Ki
1 Average ales nces of wner- ccupie omes m ng County
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 from 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 skilIed-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.
Revised 2003
IV-8
FWCP - Chapter Four, Economic Development
Kent
Table IV-3
Avera2e Multi-Family Rents, 81 rin!! 2002
Two Bedroom/
One Bath
$710
$684
$811
$712
$701
$852
$1,104
$1,129
$839
Place
All Units
Federal Way
Auburn
Renton
$749
$716
$869
$747
$686
$787
$923
$1,200
$869
Des Moines
North Seattle
Queen Anne
BelIevue- West
King County
Institutional, Educational, Cultural, and Recreational Development
Federal Way enj )ys a variety of affordable, high-quality health care. The City boasts
three outstandin health care facilities, St. Francis Hospital, Virginia Mason Clinic, and
Group Health. T ese facilities continue to grow and expand in the services they offer the
region. In the las 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, th Knutzen Family provides a venue for professional theatre and the
symphony. The ederal 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. Eac year, Federal Way's July 4th Red, White, and Blues festival is held at
Celebration Par~, where the nationally acclaimed tournament soccer and baseball facilities
draw additional ourist activities.
Federal Way on ers a number of collegiate and vocational opportunities. Highline
Community Col ege operates a local branch campus in Federal Way. The Eton Vocation
College, located in the heart of Federal Way, is a vocational college focused onjob
training for toda ,,' s competitive market.
In 2001, the De' ry Institute of Technology opened their first Northwest Campus in
Federal Way. TI is 100,000 square foot facility provides technology training customized
to increase employee workplace skills.
Summary
In summary, Fe~ eral Way's role in both the Central Puget Sound area and Southwest
King County ha been defined by its inventory of prime office space in campus-like
settings, wide VI riety 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
Revised 2003
IV-9
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 modem 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 of large parcels of land ownership in the 344th/356th area and
312th/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 ofthese 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.
Revised 2003
IV-10
FWCP - Chapter Four, Economic Development
Similarly, Rento and Kent provide tax incentives for certain residential development and
provide other fin ncial incentives to desired redevelopment projects. In addition,
Tukwila, Renton and Kent have made substantial personnel and facilities investments in
improving custo ner service and turn-around times associated with development permits.
In addition to th( se five cities in Southwest King County, Tacoma is an important
competitor to Fe eral Way. Tacoma is an older city that has made many efforts to
improve its dow town and image for more than a quarter century. Tacoma city
government has n aggressive economic development mission and is recognized
regionally and n tionally as a leader in the field. It has continually devoted its own funds,
as well as state a nd federal grants, to stimulate economic development. Tacoma has a
strategic locatior on the highway system and a strong port with much unrealized
potential. In add tion, both the city and suburbs have vacant and redevelopable land, as
well as relativeh cheap accessible land for residential development.
Table IV-4
Summary of Ec( nomic Conditions in Southwest King County Cities
Auburn Federal' ay Kent Renton SeaTac Tukwila
Current -Industrial areas -Regional mall -Industrial land -Business parks -Airport related -Regional retail
Niche -Vacant land -West Cat pus -Boeing -Mid-rise office -Redevelopable land -Boeing
-Regional mall -East Calt us -Business parks -Mid-rise office -Redevelopable light
- W eyerhai user Hdq -Vacanlland -Mid- and high-rise industrial
-Vacant la d& lodging and -Mid-rise office
redevel( able land conference centers -Mid-rise and high-
rise lodging and
conference centers
Opportunities -Commuter rail -Weyerha user -Boeing facilities -Boeing & -Adjacent to SeaTac -Strong retail identify
-Established office, -West Ca pus -Commuter rail PACCAR~s mfg, & Airport & concentration
business parks, & -East Can pus -Established office, office complex -Major HCT -Redevelopment
industrial areas -Large COl centration 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 ass mbled for -Cross-valley hwy redevelopment parcel assembled roads 1-405/1-5
redevel pment connector planned areas -Future hwy - cross- -Boeing office/mfg
-Central I cation -Strengthening -Strengthening roads (1-5 & complexes
betweet downtown downtown SR509) from -Proximity to SeaTac
Tacoma & Seattle -New Permit Center -Strong economic Seattle will open Airport & to Port of
-1-5/SR I and investment in development focus acres for office and Seattle
crossroa s development -City partnership business parks -Commuter rail
-HCT sta ons review resources with private sector unanticipated
-City partnership in redevelopment -Permit process rec-
with private sector ognized for speed
in redevelopment of turnaround
-City partnership
wilh private sector
in redevelopment
Challenges -Distance from 1-5 & -Disperse -Industrial image -Limited retail -Adjacent to SeaTac -Limited vacant land
major economic develo~ ment -No prospect for attractions Airport for business &
concentrations pattern HCT -Limited land for -Massive office parks
-Low-scale -Not on c mmuter -Off-center location business & office redevelopment -Freeway access not
development rail on SR 167 parks required easy or obvious
-Off-center location -Weak d! wntown -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 2001,
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 ECONOMI
DEVELOPMENT VISION FOR FEDERAL WAY
The vision for ec nomic development in Federal Way can be encapsulated into four basic
areas: 1) to retai existing businesses and attract new businesses in order to build a
diverse economi base; 2) to increase the number of jobs within the City relative to the
population of Ci residents within the labor force; 3) to foster redevelopment of the City
Center from a 10 -scale, suburbanized commercial area to a full-service, high-density,
mixed-use, and ore pedestrian-friendly urban core and community focal point; and 4) to
build upon and e pand the City's recreational and cultural assets to increase visitors to
the City and enc urage greater visitor spending within the local economy. The strategy
encourages or ac elerates the trends and transformations that are already occurring in this
community. The ajor objectives ofthe strategy include the following:
. Provide better balance between housing and jobs by increasing the number of
jobs wit in the City relative to the number of households.
. Diversif the economic base by encouraging higher paying white collar and
technica jobs while preserving and enhancing the strong retail base.
. Generat more demand for hotel room-nights through growth in office and
business part space.
. Foster h rizontal mixed-use employment sector growth in the South 34Sth Street
area in t e near term (2000-2005).
. Foster C ntinued Corporate and Office Park employment sector growth in East
and We t 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 oU during this time period.
. Emphas. ze 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.
. Redevel p and improve the quality of the mixed use development along Pacific
Highwa South from South 272nd Street to South 356th Street (2000-20 I 0).
. Foster id-rise, mixed-use employment sector growth in the City Center (2000-
2020).
. Encour ge quality development throughout the City to attract desirable economic
develop ent in Federal Way.
. Maintai and improve the quality and character of the existing residential
neighbo hoods.
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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 of the 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-S/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 co sumer demand and become more competitive with other regional
retailers.
· retail in Federal Way increases faster than population.
· Growth in re ident-serving retail occurs in the City Center, p.xisting commercial
nodes, new odes around the I-5/South 320th and I-5/SR IS interchanges, and in
redevelopm nt areas along SR-99.
· Neighborho d scale retail development keeps pace with population growth and to an
increasing e tent, is accommodated within mixed-use buildings in more concentrated
neighborhoo villages.
· Pedestrian-o iented retail development emerges gradually in the redeveloped City Center.
· Small amou ts of retail use occur on the ground floor of offices, residential buildings,
and parking tructures.
· Neighborho d scale retail development in concentrated neighborhood villages
emerges in $ponse 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, outdate strip centers along the SR-99 corridor redevelop as a mix of retail,
office, and d nse residential uses.
· The large tr ck-stop facility at the intersection of Enchanted Parkway and South
34Sth Street. s redeveloped into a retail or mixed-use commercial center.
· pment is integrated with retail, residential, and business parks.
Office Develop ent
· Offices ofre ional, national, and/or international firms locate in West Campus, East
Campus, an the City Center.
· Garden, hig -rise, and mid-rise office space, and modern light-industrial buildings
increase rap' Iy in areas with land assembled for business parks and in redeveloped
retail areas.
· Federal Wa attracts more corporate regional headquarters and regional offices.
· Smaller, old r, outdated office structures are replaced with newer uses.
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FWCP - Chapter Four, Economic Development
. Integrated, campus-like high amenity areas are encouraged for corporate
headquarters and modern 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 space.
· 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
performance venues. Likewise, new cultural events become established in Federal
Way, such as music festivals, art shows/festivals, etc.
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FWCP - Chapter Four, Economic Development
. Stimulate qu lity development of region-serving institutional and technical facilities.
. Existing recr ational amusement facilities continue to develop as regional tourist
attractions.
. The City of ederal Way creates working partnerships with institutions of higher
education in rder to encourage and support their expansion and further integration
within the F deral Way economy, as well as to identify and exploit increasing
opportunitie for economic development.
4.3 FORECAST OF CONOMIC GROWTH IN FEDERAL WAY
The growth fore asts used in this chapter are derived from the 2000 Market Analysis and
2002 City Cente Market Analysis, prepared by ECONorthwest, while other chapters are
based on the PS C regional forecasting model.
In summary, pro ably the strongest sector in the near-term (five years) will be the retail!
services sector. bout 1.5 million additional square feet of retail tenant space may be
expected during he next 20 years, with commercial areas throughout the City and the
City Center alik sharing in the development. One particular sector that appears under-
represented is th quality restaurant sector, in which the City will likely see additional
development.
Demand for ne 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 additio , several office buildings, particularly in the West Campus area, exhibit
substantial vaca cies that can readily absorb near-term demand in the City. Nevertheless,
the long-term pi ture 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 wi I likely lag behind for most of the planning horizon. However, generous
zoning, pan ora ic views, and proximity to the freeways and transit may start to make the
City Center a m re attractive location for mid- to high-rise office development in the 10
to 20-year time rame.
With regard to ousing, only a small amount of land remains in the single-family zoning
districts to acco modate 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, id-rise apartments, and mixed-use buildings and/or high-rise residential
buildings. As w th the condition for single-family development, the majority of the multi-
family-zoned la d is also already developed, leaving primarily the commercial zones and
City Center as t e potential location of a great deal of the future residential development.
Nevertheless, hi her land values and construction costs, and lower relative rental rates
compared with ther communities in the region, act as barriers to residential development
within the City enter in the near term, unless public-sector actions create financial
incentives, redu e development costs, or otherwise create conditions attractive to housing
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FWCP - Chapter Four, Economic Development
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,
2001, 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
assistance for private sector dealings with the public planning and regulatory processes.
The staffs ability to link several programs, team up with other departments, and leverage
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FWCP - Chapter Four, Economic Development
limited funds all ws them to take meaningful and effective action. In addition, the City
should be creativ and open to exploring and adopting innovative regulatory and
incentive progra s to attract and retain businesses and development projects, such as
SEP A planned a tions and developer agreements. Key among such programs should be
any feasible effo s aimed at predictable and streamlined permitting processes.
The City's Role i the Economic Life of a Community
In the State of ashington, the direct actions that cities can take to encourage economic
development ha e historically been more limited than in other states. Nevertheless, in the
past few years s veral new and important tools have been made available to local
communities to elp encourage redevelopment, retain/attract jobs, and foster "smart
growth." These t ols include:
. Commu ity redevelopment financing (similar to tax increment financing)
. Limited ax abatement for multifamily development
. ity empowerment zone designation
. ity renewal act (updated and expanded version of former urban renewal)
· Tax def! rrals and exemptions for high technology businesses and investment, as
well as anufacturing investment
· Industri I revenue bonds
Notwithstandin 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 0 the most significant direct actions a city can take is to provide the
necessary infras ructure. This includes: 1) developing long term facilities expansion
plans; 2) design ng the specific systems and projects; 3) raising or borrowing local funds
to finance the p ojects or act as a conduit for state, federal, and intergovernmental funds;
and, 4) forming public-private partnerships to jointly construct projects.
Second, a city c n deliver high quality and cost effective urban services. These necessary
services includ police and fire protection; parks, recreation, and cultural services; social
services andjo training; and a well-run land use planning and regulatory process. In
addition, a city an actively participate in public/private groups designed to help
businesses and he development community as they work their way through the state and
federal regulat processes.
Third, a city ca directly impact economic development by doing market research or by
being a lando er and developer. For example, a city could develop, maintain, and
disseminate da and analysis on local development conditions and trends, as well as
monitor impo nt trends and assumptions upon which plans, programs, and strategies are
based. In additi n, a city can buy land, aggregate parcels, and make necessary
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FWCP - Chapter Four, Economic Development
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 of local 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 of local 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
Revised 2003 IV-20
FWCP - Chapter Four, Economic Development
economi development councils and chambers of commerce, and through
financial incentives. This strategy has high risk for the number of successes and
has a hi h cost.
. Third, n w businesses that are the result of new business start-ups, spin-offs from
existing ocal firms, and new business ideas and technologies are another
effectiv way that communities increase employment and businesses within a
local are . Local government encourages new business formation usually through
indirect ethods. These strategies can have moderate-to-high costs depending on
the spec fie actions and low-to-moderate degree of success.
. Fourth, urism and visitorship can be very important components of a local
econom . A city with recreational or cultural assets that draw visitors can build
upon th se assets to increase the numbers of visitors, the length of their stays, and
the amo nt of money they spend in the local economy. Local government can
work to arket the community and its assets beyond the immediate region to
bring in ew economic activity and can invest in recreational or cultural
infrastr ture to attract more events and/or visitors.
Human Resourc Programs
In addition to th economic development strategies discussed in the previous section,
human resource development programs are another general way whereby cities can
support econom c development. These programs are often not included as parts of an
economic devel pment program because they focus on assisting people-the human
resource for bus nesses. However, improving and remediating human resources is an
important long n approach. The previous four general approaches to economic
development str tegies try to raise revenues, reduce costs, or reduce risks for business
location, facilit investment decisions, and operating decisions of businesses.
Human resourc programs make a community attractive to new and existing businesses
by improving th local labor force. Components of a human resources program may
include: I) prov ding temporary support for underemployed workers, unemployed
workers, and th ir families; 2) providing job training and retraining to improve an
individual's abi ity to enter or remain in the work force; 3) creating referral and other
programs that a low labor resources to become more mobile and to respond to
information ab tjob openings; and, 4) by providing social service programs that meet
the needs of co munity residents who are temporarily not able to participate in the
economy. In m ny instances a City's human resources program addresses some, ifnot all,
of these human esource development objectives.
Economic Dev lopment Strategy For Federal Way
As with many c.ties, Federal Way will have limited funds with which to pursue its
economic devel pment goals. The City will have to use its resources in a focused and
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FWCP - Chapter Four. Economic Development
prioritized manner to have a positive impact on the local economic base. Table IV-5
(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 Encoura~ed Encoura~ed Reasons Timin~
PRIMARY ECONOMIC AREAS
City Center Public w/ Midlhigh-rise office, Sound Transit Station, To increase capture of Emphasis 5-10
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,
recreational7 Potential tax incentives, To obtain more full-range
Pedestrian-oriented SEP A Planned Action; of goods/ services in City;
retail.
344th to Public w/ Mix of low-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
permitting 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 w/ High density MF, Land use & capital Provide housing & As appropriate
four primary private support, Low rise office, improvements for gradual support services for for market.
economic dvpt Supportive retail. redevelopment/i n- fi II, economic areas,
areas, Public amenities, Transportation infrastructure,
Old Hwy 99 Public w/ High capacity & Land use & capital Provide a range of As appropriate
outside of main private support, business related, improvements for gradual housing & support for market
economic areas, High density MF redevelopment & in-fill. services & retail for
residential. Aesthetic improvements economic & residential
Low rise office, through sign code and urban areas,
Auto-oriented retail. design guidelines,
Neighborhood
commercial.
Areas around Current High density MF Predictable, efficient Provide a range of ho- As appropriate
1-5/South 320th landowners, residential. permitting process, using & support services for market
and 1-5/SR 18 Low rise office, Aesthetic improvements & retail for economic &
interchanges, Auto-oriented retail. through sign code and urban residential areas,
Neighborhood design guidelines,
commercial.
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FWCP - Chapter Four, Economic Development
Economic Development Goals
The City of Fed a I Way will not wait for market forces to create the future, but will act
to shape and acc lerate the evolving market trends in the direction of its vision. The City
will pursue the tI llowing goals to implement economic development.
EDG 1 The Ci y will emphasize redevelopment that transforms the City from a
suburb n bedroom community to a full-service community with an urban core.
EDG2 The Ci y will encourage concentration of non-residential development into four
pnma areas:
. igh-density mixed-use development in the City Center (31 ih and 320th,
S -99 to 1-5)
. ixed-use development in the area around 34Sth and SR-99 and around
t e 1-5!South 320th and 1-5/SR IS interchanges
. igh-quality office park development, including corporate headquarters,
c ntinued in and around West Campus
. igh-quality office development, including corporate headquarters in a
p rk-like campus setting east of 1-5
EDG3 The Ci will help facilitate redevelopment of existing neighborhood
comm rcial centers in the SR-99 corridor and the 336th area between West and
East C mpus.
EDG4 The C. y will channel further residential growth into existing multi-family and
comm rcial-zoned areas, with a particular goal of encouraging residential
develo ment in the City Center.
EDG5 The C ty will encourage and support the development of recreational and
cultur I facilities and/or events that will bring additional visitors to Federal
Way, nd/or increase visitor spending.
EDG6 The Ci will encourage and support existing businesses to remain and/or expand
their fa ilities within Federal Way.
Economic Dev lopment Policies
EDPl Redev lopment ofthe City Center will receive special attention in the FWCP.
EDP2 The C ty will explore the feasibility and utility of a process to master plan the
City enter, jointly funded by public and private entities, to encourage
appro riate redevelopment.
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FWCP - Chapter Four, Economic Development
EDP3 The City will continue to seek high-quality urban design and infrastructure
standards for these areas.
EDP4 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.
EDP5 The City will complete designs for public infrastructure to be jointly funded by
the City and private landowners.
EDP6 The City will work actively to formulate ways for joint public/private funding
of infrastructure.
EDP7 The City will develop zoning, permitting, and potential financial incentives that
encourage prioritized development consistent with comprehensive and subarea
plans and orderly, phased growth.
EDP8 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.
EDP9 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.
EDP14 The City will fund its portion of the public/private groups to allow them to do
an effective job in marketing the community.
Revised 2003
IV-24
FWCP - Chapter Four, Economic Development
EDP15 The Ci y will continue to utilize design guidelines to enhance the urban
enviro ment to retain and attract businesses and residents.
EDP16 The Ci y will adopt streamlined permitting processes consistent with state and
federal regulations to reduce the upfront costs of locating businesses in the City.
EDP17 The Ci will continue to pursue aggressive public safety programs designed to
protect residents, businesses, and their investments.
EDP18 The Ci y will encourage strong public and private leadership to solicit
comm nity support for internal and external funding assistance.
EDP19 The Ci y will periodically monitor local and regional trends to be able to adjust
plans, olicies"and programs.
EDP20 The Ci y will actively work with representative groups of business and property
owner, including the Federal Way Chamber and other local business
associ tions, to enhance citywide and subarea improvements and planning.
EDP21 The C , in conjunction with the local business community, will actively pursue
ties to acific Rim nations and businesses to stimulate related business activity.
EDP22 The C y recognizes the importance of cultural and recreational activity to its
econo y and through the Arts Commission and Parks Department will pursue
joint v ntures with private groups and individuals in developing cultural and
recrea ional opportunities.
EDP23 The C ty will encourage the expansion of existing and development of new
multi- urpose facilities to host cultural and recreational activities in order to
increa e the number of visitors to Federal Way and resultant visitor spending.
EDP24 The C ty will continue to market the community for, and encourage development
of, bu inesses in the high-tech sector. This effort will include exploration of
regula ory and/or financial incentives to attract high-tech businesses and
collab ration with regional communities, businesses, and local institutions of
higher education to promote Federal Way and South King County.
EDP25 The C ty of Federal Way will strive to create working partnerships with
institu ions of higher education in order to encourage and support their
expan ion and further integration within the Federal Way economy, as well as
to ide tify and exploit increasing opportunities for economic development.
EDP26 The C ty will consider opportunities to partner with local human-service
organi ations to assist in providing human resources development programs for
unem loyed or under-employed workers.
The foregoing olicies will assist the City of Federal Way to pursue an accelerated
transformation oward the community's vision of its future.
Revised 2003
IV-25
FWCP - Chapter Four, Economic Development
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.
Revised 2003
IV-26
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CHAPTER FIVE - OUSING
5.0 INTRODUCTIO
This chapter was prepared in conjunction with the Land Use chapter of the Federal Way
Comprehensive Ian (FWCP). Together they provide a holistic view of how housing
stock may be ex anded and improved to meet the City's housing needs over the next 20
years. The emph sis of this chapter is on preserving the high quality of existing
residential neigh orhoods while improving housing opportunities for low-income
families and per ns with special housing needs. These housing needs were identified in
a Housing Need Assessment, which the City completed in the Fall of 1993, and are
summarized in t is chapter.
The Growth Ma agement Act (GMA) requires that housing issues be addressed in both
the Land Use an Housing chapters. To gain a full picture of how new housing will be
provided in Fed al Way, both chapters should be read. As a general rule, the Land Use
chapter describe what densities will be permitted in the various neighborhoods of the
City and makes ecommendations for how new residential neighborhoods should be
designed so that hey are a positive addition to the community. The Housing chapter
focuses on the d mand for new housing, the availability of a range of housing types and
styles, and on th housing needs of low and moderate income families, special needs
populations, and the homeless.
5.1 LEGAL CONTE T
Washington Sta
Growth Management Act
The GMA requi es cities to, "...encourage the availability of affordable housing to all
economic segm nts of the population and to promote a variety of residential densities and
housing types." t also encourages "preservation of existing housing stock." The GMA
discourages con ersion of undeveloped land, "...into sprawling, low-density
developments." RCW 36.70A.020, 1990 Supp.)
The GMA requi es that the Housing chapter include:
. An inven ory and analysis of existing and projected housing needs.
. A statem nt of goals and policies for housing preservation, improvement, and
develop ent.
FWCC - Chapter Five, Housing
. Identification of sufficient land area for the number of needed housing units,
including government assisted housing, housing for low income families, mobile/
manufactured housing, multiple family housing, and special needs housing. This
defines the amount of land that the City must designate for housing in the Land
Use chapter.
. A strategy and policy for meeting the housing needs of all economic segments of
the community.
. Encouragement for innovative land use management techniques to enhance
affordable housing opportunities, including density bonuses, cluster housing,
planned unit developments, and transfer of development rights.
Affordable Housing Inventory
A 1993 legislative amendment requires that all cities and public agencies develop an
inventory of public properties no longer needed for use and which may be available for
affordable housing. The inventory is to identify individual property locations, size, and
current zoning category. Public agencies include all school districts and the state
departments of Natural Resources, Transportation, Social and Health Services,
Corrections, and General Administration. The inventory is provided to the Washington
Office of Community Development (OCD) and is to be updated annually by November 1.
The inventory is available from OCD upon written request (RCW 35.21.687).
Accessory Dwelling Units
The City is required by the state Housing Act of 1993 to include provisions for accessory
housing. To allow local flexibility, the provisions are subject to such regulations,
conditions, and limitations as determined by the City Council (RCW A.63.230). Consistent
with the adoption of the FWCP in 1995, the City prepared and adopted accessory dwelling
unit provisions consistent with the state's mandate.
Multi-County Policies
In response to the GMA, the Puget Sound Regional Council (PSRC) adopted regional
housing policies. These policies promote fair housing access to all persons regardless of
race, color, religion, gender, sexual orientation, age, national origin, family status, source
of income, or disability. Policies seek to strengthen interjurisdictional efforts for fair
distribution of low and moderate income, and special needs housing.
PSRC policies seek to provide a diversity of housing types to meet the needs of all
economic segments of the population. Jurisdictions should promote cooperative efforts to
ensure that an adequate supply of housing is available throughout the region. Each
jurisdiction should work at preserving existing affordable housing stock and providing
Revised 2002
V-2
FWCC - Chapter Five, Housing
access to public ransit for the residents in such housing. Policies promote development
of institutional a d financial mechanisms to provide housing near community centers.
They also encou age consideration of the economic impact of regulations and
development of egulations that do not burden the cost of housing development and
maintenance.
Countywide Pol cies
In 1994, King C unty adopted Countywide Planning Policies (CWPPs) for affordable
housing that pro ote a "rational and equitable" distribution of affordable housing. The
policies establis numerical housing targets that each city should accommodate and
specific targets r housing affordable to households earning less than 80 percent of the
County's media family income. Local actions to encourage development of affordable
housing may in lude, but are not limited to, providing sufficient land zoned for higher
housing densitie , revision of development standards and permitting procedures,
reviewing codes for redundancies and inconsistencies, and providing opportunities for a
range of housin types. Additionally, all jurisdictions should participate in a cooperative,
countywide effo to address current low income housing needs. Initially, this effort will
include identify. g a countywide funding source and countywide programs to address
housing needs t at cross jurisdictional boundaries and benefit from countywide
application.
Other countywi e housing policies require jurisdictions to evaluate existing subsidized
and low cost ho. sing resources, and identify such housing that may be lost due to
redevelopment, eteriorating housing conditions, or public policies or actions.
Jurisdictions sh uld develop strategies to preserve existing low-income housing and
provide relocati n assistance to households that may be displaced due to public action.
For jurisdiction such as Federal Way, which have elected to have an urban center, the
CWPPs provide that the center be planned to accommodate a minimum of 15 dwelling
units per acre.
All jurisdiction should monitor and report on various aspects of residential development
within their co munities. They should define annual targets for housing development
and preservatio , and track progress in achieving countywide and local goals for housing
all economic se ments of the population. The county's Growth Management Planning
Council (GMP ) is charged with determining whether development of housing for all
economic segm nts of the population is satisfying housing needs. Ifnew housing falls
short of meetin the countywide need for housing, and particularly affordable housing,
the GMPC may recommend additional actions.
Implications for the Housing Chapter
In summary, ba ed upon the foregoing laws and policies, Federal Way's Housing chapter
should include n inventory of existing housing stock; identify housing needs, and set
minimum housi g targets for each economic segment of the population; provide for
sufficient, appr priately zoned land to meet these needs; and identify appropriate goals,
Revised 2002
V-3
FWCC - Chapter Five. Housing
policies, and strategies for achieving these housing targets. Tools for achieving these
goals may include amendments to the zoning chapter of the Federal Way City Code
(FWCC) to encourage a more diversified housing stock, promote imaginative design, and
encourage development of affordable housing. Strategies may also include provisions for
inter jurisdictional efforts to provide and finance affordable housing. The primary
objective should be to create residential neighborhoods which are of high quality, provide
social and community support and meet the needs of all segments of society.
5.2 HOUSING NEEDS ASSESSMENT
Existing Conditions
Introduction
Federal Way has grown rapidly in the past. The area doubled in population during the
1960s and again in the 1980s. Since its incorporation in 1990, the City has grown by 23
percent. Based on PSRC forecasts, when the inventory of vacant land is consumed,
growth will slow down considerably.
Although households are generally more affluent in Federal Way than in nearby
communities, home prices are fairly even throughout South King County. The King
County Office of Regional Policy and Planning reports that in the first three quarters of
2001, the average single-family house price in Federal Way was $213,060, compared to
$222,580 in Kent, $216,549 in Auburn, and $207,302 in Des Moines.
The Seattle-Everett Real Estate Research Report reports that in the Fall of 200 1, the
median rent for a two-bedroom/one-bath apartment was $703 in Federal Way, $714 in
Kent, $676 in Auburn, and $689 in Des Moines. In comparison, the median rent for a two-
bedroom/one-bath apartment was $1,400 in Seattle, $1,182 in Bellevue, $886 in Redmond
($986), and $977 in Issaquah. This demonstrates that South King County has more
affordable rental housing available than the rest of the county.
Population
The 2000 Census_shows that compared to King County, Federal Way had a larger
percentage of children under 17 years old (28 percent compared to 22 percent in the
County).
On the other hand, only eight percent ofthe Federal Way population was 65 or older in
2000, compared to 10 percent in King County. However, it is expected that the number of
elderly will increase in Federal Way due to the natural aging of the population, seniors
tending to relocate to Federal Way in search of affordable housing, and the large number
of senior housing units being built in Federal Way. Senior citizens require such services
as home delivered meals, respite care services, recreation services, in-home care,
congregate and nursing care facilities, and transportation. Figure V-I (page 5) describes
the 2000 distribution of Federal Way's population.
Revised 2002
V-4
FWCC - Chapter Five. Housing
Revised 2002
30000
25000
20000
15000
10000
5000
o
Figure V-I
Federal Way Age Distribution by
Population in 2000
Under 20-34 35-54 55-64 65-74 Over 75
20
Source: 2000 Census
Household Income
Understanding th distribution of Federal Way's household income is also critical in
planning for futur housing needs. The King County Benchmark Program defines income
groups as follows:
Extremely L w Income:
Very Low In orne:
Low Income:
Median Inco e:
Upper Incom :
30% of county median income
31-50% of county median income
51-80% of county median income
100% of county median income
120% of county median income
King County's 19 9 median income for all households was $53,157, compared to Federal
Way's median in me of $49,278. More specifically, the 2000 RU.D. Income Levels by
Household Size fi r various income groups are shown by household size in Table V-1
(page 6).
While Federal W y households are generally more affluent than elsewhere in South King
County, about 1,3 0 households in the City of Federal Way are currently receiving
housing assistanc from the King County Housing Authority, or living in subsidized
private housing.
Employment
During the 1980s Federal Way's employment base grew faster than any other suburban
area of King COll ty. This growth was primarily in retail and service jobs and by 1994,
more than one-thO d of Federal Way's employment base was in retail sales, followed
closely by servic employment. The 1999 Central Puget Sound Regional Economic Report
Employment Patt rn and Trends, 1995-1998 reports that in Federal Way, jobs covered by
Social Security w from 23,800 in 1995 to 27,820 in 1998, an increase of 17 percent.
This study also r rts that there were less than 400 high technology jobs in 1998.
However, betwe 1995 and 1998, retail sector jobs increased from 6,650 to 7,710, a 16
percent increase. ut between 1998 and 2000, retail jobs increased only by six percent
V-5
FWCC - Chapter Five, Housing
while all covered employment increased by 13 percent from 27,820 to 31,315. Jobs in retail
sales and service employment typically pay low wages and as a result, these workers have
difficulty finding housing they can afford despite working full time jobs. Accordingly,
there may be an imbalance between jobs available in Federal Way and the earnings needed
to afford local housing. Ironically, this may result in employees working in the City
commuting from other communities where cheaper housing is available and higher wage
earners who live in Federal Way commuting to other cities for higher paying jobs.
. . . ncome eve s )y ouse 0 Ize
#Persons per Household 1 2 2.5* 3 4
Extremely Low Income (30% of median) $13,800 $15,800 $16,775 $17,750 $19,750
Affordable HSG Payment*** $288 $329 $349 $370 $411
Affordable Rent $345 $395 $419 $444 $494
Affordable House Prices**** $44,400 $50,800 $53,900 $57,100 $63,500
Very Low Income (50% of median) $23,050 $26,300 $27,950 $29,600 $32,500
Affordable HSG Payment $480 $548 $582 $617 $685
Affordable Rent $576 $688 $699 $740 $823
Affordable House Prices $74,100 $84,500 $89,000 $95,200 $105,800
Low Income (80% of median) ** $35,150 $40, 150 $42,675 $45,200 $50,200
Affordable HSG Payment $732 $836 $889 $942 $1,046
Affordable Rent $879 $1,004 $1,067 $1,130 $1,255
Affordable House Prices $1l3,00 $129,100 $137,200 $145,300 $161,400
Median Income (100% of median) $46,000 $52,600 $55,900 $59,200 $65,800
Affordable HSG Payment $960 $1,096 $1,165 $1,233 $1,371
Affordable Rent $1,153 $1,315 $1,398 $1,480 $1,645
Affordable House Prices $148,200 $169,100 $179,700 $190,300 $211,500
Upper Income (120% of Median) $55,320 $63,120 $67,080 $71,040 $78,960
Affordable HSG Payment $1,153 $1,315 $1,398 $1,480 $1,645
Affordable Rent $1,383 $1,578 $1,677 $1,776 $1,974
Affordable House Prices $177,800 $202,900 $215,600 $228,400 $253,800
2000 H U D I
Table V-l
Lib H
h Id S'
Source:
The 200 I King County Benchmark Report published by the King County Office of Regional Policy and Planning,
Notes:
*Since the average KC Household is about 2.4 persons, this column approximates the median for all households in the county.
**Because of the way HUD calculates this income level, it is actually 76% of the Median Income rather than 80%, although it
is called L80,
***An affordable housing payment is 25% of monthly income, Affordable rent is 30% of monthly income,
****The affordable home price is based on a 30 year fixed mortgage at 7.25% interest with 5% down,
I) The 1999 City of Federal Way Human Services Comprehensive Plan defines an affordable housing opportunity as rents
affordable to households earning less than 50"10 of median income,
2) For rentals, an affordable monthly payment is defined as a housing cost/payment that is no more than 30% of a household's
monthly income. This does not include a deduction for utilities; it assumes that the entire payment goes toward the rent
Example: 50% of median income for a three-person household was $29,600 in 2000, At this income, the family could afford
$740 in rent
3) The 1999 City of Federal Way Human Services Comprehensive Plan defines an affordable ownership opportunity as prices
affordable to households earning less than 80"10 of median income,
4) For homeownership, an affordable monthly payment is defined as a housing cost/payment that is no more than 25% ofa
household's monthly income. This leaves 5% of income for taxes and insurance.
5) An affordable home price is approximately three times the annual household income, An 80% of median income for a three-
person household was $45,200 in 2000. At this income, the family could afford to purchase a home costing no more than
$145,300,
Revised 2002
V-6
$839 Average rent month average
rent for a 2 bedroom/I bath Unit
Source:
The November 2001 Annual HOIlSin Affordable Bulletin published by the King County Office of Regional Policy and Planning
Note:
Salaries are estimated based on aver ges for entry to mid-career earners, unless otherwise specified,
FWCC - Chapter Five, Housing
2001 Housing Prices in King
Coun
$174,000 Median Priced Condo
Attached Townhome
$195,000 Home
$264,000 Median Priced Home
$322,000 Average Priced Home
To illustrate som of these points, Table V-2 provides examples of2001 Housing Prices
in King County, he income required to purchase these houses, and examples of typical
occupations with required earning power. Even though these examples are not specific to
Federal Way, th demonstrate it would be difficult for an employee in the service or
retail sector to p rchase an average priced home in Federal Way. According to the King
County Office 0 Regional Policy and Planning, the average price for a Federal Way
home was appro imately $213,060 in the first three quarters of 200 I). During this same
period, the medi n single-family house price in Federal Way was $188,000. In the more
extreme cases, t ese individuals and families may need some type of government subsidy
to access even re tal housing. If these employment trends continue, the City may be
under increased ressure to provide housing assistance to those employed locally in low
wage jobs.
Table V-2
for Various Income Se ments
Typical Occupations with Required Earning Power
1 full time English professor ($55,300) or 1 full-time registered nurse
($53,300) or 1 full-time USPS mail carrier ($37,000) and 1 half-time medical
records technician ($14,100
1 full-time firefighter ($43,000) and 1 half-time insurance claims processor
$13,7000) or 1 full-time machinist ($40,300) and 1 half-time library technician
$15,400),
1 full-time market research analyst ($75,000) or computer software engineer
($74,000) or 1 full-time microbiologist ($48,000) and 1 full-time travel agent
($30,400)
1 full-time human resources manager $69,300) and 1 full-time retail sales
worker ($23,300) or I full-time construction manager ($64,000) and 1 full-
time customer selVice re resentative $30,000)
1 full-time administrative assistant ($33,800) or corrections officer ($33,840)
or 1 full-time restaurant cook ($24,600 and 1 half-time cashier ($10,300)
Housing Invento
For the most p , the housing stock in Federal Way is in good condition. The City has very
little concentrat on of substandard housing typically found in older urban areas. However,
houses in poor ondition do exist in isolated cases around the City and in small pockets.
Revised 2002
As depicted in igure V-2 (page 8) presently, 50 percent of Federal Way's housing stock
is constructed a single-family homes. The remaining supply is composed of 45 percent
multiple-family units and five percent mobile homes.
The 1999 City Federal Way Human Services Comprehensive Plan reports that several
programs exist 0 assist individuals with housing costs to help them with maintenance of
existing housin . The most common subsidies include reduced cost units for rent,
vouchers or ce . ificates to assist with tenant-located housing, grants to help with down
payments, redu ed interest rate loans, and cash supplements for utilities or home
v-?
FWCC - Chapter Five, Housing
Figure V-2
Federal Way's Housing Stock
Multiple
Family
45%
Single-
Family
50%
maintenance. Another resource is public housing. The King County Housing Authority
owns 443 units of public housing in Federal Way. In addition, Section 8 certificates
provide subsidy of the rental cost of privately owned housing. Within King County,
outside of Seattle, 81 percent of Section 8 certificates are used in South King County,
where housing is more affordable. In December 2001, 961 (16 percent of total
administered by the King County Housing Authority) Section 8 certificates and/or
vouchers were being used in Federal Way.
There are presently seven organizations that offer emergency shelter and transitional
housing to residents of Federal Way. The 1999-2000 Seattle-King County Homeless
Response Report states that there are approximately 148 emergency shelter beds and 157
transitional housing units in South King County.
None ofthese organizations, by themselves, have the capacity to adequately meet the
demand for service. Even with close cooperation and coordination, they have had
difficulty meeting the growing demand for services and providing case management for
clients.
Another important way to provide affordable housing is to prevent the existing affordable
housing stock from being redeveloped or deteriorating to the point that it is no longer
useable. Although the City can generate maps of property with high redevelopment
potential, there is no data that specifically describes how much property is actually
redeveloped and how many affordable housing units are actually lost. To address these
situations, the CWPPs promote development of strategies to preserve existing low-
income housing. Toward that end, Federal Way currently allocates Community
Development Block Grant (CDBG) funds to housing rehabilitation programs subject to
funds availability.
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FWCC - Chapter Five. Housing
Future Housing
During their Sep ember 25,2002 meeting, the GMPC adopted a motion to add targets for
new households nd jobs for the period 2001 - 2022. These targets were based on a
methodology de eloped over a two-year period by the King County Planning Directors.
The adopted 2001 - 2022 housing target for Federal Way is 6,188 new residential units.
using units always exceeds the number of households, and is dependent
The CWPPs sug est that Federal Way plan for an additional 1,238 units, the equivalent
of 20 percent of rojected net household growth, that are affordable to very low income
families (less th n 50 percent of median) and 1,052 housing units, the equivalent of 17
percent of proje ted net household growth, that are affordable to low income families
(between 50 and 80 percent of median) by the year 2022.
Housing is cons. ered affordable when a family is spending not more than 30 percent of
their monthly in orne if renting, and 25 percent if purchasing, or three times their annual
income ifpurch sing a home. For a three-person very low-income family in Federal Way
(see Table V-I), it means that the monthly rent excluding utilities must be less than $740,
or if they are bu ing a home; it must cost less than $95,200 at 2000 prices. The Seattle-
Everett Real Es te Research Report reports that in the Fall of2001, the median rent for a
two-bedroom/o e-bath apartment was $703 in Federal Way, demonstrating that Federal
Way has afford ble rental opportunities. However, to build homes that are available for
$95,200 would equire significant public subsidies.
To ensure that n w housing units are a positive addition to the community, the City
adopted residen ial design guidelines in 1998 in order to encourage more variety in the
types of units a ailable and more innovative and aesthetically pleasing design.
Requests for he p by Federal Way residents for homeless shelters, transitional housing,
and special nee s housing exceed supply.
. In 1999, the Crisis Clinic Community Information line received 495 calls from
Federal ay residents seeking emergency shelter and from 188 residents seeking
perman t housing.
. The Oct ber 19, 1999, United Way of King County Health and Human Services
Commu ity Assessment reports that in 1989, less than 16 percent of people
requesti g emergency or transitional shelter in South King County were able to be
sheltere due to lack of available space.
. The dom stic abuse shelter provided 192 nights of shelter to domestic violence
victims, and turned away many more women and children due to lack of space.
. There is need for more supported living units (apartments and shared single-
family omes) for the mentally ill.
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V-9
FWCC - Chapter Five, Housing
. In the fall of 1999, there were approximately 65 homeless children in the Federal
Way School District.
. There may presently be a need for 96 units of housing for persons with AIDS in
southwest King County.
Federal Way works with the King County Consortium and neighboring cities to
implement effective housing goals and policies to meet future housing needs. A
comprehensive strategy ensures that safe and suitable housing is available to residents of
all income levels and special needs, as required by GMA.
Housing Capacity
As is described in the Land Use chapter, based on the most recent capacity analysis, there
is a remaining capacity for 5,538 new residential units, including 3,265 detached single-
family homes and up to 2,273 multiple-family units.
In general terms, the primary component ofthe City's housing strategy is to promote in-
fill while protecting the character and quality of its existing single-family residential
neighborhoods. New detached units will be constructed on vacant lots in existing
neighborhoods but they will be compatible with the existing homes. Planned Unit
Developments and other special development techniques may be added to the FWCC to
encourage compatible development on difficult sites and near environmentally sensitive
areas. However, in-fill development will not be permitted at the expense of the quality of
life in existing neighborhoods.
A secondary component of the housing strategy is to encourage higher density residential
uses in the I-5/Highway 99 corridor, including the City Center Core and City Center
Frame. Row houses, townhouses, condominiums, and mid-rise residential are appropriate
in this area subject to the availability of utilities and other infrastructure, access to public
transportation, jobs, shopping, entertainment, and social and human services. This plan
anticipates that during the next 20 years, the City Center and the Highway 99 corridor
will redevelop and accommodate the majority of the new housing units, particularly
multiple-family housing units, added to the City's inventory. The area will gradually
become a denser, mixed use, pedestrian friendly, high amenity, high quality, vital part of
Federal Way.
The third part of the strategy is to ensure that there is sufficient land available for other
housing needs such as government assisted housing, manufactured housing, group
homes, and foster care facilities. The Land Use chapter and FWCC provide support for
this type of housing. In 2002, the City adopted a code amendment to eliminate the
separation requirements for social services transitional housing within multiple family
residential zones provided that no less than one unit and no more than five percent of the
housing within the multiple family complex may be social services transitional housing.
Revised 2002
V-10
FWCC - Chapter Five, Housing
Together, the La d Use and Housing chapters and the associated development regulations
provide sufficien capacity to accommodate projected housing growth for all economic
segments of the opulation. It is important that the City implement a housing program that
will assist privat developers and private non-profit organizations in meeting the identified
housing needs. S ch action is not only required by GMA, but it is also prudent public
policy and will e sure a safe and supportive housing environment for future generations.
5.3 KEY HOUSING SSUES
Preserving Neig borhood Character
As the populatiQ of the area in and around Federal Way doubled during the 1980s,
residents feared hat existing neighborhood character and values were threatened.
Approximately ,000 new multifamily units were built in Federal Way between 1980 and
1990. Many oft ese units were not well designed and were haphazardly sited across the
entire City. This resulted in substantial changes to the character of neighborhoods, or
created new nei hborhoods along major arterial streets. Preservation of existing
neighborhoods as been cited as an important community value in Federal Way. This
value played a I rge role in the community's decision to incorporate.
The FWCP reco nizes that neighborhoods are special places and are valuable and
important to the quality of life for many citizens. New development in established
neighborhoods ust be sensitively designed and constructed. New development within
existing single- mily neighborhoods should be limited to small scale, well-designed in-
fill, and accesso housing. Likewise, new multiple-family or mixed use development
located along a erials running through or adjacent to existing residential neighborhoods
should be desig ed to minimize adverse impacts and with sufficient buffers.
Development R
There are sever I actions the City may take to make housing more affordable. Time is
money to a hou ing developer. Thus, whatever the City can do to reduce permit-
processing time will make housing more affordable. Accordingly, as part of the HB 1724
code revisions, he City revised the FWCC so that more land use decisions are
administrative cisions, thereby avoiding time consuming public hearings.
Second, the Ci has in place a preapplication process that allows the developer to meet
with City repre ntatives at an early stage in the review process to ensure that the
applicant under tands City development regulations. Such early meetings allow the City
and housing de eloper to agree on the best method to achieve a code compliant and
mutually benefi ial site plan prior to having spent significant sums on costly design and
engineering wo k.
Revised 2002
V-11
FWCC - Chapter Five, Housing
A significant portion of the cost of building housing is the cost of providing the necessary
infrastructure. If the City is interested in providing housing that is affordable to very low
income citizens, it could, to the extent economically practicable, provide the necessary
infrastructure, or possibly subsidize the cost of providing public facilities such as streets,
parks, utilities, transit facilities, public amenities, and social services. CDBG funds and
other grants are available for this purpose and should be used where appropriate.
Citizen Participation
Moderate scale housing development that is consistent with City policy and regulations
should be reviewed and approved through a prescribed, efficient, and consistent
administrative process, which minimizes review time and the subsequent increases in
project costs. Larger scale development plans, or those which will have significant
impacts on surrounding neighborhoods, should have full public review as defined in the
FWCC. The public and the developer should have a clear understanding of the process,
the types of issues that are open to discussion, and the time frame for completion of the
reVIew process.
Housing Design and Innovation
The challenge in this plan and subsequent code revision work is to be flexible when
presented with creative and high quality design proposals. Of course, this flexibility must
be balanced with the need to provide a degree of certainty to the developer and to give
clear guidance to policy makers, staff, and public. The following paragraphs describe
several regulatory mechanisms which the City could include in its zoning code that
would encourage superior design, a greater variety of housing types, and reduce costs.
Incentives For Good Practice - Many jurisdictions include incentives in their zoning code
that encourage developers to build projects in a way that produces some identified public
benefits. The public benefits might include creative designs that are sensitive to
community and neighborhood values, dedication of land or right-of-way for public use,
and construction of urban amenities, community facilities, and other public spaces. The
City of Federal Way has adopted a density bonus provision in the City Center, whereby
building height can be increased from 35 feet to a maximum of 85 feet, and from 48 to 80
dwelling units per acre for multiple family and senior housing, in exchange for providing
public open space or paying a fee-in-lieu of. In addition, new multiple family or mixed-
use projects in any zone involving 25 dwelling units or more are required to provide
affordable dwelling units. Projects providing affordable dwelling units may exceed the
maximum number of allowed dwelling units up to ten percent above the maximum. In
single-family subdivisions, those lots that are proposed to contain affordable dwelling
units can be reduced in area by up to 20 percent of the minimum lot size ofthe
underlying zoning district; provided that the overall dwelling units in the subdivision may
not exceed ten percent of the maximum number of units allowed in the underlying zoning
district.
Revised 2002
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FWCC - Chapter Five, Housing
Inclusionary Zonin - In certain zanes, develapment might be required ta meet certain City
gaals, such as pr viding affardable hausing, as set aut in the FWCC. It is becaming mare
cammanplace fa jurisdictians ta require majar develapers ta provide a partian af law
incame hausing n develapments aver a certain scale. The City amended the FWCC in
1997 ta require ultiple-family develapment, ar mixed use projects invalving 25 dwelling
units ar mare, t0' pravide at least twa units, ar 25 percent, whichever is greater, as
affardable hausi g ta thase at 80 percent ar belaw median caunty incame. .
Planned Unit DevellfJment - A Planned Unit Develapment (PUD) ardinance allaws
develapers flexi ility ta achieve design, layaut, ar density that is suited ta a specific site.
As an example, PUD allaws clustering af hausing density in mare develapable partians
af a site while p tecting impartant apen space and environmentally sensitive areas. A
PUD ardinance ives the City and the develapment cammunity flexibility ta provide a
variety afhausi g types and casts in new residential areas ar smaller, alder, mixed-use
neighbarhaads. n 1998, the City revised its Cluster Provisians in the Subdivisian Cade
ta allaw reducti n in minimum lat sizes and ta allaw zero-lat line develapment far na
mare than twa u its.
Transfer of Develo men! Rights - This technique allaws a develaper ta transfer permitted
density from an part af a site ta anather, ar fram ane site ta anather. It is a useful
technique far pr tecting parts af sites that are enviranmentally sensitive withaut lass af
land value. It al allaws far mare dense farms af hausing develapment, thereby reducing
hausing casts.
Diversifying Housing Choice
The majarity af he hausing available in Federal Way taday is fairly hamagenaus.
Hausing primar ly cansists af single-family detached units, canstructed in the sixties and
eighties, laid au in isalated subdivisians discannected from the urban fabric. There are
same mabile ha e parks and a few duplexes lacated in the City. Hawever, in the last six
years, 792 senia ar assisted hausing units, and 240 canvalescent units (skilled-care beds)
have been built. The rest afthe hausing stack tends ta be twa and three stary apartment
buildings. This rovides anly a narraw range af chaices and daes nat fully reflect the
range af hausin aptians that cauld be built.
It creates a situ ian where an increasing number af families find it difficult ta abtain
suitable hausin in the cammunity. It affects empty nesters and cauples wha have raised
their families w a, far life-style reasans, na langer need ar want a large single-family
hause and the a saciated maintenance. Yaung adults, students, yaung married cauples,
and law incame warkers wauld like ta live in the cammunity where they grew up ar
currently wark, but cannat find a hause that fits their hausing needs ar cannat affard the
available hausi g.
New hausing s auld be mare diverse, cantributing ta cammunity character and relating
better ta the nei hbarhaad enviranment. It shauld reassure residents that they will be able
ta affard ta live clase ta their jabs, friends, and families. It will alsa help preserve and
maintain neigh arhaads that include a healthy mix af ages and incames.
Revised 2002
V-13
FWCC - Chapter Five, Housing
Housing Affordability and Special Needs Housing
On a countywide basis, Federal Way is a very affordable community. The population of
Federal Way tends to be younger than other communities, creating a strong demand for
moderately priced housing. There were approximately 9,500 low-income households in
1996 in Federal Way in need of housing assistance. The increasing number oflow-
income households can be attributed in part to a growing number of senior citizens who
are likely to need both housing assistance and related services. PSRC also projected a
strong demand for affordable multiple-family units through the year 2000 to serve low-
and very low-income families who work in Federal Way.
The GMA and CWPPs require that municipal jurisdictions adopt strategies for providing
a "fair share" of identified regional housing needs. The CWPPs set a target of2,290 new
affordable housing units in the City by the year 2022. Of that number, 1,238 must be
affordable to very low-income citizens.
The need for homeless shelters, transitional housing, and special needs housing exceeds
the available supply. The City has funded several special needs projects in the past few
years to help address this need. The CWPPs as well as GMA require provisions for
special needs housing. Special needs housing, also called "supportive housing," brings
together housing and support services for community residents who need special services
in order to live independently or with minimum assistance. This includes services in
housing operated by public and private agencies. According to the 2000-2003 King
County Consolidated Housing & Community_Development Plan, there is a need for an
additional 500 beds countywide.
According to the 2000 census,Jhe proportion of elderly at 7.7 percent is smaller in
Federal Way than in neighboring South County cities, except for Kent. Average life
expectancy continues to climb, and we should expect an increasing percentage of Federal
Way's population will be 65 and over in the next 10 to 20 years. As discussed earlier in
this chapter under Population, there are three reasons the number of elderly can be
expected to increase: 1) natural aging of the population; 2) they are relocating to find
affordable housing; and 3) a large number of senior housing units have been recently
constructed. Because women tend to live longer than men, this population will be
predominantly female.
Elderly people are often reluctant to give up the comfort and security provided by their
own homes. With this in mind, federal and state policy has shifted from one of providing
institutionalized care for seniors to a more home based or "aging in place" policy. Many
seniors, and most of those over 75, need some level ofin-home services. As elderly
people become more frail, their supportive service needs increase. They may be better
served in congregate care facilities, or eventually, long-term care facilities. Federal Way
should begin planning for a continuum of care that minimizes family stress and public
costs. In-home services should be available Citywide, while congregate care facilities and
long-term care facilities should be located near to community services and shopping
areas, and away from busy traffic corridors.
Revised 2002
V-14
FWCC - Chapter Five, Housing
According to the 2000-2003 King County Consolidated Housing & Community
Development PI n, in 1997, an average of9,42l adults with chronic or severe mental
illness were serv d by the King County Regional Support Network. Safe and affordable
housing, a key el ment in a long-term therapy program for these people, is not available
for a majority of the low-income mentally ill in King County or Federal Way.
There are no do estic shelters located in Federal Way. However, Federal Way is
currently served y several programs for victims of domestic violence. The Domestic
Abuse Women's Network (DAWN) provides 21 shelter beds, as well as crisis
intervention and support services. The South King County Branch of the YWCA also
serves Federal ay area residents. There is clearly a large unmet need for emergency
housing in Sout King County for victims of domestic abuse.
King County jur sdictions receive Housing Opportunities for Persons with AIDS rental
assistance fundi g from HUD. Federal Way participates in the oversight of this program
with Seattle acti g as the lead authority. According to the 2000-2003 King County
Consolidated R using & Community Development Plan, in mid-1998 in King County,
there were an es imated 2,164 persons living with AIDS, while between 6,000 and 9,000
persons were in cted with HIV. At the time of diagnosis, 19 percent, or 412 people,
diagnosed with IDS lived outside the City of Seattle. Historically, housing services
have been reque ted by 50 percent of the total AIDS population and actual housing units
are required by 3 percent of people living with AIDS. Ifthese trends continue, 163
housing units w uld be required to serve this population.
Several organiz tions in South King County offer emergency shelter and transitional
housing to resid nts of the City of Federal Way. Existing data concludes that current
facilities are ina equate when compared to requests for help. The South King County
Multi-Service C nter staff estimates that for every family served in their emergency
shelter program nine families are turned away. In addition, the October 1999 United Way
Report states th n in 1998, due to lack of space in South King County, less than 16
percent of peop seeking shelter received it.
There are many reasons that people and families end up homeless. In 1997, data from
shelters on the ousing Consortium (outside the City of Seattle) revealed that the most
common reason for homelessness was domestic violence, followed by eviction and
family crisis. A cording to established service providers, suburban homelessness is also
increasing. Dat from the South King County Multi Service Center indicates that the
proportion of w men, children, and two parent working families seeking shelter is
growing rapidl in this community.
It is difficult to stimate the number of homeless children there actually are in Federal
Way, but the Feral Way School District reports that in their District alone, in the fall of
1999, there wer 65 homeless children. Federal Way Youth and Family Services reports
that many horn less children come from abusive homes or suffer from emotional neglect.
Homelessness nd domestic instability may cause deep emotional scars that impact a
child's ability t focus his or her full attention on education.
Revised 2002
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FWCC - Chapter Five, Housing
There is also a need for transitional housing for homeless individuals and families. State
and federal rules restrict the length of stay in emergency shelters to 60 days. So, after
many families have exhausted their time in an emergency shelter, they need access to
longer-term transitional housing, where they can live for one or two years, obtain
necessary support services, and stabilize their lives.
Data is scarce so it is very difficult to estimate the number of beds that are needed to
house the special needs population. However, there is unmet need in this service area.
The City is committed to fostering programs and supporting service providers to assist in
meeting this need subject to economic limitations, City revenues, and the need to balance
housing against all other public needs.
Policy Coordination and Regional Participation
The GMA and good planning practice require that each chapter of the FWCP be
coordinated and consistent with goals and policies set forth in the other chapters. This is
especially true of the Housing chapter, particularly as it relates to the Land Use and
Transportation chapters.
The GMA also requires that City policies for affordable housing be consistent with
CWPPs. PSRC, King County, and Federal Way have jointly adopted regional planning
'goals that estimate fair share housing targets, including low and very low-income housing
targets that promote an equitable distribution of affordable housing. This type of housing
is most appropriate in urban centers that contain jobs and good public transit access.
Consistent with these requirements, the City's Land Use chapter proposes multiple-
family housing and mixed-use development in the City Center, (comprised of the City
Center Core and City Center Frame), the Community Business zone along the SR-99 and
1-5 corridor, and to a limited extent in the neighborhood retail centers. In addition, senior
housing is allowed in the Business Park and Office Park zones. All of these locations are
or will be well served by public transit. The City has also determined that housing, and in
particular multiple-family housing, will be designed so that it provides a quality place to
live and is an asset to the community. In addition, the City is committed to fair housing
access to all persons without discrimination.
This Housing chapter must also be coordinated and consistent with the County's and the
City's funding programs for housing. This is particularly true for programs such as the
CDBG, Home, and other Countywide funding initiatives as recommended by the GMPC's
Housing Finance Task Force.
The City also recognizes that most of the housing issues found in Federal Way are
common to the County, Seattle, and the other suburban jurisdictions. In order to insure
quality in the City's provision of housing services, and to help eliminate duplications of
effort, the City should continue to coordinate with the King County Consortium and other
South King County cities when designing and implementing housing and housing related
servIces.
Revised 2002
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FWCC - Chapter Five, Housing
5.4 HOUSING CH PTER GOALS AND POLICIES
The following s ction provides goals and policies for providing, preserving, and
improving housi g conditions in Federal Way. These goals and policies provide a
framework from which to develop implementing strategies and work programs for the
community. The purpose of these goals and policies is to provide housing opportunities
to all segments f the population. Consistent with GMA, these goals and policies should
promote a varie of densities and housing types, and encourage preservation of the
City's existing h using stock.
Overall Goal
Preserve and pI'. teet Federal Way's existing high quality residential neighborhoods
and promote a riety of opportunities to meet the housing needs of all residents of the
community and egion,
Preserving Neig borhood Character
Goal
HGl Prese ve and protect the quality of existing residential neighborhoods and
requi new development to be of a scale and design that is compatible with
existi g neighborhood character.
Policies
HPI
ensity housing projects, with the exception of senior housing, will not be
ed in existing single-family residential neighborhoods.
guidelines should be adopted potentially in subarea plans that will
speci in detail neighborhood character and require that new housing be
consi tent with these design guidelines.
HP2
Arne development regulations to accommodate a diverse range of housing
forms that are compatible with neighborhood character and create an effective
transi ion between the City Center, business areas, and residential neighborhoods.
HP3
Conti ue to allow accessory housing units within single-family neighborhoods
that p otect residential character, ensure proper access, maintain specific design
stand rds, and comply with all applicable laws.
HP4
HPS
Main ain a strong code enforcement program to protect residential areas from
illega land use activities.
Revised 2002
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FWCC - Chapter Five, Housing
HP6 Conduct periodic surveys of housing conditions and create programs, including
housing rehabilitation, to ensure that older neighborhoods are not allowed to
deteriorate, subject to availability of funding for such surveys and programs.
HP7 If allowed by applicable law, development inside and outside the City should
be required to provide their fair share of onsite and offsite improvements.
Community Involvement And Development Review
Goal
HG2 Involve the community in the development of new housing to a degree that is
consistent with the scale of impact on the surrounding neighborhoods.
Policies
HP8
HP9
HPI0
HPll
HP12
Encourage public input into development of planning and regulatory
documents through a formal public process characterized by broad, thorough,
and timely public notice of pending action.
Consider the economic impact of all development regulations on the cost of
housing.
Maximize efficiency in the City's development review process and ensure that
unnecessary time delays and expenses are eliminated. Provide streamlined
permitting processes for development that is consistent with the FWCP and
FWCC, and that has no adverse impacts.
Encourage community input, where appropriate, into the development permit
process by providing thorough and timely information to the public.
Assist developers with housing proposals at the earliest possible opportunity,
including preapplication meetings to produce projects that can be reviewed
quickly and maximize their ability to receive permits.
Diversifying Housing Choice And Design
Goal
HG3
Develop a Comprehensive Plan and zoning code that provide flexibility to
produce innovative housing solutions, do not burden the cost of housing
development and maintenance, and diversify the range of housing types
available in the City.
Revised 2002
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FWCC - Chapter Five, Housing
Policies
lIP 13 CC and Land Use chapter of the FWCP wilI be coordinated to alIow
affordable to the low income and very low-income and special needs
housin around the City Center and other areas providing proximity to low
wage mployment, safe and convenient access to transportation and human
servic s, and adequate infrastructure to support housing development.
lIP14 development regulations to encourage superior design and greater
of housing types and costs through such techniques as incentives,
inclusi nary zoning, planned unit developments, density bonuses, and transfer
of dev lopment rights.
lIP15 Consi er zero lot line standards within planned unit developments to create
higher density single-family neighborhoods with large open space areas.
lIP16 er reducing minimum lot sizes to allow construction of smaller,
d single-family houses on smaller lots.
lIP17 Conti ue to permit mixed-use residential/commercial development in
desig ated commercial areas throughout the City. Include developer incentives
and d sign standards.
HP18 Establ'sh administrative procedures to permit innovative housing designs,
provi ed they are of high standard and consistent with the FWCP.
lIP19 Conti ue to provide incentives, such as density bonuses, for providing a portion
of aff, rdable housing in new developments.
lIP20 ically review and update development regulations to incorporate
unities for new housing types.
Housing Afford
Goal
HG4 Deve 'P a range of affordable housing opportunities for low-income groups
consi tent with the CWPPs and needs of the community.
Policies
HP21
Prom te fair housing access to all persons without discrimination.
lIP22
As es imated by CWPPs, maintain sufficient land supply within the City to
acco modate 17 percent of the City's projected net household growth for those
maki g 50 to 80 percent of King County's median income and 20 percent
maki g less than 50 percent of median income.
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FWCC - Chapter Five. Housing
HP23
HP24
HP25
HP26
HP27
HP28
HP29
HP30
HP31
HP32
HP33
Require a portion of new housing on sites of significant size to be affordable to
low-income households. Ensure that affordable housing is not concentrated in
particular neighborhoods by setting a percentage limit to the number of
affordable housing units that can be included in new housing developments.
Ensure that any new affordable housing remains affordable.
Allow and encourage use of manufactured housing in residential zones,
provided it conforms to all applicable federal, state, and local requirements and
is compatible with the character of the surrounding neighborhood.
In order to maintain existing affordable housing, the City should continue to
allow manufactured home parks in existing locations. However, new
manufactured home parks will not be permitted, nor will expansion of existing
parks be allowed.
Encourage new residential development to achieve maximum allowable density
based on gross area.
Explore federal, state, and local resources to assist in financing affordable
housing. Encourage expansion of home ownership options through such means
as first time home buyer programs, housing cooperatives, lease-purchase
ownership, and other housing models.
Consider delaying, deferring, or exempting affordable housing from
development fees, concurrency requirements, payment of impact fees, offsite
mitigation, and other development expenses that do not compromise
environmental protection or public health, safety, and welfare concerns, or
constitute a nuisance.
Support tax law amendments that provide relief to affordable and special needs
housing.
Identify low-income and very low-income housing resources that may be lost
due to redevelopment or deteriorating housing conditions. Develop strategies
that seek to preserve this existing housing, and that seek to provide relocation
assistance to households that are displaced as a result of such activities.
Annually monitor residential development to determine the total number of
new and redeveloped units receiving permits and units constructed, housing
types, developed densities, and remaining capacity for residential growth for all
income levels and needs.
Integrate and coordinate construction of public infrastructure with private
development to minimize housing costs wherever possible or practicable.
Revised 2002
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FWCC - Chapter Five. Housing
Special Needs H using
Goal
HG5 Develo a range of housing opportunities that meet the requirements of people
with sp cial housing needs, including the elderly, mentally ill, victims of
domest"c abuse, and persons with debilitative conditions or injuries,
Policies
HP34
HP35
HP36
HP37
Goal
Remo e existing regulatory barriers to siting special needs housing to avoid
conce ration and to ensure uniform distribution throughout all residential and
mixed se zones, subject to performance standards that protect residential
amem , ensure proper access, and maintain design standards.
Revie permit applications for special needs housing in close coordination
with s rvice providers and the City's Human Services program.
Assist ocal service organizations and self help groups to obtain funding and
suppo
Ensur that access to special needs housing is provided without discrimination.
HG6 Devel emergency shelter and transitional housingfacilities for the homeless.
Policies
HP38
HP39
HP40
HP41
Revised 2002
Foster and support services that are not concentrated in particular
neigh orhoods by setting a percentage limit to the number of affordable
housi g units that can be included in new housing developments.
Coord nate City actions related to homelessness with the City's Human Services
Progr m and other shelter providers.
Conti ue to permit emergency and transitional homeless facilities within the
City.
Emer ency shelters and transitional housing should be regulated to avoid
conce tration of facilities, mitigate impact on surrounding uses, ensure that
such ousing is properly managed, and avoid significant impacts on existing
reside tial neighborhoods.
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FWCC - Chapter Five. Housing
Regional Participation
Goal
HG8 Coordinate and integrate the City's program with other area housing and
service providers.
Policies
HP42
Policies and regulations related to affordable housing should be consistent with
CWPPs and multi-county policies.
HP43
Establish effective links with King County and other area cities to assess need
and create housing opportunities for low income and special needs households,
and develop a housing program that addresses issues common throughout the
entire region.
HP44
Subject to availability of funds, participate in the production and periodic
update of a housing needs assessment for the City and region to ensure that
policy is based upon a rational evaluation of housing needs and priorities.
HP45
Ensure equitable and rational distribution of affordable housing throughout the
region that is compatible with land use, transportation, and employment
locations.
5.5 IMPLEMENTATION ACTIONS
Implementation of policies contained in the chapter will occur over a number of years
and is dependent on resources available to the City and the community. The following
implementation strategy lists actions that the City may take in the future.
1. Develop an inventory of public properties no longer needed for use and which may
be available for affordable housing. Evaluate use of such property for affordable
housing against all other competing public uses.
2. Inventory and report on the estimated number of units for each income segment
for purposes of Countywide monitoring of capacity for housing development.
3. Continue to monitor residential development on an annual basis and determine the
total number of new and redeveloped units receiving permits, units constructed,
housing types, developed densities, and remaining capacity for residential growth
based on income categories.
Revised 2002
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FWCC - Chapter Five, Housing
4. Conduct riodic surveys of housing conditions to direct the housing rehabilitation
programs.
5. Develop s rategies for protecting low-income and very low-income housing that
may be 10 t due to redevelopment or deteriorating housing conditions.
6. Develop uidelines, potentially as subarea plans, that require consistency with
specified eighborhood character and design requirements.
7. Assign a ity representative to participate with other agencies to create a
comprehe sive housing program that addresses issues common throughout the
entire reg on, and to seek and develop funding opportunities and strategies.
8. Prepare a d periodically update a housing needs assessment.
9. The folio ing is a menu of potential development regulation amendments that
should be considered:
· Div rsify housing forms and encourage superior design through
tech iques such as incentives, planned unit developments, density
bon ses, and transfer of development rights.
· Cre te effective transitions between the City Center, businesses, and
resi ential areas.
· Ma imize efficiency of development processes.
· Stre mline processes for development consistent with the FWCP and
FW C, and ensure they have no significant adverse impacts.
· urage affordable and special needs housing around the City Center.
· pt zero lot line standards.
· Re ce minimum residential lot sizes.
· Est blish maximum and minimum requirements for affordable housing
on ites of significant size.
· Eli inate barriers to uniformly siting special needs housing throughout
all esidential areas.
· Pre lude concentration of homeless facilities.
Revised 2002 V -23
CHAPTER SIX - C PITAL FACILITIES
6.0 INTRODUCTIO
The City of Fed ral Way is expected to add 6,188 housing units and 7,481 jobs between
the years 2001 d 2022. This growth will stimulate the local economy and maintain a
diverse and vibr nt community. Unfortunately, it will also generate a corresponding
demand for new public services and facilities, such as schools, parks, and streets. These
new facilities, a d the financial implications they will have for Federal Way and its
citizens, are the ubject of this chapter.
The Growth Ma agement Act
The Growth Ma agement Act (GMA) refers to capital facilities planning in two of the 13
statewide planni g goals. The two relevant goals are:
1. Urban g owth. Encourage development in urban areas where adequate
public f1 cilities and services exist or can be provided in an efficient manner.
2. Public fi cilities and services. Ensure that those public facilities and services
necessa to support development shall be adequate to serve the development at
the time the development is available for occupancy and use without decreasing
current ervice levels below locally established minimum standards.
More specificall , the GMA mandates that the City prepare a capital facilities plan which
contains the foIl wing components:
. An inve tory of existing facilities owned by public entities, showing the
locatio and capacities of the facilities.
. A forec st ofthe future needs for such facilities.
. The pro osed locations and capacities of expanded or new facilities.
. At least a six-year financing plan that will finance such facilities and clearly
identify sources of public money for such purposes.
. A requi ement to reassess the Land Use chapter if probable funding falls short.
In the pages tha follow, this chapter complies with the GMA requirements for a capital
facilities plan.
FWCP - Chapter Six, Capital Facilities
Level of Service
To prepare a Capital Facilities chapter, one of the first decisions a jurisdiction must make
involves establishing a level of service (LOS) standard. The level of service standard
refers to the amount and quality of services and facilities that a community wants. For
example, the LOS for a parks system is usually described in terms of the number of acres
of parkland per 1,000 population. If a community has a strong desire for a good parks
system, it will establish a high LOS standard for itself, maybe something on the order of
20 acres of park per 1,000 residents. On the other hand, 20 acres of developed parkland is
expensive to acquire, develop, operate, and maintain. As a result, the community may be
forced, for financial reasons, to accept a lower LOS standard. In any event, adopting LOS
standards for all the services and facilities the City provides would help it: 1) evaluate
how well it is serving existing residents, and 2) determine how many new facilities will
have to be constructed to service new growth and development.
Concurrency
In addition to mandating that a Capital Facilities chapter be included in comprehensive
plans, the GMA also introduced the concept of concurrency. In general terms,
concurrence describes the situation where adequate and necessary public services and
facilities are available "concurrent" with the impacts of new development, or within a
specified time thereafter.
Concurrency has two levels of applicability. The first is at the planning level and refers to
all services and facilities, over the long term, and at the citywide scale. Planning level
concurrency is what this chapter is all about. It inventories all existing facilities and
services, establishes a LOS standard for each, estimates new facility requirements to
accommodate projected growth, and develops a financing plan that identifies the
revenues necessary to pay for all the new facilities. If the necessary revenues are not
available, then the jurisdiction fails the planning level concurrency test and must take
appropriate action. Those actions include lowering the LOS standard, raising taxes,
restricting growth, or a combination of these actions. This chapter satisfies the planning
level concurrency requirement as outlined in the GMA.
The second level of concurrency analysis is project specific and only required for
transportation facilities. Specifically, the GMA (RCW 36.70A. 070[6]) states:
"...local jurisdictions must adopt and enforce ordinances which prohibit
development approval if the development causes the level of service on a
transportation facility to decline below the standards adopted in the
transportation element of the comprehensive plan, unless transportation
improvements or strategies to accommodate the impacts of development are
made concurrent with the development."
Revised 2002
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FWCP - Chapter Six, Capital Facilities
That same sectio goes on say that "concurrent with the development" shall mean that
improvements or strategies are in place at the time of development, or that a financial
commitment is i place to complete the improvements or strategies within six years. To
satisfy the projec level concurrency requirement, the last section of chapter three,
Transportation, c ntains a.concurrency management discussion.
As mentioned p viously, project level concurrency is only required for transportation
system facilities. However, the Washington State Office of Community Development's
interpretation ( AC 365-195-070[3]) states that, "...concurrence should be sought with
respect to public facilities in addition to transportation facilities. The list of such
additional facilit es should be locally defined." This section goes on to say that local
jurisdictions ma fashion their own regulatory responses. In 2001, the City hired a
consultant to pre are a Traffic Impact Fee and Concurrency Management System. The
study is expecte to be completed in the Spring of2003.
Impact Fees
Local jurisdictio s planning under the GMA are authorized to assess impact fees for
development act vity as part of financing for public facilities, such as parks, transportation,
and schools.
Impact fees mus be based on an adopted capital facilities plan. In addition, the collected
fees must be use for projects that are reasonably related to and will reasonably benefit
the developmen paying the fees. The fees must also be used within a specified time from
the date they we e collected or returned to the payee. Impact fees may be imposed for
system improve ent costs previously incurred to the extent that new growth and
development wi 1 be served by the previously constructed improvements, provided they
not be imposed 0 make up for any system improvement deficiencies. To impose an
impact fee prog m, the City must have a plan in place to make up any existing system
deficiencies.
Countywide Pia ning Policies
The Countywid Planning Policies (CWPPs) originally adopted in 1992, and amended in
1994, contain a umber of goals and policies regarding capital facilities and the provision
of urban service . Those relevant CWPPs are the following:
COt Juris ictions shall identify the full range of urban services and how they
plan 0 provide them.
C02 Juris ictions and other urban service providers shall provide services and
man ge natural resources efficiently, through regional coordination,
conj nctive use of resources, and sharing of facilities. Interjurisdictional
plan ing efforts shall evaluate approaches to share and conserve resources.
Revised 2002 VI-3
FWCP - Chapter Six, Capital Facilities
C03 Service provision shall be coordinated to ensure the protection and
preservation of resources in both Rural Areas and in areas that are
developing, while addressing service needs within areas currently
identified for growth.
C04 All jurisdictions acknowledge the need to develop a regional surface water
management system which crosses jurisdictional boundaries and identifies
and prioritizes program elements and capital improvements necessary to
accommodate growth and protect the natural and built environment. The
GMPC shall develop and recommend a financing and implementation
strategy to meet this need.
C05 Water supply shall be regionally coordinated to provide a reliable
economic source of water and to provide mutual aid to and between all
agencies and purveyors. The region should work toward a mechanism to
address long-term regional water demand needs of agencies and water
purveyors.
C07 Water reuse and reclamation shall be encouraged, especially for large
commercial and residential developments and for high water users such as
parks, schools, golf courses, and locks.
COlO In the Urban Area identified for growth within the next ten years, urban
water and sewer systems are preferred for new construction on existing
lots and shall be required for new subdivisions. However, existing septic
systems, private wells, and/or small water systems may continue to serve
the developments so long as densities and physical conditions are
. appropriate, the systems are allowed by the relevant jurisdictions, and
management keeps the systems operating properly and safely.
C013 Urban sewer system extensions in unincorporated King County shall be
permitted consistent with the provisions of the King County Sewerage
General Plan, Countywide Policies, and the policies of the jurisdiction in
whose potential annexation area the extension is proposed.
FW13 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 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.
FW32 Public capital facilities of a Countywide or Statewide nature shall be sited to
support the Countywide land use pattern, support economic activities,
mitigate environmental impacts, provide amenities or incentives, and
minimize public costs. Amenities or incentives shall be provided to
Revised 2002 VI-4
FWCP - Chapter Six, Capital Facilities
neigh rhoods/jurisdictions in which facilities are sited. Facilities must be
priorit zed, coordinated, planned, and sited through an interjurisdictional
proces established by the GMPC, or its successor.
LU29 All ju isdictions shall develop growth-phasing plans consistent with
applic ble capital facilities plans to maintain an Urban Area served with
adequ te public facilities and services to meet at least the six-year
inte ediate household and employment target ranges consistent with
LU67 and LU68. These growth phasing plans shall be based on locally
adopt d definitions, service levels, and financing commitments, consistent
with tate GMA requirements. The phasing plans for cities shall not
exten beyond their potential annexation areas. Interlocal agreements shall
be de eloped that specify the applicable minimum zoning, development
stand rds, impact mitigation, and future annexation for the potential
annex tion areas.
LU30 Wher urban services cannot be provided within the next 10 years,
jurisd ctions should develop policies and regulations to:
o hase and limit development such that planning, siting, density
nd infrastructure decisions will support future urban
evelopment when urban services become available.
o stablish a process for converting land to urban densities and
ses once services are available.
Typically, cities nd the residents they service would like to have higher LOS standards
than they can af rd. Federal Way has worked hard to provide the highest LOS possible
without raising t xes. It is a difficult balance to maintain and the City is currently at a
point where it m y have to consider raising additional revenues to pay for capital
facilities and th associated maintenance and operations costs.
If the City decid s to generate additional revenues, there are several sources available.
Some of these r venues are "on-going" in the sense that the City levies the tax and the
revenues are ad ed to the City's general fund on an annual basis. On-going revenues
include prope taxes, sales taxes, utility taxes, impact fees, and business and occupation
taxes. The other category of funds is called "one time" funds because the City cannot
count on having these funds available on an annual basis. These funds include bond sales
and grants such s, TEA-21, lAC, and Urban Arterial Fund money. On-going funds can
be used for eith r capital facilities or maintenance and operations. However, it is prudent
financial manag ment and adopted City policy that one-time funds be used only for
capital improve ents. As is discussed later in this chapter, the City proposed two bond
issues to financ capital facilities in the Fall of 1995. As part of that bond issue, voters
were asked to a prove a permanent utility tax to pay for the maintenance and operations
costs associated with the new capital facilities.
Revised 2002
VI-5
FWCP - Chapter Six, Capital Facilities
6.1 SURFACE WATER
Inventory of Existing Facilities
Natural Systems
The Federal Way area consists of two major drainage basins, the Hylebos Creek and
Lower Puget Sound. The Hylebos Creek Basin consists of the West Branch Hylebos
Creek, East Branch Hylebos Creek, and the Lower Hylebos Creek Sub-Basins. The
Lower Puget Sound Basin consists of the North Lower, Central Lower, and South Lower
Puget Sound Sub-Basins. Map VI-l (maps are located at the end of the chapter) shows the
planning area boundary, and boundaries. Map VI-2 shows the major features of the
natural system. The natural systems have been reviewed on a sub-basin level. This sub-
basin information is contained in the City's Comprehensive Surface Water Facility Plan.
Man-Made System
As part of its 1994 Surface Water Facilities Plan, the City completed an inventory of the
stormwater drainage trunk system. There are ten major trunk lines in the system, and one
can find more details about their capacity and location in the Surface Water Plan.
The City has made a significant number of improvements to the manmade system since
incorporation in 1990. Most of the projects completed to date corrected existing localized
flooding problems. As a result of resolving these "spot" problems, the City and its surface
water utility have significantly improved the LOS on a system-wide basis. The City has
gone to a regional system for detention/retention of surface water. Several regional
detention/retention facilities have been, or will be, constructed to handle stormwater
runoff. However, individual developments must treat stormwater on site prior to releasing
it to the regional system.
System Capacity
As part ofthe Surface Water Facilities Plan, the City developed a model of its surface
water facilities, including the natural part of the system, the various lakes, streams, and
wetlands. This model uses the following design or LOS standards:
. 25-year storm conveyance capacity on lateral systems;
. 25-year storm conveyance capacity on major trunk systems;
. 25-year storm storage capacity in local retention/ detention facilities; and
. 100-year storm storage capability in regional retention/detention facilities.
Based on these LOS standards and the data on existing facilities, the model helps utility
engineers identify deficiencies in the existing system and the most cost effective way to
resolve them. The model also allows engineers to describe the new facilities that will be
needed in the future to accommodate new growth and development as outlined in the
Land Use chapter.
Revised 2002
VI-6
FWCP - Chapter Six, Capital Facilities
Forecast of Futur Needs
Based on model esults, utility engineers annually update a detailed 10-year capital
facilities plan. T e plan identifies projects, prioritizes them, estimates the cost, and re-
examines the util"ty rate structure to ensure that there is sufficient funding available over
the next 10 years to construct these projects (Table VI-I, at the end of the chapter).
Locations and C pacities of Future Facilities
Table VI-I inclu es the surface water facilities project list. For more complete discussion
ofthis list, and aps describing project locations, please refer to Chapter IV of the City's
Comprehensive rface Water Plan. As noted earlier, these projects address existing
system deficienc es as well as the new facilities that will be needed to accommodate
projected growt .
Finance Plan
The City has ere ted a surface water utility to manage stormwater drainage, prevent
flooding, and i rove water quality. The City charges property owners an annual surface
water fee, whic is based upon the amount of impervious surface on the property. These
fees, along with ny outside grant monies and low interest loans, provide the revenues that
pay for capital fi cilities projects, and operation and maintenance of its surface water
system.
As outlined in ble VI-I, projects are scheduled based on anticipated revenues. The
capital facilities spreadsheet indicates project scheduling based on available funding and
priority ranking. The City annually updates the capital facilities plan for surface water. The
Comprehensive Surface Water Plan, which includes the capital facilities plan, is adopted
by reference in is plan, including changes made during the City's annual update.
6.2 TRANSPORTAl ON
The GMA requ res that local jurisdictions prepare a transportation chapter as part of the
Federal Way C mprehensive Plan (FWCP). The GMA also authorizes jurisdictions to
assess impact fi es for transportation system improvements that are necessary to
accommodate t e traffic created by the new development. In order to assess impact fees,
the capital facit ties plan must include the list of transportation improvements and
associated cost that necessitate the impact fees. Discussion related to Transportation-
related capital cilities can be found in FWCP Chapter 3, Transportation.
Revised 2002
VI.]
FWCP - Chapter Six, Capital Facilities
6.3 PARKS AND RECREATION
Inventory of Existing Facilities
The City of Federal Way adopted the first Park, Recreation, and Open Space
Comprehensive Plan in December of 1991. The City updated the Plan in 1995 and 2000.
This plan, which is now called the Parks, Recreation, and Cultural Services Plan, is
incorporated by reference. The planning area of the 1991 and 1995 Parks, Recreation, and
Open Space Comprehensive Plan included both the Federal Way City limits and the
Potential Annexation Area (PAA). The boundaries changed in the 2000 Parks Plan and
are based only on the City limits of Federal Way. As in previous plans, the Parks Plan has
been subdivided into subareas, referred to as Park Planning Areas, (Map VI-3) for
purposes of long-range planning.
The 2002 Parks Plan updates the inventory to include new parks added to the City's
system. In addition to City-owned parks and open space, the Parks Plan also lists school
district, state, and county facilities, as well as private recreation facilities. Map VI-4
depicts the location of major parks and open space within the Federal Way planning area.
Table VI-2 summarizes this inventory as ofJanuary 2002.
Table VI-2
Ci Park-and Recreation Areas
Ac
129.0
218.0
0.0
7,5
118
21.0
493.5
352.5
846.0
When the City incorporated in 1990, there were approximately eight acres of parkland
available per 1,000 population in Federal Way. Since that time, the City has purchased
additional property and developed new facilities. These include the Lake Killarney Open
Space Park, Heritage Woods Neighborhood Park, Wedgewood Neighborhood Park, BPA
Trail I, II, and III, purchase of the Armstrong property, Lake Klahanee Community Senior
Center, Dumas Bay Centre, Celebration Park, and Steel Lake Annex facilities. These parks
and facilities are described in greater detail in the Parks Plan. As of 2002, the City is
providing 10.1 acres of parks land per 1,000 population. The City's goal is to achieve a
level of service of 10.9 as Federal Way grows in population and size. The reason for the
Revised 2002
VI-8
FWCP - Chapter Six, Capital Facilities
decrease in level f service is primarily due to the actual increase in_Federal Way's
population as sh wn in the 2000 Census compared to the yearly population estimates by
the State Office fFinancial Management (OFM). The 2000 Census showed the Federal
Way population 0 be 83,259, whereas the 2000 OFM population estimate for Federal Way
was 77,010, a di erence of6,249. The City's current 2002 population is 83,850, and
current invento of parkland is 846 acres. In order to meet the goal of 10.9 acres per 1,000
population, the ity needs to add 68 acres of parkland to the existing inventory. As shown
on Table VI-3, t e Parks Six-Year Capital Improvements Plan 2002-2007 (CIP) has parks
acquisition as an on-going project category. On-going acquisition is necessary to meet the
level of service oal of 10.9 acres per 1,000 population. In the past, the City has obtained
land through pia dedication. The City is also now considering a Park Impact Fee to
provide funds fo parks acquisition.
In addition to ac uiring and developing new facilities, the City has taken administrative
actions to take a vantage of other available public recreational facilities. The City
enacted interloc I agreements with the School District to jointly operate and maintain
school recreatio al facilities. As a result, the City jointly operates and maintains a major
community park in conjunction with Saghalie Junior High School. Also, the City has
agreements to p vide recreational programs and schedule play fields at several
elementary scho Is, in addition to junior high schools. These facilities are now formally
available nights nd weekends, year around for use by local residents.
As referenced a ove, City residents now have access to 10.1 acres of parks and open
space per 1,000 opulation. This inventory includes City owned parks and open space
within the City I mits. The City currently provides 846 acres of parkland, which the City
maintains and 0 erates. Ofthe total 846 acres, 493.5 acres is developed for recreational
use areas and 35 .5 acres is still undeveloped.
Note: Washingt n State Parks has a regional park facility within the City limits, which
residents often se. Dash Point State Park is 230 acres of state land, which provides a
regional (statew de) recreation use for camping, swimming, picnicking, walking trails,
and beachfront. he state park land is not included in the City's LOS simply because the
state owns, ope tes, and maintains this facility. For the purposes of parks planning, the
recommended S standard in the City's Parks Plan and this Capital Facilities chapter is
10.9 acres ofCi owned parkland per 1,000 population.
Forecast of Futu e Needs
Revised 2002
The 2000 Parks Plan states that when future annexations occur, the inventory of public
open space land will maintain the City's current level of service until the year 2010. In
addition, the Ci completed a cultural arts survey in 1994. The survey evaluated several
alternatives for performing arts center and concluded that at some time in the near
future, the City ould need such a facility with a capacity of about 1,000 seats. The City
has converted a portion of Dumas Bay Centre into the Knutzen Family Theatre, a 250-
seat civic theat facility. This facility will begin to fulfill the identified community need
for a perform in arts center.
VI-9
FWCP - Chapter Six, Capital Facilities
Locations & Capacities of Future Facilities
Map VI-4 indicates the location of the parks, recreation facilities, and open space subareas
the City will need to maintain the adopted LOS. The Parks Plan breaks the planning area
into subareas and addresses future facilities at the subarea level. For more details about the
type, size, and cost of these new facilities, please refer to the 2002 Parks Plan.
Finance Plan
Table VI-3 (Parks Six-Year Capital Improvements Plan, 2002-2007, page 11) describes the
proposed parks projects that will be needed between now and the year 2012, together with
cost estimates programmed by year. Table VI-3 also identifies the revenues that will be
available during the same time period to finance these new facilities. Please refer to Section
VII (Capital Improvement Plan) of the 2002 City of Federal Way Parks, Recreation, and
Open Space Comprehensive Plan for detailed information on the finance plan.
The City annually updates its Parks & Recreation capital improvements program. These
updates reflect new project priorities, eliminate projects that have been completed, and
add new projects to the program.
6.4 Community Facilities
Significant community investments have been made in the last 10 years to implement the
community's vision for Federal Way. In addition to the investments in the surface water,
transportation, and parks areas, the City also acquired and improved a basic set of
community facilities to house City operations and provide space for community
gatherings and recreation.
The City acquired the current City Hall, Klahanee Community/Senior Center, and Dumas
Bay Center (a conference and retreat facility) in 1993. Strong local support in community
recreation and arts activities translated into the City Council's adoption of a 2% For the
Arts ordinance to provide funding for arts in public places in 1994, and the construction
of the 254-seat Knutzen Family Theatre in 1998.
Since 1995, the City brought a number of contracted services in-house to meet public
demand for more responsive and responsible government services. Among these services
were the formation of the Federal Way Police Department (1996), street maintenance
operations (1998), and the municipal court (2000). These changes brought different levels
of demand on public facilities and the need for a comprehensive community facilities
plan.
Revised 2002
VI-10
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0::
FWCP - Chapter Six, Capital Facilities
Inventory of Existing facilities
As of January 2000, the City owns or occupies a number of facilities, as shown in Table
VI-4 and Map VI-5.
Projected Community Needs
The City has identified a number of facilities to help deliver services more efficiently and
adjust to the changing demographics of this community in the future. These projected
needs are beyond the City's ability to fund within the six-year planning horizon.
However, in order to keep the community's vision alive, we purposely did not exclude
any of these community projects. The City Council will periodically review and prioritize
these projects and provide funding when available. A description of these facilities with a
summary list is provided in Table VI-5 (page 13).
Table VI-4
Summary of Existing Community Facilities
Building Name
City Hall
Public Safety
(3 locations)
Municipal Court
Klahanee Community/
Senior Center
Steel Lake Annex
Steel Lake
Maintenance Shop
Dumas Bay Center
(DBC)
Knutzen Family
Theater (at DBC)
Miscellaneous
Outdoor Storage
Miscellaneous Indoor
Storage
Own!
Leased
Own
Use
Sq. ft/Occupancy
City operations not otherwise listed 27,180/110 FTE and Council
Chamber
23,000/150 FTE
6.700/11.75 FTE and 2 courtrooms
11,200/13 FTE, gym, kitchen, etc.
1,161/program only
1,060 office/32 FTE
61,000 storage yard
6 meeting rooms, 70 overnight
rooms, 12 acre park ground
10,000 material storage
2,000 equipment storage
260 sf. ft.
2,160 cubic ft boxes stored off site
in a document storage facility
Leased Police Operations
Leased Court Operations
Own Community recreation and Rec.
operations
Own Daycare, arts and crafts programs
Own Maintenance operations, outdoor
equipment and material storage
Own Public park, meetingibanquet/
overnight lodging
Own 254 seats performing arts theatre
and rehearsal hall
Leased Street maintenance material and
park equipment storage
Leased Spare office equipment/facility
parts/records
Revised 2002
VI-12
FWCP - Chapter Six, Capital Facilities
Table VI-5
Projected Community Facility Needs
2001- 2010
Type of Facility
1. Municipal Fa ility: Public Safety and
General Gov Operations
2. Senior Cente
3. Community enter
4. Indoor Comp titive Sports Facility
5. Perfonning rts Centre
Year Size
(sf)
2004 109,000
2006 20,000
2006 45,000
2009 75,000
2010 50,000
2010 90,000 yard
3,500 office
$250k per year
7. Other Misc. I provements
TOTAL
Cost
(millions)
$28.5
$4.5
$10.1
$10.0
$25.0
$4.5
$1.2
$91.2
Municipal Facili y (General Government, Police, and Court Operations)
The Federal Wa Police Department was formed and began full service on November 16,
1996. The depa ment grew from 110 full time equivalent (FTE) employees in 1996 to
150 FTE emplo ees and over 90 volunteers in 2002. The department occupies 23,000
square feet of Ie sed space in three separate buildings in an office/warehouse complex
near City Hall. he current spatial requirement for the department is believed to be
approximately 2 ,000 square feet.
The Municipal ourt began operations on January 1,2000. The department has 13 FTE
employees oper ting two courtrooms. Currently, the department occupies 6,700 square
feet of modified office space adjacent to the police facility. The court caseload in 2002
indicated that a hird courtroom, larger lobby, and small meeting rooms are needed. The
current spatial r quirement is estimated to be around 9,000 square feet.
Additional spac will also be needed for general government operations to accommodate
the increased se ices and overall growth of the City. A preliminary program-level
assessment indi ates that the current City Hall will need around 35,000 square feet,
versus the 27,0 square feet available.
The City has $7 5 million set aside for the police and court facility. Currently, $4.5
million in gener I obligation bonds are financed by a 0.5 percent utility tax, interest
earnings from b nd proceeds, and additional contributions from general fund savings.
Both police and court leases will expire in June 2004 without an extension. The City
Council has app inted a citizen committee to review the current and projected spatial
needs and devel pment/financing options. Based on a preliminary analysis, it appears
that the additio I cost can be financed by extending the 0.5 percent utility tax after the
initial $4.5 mill" n bonds are paid off.
Revised 2002
VI-13
FWCP - Chapter Six, Capital Facilities
Municipal Facility Need Assessments
· 40,000 - 45,000 square feet additional space in the near term, and 80,000 to
85,000 square feet by 2020, in addition to the existing City Hall
· F our to five-acre site
Preliminary development cost for a facility to accommodate the City's long-term
needs is projected to be approximately $20 million to $30 million
Maintenance Facility
The Parks and Public Works maintenance facility is located at 31132 28th Avenue South.
The entire site is approximately 1.4 acres, with 1060 square feet of office space and a
61,000 square foot fenced storage yard. The site was formerly a fire station and was
transferred to the City after incorporation. Today, the old fire station office and meeting
room areas house the operations and the fire truck maintenance bay. The yard provides
materials, supplies, vehicles, and equipment storage for departmental operations.
Parks Maintenance operates seven days a week, two shifts per day. The space needed for
the maintenance operations includes a front counter/reception area, crew quarters
(including an area for daily time cards, breaks, and crew meetings/training, etc.), as well
as a locker room. Public Works streets and surface water maintenance operations have
similar needs for office space; operating Monday through Friday, year round, one shift
per day. Both Parks and Public Works maintenance operations tend to intensify during
the summer months and require up to 15 part-time, seasonal workers at any given time.
The 61,000 square feet of storage yard space is needed to accommodate 25 vehicles and
45 various types of mobile equipment. The limited space provides only minimum storage
space and restricts the turning radius of the large equipment and vehicles used for these
operations. To meet this challenge, the City leases off-site indoor and outdoor storage
space for equipment, emergency supplies, and materials for snow and ice operations.
Although there exist drawbacks and constraints, the site is adequate for existing purposes
when supplemented with leased storage spaces. Future expansion is possible with the
acquisition of adjacent properties to the north. However, this facility is located in a
residential neighborhood and the compatibility of a larger maintenance facility should be
evaluated before making any additional long-term investments on the site.
A larger facility would improve operation efficiencies by increasing storage capacity for
vehicles, equipment, and materials. A maintenance yard space of approximately 90,000
square feet is recommended.
Maintenance Facility Recommendation
. 3,500 square feet for office space, accompanied by a 90,000 square foot storage yard
· Three to five acre site
· Development cost is estimated at $2 million
Revised 2002
VI-14
FWCP - Chapter Six, Capital Facilities
Based on curren trends in community center construction and increased participation in
the City's recrea ional programs, a larger, multi-purpose facility would better meet the
needs of the co unity. A number of community centers that have been built throughout
the region recent y have a variety of uses and spatial arrangements. These facilities attract
a large customer base, projecting community pride and quality of life images that
distinguish them from the surrounding communities. Some of the more notable examples
are the centers a Norpointe, Kent, Tukwila, and Renton.
While Klahanee ake Community/Senior Center serves existing community and senior
services needs, t e limited parking and the size of the facility continue to restrain the
nature and type f uses possible. A larger community center similar to those listed above
would cost appr ximate1y $10.1 million; including land acquisition, site work, parking
lot, design and e gineering, permit, utility connection, construction, building furnishings,
and equipment.
Community Center acility Recommendation
. 45,000 squ re foot facility
. Three to fi e acre site
· Developm nt cost assumption of $10.1 million
Senior Center
The general pop lation continues to age as the "baby boomer" generation moves toward
the senior citize category. Population projections indicate that the senior (55+) age
group will be th fastest growing segment of our citizenry for the foreseeable future.
Keeping this in ind, the City recognizes the need to increase its focus on providing
facilities and se ices geared to the needs and interests of this segment of the population.
The existing fac lity could be transformed into a very functional senior center with only
minor modificat ons. The growth demand for senior facilities could be met if it is used
exclusively for is the purpose. The gym could be fitted with a divider that would
provide increas d flexibility for programming and then be retracted for large events such
as bazaars and ances.
While keeping nd turning KLCSC into a senior-only facility is achievable at a minimum
cost, the facility s restrictive parking and lack of public transportation service remains an
issue. There is nsiderable interest from the community in a larger, more accessible
senior center th t could be developed as part of a future community center or other public
facility(s). Proje ted cost includes equipment, fixtures, and furniture.
Revised 2002
VI-15
FWCP - Chapter Six, Capital Facilities
Senior Center Facility Recommendation
· 20,000 square foot facility
. Collocate with community center or other public facility
· $4.5 million, construction only
Conference/Performing Arts Center
In 1994, the City of Federal Way, through the Arts Commission, asked AMS Planning
and Research to conduct a feasibility study of a cultural arts facility to serve the City.
Under the guidance of a 27-member steering committee, AMS conducted a survey of
local arts organizations, analysis of existing cultural and meeting facilities, market
research with residents ofthe City and surrounding communities, interviews with key
community leaders representing government and business, and meetings and workshops
with the steering committee, all of whom provided base information. The study
recommended a performing arts center to seat 1,000 patrons and a visual arts gallery.
The performing arts center proposed in this study included design criteria that
incorporated multi-level seating to accommodate as 500 - 600 people on an orchestra
level, while still achieving intimacy for audiences. .
The construction cost for a performing arts theater was estimated in the 1994 report to be
between $190 - $240 per square foot, or approximately $23 million for construction only.
Site requirements called for a minimum of five acres; two acres for the facility and three
acres to provide for surface parking and to meet additional code requirements. The full
developmental cost is expected to be $25 to $30 million.
Maintenance and operation costs for a facility of this size were estimated to be $705,000 per
year. Projected revenues (using a 171 event day schedule) was $390,200, leaving a net
operating cost of $314,800 to be generated through fundraising or an operating endowment.
Conference/Performing Arts Facility Recommendation
. 50,000 square foot facility
· Two-acre site
· $25 - $30 million
Multipurpose Competitive Sports Center
The City of Federal Way enacted a 1% lodging tax and formed the Lodging Tax
Advisory Committee (LTAC) in 1999 to promote and enhance the local tourism industry.
The committee has commissioned a feasibility study for an indoor competitive sports
facility that will increase visitors' stay in local hotels and complement the Aquatic Center
and Celebration Park, two other regional/national amateur sports facilities in the City.
Revised 2002
VI-16
FWCP - Chapter Six, Capital Facilities
A number of de elopment concepts have been considered, one of which is a facility for
basketball and v lleyball tournaments with an athletic club for training/conditioning to
generate on-goi g usage and revenue. One of the considerations for such a facility would
be its ability to e financially self-sustaining. It would also ideally be developed and
operated by the rivate sector, with minimum or no public participation.
Conference/Perform, g Arts Facility Recommendation
· 75,000 squ re foot facility
· Five-acre s.te
. $8 - $10 illion development and construction only, to be funded by private
developer
Financing Plan
It is desirable to have all theses facilities in the community as soon as possible. However,
unless they are nded with private or voter-approved funding sources, the City's projected
revenues will n t support either the development or the required operating and on-going
maintenance of hese facilities. Therefore, other than a permanent public safety facility
(which is substa tially funded), additional space for general City operations is subject to
resource availa ility including a potential continuation of the 0.5 percent utility tax.
The City update its capital improvements program every other year in conjunction with
its biennial bud et process. These updates will reflect new project priorities and funding
availability .
6.4.1 SCHOOL FAC LIliES
This section su marizes information in the Federal Way School District No. 210,
2001/02 Capita Facilities Plan (School Plan) and adopts the School Plan by reference.
This plan cover the entire Federal Way School District which includes the City of
Federal Way, p rtions of the incorporated City of Kent, City of Des Moines, and
unincorporated reas of King County to the east ofInterstate 5. The District provides
educational pro rams to all students who live in the School District service area, whether
they live in Fed ral Way, Kent, Des Moines, or unincorporated King County. A school
outside the Fed ral Way City limits may provide service to students who live within the
City limits and ice versa.
Revised 2002
VI-17
FWCP - Chapter Six, Capital Facilities
Inventory of Existing Facilities
Map VI-6 shows the location of every school in the District. Table VI-6 summarizes the
District's student capacity. The District has sufficient capacity in the existing schools and
portable buildings to house all of the students in the District.
Program Capacity
The School District has established a Standard of Service, similar to LOS, for itself,
which it calls "program capacity." The District's program capacity is based on: 1) the
number of students per classroom; 2) the number of classrooms per school; 3) the number
of classes that can be held in each classroom per day; and 4) other operational conditions.
ummary 0 xlstm~ aCI ItJes apacltles
2000
CAPACITY
Actual 2001 2002 2003 2004 2005 2006
Elementary School 11,131 11,105 11,079 11,053 11,027 11,001 11,001
Junior High 4,721 4,721 4,721 4,721 4,721 4,721 5,521
Senior High 4,325 4,325 4,625 6,095 6,095 6,095 6,095
TOTAL 20,177 20,151 20,425 21,869 21,843 21,817 22,617
s
Table VI-6
fE FT' C
., *
'NOTE: These capacities are for bUlldmgs only and do not include portable classrooms, These capacities are based on the maxImum use of the buildings,
Program Capacity assumes that the average class will serve the following numbers of
students:
Grade K 24 Students per classroom
Grades 1-6 26 Students per classroom
Grades 7-12 25 Students per classroom
GA TE* 25 Students per classroom
Special Education 12 Students per classroom
Portables 25 Students per classroom
IEP** 15 Students per classroom
, GATE is the Gifted and Talented Education program
.. IEP are the Individual Education Programs
The School District uses portables at many school sites as an interim measure to house
new students until permanent facilities can be built.
There are other administrative measures that the School District could use to increase
school capacity. These measures may include double shifting, modified school calendar,
and year-round schooling. These measures have been used in the District on a limited
basis, but not District wide.
Revised 2002
VI-18
FWCP - Chapter Six, Capital Facilities
Forecast of Futur~ Needs - Student Forecasts
The School District's Business Services Department prepares a forecast of student
enrollment annu lIy. Projections are detailed at various levels; district total, school-
building totals, alld grade level totals. Special populations such as vocational students,
special educatior students, and English as Second Language students are also included in
the forecast.
The basis for pre. ections has been cohort survival analysis. Cohort survival is the analysis
of a group that h s a common statistical value (grade level) as it progresses through time.
In a stable popul tion, the cohort would be 1.00 for all grades. This analysis uses
historical informition to develop averages and project the averages forward. The District
uses this method with varying years of history and weighting factors to study several
projections. Bec use transfers in and out of school system are common, student migration
is factored into tJ e analysis as it increases or decreases survival rates. Entry grades
(kindergarten) are a unique problem in cohort analysis. The District collects information
on birth rates wi hin the District's census tracts and treats these statistics as a cohort of
kindergarten for the appropriate enrollment years.
Long-range proj ~ctions that establish the need for facilities are a modification of the
cohort survival rpethod. The cohort method becomes less reliable the farther out the
projections are n~ade. The School District study of long-range projections includes
information fron jurisdictional planners and demographers as they project future housing
and population ill the region.
Table VI-7 desc ibes increased enrollment through the year 2006. It shows that the School
District's studen population will grow steadily every year with the highest growth in
junior high/mid( Ie schools. The District has compared existing school capacity with
growth forecast. New construction, modernization and expansion, and additional portable
purchases will n itigate the deficit in permanent capacity for the next six years. As an
outcome of recommendations from a Study and Survey Committee, the Board of Directors
has approved m ving to a middle school grade configuration as additional high school
space allows. Tl e District is planning to add one middle school, one high school, increase
capacity at three high schools, and replace the existing Harry S. Truman High School.
Table VI-7
Federal Way School District Student Forecast
ENROLLMENT (FTE) 2000
Actual 2001 2002 2003* 2004 2005 2006
Elementary 11,640 11,593 11,579 9,660 9,643 9,637 9,585
Junior High/Middle School 5,300 5,404 5,593 5,558 5,541 5,575 5,582
Senior High 4,390 4,425 4,423 6,491 6,735 6,839 6,956
TOTAL 21,330 21,442 21,595 21,709 21,919 22,051 22,123
*New Grade Configu ation, K-5 Elementary, 6-8 Middle School, 9-12 High School (2003)
Revised 2002
VI-19
FWCP - Chapter Six, Capital Facilities
Location and Capacity of New and Improved School Facilities
One new middle school, one new high school, and one senior high school replacement
are planned for the District over the next six years. Scheduled improvements are:
. Harry S. Truman High School (Replacement) 31455 28th Avenue South
. Middle School on site to be determined
. High School #4, site #85, 16th Avenue South and South 364th Way
Existing schools are identified in Map VI-6.
Finance Plan
Table VI-8 (page 21) describes the School District's six-year finance plan to support the
school construction. The table identifies $25,996,153 available from secure funding
sources and an additional $58,885,000 anticipated from other funding sources between
2001 and 2006. These funds will cover the $82,601,092 in planned project costs to the
year 2006.
The School Plan states that state matching funds and impact mitigation fees, if realized,
will be used to decrease the need for future bonds or will be used on additional capital
fund projects. The School Plan currently covers the years 2001-2006. The School Plan
and accompanying six-year finance plan will be updated annually by the School District.
This will bring the plan into full compliance with GMA requirements.
6.4.2 WATER SYSTEMS
This section summarizes the Lakehaven Utility District's 1998 Comprehensive Water
System Plan (Water Plan, incorporated by reference) while providing up-to-date
information where warranted. Map VI-7 shows Lakehaven Utility District's (hereinafter
referred to as "the District" in this section) water service area boundary. Other purveyors
provide water to portions of the District's corporate area. The Tacoma Public Utilities,
for example, serves an area on the west side of the District's corporate area. Highline
Water District serves a small portion of the north side of the District's corporate area
(Map VI-8). The City of Milton serves a small area on the south side of the District's
corporate area that is within the City of Milton limits. Areas on the east side of 1-5 within
the City limits of Auburn and Pacific are provided water service by the District by
agreement with the cities. These areas are at a higher elevation than the valley cities can
cost effectively serve.
Revised 2002
VI-20
FWCP - Chapter Six, Capital Facilities
Table VI-8
Federa Way School District Six-Year Finance Plan
Secured Fundinl': Sources ., 01 2002 2003 2004 2005 2006 Total Revenue
mpact Fees (I) $531,000 $109,490 $640,490
Land Sale Funds (2) 100,000 $100,000 $100,000 $100,000 $100,000 $65,438 $565,438
lBond Funds (3) $14453,801 $10,336,42~ $24,790,225
trOT AL $14553,801 $10,967,424 $209,490 $100,000 $100,000 $65,438 $25,996,153
Unsecured Fundin!!: Sources
tate Match Funds (5) $IOOOO,OO(
Bond or LeVY Funds (3) $4 385,00(
and Fund Sales (6)
moact Fees (4) $1,500,00(
OTAL $51 ,885,001
NEW SCHOOLS 001 2002 2003 2004 2005 2006 Total Cost
New Secondary Caoacity (9) $26,250 $238,529 $2,000,000 $3,000,000 $11,735,221 $17,000,000
New Senior High School (12) $ ,952,997 $22,180,043 $14,370,275 $544,354 $43,047,669
New Senior High School Site (10) $0
New Secondary Capacity Site (II) $1,600,000 $1,600,000
MODERNIZATION & EXPANSION
ruman Senior High (Alternative) $ ,600,343 $3,867,122 $241,908 $5,709,373
Exoansion Three High Schools $ ,464,500 $2,904,500 $411,000 $6,780,000
"'xpansion Elementary Schools $100,000 $1,500,000 $1,600,000
TEMPORARY FACILITIES
Portables (7) $884,000 $136,010 $272,020 $272,020 $1,564,050
OTHER
Safety Imorovements (8a) $ ,600,000 $1,600,000
chool Improvements (8b) $ ,300,000 $300,000 $600,000 $2,200,000
acilities Deoartment ~250,000 $250,000 $250,000 $250,000 $250,000 $250,000 $1,500,000
OTAL $1 ,167,840 $30,411,915 $16,211,712 $4,430,364 $5,122,020 $12,257,241 $82,601,092
NOTES:
L These fees are currently being held in a King (ounty, City of Federal Way, and City of Kent impact fee account, and will be available for use by the District for
system improvements,
2, These funds come from various sales of land a d are set aside for estimated expenditures,
3, These funds will be used for future projects,
4, These are projected fees based upon known re idential developments in the District over the next six years,
5, These funds are projected state matching fund ,
6, These funds are projected land sale income,
7, These fees represent the cost of moving and si ing existing portables and purchasing new portables, The District may choose to purchase new portables in the
years shown, This estimate may also include t e cost of purchasing these portables,
8a, These projects have been approved by the Boa d of Directors and cover most schools, These projects do not increase capacity, These projects include parking and
pedestrian safety improvements at 15 element ry schools,
8b, These projects have been approved by the Boa d of Directors and cover most schools, These projects do not increase capacity, These projects include: school
networks, information, and library systems; ner,v classroom start up; elementary playgrounds and high school sports fields; music equipment; and emergency
communication.
9, New secondary capacity is the middle school omponent ofthe bond, This is shown as middle school in the impact fee calculations, The District is researching
small school solutions that will increase capac ty for students in the secondary grades,
10, Site purchase for the high school of$3,2 M w Is complete in the 2000 calendar year.
II, Site purchase for the middle school/new secon ary capacity, site or sites to be determined,
12, Total expenditures through the 12/31/2000 for the senior high school is $752,33 L
Revised 2002
VI-21
FWCP - Chapter Six, Capital Facilities
Inventory of Existing Facilities
The District's wells, storage, and major components of the distribution system are located
on Map VI-9. Other facilities are described in the following sections.
IntertieslFlow Control Facilities
Interties connect Lakehaven's system with adjoining systems of other utilities. Interties
allow the District to buy or sell water with adjoining utilities and are an essential back up
that provides enhanced system reliability. The first of three planned flow control facilities
has been constructed, where the District will receive water from and send water to the
Second Supply Project (aka Tacoma's Pipeline No.5). Intertieslflow control facilities
have been installed at nine different locations with four of the adjacent water purveyors.
Not all interties allow two-way flow. Details of these interties are described below:
.
An intertie is installed on SW 325th Street near 35th Avenue SW between the
District and Tacoma Public Utilities system and serves as an emergency supply to
a limited area served by Tacoma in the Twin Lakes neighborhood.
.
An intertie has been installed on SW 349th Street near 30th Avenue SW between the
District and Tacoma Public Utilities system. This intertie was enhanced in 1991 by
the construction of a control valve station to allow full-time supply by Tacoma to
the District's system when the District desires water supply supplementation.
.
A third intertie with Tacoma Public Utilities was added in 1995 at 15th Avenue SW
and SW 356th Street to provide an additional full-time supply by Tacoma to the
District's system when water supply supplementation is desired by the District.
.
A fourth connection with Tacoma's Second Supply Pipeline at 15t Way South and
South 333rd Street will provide large amounts of water to Lakehaven through its
Second Supply Project partnership. Lakehaven is planning for an additional
connection to the Second Supply Pipeline east ofI-5 near Military Road.
.
One intertie, located on Pacific Highway South at South 276th Street extended, has
been installed between the Lakehaven and Highline Water Districtsystems. This
intertie can provide emergency water supply to the Highline District.
.
An intertie between the systems of Highline Water District and Lakehaven is
installed at Pacific Highway South at about South 274th Street. Emergency water
supply through this intertie can flow in either direction since the systems on both
sides of the intertie operate at a 490-foot system head.
.
An intertie is installed on Marine View Drive near the boundary between Highline
Water District and the Lakehaven system at South 252nd Street. This intertie can
provide emergency water flow in either direction.
.
An intertie has also been constructed with the City of Milton's water system
(Pacific Highway South and 377th Street), but due to significant differences in
Revised 2002
VI-22
FWCP - Chapter Six, Capital Facilities
head be een the two systems (450 feet, LUD vs. 330 feet, Milton), water is only
provided 0 Milton on an emergency basis.
. An interti is located at R Street NW and Aaby Drive for emergency fire
protectio to Auburn's Aaby Drive pressure zone. The intertie consists of a six-
inch servi e meter from Lakehaven's 345-pressure zone.
The first of thre planned flow control facilities (named SSP #2) has been constructed at
151 Way South a d the Bonneville Power Administration (BPA) power transmission line
corridor crossin at about South 332nd Street, at the current easterly terminus of the
Second Supply roject (aka Tacoma's Pipeline No.5). These facilities are the points at
which the Distri t will receive water from and send water to the Second Supply Project.
These facilities re somewhat different from "interties," in that the District has different
rights to the wat r that will flow in the pipeline as implied by the District's financial
interest in the S ond Supply Project.
Forecast of Futu e Needs
The 1998 Comp ehensive Water System Plan estimates future need by analyzing existing
water consumpf n patterns on a daily, seasonal, and yearly basis. The District converts
gross water con umption values into per capita consumption in gallons per day. Average
per capita water onsumption in the District was projected to be approximately 106
gallons per day n 1999. This figure, multiplied by projected population growth, provides
a rough estimat ofthe future demand for water. These numbers were reduced slightly to
account for the r duction in water consumption associated with the District's water
conservation pr gram. Between 1997 and 2017, the water service area population is
expected to incr ase by 41,600 people, for a total water service population of 138,300.
Location of Exp nded and Improved Facilities
The District has programmed a number of system improvements to maintain the existing
system, conserv water, develop water sources, drill wells, and expand the distribution
system. These i provements are summarized below.
Second Supply Pi eline
The District is c rrently involved in developing other sources of water. The most
significant effo is the Second Supply Project (aka Tacoma's Pipeline No.5). Based on
current plans, t District will access the pipeline at three locations. The first flow control
facility (to be n med SSP #1) is proposed near Military Road and the Bonneville Power
Administration BPA) power transmission line corridor at about South 3171h Street. The
second flow co trol facility (named SSP #2) has been constructed at the current easterly
terminus of the econd Supply Project located at First Way South and the BPA corridor
crossing at abo t South 332nd Street. The third flow control facility (to be named SSP #3)
will be construc ed and located at SW 3561h Street and the BPA corridor crossing at 151h
Avenue SW (cu rently named Tacoma Intertie No.3). These facilities together would add
on average, 4.6 illion gallons per day (MGD) to the District's supply depending upon
the availability fwater. Water available from the Second Supply Project is conditioned
Revised 2002
VI-23
FWCP - Chapter Six. Capital Facilities
upon adequate in-stream flows in the Green River. The expansion of storage behind
Howard Hanson Dam will help mitigate the seasonal variation in available water. The
City should carefully monitor this project's progress to ensure that water will be available
to meet future needs as identified in the FWCP.
Water Resources
The District's water service area is located in the southwest portion of King County. As
of the end of 200 I, the District was serving a residential population of approximately
100,000 through 26,967 connections. The water system includes approximately 400 miles
of water main, 20 active wells, and 12 storage tanks. The average daily demand in 2001
was about 10.1 MGD.
The District's existing water sources are predominately groundwater supplies that originate
from four aquifer systems: the Redondo-Milton Channel Aquifer; Mirror Lake Aquifer;
Eastern Upland Aquifer; and the Federal Way Deep Aquifer. The Water Plan estimates
that the combined production limit for these aquifers on an average-annual basis is 10.1
MGD during average precipitation and 9.0 MGD during a simulated 10-year drought. The
current peak-day combined pumping capacity is 30.5 MGD, assuming the_District's largest
production well, Well lOA, is out of service. Since 1991, the District has bought surface
water from Tacoma Public Utilities from time to time to supplement and conserve
groundwater supplies. However, since October 2000, the District has not purchased water
from the Tacoma Public Utilities because aquifer water levels have sufficiently recovered.
The District will be increasing its water supply by over 50 percent when Tacoma's Second
Supply Pipeline is completed at the end of 2004 and the District begins receiving its share
of the project water. After construction of the pipeline, the District does not plan to
purchase any water from Tacoma Public Utilities on a wholesale basis.
Water Quality
Historically, the District has not had to treat its water supplies before distribution.
Groundwater quality has generally been sufficient. However, the District began a
chlorination and corrosion control treatment program in July 200 I for all of its
groundwater and other sources of supply (for regulatory purposes).
The District's status with respect to regulated drinking water contaminants covered by the
WAC 246-290 and anticipated water quality regulations is summarized in Chapter! 0 of
the Water Plan. Regulations that are prompting treatment of the District's groundwater
supplies are the Lead and Copper Rule, the anticipated Ground Water Rule, and Surface
Water Treatment Rule due to the potential for increased distribution of surface water
obtained from Tacoma's (or other utilities') system(s) throughout the District's
distribution system.
Storage Improvements
According to the Water Plan, storage is adequate at this time. For storage analysis,
extended-period simulation modeling was conducted to evaluate the storage draw down
during fire flow events and to evaluate storage equalization during multiple-day periods
of maximum-day demand conditions. The storage analysis model was conducted using
the "Backup Power Approach," which is summarized in Chapter 9 of the Water Plan.
Improvement requirements based on the storage analyses include: installation of backup
Revised 2002
VI-24
FWCP - Chapter Six, Capital Facilities
power at certain ells; seismic upgrades of the 31ih Street tank; and installation of
additional boosti g capacity to the 578 system (presumably near the intersection of 23rd
Avenue South an South 320th Street).
Water Conservatio Measures
The District is c
reduce per capit
campaigns, rate
third-day lawn
certain mandato
conditions warr
mmitted to implementing aggressive water conservation measures to
water consumption. These include programs such as public information
djustments to reduce summer and peak day consumption, and every
tering calendars. At present, the conservation program is voluntary, but
curtailment measure may be implemented in the future if extreme
t such measures.
The District will also work with the City to introduce water conservation measures by
amending the zo ing and building codes. These measures could include a requirement for
low flow shower eads and toilets, utilizing species for landscaping with reduced
irrigation needs, nd use of reclaimed water for irrigation.
Finance Plan
A utility underta es a capital program for many different reasons, including: expanding
the capacity of it systems, maintaining the integrity of existing systems, and addressing
regulatory requi ments. The District is required to comply with its own Water Plan and
to support regio al decisions on population growth and land use.
The District has dentified several significant capital improvement projects in its Water
Plan. The sched ling of these projects is included in the Lakehaven Utility District's 200 1/
2002 Adopted C pital Improvement Projects (CIP) (Table VI-9, page 26, and Map VI-JO).
The District has ccess to sufficient funds that can be utilized for Capital Projects and
Operations. In a dition, the District has depreciation, interest income, assessment income,
and connection harge monies that it can utilize for funding the CIP. Additionally, the
District can bOIT w money or increase rates, if necessary, to best meet the needs of its
customers.
The District has utilized a very conservative approach in budgeting for the CIP by
utilizing the gro h projections developed by each of the land use jurisdictions located
within the Distr' t. The District will provide facilities as required to support growth
within its servic area. The schedule and project costs will be updated annually through
the District's bu get and capital improvement program process.
As part of the 2 00 budget process, the Board of Commissioners authorized consultants
to prepare a rate study, which incorporated all phases of Capital and Operations
expenditures. B sed on this study, subsequent discussion, and input from a public
hearing, the Bo rd raised water rates by eight percent. A portion of the rate increase
provides for the additional operating costs that are anticipated upon completion of the
budgeted CIP. he rate-related revenue increase is intended to cover anticipated
operating and c pital costs over the next three years.
Revised 2002
VI-25
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FWCP - Chapter Six, Capital Facilities
6.4.3 SEWER SYSTE
Lakehaven Utili
1999. The Wast
reference.
District's Comprehensive Wastewater System Plan was updated in
ater Plan and any future amendments are incorporated into this Plan by
The Lakehaven tility District (hereinafter referred to as "the District" in this section)
serves an area th t includes the unincorporated areas east and north of the existing City
limits of Federal Way, Map VI-ii shows the District's sewer service area.
Inventory of Exis ing Facilities
The sanitary se er system is comprised of three major components: the trunk collection
system, the pum station system, and the wastewater treatment plants. The trunk system
collects wastew ter from drainage basins and conveys it to the treatment plant primarily by
gravity flow. In reas where use of gravity flow is not possible, pump stations and force
mains are used t pump the sewage to a location where gravity flow can be used. Map VI-
i2 shows the 10 ation of these components of the District's sanitary sewer system.
The existing col ection system consists of approximately 275 miles of sanitary sewer
pipe, 6,400 ma . oles, 27 pump stations, 6 siphons, and 2 secondary wastewater treatment
plants. The syst m has been constructed over a number of years, as dictated by
development tre ds in the area, The system is divided into 7 primary basins and 40
smaller sub-basi s. The wastewater generated within the two largest basins, Lakota and
Redondo, flow t the District's wastewater treatment plants. The remaining basins
currently discha ge to other utilities for treatment and disposal.
The District cu ently has the capacity in all the major components of the system to
accommodate t e existing demand for sanitary sewer service.
Forecast of Futu e Needs
Population fore asts are based on the adopted land use plans of the various jurisdictions
within which th District operates. They are presented by drainage basin to allow for
evaluation ofth system and consideration of future improvement alternatives. As of
1997, there we approximately 109,000 residents within the District's corporate
boundary. The opulation is projected to increase to nearly 121,000 by 2003, and almost
150,000 by 201 . An estimated 7,500 on-site wastewater disposal systems are in
operation withi the District's corporate boundary. It is anticipated that service will be
extended to the e "unsewered" areas as on-site systems become less viable to maintain
and/or when ne development requires public sewers.
Revised 2002
VI-29
FWCP - Chapter Six, Capital Facilities
The average daily flow from the District is currently estimated at 11 MGD and is
expected to increase to nearly 13 MGD by 2007, 15 MGD by 2017, and nearly 25 MGD
at full development. Peak flows, including infiltration and inflow (1&1) are estimated at
21 MGD in 1997,33 MGD by 2017, and 48 MGD at full development.
Hydraulic capacity at both wastewater treatment plants is estimated to be available up to the
original design peak hour capacities of22.2 MGD for Lakota and 13.8 MGD for Redondo.
Location and Capacities of Future Facilities
The District develops a capital improvement projects (CIP) summary as a part of the
annual district budget process. This CIP lists individual capital projects for the
succeeding 10-year time frame. The CIP prioritizes the projects according to the system
needs. Also included in this list of projects are the ones that are continued from previous
years. A list of these capital projects can be found in the District's 2001/02 Adopted
Capital Improvement Projects (Map VI-13 and Table VI-IO, page 31).
Finance Plan
A utility undertakes a capital program for many different reasons, including: expanding
the capacity of its systems, maintaining the integrity of existing systems, and addressing
regulatory requirements. In addition, the utility is required to comply with its own
Comprehensive Wastewater System Plan and to support regional decisions on population
growth and land use.
The District updates its capital improvement program annually as part of the District's
budget process. For specific information on the Finance Plan, please refer to the District's
most recent capital improvements program for revenue and cost information related to the
District's proposed capital projects. The District has access to sufficient funds that can be
utilized for Capital Projects and Operations. In addition, the District has depreciation,
interest income, assessment income, and connection charge monies that it can utilize for
funding thew CIP. Additionally, the District can borrow money or increase rates, if
necessary, to best meet the needs of its customers.
As part of the 2000 budget process, the Board of Commissioners authorized consultants
to prepare a rate study, which incorporated all phases of Capital and Operations. Based
on this study, subsequent discussion, and input from a public hearing, the Board raised
wastewater rates by eight percent. A portion of the rate increase provides for the
additional operating costs that are anticipated upon completion of the budgeted CIP. The
rate related revenue increase is intended to cover anticipated operating and capital costs
over the next three years.
Revised 2002
VI-3D
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FWCP - Chapter Six, Capital Facilities
6.4.4 FIRE FACILITIES
This section summarizes the Federal Way Fire Department, Long Range Plan (Fire Plan)
adopted in 1991, and the Department's subsequent Strategic Plans. The Fire Department
provides service to the entire City and surrounding unincorporated area. Services include
fire suppression, fire prevention (building inspection and public information), emergency
medical, hazardous materials responses, and rescue emergencies (special operations). The
Federal Way Fire Department has a contract with the City and Valley Communications
for the provision of emergency 911 communications, wherein they act together with the
City as a part owner of Valley Communications. The Fire Plan identifies and programs
improvements that are necessary to maintain existing service standards and to meet the
needs of future residents and businesses. The Department's Fire Plan and future updates
are adopted by reference into the FWCP.
The Fire Department provides fire suppression service to the entire City. In order to do
this, the Department has adopted the following LOS standards:
. An emergency response time of less than seven minutes, 80 percent of the time
(response time is measured from the time that the call is answered by Valley
Communications until the first apparatus in on the scene).
. Each emergency fire response should include a minimum of two fire fighting
vehicles and four fully equipped and fully trained crewmembers.
. Each emergency medical response should include a minimum of one response
vehicle and two fully-equipped and fully-trained crew members.
. The Fire Department provides a full building inspection service for fire code
compliance.
The Department is currently providing service that is generally consistent with its
adopted LOS standards.
The Fire Department also depends on having adequate water pressure available in fire
hydrants to extinguish fires. The Department works with the Lakehaven Utility District,
and other water utilities within its corporate limits, to ensure that adequate "fire flow" is
always available. Lakehaven Utility District's Water System Plan analyzes "fire flow"
rates available at different points in its water system, and programs improvements to the
water system to ensure that sufficient water is available for fire suppression.
Emergency Medical Services
Emergency Medical Services (EMS) responds to 911 calls and provides field services.
This service is paid for by property taxes. Emergency Medical Services are provided as a
marginal cost to the fire department as fire facilities are utilized to provide this service to
Revised 2002
VI-34
FWCP - Chapter Six, Capital Facilities
the community. lthough there are no dedicated facilities planned for provision of EMS,
three aid cars ar scheduled for replacement in the year 2003 at a projected cost of
$336,000. The s ction on funding (Funding Plan) addresses how purchase of these aid
cars will be fun ed.
Inventory and Capacity of Existing Facilities
The Department has two major types of capital facilities. One is fire stations and the other
is capital invest ent in equipment and, in particular, fire engines, The Department's fire
stations are sho n on Map VI-14.
Forecast of Futu e Needs
From 1986 thro gh 1992, emergency responses increased at an average annual rate of
over eight perce t. In 1990, public education efforts included 911-use/abuse training. The
increases in call volume during 1993 and 1994 leveled off with 1994 volume increasing
only 1.5 percent from the 1992 level. It is unknown, however, how much, if any, effect
the 911 public e ucation effort had on actual call volumes. In 1995 and 1996, calls for
service again in reased at an average rate of 8.1 percent. Although calls actually
decreased slight y in 1997, call volumes increased by 14 percent in 1998. The call data
indicates a fair! steady increase of approximately six percent per year. Emergency
medical inciden s have increased more rapidly than non-medical incidents. During the
1990s, structure fires have declined, The challenge for the Fire Department will be to
manage fixed-c st investments, such as new stations, and to be flexible in its ability to
meet fluctuatin call volumes,
Location and C pacity of Expanded or New Facilities
During 1996, a annexation by the City of Des Moines impacted the Federal Way Fire
Department. Th Des Moines annexation (W oodmontlRedondo) could cost the
Department an stimated $500,000 annually, although a contract for services between the
Department an Fire District #26 provides continued funding to the Department in
exchange for c tinued fire protection from the Department for those areas.
It is unclear ho long this relationship will remain in existence. If either party should
give the require 12-month notice to eliminate the contract, District #26 would take
ownership ofS tion #6 (27010 15th Avenue South). The Department has purchased
property at Sou h 288th and Interstate 5 as a contingency against that possibility. This
would accomm date the building of a new station that is more centrally located in the
north end ofth City. This realignment of stations, response areas, and revenues would
require closure f Station #5 (4966 South 298th).
Second, the De artment may have need for an additional station in the south end of the
City in the vici ity of356th and Pacific Highway. If this area continues to experience
Revised 2002
VI-35
FWCP - Chapter Six, Capital Facilities
significant commercial growth, the Department anticipates that the calls for service will
also continue to grow. In this eventuality, an additional station may be needed to maintain
acceptable response times. The Department has acquired property in this area through a
swap of properties with Lakehaven Utility District to assure future availability of a
station site.
Any new station should be able to accommodate an on-duty crew of three fire fighters,
with appropriate living and sleeping quarters. In addition, the structure should be able to
house two engines and an aid car, with room for growth dictated by LOS demands. It
may also be appropriate to provide a public meeting room and an office for community
policing in new facilities. The cost of these facilities is approximately $1,500,000.
Equipment would be in the range of $500,000 for a new station in the south end.
Equipment for a new station in the north end would be provided from the closures of
Stations 5 & 6. The Fire Department does not presently have a timeline for construction
of new fire stations at either of their two proposed fire station locations.
Funding Plan
The Fire Department has established a capital reserve fund for the systematic replacement
of all capital equipment. These reserves are funded from the annual revenues of the
Department. The Department also has established a goal of a minimum of three paid fire
fighters on each fire apparatus. Additional staff that is hired in support of that goal will be
funded from either new construction levies or additional voter-approved levies. The
Department has not established any funds for purchase of new stations or associated
equipment. These purchases would require voter-approved bonds.
In the Department's annually adopted budget, capital projects are identified, This capital
projects list is up-dated based on completed projects and changing priorities. The FWCP
adopts by reference the Department's Fire Master Plan as well as the annual capital
improvements program update.
6.5 GOALS AND POLICIES
The goals and policies in this section implement the GMA requirements and the CWPP.
The City of Federal Way takes responsibility for implementing only those goals and
policies for services provided by the City.
Special service districts, such as the school, utility, and fire districts, must implement
goals and policies that are consistent with their respective plans. The City does intend,
however, to closely coordinate the City's plan with these service districts so that the
citizens of Federal Way receive the highest level of service possible.
Revised 2002
VI-36
FWCP - Chapter Six, Capital Facilities
Goal
CFGl Annua y update the Capital Facilities Plan to implement the FWCP by
coordi ating urban services, land use decisions, level of service standards, and
financi I resources with a fully funded schedule of capital improvements,
Policies
CFPl Provid needed public facilities and services to implement the FWCP.
CFP2 Suppo and encourage joint development and use of community facilities with
other g vemmental or community organizations in areas of mutual concern and
benefit
CFP3 Emph ize capital improvement projects that promote the conservation,
prese ation, redevelopment, or revitalization of commercial, industrial, and
reside tial areas in Federal Way.
CFP4 Adopt y reference all facilities plans and future amendments prepared by other
special districts that provide services within the City. These plans must be
cons is nt with the FWCP.
CFP5 Y reference the annual update of the Federal Way Capital Improvement
Progra for parks/recreation, surface water management, and the Transportation
Impro ement Program,
CFP6 Protec investments in existing facilities through an appropriate level of
mainte ance and operation funding.
CFP7 Maxi ize the use of existing public facilities and promote orderly compact
urban rowth.
Goal
CFG2 To me t current needs for capitalfacilities in Federal Way, correct deficiencies
in exis ing systems, and replace or improve obsolete facilities.
Balancing existi g capital facilities needs with the need to provide additional facilities to
serve growth is major challenge for Federal Way. It is important to maintain our prior
investments as ell as serve new growth. Clearly, tough priority decisions are facing
Federal Way po icy-makers.
Policies
CFP8 Give iority consideration to projects mandated by law, and those by state and
federa agencIes.
Revised 2002 VI-37
FWCP - Chapter Six, Capital Facilities
CFP9 Give priority consideration to subsequent phases of phased projects when phase
one is fully funded and under construction.
CFPIO Give priority consideration to projects that renovate existing facilities and
preserve the community's prior investment or reduce maintenance and
operating costs.
CFPll Give priority consideration to projects that correct existing capital facilities
deficiencies, encourage full utilization of existing facilities, or replace worn out
or obsolete facilities.
CFP12 Give priority to projects where leveraged monies such as grants and low interest
loans can be used.
Goal
CFG3 Provide capitalfacilities to serve and direct future growth within Federal Way
and its Potential Annexation Area as they urbanize,
It is crucial to identify, in advance of development, sites for schools, parks, fire and
police stations, major stormwater facilities, greenbelts, open space, and road connections.
Acquisition of sites for these facilities must occur in a timely manner and as early as
possible in the overall development of the area. Otherwise, acquisition opportunities will
be missed, with long-term functional or financial implications.
Policies
CFP13 Provide the capital facilities needed to serve the future growth anticipated by .
the FWCP.
CFP14 Coordinate efforts between the Public Works and Parks Departments in the
acquisition of and planning for public open space, recreation, public education,
and stream preservation within the Hylebos Basin. Departments may combine
resources as appropriate to increase project efficiencies and success rates in
pursuit of grant opportunities.
CFP15 Give priority consideration to projects needed to meet concurrency
requirements for growth management.
CFP16 Plan and coordinate the location of public facilities and utilities in advance of
need.
CFP17 Implement a concurrency management system fef which permits project
approval only after a finding is made that there is capacity available in the
transportation system sufficient to maintain the adopted level of service
standard.
Revised 2002 VI-38
FWCP - Chapter Six, Capital Facilities
CFP18 The pr vision of urban services shall be coordinated to ensure that areas
identifi d for urban expansion are accompanied with the maximum possible use
of exis ing facilities and cost effective service provisions and extensions while
ensuri the protection and preservation of resources.
CFP19 ate future economic activity with planning for public facilities and
service .
CFP20 Purcha e property in the Potential Annexation Area and keep it in reserve for
future ity parks and surface water facilities.
Goal
CFPG4 Provid adequate funding for capital facilities in Federal Way to ensure the
FWCP vision and goals are implemented.
The GMA requi es that the Land Use chapter be reassessed if funding for capital facilities
falls short of ne ds. The intent is to ensure that necessary capital facilities are available
prior to, or conc rrently with new growth and development. Capital facilities plans must
show a balance etween costs and revenues. There are essentially five options available
for balancing th capital facilities budget: increase revenues, decrease level of service
standards, decre se the cost of the facilities, decrease the demand for the public service,
or reduce the rat of growth and new development.
Policies
CFP21 Mana the City of Federal Way's fiscal resources to support providing needed
capital improvements. Ensure a balanced approach to allocating financial
resour es between: I) major maintenance of existing facilities; 2) eliminating
existin capital facility deficiencies; and 3) providing new or expanding
existin facilities to serve new growth.
CFP22 Use th Capital Facilities Plan to integrate all of the community's capital project
resour es including grants, bonds, general funds, donations, impact fees, and
any ot er available funding.
CFP23 Ensur that long-term capital financing strategies and policies are consistent
with a I the other FWCP chapters,
CFP24 Pursu funding strategies that require new growth and development to pay its
fair sh re of the cost of facilities that are required to maintain adopted level of
servic standards. One such strategy that should be implemented in the near term
is an i pact fee program for parks and transportation.
CFP25 Prom e a more efficient use of all public facilities by enacting interlocal
agree ents which facilitate joint maintenance and operations of those facilities.
Revised 2002
VI.39
FWCP - Chapter Six, Capital Facilities
CFP26 Use the following available contingency strategies should the City be faced
with capital facility funding shortfalls:
· Increase revenues by selling general obligation bonds, enacting utility
taxes, imposing impact fees, and raising property tax levy rates.
· Decrease level of service standards to a level that is more affordable.
· Decrease the cost of the facility by changing or modifying the scope of the
project.
· Decrease the demand for the service or facilities by establishing a
moratorium on development, focusing development into areas where
facility capacity is available, or changing project timing and/or phasing.
CFP27 Aggressively pursue grants or private funds when available to finance capital
facility projects.
CFP28 Maximize the usefulness of bond funds by using these monies to the greatest
extent possible as matching funds for grants.
Goal
CFPGS Ensure that the Federal Way Capital Facilities Plan is current and responsive
to the community vision and goals.
The role of monitoring and evaluation is vital to the effectiveness of any planning
program and particularly for the Capital Facilities chapter. The City's revenues and
expenditures are subject to economic fluctuations and are used to predict fiscal trends in
order to maintain the City's adopted level of service for public facilities. This Capital
Facilities Plan will be annually reviewed and amended to verify that fiscal resources are
available to provide public facilities needed to support adopted LOS standards.
Policies
CFP29 Monitor the progress of the Capital Facilities Plan on an ongoing basis,
including the completion of major maintenance projects, the expansion of
existing facilities, and the addition of new facilities. Evaluate this progress with
respect to trends in the rate and distribution of growth, impacts upon service
quality, and FWCP direction.
CFP30 Review, update, and amend the Capital Facilities Plan annually. Respond to
changes in the rates of growth, new development trends, and changing City
priorities, budget, and financial considerations.
Make provisions to reassess the FWCP periodically in light of the evolving
Capital Facilities Plan. Take appropriate action to ensure internal consistency of
the chapters in the plan.
Revised 2002
VI-40
FWCP - Chapter Six, Capital Facilities
CFP31 Contin e to coordinate with other capital facility and service providers to
ensure hat all necessary services and facilities are provided prior to or
concu ent with new growth and development.
Goal
CFPG6 Manag the Surface Water Utility in a manner that makes efficient use of
limited resources to address the most critical problems first, and which
expres es community values and priorities.
Policies
CFP32 The Ut lity shall continue to have a role in developing and implementing
region I, state, and federal surface water policies and programs and, in doing so,
shall s ek to:
· chieve the City's environmental goals.
· ontain Utility ratepayer costs.
· sure state and federal requirements are achievable.
· aintain local control and flexibility in policy/program implementation.
· P ovide consistency with CWPP.
The U ility's role in developing and implementing regional, state, and federal
surfac water policies and programs will include:
· I fluencing legislation through lobbying and written and verbal testimony
d ring formal comment periods
· articipating in rule making
· eviewing technical documents
· erving on advisory committees and work groups
· articipating in multi-jurisdictional studies and basin planning
· ntering into cooperative agreements with neighboring and regional
encies to accomplish common goals as appropriate and necessary
CFP33 The U ility's funds and resources shall be managed in a professional manner in
accor ance with applicable laws, standards, and City financial policies.
CFP34 The U ility shall remain a self-supporting enterprise fund,
CFP35 The U ility Capital Improvement Program (CIP) will provide funding for the
folIo ing types of projects:
I) Projects addressing flood control problems.
2) Projects needed to meet water quality policies.
3) Projects needed for renewal/replacement or additions to current
infrastructure and facilities.
Revised 2002
VI-41
FWCP - Chapter Six, Capital Facilities
4) Projects necessary for resource protection and stewardship.
CFP36 To the extent offunding limitations, the CIP shall be sustained at a level of
service necessary to implement cost effective flood control mitigation; meet
water quality policies; maintain system integrity; provide required resource
stewardship and protection; and meet federal, state, and local regulations.
CFP37 The Utility will continue to strive to minimize the use of loans to fund
necessary capital improvements, and will generally operate on a "pay-as-you-go
basis." However, low interest loans (i.e. Public Works Trust Fund) and/or
grants will be used to leverage local funds when feasible.
CFP38 Rates shall be set at the lowest level necessary to cover Utility program
expenses, meet levels of service identified in the "Comprehensive Surface
Water Management Plan," meet debt coverage requirements, and sustain a
reserve balance consistent with these policies on a long-term basis.
CFP39 Utility rates shall be evaluated annually and adjusted as necessary to achieve
Utility financial policy objectives.
CFP40 Utility rates will allocate costs between different customer classes on an
equitable basis.
CFP41 The Utility rate structure will be based on a financial analysis considering cost-
of-service and other policy objectives, and will provide adjustments for actions
taken under approved City standards to reduce related service impacts.
CFP42 Rates shall be uniform for all Utility customers of the same class throughout the
service area.
CFP43 Rate assistance programs may be provided for specific low-income customers.
CFP44 The Utility's annual budget and rate recommendations shall provide funding for
the following reserve components:
l. A working capital component based on 45 days of the current year's
budgeted operating and maintenance expenses. Under no circumstances
shall a budget be submitted for a planned drop in reserves below this level.
2. An emergency/contingency component to cover excessive costs resulting
from unexpected catastrophic events or system failures. Based on
historical Utility experience, this amount will be set at $500,000, which is
the estimate of the net cost of emergency services to be paid from rate
resources, excluding any potential reimbursements that may be received
from Federal Emergency Management Act grants, the City's General
Liability Fund, or other external revenue sources.
Revised 2002
VI-42
00
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CHAPTER SEVEN
CITY CENTER
7.0 INTRODUCTIO
Federal Way's ity Center chapter presents concepts and strategies for creating a
definable and vi rant "City Center" for Federal Way and an "urban center" for Southwest
King County in he Federal Way City Center planning area. The chapter integrates the
community's vi ion for a City Center with the Puget Sound Regional Council's (PSRC)
adopted VISIO 2020 plan, and King County's countywide strategy for developing a
network of cent rs.
In this chapter, e term "urban center" is used consistent with the VISION 2020IKing
County definitio , or to refer to the general characteristics of a sub-regional center. The
term "City Cent r" applies specifically to Federal Way's proposed center, which includes
a City Center co e area and frame area. Only the City Center core area is intended to meet
the requirement of an urban center, in accordance with the Countywide Planning
Policies (CWPP ).
Purposes
The principal p poses of the Federal Way City Center chapter are to:
. Create identifiable downtown that is the social and economic focus of the City;
. Strengt en the City as a whole by providing for long-term growth in employment
and hou ing;
. Promot housing opportunities close to employment;
· Support development of an extensive regional transportation system;
. Reduce ependency on automobiles;
. Consu e less land with urban development;
. Maximi e the benefit of public investment in infrastructure and services;
. Reduce costs of and time required for permitting;
. Provide a central gathering place for the community; and
. Improv the quality of urban design for all developments,
Background
The VISION 2 0 Plan (1995 update), Regional Goal #1 states, "Locate development in
urban growth a as to conserve natural resources and enable efficient provision of
services and facilities, Within urban growth areas, focus growth in compact communities
and centers in a manner that uses land efficiently, provides parks and recreation areas, is
pedestrian-orie ted, and helps strengthen communities. Connect and serve urban
communities w th an efficient, transit oriented, multi-modal transportation system." King
County's CWP s support this goal by encouraging:
. Establi hment of an urban center that is a vibrant, unique, and attractive
place t live and work;
FWCP - Chapter Seven, City Center
. Efficient public services including transit; and
. Responding to local needs and markets for jobs and housing.
The CWPPs define urban centers as concentrated, mixed-use areas, a maximum size of
12 square miles (960 acres), and oriented around a high capacity transit station. At build-
out, the policies envision that the center would contain a minimum of 15,000 jobs within
2 mile~ of the transit center, 50 employees per gross acre, and an average of 15
households per acre. The urban center policies also call for:
. Adopting regulations which encourage transit use and discourage the use of
single-occupant vehicles;
· Emphasizing the pedestrian features and promoting superior urban design;
. Providing sufficient public open spaces and recreational opportunities; and
. Uses that provide daytime and nighttime activities.
The CWPPs recognize that with this growth will come an increased need for
infrastructure. The policies, therefore, indicate that priority will be given to ensure the
development of additional transportation and other infrastructure improvements
necessary to support new, concentrated growth in urban centers.
During a series of community workshops held in 1992 and 1993 (which are described in
chapter one), participants helped to develop a "vision" for Federal Way's future. This
vision included the creation of a City Center. With the support of the residential and
business community, Federal Way nominated itself to contain an urban center,
Nominations were reviewed by the Growth Management Planning Council (GMPC),
which confirmed the Federal Way City Center core area as an urban center in 1994, The
urban center designation should help Federal Way continue to gain access to County
funds needed to provide infrastructure as the City Center grows.
The Role of the City Center in Federal Way's Future
There are several reasons why a definable, vital City Center is an important part of
Federal Way's future. These include:
Community Support - The Federal Way community has made the City Center a significant
part of its vision. Participants in community workshops helped to develop a vision for
Federal Way's future, A keystone of that plan is an attractive, multi-faceted City Center
providing the setting for civic features and commercial activities.
Economic Development - Federal Way's economic development strategy relies on a strong
urban center, As discussed in the Economic Development chapter, Federal Way has the
opportunity to transform itself from an essentially residential and retail based economy to
an emerging, sub-regional economic center with an expanded, more diversified
employment base.
Revised 2002
VII-2
FWCP - Chapter Seven, City Center
Natural Evolution The development of a more intensive, multi-use urban center is a
natural step in F deral Way's evolution. Most new centers start out as bedroom
communities. R tail businesses develop first; office and industrial activities next begin to
locate at key tra sportation crossroads, adding jobs and strengthening the employment
base. Federal W y has experienced all evolutionary phases, with the exception of one.
The final step is chieving a sufficient critical mass in the City Center to produce lively
street activity; s pport specialty business, cultural/entertainment facilities;justify the
investment for p blic parks, amenities, and improved transportation systems; and create
the interactive" ynergy" of a true urban center. Federal Way's economic development
strategy will ad this final essential step in this evolution.
Growth Managem t - Developing a City Center is part of a regional strategy to address
Western Washi on's growth management. Public policy makers have focused
increased attenti n on issues affecting our quality of life, including urban sprawl and the
accompanying r duction of open space, declining housing affordability, and increasing
traffic congestio . As stated previously, concentrating future growth within the four
county region in 0 a number of centers (rather than a continued pattern of dispersion),
linked by an effi ient high capacity transit system, is one ofthe principal goals to manage
this growth,
7.1 EXISTING CO OITIONS
City Center Plann ng Area
The City Center planning area, consisting of the City Center Core and Frame zones, is
approximately 14 acres in size and is bounded by South 312th Street, South 324th Street,
Interstate 5, 11th Place South, and 13th Avenue South (see Maps VII-I and VII-2, maps are
located at the e d of the chapter), The City Center Core and Frame areas are 209 and 205
acres, respectiv Iy.
General Image
The City Cente does not currently present an identifiable sense of a downtown or urban
center. The exis ing commercial development within the study area is typical of suburban
strip retail and all development. The dominance of mass retailing has largely shaped the
commercial COI1 . The SeaTac Mall and spin-off retail centers are a local and regional
destination and enerate great amounts of physical and economic activity. However, as is
the case with m st older suburban mall areas, there is little, if anything, distinctive or
unique about th existing City Center. Essentially, it could be anyplace. It is similar to
hundreds of oth r commercial centers across the country. The businesses do not connect
to each other, 0 to public and private spaces, residential neighborhoods, or civic uses,
except by auto obile. Development essentially reflects one pattern: a single story of
"light" constru ion, surrounded by an apron of asphalt. Buildings feature concrete, or
concrete block ails, creating austere and "generic" images.
Revised 2002
VII-3
FWCP - Chapter Seven. City Center
Another prevalent image of the area is the vast amount of surface parking. The
availability of parking is essential to the current type of retail found in Federal Way. City
Center businesses serve regional as well as local markets, and are heavily oriented to
access by automobile. Actual building footprints relative to total parcel areas are quite
small; the majority of most parcels are used to provide surface parking. This parking is
often underutilized, except during the peak holiday season.
The current network of collectors and arterials, and the disjointed over-sized block grids
within the existing commercial area, contributes to significant traffic congestion. The
character of the street environment is also unfriendly to pedestrians in many locations,
with few amenities such as landscaping, lighting, benches, etc. In addition, in many
locations the pedestrian experience is made even less attractive as little more than parking
lots or blank walls line the sidewalks. Recent improvements throughout the City Center,
most notably along South 320th Street, have improved the character of some streetscapes
with handsome streetlights and trees. Continuation of these improvements along Pacific
Highway South and elsewhere throughout the City Center will do much to improve the
overall character of the City Center streetscapes. Similarly, the extensive abatement of
unattractive, out-of-scale signage, achieved over the past five years, has also led to a
more attractive, human-scale streetscape.
The City Center does not contain a significant residential population. Pockets of
residential housing exist between South 3 12th and 3I6th Streets, and SR-99 and 1-5.
Figure VII- I (page 5) depicts an aerial view of the City Center area looking south from
the northwest comer of the City Center boundaries.
Physical Conditions
Land Use
Most of the study area is currently developed and consequently, most new development
in this area will displace existing low intensity uses. Buildings are dispersed throughout
the area and lack pedestrian connections to each other and public rights-of-way. Current
land use patterns favor auto-oriented commercial activity. The primary use in the City
Center area is retail/service, followed by lodging, office, and residential. SeaTac Mall is
the "signature" development in the area.
Table VII-I (page 5) lists the amount ofland use development by gross floor area within
the City Center planning area as of January 2002. Public and civic uses are scarce, with
only four publicly owned non-park sites (the Federal Way School District's bus barn site
north of 11 th Place South and South 320th Street; Truman High School, northwest of
South 317'h Street and 28th Avenue South; King County Library, 848 South 320th Street;
and the School District's Administrative Offices, 31405 Pacific Highway South).
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Figure VII-l
Aerial View of City Center
~-......------
---~-~......--=----------- ----------------j=;;.-----..---- ~------
Table VII-l
Gr oss Floor Area of Land Uses - City Center, Januarv 2002
Use Total Square Footage # Units # Rooms
Offic 225,456
Retail 2,734,842
Hotel 369,377 655
Movil Theatres 67,730
Light ndustrial* 110,339
Instih tional 55,224
Sinllll Family 980 1
Multi Ie Family 891
* min' torage facilities and service buildings
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Parks and Open Space
There are no truly public spaces within the City Center. Private green spaces, plazas and
public meeting spaces are few. Steel Lake Park to the northeast and Celebration Park to the
southwest are on the perimeter ofthe City Center. Even though these parks are within
walking distance of the City Center, they also serve as regional facilities in addition to
serving local needs.
Civic Buildings and Municipal Facilities
Similarly, the City Center lacks significant civic or municipal facilities, with only the
Public Library near the periphery of the City Center. The next closest facility is the City
of Federal Way Parks Department's Steel Lake Annex and Maintenance Facility near
South 3 12th Street and 28th Avenue South. Klahanee Senior/ Community Center and City
Hall are located a few miles southwest of the City Center at 33901 9th Avenue South and
33530 1 st Way South, respectively.
Circulation
Roadways - A key element defining mobility within the City Center planning area is the
enormous size of its blocks. Most U.S. downtowns have blocks ranging from 250 to 500
feet on a side; block lengths in Federal Way are several times that. Because of the
"superblock" configuration, motorists drive between and within parking areas serving
City Center developments to avoid congestion along City streets and pedestrian
circulation is discouraged.
Access to the area is provided by two principal arterial routes: South 320th Street (which
runs east/west and connects to 1-5), and SR-99 (which runs north/south). An inefficient
hierarchy of streets feed these arterial roadways. The area lacks a system of minor arterial
and smaller collector streets that could diffuse traffic efficiently away from these two
principal arterials. The irregular spacing of traffic signals also adds to congestion. As
such, the accessibility provided by the juncture of these routes, initially attractive to area
residents, has been lost due to growth in traffic.
Transit Service - Eighteen transit and dial-a-ride routes radiate from the City Center.
However, service to the entire City Center is not the primary focus, especially during the
peak periods of the day as there are only 12 all-day routes. A regional park and ride lot,
located southwest ofI-5 and south of South 320th Street, generates most of the area's
transit ridership during peak periods of the day. King County/METRO, Sound Transit~
and Pierce Transit serve this site.
Congestion on 1-5, South 320th Street, and SR-99 demonstrates the need for an enhanced
transit system. However, the existing low intensity and dispersed land use patterns will
not support significant increases in transit service. The area also lacks transit facilities
such as bus pullouts and waiting areas, and a pedestrian network to safe and direct access
from transit stops. The proposed 317th direct access ramp for Sound Transit's Federal
Way Transit Center will improve regional transit speed and reliability because transit will
be able to access the city center without using the congested 1_5/320th interchange. It will
also benefit carpools and vanpools.
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Pedestrian Enviro ment and Bicycle Facilities - A 1992 inventory of existing sidewalks
within the City ( ee page V-22 of the Community Profile, Feb. 1993) revealed a
deficiency of pe estrian facilities Citywide. The central core was highlighted as one of
the areas that la ked an adequate pedestrian network. For example, most of SR 99 and
portions of 324th Street and 23rd Avenue South lacked sidewalks. A majority of walking
that does take pI ce in the study area occurs within malls and along storefronts of
shopping center trips. Sidewalks connecting storefronts to public walkways are lacking.
The few sidewal s that did exist were narrow, devoid oftrees, and interrupted by
numerous curb uts. Crossing wide, busy streets such as South 320th Street and SR-99 can
also be intimida ing.
There are few pI ces to sit and enjoy pleasant weather, meet friends, or have lunch
outside. The cur ent pedestrian environment is unfriendly and unappealing. The division
that exists betw en pedestrians and auto areas is not conducive to establishing the active
street life desire in a City Center.
Bicyclists have ven fewer facilities to choose from. City streets lack striping or signage
for bike riders ho must share the road with heavy volumes of traffic. Once bicyclists
reach the area, t ey become frustrated by the lack of safe storage facilities for their
vehicles. Cover d bike parking will be provided at Sound Transit's Federal Way Transit
Center.
Residential
The City Center contains approximately 892 units of housing (listed in Table VII-I),
located primaril in the area east of SR-99, south of South 312th Street, north of South
316th Street, an west of 28th Avenue South. Other residential neighborhoods surround
the City Center rea, such as the pockets of multi-family housing west of South 11 th Place
and south of So th 320th Street. There are also single-family neighborhoods west of
Highway 99 an north of the South 312th Street corridor. While these neighborhoods are
not located im diately within the City Center, they are located conveniently within
walking, bicycli g, or vehicular distance. They differ greatly in character and type.
In 1997, two se ior housing projects were constructed in the City Center Frame area.
These projects e located south of South 312th Street and east of 23rd Avenue South,
adjacent to the uthem portion of Steel Lake Park. The two projects, Meridian/
Willamette Cou and Wood mark at Steel Lake, consist 0000 and 85 living units
respectively. T residents of these developments have easy access to several shopping
opportunities a d services in the City Center area. It is important to note that no new
residential cons ruction has occurred in the City Center since that time.
Infrastructure
Most of the exi ting facilities and infrastructure were inherited from King County. In
1998, the City opted new streetscape guidelines related to roadway profiles,
streetlights, sid walk widths, and street trees. In 1999, South 312'h Street between Pacific
Highway South and 23rd Avenue South was widened to five lanes, and new sidewalks,
street lighting, nd street trees were added, as well as traffic signals at 20th A venue South
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and 23rd Avenue South. In 2001, South 320th Street was improved with streetscape
elements between 11 th Place South and 30th Avenue South. In 2002, the remainder of
South 320th Street also was improved and 23rd Avenue South was widened to five lanes
with sidewalks and streetscape elements. New traffic signals at South 316th, South 3 17th,
and South 3220d Streets were installed. In 2003, construction will begin on widening
Pacific Highway South to add high-occupancy vehicle (HOY) lanes, sidewalks, and
streetscape elements.
7.2 VISION STATEMENT
By the end of the comprehensive planning horizon, the Federal Way City Center will
have evolved into the cultural, social, and economic center of the City and fulfilled its
role as one ofPuget Sound's regional network of urban centers. This role will be
reinforced by pedestrian-oriented streetscapes; an efficient multi-modal transportation
system; livable and affordable housing; increased retail, service, and office development
in a compact area; a network of public spaces and parks; superior urban design; and a
safe, essential, and vibrant street life.
The City Center is responsive to the needs of the City's residents. In addition to general
services that draw people from outside the region, such as retail, office, and hotel uses,
the City Center is the primary commercial area providing local goods and services to the
surrounding neighborhoods, and to residents and employees within the center area.
Private development and City initiated actions will have resulted in a balanced
transportation network that accommodates automobiles, public transportation, high
occupancy vehicles, pedestrians, bicyclists, and integrated parking. Pedestrian and
bicycle circulation is emphasized along with other travel modes. The downtown urban
fabric includes smaller blocks, lending itself to efficient and pleasant travel. Concentrated
development allows a significant number of jobs and residences to be located within
close proximity to transit and a High Capacity Transit Station (HCT), thus, reducing
dependency on the automobile and improving pedestrian mobility. The regional HCT
system may begin with regional express bus service that would evolve to fixed guide-way
systems, such as light rail or monorail, as ridership dictates and funding allows. Direct
access to a regional transit system links the City Center to Seattle, Everett, Tacoma,
Bellevue, SeaTac International Airport, and other regional and local destinations.
The diversity of housing opportunities now includes high-rise residential buildings,
which help to meet a significant portion of the community's housing needs. City Center
residents walk or take transit to shop, work, and recreate. Community facilities and
services, public spaces, parks, and trails complement the variety of housing and provide
places for residents to come together as a community.
A central gathering place for the community, the City Center is where the whole
community can congregate and celebrate. Civic and cultural facilities, in addition to a
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park and open-sp ce system, meet the needs of residents, employees, and visitors. These
amenities conne to the Citywide and regional system of open spaces, parks, and trails.
Public and privat projects contain such design elements as fountains, sculptures, and
unique landscapi g.
The quality of ur an design for all developments, including streets, buildings, and
landscaping, is h gh and contributes to an improved quality of life. Public buildings and
spaces also set a igh standard for design and compatibility with adjoining uses.
Goals for the Cit Center Chapter
The goals and p licies of the City Center chapter are derived from those of the Federal
Way Comprehen ive Plan (FWCP). The FWCP addresses in greater detail the framework
of regional plans and legislation which direct planning in Federal Way. It also discusses
the basic policie addressing housing, parks, recreation, and commercial development.
This chapter bui s on these policies, and provides specific recommendations and actions
necessary to faci itate the development of the City Center.
The following gals provide overall direction to policy makers and community members
when making ch ices about growth and development within Federal Way's City Center.
Additional goals and policies are located throughout this chapter, providing specific
direction on oth r matters discussed. No set of goals or policies can address all potential
issues that may rise in the course of implementing the FWCP. Therefore, while these are
fundamental to t e FWCP, they are not immutable and may need to be revised as
situations warra t.
Goals
CCG 1 Create an identifiable City Center that serves as the social, cultural, and
econo ic focus of the City, Define a City Center with distinct boundaries.
unique building types, and special features.
CCG2 AUrac a regional market for high quality office and retail uses which increases
emplo ment opportunities, adds to the City's tax base, and establishes Federal
Way's City Center as an economic leader in the South King County region.
CCG3 Conne t the City Center to a convenient regional transit system. Provide
servic between centers and nearby areas by an efficient, transit-oriented, and
multi- odal transportation system,
CCG4 Foste distinct districts within the City Center, defining the roles and
chara teristics of each such district.
CCG5 Enco age a mix of compatible uses to maintain a lively, attractive, and safe
place 0 live, work, and visit,
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CCG6 Focus on improving the existing character and image of the City Center.
CCG7 Encourage housing opportunities in mixed residential/commercial settings.
Promote housing opportunities close to employment.
CCG8 Develop land use patterns that will encourage less dependency on the single
occupant automobile.
CCG9 Create an environment oriented to pedestrians and bicyclists.
CCGI0 Create an environment that attracts high quality housing, commercial, and
office uses. Continue to enforce requirements for quality design in buildings,
streetscape, and site planning.
CCG 11 Create policies and regulations to encourage more efficient use of parking
facilities and to foster new, innovative, and creative parking solutions,
CCG 12 Protect and enhance natural features of the area,
7.3 THE LAND USE AND TRANSPORTATION CONCEPT FOR THE
CITY CENTER
The Concept Plan
The concept is to redevelop the City Center and create a compact urban community and
vibrant center of activity. The crux of the strategy is to promote a compact urban center
with connections between where we live, work, and recreate, and create an urban
environment that is amenable to walking, bicycling, and transit. The concept, a result of
the citizen participation process called CityShape (held in 1992-93), implements the
community's goals outlined in Section 7.2. In summary, the concept is to:
· Establish a City Center to support HCT by locating residents and workers within
convenient walking distance of HCT.
· Make efficient use of existing capital improvements by concentrating higher
intensity land uses in the City Center.
· Encourage a mix of compatible uses where housing coexists adjacent to, above,
or near commercial developments.
· Create a dense residential community within walking and bicycling distance of
the core.
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FWCP - Chapter Seven, City Center
. Improve auto circulation in the City Center by completing the proposed street
grid, cre ting smaller blocks, and providing opportunities for through traffic to
travel ar und rather than through the core, thus minimizing the impact of future
growth n Citywide traffic patterns and congestion.
. Reduce mpact of parking by encouraging structured parking, allowing reduced
parking atios, shared parking, and other innovative and creative parking
solution , as well as implementing guidelines that enhance appearance.
. Create p destrian and bicycle connections throughout the City Center and to
surroun ing neighborhoods. Provide a safe and inviting environment for
pedestri ns and bicyclists with direct connections between activities and transit
facilitie . Continue to develop and/or reconstruct streets to include sidewalks,
street tr es, benches, garbage receptacles, screening of parking areas, etc.
. Create h'gh amenity pedestrian-friendly corridors through the core, linked to a
transit c nter and providing an attractive civic focus to SeaTac Mall.
. Provide civic focus to create a sense of identity for all residents. Develop
municip I and cultural facilities within the City Center core area.
. Develo public spaces in the City Center, particularly the core area. Enhance the
City Ce ter with a network of public spaces and parks connected to the Citywide
and regi nal system of open spaces, parks, and trails. Encourage gathering spaces
in priva e development.
Map VII-3 appli s the principles described above. The figure depicts the City Center core
area between S -99 and 1-5 and South 3 16th/3 17th and South 320th and 324th Streets. The
City Center cor area contains a concentration of higher-density, commercial, residential,
and mixed-use evelopment, as well as civic, social and cultural uses. The City Center
frame area surr nds the core along the west and north edges and provides a full
complement of ommercial, residential, and mixed-use development at somewhat lower
densities to sup ort the core. It also provides a transition to surrounding single-family
neighborhoods.
High capacity tr nsit runs through the middle of the City Center, and pedestrian pathways
connect the HC station with residential areas, future civic spaces, and the SeaTac Mall.
land Use Desig ations
This section ex ands on the land use concepts described previously. The City Center
chapter contain two different land use designations, each with its own distinctive
characteristics, ntended to guide the evolution of the City Center, see Map VII-4. The
City Center cor and frame area designations give form to the concepts summarized in
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FWCP - Chapter Seven, City Center
section 7.3. These land use designations direct the location and extent of growth, and will
reshape the nature of development, transforming the area into a compact, vibrant City
Center.
City Center Core Area
For the last 20 years or so, lower-density shopping mall areas at the edge of the nation's
larger cities have gradually been redeveloped and transformed into more dense urban
centers, emulating the development patterns and sense of place of more traditional
downtowns. This transformation, to an area with a unique character and improved image,
is proposed for the core area.
The intent of the core area land use designation is to create a higher-density mixed-use
"center" for Federal Way, and become an urban center as envisioned in VISION 2020
and the CWPP. The CityShape vision called for concentrating growth in an area where
sufficient infrastructure capacity exists, or where such capacity can be provided
efficiently. The infrastructure within the City Center, specifically the core area, is
designed to handle the highest levels of demand within Federal Way. By orienting new
growth around this investment, the existing capacity can be utilized to its fullest extent.
The core area designation also encourages the concentration of new development to help
reduce development pressure in other areas of Federal Way.
The core area land use designation encourages a greater diversity of uses within mixed-
use types of development. Traditional city centers are places where diverse office, retail,
and government uses are concentrated, as well as cultural and civic facilities, community
services, and housing. Many cities are advocating mixed-use development for a number
of reasons. These include:
. Providing new housing, increasing the range of housing choices, and cutting
down on automobile dependency by bringing work places and residences into
close proximity;
. Providing retail and service needs in close proximity to residential and
employment areas; and,
. Improving feasibility of a development project. The proximity of urban services
makes housing projects more desirable and a nearby source of consumers help
make a commercial project more profitable.
Residents choose to live in higher-density housing for a variety of reasons. First, higher-
density is frequently less expensive than single-family housing. Second, the convenience
and proximity to work, needed services, and cultural activities is very desirable for many
people. Finally, many people find that they do not need a large, single-family detached
house. Given their lifestyle, they appreciate the low maintenance and security of higher-
density living, There is a mutually supportive relationship between higher-density
residential uses and commercial activities. The presence of housing also activates City
Center streets, day and night.
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FWCP - Chapter Seven, City Center
Concentrating gr wth in a specific area also supports investment in transit, including a
regional HCT sy tern. Existing low-density development does not generate sufficient
levels of deman to optimize the return on investment in transit. Promoting higher-
density uses wit in walking distance of transit facilities will improve the viability of this
significant infras ructure investment.
Additionally, co centrating the highest density of development in the core, where a
significant numb r of jobs and residences will be within walking distance of a transit
station, helps re uce dependency on the automobile and improve pedestrian mobility.
The core area e phasizes pedestrian, bicycle, and transit mobility. The core area will be
less auto-oriente than the frame area, but it will not be unfriendly to the use of
automobiles.
The City Center ore area will also be the central gathering place for the community-a
place where the hole community can congregate and celebrate. Accordingly, the core
should include a outdoor square, park, or commons, with public amenities such as
fountains, sculp res, and unique landscaping.
Other civic ame ities or buildings, including Municipal Facilities and/or a performing
arts center, coul be grouped around this City Center square (Figure VII-2).
Figure VII-2
Potential Core Area Development
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FWCP - Chapter Seven, City Center
Goals & Policies That Promote the Concentration of New Development in the City
Center Core Area
Goal
CCG13 Focus new growthL with resultant increasing demands for infrastructure and
transportationL in the City Center, specifically the core area. Allow for higher
intensity uses for efficient use of land.
Policies
CCPl
CCP2
CCP3
CCP4
CCPS
CCP6
CCP7
CCP8
CCP9
Support the concentration of uses within the core area to create a financial,
retail, business, civic, and cultural hub of Federal Way.
Develop an attractive City Center that will attract quality development.
Continue to support land use regulations that allow the higher intensity
development expected over the next 15 to 30 years.
Continue to develop a City Center that is the primary commercial area
providing local goods and services to the surrounding neighborhoods and
region, and to residents and employees within the center.
Complete an area-wide environmental impact statement and SEP A Planned
Action and provide streamlined permit review in the City Center to accelerate
changes to the core area,
Work with urban service providers to ensure sufficient capacity is available for
development.
Allow for a variety of uses and mixed-use development within buildings, or
complexes. Ensure that mixed-use development complements and enhances the
character of the surrounding residential and commercial areas.
Provide incentives to encourage residential development in City Center, core area.
Promote the siting of cultural and civic uses within the City Center core. The
City should always consider City Center Core sites in siting analyses and
decisions regarding potential civic and cultural uses that it develops. In
addition, incentives should be explored that could attract cultural and civic
uses over which the City does not have direct control.
City Center Frame Area
Establishing a City Center frame area provides a zone for dense mixed-use development
that surrounds and supports the core. It also provides a transition between high-activity
areas in the core area and less dense neighborhoods outside of the frame.
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The frame area a lows uses that are similar to those in the core area, but are of lower-
density and inte sity. Together, the core and frame areas are complementary.
Encouraging mu tiple unit housing mixed with business and commercial use will help
Federal Way me t regional land use goals. This is accomplished by encouraging the
development of ousing close to employment and transportation centers. To help
transform the ch racter of this land use designation, regulatory and/or financial incentives
should be explor d in exchange for amenities that contribute toa more pedestrian
oriented environ ent (Figure VII-3).
Figure VII-3
Potential Frame Area Development
Goals & Policies T at Promote New Commercial, Residential, and Mixed-Use
Development in th City Center Frame Area
Goal
CCG14 Alio increased development of commercial uses while increasing housing
oppo tunities and diversity of housing types.
Policies
CCPIO Conti ue to develop land use regulations that encourage the frame area to
acco modate higher-density residential uses accompanied by residentially
orien ed retail and service uses,
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CCPll Continue to provide amenities such as community services, parks, and public
spaces to meet residential needs.
CCP12 Continue to ensure effective transitions between frame area development and
nearby lower-intensity development.
Circulation
Federal Way's City Center chapter is designed in accordance with VISION 2020 and
CWPP related to mobility. Although regional travel trends continue to show more cars on
the road, more trips per person, and increases in the number of people driving alone, the
emphasis of the FWCP is to promote a variety of travel options. The City will focus both
on transportation improvements as well as influencing individual travel choices by
increasing the attractiveness of alternatives to the automobile. Encouraging growth in a
compact, well defined City Center will help promote bicycling, walking, and transit use,
as well as encouraging shorter automobile trips. The City Center will be connected to
other regional urban centers and areas of the City by a multimodal transportation system,
including a fast and convenient regional transit system.
In order to function efficiently, mobility in the City Center must be enhanced by
continuing to make transportation improvements. The City should focus transportation
investments in the City Center to support transit and pedestrian-oriented land use
patterns. These improvements should include: a smaller street grid, bicycle routes, public
sidewalks and pedestrian pathways, and clear and identifiable transit routes.
These transportation improvements will also help meet City Center mobility needs in the
event a HCT system is not developed.
Goal to Improve Overall Circulation
Goal
CCG15 Provide a balanced transportation network that accommodates public
transportation, high occupancy vehicles, pedestrians, bicyclists, automobiles,
and integrated parking.
Automobile Circulation
The current network of collector roads and arterials, the disjointed grid, and large block
sizes contribute to significant traffic congestion within the City Center. The solution is
not necessarily to construct wider roads. Streets become less efficient as the numbers of
lanes increases. Building new streets versus widening existing streets is more cost
effective, yields greater capacity, and will have less impact on the City Center.
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Automobiles are likely to continue as a dominant mode of transportation. A comprehensive
network of colle tor arterials and other streets must be developed to distribute this traffic
and create more riving choices. To the extent possible, the City should connect streets to
form a tighter gr d within the City Center, especially in the core, by negotiating new public
rights-of-way an building new streets. This "interconnectivity" serves to shorten and
disperse trips, an consequently reduce travel on existing congested arterials. Map VII-5
indicates the pro osed street network changes. Additionally, alternatives to auto travel such
as van and car pols, transit, pedestrian corridors, and bicycle paths should also be
emphasized.
Goals and Policies 0 Improve Automobile Circulation and Reduce Usage
Goal
CCG16 Impro e the flow o/vehicular traffic through the City Center and minimize
incre es in congestion.
Policies
CCP14 Impro e traffic flow around and through the City Center by extending the
street etwork, creating smaller blocks, and completing the ring road along the
west dge of the City Center,
CCP15 Redu e congestion by supporting the Commute Trip Reduction Act. Develop
com ting alternatives to single occupancy vehicles, including transit,
walki g, and bicycling.
CCP16 The ity's LOS standard shall be based on average person-delay to allow
lower LOS for single-occupant vehicles and support pedestrian-friendly
desig sand HOV treatment.
PedestrianjBicy Ie Connections
Pedestrian and icycle mobility is a vital part ofthe future City Center circulation system.
Improvements r pedestrians and bicyclists should support increases in transit services
and promote th development of the City Center.
This chapter ad resses the lack of pedestrian amenities and pathways by recommending
changes to the evelopment patterns and transforming the character of the streetscape. As
the street syste is redeveloped to better accommodate the needs of pedestrians and
bicyclists, a ne ork of facilities for people on foot and bikes will be established such as
already exists fi r people in cars.
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Reducing the size of the street grid as proposed, improving auto circulation, and creating
pedestrian paths through larger parcels is critical to establishing walking patterns that
reduce dependency on the automobile. As individual sites are designed and developed to
be more pedestrian friendly, and as the City provides improved pedestrian linkages, the
pedestrian system will handle an increasing share of trips. As such, the City adopted
special street design standards for the City Center in 1998. These include 12-foot
sidewalks with street trees and pedestrian-scale street lighting. As streets are constructed,
additional amenities such as benches, trash receptacles, and landscaped comer treatments
may be added. Bike lanes will also be provided in a grid tighter than the rest ofthe City
on through streets that avoid multiple turn-lane conflicts.
In addition to adding public sidewalks and creating mid-block pathways, Map VII-6
depicts three principal pedestrian connections to improve pedestrian circulation. The first
is developing connections between the HCT station, adjoining bus transfer facilities, and
other uses. The pedestrian and bicycle system is essential to other travel modes,
particularly transit. Virtually all transit trips begin and end as pedestrian trips on public
rights-of-way. All buildings within proximity to these areas should be required to
facilitate pedestrian and bicycle movement.
The second goal is to establish pedestrian and bicycle connections to SeaTac Mall, the
City's largest generator of vehicular and pedestrian traffic. Linkages between the
proposed transit station and the SeaTac Mall are important. Unfortunately, South 320'h
Street is wide, congested, and presents a significant barrier to this connection. Providing
an at-grade pedestrian and bicycle crossing could increase congestion and vehicular and
pedestrian/bicycle conflicts. To facilitate this connection, and encourage redevelopment
of existing parking areas, this chapter proposes the continued consideration of a
pedestrian bridge spanning South 320' Street. The pedestrian over-pass would create a
major connection between two areas in the City Center that have a high potential for new
development and redevelopment.
The third goal is to connect the City Center to nearby neighborhoods and parks.
Residential neighborhoods of varying densities surround the City Center. Steel Lake and
Celebration Parks are located to the northeast and southwest of the City Center,
respectively. Both pedestrian and bicycle trails should extend to these residential
neighborhoods and parks. Roads extending to these areas should emphasize the
pedestrian connection by including additional pedestrian amenities.
In order to provide good pedestrian connectivity across multi-lane arterials such as South
320'h Street and Pacific Highway South, crossings should be provided more closely than
the existing lf4-mile spacing of traffic signals. Unsignalized pedestrian crossings would
not be very safe, yet closer spacing of traffic signals make two-way signal coordination
impossible to achieve, creating much more congestion and worsening safety and air
quality. These conflicting needs must be resolved through the design process as these
streets are reconstructed.
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Policies to Improvt Pedestrian Connections
Goal I
CCG 17 Prom~te and facilitate the effective use of non-motorized transportation.
Creatf a safe, efficient, and enjoyable pedestrian and bicycle system.
Policies I
CCP17 EmPh~size pedestrian and bicycle circulation, as well as other travel modes in
all as ects of developing the City Center transportation system. Include public
sidew lks, street trees, and other pedestrian amenities for streets.
CCP18 Conti ue to enforce and refine local zoning codes, site planning requirements,
and st eet design standards, as necessary, to establish a more pedestrian and
bicyc friendly environment.
CCP19 Enco rage new development to include active ground floor uses such as shops,
comm nity services, office, and housing units. Provide pedestrian connections
betwe n adjacent buildings where possible to provide for streetscape continuity.
CCP20 Devel p clear and safe pedestrian paths through large parcels to enhance the
pedes rian network.
CCP21 Conti ue to site and screen parking lots to minimize impact on the pedestrian
envir nment.
CCP22 Conn ct the main entry of buildings to public sidewalks by a clear, identifiable
walk ay.
CCP23 Enco rage transit use by improving pedestrian and bicycle linkages to the
existi g and future transit system, and by improving the security and utility of
park- nd-ride lots and bus stops.
CCP24 Estab ish clear and well marked pedestrian crossings to reach transit facilities
and 0 her uses at a maximum spacing of 660 feet.
CCP25 Conn ct Celebration Park and Steel Lake Park via a pedestrian/bicycle
path ay bisecting the City Center. Orient buildings, urban open spaces, plazas,
etc., t pathways where feasible.
CCP26 Conti ue to improve the appearance of, and pedestrian/bicycle circulation
along South 320th Street and Pacific Highway South.
Revised 2002
VII-19
FWCP - Chapter Seven, City Center
Transit
Efficient, convenient, and reliable transit is important to the FWCC's emphasis to reduce
auto dependency through the creation of viable travel options. Transit will play an
important role in the development ofthe City Center and the region as a whole. A multi-
modal system that includes transit will bring commuters and shoppers to and from other
areas of Federal Way and adjacent communities. A high capacity transit system with a
principal stop in the core area will distribute people regionally and connect to other bus
based transit systems. Transit stops throughout the center will help shoppers, employees,
and residents to circulate around the City Center without the need to get into their cars.
Encouraging a mix of land uses and densities at major transit access points will help meet
passenger needs and reduce vehicle trips.
High Capacity Transit
Sound Transit is working with Puget Sound citizens and City representatives to develop a
HCT network linking Everett, Tacoma, Seattle, Bellevue, and communities between them.
Four HCT stations are proposed in Federal Way, including one in the City Center core area.
Map VII-7 depicts the approximate HCT alignment and location of the City Center
station. The Federal Way Transit Center is currently located at the Federal Way Park &
Ride. At the time of the adoption of the 1995 FWCP, the City Center chapter proposed a
new location at South 31th Street and 20th Avenue South. The primary driver for this
location was the assumption that light-rail between Seattle and Tacoma would follow SR-
99. Since adoption of the plan, conditions have changed and discussion of alternate
locations has emerged. Sound Transit's Sound Move Initiative allocated $4 Million for
the construction of a new Transit Center, in coordination with the enhancement and/or
relocation of the existing Transit Center and direct access ramps.
The Transit Center is considered by the City as a major anchor to the urban center
designation in the Vision 2020 plan adopted by the PSRC. The location of the Transit
Center should be surrounded by property that has potential to redevelop into transit-
supportive uses, thus assisting to ensure both the success of the Transit Center itself and
the economic vitality of the City Center. .
Based on these considerations, the Transit Center site has been selected. The site is
located on the block bounded by 23rd and 21 5t Avenues South, to the south of South 316th
Street.
The FWCP does not depend on the development of a HCT system. The proposed system
is one of several transportation options. While HCT will help regional and local
transportation needs, other modes will continue to playa vital role. Many of the
characteristics that are desired within the City Center, and support HCT, also support
other modes such as van/car pooling, busing, bicycling, and walking.
Revised 2002
VII-20
FWCP - Chapter Seven, City Center
To encourage tr nsit use, the high capacity transit station should provide an inviting
environment wi comfortable pedestrian facilities, including shelter for waiting areas,
convenient pass nger drop-off zones, safe lighting, and street furniture. Conveniences
like telephones, utomatic teller machines, secure bicycle storage areas, and outdoor
seating areas are also important elements of the station design. Provisions for vendors,
small cafes, and arts will make outdoor spaces livelier. Stores adjoining the station can
take advantage the concentrations of people by specializing in goods and services
needed by com uters such as dry cleaning, videos, news kiosks, and day care.
Federal Way's ity Center station will be oriented principally to pedestrians and those
arriving by othe forms of transit. Providing for pedestrian/bicycle accessibility between
surrounding pro erties, street network, general vicinity, park & ride lots, and the HCT is
essential.
Policies to Guide T ansit Planning and Establish a City Center High Capacity
Transit Station
Goal
CCG18 Work ith the transit providers to develop a detailed transit plan for the City
Cente . Identify facilities, services, and implementation measures needed to
make ansit a viable and attractive travel mode. Tailor the plan to meet local
needs through rapid transit, express buses, community service, and/or demand-
respo sive service.
Policies
CCP27 Focus transportation investments to support transit and pedestrian/bicycle-
orient d land use patterns, specifically in the core area.
CCP28 Partie pate actively in regional efforts to develop an HCT system to serve the
City enter.
CCP29 Estab ish the most intensive levels of transit service to the City Center area.
CCP30 Integ ate any transit system with existing or new road right-of-way.
CCP31 Deve op a bus transfer facility as part of a HCT station, on or off the street, that
will c nnect the City Center with other communities in the City. The HCT and
bus tr nsfer stations will set a high standard for design and compatibility with
adjoi ing uses.
CCP32 Integ ate the high capacity transit system with other transportation modes
servi g Federal Way and the region.
Revised 2002 VII-21
FWCP - Chapter Seven, City Center
CCP33 Integrate bicycle and pedestrian facilities with and connect to high capacity
transit facilities during right-of-way acquisition, facility design, and optional
phases.
Civic Buildings and Open Spaces
Public buildings including community centers, libraries, city hall, performing arts
theaters, conference centers, and schools provide places for the community to meet,
exchange ideas, and socialize. The City should take advantage of every opportunity to
locate a variety of civic buildings in and around the City Center. This will occur over
time, but it is necessary to establish a clear direction through public policy.
A network of outdoor spaces for recreation, strolling, gathering, and dining will make the
City Center a lively and attractive place to live, shop, and conduct business. Each type of
space should serve a range of users and activities. Outdoor spaces should range from a
major urban park that is the focal point for downtown, to pocket urban plazas for lunch
time gathering by residents, visitors, and workers. Some spaces will be publicly built and
maintained, others will be constructed along with private development. Privately
developed gathering space is a major component of all City Centers: small parks and
plazas are opportunities to enhance the urbanscape and image of the City Center.
Courtyards, mews, and forecourts are ways to efficiently integrate open space to enhance a
project. Visitors, shoppers, and employees often perceive these private spaces as public.
The City should commit to assist in or provide incentives for, the development of plazas
and parks that are open to the public. Map VII-8 proposes a central outdoor gathering
place within the core area, such as a park, plaza, or square, which will become the focus
of community activities in the core.
Uses around the edges of this plaza, such as transit facilities and cafes, should be sited to
generate activity throughout the day. The edges of the plaza should be well defined and
landscaped to soften the hard surfaces of adjacent buildings and streets. This space should
be physically and visually linked to the central pedestrian spine and transit center.
Policies to Promote the Development of Civic Buildings and Urban Spaces
Goal
CCG 19 Develop civic and cultural facilities in addition to a public space and park
system within the City Center to meet the needs ofresidents, employees, and
visitors, These facilities and spaces should connect to the Citywide and
regional system of public spaces, parks, and trails,
Revised 2002 VII-22
FWCP - Chapter Seven, City Center
Policies
CCP34
CCP35
CCP37
Parking
Promq e a diversity of public and privately funded recreational and cultural
facilides throughout the City Center. Promote partnerships between the City and
other gencies, private organizations, and individuals to develop and meet the
needs of City Center and the general community for these types of facilities.
Emph size locating civic and cultural facilities within the core. Planned public
facilit es could include Municipal Facilities, a library, or performing arts
comp ex.
Acqu' e land necessary to provide a broad range of recreational opportunities
throu hout the City Center. Land bank parcels in the core area for future
muni1iPal facilities.
The continued se of expansive surface parking conflicts with the goal of redevelQping
the City Center s a higher-density, mixed-use area that is pedestrian-friendly and
supports the us of public transportation. It is, therefore, necessary to reduce the need for
parking and enc urage the provision of structured parking within these areas.
I
Moreover, park ng lots have high redevelopment potential. There are numerous examples
of communities similar to Federal Way where former parking lots now contain multi-
story developm nts. Large amounts of parking will be needed for many years to come.
However, as de elopment pressures and land values increase, surface parking becomes
expensive and roperty owners will be able to afford the conversion from surface parking
to structured p king, In the interim, the City should encourage site layouts that facilitate
future redevelo ment of parking areas,
Private and pub ic partnerships should examine the feasibility of constructing a parking
structure in the owntown commercial core area. Figure VII-4 (page 24) is a conceptual
illustration oft e redevelopment of surface parking around a mall.
Goal and Policies t Develop Alternatives to Existing Parking Development
Goal
CCG20 Enco rage the development of a higher-density, mixed-use City Center that in
turn ill reduce the demand for large amounts of separate parking facilities for
indiv dual developments.
Revised 2002 VII-23
FWCP - Chapter Seven, City Center
Figure VII-4
Potential Redevelopment of Surface Parking Areas
~
~~~
Ouer time, parking garages, Iorun- pamng requirt:menls and shRred parking can
allow for mort: intensive development 01 tand,
Policies
CCP39 Encourage public and private parking structures (below or above ground) in lieu
of surface parking in the core area, As redevelopment occurs and surface parking
becomes increasingly constrained, consider a public/private partnership to
develop structured parking in the downtown commercial core area.
CCP40 The City will encourage the provision of structured parking.
CCP41 Buffer parking areas to increase compatibility between surrounding uses. For
larger lots, provide substantial landscaping, special lighting, and pedestrian
walkways.
CCP42 Site and orient buildings and parking to allow redevelopment of surface parking.
Revised 2002 VII-24
FWCP - Chapter Seven, City Center
CCP43 Allow on-street parking to create a buffer between pedestrians and traffic
depen ing on street characteristics and role within the City Center. On-street
parkin should be viewed as a component of the parking supply for the area.
CCP44 Encou age shared parking between uses to maximize the use of available
parkin within the City Center.
Streetscape
To improve liva ility within the City Center area, the City must complete the street
network and con inue to develop streets in accord with its new street standards. The street
grid must be we 1 interconnected to make travel from one place to another as efficient as
possible. The ke to achieving this is to consider streets as a network that will serve
pedestrians, bic des, and transit, in addition to automobiles. In areas where increased
density is propo ed, existing streets must continue to be retrofitted with sidewalks, street
trees, street furn ture, and other amenities. Allowing on-street parking also creates a
buffer between edestrians and vehicles. It also allows shoppers and visitors to park
easily for short mounts of time. On-street parking should be permitted on City Center
streets (where I. sible) except during the morning and evening commuting hours when
the extra lanes e needed to accommodate the extra high volumes of traffic.
The Transportat on chapter illustrates several street standards developed specifically for
the City Center rea. These streets will connect to other proposed and existing streets to
complete a stree grid. Street standards for existing and proposed streets within the City
Center can be fi nd in the second section oftheTransportation chapter. These standards
also incorporate the City Center Street Design Guidelines adopted by the City Council in
May 1998.
Policies to Improv the Street Network and Streetscape Character
Goal
CCG21 Main ain street designations that reinforce the unique characteristics of the
City enter,
Policies
CCP45 Conti ue to acquire right-of-way, primarily through dedication from
devel pment, to complete and enhance the street network.
CCP46 Conti ue to design streets as public spaces, with appropriate pedestrian
amen ties, trees, sidewalks, bicycle paths, transit services, street furniture, and
trash eceptac1es.
CCP47 Conti ue to construct streetscape improvements as an integral component of
any r adway improvement.
Revised 2002 VII-25
FWCP - Chapter Seven, City Center
CCP48 Encourage buildings to front or face public rights-of-way, providing clear paths
from the sidewalk to all entries.
CCP49 Only SR-99 and South 320th Street shall be wider than five lanes.
7.4 IMPLEMENTATION
Developing a City Center will require collaboration between government entities,
citizens, and developers. Phasing and development of certain elements, such as high
capacity transit, are outside the City's control. Therefore, an implementation program
must be flexible. It must also be tied to general goals, policies, and strategies rather than a
detailed, step-by-step list of actions. The implementation section consists of:
· A set of strategies to guide implementing actions;
· An illustration of how these strategies can be realized over time; and
. A 15 year action plan.
Implementation Strategies
Specific strategies must be pursued in order to coordinate various elements and actions that
are dependent upon one another. For example, private development depends upon
adequate infrastructure and amenities. Effective transit service depends upon supporting
land use development to provide sufficient ridership. Residential communities require
adequate transportation and services, a pedestrian friendly environment, open spaces, and
jobs to foster a sense of community. In addition, much of the City Center's redevelopment
is dependent upon market demands and development that is not projected until the later
years of the FWCP's planning horizon. However, regulatory and infrastructure actions
must be taken in the interim to prepare for these developments. The following strategies
form the basis to achieve desired City Center development.
· Maintain regulations to shape and influence new development (1-20 years).
.
Discourage low intensity auto oriented development in the core.
Provide regulations and incentives to achieve a high intensity, mixed-
use, pedestrian friendly development.
Encourage residential development in the City Center frame area.
Encourage high-density residential development in the City Center
Core (Urban Center).
Allow short-term investment in the frame area that will support long-
term core development.
.
.
.
Revised 2002
VII-26
FWCP - Chapter Seven, City Center
Phasing
.
I
Developlspecific plans to construct needed street and infrastructure
improverents ( 1-5 years).
· DevtloP plans to define the location of street rights-of-way for
com leting the street grid and constructing transit facilities to provide
pred'ctability for developers.
· Con truct arterial improvements with associated landscaping and
ped strian amenities (timing set by capital facilities program).
· Pre are a pedestrian and bicycle plan and construct sidewalks, pedestrian
path, mid-block connectors, and bicycle connections to all areas of the
City Center and particularly to a transit center (ongoing effort).
.
Consider development of structured parking facilities as needed to support more
intenSiVj development and gradually convert the core into less auto dependent area,
· Dev lop parking standards for the City Center Area.
.
Improv both local and regional transit service.
· Beg n new transit service configuration by adding a center bus stop and
rout buses to it (begin immediately).
· Up rade central bus stop to a transit center/station and enhance regional
and local transit services to it (1- 3 years).
· De lop a regional HCT station at transit center (1 0-15 years).
· Constru t civic features, public spaces, parks, and other urban elements to create
a true u ban center and promote civic identity (5-10 years).
· De elop major civic facilities in the City Center such as, Municipal
Fac lities, performing arts center, and recreation center, to generate
soc al and economic activity (5-10 years).
· Ad amenities to residential areas to build new neighborhoods (begin
im ediately as an incremental program).
· Inc de landscaping and pedestrian improvements in all street
con truction (incremental program tied to actual improvements).
Transforming t e existing downtown commercial core area into the proposed City Center
is an ambitious ask. It requires a significant transformation from a low-density,
automobile orie ted, largely retail area to a higher intensity, more pedestrian oriented
mixed-use area. The City Center chapter acknowledges that the core will take some time
to develop. The City can facilitate these changes if a series of small steps are taken over
time. This is es ecially true if the steps are consistent with the emerging economic,
social, and dem graphic trends. As is the intent of this plan, the phasing scenario
presented here ccounts for the timing of market projections and future actions.
Revised 2002
VII-27
FWCP - Chapter Seven, City Center
As noted above, the implementation strategy is keyed to projected trends and regional
planning goals. Its form and character, as envisioned in the chapter, are dramatically
different from anything that now exists in the center. It will take some time for the
development community to redirect its energy and investments to produce buildings that
respond to the direction of the chapter. The demand for more intense development
opportunities in the City Center is not projected within the next few years. In the
meantime, there may be some deferred maintenance, short-term, high-turnover tenancies,
and even vacancies, as the development community begins to assemble property for
future redevelopment. The City should not encourage continued low-scale investment in
this area, since it will need to be amortized over a decade or two and will delay
accomplishment of preferred development. As regulations are applied to modest
renovations, it should be possible to secure some basic improvements. However, the City
should not expect full implementation of the vision for the City Center until owners are
ready to install long-term, major development projects.
Figures VII-5 and VII-6 and Map VII-9 (located at the end of the chapter) illustrate key
steps in the evolution of Federal Way's City Center from 1995 through 2025. The
illustrations are taken from a viewpoint just north of South 316th Street between 20th
Avenue South and SR-99. The drawings do not necessarily indicate recommendations for
specific sites. The locations of the elements and the time frames may well vary. For
example, Figure VII-6 shows an elevated light-rail line that may not be routed to Federal
Way during this planning horizon. The drawings do illustrate how a viable City Center
can evolve through several coordinated, incremental steps taken over time. The
approximate dates are based on current market demand and funding projections.
However, new trends, funding priorities, and development opportunities may emerge,
changing the timing. An illustration of 1995 conditions is included for reference.
2002 - 2010 Actions
. Develop a pedestrian/bicycle plan that outlines a connected, safety-oriented
system of routes and facilities. This chapter shall be used in programming capital
projects, reviewing development proposals, and encouraging other agencies to
integrate bicycle improvements and linkages into Federal Way projects. The plan
should emphasize linkages between transportation facilities, Celebration and
Steel Lake parks, SeaTac Mall, and surrounding communities.
. Continue to plan for and develop parks and public spaces within the City Center.
Begin negotiations for acquisition of land for a City Center park, plaza, or square.
. Complete streetscape improvements along the South 320th Street corridor.
. Continue to improve SR-99 and establish mid-block crossings.
. Complete the BP A bike trail.
Revised 2002 VII-28
FWCP - Chapter Seven, City Center
. Continu to negotiate and acquire rights-of-way to augment the City Center street
grid. Du ing permit review, ensure that new development is compatible with the
street gr d. Construct street grid enhancements.
. Develo a transit center. Focus transit activities in the City Center core.
I
. Constru t streets to serve the transit facility.
. Begin n gotiations to form a public private partnership to provide structured
parking ear SeaTac Mall. Construct the parking structure.
. If the C' Council chooses the City Center as the appropriate location for
Munici al Facilities, begin negotiations and acquire property for Municipal
Facilitief' Construct Municipal Facilities.
. Explore feasibility of creation of a City Center park, potentially associated with
Munici al Facilities and/or other community facilities. If the concept is
approve , begin negotiations and acquire property for a City Center Park. Design
and con truct a City Center Park.
· Enhanc educational and recreational opportunities in City Center.
2010 - 2020 Actio s
. Constru t a City Center park with public amenities such as fountains, sculptures,
and uni ue landscaping, separate from Celebration Park.
. ~otenti lly construct public-private parking garages.
. Potenti lly construct the pedestrian overpass across 320th Street, and build phase
one oft e City Center pedestrian mall.
. community-wide transit service and implement a "spokes-of-a-wheel"
elivery pattern with City Center as the hub.
. Serious y explore the feasibility of constructing a performing arts center and
develo an implementation plan,
. Establi h green parks and corridors throughout the City Center and/or along a
City C nter pedestrian mall.
Activity Since 1 95 Comprehensive Plan Adoption
The following aye been accomplished to implement goals and policies of the City
Center chapter ince the initial adoption of the FWCP:
Revised 2002
VII-29
FWCP - Chapter Seven, City Center
. In 1996, the City adopted code amendments for the City Center Core and Frame
to allow for increased residential density and flexibility in siting residential uses.
The City also adopted Community Design Guidelines intended to improve the
appearance of non-residential buildings and to expand pedestrian circulation,
public open space, and pedestrian amenities.
. In 1998, in conjunction with King County/METRO, the City improved local and
intercity transit which should result in more people having access to shopping
and other opportunities in the City Center. Since that time, the City has worked
with the transit providers to develop a detailed transit plan for the City Center,
including siting and initial design work for the City Center Sound Transit station,
as well as improvement of two park-and-ride lots.
. In 1998, the City adopted policies to provide streetscape enhancements and
development of standards for streetlights, street trees, and their placement and
location in the City Center. Since that time, substantial progress has been made,
with full improvement along this corridor from 1-5 to II th Avenue South.
. The City has an adopted TIP and CIP plan which addresses major street
improvements in the City Center. Minor collector and local street improvements
would be provided by development as redevelopment occurs.
. In 200 I, the City created an Economic Development Division within the
Community Development Services Department and hired a Deputy Director to
manage it. Among the Division's duties are to lead efforts to encourage City
Center redevelopment, attract businesses and developments, and increase
visitorship to the City Center.
. Phases I, II, and III of the BPA trail have been constructed.
. Infrastructure improvements:
· 1999 - South 31zth Street between Pacific Highway South and 23rd
A venue South-Roadway widened to four lanes; sidewalks constructed;
street lighting and street trees installed.
· 1999 - South 312 th Street and 14 th Avenue South-Pedestrian Crossing
Signal added.
· 2001:- Pacific Highway South/South 320th Street intersection-Widen
roadway and add new turning lanes at each leg of the intersection. Also
add street lighting, street trees, install architectural and landscaping
elements at each comer ofthe intersection, and underground utilities.
· 2001 - SeaTac Mall surface water conveyance system upgrade.
· 2001-02 - South 320th Street between II th Avenue South and Interstate 5
-Underground utilities, widen sidewalks where necessary to add new
streetlights, install street trees behind the sidewalks, and install medians
where feasible. Add dual left-turn lanes at 23rd Avenue South.
Revised 2002 VII-3D
FWCP - Chapter Seven, City Center
.
200t - 23rd Avenue South between South 3241h Street and South 3161h
StreIt-Widen roadway to five lanes and add new sidewalks, street
ligh ing, and street trees. Install new traffic signals at South 316th Street,
Sou h 3171h Street, and South 322nd Street.
200 -Completed the Rin~ Road (14th Avenue).
200~ - South 31ih and 14t Avenue South-Upgrade pedestrian signal to
full fraffie signal.
.
.
. New Pri ate Development:
· 200 - Courtyard Marriot Hotel
· 199 - Marie Calendar's Restaurant
· 199 - Holiday Inn Hotel
· 199 - Extended Stay Motel
· 199 - Comfort Inn
· 199 - Wa1mart
· 200 -02 - Pavilion Centers, Phases I and II
. Renova ed or Remodeled Projects:
· 199 - SeaTac Village
· 199 - Sunset Square (Safeway and Longs Drugs)
· 199 - Ross Plaza (Rite Aid and Party City)
· 199 - Indochine and Genghis Khan Restaurants
PROPOSED PRO EelS
. 2002-0 - Pacific Highway South between South 31ih Street and South 3241h
Street Widen roadway, add new sidewalks, street lighting, street trees,
landsca ed raised medians, and underground utilities.
. 2003 - fouth 314th Street and 23rd Avenue South-Construct traffic signal.
. 2003 - -5/City Center Access Study-Develop plan to increase capacity
betwee City Center and 1-5 to improve and/or supplement the existing South
320lh St eet interchange.
. 2003-0 - Potentially locate new municipal facilities.
. 2003-0 - Sports and Multipurpose Fieldhouse-potential project.
. 2004 - 1yover ramps from 1-5 High Occupancy Vehicle (HOV) lanes
connec ing to South 3 171h Street.
. 2004 - outh 3171h Street and 23rd Avenue South-Construct Sound Transit's
Federal Way Transit Center.
. 2004 - dd turn lanes on South 3241h Street at SR-99,
Revised 2002 VII-31
Figure VII-5
Illustration of City Center, 1995 Conditions
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j Figure VII-6
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Map VII-I
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Map VII-2
Bou daries of City Center Area
IV CIty center Boundary
D CIty center
- Park
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I
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~ Federal Way
"'_~_""'IIr..___II"".. __
Map VII-3
The Concept Plan
- New Transit Center
-
Potential Pedestrian
Crossings
Potential Bike Route
~.. Transit Street
IV Enhanced Street Netwo k
T11t_I._...Il!'.............IlIlI.IIIM~Ir., .IC......M_.
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- City Center Frame
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o 5[)[) 1 ,[)[)[) Feet
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Map VII-4
nter Land Use Designations
IV CIty Center Boundary
..,..~ CoreIFrame Divide
1>/ I Chy Center Core
_ CIty Center Frame
- Park
D.
N
Map Date: ApJtI, 2D0.2.
o 500 1,000 Feet
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A Federal Way
".- ~......... ....--.... ~_..
--
Map VII-5
hsnced Street Network
II
~ Intersection ., St
Improvement Co tructed or
. . Oed cated ROW
....~ New Traffic Signal D City Center Core
~ Existing Street _ C' C nt F
~~, Ity e sr rams
'7 Proposed Street _ Par
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Map VII-6
destrian and Bicycle Connections
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- Potential Pedestrian D c
Crossings _ C
IV existing Street -
,\j Proposed Street
ential Bike RoUle
Center Core
Center Frame
k
o 500 1,000 F&et
1 1 1
A Federal Way
1*..... ._....._.._......._.......
Map VII-7
Potentia Transit Alignments and Stops
- New Transit center - City Center Frame ~
Potential HCT algnment 2 Alternatives) - Park
,... Potential Transit Routes
· Potential Transit Stop
D CIty Center Core
Map Date: AprIl, 2002.
o
I
SOD
1
1,000 Feet
I
A Federal Way
Map VII-8
pen Space and Bicycle Routes
IV Existing Bicycle Route - Park
I.- Planned Bicycle Route
Itt Target area for Civic Ce ter
I ........1 City Center Core
- City Center Frame
/::i
N
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(l 5[)[) 1 ,[)[)[) Feet
I 1 I I
A Federal Way
111.....I._bII.............IlIlI.OIM.lroa 10........_.
Map VII-9
Ph sing Concept 1995-2005
N SdIellJld &nel
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... PI'llIlOI8d R"",or Way
..... S..12Olh _.~ Im..ovelllllnll -Ad IlrMl Ilg,* ,....
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u1ilily poIu. Add aidllwalb, RWlligh _and londaoII"e median.
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A Federal Way
I
CHAPTER EIGHT - PpTENTIAL ANNEXATION AREAS
8.0 INTRODUCTIO~
Purpose of Sub rea Plan
The City of Fed ral Way Potential Annexation Area (PAA) was established through a
series of interlo al agreements between the City of Federal Way and neighboring south
King County cit es. Based upon the State of Washington Growth Management Act
(GMA) and Kin County Countywide Planning Policies, the City would ultimately annex
and provide se ices within its designated PAA. While the Federal Way Comprehensive
Plan (FWCP) f, cuses upon plans and policies for property in the City limits, this
Subarea Plan a gments the comprehensive plan and addresses in more detail the Federal
Way PAA, loca ed principally to the east ofl-5, with a small portion located west ofI-5
and north of the City limits near the Redondo neighborhood.
Over time, prop rty owners in the P AA have made annexation requests to the City of
Federal Way, w ich requires a thorough City analysis of service/capital expenditures,
revenues, and 0 her issues. To review its P AA comprehensively and in advance of
individual requ sts, the City of Federal Way, with the support of King County, initiated a
P AA Subarea P an and Annexation Feasibility Study of which this P AA Subarea Plan is a
part. By evaluat ng the feasibility of potential annexations and planning for the future
delivery of serv ces, residents of the P AA and the City can make more informed choices
about their futu e. Specific Subarea Plan purposes include:
· To act s an informational resource for the City and County staff, elected
official , residents, property owners, and business owners;
· To iden ify the PAA-specific goals, policies, pre-annexation comprehensive plan
and zo ing map designations, and capital plans; and
· To pro ide the City with a framework to guide future annexations.
In coordination with the City's overall comprehensive plan, this PAA Subarea Plan
provides a Yea 2020 long-range land use and policy plan to guide pre-annexation
planning effort and annexation requests.
P AA Location a d General Characteristics
The Federal W y P AA is located in South King County and, with the exception of a
small future an exation 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 ch racterized by a series of residential neighborhoods focused around
numerous lake beginning with Star Lake at the north and concluding with Five Mile
Lake at the So h (see Maps VIII-I and VII-2, maps are located at the end of the chapter).
FWCP - Chapter Eight, Potential Annexation Areas
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. The GMA does not limit optional
topics. Since its adoption in 1995, the FWCP has included policies identifying the need
for comprehensive land planning in its designated P AA.
The FWCP 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 FWCP Introduction. The FWCP 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. The P AA Subarea Plan is adopted
as a component of the overall FWCP focusing upon the 5,OOO-acre future annexation
area. 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 FWCP, that includes 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 the 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 of Service Analysis, July 11,2003; Federal Way Potential Annexation Area
Land Use Analysis Compilation, March 5,2003.)
· Draft Plan - The March 2003 Draft P AA Subarea Plan contained draft policies
and plans, and was the basis for a fiscal analysis.
Revised 2003 VIII-2
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FWCP - Chapter Eigh~ Potential Annexation Arts
· Final PI n - Based on public input and the fiscal review of the Draft Plan, the
Final S barea Plan has been prepared. It is coordinated with the P AA
Annexa ion Feasibility Study, including strategic alternatives such as annexation
area ph sing and service provision phasing,
· Plan - As part ofthe City's public hearing process, the Federal Way
Commission reviewed and made a recommendation to the Federal Way
ncil Land Use/Transportation Committee (LUTC) regarding the
of the Subarea Plan. The LUTC reviewed the Subarea Plan and the
Plannin Commission recommendation and issued a recommendation to the
Federal Way City Council regarding the adoption of the Subarea Plan, The City
Counci reviewed the Subarea Plan and the Planning Commission and LUTC
recom endations and adopted the Subarea Plan, as recommended by the LUTC
and sub tantially as recommended by the Planning Commission.
As the 'AA Subarea Plan and Annexation Feasibility Study progressed, key
concep s were elicited about the P AA.
· The Ci of Federal Way recognizes annexation as a citizen-based process. The
Federal Way P AA Subarea Plan and Annexation Feasibility Study are intended to
provide for advanced planning of the P AA, allowing both citizens and the City to
make i formed choices about their future.
· The P is part of the larger Federal Way community, but is distinct in its own
right, iven its proximity, inter-dependent transportation network, shared school
distric tility districts/emergency service providers, and the City's subregional
econo ic role, the PAA is inter-related with the City of Federal Way, However,
the PA has its own unique characteristics-residential neighborhood variety,
natural eatures including headwaters to several significant streams, a road
system unctioning with rural standards in an urbanizing area, some economic
nodess ch as in Redondo, and many other distinct features,
Public Input Pro ess
Key to the dev lopment of the P AA Subarea Plan and Annexation Feasibility Study has
been public pa icipation. Public participation methods for the P AA Subarea Plan and
Annexation Fe sibility Study have included:
· Article for inclusion in City and utility district newsletters, and City and county
websit pages sites (www.cityoffederalway.com; www.metrokc.gov,
respect vely), as well as a link from the Federal Way School District website
page to City and county websites.
· Creati of a P AA Study webpage on the City's website that provided an
opport nity for residents, property owners, and business owners to view draft and
final w rk products, provide comments and suggestions, as well as other features.
Revised 2003 VII 1-3
FWCP - Chapter Eight, Potential Annexation Areas
· 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 PAA 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 used for mailing public
meeting announcements and the announcement of the issuance of draft work
products.
· The mailing of the City's quarterly newsletter to each P AA household. Each
newsletter provided an update regarding the status of the P AA study and the
announcement of 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 meetings open to the public. Steering Committee
meetings were held in December 2001, January and February 2002, and January,
April, and September 2003.
· Public open houses where residents, property owners, and business owners had
the opportunity to review information of interest relevant to their neighborhood,
and talk individually with officials and staff. Public open houses were 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.
· Public hearings and public meetings_before the Planning Commission, Land Use/
Transportation Committee and 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 consisted 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.
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.
Revised 2003
Vl1f4
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FWCP - Chapter Eight. Potential Annexation Ar4s
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8.1 POLICY BACK ROUND
statewide Planning Goals
The GMA cont ins 13 statewide planning goals addressing:
. Urban rowth . Natural resource industries
. Reduce sprawl . Open space and recreation
. Transp rtation . Environment
. Housin . Citizen participation and
. Econo ic development coordination
. Prope rights . Public facilities and services
. Permits . Historic preservation
While all have een considered in the Subarea Planning process, three in particular are
most relevant t P AA planning efforts:
.
Urban rowth - Encourage development in urban areas where adequate public
facilitie and services exist, or can be provided in an efficient manner.
.
Reduce Sprawl- Reduce the inappropriate conversion of undeveloped land into
sprawli g, low-density development.
.
Public acilities and Services - Ensure that those public facilities and services
to support development shall be adequate to serve the development at
the tim the development is available for occupancy and use, without decreasing
current service levels below locally established minimum standards.
In terms of urb n growth and reduction of sprawl, the P AA contains primarily single-
family develop ent, with a few commercial nodes along major arterial roadways, where
services are or an be extended, identified as neighborhood or community centers. The
land use/zonin pattern based on the pre-annexation comprehensive plan and zoning
designations w uld result in urban densities of about four units per net acre or greater,
meeting GMA oals for urban level growth. Select areas have pre-annexation
comprehensive plan and zoning designations to accommodate approximately one
residential unit er acre on the periphery of the P AA, due to sensitive areas and
infrastructure Ii itations.
The ability oft e 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 me t community service and infrastructure needs concurrent with growth, to
conduct additi al capital planning in areas where data gaps have been found (e,g.
surface water), nd to provide public services in a cost-efficient manner recognizing the
historic level 0 service differences between the City and the county.
Revised 2003
VIII-5
FWCP - Chapter Eight, Potential Annexation Areas
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
FW13
LU31
Within the Urban Growth Area, growth should be directed as follows: a) first, to
centers and urb-anized 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.
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
Revised 2003
VIII-6
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FWCP - C,",t" E. h\ ""'"',' A""",,'oo Aret
shall nsure that unincorporated urban islands of King County are not created
betwe n cities and strive to eliminate existing islands between cities,
LU32
A city may annex territory only within its designated potential annexation area,
All ci ies shall phase annexations to coincide with the ability for the city to
coord nate the provision of a full range of urban services to areas to be annexed.
LU33
ithin a city's potential annexation area shall be developed according to
that ci 's and King County's growth phasing plans. Undeveloped lands
adjac nt to that city should be annexed at the time development is proposed to
receiv a full range of urban services. Subsequent to establishing a potential
annex tion area, in-fill lands within the potential annexation area that are not
adjac nt, or not practical to annex, shall be developed pursuant to interlocal
agree ents between the County and the affected city, The interlocal agreement
shall stablish the type of development allowed in the potential annexation area
and st ndards for that development so that the area is developed in a manner
consi tent with its future annexation potential. The interlocal agreement shall
speci , at a minimum, the applicable zoning, development standards, impact
mitig tion, and future annexation within the potential annexation area.
LU34
Sever I unincorporated areas are currently considering local governance
optio s. 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
recei urban services. Where annexation is inappropriate, incorporation may
be co sidered.
The CWPP's ar particularly reflected in Subarea Plan sections 8.11 and 8.14, Public
Services and Ca ital Facilities, and Annexation,
City Planning Gals or Policies
The Land Use hapter of a comprehensive plan plays a central role in guiding and
directing all oth r chapters by indicating the desired land use pattern that consequently
drives the dema d for infrastructure and services. The key City planning goals are based
then on the City sland use concept in the FWCP (see Federal Way Land Use Chapter,
Map II-2).
In summary, th City of Federal Way land use concept is based upon creating land use
patterns that su port multiple modes of transportation, with attention to neighborhood
enhancements a d protection, and community amenities and needs (design quality; parks;
etc.) to ensure c mpatible land uses. These concepts include the transformation of the
City's retail cor into a dense, mixed use City Center, preservation of residential
neighborhoods, a hierarchy of mixed-use retail and employment nodes to serve the
community, an development that recognizes environmentally sensitive areas. The P AA,
as part of the la ger Federal Way community, is reviewed in this Land Use Concept
framework, whi e also reviewed with respect to unique P AA circumstances,
Revised 2003
VIII-7
FWCP - Chapter Eight. Potential Annexation Areas
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 CWPP's, and the FWCP 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 8.5, 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 PAA would
accommodate the P AA housing target of 1,320 units and employment target of
134 between 2001 and 2022, described further under Section 8.5. 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 PAA.
8.2 CITY OF FEDERAL WAY POTENTIAL ANNEXATION AREA
Federal Way P AA 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 ofGMA 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 PAA boundary.
Revised 2003
VIII-8
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FWCP - c"""", E.h\ Po_I Am.""" At
The City Counc I accepted the recommendation, but did not adopt it. Rather, the council
directed staff to egin negotiations with the neighboring cities of Auburn, Milton,
Algona, Pacific, Des Moines, and Kent, all of who had developed urban growth
boundaries that verlapped with Federal Way's proposal. The City negotiated with each
of its municipal eighbors for the better part of a year. By the Fall of 1993, staff
presented a revi ed P AA boundary to the City Council. The council reviewed the
proposal and ad pted the P AA boundary on December 21, 1993. That boundary was
amended in 199 . The City executed interlocal agreements with-all of the neighboring
cities based on t e boundary shown on Map VIII-I.
Neighborhood nclysis levels
For purposes of data collection efficiencies and resources, the P AA has been divided into
three Major Su reas, as well as seven smaller Community Level Subareas, The Major
and Communi Level Subareas are as follows (see Map VIII-2):
· ondo East Community Level Subarea is in the Redondo East Major
(both with identical boundaries), west of 1-5, and is approximately 43
acres In sIze.
· Star La e, Camelot, and North Lake Community Level Subareas comprise the
Northe st Major Subarea, east of 1-5 and north of SR-18, and total approximately
2,527 a res in size.
· Lakela d, Parkway, and Jovita Community Level Subareas comprise the
Southe st Major Subarea, east of 1-5 and south of SR-18, and total approximately
2,470 a res in size.
The subarea botndaries are based upon City-defined Transportation Analysis Zones,
which align wit census tract geography, neighborhood affinities as expressed in prior
county plannin efforts, and the ability of the county to provide information within
existing resourc s, as well as input from the P AA Steering Committee in December 2001.
Accomplishme ts since 1991 Issue Paper
The following as been accomplished since completion of the 1991 Issue Paper:
· Used te hnical information from neighboring jurisdictions and information from
affecte citizens to identify and establish a P AA boundary for the City of Federal
Way.
· Establi hed an interlocal agreement on mutually agreeable P AA boundaries with
the foil wing South King County Cities: Des Moines, Kent, Auburn, Algona,
Pacific, and Milton.
Revised 2003 VIII-9
FWCP - Chapter Eight, Potential Annexation Areas
· Completed a preliminary analysis of the PAA that identified potential issues
associated with annexation and a scope of work for a more comprehensive study
of the PAA.
· Completed a comprehensive study of the P AA in conjunction with King County.
The comprehensive study of the PAA 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 of readily
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 P AA (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 of land use
classification and policy 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 Annexation Feasibility Study, December 2003, have also been integrated
with this P AA Subarea Plan.
8.3 Feasibility Analysis
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
PAA Subarea Plan (e.g. transportation, surface water, and parks and recreation), but are
summarized in total in Section 8.11.
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.
Revised 2003
VII 1-1 0
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FWCP - Chapter Eight, Potential Annexation Areis
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To account for tf. differences between the fiscal impacts associated with the day-to-day
operation of the ity and the impacts associated with needed capital investments, the
Feasibility Stud takes a three-pronged approach to assessing impacts.
1. Estimat~ the incremental operating costs introduced by annexation of the P AAs
on an a nual basis, and compare those costs to the incremental revenues the City
would r ceive from the same areas.
2, Discuss how the balance of operating costs and revenues would be likely to
change n future years.
3. Estimat the additional capital investments that the City would take on with
annexat on and compare those costs to the additional capital revenues the City
could e pect to receive from the P AAs.
To provide the ost intuitive and up-to-date information about estimated impacts, this
analysis provid s a snapshot of what the operating impacts would be if the City were in
the position of lIy governing each P AA in 2003. The assessment of operating impacts is
based on 2003 c sts of service and 2003 tax and fee structures, as outlined in the City of
Federal Way 20 3/2004 Adopted Budget, and is intended to represent a picture of fiscal
impacts under s eady-state operation. In essence, these estimated steady-state operating
impacts reflect e ongoing "costs" that the City would face each year, beginning
perhaps, in the t ird year after annexation and extending into perpetuity.'
Estimated costs of capital improvements are based on the most recent available data
(2002) and refl t estimates of the combined investments that will be necessary through
the planning ho izon of 2020 (all presented in 2002 dollars). There is no material effect
on this fiscal an lysis from using 2003 operating costs impacts and 2002 capital costs,
primarily becau e the capital improvement costs are expressed in current (2002) dollars,
regardless of w en the projects may be built in the next 20 years.
The purpose of stimating the hypothetical gap that would be created if the City were to
try to extend cu rent service levels to the PAAs without increasing taxes is to present
decision maker 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 c er their costs of operation. Consequently, if Federal Way were to annex
any of the P AA , any estimated "cost" associated with annexation would have to be made
up through som combination of: (1) stretching City resources through decreased levels
of service and/ r (2) increasing City revenues.
I In the initial ye s of annexation costs could be either higher or lower than the estimated steady-
state impacts, de ending on how the City chose to manage annexation. Among the detenninants of
transition-period osts 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,
I VIII-11
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FWCP - Chapter Eight, Potential Annexation Areas
The Feasibility Study implementation strategies are integrated into the Subarea Plan
Section 8.11, 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 P AA.
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 VIII-I (page 13) 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).
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Table VIII-l
Yea" 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 1 0 260 150 260 150 388 204
East
Northeast 11,600 3,9( 0 11,900 4,015 12,300 4,130 15,870 5,705
Subarea
Southeast 8,700 3,2(0 8,800 3,307 8,900 3,340 9,761 3,564
Subarea
PAA Total 20,560 7,2 0 20,960 7,472 21,460 7,620 26,019 9,473
Source: 2000 U S Census, an, King County Office of Regional Policy and Planning, January 2002; ECONorthwest 2002 and 2003
Feasibility Study Methodology - Cost and Revenue Forecasts
There are many vvays to forecast costs and revenues associated with annexation.
Examples indue e per capita analysis or estimates that are based on the experiences of a
handful of so-ca led "comparable" cities. The City of Federal Way desired an analysis
with a high degr ~e of reliability; therefore, the study approach to evaluating the fiscal
impacts of anne ation is based on a more detailed analysis of the fundamental
characteristics 0 the three P AA major subareas and comparisons of those characteristics
with the definin characteristics of the existing City.
The Feasibility tudy analysis looks at the fundamental drivers of demand for City
services within he existing boundaries of Federal Way, and based on a comparison of
similar drivers i the three P AAs, estimates the additional demand for each service that
would be introd ced by annexation of each area.
In the case of la N enforcement, for example, a typical assessment of service costs might
be based on figt res 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 diffen nces between the PAAs and the existing City of Federal Way) the
Feasibility Stud. estimates of the demand drivers for police services take into account,
first, difference~ in the level of commercial activity among each of the areas and second,
the different ch~ racteristics of each area's residential base.
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Among households in each of the PAAs, the study estimate of police demand
distinguishes between the typical demand characteristics associated with five different
combinations of housing type and tenure: (1) 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:
· 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 LOS, staffing, and expenditures in Federal Way is the benchmark for
forecasting comparable LOS, 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, fire/EMS, 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 fulIy summarized in Section 8.11.
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8.4 NATURAL ENV RONMENT
Environmentall sensitive areas in the P AA include wetlands, streams and lakes, fish and
wildlife habitat onservation areas, aquifer recharge areas, frequently flooded areas, and
geologic hazard areas, The March 18, 2002, P AA Inventory Report provides a detailed
inventory and d scription of these critical areas. Many of these areas have already been
identified, delin ated, mapped, and classified. In addition, the inventory report details the
implications of ederal, state, and local policies regarding environmentally sensitive areas
pending any po ntial future annexation,
Summary of Inv ntory
The Federal En angered Species Act (ESA), Washington State Priority Habitat and
Species Progra (PHS), and the GMA provide levels of protection for endangered,
threatened, or s nsitive species and habitats, and hazard protection, Please refer to Maps
VIII-3 and VIII- for locations of sensitive and hazard areas within the P AA. A brief
description oft e results from research on the environment is provided below.
Wetlands
There are appro imately 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, Lakel nd has the largest acreage of wetlands (see Map VIII-3). Both the county
and City have r gulations protecting wetlands with buffers and other requirements
varying by wetl nd class.
Streams
A distinctive c racteristic of the P AA is that most of the area is a headwater to several
major streams ( ylebos Creek, Mullen Slough, and Mill Creek). Most of the streams in
the Federal Wa 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 consi ered major streams, also requiring a IOO-foot buffer.
lakes
Lakes in the P include Star, Dollof, North, Killamey, Geneva, and Five Mile lakes.
The Federal W; City Code (FWCC) has defined specific wetlands within the City as
regulated lakes, i.e. those located in the City and contained in King County Wetlands
Inventory Note ook Volume 3, South. Upon annexation of areas containing lakes, the
City would des gnate specific lakes within the P AA as regulated lakes. The setback
. requirement fo regulated lakes is 25-feet landward in every direction from the ordinary
high water mar of the lake,
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FWCP - Chapter Eight, Potential Annexaijon Areas
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 ofI-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 FWCC Sections 18-28 and 22-1.
The federal ESA 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 Salmon ids Checklist," primarily using the SEPA
process to determine mitigation required beyond code requirements,
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 PAA. 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 VIII-3. 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 PAA 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 P AA
and Federal Way.
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As defined in thJ City of Federal Way Sensitive Area Ordinance, siting criteria for wells
must comply wi~h state law. Furthermore, any improvement or use on a subject property
is subject to stat requirements regarding separation of wells from sources of pollution.
Frequently Floo ed Areas
There are no Fe eral Emergency Management Agency (FEMA) recognized frequently
flooded areas in he City of Federal Way. There is a 100-year floodplain located around
Lake Dolloff in he P AA (see Map VIII-3). King County regulations require that
development acfvities, including fill, may not cause the base flood elevation to rise.
Federal Way ha similar floodplain regulations in its Surface and Stormwater
Management C de, FWCC Chapter 21,
Geologic Hazar Areas
There are small ortions of the Parkway, Jovita, and North Lake Subareas, which have
landslide hazard areas and erosion hazard areas, mostly located near streams or steep
slope areas. The e are also small portions of the Camelot and Lakeland Subareas that
have erosion ha ard 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
VIII-4,
Environmental oals and Policies
The following e vironmental goal and policies are provided to address P AA
environmental c nditions.
Practice enviro mental stewardship by protecting. enhancing and promoting the natural
environment in nd around the P AA.
Environmental P
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 IOO-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.
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FWCP - Chapter Eight, Potential Annexation Areas
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.
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 Comer 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,
8.5 LAND USE
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 PAA contains primarily single family residential land uses as shown in
Figure VIII-I (page 19), and Table VIII-2 (page 20), Of any neighborhood, the Parkway
neighborhood has the most acres in multiple family uses although still primarily
containing single family uses.
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FWCP - Chapter Eight, Potential Annexation Areas
Figure VIII-l
I Potential Annexation Area
2r02 Existing Land Use Distribution
I (Based on Total Acres)
130,2 99.8
119.8
187.1
30.6
Revised 2003
. Commercial
. Easements
. Industrial
o No Data
. Office
. Open Space, Common Areas & Drainage
. Public Park
. Quasi-Public
. Recreation
. Residential, Multi-Family
o Residential, Single-Family
D Rights-ot-Way
. Utilities
o Vacant
. Water
VIII-19
FWCP - Chapter Eight, Potential Annexation Areas
Table VIII-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 1.9 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,
Common Areas, 0.2 1% 27.7 3% 35.8 3% 1.8 0% 7.7 1% 56.9 9% 0.1 0%
& Drainage
Public Park 0,0 0% 16,7 2% 18.4 1% 0.0 0% 64.7 5% 0.0 0% 0,0 0%
Ouasi-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-Familv
Residential, 6,9 16% 412.3 50% 702,6 54% 140.6 37% 643,0 47% 271.9 41% 217.3 49"10
Single-Family
Rights-of- W av 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%
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 Information System (GIS).
Multi family includes triplex, fourplex, apartments, condominiums, and group homes.
No data is used for parcels where King County parcel information was unavailable,
Easements include transportation and utility.
Not all right of way 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.
· P AA Generally - Numerous home occupations (for example, home day care
operations, individual construction contractors, home-based professional
services, and others)
Revised 2003 VIII-20
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During the years I 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 d velopments totaling about 605 units. The majority of the preliminary
plat lots were 10 ated 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. esidential development has continued since the compilation of county
data in 2000 and 2001,
Essential Public
RCW 36.70A.2 0 states that essential public facilities are, "... those facilities that are
typically difficu t to site, such as:
.
Airport
State ed cation facilities,
State or egional transportation facilities as defined in RCW 47.06.140,
State an local correctional facilities,
Solid w ste handling facilities,
In-patie t facilities including substance facilities, mental health facilities, group
homes, nd
Secure ommunity 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 offacilities that are difficult to site. No local
comprehensive Ian or development regulation may preclude the siting of essential public
facilities.
The P AA conta' s several essential public facilities, including highways of statewide
significance suc as 1-5 and SR-18, a WSDOT maintenance facility, the closed &
monitored Puya luplKit Corner Landfill (see section 8.11, Solid Waste), group homes,
and potentially thers that remain to be identified beyond present inventory efforts.
Under county 0 City plans and rules, essential public facilities are required to undergo a
review process or siting them.
Cultural Resour
The King Coun Historic Preservation Program has identified historic properties
included in the ing County Historic Resource Inventory. The only designated or
potentiallyeligi Ie historic landmarks are in the Lakeland neighborhood of the Southeast
Subarea (see M 'P VIII-6). The Sutherland Grocery and Gas Station, built in the 1930's,
was designated King County Landmark in 2002. The two other potentially eligible
historic sites ar the Westborg House, a farmhouse built in 1905 by M. Westborg on
. property origin lly part of a 160-acre homestead owned by James Duncan, and the
Fancher House, a home and barn built in 1923.
Revised 2003
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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.
land Use Plan
The predominant character of the P 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 PAA 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 classification system
were warranted in certain locations of the PAA. Geographic Information System (GIS)
analysis produced a series of maps to help identify:
· Nonconforming Uses - Existing uses that either under the King County
classification/zoning system or the City potential classificationlzoning system
may be considered nonconforming-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-l zoning areas were reviewed to determine if environmental
characteristics warrant Federal Way equivalent zoning (RS-35.0) to King
County's R-I (one residential dwelling per acre) zoning.
.
Potential Incompatibilities - The PAA Subarea Planning Team reviewed sites
where there could be a potential for incompatibility with City policies/codes, or
other concerns,
Revised 2003
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The result of the jland use and zoning analysis is a land use plan that:
· Recogni es and supports the predominant single-family suburban character of the
PAA.
· Recogni es the need for neighborhood or community level business goods and
services t key nodes in the P AA such -as at the intersection of arterials,
· Creates consistent, compatible long-term land use pattern recognizing the
predomi ant and unique character of P AA neighborhoods.
Land Use Capo ity Analysis
The Federal Wa PAA has an estimated Year 2003 population of21,460 with most of the
population resid ng in the Northeast Subarea, The GMA and King County CWPP's
require that Kin County and its cities accommodate their fair share of the future growth
projected for Ki g County. The PAA has been found to contain a large supply of vacant
and underdevelo ed land, with the capacity to accommodate significant future
development (a proximately 3,717 dwelling units as described further below). Future
development "ta gets," expressed in the number of housing units, are determined through
an interactive, ulti-jurisdictional process between King County and cities located
within, consider ng land capacity, market factors, and other parameters. Through this
ongoing regiona process, the P AA growth target for the years 200 I to 2022 is
established at 1, 20 units, The employment target is established at 134 jobs, The PAA
land capacity yi Id can be compared with the growth targets to help determine the ability
of the land use p an to meet growth management obligations.
As part of a cou tywide effort to prepare an analysis of buildable lands pursuant to GMA
requirements, th county has estimated the capacity of vacant and underdeveloped (land
not developed t full potential) lands in the P AA. Consistent with regionally established
methods that ar tailored to reflect King County conditions, the total vacant and
underdeveloped acres were discounted for critical areas such as wetlands, streams, and
steep slopes, rig ts-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 ased upon achieved densities in developed projects over the period 1995-
2000. The result for the 20-year period of2001 to 2022 are a potential dwelling capacity
of3,754 units a d an employment capacity of 134 jobs calculated by King County. The
City of Federal ay conducted a similar residential capacity analysis with results of
3,717 dwelling nits, very close to the county's analysis since similar land use
classifications a e assumed.
It should be not d that a capacity analysis may make adjustments or discounts to the
amount of avail ble land, but does not estimate the time or rate that growth will occur,
only the capaci of the land for additional development. The market demand for homes
and places of e ployment will in part determine the timing and rate of growth within the
20-year plannin period for the PAA. To help identify potential market demands, the City
conducted a ma ket analysis for the PAA with the Puget Sound Regional Council
Revised 2003
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FWCP - Chapter Eight, Potential Annexation Areas
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 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 PAA Pre-
Annexation Zoning Map shown in Map VIII-7 has been prepared to correspond to the
proposed P AA Pre-Annexation Comprehensive Plan in Map VIII-6,
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 ofthe
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)
Revised 2003
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The adoptin ordinance for the pre-annexation plan and zoning should specify
the time inte al following an annexation during which the ordinance adopting
the pre-anne ation plan and zoning, must remain in effect before it may be
amended, s plemented or modified by subsequent ordinance or resolution
adopted by t e annexing city or town. Any amendment to the pre-annexation
land use pIa that is adopted as part of the Comprehensive Plan is subject to the
general GM limitation that the comprehensive plan may be amended no more
frequently t an once a year, unless exceptions are met. (Municipal Research &
Services Ce ter of Washington, Annexation Handbook, Revised December 2001
- Report No 19)
The Steering Co mittee held public meetings in preparing the Subarea Plan. Planning
Commission an City Council public hearings were held as part of the Subarea Plan
process to fulfil local City public participation requirements and the requirements to
ultimatelyestab ish Pre-Annexation Comprehensive Plan and Zoning Map designations
(see Maps VIII- and VII-7, respectively).
Land Use Goals and Policies
The PAA land se goal and policies are provided in this section, and address land use
character and la d use planning in the P AA,
Land Use Goal
Respect the cha acter, 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 PAA Annex-4),
P AA LV - 2 City and county plans and regulations shall emphasize single-family
detached dwellings as the primary use in the PAA'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.
Revised 2003 VIII-25
FWCP - Chapter Eight, Potential Annexation Areas
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 transitional land areas in
the PAA that may present unique and/or highly visible sites forhigh 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 Policies
P AA LV - 7 Prior to and upon annexation, the City and county should 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 P AA.
P AA LV-8 The City and/or county should conduct a P AA historic inventory update
prior to or upon annexation.
P AA LV-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
P AA LV - 10 Commercial locations, development standards, and permitted 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 LV - 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.
P AA LV - 12 The City and county should promote the redevelopment and
strengthening of viable commercial centers, such as in the Redondo East
Community Subarea.
Revised 2003 VIII-26
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P AA LV - 13 Icommercial development should be encouraged on properties designated
commercial on the P AA comprehensive plan land use and zoning maps
to help meet the PAA employment target determined in the CWPP's.
Essential Pnblie FrcilitieS Policies
The FWCP Lanp Use chapter policies address essential public facilities. Additional
policies are not ~ncluded.
8.6 HOUSING
Summary of Inv ntory
The Federal W y P AA has an estimated Year 2003 population of 2] ,460, with the larger
population resi ing in the Northeast Subarea. As ofthe Year 2000, a majority of the
dwelling units re single-family (83 percent; 6,050 units) in the PAA as a whole, and
most dwellings rre owner-occupied rather than rented except in Redondo East.
I
Most of the sin!le-famiIY housing has typically been developed since 1960. However,
there are pocke s of older, well-maintained homes occupied by long-time area residents.
The communiti s with the newest single-family housing stock include Redondo East, Star
Lake, and parkf,ay. Few single-family homes are considered to be in poor condition and
most are consid red average in all neighborhoods. Neighborhoods with the highest
percent ofhom s rated "good" by the King County Assessor include Camelot, Jovita, and
Lakeland. I
There are abOU~ 1,200 multifamily units in the PAA (17 percent of total Year 2000 units).
PAA multifami y complexes (excluding mobile home parks) are described by the King
County Assess r as average or low quality in condition.
The King Coun CWPP's commit the City and the county to ensuring there is capacity
in their com pre ensive plans to meet their assigned targets, which for the P AA equals
1,320 addition housing units. There is sufficient vacant and underdeveloped land in the
P AA to accom odate this target without significant zoning changes. It should be noted,
however, that t e timing and rate of this growth would occur based upon market forces.
In addition to a portioning general housing growth targets, the CWPP's indicate that
jurisdictions sh uld promote affordable housing to low and very low income households,
at 20-25 perce and 17 percent of the overall housing target respectively. In 1998, King
County publish d a King County Market Rate Affordability Study. A review of the
housing stock ordability was conducted for the City of Federal Way, and all of
Un incorporate King County. The results show that Federal Way and Unincorporated
King County a a whole provide substantial percentages of affordable housing, both
ownership and ental, particularly in relation to other King County locations. Housing
VIII-27
Revised 2003
FWCP - Chapter Eight, Potential Annexation Areas
sales information for the PAA would tend to support the countywide study. Considering
principal and interest (seven 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 VIII-3).
Table VIII-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
2001 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
Kin Count Income, Famil of 4
Year 2002, income level at 60% of median $46,740
Kin County Income, Famil of 4
80% of Median Income x 30% of Annual $16,320.00
Income, Famil 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 of2001.
** Assumes Mortgage Payment Factors (principal and interest only) 30 year fixed, seven 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.
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.
Revised 2003
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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 FWCP Hou ing chapter policies address housing stock protection, existing and
future affordabi ity, and special needs, and would also be applicable to the P AA.
8.7 PARKS AND R CREATION
Summary of Par s Planning Efforts and Inventory
The City of Fed ral Way Parks, Recreation, and Cultural Services (PRCS) Department
has prepared a arks, Recreation, and Open Space Comprehensive Plan, which was
originally creat d in 1991 and updated in 1995 and 2000. The PRCS plan is currently
being updated d 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.
I
The primary go I of the Parks, Recreation, and Open Space Comprehensive Plan is to
assure that a pa serves every neighborhood in Federal Way. Currently, the City is
providing 10.1 cres of parks per 1,000 population in the current City limits. The City's
goal is to provi e 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 a d size.
The City of Fed ral Way's existing parks and recreational areas are divided into six
categories. Eac 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: Neighborh od Parks, Community Parks, Regional Parks, Special Use Areas, Trails,
and Undevelop d Land/Open Space Areas. The total parkland in Federal Way equals
846.0 acres as year 2002.
The PAA is pri arily served by five county park sites totaling 109.52 acres (see Table
VIII-4, page 30, and Map VIII-5). All ofthe active park facilities are located in the
Lakeland com unity subarea, while natural park and passive park areas are found in the
Star Lake and amelot community subareas. Completed in 2000, the South County
Ballfields Phas 2 is the only recent capital project completed in the P AA. Furthermore,
King County E ecutive's Proposed 2002-2007 Capital Improvement Program does not
include plans f, r any new projects or improvements in the P AA.
Revised 2003
VIII-29
FWCP - Chapter Eight, Potential Annexation Areas
Table VIII-4
P AA Park Facilities Owned By King County
PAA 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 31.71
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 18,2002
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.
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 VIII-5, page 31). 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
VIII-6 (page 32) 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 (Lake land, Jovita,
Parkland). A discussion of public service operating and capital costs and revenues,
including parks & recreation, can be found in Section 8.11, Public Services and Capital
Facilities.
Revised 2003
VIII-3D
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Table VIII-5
P AA and City Parks Levels of Service
Level of Servic e Measure Redondo Northeast Southeast Federal Way
East P AA P AA Subarea PAA'Subarea
A. Neighborhood Park L and 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 1,000) 0.0 0,0 0.0 1.5
Level of Service Standa d (acres per 1,000) NA* NA* NA* 1.7
B. Community Park Lan d Acres per 1,000
Population' Total acres of community-wide
parks (15-25 acres) for ctive use divided
by population (times 1,0 DO)
Actual Level of Service acres per 1,000) 0 0 8.6 2.6
Level of Service Standa d (acres per 1,000) NA* NA* NA* 2.8
C. Trail Acres per 1,000 Population' Total
acres of trail system div ded by population
(times 1,000) **
Actual Level of Service acres oer 1,000) 0.0 0.0 0.0 1.1
Level of Service StandaJ d (acres per 1,000) NA* NA* NA* 2.2
D. Open Space Acres pc r 1,000 Population'
Total acres undeveloped land by population
(times 1,000)
Actual Level of Service (acres per 1,000) 0.0 3.0 0.0 4.2
Level of Service StandaJ d (acres per 1,000). NA* NA* NA* 6.0
E. Community Center S luare Feet per
1,000 Population' Tota square feet divided
by population (times 1,( 00)
Actual Level of Service (square feet per 0.0 0.0 0.0 131
1,000)
Level of Service Standa d (square feet per NA* NA* NA* 600
1,000)
Source: Henderson, Y ung & Company, July 11,2003
* King County LOS s ndards are based on a parks classification system that is different than the City of Federal Way
** There are no traits n the PAA meeting the City's definition ofa trail.
Revised 2003 VIII-31
FWCP - Chapter Eight. Potential Annexation Areas
Table VIII-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 2002-2007 2008-2014 2015-2020
ID
1.00 Areawide CIP 0 0 0
Programs
2.00 Parkway Neighborhood
2.0\ Neighborhood Parks 271,58\ 8 360,529 360,529 360,529
2.02 Community Parks 0 0 0 0 0
2.03 Trails 229,878 1,348,618 526,165 526,165 526,\65
2.04 Open Space 1,198,152 5,573 401,242 401,242 40 I ,242
2.05 Community Center 0 334,368 111,456 111,456 111,456
Subtotal Parkway 0 1,699,611 1,399,392 1,399,392 1,399,392
Neighborhood
3.00 Jovita Neighborhood
3.01 Neighborhood Parks 89,416 118,701 118,701 118,701
3.02 Community Parks 147,273 307,390 307,390 307,390
3.03 Trails 75,686 173,236 173,236 173,236
3.04 Open Space 394,482 132,106 132,106 132,106
3.05 Community Center 0 36,696 36,696 36,696
Subtotallovita 0 706,857 768,129 768,129 768,129
Neighborhood
4.00 Lakeland
Neighborhood
4.01 Neighborhood Parks 198,072 590,761 262,944 262,944 262,944
4.02 Community Parks 0 0 0 0
4.03 Trails 167,657 383,747 383,747 383,747
4.04 Open Space 873,846 292,637 292,637 292,637
4.05 Community Center 0 243,864 81,288 81,288 81,288
Subtotal Lakeland 0 1,239,575 1,020,616 1,020,616 1,020,616
Neighborhood
Subtotal Southeast 0 3,646,043 3,188,137 3,188,137 3,188,137
Area
5.00 North Lake
Neighborhood
5.01 Nei hborhood Parks 146,434 436,748 194,394 194,394 194,394
Revised 2003 VIII-32
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Project Costs in 2002 Dollars Year of Construction and
Project Costs in 2002 Dollars
Project Capital Project List D sign Acquisition Construction Total 2002-2007 2008-2014 2015-2020
ID
5.02 Community Parks 241,185 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 3,005 649,037 216,346 216,346 216,346
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 235,557 702,564 312,707 312,707 312,707
6.02 Community Parks 387,977 2,041,390 809,789 809,789 809,789
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 1,646,176 732,703 732,703 732,703
7.02 Community Parks 909,068 4,783,178 1,897,415 1,897,415 1,897,415
7.03 Trails 467,181 2,740,795 1,069,325 1,069,325 1,069,325
7.04 Open Space 1,657,564 7,710 555,091 555,091 555,091
7.05 Community Center 0 679,536 226,512 226,512 226,512
Subtotal Camelot 0 3,585,747 9,857,395 4,481,047 4,481,047 4,481,047
Neighborhood
Subtotal Northeast 0 5,886,530 16,678,816 7,521,782 7,521,782 7,521,782
Area
8.00 Redondo East
Neighborhood
8.01 Neighborhood Parks 22,690 67,675 30,122 30,122 30,122
8.02 Community Parks 37,372 196,638 78,003 78,003 78,003
8.03 Trails 19,206 112,675 43,960 43,960 43,960
8.04 Open Space 100,104 466 33,523 33,523 33,523
8.05 Community Center 0 9,312 9,312 9,312
Subtotal Redondo Area 0 179,372 194,921 194,921 194,921
Total 0 9,711,945
Source: Henderson oung and Company, 2003
23,002,575
10,904,840 10,904,840 10,904,840
Revised 2003
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FWCP - Chapter Eight, Potential Annexation Areas
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 PAA
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.
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.
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.
Revised 2003 VI 11-34
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8.8 SURFACE WAT R
Summary of Inv ntory
The P AA is aim )st entirely within the nearly level upland plateau which is immediately
adjacent to stee~ slopes at the edge of the Green and White River valleys, and Puget
Sound (in the ca e of the Redondo Subarea). As a result, historical stormwater systems
within the P AA . nclude a series of lake and wetland complexes that drain in steep ravines
to the rivers and streams below. The most distinctive characteristic of the PAA is that
most of the area is a headwater to several significant streams (Hylebos Creek, Mullen
Slough, and Mil Creek).
Five drainage b. sins have been identified by King County mapping within the P AA. These
designations als agree with the City of Federal Way designations: Lower Green River,
Mill Creek, Wh te River, Hylebos Creek, and Lower Puget Sound (see Map VIII-8).
Surface Water F~ cilities
Within the varic us drainage basins, the PAA contains a variety of surface water facilities
that require insp ection and maintenance by several county divisions and/or property
owners as listed in Tables VIII-7 through VIII-9 (regional and local surface water
facilities are she wn on Map VIII-8):
Table VIII-7
In-Road Surface Water Facilities
Measurement Unit Redondo Northeast Southeast
Facility Subarea Subarea Subarea
Curb And Gutter F lineal feet 1,902 252,806 92,206
Catch Basin & Manhole A each 19 1,361.00 633
Paved Ditch And Gutter F lineal feet 0 755 450
Open Ditch F lineal feet 707 85,292.00 81,916.00
Enclosed System P lineal feet storm pipe 1,557 149,913 70,980
Cross Tile And Access A each 9 985 699
Cross Culverts A each 7 614 332
Curb & Gutter And Thick ill road mile 0.3 55.2 22.5
Bridge Drains A each 0 6 6
Auxiliary Pipe F lineal feet 1 2,697 1,611
Trash Racks A each 0 0 0
Headwalls A each 0 1 0
Cross Culverts F lineal feet 0 590 0
Box Culverts A each 0 0 0
RID Facilities A each 0 2 1
Source: King County Roads Division, January 2002
Revised 2003
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Table VIII-8
Regional Stormwater Facilities
Subarea Facility Name Address Type of Facility
Northeast Sweet Briar Drainage 4700 S 292no St (immediately Pipe
Improvement east of 4613 S 292nd)
Northeast P-32 (Camelot Park) 29800 36tn PI S Pump Station
Northeast Lake Dolloff Outlet 4200 308lh 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 Oiv I 37546 21st Ave S HOPE Pipe
Southeast Regency Woods Oiv I 37694 18tn PI S. HOPE Pipe
Southeast Regency Woods Oiv 4 37934 23ra PI S HOPE Pipe
Southeast Regency Woods Oiv 4 37811 21st Ct S HOPE Pipe
Southeast Regency Woods Oiv 4 1817 S 380tn PI HOPE Pipe
Source: King County Department of Natural Resources, December 21, 2001; January 29, 2002
Table VIII-9
Residential and Commercial Drainage Facilities
Type of Facility Subarea Number of Facilities
Residential Northeast 40
Southeast 26
Redondo I
Total 67
Commercial Northeast 9
Southeast 16
Redondo 4
Total 29
TOTAL 96
Source: King County Department of Natural Resources, December 21,2001; January 29, 2002.
Surface Water Level of Service Analysis, July 11,2003.
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 five years, only
eight 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.
Revised 2003
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Discussion wit~King County Roads Maintenance Division 3 indicates a number of
locations with d ainage related problems. Certain street locations are subject to
occasional floo ing. Also, as noted in the P AA Inventory, the area around Lake Dolloff is
in a designated oodplain. Recently the Roads Maintenance Division addressed surface
water problems ith a 48-inch crosstile at Peasley Canyon Road, and a pipe and catch
basin within an asement to Lake Geneva. The Peasley Canyon Road area is subject to
landslide and er sion due to sensitive environmental conditions (designated landslide and
erosion hazard ea). Lake Geneva is subject to periodic maintenance for cleaning of
inlets and drain ge structures, which indicates potential for periodic sediment and debris
accumulations.
More problemat c drainage conditions indicated by King County Roads Maintenance
Division 3 are Ii ted in Table VIII-IO. The drainage facilities and locations listed are
subject to flood. g by excessive stormwater flows, and must be monitored during storms.
The problems a e severe enough to warrant study of a design solution for the facility and
the local draina e system. Several other nearby areas with known problems are also listed
in the following Table VllI-II. The problems may be related to drainage conditions in the
PAA, possibly ontributing flow or groundwater, and Federal Way may be asked to
participate in a olution to that problem. Problems on Tables VIII-IO and VIII-II appear
on Map VIII-8.
Table VIII-IO
Road Maint nance Problems in P AA King County Maintenance Division 3
6.
Street
SE 288' St 1-5 Two Catch basins
3366 S 290' St Two Catch basins
38 Ave S & S 304' Water over road signs. On roblem.
S 342" St & 44 Ave S Crosstile east of 44' Ave S should be monitored.
ource: King County Roads Maintenance Division 3, 2002, Updated April 2003
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Road Maintenrnce Problems Near P AA King County Maintenance Division 3
No. Subarea Street Problem
5. Northeast 296 St east of64' Ave S w/ofW Steep bank, excessive water. Should be
alley Rd from 64th Ave S down to monitored.
erideth Hill
296 St east of 6 I 5' Ave S w/of 55
ve S
ower Lk Fenwick Rd S
No.
1.
2.
3.
4.
Subare
Northeas
Northeas
Northeas
Southeas
Problem
8.
9.
Northeast
Redondo
East
Crosstile to pond. Should be monitored.
Northeast
7.
Northeast
36" inlet to MH/lake overflow. Needs to
be monitored.
Floodin . Needs to be monitored.
All inlets and Catch basins. Needs to be
ilita monitored.
Source: King County Roads Maintenance Division 3, 2002, Updated April 2003
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It is anticipated that after annexation, Federal Way will experience a similar level of
complaints and responses in the PAA. 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).
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.
· 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 proportional increase in the City's maintenance budget.
· Increased program space needs will possibly require larger maintenance facilities
than those currently planned by Federal Way and possibly accelerate 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.
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.
King C unty has identified 67 residential and 29 commercial drainage facilities
in the P A. The residential facilities are inspected and maintained by King
County. The commercial facilities are inspected by King County and maintained
by the roperty owner. Federal Way will need to evaluate the feasibility of
inspecti n and maintenance.
.
An initihl sustained cleaning effort will likely be needed to bring the ditch system
to a lev~l of improvement where minimal routine maintenance would be needed.
This co Id take approximately two years, depending on the levels of
accumu ations and restoration needed, and may need to respond to the Tri-
County Regional Road Maintenance Program, a program that implements road
mainte ance practices that protect habitat by reducing pollutants and sediment
from re ching environmentally sensitive areas such as rivers, streams, and
wetlan s. The program also encourages the removal of old road culverts and
other bl ckages that prevent fish from reaching spawning areas.
.
It is ant cipated with the annexation that Federal Way may take a more active
role wi the drainage and water quality aspects of the PAA lake system. There
are vari us options for Federal Way to set up the lake management system,
includi g use of homeowners associations, lake management districts, and the
City's ormwater management utility.
.
Upon nexation of the PAA, it is anticipated that Federal Way will expand its
water q ality program to provide more lake water quality management and
surface water quality monitoring. This could include a variety of program
e1emen s, such as volunteer groups, monitoring stations, community
organi tion, and public education.
.
Federal Way will need to increase other stormwater program components to
include the P AA. A notable expansion element will be a field inventory of the
storm ainage system, which is a part of the I1Iicit Discharge Detection and
Elimin tion requirement in the Phase II National Pollutant Discharge Elimination
System (NPDES) program.
.
Potenti I capital improvements are anticipated to include:
o Th four problem areas indicated in Table VIII-JO, from King County
M intenance Division 3. Some additional improvements may be needed
de ending on the outcome of complaints that have remained open as shown
In e PAA Inventory.
o King County Executive Proposed Basin Planfor Hylebos Creek and
er Puget Sound includes the following:
~ Project 2442: South 360th Street Regional Detention Pond - Construct a
regional detention facility on tributary 00 116A at about South 360th
Street (extended). This project may be completed through a partnership
with the Washington State Department of Transportation (WSDOT) and
the City of Federal Way.
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>- 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.
o 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 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 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 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 VIII-I2.
Table VIII-12
Federal Way Potential Annexation Area Capital Costs for Surface Water
Ca ital 1m rovements
Project Costs in 2002 Dollars (000) Year of Construction and 2002
Dollars (000)
Pro'ect ID 2002-2007 2008-2014 2015-2020
1.00 Area Wide Programs
1.01
Storm Drain System
Inventory and
Comprehensive Plan
300
Major Maintenance:
Ditch Cleaning
Stormwater Facility Cleaning
Subtotal General
2.00 Parkway Neighborhood
1.02
1.03
300
Hy/ebos Executive Proposed
Plan
300
544
223
1,067
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Project Costs in 2002 Dollars (000)
Year of Construction and 2002
Dollars (000)
Total 2002-2007 2008-2014 2015-2020
Pro'ect ID
2.01 2442-S 360th Regional Del.
Pond
2.02 2444-SR 161 Conveyance
Upgrades
4.00 Lakeland Neighborhood
Hylebos Executive Propose
Plan
4.01 2446-SR 161 Regional Pon
King County Road
Maintenance Div 3 ~
Identified Problems
4.02 Crosstile east of 44th Ave S
Subtotal Southeast Ar a
7.00 Camelot Neighborhood
King County Road
Maintenance Div 3 ~
Identified Problems
7.01 (1) 2 Catch basins
7.02 (2) 2 Catch basins
7.03 (5) Water over road signs
Subtotal Northeast Ar a
Subtotal Redondo Ar a
1,565 1,565
372
598
598
7
35
42
7
35 2,578
2,578
7
35
42
7
165
35
42
990
179
o
o
895 1,074
o 0
1,074
o
o
o
Total 486 0 930 4,719 4,719
Notes: Source: TetraTech/KCM, Inc., 2003
(I) All projects assumed for construction in five years unless differently stated in source CIP document.
(2) No separate cost given ti r design, acquisition for Hylebos, and certain other CIP figures.
(3) Estimated cost for main nance problems and projects assume 100 percent contingency (very general estimates). Permitting
costs were assumed to be in luded in the contingency.
(4) Costs escalated from ori inal sources to 2002 dollars.
(5) Does not include water uality program costs, including lake management.
(6) Does not include routin maintenance increase, such as catch basin cleaning, street sweeping.
(7) There are several proje identified in the Mill Creek SAMP and Mill Creek Basin Flood Management Plan. These projects
are not within the PAA; ho ever, the City of Federal Way may be asked to help adjacent jurisdictions with cost sharing in the
future if annexation occurs ecause King County was identified as a possible agency which could provide cost sharing and
because of the location of e headwaters for these projects within the PAA. However, there has been no determination of
specific cost share by Feder I Way and none are estimated above.
(8) Cost data for estimates ere derived from the following sources:
a. Federal Way stimates for ditch cleaning, with a 33 percent contingency.
b. Federal Way taff information for pond cleaning costs. Pond facilities (wet ponds, infiltration facilities, etc.) were
estimated at ,000 per facility. Other facilities (catch basins, tanks, etc.) were assumed at $1,000 per facility. The
costs were as umed to include some contingency; therefore, no additional contingency was applied.
c. Planning cost estimates for stormwater facilities developed for the City of Auburn 2002 Comprehensive Drainage
Plan. Conve nce costs included a ratio off our catch basins per 300 feet. When individual catch basins or
manholes we indicated, separate cost estimates for the catch basin or manhole were made, using the planning
cost estimate developed for the Washington State Department of Transportation (WSDOT) outfall inventory
project (2002 .
d. Costs for ce in stormwater facilities, and costs for mobilization, traffic control, tax, engineering, and land
acquisition w re obtained from planning cost estimates developed for WSDOT outfall inventory project (2002).
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A discussion of public service operating and capital costs and revenues including the
Surface Water enterprise fund can be found in Section 8.11, Public Services and Capital
Facilities.
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.
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 PAA areas east ofl-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.
8.9 TRANSPORTATION
Summary of Inventory
The F ederal Way P AA is served by a series of arterial roadways that provide local and
regional transportation access (refer to Map VIII-9). 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.
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 South) and SR-161 (Enchanted Parkway South). 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.
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The majority Jthe street network in the PAA is characteristically rural with aspbalt
concrete pavemtnt, gravel shoulders, and ditches for drainage purposes. The street
network is large y underdeveloped, with many cul-de-sacs and dead-end streets creating
insufficient con ectivity. Furthermore, a general lack of sidewalks and existing
luminaires inhit it pedestrian traffic and present public safety concerns. Luminaires are
limited to street intersections along arterial streets and newer subdivisions, with very few
mid-block lumiJ aires along arterial streets. Most arterial corridors in the P AA,
particularly in tI e southeast, lack sidewalks and, in most cases, are poorly lit. As shown
in Table VIII-L , sidewalks are a smaller percent of lane road miles.
Table VIII-I3
Street Inventory Within P AA
Inventory Item Redondo East Subarea Northeast Subarea Southeast Subarea
All Road Miles* 0.3 miles 46.6 miles 28.9 miles
All Paved Road Su faces,
Lane Miles 0.6 93.2 57.3
Curb & Gutter (lin ar 1,902 252,806 92,206
feet) (~0.4 miles) (--48 miles) (~17 miles)
Paved Sidewalk, 0 e side 0.4 miles 25.5 miles 12.3 miles
(miles)
Traffic Signals (EI )** 0 12 2
Luminaires (EA) 10 561 190
Street Signs (EA)* * 37 980 520
Notes: Source: King County Roads
*There are several str et clusters in the study area for which road logs do not exist, including: private streets (approx. 7
miles), as well as seVI ral un maintained 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 st ff review and field confirmation, there appear to be nine signals, two flashing beacons, one fire
signal and two traffic ignals on SR 161 (currently WSDOT responsibility) that would become the City's responsibility
upon annexation. Con trollers would need to be replaced to connect to the City's system.
***King County doe not inventory street name signs, which would understate the number of signs maintained.
The largest trail Ie volumes exist along east/west arterial routes, which provide access to
1-5. Over half 0 the arterial roadway miles within the study area have accident rates that
are higher than he average King County accident rates.
Existing and Fut re Transportation levels of Service
The purpose of he intersection level-of-service (LOS) analysis is to identify LOS
deficiencies in he City's PAA, and then evaluate the improvements that will be needed
to meet the Ci 's LOS standard.
LOS is a letter esignation that describes a range of operating conditions along a roadway
segment or at a intersection. The Highway Capacity Manual 2000 (HCM2000) defines
the LOS conce t as, "...a quality measure describing operational conditions within a
. traffic stream, enerally in terms of such service measures as speed and travel time,
freedom to ma euver, traffic interruptions, and comfort and convenience."
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Six grades of LOS are defined for traffic operational analysis. Theyare given letter
designations A through F, with LOS A representing the best range of 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.
Existing LOS
For this study, LOS was analyzed at a total of25 intersections with the results presented
in Map VIII-I0. Intersection LOS analyses were performed using Highway Capacity
Software Version 4.1b (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 St at 51 st Ave S
S 296th St at 51st Ave S
SR 99 at 16th Ave S
LOSF
LOSF
LOS F
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, WSDOT, 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 VIII-
11 (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 located in the Military Road corridor. Twenty-year
intersection LOS deficiencies are shown in Map VIII-II. The average vehicle delay and
LOS changes are:
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tongested Locations
Military Rd S t S 272nd St
Military Rd S t S 320lh St
S 277lh St at 5tth Ave S
S 2881h St at 5 51 Ave S
Military Rd Stt S 3121h St
Peasley Cany n Way S at S Peasley Canyon Rd
Military Rd S t Peasley Canyon Way S
Average Vehicle Delay
and LOS Change
From 42 sec to 116 sec, from D to F
From 27 sec to 73 sec, 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 sec to 351 sec, from 0 to F
From 34 sec to 559 sec, from D to F
Military Rd S at S Star Lake Rd (N Jet) From 39 sec to ECL, from E to F
5151 Ave S at ~ 296th St From 106 sec to 996 sec, from F to F
Military Rd S at S 360th St From 22 sec to ECL, from C to F
281h Ave S at 360lh St From 46 sec to 770 sec, from E to F
SR 99 at 161h ve S Exceeds calculable limits (ECL)
To determine th ~ additional improvements needed to meet the City's LOS standard, the
lowest cost cap a city improvement is sought to address identified deficiency and then
LOS analysis is conducted with the recommended improvements to insure that all
locations will m ;:et the City's LOS standard. With the recommended improvements listed
in Table VIII-14 and shown on Map VIII-12, the City's LOS standard is met at all future
deficient locatio ns.
Table VIII-14
Future LOS and Recommended Improvements
2020 Improved
Intersection LOS Problem Recommended Imorovements LOS
1. Military Rd S @ S F Substantial demand for southbound Add one additional southbound D
272nd St traffic. through lane.
2. Military Rd S @ S E Substantial demand for eastbound Construct an eastbound right D
320th St right turn traffic. turn lane.
3. S 277th St @ 55th F The northbound right turn demand Construct new signalized E
Ave S is queuing while waiting for the intersection.
eastbound to westbound through
green cycle.
4. S 288th St@ 5151 F Insufficient intersection capacity Construct a left turn lane from 0
AveS for the A WSC intersection. westbound to southbound. (25-sec
delay)
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2020 Improved
Intersection LOS Problem Recommended Improvements LOS
Install a traffic signal. D
(47-sec
delay)
5. Military Rd S @ S F Traffic demand on eastbound Install a traffic signal with one D
312thSt . approach exceeds the LOS for eastbound left turn pocket and
TWSC intersections. one eastbound right turn lane.
6. Peasley Canyon F Traffic demand on northbound Install a traffic signal. C
Way S @ S Peasley approach exceeds the LOS for
Canyon Rd TWSC intersections.
7. Military Rd S @ F Traffic demand on the east/west Install a traffic signal at B
Peasley Canyon approaches exceeds the LOS for Military Rd Sand S 340th St
WayS TWSC intersections. and close the southbound
movement on Peasley Canyon
Way S from S 340th to Military
RdS.
8. Military Rd S @ S F Traffic demand on westbound Install a traffic signal with an B
Star Lake Rd (N approach exceeds the LOS for additional southbound through
Jct) TWSC intersections. lane.
9. 51 sl Ave S @ S F Traffic demand on westbound Install a traffic signal with B
296th St approach exceeds the LOS for additional southbound and
TWSC intersections. westbound left turn pockets.
10. Military Rd S @ S F Traffic demand on the east/west Install a traffic signal with C
360lh St approaches exceeds the LOS for additional northbound and
TWSC intersections. southbound left turn pockets.
11. 28th Ave S @ S F Insufficient intersection capacity Install a traffic signal with one C
360th St for the A WSC intersection. southbound right turn pocket
and one southbound through
lane.
12. SR 99 ~ 161h Ave S F Traffic demand on eastbound Install a traffic signal. E
/ S 2791 PI approach exceeds the LOS for
TWSC intersections.
Source: Jones & Stokes 2003 (Federal Way Potential Annexation Area Level of Service Analysis, July I I, 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 $] 0,882,000 through 2020, as shown in Table
VIII-I5 (page 47). 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:
· South 2881h Street at 51 sl Avenue South
· South 2961h Street at 51 sl Avenue South
· SR 99 at 161h Avenue South
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Of the tbree sub Ireas in the PAA, the Northeast Subarea bas the largest estimated
roadway cost at 17,56],000. The largest part ofthis is the Military Road South project
described above.1 The Southeast Subarea has an estimated roadway capital cost of
$3,039,000, wit~ the largest project consisting of a $1,188,000 improvement to the
Military Road squth/South 360th Street intersection. The Redondo East Subarea has a
~otal roa~wa~ COlt of $282,00.0, which consists entirely of the SR 99/16th A venue South
mtersectiOn Imp'lovement project.
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Federal Way Potenti I 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
ID
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 0 275
Peasley Canyon Rd Intersecti n
Improvement
3.02 Peasley Canyon Way S & Mi itary 158 16 1,090
Rd S Intersection Improveme t
4.00 Lakeland Neighborhood
4.01 Military Rd S & S 360th St 162 84 1,188
Intersection Improvement I
4.02 28'" Ave S & S 360' St ~ 65 47 486
Intersection Improvement
Subtotal Southeast rea 426 147 1,188 1,576 275
5.00 North Lake Neighborhood
5.01 S 320th St & Military Rd S 108 165 896
Intersection Improvement
6.00 Star Lake Neighborhood
6.01 Military Rd S & S 272nd St 91 327 946
Intersection Improvement
6.02 Military Rd S & S Star Lake d 41 0 275
(N Jet) Intersection Improve ent
6.03 Military Rd S Improvement - S 305 496 0 801 1,770
272nd St to S Star Lake Road
6.04 S 277th St & 55th Ave S 92 291 914
Intersection Improvement
7.00 Camelot Neighborhood
7.01 S 288th St & 51st Ave S 66 0 451
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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 2002-2007 2008-2014 2015-2020
ID
Intersection Improvement
7.02 S 296th St & 51't Ave S 206 109 1,193 1,508
Intersection Improvement
7.03 S 312th St Improvement
Subtotal Northeast Area 909 1,388 5,264 2,234 1,747 3,580
8.00 Redondo East Neighborhood
8.01 SR-99 & 16th Ave S Intersection 41 0 241 282
Improvement
Subtotal Redondo Area 41 0 241 282 0 0
Subtotal LOSProjeds 3,32;.3 3,855
9.00 Southeast Areawide
9.01 Paving 19,200 6,400 6,400 6,400
9.02 Curb and Gutter 5,400 1,800 1,800 1,800
9.03 Sidewalk 7,400 2,400 2,600 2,400
Subtotal Southeast Area 10,600 10,800 lO,600
10.00 Northeast Areawide
10.01 Paving 4,600 4,700 4,600
10.02 Curb and Gutter 2,000 2,100 2,000
10.03 Sidewalk 3,600 3,700 3,600
Subtotal Northeast Area 30,900 lO,200 lO,500 10,200
11.00 Redondo East Neighborhood
11.01 Curb and Gutter 10 12 10
11.02 Sidewalk 13 13 13
Subtotal Redondo Area 23 25 23
Subtotal Road Cross Section 0 0 20,823 21,325 20,823
Improvements
Total 1,376 1,535 70,460 24,527 24,648 24,678
Source: Jones & Stokes, 2003
Notes: Current expenses for similar construction work within the region were reviewed to determine unit prices for broad categories of
construction line items and typical percentages 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
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frontage improv~ments, through local improvement districts, or other means. The road
cross-section es imates were made in a preliminary fashion for order of magnitude level
of analysis, usin 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 i Redondo East Subarea total $7] ,000 (please refer to Table VIII-15).
A discussion of ublic service operating-and capital costs and revenues, including
transportation, c n be found in Section.8.11, Public Services and Capital Facilities.
Transportation oals and Policies
Transportation ould be guided by the following goal and policies.
Transportation G
Establish a safe, coordinated, and linked multimodal transportation system serving local
and area-wide avel needs.
Transportation P
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 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 VIII-9.
P AA Trans - 2 Joint City and county street standards identified in P AA Trans-l
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 PAA prior to annexation, the City and county
should encourage the connection of streets when considering
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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 form barriers to a coordinated transportation network in the
community.
P AA Trans - 4 The City should work with the county to ensure uniform 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 (CIP) 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 standards. .
P AA Trans - 9 Prior to annexation of the Northeast and Southeast Subareas, as part of
a PAA interlocal agreement the City and county shall establish a
regional traffic planning and mitigation payment system.
8.1 0 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.
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Summary of PAt Inventory
Electric I
Electric utility srrvice for the Federal Way PAA is provided by Puget Sound Energy
(PSE). The PSE grid provides a link between the Bonneville Power Administration
(BPA) Bulk Tra smission System and the local distribution system that connects with
customers. Bul transmission lines supply power into the Federal Way distribution
system and pro ide connections to Tacoma City Light, King, and Pierce Counties. Power
is transferred fr m 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 lin s in the Federal Way PAA.
Distribution su stations transform voltages of 115kV (Kilovolt) or greater to lower
voltages of 12 0 34kV. Electric substations serving the Federal Way PAA include:
Marine View; akota; Belmor; Christopher; Weyerhaeuser; Starwood; Kitts Comer; and
West Campus. ost of the substations include one or two 25,000 kV A transformers. The
load on the sub tation varies continuously, exactly meeting the demand of the customers.
The average PS residential customer uses approximately two kV A per person during
peak winter co itions. Commercial loads are highly business specific. (Based on
information fou d in the Federal Way Potential Annexation Area Inventory, Final,
March 18,200 .)
As new develo ment occurs or consumer electrical demand increases, future substations
will be needed meet the increased demand. The future substations in the PSE long-
range plan incl de: Federal Way; Dolloff; Twin Lakes; Enchanted; Five Mile Lake; and
Killarney. Ther are planned expansions at Marine View Substation and the development
of the transmis ion line corridor between Christopher and Marine View. There are also
future 115 kV I nes planned in the Five Mile Lake area (in Lakeland). (Based on
information fo d in the Federal Way Potential Annexation Area Inventory, Final,
March 18,200 .)
Natural Gas
PSE provides n tural gas to the Federal Way PAA. The PSE customer count in the
Federal Way P A is approximately 5,250. Natural gas is not an essential service, and
therefore, PSE s not mandated to serve all areas. Significant lines in or near the P AA
include a 12-in h STW (steel wrap) supply main located in Military Road South and six-
inch STW loca ed in 288th Street. At this time within the Federal Way PAA, no
improvements re planned to existing facilities. Long range plans for the years 2006-
2007 call for in tallation of a 16-inch STW High Pressure supply main from Auburn
Valley to the S ar Lake area, and the route is still in the planning stage. (Based on
information fo nd in the Federal Way Potential Annexation Area Inventory, Final,
March 18,200 .)
Telephone
Qwest delivers telecommunication services to the Federal Way planning area as regulated
by the Wash in on State Utilities and Transportation Commission (WUTC). Qwest is
required by la to provide adequate telecommunications services on demand.
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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 ofPederal Way and the
P AA. Comcast 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.)
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.
8.11 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 service~ and
facilities. For services that the City would provide if the PAA 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 2003.
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.
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The P AA contai s the following county government facilities: Lake Dolloff Community
Policing Storefro t just west of 51 51 Avenue South in the Camelot neighborhood. A
private, non-pro t senior center operates in the P AA at South 3520d Street in the
Lakeland neighb rhood. While this facility has received some King County and City of
Federal Way fun ing, it is not owned or operated by either jurisdiction. Also, the North
Lake Improveme t Club clubhouse is a non-profit center available for public use,
although not owed or operated by the City of Federal Way or King County.
The operating co ts that could be borne by the City, if it annexed the P AA and provided
general governm nt services, is estimated in Table VIII-17, page 56. (Also see Section
8.7 regarding ca ita I costs for community centers.)
Parks and Recreat on
Please refer to s bsections 8.7 and 8.11.
Police Services
The King Count Sheriff provides police protection services to the P AA. The P AA is
served by Precin t 3, George Sector, with its headquarters in Maple Valley. However,
there is a local s orefront police station near Lake Dolloff in the Camelot neighborhood.
The substation i not manned for general public visitors, and one must call and leave a
message. I
Although calls f, r service in the P AA have decreased by five percent between ] 999 and
2000, during thi time period the number of traffic citations and traffic accident events
increased by 17 nd 12 percent respectively. As of 2000, the crime rate of 35.26 per
1,000 populatio was nearly equal to the crime rate for the countywide area patrolled by
the Sheriffs Of Ice. According to the King County Executive's Proposed 2002-2007
Capital Improv ment Program, there are no new proposed or expanded capital facilities
in the Federal ay PAA.
At the time of i corporation, the City contracted with the King County Sheriffs
Department for olice services. In the spring of 1995, the City decided to terminate its
contract relatio ship with King County and form its own police department. The City's
Public Safety D partment began limited service on September 16, ] 996, and was fully
operational on ctober 16, 1996. Federal Way's Public Safety Department could be
expanded at so e time in the future so that it could effectively provide services to the
P AA. (A comp rison of levels of service in the county and City can be found in Federal
Way Potential nnexation Area Level of Service Analysis, July 11, 2003.)
State laws requ' e 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 ofu incorporated territory into that city (RCW 35.13.360 to 400). The city
would not be re uired to put all transferring employees on the police department payroll.
It is within the ity's discretion to determine what staffing provides an adequate level of
law enforceme t service.
Estimates of pu lie safety operating costs to the City should annexation occur are
provided in Ta Ie VIII-17, page 56.
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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 P AA 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 WUTC. While Waste Management
serves the City ofPederal 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 South 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 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 VIII-17, page 56.
Surface Water
See Subsections 8.8 and 8.11.
Transportation
See Subsection 8.9 and 8.11.
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 P AA would exceed revenues from the P AA by 78 percent annually.
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The net operati~ revenue (or net costs) presented here represent the gap between
operating reven~es generated in each ofthe PAAs under the City's 2003 revenue
structure and th costs of extending 2003 levels of City services to the same areas. In
order to present full picture of operating impacts, this presentation combines fiscal
impacts across number of disparate City funds. The City would undoubtedly continue
City policy that urface Water Management (SWM) costs would be covered by SWM
fees within the ructure of the SWM enterprise fund. Such a strategy would require
increased SWM fees and/or decreased levels of SWM services by $538,000 (the
difference betw en estimated SWM operating costs ($823,000) given current service
levels and estim ted revenues ($285,000). The remaining $3.0 million gap 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 ompares to the combined revenue of the City of Federal Way and the
combined Nort east/Southeast PAA subareas. If Federal Way and the Northeast and
Southeast P AA ubareas are viewed as a single City of over 105,000 population, the
annual deficit 0 $3.6 million equals six percent of the combined operating revenue. It
would be like r nning a business that loses six percent every year.
In addition, the ity of Federal Way would experience major costs for capital
improvements i the PAA totaling over $48.3 million. Dedicated capital revenue is
anticipated to b $32.0 million through the year 2020, leaving an unfunded cost of $16.3
million (which verages $0.9 million per year through 2020). As noted for operating
costs above, Ci policy for surface water (and other enterprise activities) is to cover
costs with fee r venue. Assuming that the City would use enterprise policy to cover the
$4.7 million co of stormwater capital, the remaining deficit would be $11,564,520
(which is an an ual average of $642,473). In addition, the City will undoubtedly receive
mitigation pay ents or impact fees from development in the P AA, which were not
possible to esti ate at this time, but they would reduce the size of the deficit.
Tables VIII-16 t VIII-21 provide the cost and revenue information supporting the above
conclusions.
o
Table VIII-16
Revenues Generated b P AA (2003)
Northeast P AA Southeast P AA Redondo Total
$947,000 $699,000 $24,000 $1,670,000
$365,000 $264,000 $8,000 $637,000
$246,000 $178,000 $5,000 $429,000
$107,000 $173,000 $79,000 $359,000
$196,000 $135,000 $6,544 $337,544
$159,000 $116,000 $10,000 $285,000
$106,000 $115,000 $6,000 $227,000
$121,000 $90,000 $7,000 $218,000
Property Tax
State Shared Revenues
Sales Tax - Criminal Just ce
Local Retail Sales Tax
Utility Taxes (O&M)'
Surface Water Fees
Fines and Forfeits
Building Permit Fees
VehicIe License Fee
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Northeast P AA Southeast P AA Redondo Total
Franchise Fees $102,000 $74,000 $2,000 $178,000
Solid Waste Revenues $41,000 $41,000 $1,000 $83,000
Development Services Fees $39,000 $27,000 $1,000 $67,000
Recreation Fees $23,000 $33,000 $500 $56,500
Zoning Fees $7,000 $5,000 $1,000 $13,000
Gambling Tax $ I 3,000 - $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.
Northeast PAA Southeast P AA 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 $221,000 $13,300 $533,300
Law $129,000 $136,000 $6,000 $27 1,000
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 $ I ,038,000 $21,000 $2,516,000
Total $3,992,000 $3,998,000 $157,300 $8,147,300
Costs er Resident $325 $449 $605 $380
Source: ECONorthwest analysis.
of Annexation, b
Northeast P AA Southeast P AA Redondo Total
Operating Revenues $2,476,000 $1,953,000 $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
er Resident -$123 -$230 $41 -$166
Source: ECONorthwest analysis.
* Given the uncertainties surrounding estimates of costs and revenues for a small area like Redondo, the reported net
revenue of$IO,344 for the Redondo area could be viewed as essentially equal to zero.
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Federal Way Potential Annexation Area Capital Revenue to 2020
Capital Rev nues Northeast Southeast Redondo All Subareas
Real Estate Excis Taxes $ 300,000 $ 222,000 $ 7,000 $ 530,000
Utility Taxes (Ca ital) 694,000 480,000 20,000 1,194,000
Annual Total $ 995,000 $ 702,000 $ 27,000 $1,724,000
CIP Planning Hor zon
(years 2002-2020 18 18 18 18
2020 Total of Am ual
Revenue 17,910,000 12,636,000 486,000 31,032,000
Grants for Roads 1,000,000 0 0 1,000,000
2020 Revenue T< tal 18,910,000 12,636,000 486,000 32,032,000
Source: ECONorthw( st 2003
Table VIII-20
Federal Wa y Potential Annexation Area Estimated Future Capital Costs
Area W' de Northeast Southeast Redondo East TOTAL
Subarea Subarea Subarea
Parks and
Recreation 3 -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 1,067,0 0* 1,074,000 2,578,000 -0- $ 4,719,000
Total $1,067, 00 $31,200,346 $15,181,412 $866,762 $48,315,520
Sources: Jones & Sto es, Henderson Young & Company, TetraTechlKCM, Inc., 2003
* Area wide capital pr grams include ajoint PM storm drain system inventory and comprehensive plan, and major
maintenance of ditche and other stormwater facilities.
Table VIII-21
FederalWa v Potential Annexation Area Estimated Net Capital Revenues
A rea Wide Northeast Southeast Redondo TOTAL
Subarea Subarea Subarea
Capital Revenue $18,910,000 $12,636,000 $486,000 $ 32,032,000
Capital Cost 1,067,000 3 1,200,346 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: ECONorth\l est, Jones & Stokes, Henderson Young & Company, TetraTechlKCM, Inc., 2003
Revised 2003 VIII-57
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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 grants, and unexpended 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 would 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 PAA for its stormwater utility and/or solid waste
utility and use the proceeds to offset the increased cost of providing those services
in the P AA.
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 PAA 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
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create spe ial districts that use special assessments. There is some risk associated
with usin special districts as a strategy to pay for providing urban levels of service
in the P A . A vote on creating a special taxing district would occur subsequent to
an annexa ion vote. If voters approve annexation, but do not approve the creation
of the dist ict(s), the City would be left with insufficient money to provide its level
of service
Revised 2003
5. r Phased Levels of Service - Another way for the City to address the
differenc in levels of service between Federal Way and the county would be to
permanen ly provide a lower level of service for one or more services, either
broadly ci ywide or only within specific areas. A second strategy for addressing the
differenc in level of service would be to phase-in the increases in level of service
in the ann xation area.
Phasing ould reduce costs during the transition and would provide Federal Way
with time to recruit and hire personnel and acquire facilities and equipment.
However, eventually phased levels of service will grow to equal the standards
achieved y the City of Federal Way. When that occurs, service levels will be the
same thro ghout the City, and the City will experience the full fiscal impacts of
those lev Is of service.
A variati n on phased or reduced levels of service could include alternative service
delivery s rategies, 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,
commerc. al uses, and previous crime rate statistics.
6. Phased nnexation - This strategy would involve annexing those areas that are
financiall self-supporting first and then annexing other areas later, perhaps in
conjuncti n with other strategies to improve fiscal impact of these subsequent
annexatio s. Phased annexation based on fiscal impacts could be accomplished by
annexing edondo first because it has no operating cash deficit. The Northeast
Subarea, r portions thereof, could be annexed next because its operating costs
exceed re enues by 61 percent. Last to be annexed could be the Southeast Subarea,
because i s 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 a eas, such as community subareas. For example, if community subareas
were ann xed in order of their fiscal impact, from least to most net operating cost,
the folio ing would be the phasing sequence: Northlake, Lakeland, Star Lake,
Jovita, C me lot, and Parkway. If other implementation strategies are considered
and empl yed to determine phasing for annexation, the order might be different
than the receding list. It should be noted that phasing annexation emphasizes
differenc s among the areas and misses the opportunity to mitigate the apparent
differenc s among areas by taking them all at the same time, thus effectively
averagin the "highs" and "lows" of both revenues and costs.
Some imp Ierne tation strategies may be suitable to different portions of the PAA, while
others may not e. Study of the alternatives prior to or at the time of annexation requests
would be warra ted.
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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, and 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 P AA Inventory.
Fire Services
The Federal Way Fire Department (FWFD) provides service to the City of Federal Way
and most of the surrounding unincorporated area in the Federal Way PAA. However, the
FWFD is not part of the City of Federal Way government. The FWFD 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 FWFD 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 FWFD.
The PAA is served by four of the FWFD's six stations (Map VIII-I 3). 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 subareas.
A 1996 Des Moines annexation (W oodmont/Redondo) could result in area currently
served by the FWFD to be served by Fire District 26 if either party should give the
required 12-month notice to eliminate the contract allowing the FWFD to continue
providing service. If the contract is eliminated, District 26 would take ownership of
Station 66. The FWFD has purchased property at South 2881h 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.
For the City and P AA Planning efforts, the City has worked closely with the FWFD in
reviewing the Fire District Master Plan, which complies with the GMA. The master plan
identifies the new facilities the FWFD will need to continue providing service as its
service area grows. The City included the FWFD's new facilities requirements and cost
and revenue estimates in the City's Capital Facilities chapter.
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Library Services
Library service are provided by King County. There are no public libraries inside the
PAA, but there re six libraries of different sizes serving residents of the PAA including:
Algona Pacific Library - 5,250 square feet (medium)
255 Ell"ngson Road
Auburn Library- ]5,000 square feet (resource)
1102 A bum Way South
Federal Way 320th Library- 10,000 square feet (large)
848 So th 320th Street
Federal Way Regional Library - 25,000 square feet (regional)
34200 irst Way South
Kent R gional - 22,500 square feet (regional)
212 2n Avenue North
Wood ont Library - 5,250 square feet (medium)
26809 acific Highway South
King County Li rary System (KCLS) plans for capital projects, including expansions,
depend on the CLS board determining whether they wish to propose a bond issue to
King County v ters and whether it passes. The KCLS staff and board have discussed
many possible rojects for such a bond issue and some ofthe libraries serving the PAA
have been inclu ed. However, there are no capital plans or funds to provide library
services in the AA at this time.
SchoolslEducatio
Probably more han any other special district, a school district provides an area with a
sense of comm nity. The Federal Way School District #210 (FWSD, as outlined on Map
VIII-14) extend from the county line south to South 252nd west ofI-5 and South 232nd
Street, east of I 5 to the north, and for the most part along the edge of the plateau to the
east. A school istrict provides a common thread, be it through school activities such as
organized sport , or through voting during elections.
City staff meet regularly with FWSD administrators to discuss growth management and
school develop ent issues. The FWSD primarily serves students in the cities of Federal
Way, Des Moi es, and Kent, and unincorporated King County. The FWSD administration
has indicated i these meetings that they would prefer to work with one jurisdiction as the
FWSD attempt to anticipate growth and develop plans for new school facilities.
Seven schools e located in the P AA, including five elementary schools, one junior high
school, and on high school (as outlined on Map VIII-14). Aside from Thomas Jefferson
High School, a I schools within and serving the PAA have some student demand beyond
the building ca acity, requiring the use of portable classrooms.
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Water and Wastewater
The Lakehaven Utility District (LUD) and Highline Water District (HWD) provide water
service to properties within the P AA. As indicated on Map VIII-I5, the current LUD
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 LUD'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 LUD'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 LUD.
The HWD water service area boundary encompasses most of the P AA Star Lake
community subarea and parts of the City of Federal Way (Map VIII-I 5).
Both the 1998 LUD Comprehensive Water System Plan and 2002 HWD 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 PAA 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 ofI-5 and
south of Kitts Comer Road, and portions of the Weyerhaeuser Corporate campus east of
1-5 (see Map VIII-I 6).
Relevant to the P AA, the LUD plans estimate that sewer 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 ofthe 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 LUD and
HWD for their input as part of the City's development review committee process.
Revised 2003
VIII-B2
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FWCP - Chapter Eight, Potential Annexation Arefs
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Public Services nd Capital Facilities Goals and Policies
The provision 0 public services and capital facilities would be guided by the following
goal and policie .
Public Services an Capital Facilities <?oal
Provide effectiv . efficient. and qualitY capital facilities and services at the level
necessary to me t community needs and support allowed growth.
Public Services an Capital Facilities Policies
In addition to g vernance and intergovernmental coordination policies, the following
policies are esta lished.
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 information becomes available, supplementary
inventories should be completed for surface water facilities and
roadway improvements to bridge gaps in information identified in
the Final Potential Annexation Area Inventory, City 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, stormwater, parks, and other systems that would
become a part of the City system upon annexation.
P AA CapFac 4 The City should allow for a variety of service delivery or revenue
enhancement options to increase the feasibility of annexation. Based
on the PAA Annexation Feasibility Study, these options may include,
but are not limited to:
a. State of Washington and/or King County providing new
resources to offset the 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.
Revised 2003
VIII-63
FWCP - Chapter Eight, Potential Annexation Areas
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 Citywide (e.g. lower park standards) or just in the
P AAs (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 PAA CapFac-4.
8.12 PUBLIC PARTICIPATION
The 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 PAA 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.
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
Revised 2003
VIII-64
FWCP - Chapter Eight, Potential Annexation Are s
accordance wit state and local laws. Also, if the Subarea Plan is amended in the future,
which is allowe typically on an annual basis by the GMA, other public participation
efforts would bJ needed. Finally, the annexation process would require public
notification and lparticipation efforts pursuant to state laws.
Public Participa ion Goal and Policies
The following al and policy would help direct public participation efforts in the P AA.
Public Participati
Actively seek p blic involvement in P AA planning efforts.
Public Participati n Policy
PAA Pub -1 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.
8.13 GOVERNANC AND INTER-JURISDICTIONAL
COORDINATION
In accordance ith the provisions of the GMA, new development should occur in
designated urb n growth areas, and urban services should primarily be provided by cities.
In consultation with the county, a PAA for Federal Way has been designated in which it
is anticipated t at the City would ultimately provide services as property owners and
citizens elect t annex. This will require a transition from county governance to City
governance. A ditionally, GMA requires coordination between land use and services/
capital plannin , such as between the City of Federal Way, neighboring cities, special
districts, and t county, for which the CWPP's help provide a regional framework.
Revised 2003
VIII-65
FWCP - Chapter Eight, Potential Annexation Areas
While some service 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 II, 2003; a detailed discussion of fiscal impacts is found in the Annexation
Feasibility Study, December 2003.) Section 8.11 provides strategies to minimize negative
impacts to public services and facilities impacted negatively by annexation.
Governancejlnterjurisdictional Goals and Policies
Governance and inter jurisdictional coordination would be directed by the following goal
and policies.
Governance/Interjurisdictional Coordination Goal
Coordinate P AA planning efforts with other neighboring jurisdictions and agencies.
Governance/Interjurisdictional 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
SEPA mitigation consistent with the PAA Subarea Plan; and
b. Define service delivery responsibilities, level of service standards,
and capital facility implementation consistent with the plan.
P AA Gov - 2 Through regional planning efforts, the county and City should ensure
PAA plans are compatible with neighboring jurisdictions, including King
and Pierce Counties, and the cities of Algona, Auburn, Edgewood, Kent,
Milton, and Pacific.
P AA Gov - 3 Coordinated planning efforts between the City, King 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.
Revised 2003 VIII-B6
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FWCP - Chap., E,ht. Poten'al Am",a"'n At
8.14 ANNEXATION
For purposes of efficient services, coordinated land planning and development, and unity
between econo ically and socially related areas, annexation may be desired by citizens,
property owner, and the City. As noted above, the GMA provides for coordinated urban
growth area pia ning between counties and cities ~ith the intent that urban and
urbanizing area ultimately be served by municipalities. In the GMA framework,
annexations ma occur only within ajurisdiction's designated PAA. By addressing its
city limits and AA in its comprehensive plan, the City is responding to the GMA
framework to m nage growth, provide efficient services, and meet community needs in
the broader Fed ral Way community.
There are curre1t1y four methods of annexation applicable to the Federal Way PAA.
· The Ele tion Method, Initiated by Ten Percent Petitiorr, is initiated by the
collecti n of signatures from qualified electors in the area proposed for
annexat on equal to ten percent ofthe number of voters in the last general
election in that area. This method would require an election by the residents of
the are being considered for annexation. This method could be used to annex
portion of or all of the P AA at a time.
.
The Ele tion Method, Initiated by Resolution, may be initiated by City Council
resoluti n. This method would require an election by the residents of the area
being c nsidered for annexation. This method could be used to annex portions of
or all 0 the P AA at a time.
.
In May 003, legislation became effective which adopted a new "Petition
Method of Annexation" designed to overcome the state Supreme Court's findings
of cons itutional defects in the state's previous petition method. Under the new
law, th annexation petition must be signed by property owners (owning a
majori of the area) and by registered voters (a majority in the area). If there are
no regi tered voters (vacant, commercial, or industrial property, or property that
has resi ents but no registered voters), then only owners of a majority of the area
need si n. This method could be used toannex portions of or all of the P AA at a
time.
.
In July 003, another "Island Method of Annexation" became effective. It allows
a legis I tive body to initiate an annexation process for an urban island of territory
by ado ting a resolution commencing negotiations for an interlocal agreement
betwee the initiating city and the county. At least 60 percent of the island must
be cont guous 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
adoptio and execution of the agreement by both legislative bodies, the city
legislat ve body is to adopt an ordinance providing for the annexation of the
territo described in the agreement. Generally, a petition or public vote is not
require . The method has a vote requirement if property owners reject annexation
Revised 2003
VIII-67
FWCP - Chapter Eight, Potential Annexation Areas
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 8.11, 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 8.11, as well
as the policies below.
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:
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 balance in costs and revenues to the City.
· City's ability to provide appropriate levels of service.
· The annexation includes areas 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
Revised 2003 VIII-S8
FWCP - Chapter Eight, Potential Annexation Are s
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 - 1.
.
Annexations are an appropriate size. Appropriate size means
an area that warrants the stafftime and expense involved in
processing annexation requests and complies with the goals of
the GMA and the CWPP's.
Annexations generally should not have or create abnormally
irregular boundaries.
The annexation must, to the greatest extent possible, preserve
natural neighborhoods and communities.
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.
The annexation proposal should create and/or preserve logical
service areas, including meeting provisions ofPAA Annex-3.
.
.
.
.
P AA Annex - 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, should 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
Revised 2003 VIII-69
FWCP - Chapter Eight, Potential Annexation Areas
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 of a P AA
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 VIII-6 and VIII-7, respectively).
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.
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 PAA CapFac-4.
Revised 2003 VIII-70
FWCP - Chapter Eight, Potential Annexation Are
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 PAA.
8.15 TECHNICAL RE ERENCES TO THE SUBAREA PLAN
The following t hnical references are available under separate cover.
A. City of Fede al Way Potential Annexation Area Inventory, Final, March 18,
2002.
B. "Federal W y Potential Annexation Area Level of Service Analysis," July
11,2003.
C. "Federal W y Potential Annexation Area Land Use Analysis Compilation,"
March 5, 20 3.
D. Federal Wa Potential Annexation Area Annexation Feasibility Study,
December 2 03.
Revised 2003
VIII-71
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
FEDERAL WAY
PAA
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
Federal Way
Algona
Auburn
Des Moines
Kent
Milton
. Pacific
FederaIWay,P.A.A.
Algena, P.A.A.
Auburn, P.A.A.
Kent, P.A.A.
Milton, P .A.A.
Pacific, P .A.A.
Vicinity Map
Scale:
o 1/2 Mile
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Map Date: July, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.7000
WINI.cityoffederalway .com
Please Note:
This map is intended for USl
as a graphical representatlOl
ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
COMMUNITY LEVEL
SUBAREA
BOUNDARIES
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Other Areas:
Incorporated Area
Unincorporated Area
Source: City of Federal Way, GIS Division &
Department of Community Development Services,
BWR, ECONorthwest, PM Steering Committee,
December 2001
Vicinity Map
Scale:
o 1/2 Mile
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Map Date: July, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.1000
WNN.cityoffederaJway .com
Please Note:
This map is intended for USI
as a graphical repre6entatiol
ONLY. The City of Fed1lral
Way makes no warranty
a6 to its accuracy.
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COMPREHENSIVE PLAN
SENSITIVE AREAS
POTENTIAL ANNEXATION
AREA ELEMENT
.
.
Legllnd:
Lakehaven Utility District Well
Private Well (All Uses, In Use and Unused)
BlulllGreen Heron Breeding Nest
Streams
Anadromous Fish Runs
Resident Fish Present
Riparian Arllas
Urban Natural Open Space
Water Fowl
Deep Aquifer
Eastem Upland Aquifer
Redondo
Milton Channel Aquifllr
Mirror Lake Aquifer
Susceptibility to GroundNater Contamination -
Medium Sensitivity
Susceptibility to GroundNater Contamination -
High Sensitivity
100 Year Floodplain
Wetlands
Source: King County GIS Center, December 2001,
City of Federal Way Comprehensive Plan, 2000,
Lakehaven Utility District, 2002
Sheldon and Associates, April 2002 and
State of Washington
This document is not a substitute for a field survey.
ADDITIONAL SENSITIVE AREAS MAY EXIST
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Please Note:
This map is intended for use
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ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
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Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. $,
Federal Way. WA 98003
(253) 835-7000
W>NN .cityoffederalway .com
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
GEOLOGIC HAZARDS
POTENTIAL ANNEXATION
AREA ELEMENT
Leg6nd:
~ Landslide Hazard Areas
Erosion Hazard Areas
(There are NO coal mine hazards or
seismic hazards in this area.)
Potential Annexation Area-
Community Level Subareas:
Redondo East (Redondo East)
Star Lak6 (Northeast)
Camelot (Northeast)
North Lak6 (Northeast)
Jovita (Southeast)
Lakeiand (Southeast)
Pari<way (Southeast)
Other Areas:
Incorporated Area
Unincorporated Area
Source: King County GIS Center, December 2001
This document is not a substitut6
for a field survey. ADDITIONAl
SENSITIVE AREAS MAY EXIST.
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Map Date: JLIy, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WNN .cityoffederalway .com
Please Note:
This map is intended for use
as agraphicaJ representation
ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
A Federal Way
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
PARKS & CULTURAL
RESOURCES
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
Recreational Facilities:
o Fishing Access, Lake Geneva
e Fishing Access. Lake Killamey
e Federal Way Senior Center
e North Lake Improvement Club
Cultural Resources
.. Fancher House
e
Q
.
Sutherland's Gas Station
and Grocery
Westborg House
Community Level
Subarea Boundary
Public Park
I ncorporated Area
Unincorporated Area
Source: City of Federal Way GIS,
King COlllty Department of Natural
Resources, December 2001, Federal Way
Senior Center, February 2002 and
State of Washington, Department of
Fish and Wildlife, February, 2002
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Map Date: J(jy, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WWN .cityoffederalway .com
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.
A Federal Way
Map VIII-5
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
PRE-ANNEXATION
COMPREHENSIVE
PLAN
DESIGNATIONS
POTENTIAL ANNEXATION
AREA ELEMENT
Leg&nd:
. Community Business
. Multi Family
. Neighborhood Business
. Parks and Open Space
. Office Park
Single Family, Medium D&nsity
Single Family. High Density
Source: City of Federal Way
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City of federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.7000
WNW .cityoffederalway .com
Please Note:
This map is intended for use
as a graphical representation
ONL V. The City of Federal
Way makes no warranty
as to its accuracy.
A Federal Way
MapVIII-6
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
PRE-ANNEXATION
ZONING MAP
POTENTIAL ANNEXATION
AREA ELEMENT
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. Legend:
'~l
~ '.<^ . BC (Community Business)
Auburn . BN (Neighborhood Business)
1-. . OP (Office Park)
..
.... RS3S.0 (1 Unit/35.000 SF)
.
RS9.6 (1 Unit/9.6oo SF)
RS7.2 (1 UnitJ7 ,200 SF)
RSS.O (1 Unit/5,00Q SF)
,_ ..I . RM3600 (1 Unit/3600 SF)
RM2400 (1 Unit/2400 SF)
. RM1800 (1 Unlt/1800 SF)
Source: City of Federal Way
()
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Scale:
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Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.7000
WNW.cityoffederalway .com
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.
A Federal Way
Map VIII-7
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
SURFACE WATER
FACiliTIES
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
. Conveyance Facility
. Residtlntial Surface Water Facility
... Commercial Suface Water Facility
Regional Stormwater Facilities:
~ Lake Dolloff Outlet
G P-32 (Camelot Park)
e Peasley Canyon Culvert
~ Regency Woods, Diy 1
~ Regency Woods, Diy 4
o Regency Woods, Diy 4 (2)
G S 360th St Embankment
ClP Sweet Briar Drainage Improvement
~ Regency Woods. DiY 1
G Regency Woods, Diy 4 (3)
D Problem, (In P.AA) See text.
o Problem, (Outside P.AA) See text.
N Streams
100 Year Floodplain
. Wetlands
Hylebos Creek Basin
Lower Green River Basin
Lower Puget Sound Basin
""II Creek Basin
White River Basin
Source: King County
GIS Center, December
2001. King County
Department 01 Natural
Resources, December
2001 & January -
~ March 2002,
:E King County Asset
Development and
?; Management Section,
'8 March 2002
:>
Scale:
o 1/2 Mile
~
N
Note:
Wetlands and streams
were identified In a
1998 City of Federal
Way study.
......
Map Date: July, 2004
City of Federal Way,
33325 8th Ave. S.
Federal Way, WA 98003
(253) 661-4000
WNN.cityoffederaJway .com
Please Note:
This map is intended for use
as a graphical representation
ONLY. The City 01 Federal
Way makes no warranty
as to its accuracy.
A Federal Way
Map VIII-8
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
ARTERIALS &
LOCAL STREETS
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
Federal Way Street Classifications:
AI Principal Arterial
AI Mnor Arterial
AI Principal Collector
AI Minor Collector
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Other Areas:
Incorporated Area
Unincorporated Area
Source: King County GIS Center, December 2001,
City of Federal Way Comprehensive Plan, 2000
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Scale:
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.......
Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WMY.cityoffederaiway .com
Please Note:
This map is intended for use
as a graphical representation
ONL V. The City of Federal
Way makes no warranty
as to its accuracy.
A Federal Way
Map VIII-9
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
EXISTING ROADWAY
LEVEL OF SERVICE
POTENTIAL ANNEXATION
AREA ELEMENT
ii
---
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.
N
N
N
N
Legend:
Level of Service Intersections:
Meets City LOS
Failed Intersection (Before Mitigation)
Federal Way Street Classifications:
Principal Arterial
Minor Arterial
Principal Collector
Minor Collector
Incorporated Area
Unincorporated Area
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Source: King County GIS Center, December 2001,
City of Federal Way Comprehensive Plan, 2000,
Jones & Stokes, 2002
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Scale:
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j
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~
Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.7000
WNN .cityoffederalway .com
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.
A Fe~deral Way
Map VIII-10
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
YEAR 2020
ROADWAY
LEVEL OF SERVICE
POTENTIAL ANNEXATION
AREA ELEMENT
o
.
N
N
N
N
Legend:
Level of Service Intersections:
Meets City LOS
Failed Intersection (Before Mitigation)
Federal Way Street Classifications:
Principal Arterial
Mi no r Arterial
Principal Collector
Minor Collector
Incorporated Area
Unincorporated Area
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lake/and (Southeast)
Parkway (Southeast)
Source: King County GIS Center, December 2001,
City of Federal Way Comprehensive Plan, 2000,
Jones & Stokes, 2002
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Scale:
o 1/2 Mile
~
N
~
Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 661-4000
WNW.cityoffederalway.com
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.
A FeWderal Way
Map VIII-11
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
20 YEAR PROPOSED
INTERSECTION
IMPROVEMENTS
POTENTIAL ANNEXATION
AREA ELEMENT
e
Legend:
Proposed Intersection
Improvement
Vicinity Map
Scale:
o 1/2 Mile
~
N
---
Map Date: J[jy, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WNN .cityoffederalway .com
Please Note:
This map is intended for use
as a graphical represlll1tation
ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
AFeMderalWay Map VIII-12
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Fire
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
FIRE DEPARTMENT
FACiliTIES
POTENTIAL ANNEXATION
AREA ELEMENT
Legend
. Fire Station
I'll Fire District Boundary
Community Level
Subarea Boundary
Incorporated Area
Unincorporated Area
Source: Federal Way Fire Department,
City of Federal Way GIS Division,
February 2002
C.
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Scale:
o 1/2 Mile
j
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..--
Map Date: July, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WNN.cityoffederalway .com
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.
AFederalWay Map VIII-13
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
PUBLIC SCHOOL
FACiliTIES
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
N School District Boundary
. Elementary School
. Junior High School
Senior High School
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Other Areas:
Incorporated Area
Unincorporated Area
Source: Federal Way School District,
City of Federal Way GIS Division, 2001
Scale:
o 1/2 Mile
~
N
~
Map Date: J~, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835.7000
WWN .cityoffederalway .com
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.
~F@deraIWay Map VIII-14
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
WATER SERVICE
POTENTIAL ANNEXATION
AREA ELEMENT
Legend:
Booster Pump Station
Intertie ValJt
Well (Lakehaven Utility District water source)
Lakehaven Utility District Boundary
Water Service Area Boundary
Waler mains under 10'
Potential Annexation Area -
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (Northeast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Other Areas:
Incorporated Area
Unincorporated Area
Source: Highline Water District, 2001,
Lakehaven Utility District, 2002
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Map Date: JiJy, 2004
City of Federal Way,
33325 8th Ave. S.
Federal Way, WA 98003
(253) 835-7000
w.vN.cityoffederalway.com
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.
.A Fe.deralWay Map VIII-15
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CITY OF FEDERAL WAY
COMPREHENSIVE PLAN
WASTEWATER
SERVICE,
SEPTIC REPAIRS
AND COMPLAINTS
POTENTIAL ANNEXATION
AREA ELEMENT
.
@
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N
N
Legend'
Septic Repairs (ComphrtlllPending)
Septic Complaints
Booster Pump Station
Lakehaven Utility District Boundary
Sev.rer Service Area Boundary
Sewer mains under 10.
Sewer mains over 10'
Incorporated Area
Unincorporated Area
Potential Annexation Area-
Community Level Subareas:
Redondo East (Redondo East)
Star Lake (No rtheast)
Camelot (Northeast)
North Lake (Northeast)
Jovita (Southeast)
Lakeland (Southeast)
Parkway (Southeast)
Source: Lakehaven Utility District, 2002
King County, 2002
./~~} \.
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WA a.
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Map Date: July, 2004
City of Federal Way,
33325 8th Ave. S,
Federal Way, WA 98003
(253) 835-7000
WNW.cityoffederalWay .com
Please Note:
This map is intended for use
as a graphical repreS8l1tation
ONLY. The City of Federal
Way makes no warranty
as to its accuracy.
~ Federal Way Map VIII-16
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CHAPTER NINE -
9.0 INTRODUCTIO
ATURAL ENVIRONMENT
Maintaining and improving the quality ofthe natural environment in Federal Way is
central to the Ci y's vision of the future. The quality of the City's hydrologic features,
forested areas, a d scenic vistas is one of the primary reasons that many families have
chosen to live i Federal Way. Business people also make location decisions based, in
some measure, n quality of life factors~ and one might argue that the quality of the natural
environment is i portant to the economic vitality of the City. Finally, maintaining the
viability ofthe atural environment is prudent and cost effective public policy. If, for
example, the Ci maintains or improves, the natural drainage system and how it functions,
it will save tax ollars by not having to build and maintain costly storm drainage facilities.
The intent ofthi chapter, and the goals and policies it contains, is to guide future actions
such that the qu lity of the natural environment is maintained or improved.
State's Growth
anagement Act and Countywide Planning Policies
agement Act (GMA) defines critical areas as wetlands, aquifer recharge
ildlife habitat, frequently flooded areas, and geologically hazardous
areas. Pursuant 0 the GMA (RCW 36.70A.060), the City amended its critical area
regulations in 1 93 to regulate development in environmentally sensitive areas. These
regulations, rev sed in 1999, are contained in Chapter 22, Article XIV ofthe Federal Way
City Code (FW C), titled "Environmentally Sensitive Areas." The City refers to "critical
areas" as "sensi ive areas" in its ordinances and the two terms are used interchangeably in
the Federal W; Comprehensive Plan (FWCP).
The GMA also equires the protection of resource lands. Resource lands are defined as
land related to source-based industries, including productive timber, agriculture,
fisheries, and ineral extraction. Since Federal Way does not have land used by
resource-based ndustries, policies regarding these types of lands are intentionally absent
from this chapt r.
Development 0 this chapter is based on the same premise adopted in the King County
Countywide PI nning Policies (CWPPs) pertaining to the Natural Environment. CWPP
FW -4 states in art, "Land use and development shall be regulated in a manner which
respects fish an wildlife habitat in conjunction with natural features andfunctions,
including air a d water quality. Natural resources and the built environment shall be
managed to pr tect, improve and sustain environmental quality while minimizing public
and private cas s. "
FWCP - Chapter Nine, Natural Environment
9.1 NATURAL ENVIRONMENT GOALS AND POLICIES
Environmental Stewardship
Federal Way recognizes that the natural 'environment is an intrinsic part of the urban
fabric for the following important reasons:
. It provides opportunities for recreation;
. It provides habitat for wildlife and plant life;
. It is part ofthe City's surface water management system and water supply;
. It creates a positive visual image and open space;
. It supports economic development goals; and
. It is cost effective public policy.
The merits and costs of environmental actions must be weighed and balanced against
other important demands, such as public safety and recreation, housing, public
infrastructure, and economic development.
Goal
NEG 1 To preserve the City's natural systems in order to protect public health, safety,
and welfare, and to maintain the integrity of the natural environment.
Policies
The City's natural environment is composed of a wide variety of landforms, soils,
watercourses, and vegetation. The City's terrain ranges from steep hills and ridgelines to
plateaus and lakes. Soil types vary from loam in the lowlands to sand, gravel, and till in
the uplands. Land use and development practices need to be compatible with this variety
of environmental conditions. As a general rule, the City intends to protect the natural
environment rather than try to overcome its limitations for development.
NEPl
Protect and restore environmental quality through land use plans, surface water
management plans and programs, comprehensive park plans, and development
reVlew.
NEP2
Preserve and restore ecological functions, and enhance natural beauty, by
encouraging community development patterns and site planning that maintains
and complements natural landforms.
NEP3
To the maximum extent practical, the City's future actions will be consistent
with the goals and policies of this chapter of the FWCP.
NEP4
The City should work in concert with internal departments, state, and regional
agencies, as well as with neighboring jurisdictions and tribes, to protect
sensitive areas and the City's natural environment.
Revised 2002
IX-2
FWCP - Chapter Nine, Natural Environment
NEP5 To ass st in evaluating existing and proposed environmental policy, the City
should prepare inventories for each type of sensitive area to augment data
receiv d from other information sources.
NEP6 . The C encourages private donations of land or conservation easements for
sensiti e areas and their associated buffers.
NEP7 The C may continue to require completion of environmental studies by
qualifi d professionals to assess the impact of proposed development on
sensiti e areas.
9.2 WATER RESOU CES
Water resources nclude: streams, lakes, frequently flooded areas, wetlands, aquifer
recharge areas, a d shorelines. The aquifers and aquifer recharge areas are the primary
source for the co munity's drinking water. The streams and wetlands are an essential
part of the City' stormwater drainage system that provides necessary flood and erosion
control. The lak s and shorelines provide fish and wildlife habitat and valued places for
recreation.
To protect the v lue and function of each individual part, water resources must be
managed as an i tegrated system. Use and modification of water resources and the
surrounding terr strial environment affects how the hydrologic cycle functions. The
inappropriate alt ration of water resources can cause detrimental impacts such as flooding,
erosion, degrada ion of water quality, reduction in groundwater, and habitat loss. In order
to minimize adv rse impacts to water resources and to ensure their continued viability, the
City promotes r sponsible land and water resource planning and use.
The City will pe it development in a manner that protects water quality and ensures
continued ecolo ical and hydrologic functioning of water resources. Protection should
include mainten nee of stream base flows, allowance of natural water level fluctuations
in wetlands, aqu fer recharge, and stream corridor habitat preservation. Due to the limited
capacity of the nderlying aquifers and increased water demand, the City also encourages
groundwater co servation measures.
In order to resp nd to RCW 36. 70A.172, at the end of 2001 the City hired consultants to:
. Evaluate k y City regulations and programs to help identify potential Endangered
Species A t (ESA) and National Pollutant Discharge Elimination System (NPDES)
complianc issues and develop recommendations for addressing these issues.
. Evaluate t e City's proposed Capital Improvement Program (CIP) projects to
determine ftheyare still viable or necessary, or need modifications to comply with
ESAlNPD S requirements, and update the project cost estimates.
Revised 2002 IX - 3
FWCP - Chapter Nine, Natural Environment
This study, which was completed in June 2002, evaluated the key City regulations and
programs in terms of their potential impacts on salmonid habitat. The study did not
identify any major ESA or NPDES compliance issues. However, the review did identify a
number of areas where existing regulations or programs could be improved. The most
significant recommendations for ESA improvements are associated with the Critical
Areas-Wetlands Regulations, Critical Areas-Fish and Wildlife Habitat Regulations, the
Stormwater/Site Development Standards, and the Stormwater Management Program.
Upon direction from the City Council, staff will prepare code amendments or propose
changes to programs in order to implement the recommendations from the study.
Goal
NEG2 Protect the public health and safety and prevent property damage by reducing
surface water problems.
Policies
NEP8 The City shall continue to identify major capital projects that prevent or reduce
flooding or property damage; minimize erosion and instability of streambeds,
banks, and slopes; protect or improve water quality; and maintain or improve
the reliability and integrity of the drainage system. The City shall implement
projects based on priorities that are systematically identified using a rating
guide approved by the City Council.
NEP9 The City shall identify minor drainage system capital improvement projects,
retention/detention system retrofit projects, lake and stream restoration/
rehabilitation projects, and water quality improvement projects; and shall use
project prioritization procedure for each category of project.
NEPIO The City will implement an effective and efficient operations and maintenance
program for its stormwater facilities to assure that the surface water drainage
systems are operated and maintained to provide satisfactory quality and flow
controls. Standards for operations and maintenance will be established and will
apply to public and private stormwater facilities.
NEPll The City shall own and maintain all elements of the storm drainage system in
the right-of-way and in easements or tracts dedicated to, and accepted by, the
City. Stormwater systems located on private property shall be the responsibility
of the owner to maintain and improve. The City will not acquire or accept
existing components of the stormwater conveyance system (through easements,
ownership, or other property rights) except when needed for City construction
projects identified in the Capital Facilities Plan (CFP) or annual Capital
Improvements Plan (CIP).
NEP12 The City shall respond to drainage-related emergencies and undertake
emergency protective measures or projects on private property only as needed
in the event of an imminent threat to public health, safety, or public resources
(such as infrastructure, fisheries, and water quality).
Revised 2002 IX - 4
FWCP - Chapter Nine, Natural Environment
NEP13 The C ty will continue to offer education and advice to all property owners
with p ivate drainage and related slope stability problems.
NEP14 The C ty will fund sediment removal only in situations involving a threat to
life, haith, or dwellings, or public infrastructure from flooding or where the
City h s an existing legal obligation by easement or agreement. Any removal
will b limited to that needed to alleviate such flooding or to fulfill the legal
obliga ion. The City may provide non-financial support to any private or third
party unded dredging projects that are found to be environmentally acceptable.
NEP15 The C ty shall own and maintain all retention/detention (RiD) systems in the
public right-of-way and in easements of residential plats dedicated to, and
accep ed by, the City. The City should not accept ownership and responsibility
for ne RID systems (through easements or other property rights) unless all of
the fo lowing conditions are met:
1. here is a public benefit.
2. n easement or property is offered by the property owner at no cost.
3. he system meets City standards.
4. here is access for City maintenance from the public right-of-way.
5. he City has adequate resources to maintain the system.
6. he system serves a residential plat/subdivision (rather than a short
lat or commercial property).
NEP16 the project design process, the City shall consider the impact to private
due to City construction. When property disruption is unavoidable,
the C" shall restore the area to the pre-existing conditions to the extent
practi al. Where not practical, the City may compensate the owner for
orna ental landscaping in lieu of restoration; compensation is limited to the
reaso able replacement value of destroyed specimens in kind, but not in size.
Consi tent with state and local law, the City shall not install landscaping
impr ements that increase the value of private property unless that is
com nsation for property rights granted to the City or unless the primary
e is to benefit the citywide drainage system.
NEP17 ity shall develop and update surface water quality protection programs as
and shall carry out those programs and use best management practices
(BM ) in order to make progress toward meeting state and federal
requi ements and this plan's water quality and related resource goals. City
surfa e water quality programs will include (but are not necessarily limited to):
. Water quality studies and investigations.
. A water quality response program, including enforcement
. Education programs (including promoting source controls).
. Preservation, rehabilitation, and restoration of wetlands and streams.
. Stormwater quality controls on new development and redevelopment.
. An operation and maintenance program, including an inspection
program to ensure private maintenance of private drainage systems.
Revised 2002 IX - 5
FWCP - Chapter Nine, Natural Environment
. Capital projects to address identified water quality problems.
. Participation in regional studies and in the development of regional,
state, and federal surface water quality policy.
NEP18 The City shall maintain regulations and standards to carry out the Surface
Water Management Comprehensive Plan's policy of restricting stormwater
runoff from all new development and redevelopment in order to minimize the
potential for flooding and stream bank erosion, and preserve and enhance
habitat and sensitive areas. Water quality BMP shall be required for new
development and redevelopment. City policies, regulations, and standards will
meet the comprehensive stormwater program requirements of the Puget Sound
Plan, arid will comply with NPDES permit requirements as applicable.
Aquifer Recharge Areas (Groundwater)
Federal Way is dependent on groundwater as a primary source of drinking water. Although
the Lakehaven Utility District has procured water from other purveyors, its main source 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
(Map IX-I, maps are located at the end of the chapter). The locations of wells in
relationship to the aquifer systems are shown on Map IX-A. 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.
Typical activities associated with land development, such as clearing and grading, affects
the natural hydrologic cycle. Historically, stormwater was managed in a way that
conveyed it to natural water bodies as expediently as possible. All of these activities
decrease the land's ability to absorb and retain water and increases the possibility of
contamination. In addition to detrimentally affecting aquifer recharge potential, increased
runoff rate and volume has a deleterious effect on stream channels, water quality, and in-
stream habitat. The following CWPPs address aquifer recharge areas and are consistent
with the City's policies.
Countywide Planning Policies
CA5 All jurisdictions shall adopt policies to protect the quality and quantity of
groundwater where appropriate.
CA6 Land use actions shall take into account impacts on aquifers determined to
serve as water supplies. The depletion and degradation of aquifers needed for
potable water supplies should be avoided or mitigated; otherwise a proven,
feasible replacement source of water supply should be planned or developed to
compensate for potential lost supplies.
Map IX-2, Areas Susceptible to Groundwater Contamination, is a map produced by the
King County Department of Development and Environmental Services and Seattle-King
County Health Department as a result of the study entitled Mapping Aquifer Susceptibility
Revised 2002
IX-6
FWCP - Chapter Nine, Natural Environment
to Contaminatio in King County. This study looked at three criteria: soils, surface
geology, and de th to groundwater. Based on these criteria, areas were mapped as low,
medium, or high susceptibility to contamination from activities occurring in the area. This
information is th best available at this time and will be used along with other information
on streams, wetl nds, and wildlife habitat to determine appropriate zoning.
Goal
NEG3 To pr tect aquifer recharge areas.
Policies
NEP19 The C ty, in cooperation with Lakehaven Utility District, should identify and
map a uifer recharge areas within the City and its potential annexation area.
Such eas shall be subject to regulations to protect the integrity of identified
aquife recharge areas.
NEP20 The C ty should encourage the retention of surface water runoff in wetlands,
regio I retention facilities, and detention ponds, or use other similar
storm ater management techniques to promote aquifer recharge.
NEP21 The C ty should establish land use and building controls to use stormwater
infiltr tion wherever feasible, and to minimize the amount of impervious
surfac created by development.
NEP22 While offering a contribution to groundwater recharge, the City recognizes that
septic tank and drain field systems have a potentially adverse impact on
groun water quality within the aquifers. If adequate engineering solutions are
availa Ie, the City may require connection to sanitary sewer service where poor
soil c nditions persist and/or sewer service is available.
NEP23 The ity will protect the quality and quantity of groundwater supplies by
suppo ing water use conservation programs and adopting regulations to
mini ize water pollution. The effect of groundwater withdrawals and artificial
recha ge on streams, lakes, and wetlands within the Hylebos Creek and Lower
Puget Sound drainage basins will be evaluated through coordination with the
Lake aven Utility District.
Wellhead Prote tion Areas
Because reside s of the City relyies on groundwater for their drinking water, the City
must take preve tative measures to avoid contamination in areas surrounding well sites.
In addition, the ity and Lakehaven Utility District should work cooperatively to
implement the s ate's Wellhead Protection Program and Section 1428 of the 1986
Amendments to the Federal Safe Drinking Water Act, which generally requires mapping
wellhead protec ion zones and establishing an interagency wellhead protection plan. The
intent of the we lhead protection program is to be proactive and prevent contamination of
groundwater us d for drinking water. The objective of wellhead protection is to protect
Revised 2002
IX- 7
FWCP - Chapter Nine, Natural Environment
the health of people using groundwater supplies for drinking water. This is accomplished
by providing management zones around public wells or wellfields to detect and manage
potential sources of groundwater contamination. Another goal of the program is to
promote awareness of special efforts to protect the groundwater and urge customers to
take a proactive approach to protecting the source of the City's drinking water.
In accordance with the Washington Administrative Code (WAC 246-290), water utilities
in the State of Washington are required to update their Wellhead Protection Program
every two years. At a minimum, the program should include the following elements:
. A completed susceptibility assessment.
. Delineated wellhead protection areas for each well, wellfield, or spring.
. An inventory within each wellhead protection area of all potential sources of
contamination that may pose a threat to the water bearing zone (aquifer) utilized
by the well, spring, or wellfield.
. Documentation that delineation and inventory findings have been distributed to
required entities.
. Contingency plans for providing alternate sources of drinking water in the event
that contamination does occur.
. Coordination with local emergency responders for appropriate spill/incident
response measures.
Pursuant to these policy elements, Lakehaven Utility District contracted Kennedy/Jenks
Consultants to perform an update to its program and issued a report in August 2001. This
process began by delineating and mapping wellhead protection areas around each of
Lakehaven's 13 wells that provide drinking water to the area. The primary zones of
wellhead protection are defined using a time of travel of groundwater criteria. The three
principal zones are delineated using one, five, and ten year time of travel factors.
Next, parcels within these wellhead protection areas were identified and ranked according
to their land use, location within the well's capture zone, and possible susceptibility to
contamination, which are shown in Maps IX-3, IX-4, and IX-5. This ranking was assigned
based on interviews with property owners and tenants, windshield survey, field
inspections, and review by Environmental Data Resources of the databases of the
Environmental Protection Agency (EPA) and Department of Ecology (DOE) for sites
within the protection zones that may have had hazardous spills or other possible
groundwater contamination. In addition, questionnaires were mailed to owners of parcels
identified as having the potential to cause wellhead contamination. The parcels were then
ranked as either a high, medium, or low risk, as defined below.
High Risk Parcels - These parcels consist of businesses and land uses that have been
identified as posing a high risk to the groundwater should a leak or spill of hazardous
substances occur onsite. Examples include commercial gas stations, car repair shops, dry
cleaners, buildings with hydraulic lifts, or businesses that use/store large amounts of
chemicals or solvents.
Medium Risk Parcels - These parcels consist of businesses and land uses that have been
identified as posing a medium risk to the groundwater should a leak or spill of hazardous
substances occur onsite. Examples include commercial properties that could potentially
Revised 2002
IX-8
FWCP - Chapter Nine, Natural Environment
have a future ten nt storing or using substances, or long-term parking for large machinery
or trucks.
Low Risk Parcels These parcels consist of businesses and land uses that have been
identified as pos ng a low risk to the groundwater should a leak or spill of hazardous
substances occu onsite. These parcels are primarily residential properties and vacant land.
A notification Ie er was sent to each high-risk parcel, indicating that the property has
been listed as a igh-risk parcel for this wellhead protection program update, and
encouraging pro erty owners and tenants to responsibly oversee operations at the parcel.
Finally, the Dist ict notified the appropriate regulatory agencies about each parcel's
presence within defined wellhead protection area.
The City will pr pare wellhead protection regulations as part of its future work program
to be performed hrough a process developed by ajoint CitylDistrict Wellhead Protection
Committee, as i required by current state regulations. The following CWPPs and City
policies address ellhead protection.
Countywide Plann ng Policies
CA5( c)
Kin County and groundwater purveyors including cities, special purpose
dist icts, and others should jointly:
(2) Develop a process by which land use jurisdictions will review, concur
with and implement, as appropriate, purveyor Wellhead Protection
Programs required by the Federal Safe Drinking Water Act.
(3) Determine which portions of mapped recharge areas and Wellhead
Protection Areas should be designated as critical and
(4) Update critical areas maps as new information about recharge areas
and Wellhead Protection Areas becomes available.
Goal
NEG4 Imple ent a local wellhead protection program to ensure a safe source of
drink ng water and to avoid the large financial impact of contaminated wells.
Policies
NEP24 The ity will continue to work in conjunction with local water purveyors to
delin ate Wellhead Protection Areas for each well and wellfield as required
and 0 tlined by the state's Wellhead Protection program.
NEP25 The ity will continue to work with water purveyors to model and map Wellhead
Prote tion Areas, as funds are budgeted for such modeling and mapping.
NEP26 The ity will work with water purveyors, through a process developed by a
joint ity/District Wellhead Protection Committee, to conduct an inventory of
Revised 2002 IX - 9
FWCP - Chapter Nine, Natural Environment
all potential sources of groundwater contamination within the Wellhead
Protection Areas and assess the potential for contamination.
NEP27 The City should establish an interagency Wellhead Protection Committee to
coordinate and implement a Wellhead Protection Plan, as is required by current
state regulations.
NEP28 The City will work with water purveyors, through a process developed by a
joint City/District Wellhead Protection Committee, to develop a contingency
plan for the provisions of alternate drinking water supplies in the event of well
or weUfield contamination, as funds are budgeted for such purpose.
NEP29 The City should establish buffer zones of sufficient size to protect wellhead
areas.
Streams and lakes (Surface Water)
The City of Federal Way is located within the Hylebos Creek, Lower Puget Sound, and
Mill Creek drainage basins. These basins contain an integrated system of lakes and
streams that provide a natural drainage system for over 36 square miles of southwest
King County and northeast Pierce County (Map IX-6).
Due to rapid urbanization, this natural system has been altered and in many areas no
longer provides its original function or habitat. The primary focus of the policies below is
to restore the natural functions that the City's lakes and streams once provided.
Moreover, the CWPPs and the City's policies below acknowledge that it is more cost
effective to restore the natural system than it is to construct a man-made equivalent.
Countywide Planning Policy
CAts
All jurisdictions shall implement the Puget Sound Water Quality Management
Plan to restore and protect the biological health and diversity of the Puget
Sound Basin.
Goal
NEG5 Protect, restore, and enhance the City's lakes and streams.
Policies
NEP30 The City will seek to work cooperatively with King and Pierce County Surface
Water Management Divisions, the Puget Sound Water Quality Authority,
Washington Department of Ecology, and other affected jurisdictions and tribes
to implement water quality management strategies and to comply with
Municipal National Pollutant Discharge Elimination System regulations to
address non-point pollution.
Revised 2002 IX -10
FWCP - Chapter Nine, Natural Environment
NEP31 Surfac water management facilities that use natural streams and lakes for
storag should ensure that those natural features are not adversely impacted by
their i elusion in the surface water system.
NEP32 The C ty may regulate private development and public actions to protect water
quali and to ensure adequate in-stream flow to protect fisheries, wildlife
habita , and recreation resources.
NEP33 The C ty will seek to retain native vegetation within riparian corridors. New
planti g of vegetation with the approval from the City may be required where
such r vegetation will enhance the corridor's function. Consideration should be
given 0 the removal of non-native invasive species.
NEP34 Lakes should be protected and enhanced by proper management of watersheds
and s orelines, by improvements in water quality, by removal of invasive plant
speci s, and by restoration of fish and wildlife habitat.
NEP35 The ity should adopt stream definitions that are reflective of stream function
and h bitat. The definitions should make a distinction between manmade
conve ance systems and natural streams.
NEP36 The ity should continue to restrict stream relocation projects, the placing of
strea s in culverts, and the crossing of streams for both public and private
proje ts. Where applicable in stream corridors, the City should consider
struc res that are designed to promote fish migration and the propagation of
wildli e habitat.
NEP37 Erosi n control measures shall be used for any work in or adjacent to stream or
lake uffers.
NEP38 Appr priate mitigation for detrimental impacts may be required for
const ction work within the buffer area associated with a stream channel or a
lake. urthermore, the City should work in cooperation with the Department of
Fish nd Wildlife through the Hydraulic Project Approval permit process for
all de elopment proposals that involve streams.
NEP39 Esse tial public facilities and utilities may cross lakes or streams where no
other feasible alternative exists. The amount of intrusion shall be the minimum
neces ary to complete the project.
NEP40 For p blic access lakes, the City will take a lead role to develop and implement
proa ive comprehensive watershed and lake management plans and policies
that e needed to identify and anticipate problems and prevent further
deter oration, which could lead to costly lake restoration efforts in the future.
Lake management plans identify problems, recommend solutions, and outline
plans for implementation. The City will take an administrative role in assisting
resid nts on private lakes to setup and run Lake Management Districts for the
impl mentation of lake management plans.
Revised 2002 IX - 11
FWCP - Chapter Nine, Natural Environment
Frequently Flooded Areas
Frequently flooded areas are defined as, "...areas in the floodplain subject to a one
percent or greater chance of flooding in any given year including but not limited to, such
areas as streams, lakes, and wetlands." Development in flood plains reduces the storage
capacity and increases the amount of runoff. Increased runoff overtaxes both natural and
man-made conveyance systems and leads to damage of public and private property.
Currently, there are no frequently flooded areas recognized by the Federal Emergency
Management Act (FEMA) within the City of Federal Way. However, there are areas that
meet the City's definition of frequently flooded areas. The policies below have been
adopted to address those areas.
Countywide Planning Policy
CAl2 (b) Each jurisdiction~s policies, regulations, and programs should effectively
prevent new development and other actions from causing significant adverse
impacts on major river flooding, erosion, and natural resources outside their
jurisdiction.
Goal
NEG6 To prevent the loss of life and property in frequently flooded areas.
Policies
NEP4l In frequently flooded areas, the City should restrict the rate and quantity of
surface water runoff to pre-development levels for all new development and
redevelopment, in accordance with the current adopted technical design manual
requirements.
NEP42 Where feasible, the City shall protect and enhance natural flood storage and
conveyance function of streams, lakes, and wetlands.
Wetlands
Wetlands are valuable natural resources. There are several types of wetlands in the City
and each plays a valuable role in the hydrological system. Wetlands types include
marshes, bogs, ponds, forested, and scrub-shrub wetlands. By storing floodwaters,
wetlands reduce flooding and down stream erosion; trap and absorb sediments; and help
protect water quality. Furthermore, wetlands discharge water to aquifers and streams and
help serve to replenish groundwater and maintain base flows of surface water systems. In
short, wetlands are productive biological systems providing rich habitat for fish and
wildlife, and important storage capacity for the hydrologic system.
Revised 2002
IX-12
FWCP - Chapter Nine, Natural Environment
Federal Way ha several regionally significant wetland areas. The largest can be found in
and adjacent to t e West Hylebos State Park, Dash Point State Park, Dumas Bay, and
throughout Spri g Valley. Other smaller wetlands also dot the landscape. While most of
the City's wetla ds have been identified both by private property owners and the City,
undoubtedly the e are other wetlands that have not yet been precisely located and mapped.
The following C PPs and City policies address the protection of wetlands.
Countywide Plannin Policies
CAt Until th Washington State Department of Ecology adopts a manual for the
delineat on of wetlands pursuant to Section 11 of Chapter 382 of the Laws of
1995, ju isdictions shall have the option of using either the 1989 manual ofthe
United tates Army Corps of Engineers or the Corps' 1987 manual in conjunction
with the Corps' Washington Regional Guidance. Once the Department of Ecology
adopts i s manual for the delineation of wetlands, all jurisdictions shall use such
manual s it is initially adopted or thereafter amended.
CA2 In the I ng term, all jurisdictions shall work to establish a single countywide
c1assifi tion system for wetlands.
CA3 Within ach basin, jurisdictions shall formulate their regulations and other non-
regulat ry methods to accomplish the following: protection of wetlands, assure
no net-l ss of wetland functions, and an increase of the quantity and quality of
the wetl nds. The top class wetlands shall be untouched.
CA4 Implem ntation of wetland mitigation should be flexible enough to allow for
protecti n of systems or corridors of connected wetlands. A tradeoff of small,
isolated wetlands in exchange for a larger connected wetland system can achieve
greater esource protection and reduce isolation and fragmentation of wetland
habitat.
Goal
NEG7 Prate t and enhance the functions and values of the City's wetlands.
Policies
NEP43 The ity will protect its wetlands with an objective of no overall net-loss of
funct ons or values.
NEP44 The ity shall, as a minimum standard, use the methodology in the March
1997 Washington State Wetlands Identification and Delineation Manual
(Dep ment of Ecology Publication #96-94) as set forth in WAC 173-22-080,
as it xists as of November 1, 1999, or as subsequently amended for
ident fication and delineations of wetlands within the City.
Revised 2002 IX - 13
FWCP - Chapter Nine, Natural Environment
NEP45 The City will work with other jurisdictions, tribes, and citizen groups to
establish wetland policies and a classification system for wetlands that allows
for the designation of both regionally and locally unique wetlands.
NEP46 The City will work with the Lakehaven Utility District to evaluate pumping
rates within the Hylebos Creek and Lower Puget Sound drainage basin to
establish the effect of groundwater withdrawal on streams, lakes, and wetlands.
NEP47 The City will avoid the use of natural wetlands for use as public stormwater
facilities whenever possible. If the use of a natural wetland is unavoidable, the
functions/values of that wetland should be replaced to the extent that they are
lost. Special care will be taken to avoid using more sensitive, and valuable
wetlands for storm water management. Wetlands will be protected from
excessive flow quantities and poor water quality, especially more sensitive and
valuable wetlands. When wetlands are used for stormwater purposes, the
maintenance of those facilities will follow carefully evaluated guidelines that
meet the maintenance needs but minimize the impact on the wetland.
Restoration/enhancement activities in wetlands will also follow carefully
evaluated guidance that will maximize the benefits to the wetland, and
minimize the short- and long-term negative impacts ofthe activities.
Regulations governing wetland management activities will promote
restoration/enhancement activities. The City will evaluate allowing the use of
wetland buffer areas for water quality treatment facilities, including
constructed wetlands. The City should evaluate the application of wetland
regulations to constructed wetlands, as defined in the Surface Water
Management Comprehensive Plan.
Prior to 1999, all wetlands in the City were afforded a 100- foot uniform buffer regardless
of wetland size or type. While this allowed for predictability, the guidelines did not
provide flexibility nor did they reflect the varying degrees of wetland functions, values,
and quality.
In 1999, the City completed an inventory of wetlands within the City limits and Potential
Annexation Area (PAA). Wetlands were mapped and classified using a three-tiered
system. The inventory was used to help the City create policy and regulations that reflect
local as well as regional conditions. In 1999, the City adopted amendments to the FWCC
Section 22-1 and Chapter 22, Article XIV, "Environmentally Sensitive Areas."
The City may permit urban development to cause the destruction of wetlands determined
to be replaceable based on a variety of factors. In these situations, compensatory wetland
mitigation, such as wetland creation, restoration, or enhancement, must be provided. The
City recognizes that the elimination of certain wetlands in exchange for appropriate
mitigation can contribute to the overall wetland system, and may in fact achieve better
resource protection.
Goal
NEG8 Explore ways a/mitigating wetland loss.
Revised 2002 IX - 14
FWCP - Chapter Nine, Natural Environment
Policies
NEP48 The C ty should develop a wetland mitigation-banking program. The plan will
addres restoration, creation, enhancement, monitoring, and contingency
planni g for the replacement or enhancement of wetlands..
NEP49 Mitig tion sites should replace or augment the wetland values to be lost as a
result f a development proposal. Sites should be chosen that would contribute
to an xisting wetland system or, if feasible, restore an area that was
histori ally a wetland.
NEPSO All w tland functions should be considered in evaluating wetland mitigation
propo als, including fish and wildlife habitat, flood storage, water quality,
recrea ion, and educational opportunities.
NEPSl The C ty will protect wetlands by maximizing infiltration opportunities and
prom ting the conservation of forest cover and native vegetation.
NEPS2 Wetla ds created as a result of a surface or stormwater detention facility will
not b considered. wetlands for regulatory purposes.
Shorelines
The City of Fed ral Way adopted the King County Shoreline Management Program
(Program) short y after the City's incorporation. King County's program is a functional
plan and was de eloped in compliance with the state's Shorelines Management Act.
In 1999, the Ci adopted a new Shoreline Master Program consistent with community
values, land use and environmental protection, state law, and the policy direction of the
Natural Enviro ent and Land Use chapters of the FWCP. The program also recognizes
the unique recre tional and natural habitat of the City's shorelines.
Policy
NEPS3 Keep abreast of proposed changes to the state's Shoreline Management
Regu ations and amend the City's Program in order to enhance the shoreline
and p' otect salmon and other threatened or endangered species.
9.3 GEOLOGIC H ZARDOUS AREAS
Geologically h
and seismic ha
geographically
ardous areas include: steep slope hazard, landslide and erosion hazard,
rd (liquefaction-prone) areas. WAC 365-195-200(9) defines
azardous areas as, "... areas that because of their susceptibility to
Revised 2002
IX-15
FWCP - Chapter Nine, Natural Environment
erosion, sliding, earthquake, or other geological events, are not suited to siting of
commercial, residential, or industrial development consistent with public health or safety
concerns."
In Federal Way, geologically hazardous areas have been mapped along much of the Puget
Sound shoreline and in more limited areas north of Steel Lake, and west and south of
Hylebos State Park (Map IX-7).
Landslide-Prone Areas represent a potential hazard to people and property. Inappropriate
development activities may disturb the natural stability of soils, surficial geology, slopes, and
hydrology to the point that mass wasting, erosion, high run off, and stream siltation may
occur. There are many areas in Federal Way, particularly the high bluffs along Puget Sound
that have high potential for landslide. These areas typically have slopes greater than 15
percent, springs or groundwater seepage, and highly permeable sand and gravel soils
overlaying relatively impermeable silt and clay soils.
Seismic Hazard Areas are characterized by low-density cohesion less soils in association
with a shallow groundwater table. During an earthquake, these soils become highly
unstable and are unable to adequately support structures. With appropriate construction
techniques, such as soil compaction or pile construction, building owners can minimize
the potential for damage to some extent. To identify seismically hazardous sites and
recommend appropriate construction techniques typically requires the services of a
qualified geotechnical engineer.
Soil Erosion problems are typical in all areas of Federal Way. Generally, these problems are
the result of improper or inappropriate grading and construction practices, and high
volumes of rainfall. However, there are small areas of the City where the soils are so
erosion sensitive that urban development is not appropriate because of the sensitivity of
these soils to disturbance.
Steep Slope Areas are typically found along the western portion of Federal Way, as the land
ends in high banks above the Puget Sound shoreline. In addition, there are other isolated
areas throughout the City. These hillsides are either naturally unstable, or susceptible to
instability when disturbed.
The following CWPP and the City policies address protection of geologically hazardous
areas.
Countywide Planning Policy
CA13 All jurisdictions shall regulate development on certain lands to protect public
health, property, important ecological and hydrogeologic functions, and
environmental quality, and to reduce public costs. The natural features of these
lands include: a) Slopes with a grade greater than 40 percent; b) Severe landslide
hazard areas; c) Erosion hazard areas; d) Mine hazard areas; and e) Seismic
hazards. Regulations shall include, at a minimum, provisions for vegetation
retention, seasonal clearing and grading limits, setbacks, and drainage and
erosion controls.
Revised 2002 IX -16
FWCP - Chapter Nine, Natural Environment
Goal
NEG9 Adopt tandards to ensure against the loss of both public and private property
in geo ogicaUy hazardous areas.
Policies
NEP54 Land ses on steep slopes should be designed to prevent property damage and
enviro mental degradation, and to enhance open space and wildlife habitat.
NEP55 As slo e increases, development intensity, site coverage, and vegetation removal
shoul decrease and thereby minimize drainage problems, soil erosion, siltation,
and la dslides. Slopes of 40 percent or more should be retained in a natural
state, ree of structures and other land surface modifications.
NEP56 Lands ide hazard areas should be free of development, unless the risks and
adver e impacts associated with such development can be reduced to a
negli 'ble level.
NEP57 In are s with severe seismic hazards, special building design and construction
me as res should be used to minimize the risk of structural damage, fire, and
injury to occupants, and to prevent post-seismic collapse.
NEP58 Prior 0 development in severe seismic hazard areas, the City may require
speci I studies to evaluate seismic risks and to identify appropriate measures to
reduc these risks.
NEP59 The ity should develop special regulations that address construction on or
near arine bluffs of Puget Sound. Regulations should take into consideration
lands ide potential, drainage, and vegetation removal.
NEP60 Prop sals for development on or near marine bluffs should substantiate, either
throu h design or adherence to special development regulations, that the
devel pment has less than a 25 percent chance offailing by collapsing, or
beco ing dangerous and/or uninhabitable due to slope movement within a 50
year me period.
NEP61 Deve opment along marine bluffs should take into consideration the unique
habit t these areas provide by leaving as much native vegetation as possible,
espe . ally snags.
9.4 FISH AND WIL LIFE HABITAT AREAS
Fish and wildli e habitat conservation areas are considered critical areas and are
necessary for e" her resident animal species, or seasonal migratory animal species. These
habitats are ext emely important and, if altered, may reduce the likelihood that a given
Revised 2002
IX-17
FWCP - Chapter Nine, Natural Environment
species will survive. Habitat conservation areas may include areas of species richness,
breeding habitat, winter range, and migration corridors. These also include habitats that
are of limited availability or high vulnerability to alteration, such as cliffs, talus, and
wetlands (Map IX-8).
This chapter also recommends that the City complete the necessary studies to identify
and map habitat conservation areas so that they can be protected.
Significant habitat also exists in aquatic, wetland, and riparian areas and on steep slopes
that are privately owned, but protected by development regulations. Linking public and
private natural areas can provide food, shelter, and migration corridors for a healthy and
sustainable population of salmon, songbirds, and other species.
Urban landscaping, parks, and open space are valuable supplements to natural areas in
terms of providing habitat for a wide variety of wildlife. The loss of natural wildlife
habitat to urban development can be partially offset by landscaping that includes a variety
of native plants, which provide food and shelter for wildlife. .
Countywide Planning Policies
Through the following goals Federal Way sets out to conserve, protect, restore, and
enhance fish and wildlife habitat areas.
CA8 All jurisdictions shall identify critical fish and wildlife habitats and species and
develop regulations that: a) Promote their protection and proper management;
and b) Integrate native plant communities and wildlife with other land uses where
possible.
CA9 Natural drainage systems including associated riparian and shoreline habitat shall
be maintained and enhanced to protect water quality, reduce public costs, protect
fish and wildlife habitat, and prevent environmental degradation. Jurisdictions
within shared basins shall coordinate regulations to manage basin and natural
drainage systems which include provisions to: a) Protect the natural hydraulic
and ecological functions of drainage systems, maintain and enhance fish and
wildlife habitat, and restore and maintain those natural functions; b) Control peak
runoff rate and quantity of discharges from new development to approximate pre-
development rates; and c) Preserve and protect resources and beneficial functions
and values through maintenance of stable channels, adequate low flows, and
reduction of future storm flows, erosion, and sedimentation.
CAlO Jurisdictions shall maintain or enhance water quality through control of runoff
and best management practices to maintain natural aquatic communities and
beneficial uses.
CAll The Washington State Department of Fisheries and Wildlife and the Indian
Tribes both manage fish and wildlife resources. However, local governments
have authority for land use regulation. Jurisdictions shall coordinate land use
planning and management offish and wildlife resources with affected state
agencies and the federally recognized Tribes.
Revised 2002 IX - 18
FWCP - Chapter Nine, Natural Environment
Goal
NEG 10 Prese e, protect, and enhance fish and wildlife habitat.
Policies
NEP62 As fea ible, the City will conduct studies needed to identify and map critical
fish an wildlife habitat conservation areas and may re-evaluate existing
regula ons for the protection of these areas.
NEP63 The Ci should manage aquatic and riparian (stream side) habitat in a way that
minim zes its alteration in order to preserve and enhance its ability to sustain
fish an wildlife.
NEP64 The C' should preserve and enhance native vegetation in riparian habitat
where er possible.
NEP65 The C should encourage residents and businesses to use native plants in
reside tial and commercial landscaping.
NEP66 The C ty will protect wildlife corridors in the City owned open space where
appro riate. These areas should use native plants that support native species of
birds nd animals where appropriate.
NEP67 ible, the City will adopt and implement fish habitat conservation plans
salmon runs in the Hylebos drainage, Lakota Creek, Joe's Creek, and
any 0 er identified salmon streams. These plans will include recommendations
for im rovements to the riparian corridor and provisions for adequate buffers
adjace t to all proposed development.
NEP68 The C ty should encourage informational and educational programs and
activit es dealing with the protection of wildlife. An example of such a program
is the ackyard Wildlife Sanctuary program established by the state's
Depa ment of Fish and Wildlife.
9.5 AIR QUALITY
Air quality, once a problem for other regions ofthe United States, is now a major problem in
the Pacific Nort est. The preservation of clean air is essential to maintaining the quality of
life enjoyed in th s region. Air pollution in the Puget Sound Region is the result of increased
vehicle emissio primarily from cars and trucks. Therefore, if this region is going to resolve
its growing air p lIution problem, it must develop a more efficient and less auto-oriented
transportation sy tem.
The following WPP and City policies are adopted to protect air quality.
Revised 2002
IX-19
FWCP - Chapter Nine, Natural Environment
Countywide Planning Policy
CA14 All jurisdictions, in coordination with the Puget Sound Clean Air Agency and the
Puget Sound Regional Council, shall develop policies, methodologies, and
standards that promote regional air quality, consistent with the Countywide
Policy Plan.
Goal
NEGll To protect air quality.
Policies
NEP68 Support state and federal air quality standards and the regulation of activities
that emit air pollutants.
NEP70 Encourage transportation demand management and alternatives to the single
occupancy vehicle in order to reduce energy consumption, air, and water
pollution.
9.6 NOISE
Noise pollution can be harmful to the general public's health and welfare and has
adversely affected the livability and comfort of neighborhoods within the City of Federal
Way. Noise is primarily generated by: air traffic from Seattle-Tacoma International
Airport (SeaTac); vehicle traffic; and construction activities. The City will need to
continue its efforts at the regional and state level to mitigate the impacts associated with
the SeaTac Airport.
Goal
NEG 12 Develop programs and/or regulations to address noise pollution in all areas of
the City.
Policies
NEP71 The City should develop and adopt construction standards to mitigate noise
generated by SeaTac Airport and Interstate 5, as well as other major arterials.
NEP72 The City will evaluate potential noise impacts associated with non-residential
uses and activities located in residential areas as part of the site plan review
process. The City may adopt noise level standards for all non-residential uses.
Revised 2002 IX - 20
FWCP - Chapter Nine, Natural Environment
NEP73 The C ty will continue to work with the Port of Seattle to mitigate noise
impac s within the 65ldn contour. In this effort, the City will work with the
Port t field verify the results generated by the Integrated Noise Model.
NEP74 The C ty will continue to work in concert with the Puget Sound Regional
Coun ii, Regional Commission on Airport Affairs, and the Airport
Com unities Coalition, or their successors or other entities, to resolve
probl ms associated with the proposed expansion of SeaTac Airport.
NEP75 In de eloping new roadway systems, the City will evaluate the noise impact on
reside tial neighborhoods as appropriate in, or through, residential areas.
9.7 OPEN SPACE
Trails and open pace corridors form linkages between and within neighborhoods,
commercial are s, and neighboring jurisdictions. Open space corridors also provide
wildlife habitat, recreation areas, as well as visual and physical separation between land
uses. In order to achieve an effective open space system, the City will work cooperatively
with surround in jurisdictions to construct a network of open space. Open space can
include: enviro mentally sensitive areas, forests, pasture land, lakes, and waterways.
Areas identified as open space in the Comprehensive Parks Plan may be purchased or
otherwise prote ted from development by the City.
Countywide Plan ing Policies
CC7 All juri dictions shall work cooperatively to identify and protect open space
corrido s of regional significance.
CC8 Water odies and rivers of the Puget Sound region form an important element of
the ope space system. Jurisdictions shall work to protect visual access to water
bodies nd rivers, and provide for physical access where appropriate.
CC13 All juri dictions shall develop coordinated level of service standards for the
provisi n of parks and open space.
Goal
NEG 13 Deve op an open space network throughout the City and with adjacent jurisdictions.
Policies
NEP76 Ope space is as important as wildlife habitat and should be linked with open
spac identified in the King County Open Space Plan.
Revised 2002 IX - 21
FWCP - Chapter Nine, Natural Environment
NEP77 The City should identify an open space plan and develop a program to acquire
or accept donations of these areas for preservation.
NEP78 The City should consider innovative ways of acquiring property for open space
such as transfer of development rights and development incentives for set asides.
9.8 IMPLEMENTATION
The implementation of the policies contained in this chapter will occur over a number of
years and is dependent on resources available to the City and the community. The 1995
FWCP listed the following six-implementation strategies to be implemented within five
years. Four of the six have been completed, one is in process, and the last (creation of
aquifer recharge maps) still needs to be done:
1. Revise the City's wetland buffering requirement (Completed 1999).
2. Develop a new Shorelines Master Program to be consistent with the policies of
this chapter and the Land Use chapter, community values, and state law
(Completed 1999).
3. Adopt a new definition of stream to distinguish between man-made conveyance
systems and natural streams, requiring a definition change to the
Environmentally Sensitive Areas Ordinance (In late 2001, the City hired a
consultant to evaluate key City regulations, including the definition and
classification of streams. This study, completed in June 2002, made certain
recommendations that may be implemented upon direction by the City Council.)
4. Map wellhead protection zones (Completed in 2001 by Lakehaven Utility District.)
5. Inventory wetlands (Completed 1999).
6. Update aquifer recharge area maps.
The City shall adopt a new stream definition at the time code amendments are necessary
to implement the Endangered Species Act.
Revised 2002
IX-22
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il.
CHAPTER TEN - PRIVATE UTILITIES
10.0 INTRODUCTION
This chapter satisfies a Growth Management Act (GMA) requirement that cities prepare a
Private Utilities qhapter. This chapter describes the location of existing utilities and the
proposed locatiom of new utilities, as well as the capacity of existing and proposed
utilities. The GMA requires the Federal Way Comprehensive Plan (FWCP) to have
internal consisterlcy. This means that the Private Utilities chapter must be fully
coordinated withlother chapters of the FWCP. This is particularly important for Federal
Way's City Cent~r and in the 1-5/99 corridor where new development and other land use
change is anticip~ted in the near future.
In accordance w~~h WAC 365-195-320(2)(c), this Private Utilities chapter includes plans
for natural gas, electricity, telecommunications, and cable television service for the City
and its planning area (Map X-I - Council Approved P AA Boundary, maps are located at
the end of the ch~pter). Each utility plan will describe and analyze existing and proposed
utility systems wiithin Federal Way and improvements necessary to meet growing
consumer demand. In most cases, maps are provided to illustrate the existing system and
proposed improVlements. Plans for water supply and sewer are found in the Capital
Facilities chapter of the FWCP.
The City sees the GMA requirement to prepare a Private Utilities chapter as an
opportunity to identify ways of improving the quality of services provided within the
City. The City will use this Private Utilities chapter to identify goals and develop policies
to ensure that prcl>vision of utilities is properly coordinated with land use.
The City acknowledges that it would not have been possible to prepare this chapter
without the assiStance of local utility providers.
10.1 ORGANIZATIOiNAL AND LEGAL CONTEXT
Privately ownedl electrical, natural gas, and line telephone utilities are regulated by the
Washington Utilities and Transportation Commission (WUTC). Cellular telephone
communication companies are licensed by the Federal Communications Commission
(FCC). Cable television companies are regulated by the Federal Communications
Commission (F<j:C) and the Communications Act of 1934, as amended. Private utilities
must have a fraqchise agreement to place utilities in the public right-of-way or on private
property. Francijise agreements give each utility the non-exclusive right to provide its
category of serv~ce within the City.
FWCP - Chapter Ten, Private Utilities
10.2 COUNTYWIDE LAND USE POLICIES FOR UTILITIES
The King County Growth Management Planning Council (GMPC) drafted the following
Countywide Planning Policy (CWPP) that is relevant to private utilities:
C06 Aggressive conservation efforts shall be implemented to address the need
for adequate supply for electrical energy and water resources, protect
natural resources, and achieve improved air quality. Efforts shall include,
but not be limited to, public education, water reuse and reclamation,
landscaping which uses native and drought-resistant plants and other
strategies to reduce water consumption, small lot size, low-flow
showerheads, conservation credits, and energy efficiency incentives in
new and existing buildings.
This Private Utilities chapter is consistent with the aforementioned CWPP.
10.3 PUGET SOUND ENERGY
Description of Utility
Puget Sound Energy Company, Inc. (PSE) is an investor owned private utility
headquartered in Bellevue, Washington. It provides electric and natural gas service to
approximately 1,377,388 metered customers within the company's 6,000 square mile
service territory. This service territory encompasses eleven counties in western and
central Washington. PSE is regulated by the Washington Utilities and Transportation
Commission (WUTC) and the Federal Energy Regulatory Commission (FERC). The
Natural Gas Policy Act of 1978 was designed to increase competition among energy
sources by encouraging the development of new natural gas resources and the
development of nationwide transmission pipelines.
PSE builds, operates, and maintains an extensive electric and gas distribution system
consisting of generating plants, electric transmission lines, gas supply mains, distribution
systems, substations, and pressure regulating stations. It is a hydroelectric-based
company purchasing about 40 percent of its power from utilities that own five large
hydro facilities on the Columbia River.
Six PSE owned hydroelectric plants, on the Nooksack, Baker, Snoqualmie, White, and
Puyallup rivers add to the hydro base on the west side of the Cascades. Other PSE owned
or partly owned sources include three coal~fired plants (in Colstrip, Montana), and six gas
and oil-fired plants.
Revised 2002
X-2
FWCP - Chapter Ten, Private Utilities
General Location
PSE supplies electric and natural gas service within the entire limits ofthe City of
Federal Way. The quality of service within Federal Way is dependent on the local
delivery system ~perated by PSE, the bulk transmission system operated by Bonneville
Power Administration (BPA), and power generation by a number of agencies, including
PSE. Natural ga$ is supplied to the entire region through pipelines owned and operated by
Williams Gas Pipeline - West, Salt Lake City, Utah. The "gate station" off the pipeline
that provides most of the natural gas supply to Federal Way is located in Derringer (near
Auburn).
Type of Service: ;Electric
,
Transmission Lines (115kV). Schematically, Figure X-l (page 4) describes how electricity is
transmitted from the generation source to customers. Map X-2 describes that portion of
PSE's transmission system that covers Federal Way. It is a grid that provides a link
between BPA's Bulk Transmission System and the local distribution system that
connects with c4stomers. The "Bulk Transmission System" is operated by the BP A,
which operates ~ region wide, interconnecting, transmission system that supplies electric
power to utilities from federal hydroelectric projects east and west of the Cascades. The
primary service BP A provides to PSE is wheeling energy around the region. All the
transmission Iin~s supplying Federal Way are energized at IISkV (Kilovolt). These lines
supply power into the Federal Way distribution system and provide connections to
Tacoma City Li$ht, King, and Pierce Counties. Power is transferred from the
transmission system to Federal Way's local distribution system at six distribution
substations. Power also comes into the City from substations located in Pierce County
and unincorporalted King County.
Transmission Swit~hing Stations. The only switching station in Federal Way is the Starwood
Station. Switching stations are used to control and monitor power flow on 11SkV lines in
order to increas4 system reliability.
I
Distribution Substations. Distribution substations transform voltages of 1 15kV or greater to lower
voltages of 12 or 34kV. The following stations are located in Federal Way: Lakota, Kitts
Comer, Belmore I, Belmore II, Marine View, Starwood, West Campus, and Weyerhaeuser.
Future Facility Co~struction
PSE predicts thlh the load for the greater Federal Way area will grow by 103.9 MY A
between 1990 apd 2020. Map X-2 shows proposed transmission lines and substations
necessary to increase service reliability and/or capacity in the Federal Way area to meet
this projected load growth. The additional substations needed include:
.
Killarney .
Twin Lakes ·
Federal Way
Five Mile Lake
. Dolloff
· Enchanted
. Steel
.
In addition, Marine View will be expanded to a switching station.
Revised 2002
X-3
FWCP - Chapter Ten, Private Utilities
Figure X-l
Electricity Supply From Source to Customer
Hlgh.voltago
Tran~mlsslon l.lnes
~.I 1
.....~......
..:0....
~
Subsllllon
T~"i'"''''
PSE forecasts that these improvements, along with others elsewhere in the subarea, will
produce a system that will be operating at n.5 percent of capacity by the year 2020.
Additional transmission line and transformer capacity may be necessary on the
PSE/Tacoma City Light (TCL) intertie at Starwood. Proposed cogeneration facilities in
TCL's tideflats area could potentially expand the existing system. The timing of any
improvement would depend on the design and capacity of the cogeneration facility.
PSE also has an active asset management plan. The plan includes replacing poles as they
age, and as necessary to maintain or to increase line clearances.
Revised 2002
X-4
FWCP - Chapter Ten, Private Utilities
Type of Service: ~atural Gas
PSE provides natural gas to the City and surrounding communities through a network of
interconnecting ~upply and distribution mains (Map X-3). The components and hierarchy
of natural gas su~ply are illustrated in Figure X-2 (page 6). According to PSE's Rate
Department, the ~verage house (using natural gas for both heat and hot water) consumes
about 1,000 thenps per year. Ten therms equals approximately one "mcf' (one thousand
cubic feet) of gas per year.
When planning the size of new gas mains, PSE uses a saturation model which assumes all
new households will use natural gas since 99 percent of new homes constructed, where
builders have the choice, are using natural gas. Extension of service (typically
conversion) is b~sed on request and the results of a market analysis to determine if
revenues from aq extension will offset the cost of construction.
PSE had 17,319 gas customers in the City as of November 1999. There were 12,855 in
the City in Novejnber 1989. Based on growth, PSE anticipates 22,500 customers in the
City by 2009. Tlie existing system is capable of supplying approximately 50,000
customers in thelFederal Way area.
i
Gas Supply Mains:IThese are generally larger diameter (six:inch steel and larger) mains
designed to ope~te at higher pressure (100 psig to 250 psig) to deliver natural gas from
the supply sourc~ to pressure reducing stations. PSE has 35,650 feet of 12-inch supply
main located in Military Road South and 3,200 feet of six-inch located elsewhere.
Pressure Reducing ,(District Regulators) Stations: These are located at various locations
throughout the system to reduce supply main pressure to a standard distribution operating
pressure of approximately 60 psig. There are five regulator stations located in Federal Way.
Distribution Mains;' Distribution mains are fed from District Regulators. These are typically
8, 6, 4, 2 and 1.25 inch in diameter. The pipe material is typically polyethylene (PE). PSE
currently has approximately 350 miles of distribution main serving within the City of
Federal Way.
Future Facility Construction
There are three trpes of construction anticipated in the Federal Way area. These include:
New installation due to increased capacity of existing customers or conversions from an
alternate fuel.
Main replacement 'projects to facilitate improved maintenance and system reliability.
Replacement or re'ocation of facilities due to municipal and state projects.
Long Range Plans;(withinjive years): Install 12-inch STW High Pressure Supply Main in
the north end o~Federal Way at approximately South 272nd Street and Military Road
South (Map X-4).
Revised 2002
X-5
FWCP - Chapter Ten, Private Utilities
Figure X-2
Typical Puget Sound Energy Distribution System
GAlC STATlOH
The polnl at Whleb oas
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Ihe WNG system. Hele
an odClant Is added
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LIMITING STAnOH
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HORTIlWEST PIPeliNE . .
Thelnlet~all plpeDne .eMnO WNQ Is NW PlpeUn!, whIeb conslSI' 012
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pounds pel squaro Ineb IPsl). The ni\Vrll gU$Plllyollgln'les.pr!mtrDy
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(lP) DISTIIICT REQ\I1.A1OIl
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10.4 TELECOMMUNICATIONS PLAN
The telecommunications section focuses on line telephone, wireless communication,
Internet service and cable TV. Telecommunications is not only important for voice
transmission but also provides the infrastructure for the transmission of images and
electronic data. In the City, telecommunications service providers include QWest, which
operates both land-based and cellular telephone systems, several wireless providers, and
Comcast which provides cable TV and Internet service.
Revised 2002
X-6
FWCP - Chapter Ten, Private Utilities
The telephone portions of the telecommunications industry are extremely competitive and
for this reason, the City had difficulty obtaining detailed information about operations
and plans. As a result, the section of the plan addressing telephone service: (i) reflects the
City's commitm~t to providing advanced telecommunications services; (ii) provides a
general description of how the existing system works; and (iii) describes the process for
improving delivery.
Telephone System
Existing Facilities a,nd Operations -QWest Communication, Inc. delivers telecommunication
service to the Federal Way planning area as regulated by WUTC.
A local exchange area is served by a Central Office (CO), which contains various kinds
of switching equipment. From a CO, there are typically four main cable routes extending
relatively north, $outh, east, and west. From each main cable route there are branch
distribution routes. These facilities may be aerial or buried, copper or fiber. Extending
from the branch distribution routes are local lines that can be used for voice or data
transmission by subscribers.
Proposed Improvements -QWest is required by law to provide adequate telecommunications
services on demand. Accordingly, QWest will provide facilities to accommodate whatever
growth pattern ~curs within the City. Due to advances in technology, additional capacity
is easily and quickly added to the system.
I
Wireless Networks
Existing Systems - ['he City of Federal Way is currently served with a number of wireless
service provider$. Wireless communication is becoming increasingly important in the
telecommunications world. It is a combination of a portion ofthe radio frequency spectrum
with switching technology, making it possible to provide mobile or portable telephone
service to virtually any number of subscribers within a given area. Transmission quality is
comparable to tHat provided by conventional wireline telephones, and the same dialing
capabilities and features available to wire line users are available to cellular users. The
wireless/cellular: communications sector of the economy is growing rapidly.
In 1997, the City adopted land use review procedures for siting facilities associated with
these services. llhese regulations were subsequently revised in 2000 and 2001. All of
these technologi~s use a line-of-sight radio signal transmitted and received by antennas.
Therefore, it is not possible to underground the antennas or structures on which the
antennas are mounted. The FCC regulates the cellular telephone industry by controlling
where carriers can operate and what frequencies can be utilized in their operation. This
ensures that their operation does not interfere with AM/FM radio and cable television
transmissions. It interference does occur, the cellular tower operator is required by the
FCC to eliminat~ any noise or interference that impacts local citizens. For example, if a
television set or iradio experiences interference from the tower, the operator must either
correct the problem or disable the cellular site.
Revised 2002
X-7
FWCP - Chapter Ten, Private Utilities
Wireless service transmits and receives low power high frequency radio signals. The
basic technology is as follows:
1. The service originates from a cellular phone, pager, computer, dispatch service,
or personal communications service.
2. The signal is transmitted to the nearest cellular communications facility, known
as a cell site, which processes numerous cellular phone calls and routes them to
the nearest hub cellular switching office.
3. At the cellular switching office, also known as a Mobile Telephone Switching
Office, the call is further processed and the call is routed to the party being
called. The call may be routed via traditionallandline or via a cellular network
depending on the nature of the receiving device.
System Capacity - Capacity is a function of frequency of use, the number of sites in a
geographic area, and the number of customers. However, wireless service providers
consider site locations, the number of calls handled, number of customers, and cell site
capacity to be proprietary information.
Improvements to the Cellular System - Like the non-cellular telephone companies, wireless
companies expand services in response to growth. For this reason, companies closely
analyze market demand to determine expansions into new service areas. The cellular
network is expanded by dividing a larger cell into several smaller cells to increase the
number of available channels. Capacity may also be expanded through technological
advances in digital equipment.
Internet Service
Internet service is presently provided by telephone, cable, and satellite. QWest provides
Internet service via telephone lines and Comcast provides Internet service via cable. The
Weyerhaeuser Company and Williams Communication have recently obtained franchises
from the City to construct fiber optic communication systems throughout the City. In
addition, as the City constructs or reconstructs streets, it is providing conduits to assist in
the installation of fiber optic communication systems.
Cable TV Plan
On November 18, 2002, Comcast and AT&T Broadband merged to form the new
Comcast Corporation. Corn cast Corporation, which is headquartered in Philadelphia,
Pennsylvania, is the largest U.S. cable company serving more than 21 million customers
in 41 states, as of 2003.
Revised 2002
X-8
FWCP - Chapter Ten, Private Utilities
Figure X-3 (page: 10) is a general description of the components of the cable TV (CATV)
system and shows supply from source to customer. One of the primary components of a
cable system is the headend site Can electronic control center where the information
signal is processed for distribution through the cable system. The signal can be received
either off a hard Hne (cable), satellite dish, microwave antennas, and/or TV antenna.
Existing Condition~
Map X-5 shows-the Comcast service areas covering the City. Comcast's Tacoma, Pierce
County system, serves the majority ofthe City. A small area in the northern part of Federal
Way and parts of the area to the east ofl-5 are served by the Comcast's Auburn system.
,
The headends, located north and south of the City, supply the signal by microwave feed.
The majority ofthe system has been designed and built at a capacity of 450 MHz and will
be upgraded consistent with the franchise agreement between Comcast and the City of
Federal Way.
Map designations depict the main trunk cable lines (coax and fiber) distributing signals
throughout Federal Way. Feeder cables (not depicted) branch from the main trunk cables
to distribute the signals to neighborhood areas. From there, individual connections are
made to the customer's service entry.
System Analysis
In June 1998, Comcast was providing cable TV service to 29,787 customers citywide.
This service levc::l represents 71 percent of potential customer connections in the City.
Existing cable television facilities are currently capable of servicing approximately 98
percent of the p<iltential customer connections in Federal Way.
Comcast makes levery attempt to provide service to all residents within its franchise areas.
Factors considened in extending service are overall technical integrity, economical
feasibility, and franchise requirements.
Proposed Imprqvements
Cable television installations are made to new subscribers (either to new dwelling units
or, to a much snjlaller degree, to residences who have not opted for cable before) at
published rates, provided they are less than 150 feet from a distribution or feeder line.
Connections requiring longer runs are charged on a time and material basis. Most public
work considerations, such as tree trimming, work in the right-of-way, restoration of
property, and so on, are covered in the City of Federal Way Master Cable Television
Ordinance and franchise Agreement.
,
Comcast works !closely with utility companies and the City to stay informed on proposed
developments s6 that cable can be a part of a development's plans. Each year, engineers
assigned to the federal Way area assess the need for system expansion based on
Revised 2002
X-9
FWCP - Chapter Ten, Private Utilities
telephone inquiries, permitting data from the City and County, and technological
advances in distribution equipment.
Figure X-3
Cable Source to Customer
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The total mileage of cable plant within the City is approximately 280 miles. The
company now offers digital service to Federal Way customers Comcast has also begun
replacing existing copper cable trunk lines with fiber optic, which can be configured to
carry video or data transmission signals.
Revised 2002
X-10
FWCP - Chapter Ten, Private Utilities
10.5 GOALS AND POLICIES FOR CITY ACTION
The Private Utilities chapter provides an opportunity for the City to assist utility
companies in de~ivering efficient service to customers, and to seek to reduce potential
negative impact~ on the natural and built environments. This section builds upon system
descriptions to identify issues and sets forth policies to coordinate the provision of
utilities with City planning.
The GMA requires that the utilities element include the general location, proposed
location, and capacity of all existing and proposed utilities. This has resulted in cities and
counties becomiflg more actively involved in the way in which utilities are sited and
provided. In ordh to protect both citizens and utility customers, the City will work in
accordance with, the following goals and policies:
Goals
PUGl Work with private utility companies to allow them to provide full and timely
service that meets the needs of the City's residents and businesses, both present
and future.
PUG2 Work }'lith private utility companies to allow them to provide service in a way
that balances cost-effectiveness with environmental protection, aesthetic
impact, public safety, and public health. .
PUG3 Proce~s permits for private utility facilities in an efficient and timely manner, in
accord~nce with franchise agreements, development regulations, the FWCP, and
adopt~d codes.
PUG4 Ensur~ that development regulations are consistent with public service
oblig~tions imposed upon private utilities by federal and state law.
Policy and Issue statements
Issue Statement: I1rovision of Timely and Economic Services to the Citizens and Businesses
of Federal Way,.
Partnership wit}1 private and public service providers is a continual theme of the FWCP.
The City plays ~ critical role in the provision of private utilities. The City approves
permits that allow utilities to build transmission towers, lay distribution lines, and
connect custoniers. If the City responds quickly and appropriately, it helps the utility
companies respond to customer needs quickly and efficiently. However, the City must
Revised 2002
X-11
FWCP - Chapter Ten, Private Utilities
balance these considerations with its other responsibilities, including bringing them into
compliance with due process, ensuring consistency with the FWCP, addressing aesthetic
impacts, and protecting the natural environment. Therefore, the City must continue to
communicate with utilities and periodically review their needs as well as the policies in
the FWCP and its permit processing to ensure that the results are in the best interest of
Federal Way residents and businesses.
The City must also be mindful of the need to provide a choice of energy sources to
Federal Way's residents and businesses. Choice of energy source is important because it
creates competition in the marketplace that helps to keep costs down. Providing
alternative energy sources is also important because if one energy source fails, the other
may be available.
Policies
PUPl The City's right-of-way permitting process should not unnecessarily delay the
expansion or improvement of the utility network.
PUP2 The City will, if possible, coordinate with other jurisdictions on proposed utility
improvements that impact a multi-jurisdictional area.
PUP3 The City should work to encourage, to the extent possible, the supply of all
utilities to existing and new homes, offices, industrial, and commercial buildings.
Issue Statement: Coordination Between Utilities, Capital Facilities, City, and Private
Developers.
The costs of pipe, cable, or conduit installation can add significantly to the cost of
providing service. Installing utility lines, which follow existing right-of-ways and
easements, can also create disruptions to traffic and cause damage to pavement and
landscaping. These costs and disruptions can be reduced if utilities share the same trench
and perform work simultaneously.
Consequently, the City encourages utilities to continue exchanging information about
plans for expansion, maintenance, and upgrading of facilities. The City presently
provides information to all utilities about its public works projects, such as street
improvements, which may provide opportunities for installing new systems.
Policies
PUP4 The City encourages the joint use of trenches, conduits, or poles, so that utilities
may coordinate expansion, maintenance, and upgrading facilities with the least
amount of right-of-way disruption.
PUPS The City encourages utilities to inform one another of plans to expand or
improve utility services.
Revised 2002 X-12
FWCP - Chapter Ten, Private Utilities
PUP6 The Citjy will endeavor to inform utilities of upcoming improvements or
expansions that may provide opportunities for joint use.
PUP7 The Ci6' will endeavor to notify utilities of proposed plans to make highway or
right-o~-way improvements.
PUP8 The City hereby incorporates by reference PSE's GMA Electrical Facilities Plan
into this private utilities element as now existing or hereafter amended or adopted.
I
Issue Statement: Energy Conservation.
State and federal law requires energy conservation in building design. State and Federal
statues also require that power providers implement energy conservation policies. In
accordance with 'these mandates, PSE has an Energy Select Program that provides
information on qualified contractors for potential customers.
I
State law requir~s that the City's building code conforms to the Washington Energy Code
(WAC 51-11). I-towever, the energy code sets out only minimum standards for energy
conservation. Therefore, cities have developed conservation conscious design codes that
go beyond the minimum requirements of the energy code.
Policies
PUP9 The City shall, at minimum, ensure that its buildings comply with state and
federal standards for energy conservation.
PUPlO The Cijty will endeavor to work with utility companies to promote and educate
the pu~lic about strategies for conserving energy.
I
Issue Statement: Importance of Telecommunications and the Information Superhighway.
Society is in the'midst of a revolution in information and communication that is changing
the way that people interact with each other. For example, today, many of the transactions
and communications that make up the majority of our day are possible from a single
workstation. This revolution is being fueled by recent advances in computing and
telecommunicatfon technology.
I
There are several technological innovations that have stimulated these changes in our
lifestyles, incluqing: fiber optic cables, the "Integrated Services Digital Network" (ISDN)
and digital subshiber loop (high-speed communications over copper) technology. These
technologies combine to expand the capacity ofthe telecommunications network. This
expansion allo~s the provision of a diverse range of services on one system including,
telecommunications, cable TV, radio, business services, shopping, and professional
services. It will also be possible for institutions such as schools, universities, government,
and emergency services to broadcast on this single system.
Technology is ldso being developed to expand capabilities for transmitting information.
Revised 2002
X-13
FWCP - Chapter Ten, Private Utilities
In the past, one could transmit voice by telephone, text/graphics by facsimile, and data by
modem. Now it is possible to transmit video images, and potentially to broadcast to a
mass audience using these new technologies.
These advances in technology are forcing telecommunication companies to reevaluate
their business strategies. Technological change has made it possible for all services to be
provided on one cable, and companies are jockeying for position to create that system.
These advances have great potential to alter the way we do business in Federal Way. For
economic development reasons, the City must ensure that the atmosphere for investment
encourages companies to bring these advanced services to Federal Way, and that the
community's growing needs are addressed.
It is critical for people and businesses to have access to the information superhighway if
they are to enjoy a fully active role in society and the economy. In this sense, the
information superhighway is analogous to the road network, where all citizens have a
"right-of-way." For this reason, government has an essential role in ensuring that the
right of citizens to both receive and transmit information is protected, and in ensuring that
municipalities maintain their ability to regulate information providers in the same manner
that they regulate users of the rights-of-way.
Policies
PUPll The City will encourage and work with telecommunication and cable companies
to develop fiber optic cable networks and to increase interconnectivity between
different networks.
PUPl2 The City will endeavor to work with utility companies and other public
institutions, such as the School District, to develop a full range of community
information services, available to citizens and businesses through the
telecommunication network.
Issue Statement: Health Impact of Electro-Magnetic Fields (EMF) and Microwaves.
There is much public and scientific interest about the health effects of Electro-Magnetic
Fields (EMF) created by the electricity supply system. This interest has resulted primarily
from studies that suggest a possible link between EMF and certain forms of cancer.
However, this statistical link does not necessarily indicate cause-and-effect relationships.
Considerable research is underway, supported in large part by the $65 million funding
provision in the National Energy Policy Act of 1992. Puget Sound Energy has taken an
active role in this debate. However, there are, as yet, no agreed upon safety thresholds or
tolerance levels for human exposure to EMF.
Electro-Magnetic Fields are found wherever electricity exists. EMF are generated by
high-voltage transmission lines, low-voltage lines, and substations, as well as electrical
appliances and devices found in homes and businesses. The strength of an EMF depends
on the amount of current flow, not on voltage, and current is a function of energy
consumption. Research is clear that EMF are not blocked, reduced, or altered by most
Revised 2002
X-14
FWCP - Chapter Ten, Private Utilities
solid objects. Th~s means they are not blocked by vegetation, or by any form of
screening, or covering by earth. It is however, important to note that EMF diminish
rapidly with distance from source.
Research on both EMF and microwaves has been contradictory and generally
inconclusive. However they are issues that must continue to be monitored. Policy
responses to this lissue must be adopted as more information becomes available.
Policies
PUPl3 The City shall continue to monitor research into the health effects of Electro-
Magnetic Fields (EMF) and microwaves. The City will take appropriate action
once d~finitive conclusions about health implications are reached.
Issue Statement: Environmental and Aesthetic Impacts.
,
Utility systems qave a broad range of associated environmental and visual impacts. Much
of Federal WaY'$ electrical, telecommunications, and cable system is mounted on
overhead poles. Pole-mounted systems not only reduce the aesthetic appeal of
streetscapes but also contribute to system failures and power outages caused by falling
trees and branches. Undergrounding utilities is a potential solution to both problems, but
must be balanced against the cost associated with such undergrounding.
As with other types of development, the impacts of utilities on environmentally sensitive
areas need to be evaluated. These impacts are addressed in the context of broad
environmental protection policies in the Natural Environment chapter of the FWCP and
through measures for protecting critical areas in the zoning code. On the other hand, there
is also a need to provide for the location and continuing maintenance of essential public
and private utilities in environmentally sensitive areas, if no feasible alternative location
exists. The existing Federal Way City Code (FWCC) makes provisions for this in the
environmentally sensitive area provisions.
The FWCC sets ~out some requirements for undergrounding utilities in new subdivisions
and in existing right-of-way in accordance with the WUTC. These exemptions include
the undergrounding of transmission lines 115 kV and greater.
I
The City should: continue to work in partnership with the utility companies to further
address aestheti~ impacts. Requiring undergrounding across the entire Federal Way area
is prohibitively expensive. However, there are key areas, such as the City Center and
along Highway 99, where undergrounding of utilities is important to improving the visual
image of the area in order to stimulate economic development. The City should work
with the utilities and also support statewide efforts by WUTC to devise a method of
paying for such ,improvements.
The City has a rlght-of-way vegetation ordinance that allows removal or pruning of
vegetation withijn rights-of-way without a permit only when there is imminent danger to
the health, safet, or welfare of residents. This process could be further improved if the
City and utility ~ompanies prepared a right-of-way vegetation plan meeting utility needs
Revised 2002
X-15
FWCP - Chapter Ten, Private Utilities
and addressing environmental and streetscape improvements to be made by the City. This
approach to streets cape is particularly important in the newly developing City Center.
Policies
PUP14 To the maximum extent possible and based upon applicable regulations, the
City should require the undergrounding of utility distribution lines in new
subdivisions, new construction, and significantly reconstructed facilities,
consistent with all applicable laws.
PUPlS To the maximum extent possible and based upon applicable regulations, the
City should work with the utilities in preparing a plan for undergrounding
utilities in areas where their visual impact is critical to improving the
appearance of the City, such as the City Center and along Highway 99.
PUP16 The City should, to the extent practical, work with utility providers in preparing
a right-of-way vegetation plan that ensures that the needs of landscaping and
screening are balanced with the need to prevent power outages.
PUPl7 The City should require that site-specific utility facilities such as antennas and
substations be reasonably and appropriately sited and screened to mitigate
adverse aesthetic impacts.
PUPl8 The City should work with the utilities and also support statewide efforts by
WUTC to devise a method of paying for improvements associated with
environmental and aesthetic impacts.
PUPl9 Through its development regulations, the City shall continue to address the
siting, screening, and design standards for wireless/cellular facilities, substations,
and antenna facilities in such a manner as to allow for reasonable and predictable
review while minimizing potential land use and visual impacts on adjacent
property.
Issue Statement: Planning to Meet the City's Future Needs.
The plans for system improvements and extensions described in the Private Utilities
chapter are based on the population and growth forecasts provided by the utilities. The
Land Use chapter will provide utility providers with information on where and when new
growth will occur in the City. This will allow utility companies to plan for expansion of
their systems to meet future needs. The City may assist the utilities by continuing to
provide them with future plans and by soliciting input for future planning projects.
Policies
PUP20 The City should provide utility companies with plans, forecasts, and supporting
data to assist in the proper planning for utilities. The City should integrate
communication with the utility companies into its Management Information
System to allow for fast and efficient communication.
Revised 2002 X-16
FWCP - Chapter Ten, Private Utilities
PUP21 The Ci~ should encourage utility providers to base extension and sizing of
systems on the Land Use Plan in order to adequately serve anticipated growth.
PUP22 The City should encourage utilities to provide them with their utility service
plans td allow better integration with other utilities and City plans.
PUP23 The City and utilities should be encouraged to develop an integrated
Geographic Information System (GIS) to better serve mutual needs and those of
the public.
Revised 2002 X-17
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i
GLOSSARY OF TERMS
Accessory Dwelling Unit (ADU) - Either a free-standing detached structure or an
attached part of a structure which is subordinate and incidental to the main or primary
dwelling unit located on the subject property; providing complete, independent living
facilities exclusively for one single housekeeping unit, including permanent provisions
for living, sleeping, cooking, and sanitation.
Affordable Housing - The HUD definition of "affordable housing" is housing where the
occupant is paying no more than 30 percent of gross income for gross housing costs,
including utilities.
Aquifer - A water-bearing porous soil or rock strata capable of yielding a significant
amount of groundwater to wells or springs.
Aquifer Recharge Areas - Areas in which water reaches the zone of saturation by
surface infiltration. These areas are hydro-geologically susceptible to contamination and
contamination loading potential including, but not limited to, such areas as sole water
source aquifer recharge areas, special protection groundwater management areas,
wellhead protection areas, and other areas with a critical recharging effect on aquifers
used for potable water.
Arterial- A major thoroughfare used mainly for through traffic rather than access to
adjacent property. Arterials generally have greater traffic carrying capacity than collector
or local streets and are designed for continuously moving traffic.
Buffer - An area on a property or site, generally adjacent to and parallel with the
property line, either consisting of natural vegetation or created through the use of trees,
shrubs, fences, and/or berms, designed to limit the view of and/or sound from the site to
adjacent properties.
Buildable Lands - In 1997, the Washington State legislature adopted the Buildable
Lands amendment to the Growth Management Act (RCW 36. 70A.215). The amendment
requires six Washington counties and their cities to determine the amount of suitable land
for urban development, and evaluate its capacity for growth, based upon measurement of
five years of actual development activity. King County and the other five counties must
report to the state by September 1,2002, and every five years thereafter.
Land Capacity - Land capacity is a measure of a jurisdiction's ability to accommodate
targeted or forecasted household and job growth, based on its land supply and
development potential under current or planned zoning.
Capital Facilities - As a general definition, structures, improvements, pieces of
equipment, or other major assets, including land, that have a useful life of at least 10
years. Capital facilities are provided by and for public purposes and services. For the
purposes of the Capital Facilities chapter, capital facilities are surface water facilities,
parks and open space facilities, transportation facilities, government offices, law
enforcement facilities, public school facilities, water facilities, sewer facilities, and fire
and rescue facilities.
FWCP - Glossary of Terms
Capital Facilities Plan (CFP) - A general plan that identifies and balances capital
expenditures and revenues for a specified period oftime and demonstrates the viability of
the land use plan. .
Capital Improvement Program (CIP) - A six-year plan for future capital expenditures
that identifies each capital project, including anticipated time of completion, and allocates
existing funds and known revenue sources. The CIP is updated and adopted annually as
part of the city budget.
CityShape - CityShape is the name given to the process used to develop the City's GMA
comprehensive plan.
Cluster Housing - A development design technique that concentrates buildings in
specific areas on a site to allow the remaining land to be used for recreation, common
open space, or preservation of environmentally sensitive areas.
Community Development Block Grant Program (CDBG) - A federal funding program
that provides annual funding for eligible local governments for housing and community
development programs targeted primarily to low-income persons and neighborhoods.
Comprehensive Housing Affordability Strategy (CHAS) - A document that is prepared
to layout housing affordability strategies that address the needs of homeless, low-, and
moderate-income people in ways that promote community and individual stability.
Comprehensive Plan - A generalized coordinated policy statement of the governing
body of the city that is adopted pursuant to the GMA. A document or series of documents
prepared by a professional planning staff and planning commission that sets forth broad
guidelines and policies for the future development of a community. Such plan should be
the result of considerable public input, study, and analysis of existing physical, economic,
environmental, and social conditions, and a projection of what the future conditions are
likely to be.
Concomitant Development Agreement - An agreement between the city and an
applicant under RCW 36. 70B.170 that promotes diversity and creativity in site design,
protects and enhances natural and community features, and encourages unique
developments that may combine a mixture of residential, commercial, office, and
industrial uses. Concomitant development agreements may be used to formalize site
development requirements in conjunction with an area's annexation into the city, or as
part of a specific development application.
Concurrency - A program to 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 the current service
level below locally established minimum standards. (Under the GMA, only transportation
facilities and services must satisfy the concurrency requirement.)
Density - The number of families, persons, housing units, jobs, or building per unit of
land usually expressed as "per acre."
Revised 2002
G-2
FWCP - Glossary of T enns
Development Regulations - Any controls placed on the development or use of land by a
city including, but not limited to, zoning ordinances, subdivisions ordinances, and
environmental regulations.
Development Right - The right to use or develop property for some economic purpose.
Residential occupancy is a type of economic purpose.
Development Standard - In respect to any development, fixed requirements, or standards
imposed by regulation or ordinance. A setback is an example of a development standard.
Environmental Impact Statement (EIS) - A document intended to provide an impartial
discussion of significant environmental impacts, which may result from a proposed
development project or non-project action. If the responsible official determines that a
project or action may have a significant adverse effect upon the quality of the
environment, SEPA requires that an EIS be prepared. The purpose of the EIS document is
to provide the government decision makers with information to be considered prior to
determining a project's acceptability. The Draft EIS, which is circulated for review and
comment, describes the action, analyzes the impacts of the action, and proposes
alternatives and mitigating measures. Comments on and revisions to the Draft EIS are
included in the Final EIS, the findings of which can be appealed.
Environmentally Sensitive Area (ESA) - Those areas designated, mapped, and
regulated by environmentally sensitive area regulations. These areas have existing site
conditions that require development standards to minimize specific on-site and off-site
adverse environmental impacts such as stream siltation, hill slides, reduction of habitat
areas, etc.
Erosion Hazard Areas - Areas having a severe to very severe erosion hazard due to
natural agents such as wind, rain, splash, frost action, or stream flow.
Essential Public Facilities - Any facility or conveyance that has the following attributes:
1) It is typically difficult to site due to unusual site requirements and/or significant
public opposition.
2) It is a necessary component of a system, network, or program that provides a
public service or good.
3) It is owned or operated by a unit of local or state government; private or nonprofit
organization under contract with or receiving government funding; or private firms
subject to a public service obligation.
Fair Share Housing - A qualification of each jurisdiction's "share" of middle and low
income housing needs in a region or county, and a plan for how each jurisdiction will
satisfy its obligation to provide for its share of the need.
Fish and Wildlife Habitat Conservation Area - The management of land for
maintaining species in suitable habitats within their natural geographic distribution so
Revised 2002
G-3
FWCP - Glossary of Terms
that isolated sub-populations are not created. Habitat conservation areas include, but are
not limited to, such areas as:
1) Areas with which endangered, threatened, and sensitive species have a primary
association.
2) Habitats and species of local importance.
3) Commercial and recreational shellfish areas.
4) Kelp and eelgrass beds; herring and smelt spawning areas.
5) Naturally occurring ponds under 20 acres and their submerged aquatic beds that
provide fish or wildlife habitat.
6) Waters of the state.
7) Lakes, ponds, and streams planted with game fish by a governmental or tribal
entity.
8) State natural area preserves and natural resource conservation areas.
9) Streams.
Floor Area Ratio - The project building square footage (total floor area) divided by net
project land area (gross land area minus constrained land [sensitive areas, right-of-way,
and public purpose land)).
Geographic Information System (GIS) - A computerized system used to map and
access geographic information that is contained in a database.
Geologically Hazardous Areas - Areas that, because of their susceptibility to erosion,
land slides, seismic, or other geological events, are not suited to siting commercial,
residential, or industrial development consistent with public health or safety concerns.
Geologically hazardous areas include erosion hazard areas, landslide hazard areas,
seismic hazard areas, and steep slope hazard areas.
Groundwater - Water that occurs in subsurface openings in the earth, such as the spaces
between particles in unconsolidated deposits or along fractures in consolidated deposits.
Growth Management Act (GMA) - Refers to the 1990 Washington State Growth
Management Act (ESHB 2929) as amended in 1991, requiring urban counties and cities
within those counties to develop comprehensive plans to deal with growth in Washington
State over the next 20 years. The GMA is codified in RCW 36.70A and other chapters.
Growth Management Planning Council (GMPC) - A body made-up of city and
county representatives and created through an interlocal agreement by most of the cities
in King County and the county itself to undertake inter jurisdictional planning pursuant to
requirements ofthe GMA or its successor.
Revised 2002
G-4
FWCP - Glossary of Terms
Growth Targets - A jurisdiction's policy statement on how many net new households and
jobs it intends to accommodate in the future based on population forecasts, the expected
size of the average household, and the jurisdiction's vision of what its future should be.
High Capacity Transit (HCT) - A system of public transportation services within an
urbanized region operating principally on exclusive rights-of-way. The supporting services
and facilities necessary to implement such a system, including interim express services and
high occupancy vehicle lanes, which taken as a whole provides a substantially higher level
of passenger capacity, speed, and service frequency than traditional public transportation
systems operating principally in general purpose roadways. Includes light rail transit and
express buses on exclusive bus ways and their supporting services.
Impact Fees - Fees imposed on developers to help pay for cost of providing public
facilities needed to serve new development. Such charges reflect a desire to make new
development pay for its impact on the community. The use of impact fees is authorized
by the GMA.
Infrastructure - The basic foundation of facilities and services (for example: potable
water, sewage treatment, power, and streets) that are necessary for urban development.
King County Countywide Planning Policies (CWPPs) - As required by the GMA, the
King County Council adopted and the cities ratified a series of policies that embody a
vision of the future of King County. These policies are intended to guide development of
city and county comprehensive plans.
Land Use - A term used to indicate the utilization of a piece of land. The term may be
used for either the way in which the land is being used or may be used.
Landslide Hazard Areas - Those areas potentially subject to episodic down slope
movement of a mass of soil or rock including, but not limited to, the following areas:
1. Any area with a combination of:
a. Slopes greater than 15 percent;
b. Permeable sediment, predominately sand and gravel, overlying
relatively impermeable sediment or bedrock, typically silt and clay; and
c. Springs or groundwater seepage.
2. Any area which has shown movement during the Holocene epoch, from 10,000
years ago to the present, or which is underlain by mass wastage debris of that epoch.
3. Any area potentially unstable as a result of rapid stream incision, stream bank
erosion, or under-cutting by wave action.
4. Any area located in a ravine or on an active alluvial fan, presently or potentially
subject to inundation by debris flows or flooding.
5. Those areas identified by the United States Department of Agriculture Soil
Conservation Service as having a severe limitation for building site development.
Revised 2002
G-5
FWCP - Glossary ofTerms
6. Those areas mapped as class u (unstable), uos (unstable old slides), and urs
(unstable recent slides) by the Department of Ecology.
7. Slopes having gradients greater than 80 percent subject to rockfall during seismic
shaking.
Level of Service (LOS) - A measure of a public facility or service's operational
characteristics used to gauge its performance.
Local Improvement District (LID) - A financing mechanism whereby specially
benefited properties are assessed the costs of constructing public improvements.
Manufactured Housing - Factory-built housing that is transportable in one or more
sections, is built on a permanent chassis, and designed to be a dwelling with or without a
permanent foundation when connected to required utilities. Manufactured housing shall
be built to comply with the National Manufactured Horne Construction and Safety
Standards of 1974 (regulations effective June 15, 1976).
Mitigate - To reasonably reduce or eliminate the impact(s) of development.
Mixed Use Development - The development of a tract of land, building, or structure
with a variety of complementary and integrated uses such as, but not limited to,
residential, office, retail, manufacturing, or entertainment in a compact urban form.
Pedestrian - An individual traveling on foot.
Pedestrian Friendly - Development designs that encourage walking by providing site
amenities for pedestrians. Pedestrian friendly environments reduce auto dependence and
may encourage use of public transportation.
Pedestrian Oriented - Businesses whose signs, advertising, window displays, and
entryways are oriented toward pedestrian traffic. Pedestrian oriented businesses may
include restaurants, retail shops, personal service businesses, travel services, banks
(except drive-through windows), and similar establishments.
Planned Unit Development (PUD) - A planning technique that provides increased
flexibility for the property owner in exchange for a higher quality development. Usually
used for larger parcels, PUDs are characterized by a focus on overall project design rather
than lot-by-lot zoning, setbacks, and placement. Innovative housing types, open space,
and recreation facilities are often included.
Policy - An agreed upon course of action adopted and pursued by decision makers for
achieving one or several goals and objectives, which are used to guide the formulation of
regulations and programs.
Potential Annexation Area (P AA) - Current unincorporated areas surrounding the City
of Federal Way that Federal Way may annex within the 20-year comprehensive plan time
frame. These areas have been agreed to by neighboring cities.
Revised 2002
G-6
FWCP - Glossary of Terms
Public Facilities - Any use of land or physical structures, whether publicly or privately
owned, for transportation, utilities, communication, or the benefit of the general public,
including streets, schools, libraries, fire and police stations, municipal and county
buildings, powerhouses, recreational centers, parks, and cemeteries.
Public Services - A variety of services such as fire protection and suppression, law
enforcement, public health, recreation, environmental protection, etc., available to the
public and provided by government, substantially funded by government, contracted for
or by government, or provided by private entities subject to public service obligation.
Puget Sound Regional Council (pSRC) - Formerly the Puget Sound Council of
Governments, the PSRC is a regional planning and decision-making body for growth and
transportation issues in King, Kitsap, Pierce, and Snohomish Counties. Under federal
transportation law, PSRC is the Metropolitan Planning Organization (MPO), responsible
for regional transportation planning and programming of federal transportation funds in
the four county region. It is also the designated Regional Transportation Planning
Organization (RTPO) for the four county region. PSRC manages the adopted regional
growth strategy, Vision 2020.
Right-of-Way - Land dedicated or conveyed to the public or a unit of government, the
primary purpose of which is the movement of vehicles and/or pedestrians and providing
for access to adjacent parcels, with the secondary purpose of providing space for utility
lines and appurtenances and other devices and facilities benefiting the public.
State Environmental Policy Act (SEPA) - Chapter 43.21 C RCW. The state law passed
in 1971 requiring state and local agencies to consider environmental impacts in the
decision-making process. A determination of environmental significance must be made for
all non-exempt projects or actions that require license or decision from a government
agency. If the action does not have significant adverse environmental impacts, a
Determination of Non significance (DNS) is issued. If the action has adverse environmental
impacts that can be mitigated, a Mitigated Determination of Non significance (MDNS) is
issued. If the action or project could have major impacts, an Environmental Impact
Statement (EIS) is required.
Street Furniture - Constructed, aboveground objects such as outdoor seating, kiosks,
bus shelters, sculptures, tree grids, trash receptacles, fountains, and telephone booths that
have the potential for enlivening and giving variety to streets, sidewalks, plazas, and
other outdoor spaces open to, and used by, the public.
Streetscape - A term in urban design that defines and describes the character and quality
of a street by the amount and type of features and furnishings abutting it. Such features
and furnishings may include trees and other landscaping, benches, lighting, trash
receptacles, bollards, curbing, walls, different paving types, signage, kiosks, trellises, art
objects, bus stops, and typical utility equipment and appurtenances.
Strip Commercial - Commercial or retail uses, usually one-story high and one lot deep,
that front on a major street.
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FWCP - Glossary of Terms
Subarea Plan - A comprehensive, long-range plan that focuses on a particular area or
neighborhood of the city, e.g. the City Center.
Townhouse - A form of ground-related housing where individual dwelling units are
attached along at least one common wall to at least one other dwelling unit. Each
dwelling unit occupies space from the ground to the roof and has direct access to private
open space.
Transfer of Development Rights (TDR) - A program in which the unused portion of a
"sending" property's zoning capacity-one ofthe separable rights of property-is sold to
the developer of a "receiving" site, who is allowed to add the capacity to the zoned limit
of that site. TDRs can be used to prevent demolition of affordable housing units, protect
historically significant property, environmentally sensitive areas, or open space.
Transportation Demand Management (TDM) - Private and public strategies and
programs designed to manage demand based on transportation supply. Strategies are
typically aimed at reducing the number of vehicle trips, shortening trip lengths, and
changing the time of trips out of peak hours. TDM programs are frequently directed
toward increasing the use of public transportation, carpools and vanpools, and non-
motorized travel modes. .
Transportation Equity Act for the 21st Century (TEA-21) - Federal reauthorization
bill for transportation funding passed in 1998. Successor to ISTEA, authorizing higher
funding levels through the year 2003.
Transportation Improvement Program (TIP) - A six-year funded program of
transportation improvements. The TIP is updated and adopted annually.
Urban Center - Defined in the CWPPs as an area for focusing growth and aligning a
high capacity transit system. To be designated an urban center an area must: have a land
area of between 0.5 and 1.5 square miles; be able to support a minimum of 15,000 jobs
within 1 and 12 miles of a transit center; have a minimum density of 50 jobs per gross
acre; and a minimum residential density of 15 households per gross acre.
Urban Growth Area (UGA) - The area designated in the King County Comprehensive
Plan for urban development and to be served with urban services, in addition to
greenbelts, open space, and other appropriate areas.
Urban Growth Boundary - A site-specific line, delineated on a map or by written
description, that separates the projected urban growth from rural land.
Urban Services - Includes those governmental services historically and typically
delivered by cities and includes storm and sanitary sewer systems, domestic water
systems, street cleaning services, fire and police protection services, public transit
service, and other public utilities associated with urban areas and normally not associated
with rural areas.
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G-8
FWCP - Glossary of Terms
Vision 2020 - The adopted regional growth strategy that describes linking high density
residential and employment centers throughout the region by high capacity transit, and
promoting a multi-modal transportation system. Vision 2020 was adopted in 1990 by the
Puget Sound Council of Governments, which was the predecessor to the Puget Sound
Regional Council.
Wellfield - An area containing two or more wells with overlapping zones of contribution
that supply a public water system.
Wellhead Protection Area -The surface and subsurface area surrounding a well or
wellfield supplying a public water system, through which contaminants are reasonably
likely to move toward and reach the water well or wellfield.
Wetland - Those areas that are inundated or saturated by surface or groundwater at a
frequency and duration sufficient to support, and that under normal circumstances do
support, a prevalence of vegetation typically adapted for life in saturated soil conditions.
Wetlands generally include swamps, marshes, bogs, and similar areas.
Zero Lot Line Development (ZLL) - A siting technique that allows single-family
houses to be built along one lot line. This helps to preserve privacy and usable yard
space, especially in small lot areas. Variations include angled "Z-lots," alternate width
lots, and shared lot lines, which give the appearance of a duplex.
Zone or Zoning District - A specifically delineated area or district in a municipality
within which generally uniform regulations or requirements govern the use, size, and
development of land and buildings.
Zoning - A type of development regulation that manages the use and development of
land. Federal Way's zoning regulations are contained in the Federal Way City Code
(FWCC) Chapter 22.
Zoning Map - The series of maps adopted by the city, and designated the official zoning
map of the city, showing the geographical location of use zones within the municipal
boundaries.
Revised 2002
G-9
FWCP - Glossary
LIST OF ACRONYMS
AASHTO American Association of State Highway MGD Million Gallons per Day
and Transportation Officials mph Miles per Hour
ADA Americans with Disabilities Act MPO Metropolitan Planning Organization
ADU Accessory Dwelling Unit MTP Metropolitan Transportation Plan
AVI Automated Vehicle Identification MVET Motor Vehicle Excise Tax
BPA Bonneville Power Administration NHS National Highway System
CFP Capital Facilities Plan NPDES National Pollutant Discharge Elimination
CAC Citizens Advisory Committee System
CDBG Community Development Block Grant OFM Washington State Office of Financial
Program Management
CHAS Comprehensive Housing Affordability PAA Potential Annexation Area
Strategy PSE Puget Sound Energy
CIP Capital Improvement Program PS/HELP Puget Sound Helicopter Emergency
CMAQ Congestion Management and Air Quality Lifesaver Plan
CMS Concurrency Management System PSHSP Puget Sound Heliport System Plan
CTR Commute Trip Reduction PSRC Puget Sound Regional Council
CWPPs King County Countywide Planning PT Pierce Transit
Policies PUD Planned Unit Development
DNS Determination of Non significance RCW Revised Code of Washington
EIS Environmental Impact Statement RPTO Regional Transportation Planning
EMF Electro Magnetic Field Organization
EMS Emergency Medical Service RTA Regional Transit Authority (Sound
ESA Environmentally Sensitive Area Transit)
FAR Floor Area Ratios SEPA State Environmental Policy Act
FCC Federal Communications Commission SOY Single Occupancy Vehicle
FERE Federal Energy Regulatory Commission SR State Route
FWBAC Federal Way Bicycle Advisory STP Surface Transportation Project
Committee TAZ Transportation Analysis Zone
FWCC Federal Way City Code TDM Transportation Demand Management
FWCP Federal Way Comprehensive Plan TDR Transfer of Development Rights
GIS Geographic Information System TEA-21 Transportation Equity Act for the 21 st
GMA Growth Management Act Century
GMPC Growth Management Planning Council TIB Transportation Improvement Board
GPS Global Positioning System TIF Transportation Impact Fee
HCM Highway Capacity Manual TIP Transportation Improvement Program
HCT High Capacity Transit TSM Transportation Systems Management
HMP Heliport Master Plan UGA Urban Growth Area
HOV High Occupancy Vehicle vIe V olumelcapacity Ratio
HSS Highways of Statewide Significance VMT Vehicle Miles Traveled
ISDN Integrated Services Digital Network WAC Washington Administrative Code
ISTEA Intermodal Surface Transportation WSDOT Washington State Department of
Efficiency Act of 1991 Transportation
ITS Intelligent Traveler Service WUTC Washington Utilities and Transportation
LID Local Improvement District Commission
LOS Level of Service ZLL Zero Lot Line
MDNS Mitigated Determination of
Nonsignificance
Revised 2002
G-10