Final_Chapter_8CHAPTER EIGHT
POTENTIAL ANNEXATION AREAS
8.0 INTRODUCTION ________________________________________________1
8.1 POLICY BACKGROUND _________________________________________1
Growth Management Act _____________________________________________ 2
VISION 2040 ________________________________________________________ 2
Countywide Planning Policies _________________________________________ 3
8.2 POTENTIAL ANNEXATION AREA ________________________________4
Neighborhoods ______________________________________________________ 4
8.3 NATURAL ENVIRONMENT _______________________________________4
Summary of Inventory ________________________________________________ 4
Wetlands ____________________________________________________________ 5
Streams _____________________________________________________________ 5
Lakes _______________________________________________________________ 5
Fish and Wildlife Habitat Conservation Areas ___________________________ 6
Aquifer Recharge Areas _______________________________________________ 6
Frequently Flooded Areas _____________________________________________ 6
Geologic Hazard Areas _______________________________________________ 6
Environmental Goals and Policies ______________________________________ 7
8.4 LAND USE ______________________________________________________8
Existing Land Uses ___________________________________________________ 8
Essential Public Facilities _____________________________________________ 9
Cultural Resources __________________________________________________ 10
Land Use Capacity Analysis __________________________________________ 10
Comprehensive Plan Land Use Relationship to Pre-Annexation Zoning ___ 10
Land Use Goals and Policies __________________________________________ 11
8.5 HOUSING ______________________________________________________12
Housing Goals and Policies __________________________________________ 12
8.6 PARKS AND RECREATION ______________________________________13
Summary of Parks Planning Efforts and Inventory ______________________ 13
Future Parks and Recreation Needs ____________________________________ 14
Parks & Recreation Goals and Policies _________________________________ 14
8.7 SURFACE WATER ______________________________________________15
Summary of Inventory _______________________________________________ 15
Future Surface Water Needs __________________________________________ 16
Surface Water Goals and Policies _____________________________________ 17
8.8 TRANSPORTATION ____________________________________________18
Summary of Inventory _______________________________________________ 18
Transportation Goals and Policies _____________________________________ 19
8.9 PRIVATE UTILITIES ____________________________________________21
Summary of PAA Inventory __________________________________________ 21
Private Utilities Goals and Policies ____________________________________ 22
8.10 PUBLIC SERVICES AND CAPITAL FACILITIES ____________________22
Inventory of Public Services Likely to Change as a Result of Annexation __ 22
Services Unlikely to Change as a Result of Annexation __________________ 23
Public Services and Capital Facilities Goals and Policies _________________ 26
8.11 PUBLIC PARTICIPATION _______________________________________28
Public Participation Goal and Policies _________________________________ 28
8.12 GOVERNANCE AND INTER-JURISDICTIONAL COORDINATION __29
Governance/Interjurisdictional Goals and Policies ______________________ 29
8.13 ANNEXATION __________________________________________________29
Annexation Goals and Policies ________________________________________ 30
Maps
Map VIII-1, Potential Annexation Area (PAA)
Map VIII-2, PAA Subarea Map
Map VIII-3, PAA 2003 Critical Areas
Map VIII-4, PAA 2003 Geologic Hazards
Map VIII-5, PAA Parks & Cultural Resources
Map VIII-6, PAA Pre-Annexation Comprehensive Plan Designations
Map VIII-7, PAA Pre-Annexation Zoning Map
Map VIII-8, PAA 2003 Surface Water Facilities
Map VIII-9, PAA 2003 Arterials & Local Streets
Map VIII-10, PAA Fire Department Facilities
Map VIII-11, PAA Public School Facilities
This page intentionally left blank.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-1
8.0 INTRODUCTION
The City of Federal Way Potential Annexation Area (PAA) is located in South King
County and lies generally east of the City of Federal Way and Interstate 5. The PAA is
characterized by a series of residential neighborhoods focused around numerous lakes
beginning with Star Lake in the north and concluding with Five Mile Lake in the South
(see Maps VIII-1 and VIII-2).
The City of Federal Way PAA was established through a series of interlocal agreements
between the City of Federal Way and neighboring South King County cities. Based upon
the State of Washington Growth Management Act (GMA), VISION 2040, and the King
County Countywide Planning Policies (CWPPs), the City would ultimately annex and
provide services within its designated PAA. While the Federal Way Comprehensive Plan
(FWCP) focuses upon plans and policies for property in the City limits, this chapter
augments the comprehensive plan and addresses in more detail the Federal Way PAA.
The City of Federal Way with the support of King County adopted a PAA Sub-area Plan
in 2003 to guide annexation of its PAA. This Sub-area Plan included a Pre-annexation
Comprehensive Plan Designations Map and a Pre-annexation Zoning Map, which would
become effective upon annexation. Using this plan, the City attempted to annex its entire
PAA. The annexation proposal was rejected by the voters in the PAA on August 21,
2007. At this time, the City has no
plans to pursue annexation of its PAA;
however, it will entertain requests from
property owners in the PAA who are
interested in annexing to the City.
The 2003 PAA Sub-area Plan is more
than 11 years old and the analysis as to
the feasibility of annexing the PAA is
outdated. At the time of any
annexation request, the City will
prepare required feasibility studies and
analysis.
8.1 POLICY BACKGROUND
The Growth Management Act (GMA), VISION 2040, and the King County Countywide
Planning Policies (CWPPs) call for concentrating growth within the region’s designated
Urban Growth Area (UGA). The UGA encompasses all of the urban designated lands
within King County. These lands include all cities as well as a portion of unincorporated
King County. Consistent with the GMA, VISION 2040, and the CWPPs, urban lands are
intended to be the focus of future growth that is compact, includes a mix of uses, and is
well‐served by public infrastructure.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-2
Growth Management Act
The GMA includes goals to reduce sprawl and ensure that urban growth occurs in areas
designated for urban uses, where services can be provided more efficiently. The GMA
identifies three distinct landscapes: urban lands, rural lands, and natural resource lands
(i.e., agricultural, forest, and mineral lands). The act makes clear that the long-term
sustainability of rural and resource lands is dependent on accommodating development
within the designated UGA. The following three GMA goals are most relevant to PAA
planning efforts:
Urban Growth – Encourage development in urban areas where adequate
public facilities and services exist, or can be provided in an efficient
manner.
Reduce Sprawl – Reduce the inappropriate conversion of undeveloped
land into sprawling, low-density development.
Public Facilities and Services – Ensure that those public facilities and
services necessary to support development shall be adequate to serve the
development at the time the development is available for occupancy and
use, without decreasing current service levels below locally established
minimum standards.
In terms of urban growth and reduction of sprawl, the PAA contains primarily single-
family development, with a few commercial nodes along major arterial roadways, where
services are or can be extended, identified as neighborhood or community centers. The
land use/zoning pattern based on the pre-annexation comprehensive plan and zoning
designations would result in urban densities of about four units per net acre or greater,
meeting GMA goals for urban level growth. Select areas have pre-annexation
comprehensive plan and zoning designations to accommodate approximately one
residential unit per acre on the periphery of the PAA, due to sensitive areas and
infrastructure limitations.
VISION 2040
VISION 2040 contains multi-county planning policies (MPPs) that call for
unincorporated UGAs to be affiliated with adjacent cities for joint planning purposes and
future annexation. The Regional Growth Strategy allocates 93 percent of the region’s
future population growth and 97 percent of its employment growth into the existing
UGA. VISION 2040 also directs the Regional Council to develop a framework to review
and comment on adjustments to PAAs. It directs counties to work with adjacent cities to
craft municipal standards for development in unincorporated urban areas.
The overarching goal of the MPPs related to unincorporated lands within the UGA is:
Goal: All unincorporated lands within the Urban Growth Area will either annex into
existing cities or incorporate as new cities.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-3
MPP-DP -18: Affiliate all urban unincorporated lands appropriate for annexation
with an adjacent city or identify those that may be feasible for incorporation. To
fulfill the regional growth strategy, annexation is preferred over incorporation.
MPP-DP -19: Support joint planning between cities and counties to work
cooperatively in planning for urban unincorporated areas to ensure an orderly
transition to city governance, including efforts such as: (a) establishing urban
development standards, (b) addressing service and infrastructure financing, and (c)
transferring permitting authority.
MPP-DP -20: Support the provision and coordination of urban services to
unincorporated urban areas by the adjacent city or, where appropriate, by the county
as an interim approach.
CWPPS and local comprehensive plans must be consistent with the MPPs
Countywide Planning Policies
The pattern of growth within the UGA implements the Regional Growth Strategy through
allocation of targets to local jurisdictions. The targets create an obligation to plan and
provide zoning for future potential growth, but do not obligate a jurisdiction to guarantee
that a given number of housing units will be built or jobs added during the planning period.
Goal: The Urban Growth Area accommodates growth consistent with the Regional
Growth Strategy and growth targets through land use patterns and practices that create
vibrant, healthy, and sustainable communities.
DP‐22: Designate Potential Annexation Areas in city comprehensive plans and adopt
them in the Countywide Planning Policies. Ensure that Potential Annexation Areas do
not overlap or leave unincorporated urban islands between cities.
DP‐23: Facilitate the annexation of unincorporated areas within the Urban Growth Area
that are already urbanized and are within a city’s Potential Annexation Area in order to
provide urban services to those areas. Annexation is preferred over incorporation.
DP‐24: Allow cities to annex territory only within their designated Potential
Annexation Area as shown in the Potential Annexation Areas Map. Phase
annexations to coincide with the ability of cities to coordinate the provision of a full
range of urban services to areas to be annexed.
DP‐26: Develop agreements between King County and cities with Potential
Annexation Areas to apply city‐compatible development standards that will guide
land development prior to annexation.
DP‐27: Evaluate proposals to annex or incorporate unincorporated land based on the
following criteria:
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-4
a)Conformance with Countywide Planning Policies including the Urban Growth
Area boundary;
b) The ability of the annexing or incorporating jurisdiction to provide urban services
at standards equal to or better than the current service providers; and
c)Annexation or incorporation in a manner that will avoid creating unincorporated
islands of development.
8.2 POTENTIAL ANNEXATION AREA
Neighborhoods
The PAA is divided into two Major Subareas, as well as five smaller Community Level
Subareas. The Major and Community Level Subareas are as follows (see Map VIII-2):
Star Lake and Camelot Community Level Subareas comprise the Northeast
Major Subarea, east of I-5 and north of SR-18, and total approximately
2,142 acres in size.
Lakeland, North Parkway, and Jovita Community Level Subareas comprise
the Southeast Major Subarea, east of I-5 and south of SR-18, and total
approximately 2,248 acres in size.
8.3 NATURAL ENVIRONMENT
Critical areas in the PAA include wetlands, streams and lakes, fish and wildlife habitat
conservation areas, aquifer recharge areas, frequently flooded areas, and geologic hazard
areas (Map VIII-3). The March 18, 2002, PAA Inventory Report provides a detailed
inventory and description of these critical areas. Many of these areas have already been
identified, delineated, mapped, and classified. In addition, the inventory report details the
implications of federal, state, and local policies at that time regarding environmentally
sensitive areas pending any potential future annexation. When requests for annexation are
received, this inventory should be updated per existing policies and regulations.
Summary of Inventory
The Federal Endangered Species Act (ESA), Washington State Priority Habitat and
Species Program (PHS), and the GMA provide levels of protection for endangered,
threatened, or sensitive species and habitats, and hazard protection. Please refer to Maps
VIII-3 and VIII-4 for locations of critical and hazard areas within the PAA as identified in
2002-2003. A brief description of the results from research on the environment is
provided below.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-5
Wetlands
There are approximately 440 acres of known wetlands in the PAA, with the largest
acreage of wetlands found in the Northeast Subarea. Within the smaller individual
community subareas, Lakeland has the largest acreage of wetlands (see Map VIII-3).
Both the County and City have regulations protecting wetlands with buffers and other
requirements varying by wetland class. The City of Federal Way regulates wetlands per
Federal Way Revised Code (FWRC) Chapter 19.145.
Streams
A distinctive characteristic of the PAA is that most of the area is a headwater to several
major streams (Hylebos Creek, Mullen Slough, and Mill Creek). Most of the streams in
the Federal Way PAA are classified by the County as Class 2 with salmonids requiring a
100-foot buffer. If using the City of Federal Way classification system, most streams
would be considered Type F streams, also requiring a 100-foot buffer. The City of
Federal Way regulates streams per FWRC Chapter 19.145.
Lakes
Lakes in the PAA include Star, Dollof, North,
Killarney, Geneva, and Five Mile lakes. The
setback requirement for regulated lakes is 25-
feet landward in every direction from the
ordinary high water mark of the lake. The City
of Federal Way regulates lakes per FWRC
Chapter 19.145. All of the lakes in the PAA
are also under the jurisdiction of the Shoreline
Master Program.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-6
Fish and Wildlife Habitat Conservation Areas
Based on the state Priority Species and Habitat Mapping Program, within the PAA there
are three anadromous running streams. These include the headwaters of West Hylebos
creek, the south draining stream from Lake Dolloff, and East Hylebos Creek south of
Lake Kilarney. King County has also identified downstream and west of I-5 in the City
limits that Hylebos Creek has a “Chinook distribution 500 foot buffer.” The City
definition of “fish and wildlife habitat conservation areas” is found in FWRC 19.05.
Aquifer Recharge Areas
The Lakehaven Utility District serves the majority of the PAA except for a small area in
the northeastern portion of the Star Lake Area. Lakehaven’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. Critical Aquifer Recharge Areas and Wellhead Protection
Areas are regulated by FWRC Chapter 19.145.
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. At the time of the preparation of
the 2003 PAA Sub-area Plan, about 90 percent of the water supply of the district was
purchased from Seattle Public Utilities. The district supplements its Seattle water source
with local wells. The wells, which draw from an intermediate aquifer approximately 400
feet underground, were designed to furnish approximately 15 percent of the total volume
of water supplied by the district. The district has wells located in Des Moines and also
near Angle Lake outside of the PAA and Federal Way.
Siting criteria for wells must comply with state law (WAC 173-160-171). Furthermore,
any improvement or use on a subject property is subject to said state requirements
regarding separation of wells from sources of pollution.
Frequently Flooded Areas
There is a 100-year floodplain located around Lake Dolloff in the PAA (see Map VIII-3).
King County regulations require that development activities, including fill, may not cause
the base flood elevation to rise. Federal Way has floodplain regulations in FWRC Chapter
15.15 and 19.142.
Geologic Hazard Areas
There are small portions 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. There are also small portions of the Camelot and Lakeland Subareas that
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-7
have erosion hazard areas. The Star Lake Subarea has a significant proportion of both
landslide hazard and erosion hazard areas along its eastern border. Please refer to Map
VIII-4. Development activities and land surface modifications on or within 50 feet of a
geologically hazardous area are subject to FWRC Chapter 19.145.
Environmental Goals and Policies
The following goal and policies are provided to address PAA environmental conditions.
Environmental Goal
Practice environmental stewardship by protecting, enhancing and promoting the natural
environment in and around the PAA.
Environmental Policies
PAA Env – 1 Prior to and upon annexation, the County and City in partnership shall
promote the protection of PAA 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.
PAA Env – 2 The County shall, prior to annexation, manage the 100-year floodplain of
Lake Dolloff in accordance with federal, state, and county laws and
guidelines. Regulations to prevent reductions in base flood storage
volumes should continue to be implemented. Upon annexation, the City
shall continue the policy and practice of floodplain management.
PAA 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 PAA.
PAA 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 of I-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, R/D maintenance, and mitigation policies should be uniquely
identified and defined for each basin/sub-basin.
PAA 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 PAA.
PAA Env – 6 Prior to and upon annexation, the City should coordinate with the King
County Solid Waste Division regarding the environmental monitoring of
the closed Puyallup/Kit Corner Landfill.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-8
PAA 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.
8.4 LAND USE
Existing Land Uses
The Federal Way PAA contains primarily single family residential land uses as shown in
Figure VIII-1 and Table VIII-1. Of any neighborhood, the Parkway neighborhood has the
most acres in multiple family uses although still primarily containing single family uses.
FigureVIII-1
Table VIII-1
Existing Land Uses by Parcels
Category Camelot Star Lake Lakeland Parkway Jovita
Acres % Acres % Acres % Acres % Acres %
Commercial 2.8 0% 6.87851 1% 12.8 1% 3.3 1% 0.0 0%
Industrial 0.0 0% 0.0 0% 0.8 0% 0.0 0% 0.0 0%
Institutional 49.5 5% 46.0346 7% 33.8 3% 0.0 0% 0.0 0%
Multi-Family 32.2 3% 35.3078 5% 30.1 3% 75.5 23% 2.8 1%
Office 0.2 0% 0.0 0% 0.0 0% 0.0 0% 0.0 0%
Open Space 49.5 5% 43.9066 6% 57.2 5% 7.5 2% 0.1 0%
Park 18.1 2% 17.1847 2% 31.4 3% 0.0 0% 0.0 0%
Religious Services 7.5 1% 10.5644 2% 56.7 5% 0.0 0% 0.0 0%
Senior Housing 0.0 0% 0.0 0% 0.0 0% 0.0 0% 0.0 0%
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-9
Category Camelot Star Lake Lakeland Parkway Jovita
Acres % Acres % Acres % Acres % Acres %
Single-Family 732.4 68% 465.747 66% 671.5 59% 183.1 55% 233.8 59%
Utilities 0.0 0% 0.0 0% 0.0 0% 30.6 9% 0.3 0%
Vacant 189.6 18% 74.9434 11% 244.9 21% 33.4 10% 159.9 40%
TOTAL 1081.8 100% 700.567 100% 1139.1 100% 333.3 100% 397.0 100%
Notes:
The acre figures are derived from the Arc Info Geographic Information System (GIS).
Multi family includes duplex, 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 rights-of-way is developed.
Source: King County Department of Assessments 2014 and City of Federal Way GIS Division, 2015
While the predominant land use in the PAA neighborhoods is residential, there are
several businesses, including the following types:
Star Lake – Tavern, nursery
Camelot – Gas stations, offices
Lakeland – Convenience store, espresso, auto repair, day care center
North Parkway – Auto salvage and towing.
PAA Generally – Numerous home occupations (for example, home day care
operations, individual construction contractors, home-based professional
services, and others)
Essential Public Facilities
RCW 36.70A.200 states that essential public facilities are, “…those facilities that are
typically difficult to site, such as:
Airports;
State education facilities;
State or regional transportation facilities as defined in RCW 47.06.140;
State and local correctional facilities;
Solid waste handling facilities;
In -patient facilities including substance facilities, mental health facilities, group
homes; and
Secure community transition facilities as defined in RCW 71.09.020.
Essential public facilities can be government owned and operated, or privately owned
facilities that are regulated by public entities. This definition is not considered to be all-
inclusive, but provides examples of facilities that are difficult to site. No local comprehensive
plan or development regulation may preclude the siting of essential public facilities.
The PAA contains several essential public facilities, including highways of statewide
significance such as I-5 and SR-18, a WSDOT maintenance facility, the closed and
monitored Puyallup/Kit Corner Landfill (see section 8.10, Solid Waste), group homes,
and potentially others that remain to be identified beyond present inventory efforts.
Under county or City plans and rules, essential public facilities are required to undergo a
review process prior to siting.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-10
Cultural Resources
The King County Historic Preservation Program has identified historic properties
included in the King County Historic Resource Inventory. The only designated or
potentially eligible historic landmarks are in the Lakeland neighborhood of the Southeast
Subarea (see Map VIII-5). The Sutherland Grocery and Gas Station, built in the 1930’s,
was designated a King County Landmark in 2002. The two other potentially eligible
historic sites are the Westborg House, a farmhouse built in 1905 by M. Westborg on
property originally part of a 160-acre homestead owned by James Duncan, and the
Fancher House, a home and barn built in 1923.
The King County Historic Preservation Program recommends an inventory update to
identify any additional historic properties in the PAA area, as well as the City limits,
since the last inventory was conducted 27 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 an d future
annexed City boundaries.
Land Use Capacity Analysis
The GMA and the CWPP’s require that King County and its cities accommodate their
fair share of the future growth projected for King County. Future development “targets,”
expressed in the number of housing units, are determined through an interactive, multi-
jurisdictional process between King County and cities located within King County,
considering land capacity, market factors, and other parameters. Through this ongoing
regional process, the PAA growth target for the years 2006 to 2031 has been established
at 2,390 units and the land capacity is 2,956. The employment target is established at 290
jobs and the employment capacity is 600.
It should be noted that a capacity analysis does not estimate the time or rate that growth
will occur, only the capacity of the land for additional development.
It is the County’s and City’s roles 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
In conjunction with the 2003 PAA Subarea Plan, the City adopted a pre-annexation
comprehensive plan (Map VIII-6) and zoning map designations (Map VIII-7), which
would become effective upon annexation. Pre-annexation comprehensive plan
classification and zoning map designations provide more certainty to property owners
and residents about the future character of the area should they annex to the City.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-11
Land Use Goals and Policies
The PAA land use goal and policies are provided in this section, and address land use
character and land use planning in the PAA.
Land Use Goal
Respect the character, integrity, and unique qualities of PAA neighborhoods in land use
planning efforts.
Land Use Policies – General Policies
PAA LU – 1 Proposed annexations should be implemented to be consistent with the
pre-annexation comprehensive plan designations and pre-annexation
zoning map of this chapter (see policy PAA Annex-4).
PAA LU – 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.
PAA LU – 3 The City and County PAA 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.
PAA LU – 4 The City and County PAA zoning designations should provide sufficient
zoned capacity, and a variety of housing types, to address total household
growth targets for the PAA.
PAA LU – 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.
PAA LU – 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 for high tax
generating land uses, such as but not limited to auto sales. Expedited or
advanced environmental review, incentives to encourage assemblages of
land, and/or coordinated and comprehensive approaches to site
development and environmental protection should be considered.
Cultural Resources Policies
PAA LU – 7 Prior to and upon annexation, the City and County should coordinate
with the King County Historic Preservation Program, the Cultural
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-12
Development Authority of King County, and local historical societies
(such as the Historic Society of Federal Way) to promote the
preservation of historic resources in the PAA.
PAA LU-8 The City and/or County should conduct a PAA historic inventory update
prior to or upon annexation.
PAA LU-9 The City should consider mechanisms to offer historic preservation
services and incentives in the PAA upon the annexation of PAA
properties into the City, including but not limited to, an interlocal
agreement with King County for resource evaluation and incentives.
Economic Development Policies
PAA LU – 10 Commercial locations, development standards, 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 PAA as secondary and tertiary nodes catering to local
and/or neighborhood needs.
PAA LU – 11 The City and County should support neighborhood level business
retention, improvement, and development on commercially zoned
properties east of I-5 to meet the needs of local residents.
PAA LU – 12 Commercial development should be encouraged on properties designated
commercial on the PAA comprehensive plan and zoning maps to help
meet the PAA employment target as determined in the CWPP’s.
Essential Public Facilities Policies
The FWCP Land Use chapter policies address essential public facilities. Additional
policies are not included.
8.5 HOUSING
Housing Goals and Policies
Housing Goal
Promote the preservation and enhancement of existing residential neighborhoods, and
allow for new housing developments meeting future needs in the PAA.
Housing Policy
PAA 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
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-13
complexes. Programs supporting weatherization, home repair and
rehabilitation, and infrastructure maintenance should be supported.
The FWCP Housing chapter policies address housing stock protection, existing and
future affordability, and special needs, and would also be applicable to the PAA.
8.6 PARKS AND RECREATION
Summary of Parks Planning Efforts and Inventory
The City of Federal Way Parks, Recreation, and Cultural Services (PRCS) Department
has prepared a Parks, Recreation, and Open Space Plan, which was originally adopted in
1991 and updated in 1995, 2000, 2006, and 2012. The PRCS plan is adopted by reference
into the FWCP. The plan divides the City and PAA into subareas for purposes of long-
range planning (Map VI-3).
The primary goal of the Parks, Recreation, and Open Space Plan is to assure that a park
serves every neighborhood in Federal Way. As of 2012, the City was providing 12.52
acres of city-owned parks per 1,000 population in the City limits. The City’s goal is to
provide a level of service of 10.9 acres per 1,000 population and to maintain this level of
service standard as Federal Way grows in population and size.
The City of Federal Way’s existing parks and recreational areas are divided into six
categories. Each category represents a distinct type of recreational activity or opportunity.
The categories are: Neighborhood Parks, Community Parks, Regional Parks, Trails,
Community Facilities, and Open Space. The total parkland in Federal Way was 1,141.13
acres as of January 2015.
The PAA is primarily served by five county park sites totaling 109.8 acres (see Table
VIII-2). All of the active park facilities are located in the Lakeland community subarea,
while natural park and passive park areas are found in the Star Lake and Camelot
community subareas. Completed in 2000, the South County Ballfields Phase 2 is the only
recent capital project completed in the PAA.
Table VIII-2
PAA Park Facilities Owned By King County
PAA Neighborhood Park Site Name County Park Plan
Classification
Acreage
Star Lake Bingaman Pond Natural 16.7
Camelot Camelot Park Passive 18.0
Lakeland Five Mile Lake Park Active 31.9
Lake Geneva Park Active 18.6
South County Ballfields Active 24.6
Total Acres 109.8
Source: January 2013, PRCS Plan
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-14
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 PAA. 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
Based on the January 13, 2013, PRCS Plan, there was a total of 1,114.13 acres of City-
owned park and open space land within the City of Federal Way, including roughly 601.7
acres in developed parks and 539.43 acres in undeveloped open space. If Dash Point State
Park is included in the calculation for total acreage, then there are 1,371.13 acres of park
and open space within the City. If the parks within the PAA and the portion of Dash Point
State Park located in Pierce County are included in those calculations, a total of 1,621.93
acres of park and open space are located within the City and PAA. This includes City,
state, and county park facilities.
The City’s level of service standard for total park land is 10.9 acres per1000 population. The
January 13, 2013, level of service for the City was 12.52 acres per 1000 population, and for
the county and PAA together, the then level of service was 14.81 acres/1000 population.
Since that time, the City has added 21.84 acres of park land, so the level of service has not
changed drastically. Therefore, system-wide, the City has an adequate amount of park land
to serve the current population for both the City and PAA. However, much of this acreage is
undeveloped open space. The primary deficiency is in improved trails.
Parks & Recreation Goals and Policies
Parks Goal
Maintain current facilities and acquire new lands to meet PAA community park and
recreation needs.
Parks Policies
PAA Park – 1 The City should continue to address the PAA in its comprehensive parks,
recreation, and open space system plans.
PAA 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.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-15
PAA 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.
8.7 SURFACE WATER
Summary of Inventory
The PAA is almost entirely within the nearly level upland plateau which is immediately
adjacent to steep slopes at the edge of the Green and White River valleys. As a result,
historical stormwater systems within the PAA include a series of lake and wetland
complexes that drain in steep ravines to the rivers and streams below. The most
distinctive characteristic of the PAA is that most of the area is a headwater to several
significant streams (Hylebos Creek, Mullen Slough, and Mill Creek).
Five drainage basins have been identified by King County mapping within the PAA. These
designations also agree with the City of Federal Way designations: Lower Green River,
Mill Creek, White River, Hylebos Creek, and Lower Puget Sound (see Map VIII-8).
Surface Water Facilities
Within the various drainage basins, the PAA contains a variety of surface water facilities
that require inspection and maintenance by several county divisions and/or property
owners as listed in Tables VIII-3 through VIII-5 (regional and local surface water
facilities are shown on Map VIII-8). Since these tables were prepared 13 to 14 years ago,
it is expected that this information has changed; however, it is being retained for lack of
better information. At the time of any annexation request, this inventory will be updated
as part of the planning and analysis process associated with annexing property.
Table VIII-3
In-Road Surface Water Facilities
Facility Measurement Unit Northeast
Subarea
Southeast
Subarea
Curb And Gutter LF lineal feet 252,806 92,206
Catch Basin & Manhole EA each 1,361.00 633
Paved Ditch And Gutter LF lineal feet 755 450
Open Ditch LF lineal feet 85,292.00 81,916.00
Enclosed System SP lineal feet storm pipe 149,913 70,980
Cross Tile And Access EA each 985 699
Cross Culverts EA each 614 332
Curb & Gutter And Thick RM road mile 55.2 22.5
Bridge Drains EA each 6 6
Auxiliary Pipe LF lineal feet 2,697 1,611
Trash Racks EA each 0 0
Headwalls EA each 1 0
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-16
Facility Measurement Unit Northeast
Subarea
Southeast
Subarea
Cross Culverts LF lineal feet 590 0
Box Culverts EA each 0 0
R/D Facilities EA each 2 1
Source: King County Roads Division, January 2002
Table VIII-4
Regional Stormwater Facilities
Subarea Facility Name Address Type of Facility
Northeast Sweet Briar Drainage
Improvement
4700 S 292nd St (immediately
east of 4613 S 292nd)
Pipe
Northeast P-32 (Camelot Park) 29800 36th Pl S Pump Station
Northeast Lake Dolloff Outlet 4200 308th Pl S Channel/weir
Southeast Peasley Canyon Culvert 5100 S Peasley Canyon Rd Culvert
Southeast S 360th St Embankment 2100 S 360th St Regional R/D
Southeast Regency Woods Div 1 37546 21st Ave S HDPE Pipe
Southeast Regency Woods Div 1 37694 18th Pl S HDPE Pipe
Southeast Regency Woods Div 4 37934 23rd Pl S HDPE Pipe
Southeast Regency Woods Div 4 37811 21st Ct S HDPE Pipe
Southeast Regency Woods Div 4 1817 S 380th Pl HDPE Pipe
Source: King County Department of Natural Resources, December 21, 2001; January 29, 2002
Table VIII-5
Residential and Commercial Drainage Facilities
Type of Facility Subarea Number of Facilities
Residential Northeast 40
Southeast 26
Total 66
Commercial Northeast 9
Southeast 16
Total 25
TOTAL 91
Source: King County Department of Natural Resources, December 21, 2001; January 29, 2002.
Surface Water Level of Service Analysis, July 11, 2003.
Future Surface Water Needs
As property in the PAA is annexed by the City, 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 PAA.
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.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-17
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, 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).
The Regional Stormwater Facilities constructed and maintained by King County
will need to be maintained by Federal Way.
The residential drainage facilities in the PAA are inspected and maintained by
King County. The commercial facilities are inspected by King County and
maintained by the property owner. Federal Way will need to evaluate the
feasibility of inspection and maintenance.
An initial sustained cleaning effort will likely be needed to bring the ditch system
to a level of improvement where minimal routine maintenance would be needed.
It is anticipated with the annexation that Federal Way may take a more active
role with the drainage and water quality aspects of the PAA lake system. There
are various options for Federal Way to set up the lake management system,
including use of homeowners associations, lake management districts, and the
City’s stormwater management utility.
Upon annexation of the PAA, it is anticipated that Federal Way will expand its
water quality program to provide more lake water quality management and
surface water quality monitoring. This could include a variety of program
elements, such as volunteer groups, monitoring stations, community
organizations, and public education.
Federal Way will need to increase other stormwater program components to
include the PAA. A notable expansion element will be a field inventory of the
storm drainage system, which is a part of the Illicit Discharge Detection and
Elimination requirement in the Phase II National Pollutant Discharge Elimination
System (NPDES) program.
Surface Water Goals and Policies
Surface Water Goal
Promote a PAA surface water system that protects the environment and property, and
allows for efficient operation and maintenance.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-18
Surface Water Policy
In addition to Natural Environment and Capital Facility policies, the following policy is
provided specific to surface water concerns:
PAA 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 of I-5.
8.8 TRANSPORTATION
Summary of Inventory
The Federal Way PAA is served by a series of arterial roadways that provide local and
regional transportation access (refer to Map 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.
The Washington State Department of Transportation (WSDOT) has jurisdiction over
state highways within the PAA. State highways located within the boundaries of the PAA
include, SR-18, and SR-161 (Enchanted Parkway South). Transit service, including
several park and ride facilities along the I-5 corridor, is provided by King County Metro.
The majority of the street
network in the PAA is
characteristically rural with
asphalt concrete pavement,
gravel shoulders, and ditches
for drainage purposes. The
street network is largely
underdeveloped, with many
cul-de-sacs and dead-end
streets creating insufficient
connectivity. Furthermore, a
general lack of sidewalks and
existing street lights inhibit
pedestrian traffic and present
public safety concerns. Street
lights are limited to street
intersections along arterial streets and newer subdivisions, with very few mid-block street
lights along arterial streets. Most arterial corridors in the PAA, particularly in the
southeast, lack sidewalks and, in most cases, are poorly lit. Table VIII-6 has not been
updated since 2003; however, it is being retained for illustrative purposes. As shown in
this table, sidewalks are a smaller percent of lane road miles.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-19
Table VIII-6
Street Inventory Within PAA
Inventory Item Redondo East Subarea Northeast Subarea Southeast Subarea
All Road Miles* 0.3 miles 46.6 miles 28.9 miles
All Paved Road Surfaces,
Lane Miles 0.6 93.2 57.3
Curb & Gutter (linear feet) 1,902
(~0.4 miles)
252,806
(~48 miles)
92,206
(~17 miles)
Paved Sidewalk, one side
(miles) 0.4 miles 25.5 miles 12.3 miles
Traffic Signals (EA)** 0 12 2
Street Lights (EA) 10 561 190
Street Signs (EA)*** 37 980 520
Source: King County Roads
*There are several street clusters in the study area for which road logs do not exist, including: private streets (approx. 7
miles), as well as several unmaintained public gravel streets (approx. 7 miles), and in some cases relatively new public
asphalt streets (about 1-2 miles), and these are not included in the totals above.
**Based upon City staff review and field confirmation, there appear to be nine signals, two flashing beacons, one fire
signal and two traffic signals on SR 161 (currently WSDOT responsibility) that would become the City’s responsibility
upon annexation. Controllers would need to be replaced to connect to the City’s system.
***King County does not inventory street name signs, which would understate the number of signs maintained.
The largest traffic volumes exist along east/west arterial routes, which provide access to
I-5.
Transportation Goals and Policies
Transportation would be guided by the following goal and policies.
Transportation Goal
Establish a safe, coordinated, and linked multimodal transportation system serving local
and area-wide travel needs.
Transportation Policies
PAA Trans – 1 Prior to annexations, the City and County should jointly classify streets
in the PAA 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 PAA, and that the
roadways meet City standards upon annexation. The City classification
system for the PAA is presented in Map VIII-9.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-20
PAA Trans – 2 Joint City and County street standards identified in PAA Trans-1
should address:
Property access
Street signs
Street lighting
Pedestrian and bicycle safety
Street widths
PAA Trans – 3 As development proposals are identified or capital improvements are
implemented in the PAA prior to annexation, the City and County
should encourage the connection of streets when considering
subdivision or street improvement proposals, unless prevented by
topographic or environmental constraints. The City and County should
limit the use of cul-de-sacs, dead-end streets, loops, and other designs
that form barriers to a coordinated transportation network in the
community.
PAA 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.
PAA Trans – 5 Prior to annexation of PAA 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.
PAA 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 standards.
PAA 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.
PAA Trans – 8 The City and County shall continue to coordinate with park-and-ride
and transit service providers in establishing appropriate LOS for the
PAA, promoting alternative modes and assisting the achievement of
LOS standards.
PAA 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.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-21
8.9 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 (Section
8.10). 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.
Summary of PAA Inventory
Electric
Electric utility service for the Federal Way PAA is provided by Puget Sound Energy
(PSE). There are 115,000 volt transmission lines in the Federal Way PAA. Electric
substations serving the Federal Way PAA include: Marine View; Lakota; Belmor;
Christopher; Weyerhaeuser; Starwood; Kitts Corner; and West Campus. Most of the
substations include one or two 25,000 kVA transformers. The load on the substation
varies continuously, exactly meeting the demand of the customers.
As new development occurs or consumer electrical demand increases, future substations
may be needed to meet the increased demand. There is a future 115 kV line planned in
the Five Mile Lake area (in Lakeland). (Based on information provided by PSE,
November 2014.)
Natural Gas
PSE provides natural gas to the Federal Way PAA. Natural gas is not an essential service,
and therefore, PSE is not mandated to serve all areas. Significant lines in or near the PAA
include a 12-inch STW (steel wrap) supply main located in Military Road South and six-
inch STW located in 288th Street. At this time within the Federal Way PAA, no
improvements are planned to existing facilities. However, new projects can be developed
in the future at any time due to:
1. New or replacement of existing facilities to increased capacity requirements due
to new building construction and conversion from alternate fuels.
2. Main replacement to facilitate improved maintenance of facilities.
3. Replacement or relocation of facilities due to municipal and state projects.
Telephone
Century Link and Xfinity provide telecommunication services to the Federal Way
planning area. Century Link and Xfinity are required by law to provide adequate
telecommunications services on demand. Accordingly, Century Link and Xfinity will
provide facilities to accommodate whatever growth pattern occurs within the PAA. Due
to advances in technology, additional capacity is easily and quickly added to the system.
Wireless Service and Cable Providers
Cable television service in the PAA is provided by Comcast, CenturyLink, Direct TV, or
Dish Network. Comcast and CenturyLink utilize cable and fiber optic technologies and
Direct TV and Dish Network utilize satellite technologies.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-22
Private Utilities Goals and Policies
Private Utilities Goal
Facilitate provision of electric, natural gas, telecommunication, and cable services to the
greater Federal Way community.
Private Utilities Policy
PAA Utility – 1 The County and City should coordinate with electric, natural gas, and
telecommunication providers to ensure PAA services support planned
growth, meet desired customer service needs, and result in a
comparable community system in the greater Federal Way area.
8.10 PUBLIC SERVICES AND CAPITAL FACILITIES
This section provides a summary of current public services and capital facilities in the
PAA, addressing local government as well as special district services and facilities.
Inventory of Public Services Likely to Change as a Result of
Annexation
General Government
Government services likely to change upon annexation by Federal Way include provision
of parks and recreation, police, solid waste, surface water, and transportation.
Parks and Recreation
Please refer to subsection 8.6.
Police Services
The King County Sheriff provides police protection services to the PAA. The PAA is
served by Precinct 3, George Sector, with its headquarters in Maple Valley.
At the time of incorporation, the City
contracted with the King County Sheriff’s
Department for police services. In the
spring of 1995, the City decided to
terminate its contract relationship with
King County and form its own police
department. The City’s Police Department
began limited service on September 16,
1996, and was fully operational on
October 16, 1996. Federal Way’s Police
Department could be expanded at some
time in the future so that it could effectively provide services to the PAA.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-23
State laws require and establish procedures for the lateral transfer to a city of qualified
county sheriff’s office employees who would otherwise be laid off as a result of the
annexation of unincorporated territory into that city (RCW 35.13.360 to 400). The city
would not be required to put all transferring employees on the police department payroll.
It is within the city’s discretion to determine what staffing provides an adequate level of
law enforcement service.
Solid Waste
The King County Department of Natural Resources, Solid Waste Division, operates King
County’s transfer and disposal system comprised of a central landfill and regional waste
transfer sites for residential and non-residential self-haul customers and commercial
haulers. The closest waste transfer station to the PAA and the City of Federal Way is in
the City of Algona. A siting process is underway which may relocate this facility in the
near future; the most likely site is adjacent to the existing facility in the City of Algona.
Unincorporated areas of King County are served by private garbage collection
companies, which receive oversight through the WUTC, with coordinated planning,
education and outreach services provided via King County Solid Waste Division. While
Waste Management serves all accounts within the City of Federal Way per a mutual
agreement, the PAA consists of two service areas designated as exclusive franchises, with
the dividing line at approximately South 300th Street. The northern area is serviced by
Republic Services, while the southern area is serviced by Waste Management.
In the event of annexation, the City may decide to contract for solid waste collection or
undertake solid waste collection itself. However, state law specifies that the incumbent
franchisee, may continue to operate for a period of seven years, although negotiated
transfer of service provider is allowed under RCW 35A.14.900.
In the Parkway neighborhood, the closed Puyallup/Kit Corner Landfill is sited southeast
of the I-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, with custodial responsibilities under the purview of
King County Solid Waste Division.
Surface Water
See Subsection 8.7.
Transportation
See Subsection 8.8.
Services Unlikely to Change as a Result of Annexation
In the event of annexation, some services currently being provided in the PAA 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.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-24
Fire Services
South King Fire & Rescue (SKFR), formerly known as the Federal Way Fire Department
provides service to the City of Federal Way, the City of Des Moines, and most of the
surrounding unincorporated area in the Federal Way PAA. However, SKFR is a standalone
municipal entity organized under Title 52 RCW and, as such, is not part of the City of
Federal Way government. Both the cities of Federal Way and Des Moines have “annexed
into” SKFR by a public vote for the provision of fire and life safety services. SKFR’s
current service boundary was formed in 2006 from a series of mergers uniting five (5) fire
districts in the area, some of which had been in existence since 1946, beginning in the early
1970s and culminating in the latest merger in 2006. The resulting boundary encompasses
some 41 square miles and has an estimated population of over 150,000.
Services provided by SKFR include fire
suppression, fire prevention (building inspection and
public information), public education (via the
Community Affairs Office), emergency medical,
hazardous materials response, technical rescue
response, surface water rescue, marine fire and
rescue response via a fire boat located at the Des
Moines marina, and numerous other related fire and
life safety services. Emergency medical response
calls or service make up a majority of the calls for
the SKFR, which totaled 17,695 calls for service in
2014 alone.
The PAA is served by four of the SKFR’s eight
stations (Map VIII-10). Two of these stations are
located outside of the PAA, Station 64 within the
City of Federal Way, and Station 66 within the
Woodmont/Redondo area. The other fire stations serving the PAA are located within the
Lakeland and Camelot community subareas.
SKFR also provides service to the Valley Regional Fire Authority (VRFA) due to recent
annexations by the City of Auburn on the west hill service area that SKFR previously
held within its service boundaries (VRFA provides service to Auburn, Algona, and
Pacific). SKFR’s response on the west hill area of Auburn is provided via an Interlocal
Agreement, wherein SKFR responds into the City of Auburn area on a first due basis.
This response is normally handled by Station 65. SKFR has purchased property at South
288th and Interstate 5 as a contingency should the City of Auburn annex additional area
on the west hill potentially necessitating the replacement of Station 65 in the Camelot
area. This would accommodate the building of a new station that is more centrally
located in the north end of the City.
For the City and PAA planning efforts, the City has worked closely with SKFR in
reviewing the Fire District Master Plan, which complies with the GMA. The master plan
identifies the new facilities SKFR will need to continue providing service as its service
area grows. The City included SKFR’s new facilities requirements and cost and revenue
estimates in the City’s Capital Facilities chapter.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-25
Library Services
Library services are provided by King County. There are no public libraries inside the
PAA, but there are six libraries of different sizes serving residents of the PAA including:
Algona-Pacific Library – 5,250 square feet (medium)
255 Ellingson Road
Auburn Library – 20,000 square feet (resource)
1102 Auburn Way South
Federal Way 320th Library – 15,000 square feet (large)
848 South 320th Street
Federal Way Regional Library – 25,000 square feet (regional)
34200 First Way South
Kent Regional – 22,500 square feet (regional)
212 2nd Avenue North
Woodmont Library – 9,850 square feet (medium)
26809 Pacific Highway South
King County Library System (KCLS) plans for capital projects, including expansions,
depend on the KCLS board determining whether they wish to propose a bond issue to
King County voters and whether it passes.
Schools/Education
Probably more than any other special district, a school district provides an area with a
sense of community. The Federal Way School District #210 (FWSD, as outlined on Map
VIII-11) extends from the county line south to South 252nd west of I-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 district provides a common thread, be it through school activities such as
organized sports, or through voting during elections.
City staff meets regularly with FWSD administrators to discuss growth management and
school development issues. The FWSD primarily serves students in the cities of Federal Way,
Des Moines, Auburn, and Kent, and unincorporated King County. The FWSD administration
has indicated in these meetings that they would prefer to work with one jurisdiction as the
FWSD attempts to anticipate growth and develop plans for new school facilities.
Nine schools are located in the PAA, including six elementary schools, two middle
schools, and one high school (as outlined on Map VIII-11).
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-26
Water and Wastewater
The Lakehaven Utility District (LUD) and Highline Water District (HWD) provide water
service to properties within the PAA. As indicated on Map VI-7, 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 PAA Star Lake
community subarea and parts of the City of Federal Way (Map VI-8).
Both the 2014 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, and Woodmont, a small area east of I-5 and south
of Kitts Corner Road, (see Map VI-9).
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.
Public Services and Capital Facilities Goals and Policies
Public Services and Capital Facilities Goal
Provide effective, efficient, and quality capital facilities and services at the level
necessary to meet community needs and support allowed growth.
Public Services and Capital Facilities Policies
In addition to governance and intergovernmental coordination policies, the following
policies are established.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-27
PAA CapFac – 1 Prior to annexation, the City, in conjunction with the County, should
develop and maintain an inventory of capital facilities in the PAA.
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.
PAA CapFac – 2 City and County plans should address the PAA to ensure that
systems are reviewed comprehensively, and in order to support
desired annexation phasing.
PAA 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.
PAA 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.
c. The County or City proposing to create special limited districts
in PAAs to pay for specific costs.
d. Tax base expansion.
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
PAAs (e.g. lower roadway pavement rating in the newly annexed
neighborhoods).
g. When considering annexation proposals, the City could explore
alternative service delivery strategies, or customized strategies
for specific neighborhoods tailored to the needs or characteristics
of the PAA location.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-28
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.
i. 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.
PAA 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 for 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.
8.11 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
2003 Federal Way PAA Subarea Plan. Upon future requests for annexation from
residents of the PAA, the City will engage in public participation efforts such as public
meetings, open houses, and various means of advertisements pursuant to state law.
Public Participation Goal and Policies
Public Participation Goal
Actively seek public involvement in PAA planning efforts.
Public Participation Policy
PAA Pub – 1 Consistent with 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 PAA,
the City should inform PAA residents, property owners, and business
owners of City activities and invite participation from PAA 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.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-29
8.12 GOVERNANCE AND INTER-JURISDICTIONAL
COORDINATION
The GMA, VISION 2040, and the CWPPs require coordination between land use and
services/capital planning, such as between the City of Federal Way, neighboring cities,
special districts, and the County.
Governance/Interjurisdictional Goals and Policies
Governance/Interjurisdictional Coordination Goal
Coordinate PAA planning efforts with other neighboring jurisdictions and agencies.
Governance/Interjurisdictional Coordination Policies
PAA Gov – 1 The City shall coordinate with the County to ensure service provision and
land development prior to City annexation is consistent with the goals and
policies of this chapter. 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 this chapter; and
b. Define service delivery responsibilities, level of service standards,
and capital facility implementation consistent with chapter
PAA 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.
PAA Gov – 3 Coordinated planning efforts between the City, King County, Lakehaven
Utility District, Highline Water District, Puget Sound Energy, Federal
Way School District, and South King Fire & Rescue should continue to
assure managed growth supportive of the PAA land use, annexation
phasing, and service delivery objectives.
8.13 ANNEXATION
For purposes of efficient services, coordinated land planning and development, and unity
between economically and socially related areas, annexation may be desired by citizens,
property owners, and the City. As noted above, the GMA provides for coordinated urban
growth area planning between counties and cities with the intent that urban and
urbanizing areas ultimately be served by municipalities. In the GMA framework,
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-30
annexations may occur only within a jurisdiction’s designated PAA. By addressing its
city limits and PAA in its comprehensive plan, the City is responding to the GMA
framework to manage growth, provide efficient services, and meet community needs in
the broader Federal Way community.
Annexation Goals and Policies
Annexation Goals
Provide a framework for processing annexation requests.
Annexation Policies
PAA 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
PAA CapFac-4. As areas become feasible for annexation, such areas may
be prioritized for annexation in accordance with the following:
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 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 PAA
Annex-2 and PAA Annex-3.
Annexation of the geographic subareas may be phased over
several years.
PAA Annex – 2 The City should process annexation requests in accordance with review
criteria. Review criteria should include:
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-31
The proposal meets the priority criteria of PAA Annex – 1.
Annexations are an appropriate size. Appropriate size means
an area that warrants the staff time and expense involved in
processing annexation requests and complies with the goals of
the GMA, VISION 2040, 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 of PAA Annex-3.
The annexation proposal should create and/or preserve logical
service areas, including meeting provisions of PAA Annex-3.
PAA Annex – 3 The City will use, but may not be limited to, the following factors in
determining the specific location of an annexation proposal boundary.
a. The annexation boundary, where appropriate, 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. PAA 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 PAA
King County surface water management facility, the City Public
Works Department should evaluate the facility and the water
basins it serves to determine whether the boundary should be
modified to include the public facility.
f. When a proposed annexation is located in the vicinity of a PAA
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 PAA
special purpose district facility (i.e. school, fire station, etc.), the City
should consult with the respective district regarding modifying the
boundary to include the special purpose district facility.
FWCP – Chapter Eight, Potential Annexation Areas
Revised 2015 VIII-32
PAA Annex – 4 Upon annexation, properties shall be required to assume FWCP
designations and zoning as found 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 comprehensive plan
designations map or zoning map 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.
PAA Annex – 5 Where appropriate, the City and/or County should allow development
agreements in the PAA that are consistent with this chapter and any
plans adopted as part of the annexation proposal.
PAA Annex – 6 The City will require owners of land annexing into Federal Way to
assume their proportion of existing City bonded indebtedness.
PAA 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.
PAA 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.