Planning Comm PKT 11-07-2007
City of Federal Way
PLANNING COMMISSION
November 7, 2007
7:00 p.m.
City Hall
Council Chambers
AGENDA
1. CALL TO ORDER
2. ROLL CALL
3. APPROVAL OF MINUTES
April 18, 2007, September 19, 2007, & October 17,2007
4. AUDIENCE COMMENT
5. ADMINISTRATIVE REPORT
6. COMMISSION BUSINESS
. ELECTION OF OFFICERS
. STUDY SESSION
Clearing & Grading/Tree Retention Code Amendment
7. ADDITIONAL BUSINESS
8. AUDIENCE COMMENT
9. ADJOURN
Commissioners
Hope Elder, Chair
Dave Osaki
Merle Pfeifer
Wayne Carlson
Dini Duclos, Vice-Chair
William Drake
Lawson Bronson
Kevin King (Alternate)
City Staff
Greg F ewins, Interim CDS Director
Margaret Clark, Senior Planner
E. Tina Piety, Administrative Assistant
253-835-2601
WWVl'. cityoffederalwav. com
K:\Planning Commission\2007\Agenda 11-07-07.doc
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CITY OF ~
Federal Way
MEMORANDUM
November 1, 2007
To: Hope Elder, Chair, Federal Way Planning Commission
FROM: Greg F ewins, Interim Director of Community Development Services
Margaret H. Clark, AICP, Senior Planner
Janet Shull, AICP, Senior Planner
SUBJECT: Significant Trees, Vegetation Retention, Clearing, and Grading
MEETING DATE: November 7,2007
This staff report is a follow up to the September 19, 2007, study session. At the September 19th
study session, staff introduced the topic of potential code amendments to address tree preservation
and clearing and grading activities associated with development proposals. Attachments A, B, and
C provide additional information:
1. Attachment A - Significant Trees, Vegetation Retention, Clearing, and Grading
A. Significant Trees and Vegetation Retention
(a) Tree Evaluation
(b) Tree Protection
(c) Tree Replacement
(d) Monitoring ofProtectedJReplacement Trees
B. Clearing and Grading
(a) Development on Sloped Sites
(b) Mass Grading
(c) Retaining Walls
II. Attachment B - Summary of Requirements to Clear and Grade Land, Remove Vegetation, and
to Protect and Replace Significant Trees
This table lists all of the regulations related to the subject topic and identifies which
regulations addresses tree removal for each specific land use, e.g., existing single family lot,
new subdivision plat, vacant single family lot, multi-family development, or non-residential
development (commercial, industrial, institutional).
III. Attachment C - Information on the Class IV Forest Practices Act Permit
Staff will respond to the e-mail from Alternate Commission Kevin King regarding the prevalence
of the total removal of all trees on sites within the last five year period during the November 7th
Study Session.
Following the November 7th study session, staff will prepare code language which will be provided
to interested parties such as the Master's Builders Association, Friends of the Hylebos, Puget
Sound Energy, Bonneville Power Administration, interested citizens!, and the City's Public Works
and Parks, Recreation, and Cultural Services Departments for comment and feedback.
1:\2007 Code Arnendments\Tree Clearing and Grading\l I 10107 SlaffReport to Planning Commission.doc
1 We have two interested citizens to date.
Significant Trees, Vegetation Retention, Clearing, and Grading
Planning Commission Memorandum
Meeting Date: November 7, 2007
Page 2
~
CITY OF ~
Federal Way
ATTACHMENT A
Significant Trees, Vegetation Retention, Clearing, and Grading
1. INTRODUCTION
This staff report is a follow up to the September 19, 2007, study session. At the September 19th study
session, staff introduced the topic of potential code amendments to address tree preservation and
clearing and grading activities associated with development proposals. This staff report provides
additional information with regard to:
Significant Trees and Vegetation Retention:
.
Tree Evaluation
Tree Protection
Tree Replacement
Monitoring of ProtectedJReplacement Trees
.
.
.
Clearing and Grading:
· Development on sloped sites
· Mass Grading
· Retaining Walls
11. SIGNIFICANT TREES AND VEGETATION RETENTION
Tree Evaluation: At the time of application for the first permit, the applicant is required to submit a
tree retention plan that identifies all trees located on the subject site that meet the current definition of
significant tree (12 inches in diameter or 37 inches in circumference, measured four and one-half feet
above ground).
Some jurisdictions require that any tree with a diameter six inches or greater be identified as
significant. Other jurisdictions (Seattle is an example) have adopted more specific lists of tree species
where each species has its own size threshold for being defined as significant. The City of Redmond
specifies that the tree protection plan be prepared by a certified arborist.
The applicant is required to preserve at least 25 percent of the significant trees located on the site.
Where the minimum number of significant trees can not be preserved, the applicant must provide for
replacement trees to be planted on site. It should also be noted that these protection rates only apply to
trees that meet the criteria of being significant and does not take into consideration the existing
pattern of tree cover on the site. Furthermore, only significant trees located on areas to be developed
with single-family lots in subdivisions are subject to tree preservation. Development in the City
Center-Core (CC-C) and City Center-Frame (CC-F) zones are exempt from significant tree
preservation requirements.
Some jurisdictions require a greater percentage of significant trees to be preserved (35 or 40 percent).
Redmond requires a minimum of 35 percent of significant trees be preserved and also allows
incentives for a higher level oftree preservation, such as reductions or adjustments to other site
development standards. For example:
. Reductions or variations of the area or width of required open space/landscaping;
. Variations in parking lot design;
. Variations in building setback requirements;
. Increases in building height;
. Reductions in the width of certain easements;
. Variations in grading and stormwater requirements;
. Other variations proposed and accepted by the Director, except the reduction in amount
of required parking.
The City of Seattle provides for, "recovery of development potential" where additional height,
reduction in setback area, and/or up to a ten percent reduction in required parking spaces can be
granted in cases where there is an "Exceptional Tree" that is required to be retained. (An "Exceptional
Tree" is a tree that is unique per its species or exceptional size. The city maintains a list oftrees that
meet the criteria.)
The zoning code should be amended to specify that tree evaluation should extend beyond the
development site to adjacent parcels.
The city's current development regulations focus on protection of trees of a certain size or greater.
The result has often been protection of individual trees, but overall loss of tree canopy on
development sites. One consideration is to ask for an evaluation that also considers preserving tree
canopy or stands of trees, as well as individual trees of significance. Both are important
considerations. In some cases, it may be acceptable to give credit for the retention of stands of smaller
caliper trees, even if all do not meet the significant tree criteria.
Tree Protection: Current development regulations require that any trees that are proposed to be
retained must be clearly noted on a tree plan that shows trees in relationship to planned site
improvements. On site, trees to be protected are to be protected with fencing and/or stakes with
flagging that are placed at the drip line of the tree.
The City of Federal Way has been advised by arborists with Urban Forestry Services, Inc. that the
current protection zone represented by the tree's drip line is not adequate. The recommendation is that
the protection zone be represented by a minimum of 12 inches in radius for each one inch in diameter.
For example, a lO-inch diameter tree has a minimum protection zone represented by a 10-foot radius.
The zoning code states that the tree plan must be reviewed and approved prior to site clearing. The
code should be amended to also specify that protection measures must be inspected and approved on-
site prior to clearing.
Planning Commission Memorandum
Significant Trees, Vegetation Retention, Clearing, and Grading
Attachment A
Page 2
Tree Replacement: The city's current regulations specify minimum tree size for replacement trees
of three inches or greater for deciduous and 10 feet or taller for evergreen.
The replacement tree standards do not require that the replacement trees relate to those being
removed. If evergreens are removed, evergreens should be provided as replacements. A consideration
for specifying tree replacement is to relate the size of the replacement tree to the tree being removed.
Another consideration that some jurisdictions provide for is off-site tree replacement. The cities of
Redmond and Port Townsend allow for off-site replacement for some or all of the required
replacement trees when on-site replacement can not be achieved. Acceptable sites for receiving off-
site replacement trees are city or county owned parks and open space areas, public school sites, or
private open space areas that are permanently protected and maintained.
An option provided by Redmond is a fee-in-lieu of tree replacement. The fee shall cover the cost of
tree, installation, and maintenance for two years. The city collects the fee and expends it for the
planting of new trees in city owned parks, open spaces, or rights-of-way.
Redmond allows for the consideration oflandscape restoration (restoring all or parts of the forest
landscape and its associated benefits subject to Administrator's approval) to mitigate the loss oftrees.
For example:
. Creation of wildlife snags from trees which would otherwise be removed;
. Replacement of certain ornamental trees with native shrubs and groundcover;
. Replacement of hazardous or short-lived trees with healthy new trees more likely to
survlve;
. Daylighting and restoration of stream corridors with native vegetation;
· Protection of nonsiginficant trees to provide for the successional stages of forest
development.
Monitoring ofProtected/Replacement Trees: The city's current development regulations do not
specifically address ongoing monitoring of preserved/replacement trees after development is
completed. Large trees that have been stressed or damaged can take 18 months to three years to show
evidence of trauma and/or die.
The City of Redmond has examples of code provisions that Federal Way may wish to consider. The
City of Redmond has established sections on maintenance, performance assurance, and enforcement
specifically related to tree protection. The maintenance provisions specify that all replacement trees and
relocated trees shall be maintained in healthy condition for the life of the project. The performance
assurance section requires that the applicant post a performance bond to ensure the installation,
maintenance, and adequate performance of tree protection measures. The bonding period is for three
years. The enforcement section specifies that any trees removed without authorization shall be replaced
with anywhere from two to one and up to a six to one ratio of replacement trees per tree removed.
Penalties can be imposed of up to $3,000 per tree for removal or damage to a protected tree.
Planning Commission Memorandum
Significant Trees, Vegetation Retention, Clearing, and Grading
Attachment A
Page 3
111. CLEARING AND GRADING
Development on Sloped Sites: The current subdivision and zoning code requirements do not
address development on sloped sites in great detail. Current requirements specify that a geotechnical
report is required for sites that have steep slopes (defined as 40 percent or greater). In addition,
Federal Way City Code (FWCC) Section 20-179 specifies that lots created on slopes of 15 percent or
greater shall minimize grading and shall not result in extensive use of retaining walls.
Some jurisdictions specify that as slopes increase, the minimum lot size shall increase. This helps
reduce the impact of development on steeper slopes and also reduces the incidence of large retaining
walls.
The following chart from the City of San Rafeal, California provides an example of how percent of
slope can effect the minimum lot size requirements.
Minimum Lot Size and Lot Width Based on Percent of Slope
Percent of Dwelling Unit Minimum Lot Average Lot
Slope Per Gross Acre Size Width
0-10 6.5 5,000 sq. feet 50 feet
10-20 5.375 6,000 sq. feet 50 feet
20-30 4.25 7,500 sq. feet 60 feet
30-40 3.125 10,000 sq. feet 75 feet
Over 40 2.0 20,000 sq. feet 100 feet
(source City of San Rafeal, CA)
The Washington State Department of Community Trade and Economic Development has prepared a
technical guidance document, "For Clearing and Grading in Western Washington." In this guide,
there is a model clearing and grading ordinance that was reviewed by staff. One of the model
regulations specifies: "Limit artificially established grades to no more than a slope of2:1 [two (2) feet
of horizontal run to one (1) foot or vertical fall]."
Mass Grading: The Federal Way subdivision code prohibits mass grading in general. There is a
provision where an applicant may request mass grading when they can make a case that there are
unique site and development issues where mass grading is necessary. In some cases, where there is a
relatively small site with small lots, mass grading may make sense because once grading for
infrastructure is complete there may not be much site area left undisturbed.
A related issue is the stripping and removal oftopsoil on graded sites. Staffhas learned through
participation in recent conferences on Low Impact Development (LID) that when topsoil can be
retained on-site during construction and then replaced prior to landscape planting, the plantings tend
to fair better because the condition of the soil is better.
Planning Commission Memorandum
Significant Trees, Vegetation Retention, Clearing, and Grading
Attachment A
Page 4
Retaining Walls: There is no specified height limit for rockeries or retaining walls in the FWCC.
Staff has seen development proposals for walls in excess of 20 feet in height for both commercial and
residential development.
Staffhas been requiring section and elevation details for proposed retaining walls due to the aesthetic
impacts they present and have implemented conditions of approval that establish maximum wall
height on a case-by-case basis. However, there are no specific design standards for retaining walls in
the FWCC.
Some jurisdictions establish restrictions on retaining wall height. The Washington State Department
of Community Trade and Economic Development clearing and grading example code provides for a
maximum rockery height of 12 feet. The City of Mercer Island specifies a maximum of 12 feet in
height for a rockery or retaining wall on a cut slope and six feet on a fill slope.
Mercer Island also establishes that within a required yard, rockeries and retaining walls are limited to
six feet in height. King County has a similar requirement. Within the setback area retaining walls are
limited to six feet in height. If there is a fence on top of the wall, the combined height cannot exceed
ten feet.
IV. SUMMARY:
Staff believes the following items merit inclusion in draft revisions to the significant tree
preservation, and clearing and grading regulations.
Tree Preservation
1. Require that tree retention plans be prepared by a certified arborist in coordination with a
landscape plan prepared by a licensed landscape architece.
2. Either require that all trees that are six inches in diameter or greater be evaluated, or adopt a
more sophisticated significant tree definition that establishes species appropriate sizes for
significant trees.
3. Increase the percentage of significant trees that are to be preserved.
4. Eliminate the provision that tree preservation is only for areas where single-family lots are
proposed-make it apply to the entire site, but provide for greater flexibility in tree replacement
options (see 10 and 11 below).
5. Emphasize that trees are to be preserved in groupings where possible.
6. Require that trees on adjacent properties must also be evaluated.
7. Provide incentives for a greater percentage of tree preservation.
1 In some cases, the certified arborist and landscape architect could be one and the same.
Planning Commission Memorandum
Significant Trees, Vegetation Retention, Clearing, and Grading
Attachment A
Page 5
8. Modify the tree protection zone per arborist Best Management Practices (BMPs) that establish
tree protection zones based on tree diameter instead of drip line.
9. Require a site visit to verify that tree protection measures and signage are in place per approved
plans prior to development/site work.
10. Allow for more than 50 percent of replacement trees to be located within required landscape
areas.
11. Allow for off-site or fee-in-lieu-of tree replacement when there are no viable on-site
replacement options.
Clearing and Grading
1. Prepare draft code language that addresses development on sloped sites of 15 percent or greater
and establishes appropriate standards for minimum lot size, based on site slope.
2. In concert with item 1 above, allow lot size averaging so that greater number of lots could be
provided on flat portions of a site.
3. Establish a maximum area where mass grading may be allowed without Public Works
Director's approval.
4. Establish a minimum area where mass grading will not be permitted (for example: sites 10
acres or larger in size shall not be a candidate for mass grading).
5. Establish a code requirement that any portions of a site that are graded and not developed within a
certain period of time shall be revegetated. We will need to work with the Forest Practices Act
currently administered by the Department of Natural Resources (see Attachment C).
6. Retain topsoil on site for replacement after construction for better landscape establishment.
7. Establish a maximum height for retaining walls relating to type of development, site location,
and whether a cut or fill slope.
K:\Trees, Vegelation, & Grading\Planning Commission\Atlachment A.doc
Planning Commission Memorandum
Significant Trees, Vegetation Retention, Clearing, and Grading
Attachment A
Page 6
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CITY OF" --?
Federal Way
ATTACHMENT C
FOREST PRACTICES ACT
I. Definitions
"Forest land" means all land which is capable of supporting a merchantable stand of timber
and is not being actively used for a use which is incompatible with timber growing. ...
"Forest landowner" means any person in actual control of forest land, whether such control
is based either on legal or equitable title, or on any other interest entitling the holder to sell or
otherwise dispose of any or all of the timber on such land in any manner.
"Forest practice" means any activity conducted on or directly pertaining to forest land and
relating to growing, harvesting, or processing timber, including but not limited to:
Road and trail construction;
Harvesting, final and intermediate;
Precommercial thinning;
Reforestation;
Fertilization;
Prevention and suppression of diseases and insects;
Salvage of trees; and
Brush control.
II. Summary of Class IV General IV Forest Practices Permit
1. If a development is proposed on land with merchantable timber and the landowner
desires to clear the land, he or she must obtain a Forest Practices Permit from the
Department of Natural Resources (DNR).
2. The landowner can apply for a Class IV Forest Practices permit from the DNR once a
development project has been issued a Mitigated Determination of Significance (MDNS,
threshold determination pursuant to the State Environmental Policy Act [SEPAl).
3. The landowner can harvest the on-site timber once a Class IV Forest Practices permit has
been issued by the DNR.
4. A Class IV Forest Practices Permit expires after three years if the landowner does not
develop the property.
5. Prior to December 31, 2008, the City may request that jurisdiction for Class IV Forest
Practices Permits be transferred from the DNR to the City. This may allow the City better
control on timing of harvesting of timber relative to the development of the site.
6. Staff needs to do further research and obtain direction from the City Council on whether
we should pursue requesting a transfer of jurisdiction for Class IV permits from the DNR
to the City.
1:\2007 Code Arnendments\Tree Clearing and Grading\EXHIBlT C Forest Practices Act.doc
Planning Commission Memorandum
Forest Practices Act
Attachment C
Page 2