ORD 09-614
ORDINANCE NO. 09-614
AN ORDINANCE of the City of Federal Way, Washington, relating to
amendments to the City's comprehensive plan, comprehensive plan map, and
zoning map. (Amending ordinance no's. 90-43, 95-248, 96-270, 98-330, 00-372,
01-405,03-442,04-460,04-461,04-462,05-490, 05-491, 05-492 and 07-558.)
WHEREAS, the Growth Management Act of 1990 as amended (Chapter 36.70A RCW or "GMA"),
requires the City of Federal Way to adopt a comprehensive plan which includes a land use element (including
a land use map), housing element, capital facilities plan element, utilities element, economic development
element, and transportation element (including transportation system map [ s]); and
WHEREAS, the GMA also requires the City of Federal Way to adopt development regulations
implementing its comprehensive plan; and
WHEREAS, the Federal Way City Council adopted its comprehensive plan with a land use map (the
"Plan") on November 21, 1995, and adopted development regulations and a zoning map implementing the
Plan on July 2, 1996; and subsequently amended the comprehensive plan, land use map, and zoning map on
December 23, 1998; September 14,2000; November 1,2001; March 27, 2003; July 20,2004; June 16,2005;
and July 16, 2007; and
WHEREAS, the City may consider Plan and development regulation amendments pursuant to Process VI,
under Title 19 (Zoning and Development Code) of the Federal Way Revised Code (FWRC), chapter 19.80
FWRC, pursuant to chapter 19.35 FWRC; and
WHEREAS, under RCW 36.70A.130, the Plan and development regulations are subject to continuing
review and evaluation, but the Plan may be amended no more than one time per year; and
WHEREAS, the Council has considered amendments to the text and maps ofthe comprehensive plan, the
comprehensive plan map, and the zoning map, specifically amendments to the text of Chapter 6, Capital
Facilities, and the text and maps of Chapter 10, Private Utilities, two citizen-initiated requests (Request #1 -
Federal Way Village and Request #2 - Nguyen) for changes to the comprehensive plan and zoning map
designations; and a city-initiated change to the comprehensive plan and zoning map designation for Pacific
Ordinance No. 09-614
Page 1014
Heights (Request #3);
WHEREAS, on March 14, 2009, the City's SEPA Responsible Official issued a Determination of
Nonsignificance on the 2008 Comprehensive Plan Amendments; and
WHEREAS, the City's Planning Commission held a public hearing on April 15,2009, at the close of
which they recommended to the council approval of the following amendments: I) amendments to the text of
Chapter 6, Capital Facilities, and the text and maps of Chapter 10, Private Utilities; 2) approval oftwo citizen-
initiated requests (Request #1 - Federal Way Village and Request #2 - Nguyen) for changes to the
comprehensive plan and zoning map designations; and 3) approval of a city-initiated change to the
comprehensive plan and zoning map designation for Pacific Heights (Request #3); and
WHEREAS, the Land Use/Transportation Committee of the Federal Way City Council considered the
comprehensive plan amendments on May 4, 2009, following which it recommended approval ofthe Planning
Commission's recommendations; and
WHEREAS, the City Council, through its staff, Planning Commission, and City Council committee,
received, discussed, and considered the testimony, written comments, and material from the public, and
considered the matter at its City Council meetings on May 19, 2009, and June 2, 2009; and
WHEREAS, the City Council desires to approve the: 1) amendments to the text and maps of the
comprehensive plan; 2) two citizen-initiated requests for changes to the comprehensive plan and zoning map
designations; and 3) one city-initiated request for changes to the comprehensive plan and zoning map
designations.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF FEDERAL WAY, WASHINGTON,
DO ORDAlN AS FOLLOWS:
Section I: Findings and Conclusions.
(a) The proposed amendments to the comprehensive plan maps and comprehensive plan text, as set forth
in Exhibits A, B, C, andD, attached hereto, are consistent with the Council vision for the City of Federal Way;
will allow development which is compatible with the surrounding neighborhoods, including adjacent single-
Ordinance No. 09-614
Page 2 of 4
family uses; provide convenient goods and services at a pedestrian and neighborhood scale close to adjacent
residential uses; provide for capital facilities and private utilities to serve both present and projected
population; and therefore bear a substantial relationship to public health, safety, and welfare; are in the best
interest of the residents ofthe City; and are consistent with the requirements ofRCW 36.70A, the King County
Countywide Planning Policies, and the un-amended portion of the Plan.
(b) The proposed amendments to the comprehensive plan maps and comprehensive plan text, as set forth
in Exhibits A, B, C, and D, attached hereto, are compatible with adjacent land uses and will not negatively
affect open space, streams, lakes, or wetlands, or the physical environment in general. The amendments will
allow for growth and development consistent with the Plan's overall vision and with the Plan's land use
element household and job projections, and will allow reasonable use of property subject to constraints
necessary to protect environmentally sensitive areas. The amendments, therefore, bear a substantial relationship
to public health, safety, and welfare; are in the best interest ofthe residents of the City; and are consistent with
the requirements of RCW 36.70A, the King County Countywide Planning Policies, and the un-amended
portion of the Plan.
(c) The proposed amendments to the zoning map, set forth in Exhibits B, C, and D, attached hereto, are
consistent with the applicable provisions ofthe comprehensive plan and the comprehensive plan land use map
proposed to be amended in Section 2 below, bear a substantial relation to public health, safety, and welfare,
and are in the best interest of the public and the residents of the City.
(d) The proposed amendments have complied with the appropriate process under state law and the FWRC.
Section 2. Comprehensive Plan, Comprehensive Plan Maps, and Zoning Map Amendments Adoption.
The 1995 City of Federal Way Comprehensive Plan, as thereafter amended in 1998, 2000, 2001, 2003, 2004,
2005, and 2007, copies of which are on file with the Office of the City Clerk, the comprehensive plan map, and
the zoning map are amended as set forth in Exhibits A, B, C, and D, attached hereto.
Section 3. Amendment Authority. The adoption of plan and map amendments in Section 2 above is
pursuant to the authority granted by Chapters 36.70A and 35A.63 RCW, and pursuant to chapter 19.80
Ordinance No. 09-614
Page 3 of 4
FWRC.
Section 4. Severability. The provisions of this ordinance are declared separate and severable. The
invalidity of any clause, sentence, paragraph, subdivision, section, or portion of this ordinance, or the invalidity
of the application thereof to any person or circumstance, shall not affect the validity of the remainder of the
ordinance, or the validity of its application to other persons or circumstances.
Section 5. Savings Clause. The 1995 City of Federal Way Comprehensive Plan, as thereafter amended in
1998,2000,2001,2003,2004,2005, and 2007, shall remain in full force and effect until these amendments
become operative upon the effective date of this ordinance.
Section 6. Ratification. Any act consistent with the authority and prior to the effective date of this
ordinance is hereby ratified and affirmed.
Section 8. Effective Date. This ordinance shall take effect and be in force five (5) days after passage and
publication, as provided by law.
PASSED by the City Council of the City of Federal Way this 2nd day of June, 2009.
CITY OF FEDERAL WAY
C
tOYED AS. TO FORM:
~U~ ~
CITY ATTORNEY, PATRICIA A. RICHARDSON
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED: 6-6-2009
EFFECTIVE DATE: 6-11-2009
ORDINANCE NO: 09-614
5-12-2009
6-2-2009
Ordinance No. 09-614
Page 40f4
Exhibit A
CHAPTER SIX - CAPITAL FACILITIES
6.0 INTRODUCTION
The City of Federal Way is expected to add 6,188 housing units and 7,481 jobs between
the years 2001 and 2022. This growth will stimulate the local economy and maintain a
diverse and vibrant community. Unfortunately, it will also generate a corresponding
demand for new public services and facilities, such as schools, parks, and streets. These
new facilities, and the financial implications they will have for Federal Way and its
citizens, are the subject of this chapter.
The Growth Management Act
The Growth Management Act (GMA) refers to capital facilities planning in two of the 13
statewide planning goals. The two relevant goals are:
1. Urban growth. Encourage development in urban areas where adequate
public facilities and services exist or can be provided in an efficient manner.
2. 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.
More specifically, the GMA mandates that the City prepare a capital facilities plan which
contains the following components:
· An inventory of existing facilities owned by public entities, showing the
locations and capacities of the facilities.
· A forecast of the future needs for such facilities.
· The proposed locations and capacities of expanded or new facilities.
· At least a six-year financing plan that will finance such facilities and clearly
identify sources of public money for such purposes.
· A requirement to reassess the Land Use chapter if probable funding falls short.
In the pages that follow, this chapter complies with the GMA requirements for a capital
facilities plan.
FWCP - Chapter Six, Capital Facilities
level of Service
To prepare a Capital Facilities chapter, one of the first decisions a jurisdiction must make
involves establishing a level of service (LOS) standard. The level of service standard
refers to the amount and quality of services and facilities that a community wants. For
example, the LOS for a parks system is usually described in terms of the number of acres
of parkland per 1,000 population. If a community has a strong desire for a good parks
system, it will establish a high LOS standard for itself, maybe something on the order of
20 acres of park per 1,000 residents. On the other hand, 20 acres of developed parkland is
expensive to acquire, develop, operate, and maintain. As a result, the community may be
forced, for financial reasons, to accept a lower LOS standard. In any event, adopting LOS
standards for all the services and facilities the City provides would help it: I) evaluate
how well it is serving existing residents, and 2) determine how many new facilities will
have to be constructed to service new growth and development.
Concurrency
In addition to mandating that a Capital Facilities chapter be included in comprehensive
plans, the GMA also introduced the concept of concurrency. In general terms,
concurrence describes the situation where adequate and necessary public services and
facilities are available "concurrent" with the impacts of new development, or within a
specified time thereafter.
Concurrency has two levels of applicability. The first is at the planning level and refers to
all services and facilities, over the long term, and at the citywide scale. Planning level
concurrency is what this chapter is all about. It inventories all existing facilities and
services, establishes a LOS standard for each, estimates new facility requirements to
accommodate projected growth, and develops a financing plan that identifies the
revenues necessary to pay for all the new facilities. If the necessary revenues are not
available, then the jurisdiction fails the planning level concurrency test and must take
appropriate action. Those actions include lowering the LOS standard, raising taxes,
restricting growth, or a combination of these actions. This chapter satisfies the planning
level concurrency requirement as outlined in the GMA.
The second level of concurrency analysis is project specific and only required for
transportation facilities. Specifically, the GMA (RCW 36.70A. 070[6]) states:
"...local jurisdictions must adopt and enforce ordinances which prohibit
development approval if the development causes the level of service on a
transportation facility to decline below the standards adopted in the
transportation element of the comprehensive plan, unless transportation
improvements or strategies to accommodate the impacts of development are
made concurrent with the development."
That same section goes on say that "concurrent with the development" shall mean that
improvements or strategies are in place at the time of development, or that a financial
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI.2
FWCP - Chapter Six, Capital Facilities
commitment is in place to complete the improvements or strategies within six years. To
satisfy the project level concurrency requirement, the last section of chapter three,
Transportation, contains a concurrency management discussion.
As mentioned previously, project level concurrency is only required for transportation
system facilities. However, the Washington State Office of Community Development's
interpretation (WAC 365-195-070[3]) states that, "...concurrence should be sought with
respect to public facilities in addition to transportation facilities. The list of such additional
facilities should be locally defined." This section goes on to say that local jurisdictions
may fashion their own regulatory responses. The City adopted a Transportation
Concurrency Management System, which became effective January I, 2007.
Impact Fees
Local jurisdictions planning under the GMA are authorized to assess impact fees for
development activity as part of financing for public facilities, such as parks, transportation,
and schools. The fire district also has a direct impact on their level of service based on
growth and thus, is working both locally and legislatively to ensure that they also receive
impact fees directly related to growth.
Impact fees must be based on an adopted capital facilities plan. In addition, the collected
fees must be used for projects that are reasonably related to and will reasonably benefit the
development paying the fees. The fees must also be used within a specified time from the
date they were collected or returned to the payee. Impact fees may be imposed for system
improvement costs previously incurred to the extent that new growth and development will
be served by the previously constructed improvements, provided they not be imposed to
make up for any system improvement deficiencies. To impose an impact fee program, the
City must have a plan in place to make up any existing system deficiencies.
Countywide Planning Policies
The Countywide Planning Policies (CWPPs) originally adopted in 1992, and amended in
I 994, contain a number of goals and policies regarding capital facilities and the provision
of urban services. Those relevant CWPPs are the following:
COt Jurisdictions shall identify the full range of urban services and how they
plan to provide them.
C02 Jurisdictions and other urban service providers shall provide services and
manage natural resources efficiently, through regional coordination,
conjunctive use of resources, and sharing of facilities. InteIjurisdictional
planning efforts shall evaluate approaches to share and conserve resources.
C03 Service provision shall be coordinated to ensure the protection and
preservation of resources in both Rural Areas and in areas that are
developing, while addressing service needs within areas currently
identified for growth.
Revised 2008 School. Fire, Water, and Sewer Comprehensive Plan Amendment
VI-3
FWCP - Chapter Six, Capital Facilities
C04 All jurisdictions acknowledge the need to develop a regional surface water
management system which crosses jurisdictional boundaries and identifies
and prioritizes program elements and capital improvements necessary to
accommodate growth and protect the natural and built environment. The
GMPC shall develop and recommend a financing and implementation
strategy to meet this need.
C05 Water supply shall be regionally coordinated to provide a reliable
economic source of water and to provide mutual aid to and between all
agencies and purveyors. The region should work toward a mechanism to
address long-term regional water demand needs of agencies and water
purveyors.
C07 Water reuse and reclamation shall be encouraged, especially for large
commercial and residential developments and for high water users such as
parks, schools, golf courses, and locks.
COIO In the Urban Area identified for growth within the next ten years, urban
water and sewer systems are preferred for new construction on existing
lots and shall be required for new subdivisions. However, existing septic
systems, private wells, and/or small water systems may continue to serve
the developments so long as densities and physical conditions are
appropriate, the systems are allowed by the relevant jurisdictions, and
management keeps the systems operating properly and safely.
C013 Urban sewer system extensions in unincorporated King County shall be
permitted consistent with the provisions of the King County Sewerage
General Plan, Countywide Policies, and the policies of the jurisdiction in
whose potential annexation area the extension is proposed.
FW13 Cities are the appropriate provider of local urban services to Urban Areas,
either directly or by contract. Counties are the appropriate provider of
most countywide services. Urban services shall not be extended through
the use of special purpose districts without approval of the city in whose
potential annexation area the extension is proposed. Within the Urban
Area, as time and conditions warrant, cities should assume local urban
services provided by special purpose districts.
FW32 Public capital facilities of a Countywide or Statewide nature shall be sited
to support the Countywide land usepattem, support economic activities,
mitigate environmental impacts, provide amenities or incentives, and
minimize public costs. Amenities or incentives shall be provided to
neighborhoods/jurisdictions in which facilities are sited. Facilities must be
prioritized, coordinated, planned, and sited through an inteIjurisdictional
process established by the GMPC, or its successor.
Revised 2008 School, Fire, Water. and Sewer Comprehensive Plan Amendment
VI-4
FWCP - Ghapter Six, Capital Facilities
LU29 All jurisdictions shall develop growth-phasing plans consistent with
applicable capital facilities plans to maintain an Urban Area served with
adequate public facilities and services to meet at least the six-year
intermediate household and employment target ranges consistent with
LU67 and LU68. These growth phasing plans shall be based on locally
adopted definitions, service levels, and financing commitments, consistent
with State GMA requirements. The phasing plans for cities shall not
extend beyond their potential annexation areas. lnterlocal agreements shall
be developed that specify the applicable minimum zoning, development
standards, impact mitigation, and future annexation for the potential
annexation areas.
LU30 Where urban services cannot be provided within the next 10 years,
jurisdictions should develop policies and regulations to:
. Phase and limit development such that planning, siting, density
and infrastructure decisions will support future urban development
when urban services become available.
· Establish a process for converting land to urban densities and uses
once services are available.
Funding/Financing
Typically, cities and the residents they service would like to have higher LOS standards
than they can afford. Federal Way has worked hard to provide the highest LOS possible
without raising taxes. It is a difficult balance to maintain and the City is currently at a
point where it may have to consider raising additional revenues to pay for capital
facilities and the associated maintenance and operations costs.
If the City decides to generate additional revenues, there are several sources available.
Some of these revenues are "on-going" in the sense that the City levies the tax and the
revenues are added to the City's general fund on an annual basis. On-going revenues
include property taxes, sales taxes, utility taxes, impact fees, and business and occupation
taxes. The other category of funds is called "one time" funds because the City cannot
count on having these funds available on an annual basis. These funds include bond sales
and grants such as, TEA-2l, lAC, and Urban Arterial Fund money. On-going funds can
be used for either capital facilities or maintenance and operations. However, it is prudent
financial management and adopted City policy that one-time funds be used only for
capital improvements. As is discussed later in this chapter, the City proposed two bond
issues to finance capital facilities in the Fall of] 995. As part of that bond issue, voters
were asked to approve a permanent utility tax to pay for the maintenance and operations
costs associated with the new capital facilities.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-5
FWCP - Chapter Six, Capital Facilities
6.1 SURFACE WATER
Inventory of Existing Facilities
Natural Systems
The Federal Way area consists of two major drainage basins, the Hylebos Creek and
Lower Puget Sound. The Hylebos Creek Basin consists of the West Branch Hylebos
Creek, East Branch Hylebos Creek, and the Lower Hylebos Creek Sub-Basins. The
Lower Puget Sound Basin consists of the North Lower, Central Lower, and South Lower
Puget Sound Sub-Basins. Map VI-I (maps are located at the end of the chapter) shows the
planning area boundary, and boundaries. Map VI-2 shows the major features of the
natural system. The natural systems have been reviewed on a sub-basin level. This sub-
basin information is contained in the City's Comprehensive Surface Water Facility Plan.
Man-Made System
As part of its 1994 Surface Water Facilities Plan, the City completed an inventory of the
stormwater drainage trunk system. There are ten major trunk lines in the system, and one
can find more details about their capacity and location in the Surface Water Plan.
The City has made a significant number of improvements to the manmade system since
incorporation in 1990. Most of the projects completed to date corrected existing localized
flooding problems. As a result of resolving these "spot" problems, the City and its surface
water utility have significantly improved the LOS on a system-wide basis. The City has
gone to a regional system for detention/retention of surface water. Several regional
detention/retention facilities have been, or will be, constructed to handle stormwater
runoff. However, individual developments must treat stormwater on site prior to releasing
it to the regional system.
System Capacity
As part of the Surface Water Facilities Plan, the City developed a model of its surface
water facilities, including the natural part of the system, the various lakes, streams, and
wetlands. This model uses the following design or LOS standards:
· 25-year storm conveyance capacity on lateral systems;
· 25-year storm conveyance capacity on major trunk systems;
. 25-year storm storage capacity in local retention/ detention facilities; and
· 100-year storm storage capability in regional retention/detention facilities.
Based on these LOS standards and the data on existing facilities, the model helps utility
engineers identify deficiencies in the existing system and the most cost effective way to
resolve them. The model also allows engineers to describe the new facilities that will be
needed in the future to accommodate new growth and development as outlined in the
Land Use chapter.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-6
FWCP - Chapter Six, Capital Facilities
Forecast of Future Needs
Based on model results, utility engineers annually update a detailed 10 six-year capital
facilities plan. The plan identifies projects, prioritizes them, estimates the cost, and re-
examines the utility rate structure to ensure that there is sufficient funding available over
the next six years to construct these projects (Table VI-I).
locations and Capacities of Future Facilities
Table VI-1 includes the surface water facilities project list. For more complete discussion
of this list, and maps describing project locations, please refer to Chapter IV of the City's
Comprehensive Surface Water Plan. As noted earlier, these projects address existing
system deficiencies as well as the new facilities that will be needed to accommodate
projected growth.
Finance Plan
The City has created a surface water utility to manage stormwater drainage, prevent
flooding, and improve water quality. The City charges property owners an annual surface
water fee, which is based upon the amount of impervious surface on the property. These
fees, along with any outside grant monies and low interest loans, provide the revenues
that pay for capital facilities projects, and operation and maintenance of its surface water
system.
As outlined in Table VI-I, projects are scheduled based on anticipated revenues. The
capital facilities spreadsheet indicates project scheduling based on available funding and
priority ranking. The City annually updates the capital facilities plan for surface water. The
Comprehensive Surface Water Plan, which includes the capital facilities plan, is adopted
by reference in this plan, including changes made during the City's annual update.
6.2 TRANSPORTATION
The GMA requires that local jurisdictions prepare a transportation chapter as part of the
Federal Way Comprehensive Plan (FWCP). The GMA also authorizes jurisdictions to
assess impact fees for transportation system improvements that are necessary to
accommodate the traffic created by the new development. In order to assess impact fees,
the capital facilities plan must include the list of transportation improvements and
associated costs that necessitate the impact fees. Discussion related to Transportation-
related capital facilities can be found in FWCP Chapter 3, Transportation.
Revised 2008 School. Fire, Water, and Sewer Comprehensive Plan Amendment
VI-?
FWCP - Chapter Six. Capital F acililles
u ace ater ana2ement omll onent
2006 2007 2008 2009 2010 2011 2012 Total
SWM SOURCES
Revenues and Financing
Carry Forward from CIP and Operations 7.030.158 6.206.435 5.025.729 3.896.890 3.351.651 2.878.1 55 968,961
User Fees with GMA Project Growth 3.239.534 3.232.389 3.256.629 3.28] .054 3.305.662 3.330.454 3.355.432 46,657,770
Interest Earnings 75.564 171.536 152.212 131.901 119,685 90.634 64.086 1,449,806
Transfer In - Street Fund ]49.90] 149.901 149.901 154.398 159.030 163.801 168.715 2,106,172
Grant Funding 1.093.160 720.000
Subtotal Revenues and :Financing 11,588,317 10,480,259 8,584,470 7,464,243 6,936,027 6,463,044 4,557,194 113,867,643
Expenditures - One Time & Debt Service
One Time Funding 0
Public Works Trust Fund Loan 203.577 201.754 199,930 ]98.107 196.283 194,459 192,636 3,757,108
Subtotal Expenditures 203,577 201,754 199,930 ] 98,] 07 ] 96,283 194,459 192,636 3,757,108
Available Revenue 11,384,739 ] 0,278,505 8,384,540 7,266,137 6,739,744 6,268,584 4,364,559 110,110,535
Total Required Sources 5,254,682 5,454,530 4,687,580 4,112,593 4,057,873 5,494,083 3,859,339 59,421,297
SWM USES
Maintenance and Operations
Current 2.540.016 2.576,016 2.578.016 2.664.432 2.753.752 2,846,074 2.94],500 36,895,119
Subtotal Maintenance and Operations 2,540,0]6 2,576,0]6 2,578,0]6 2,664,432 2,753,752 2,846,074 2,94] ,500 36,895,119
Annual Programs
111 Fund 221.744 200,000 207.000 214.245 221.744 229.505 237.537 2,809,041
Subtotal Annual Programs 221,744 200,000 207,000 214,245 221,744 229,505 237,537 2,809,041
Capital Project List
SPB-CIP-Ol: Joe Creek Regional 1.542.391 1,946,489
Detention Pond
SPJ2-CIP-02: Lake Jeane Outlet 125.000 430.000 555,000
Control Structure
SPJ2-C1P-02: Lake Lorene Outlet 95.000 295.000 390,000
Control Structure
S 373'" Bridge Replacement Project 160.000 661.760 910,000
SPJ4-CIP-0]: SW 325" Sf } 50.000 ]50,000
CulvertlTrunk Replacement
SPlJ-CIP-02: Lower Joes Creek 323.678 1.898.373 2,222,051
Channel Restoration
SPL5-CIP-02: SW 332no St Trunk 200.000 635.000 835,000
Replacement
CPR6-CIP-0 I: S 308'h St Lateral 60.000 ]05.000 165,000
Drainage Intercept
SPM3-CIP-02: East 15-lnch Lateml 21 1.953 248,092
Detention
WH 12-ClP-02: S 316'h PI Detention 88.188 517.223 605,4lJ
Table VI-l
City of Federal Way Facilities Plan
Srf W M C
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI.8
FWCP - Chapter Six, Capital Facilities
2006 2007 2008 2009 20]0 20ll 2012 Total
Facility
WH07-CIP-02: I" Way STrunk 97.634 572,62 I 670,255
Replacement
CPR6-CIP-02: Outlet Channel 50.000 130.000 ]80,000
Modification
WH15-CIP-02: 21" Ave SW Detention 60.615 355.506 416,121
Facility
WH 11-CIP-04: Low Row 45,193 265.056 3]0,249
Diversion/Infiltration Trench
W Hylebos Channel Riparian Habitat 400,000 720,000 ],]20,000
Easement Acquisition
10'" Ave S Drainage Improvement 55.000 375.000 430,000
S 336'h and 348'h Ave S Drainage 25.000 120,000 145,000
Improvement
SR 99 Phase III Cost Share 150.000 150,000
6.3 PARKS AND RECREATION
Inventory of Existing Facilities
The City of Federal Way adopted the first Park, Recreation, and Open Space
Comprehensive Plan in December of 199 I. The City updated the Plan in 1995, 2000, and
2006. This plan, which is now called the Parks, Recreation, and Open Space Plan, is
incorporated by reference. The planning area of the 2000 and 2006 Parks Plans are based
only on the City limits of Federal Way, although the Potential Annexation Area (PAA) is
inventoried and discussed. As in previous plans, the Parks Plan has been subdivided into
subareas, referred to as Parks Plan Planning Areas (Map Vi-3), for purposes of long-
range planning.
The 2006 Parks Plan updates the inventory to include new parks and properties added to
the City's system. In addition to City-owned parks and open space, the Parks Plan also
lists school district, state, and county facilities, as well as private recreation facilities.
Map Vl-4 depicts the location of major parks and open space within the Federal Way
planning area. Table Vl-2 summarizes this inventory as of June 2006.
Su
Table VI-2
f E . f C"t P k d R
f A as
mmary 0 XIS m~ lly ar -an ecrea Jon re
DEVELOPED PARK LAND CATEGORIES ACRES
14 Nei~hborhood Parks 156.4
5 Community Parks 222.3
o Re~ional Parks 0.0
4,2 mi Trails Acrea~e 118.0
4 Park Facilities Acreage 25.8
Total Developed Park Land 522.5
Total Undeveloped Park Land 543,5
Total Park Land in Federal Way 1066.0
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-9
FWCP - Chapter Six, Capital Facilities
When the City incorporated in 1990, there were approximately eight acres of parkland
available per 1,000 population in Federal Way. Since that time, the City has purchased
additional property and developed new facilities. These include the Lake KilIamey Open
Space Park, Heritage Woods Neighborhood Park, Wedgewood Neighborhood Park, BPA
Trail I, II, and III, Madrona Park, Cedar Grove Park, Klahanee Lake Community Senior
Center, Dumas Bay Centre, Celebration Park, Steel Lake Annex facilities, and the
Community Center, which opened March 2007. In 2004, Washington State Parks
transferred West Hylebos Wetlands Park to the City. King County has also transferred
several properties to the City in the last six years. These parks and facilities are described
in greater detail in the Parks Plan.
As of 2006, the City is providing 10.9 acres of park land per 1,000 population. The City's
goal is to maintain a level of service of 10.9 as Federal Way grows in population and
size. In the past, the City has obtained land through plat dedication. The City is also now
considering a Park Impact Fee to provide funds for parks acquisition and development.
In addition to acquiring and developing new facilities, the City has taken administrative
actions to take advantage of other available public recreational facilities. The City
enacted interlocal agreements with the School District to jointly operate and maintain
school recreational facilities. As a result, the City jointly operates and maintains a major
community park in conjunction with Saghalie Middle School. Also, the City has
agreements to provide recreational programs and schedule play fields at several
elementary schools, in addition to middle schools. These facilities are now formally
available nights and weekends, year around for use by local residents.
As referenced above, City residents now have access to 10.9 acres of parks and open
space per 1,000 population. This inventory includes City owned parks and open space
within the City limits. The City currently provides I 066 acres of parkland, which the City
maintains and operates. Of the total 1066 acres, 522.5 acres is developed for recreational
use areas and 543.5 acres is undeveloped.
Note: Washington State Parks has a regional park facility within the City limits, which
residents often use. Dash Point State Park is 230 acres of state land, which provides a
regional (statewide) recreation use for camping, swimming, picnicking, walking trails,
and beachfront. The state park land is not included in the City's LOS simply because the
state owns, operates, and maintains this facility. For the purposes of parks planning, the
recommended LOS standard in the City's Parks Plan and this Capital Facilities chapter is
10.9 acres of City owned parkland per 1,000 population.
Forecast of Future Needs
The 2006 Parks Plan states that the inventory of public park and open space land will be
adequate to serve both the current and future projected population within the City and
PAA. However, much of this acreage is un-programmed, undeveloped open space. The
primary deficiency, both now and projected, is in improved trails.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-l0
FWCP - Chapter Six, Capital Facilities
The updated Parks Plan makes recommendations based on five Core Values identified
through an extensive planning process. Four of these relate to capital facilities and include:
Core Value #1: Improve Existing Facilities and Provide Multiple Functions in Parks
Core Value #2: Develop a Walking and Biking Community Through an Integrated
Trail and Sidewalk Network
Core Value #3: Retain and Improve Our Open Spaces
Core Value #4: Create Community Gathering Place and Destinations
Capital facilities that respond to these Core Values have been incorporated into the Six-
Year CIP. Some of the major efforts planned for this six year period include:
· Design and redevelopment of Lakota and Sacajawea Parks
· Acquisition of Camp Kilworth and associated site improvements to allow public
access
· Introduction of community gathering spaces in neighborhood parks
· Site and building assessments for Dumas Bay Centre
· Trail and Pedestrian improvements
· Upgrade Saghalie Park soccer field to artificial turf
In addition, the City completed a cultural arts survey in 1994. The survey evaluated
several alternatives for a performing arts center and concluded that at some time in the
near future, the City would need such a facility with a capacity of about 1,000 seats. The
City has converted a portion of Dumas Bay Centre into the Knutzen Family Theatre, a
250-seat civic theater facility. This facility will begin to fulfill the identified community
need for a performing arts center.
locations & Capacities of Future Facilities
Map VI-4 indicates the location of the parks, recreation facilities, and open space subareas
the City will need to maintain the adopted LOS. The Parks Plan breaks the planning area
into subareas and addresses future facilities at the subarea level. For more details about the
type, size, and cost of these new facilities, please refer to the 2006 Parks Plan. Map VI-4A
shows potential locations of public spaces in the City Center.
Finance Plan
Table VI-3 (Parks Six-Year Capital Improvements Plan, 2006-2012) describes the
proposed parks projects that will be needed between now and the year 2012, together
with cost estimates programmed by year. Table VI-3 also identifies the revenues that will
be available during the same time period to finance these new facilities. Please refer to
Chapter 7, "Implementation," of the 2006 City of Federal Way Parks, Recreation, and
Open Space Plan for information on the finance plan.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-ll
FWCP - Chapter Six, Capital Facilities
The City biennially updates its Parks & Recreation Capital Improvement Plan. These
updates reflect new project priorities, eliminate projects that have been completed, and
add new projects to the program.
Sources/Uses 2007 2008 2009 2010 2011 2012 Total
Real Estate Excise Tax 1.007 344 460 510 507 42] 2292
Misc. Transfers 2] 21
Grants/ Anticioated 810 500 1.000 2,310
Grants/Contributions Received
Mitigation Funds Received 110 110
General Fund 0
Total Financinl! Sources 1,533 344 320 870 385 1,281 4,733
Park Proiects
PlaYl!fl)und 134 134 136 136 137 138 815
BMXlBike Facilitv ]5 15
Camo Kilworth - ACQ, & Imo'ts 1.550 LlOO 800 3.450
Community Gathering Spaces 30 37 108 112 112 126 525
Downtown Public Soace 100 100
Dumas Bay Centre: Building 33 193 140 140 140 140 786
Dumas Bay Centre: Site Restor. 137
Lakota Park Design & Redev. 723 11.000 11.723
Maior Maintenance - Park Facil. ]]0 110 110 110 llO 110 660
Panther Lake Ooen Soace 24 68 92
Poverty Bay Master Plan 41 41
Saghalie Pk Soccer Fld - Artif Turf 920 920
Trail & Ped Access Imp'ts 40 130 78 65 67 70 450
West Hylebos Boardwalk 1.365 1.365
Subtotal (G) 4.736 1,704 2256 11672 1,513 9.003 30,884
Unfunded Ending Balance 0 0 (877) (10.669) (988) (7.582) (20.116)
Table VI-3
Parks Six-Year Capital Improvements Plan, 2007-2012
(i n thousands)
6.4 Community Facilities
Significant community investments have been made in the last 10 years to implement the
community's vision for Federal Way. In addition to the investments in the surface water,
transportation, and parks areas, the City also acquired and improved a basic set of
community facilities to house City operations and provide space for community
gatherings and recreation.
The City acquired Klahanee Lake Community/Senior Center (KLCC), and Dumas Bay
Centre (a conference and retreat facility) in ]993. Strong local support in community
recreation and arts activities translated into the City Council's adoption of a 2% For the
Arts ordinance to provide funding for arts in public places in ] 994, and the construction
of the 254-seat Knutzen Family Theatre in 1998. The new City Hall, which consolidates
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-12
FWCP - Chapter Six, Capital Facilities
most City administrative offices, Public Safety, and the Municipal Court in one facility,
was acquired in 2003. Also in 2003, King County divested itself of community
swimming pools constructed with 1970 era Forward Thrust funds. The City assumed the
operations of Kenneth Jones Pool (KJP) as a result.
The City began construction of a new 72,000 square foot Community Center in fall 2005.
Construction was completed in early 2007. The facility houses Recreation and Cultural
Services staff, and includes athletic and community facilities suitable for a wide variety
of events and programs. The facility will replace the KLCC and KJP operations. KLCC
was surplused and sold in 2005 and leased back until the new center opened. The KJP
facility will be returned to the Federal Way School District, who owns the underlying
property.
Inventory of Existing Facilities
As of January 2007, the City owns or occupies a number of facilities, as shown in Table
Vl-4 and Map Vl-5.
Projected Community Needs
The City has identified a number of facilities to help deliver services more efficiently and
adjust to the changing demographics of this community in the future. These projected
needs are beyond the City's ability to fund within the six-year planning horizon.
However, in order to keep the community's vision alive, we purposely did not exclude
any of these community projects. The City Council will periodically review and prioritize
these projects and provide funding when available. A description of these facilities with a
summary list is provided in Table VI-5.
Table VI-4
Summary of Existing Community Facilities
Building Name Own/ Use Sq. ft/Occupancy
Leased
City Hall Own City operations not otherwise listed 88,085/approximately 300 FTE and
Council Chamber
Police Evidence Own Police evidence room 6,000/2 FfE
Klahanee Communityl Leased Community recreation and recreation 11,200/13 FfE, gym, kitchen, etc.
Senior Center operations
Kenneth Jones Pool Leased Community pool
Federal Way Community Own Community recreation center with 72,000/13 regular FfE and
Center gym, pools, senior lounge. pre-school, approximately 20 part-time temporary
and educational classrooms and personnel
multipurpose room with kitchen. Opened in 2007
Recreation staff offices.
Steel Lake Annex Own Daycare. arts and crafts programs I, 16 I Iprogram only
Revised 2008 School. Fire, Water, and Sewer Comprehensive Plan Amendment
VI-13
FWCP - Chapter Six, Capital Facilities
Building Name
Own/
Use
Sq. It/Occupancy
Steel Lake Maintenance
Shop
Maintenance operations, outdoor
equipment and materia] storage
Own
Dumas Bay Center
(DBC)
Public park, meeting/banquetJ
overnight lodging
254 seats performing arts theatre and
rehearsal hall
Own
Knutzen Family Theater
(at DBC)
Own
Miscellaneous Outdoor
Storage
Miscellaneous Indoor
Storage
Leased Street maintenance materia] and park
equipment storage
Leased Spare office equipment/facility
parts/records
4,110 office and maintenance bay/32
FfE
approximately 90 sq ft storage yard
and approximately additional 1.5 acres
avai]able for future expansion
6 meeting rooms, 70 overnight rooms,
12 acre park ground
J 0,000 materia] storage
2,000 equipment storage
260 sf. ft.
2.160 cubic ft boxes stored offsite in a
document storage facility
Table VI-S
Projected Community Facility Needs
2007 - 2013
Type of Facility Year Size Cost
J. Indoor Competitive Sports Facility 20]5 75,000 $10-$12
2. Performing Arts Centre 2015 50,000 $35 - $40
3. Maintenance Facility 2009 120,000 yard $1.0
6,500 office
4. Public Facilities 2010 200 - 400 stalls $5 to $10
TOTAL $51 - $63
Municipal Facility (General Government, Police, and Court Operations)
The City acquired the current City Hall in 2003 and consolidated its police, court, and
general governmental operations under one roof. About 10 percent or 8,000 of the total
88,500 square feet of space in this building is currently available for future expansions. In
addition to the City Hall parcel, the City also acquired two vacant lots to the north which
is the location of the Police Evidence facility and overflow parking for the City Hall/
Municipal Court.
The City Council is considering presenting the annexation ballot measure to our Potential
Annexation Area voters in the fall of 2007. If approved, it would add an estimated 20,152
people and approximately 7.6 square miles to the City's service area. This is an increase
of 23 percent in population and 36 percent in land area. These increases would again
place pressure on the current City Hall capacity and would require the expansion of the
existing maintenance facility, as discussed below.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-14
FWCP - Chapter Six, Capital Facilities
Maintenance Facility
The Parks and Public Works maintenance facility is located at 31132 28th Avenue South.
The entire site is approximately 1.4 acres, with 1,060 square feet of office space and a
6 I ,000 square foot fenced storage yard. The City acquired two adjacent parcels, for a
total of 2.25 acres, to the north of the facility in 2003. Today, the maintenance facility
contains around 3,500 square feet of office space and 90,000 in fenced storage space,
with an additional 1.5 acres of land area available for future expansions.
Parks Maintenance operates seven days a week, two shifts per day. The space needed for
the maintenance operations includes a front counter/reception area, crew quarters
(including an area for daily time cards, breaks, and crew meetings/training, etc.), as well
as a locker room. Public Works streets and surface water maintenance operations have
similar needs for office space; operating Monday through Friday, year round, one shift
per day. Both Parks and Public Works maintenance operations tend to intensify during
the summer months and require up to 15 part-time, seasonal workers at any given time.
The potential annexation would require an anticipated eight regular FTE and eight FTE in
seasonal help, plus proportional vehicle and equipment increases. This increase would
require the City to expand the maintenance office area by 2,000 to 3,000 square feet, and
maintenance yard by 30,000 to 45,000 square feet.
The current site would accommodate the projected space needs. Should the City proceed
with the South 3l2lh Avenue extension and 1-5 Access Ramp Addition Project, it is
anticipated that the site would be significantly affected by the right-of-way needs and
may not be sufficient to meet the above needs.
Maintenance Facility Recommendation
· 6,500 square feet for office space, accompanied by a 120,000 square foot storage
yard
· Three to five acre site (the existing site is approximately four acres, which is
deemed sufficient)
. Development cost is estimated at $ I million
Conference/Performing Arts Center
In I 994, the City of Federal Way, through the Arts Commission, asked AMS Planning
and Research to conduct a feasibility study of a cultural arts facility to serve the City.
Under the guidance of a 27-member steering committee, AMS conducted a survey of
local arts organizations, analysis of existing cultural and meeting facilities, market
research with residents of the City and surrounding communities, interviews with key
community leaders representing government and business, and meetings and workshops
with the steering committee, all of whom provided base information. The study
recommended a performing arts center to seat 1,000 patrons and a visual arts gallery.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-15
FWCP - Chapter Six, Capital Facilities
The performing arts center proposed in this study included design criteria that
incorporated multi-level seating to accommodate as many as 500 - 600 people on an
orchestra level, while still achieving intimacy for audiences.
The construction cost for a performing arts theater was estimated in the 1994 report to be
between $ I 90 - $240 per square foot. Adjusted to 2007, the per square foot cost can
easily be $400 - $500, or $25 to $30 million for construction. Site requirements called for
a minimum of five acres; two acres for the facility and three acres to provide for surface
parking and to meet additional code requirements. Alternatively, two to two and a half
acres would be needed if structured parking is used. The additional cost for structured
parking would be $5 to $8 million. Based on these assumptions, the full developmental
cost is expected to be $35 to $40 million.
Maintenance and operation costs for a facility of this size were estimated to be $750,000 per
year. Projected revenues (using a 171 event day schedule) was $390,000, leaving a net
operating cost of $360,000 to be generated through fundraising or an operating endowment.
Conference/Performing Arts Facility Recommendation
. 50,000 square foot facility
· Two-acre site
· $35 - $40 million
Multipurpose Competitive Sports Center
The City of Federal Way enacted a 1 % lodging tax and formed the Lodging Tax
Advisory Committee (LTAC) in 1999 to promote and enhance the local tourism industry.
The committee has commissioned a feasibility study for an jndoor competitive sports
facility that will increase visitors' stay in local hotels and complement the Aquatic Center
and Celebration Park, two other regional/national amateur sports facilities in the City.
A number of development concepts have been considered, one of which is a facility for
basketball and volleyball tournaments with an athletic club for training/conditioning to
generate on-going usage and revenue. One of the considerations for such a facility would
be its ability to be financially self-sustaining. It would also ideally be developed and
operated by the private sector, with minimum or no public participation.
Conference/Performing Arts Facility Recommendation
. 75,000 square foot facility
· Five-acre site
. $10 - $12 million development and construction only, to be funded by private
developer
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-16
FWCP - Chapter Six. Capital Facilities
Public Parking Facility
The existing city center development is currently near or at capacity with the required
surface parking to business-space ratio. To intensify the development, such as the multi-
story mixed-use developments envisioned by the community, additional parking space
will be needed. These additional parking spaces would most likely be achieved through
structured parking, consistent with the multi-story mixed-use business space.
These structured parking facilities are likely needed in order for each of the super-blocks
to regain grounds for redevelopment. With the construction cost of structured parking at a
premium when compared to land cost, some public/private partnership would likely be
needed for them to be financially feasible. The partnership may be in various forms, but
the essence is consistent that public funds are invested to secure certain amount of
parking spaces in an otherwise private-business parking facility.
Public Parking Facility Recommendation
· 200 to 400 designated public parking spaces in conjunction with privately developed
parking structures for redevelopment projects located within the City Center
. Between $5 - $ I 0 million total. Investments will vary depending on the need and
type of redevelopment projects at each location. City funding sources would be a
combination of the City's economic development incentive fund and other state and
federal economic development, and/or infrastructure funding sources.
Financing Plan
It is desirable to have all theses facilities in the community as soon as possible. However,
unless they are funded with private or voter-approved funding sources, the City's projected
revenues will not support either the development or the required operating and on-going
maintenance of these facilities.
The financing of maintenance facility improvements is likely to be financed with
contribution from King County for the proposed annexation. Other additional future
facility additions would depend on future voter approval to raise additional capital and
maintenance funds.
The City updates its capital improvements program every other year in conjunction with
its biennial budget process. These updates will reflect new project priorities and funding
availability.
6.4.1 SCHOOL FACILITIES
This section summarizes information in the Federal Way School District No; 210, ~
2008 Capital Facilities Plan (School Plan) and adopts the School Plan by reference. This
plan covers the entire Federal Way School District which includes the City of Federal
Revised 2008 School, Fire. Water, and Sewer Comprehensive Plan Amendment
VI-17
FWCP - Chapter Six, Capital Facilities
Way, portions of the incorporated City of Kent, City of Des Moines, City of Auburn, and
unincorporated areas of King County to the east of Interstate 5. The district provides
educational programs to all students who live in the school district service area, whether
they live in Federal Way, Kent, Des Moines, Auburn, or unincorporated King County. A
school outside the Federal Way City limits may provide service to students who live
within the City limits and vice versa.
Inventory of Existing Facilities
Map Vl-6 shows the location of every school in the district. Table VI-6 summarizes the
district's student capacity. The district has sufficient capacity in the existing schools and
portable buildings to house all of the students in the district.
Program Capacity
The school district has established a Standard of Service, similar to LOS, for itself, which
it calls "program capacity." The district's program capacity is based on: 1) the number of
students per classroom; 2) the number of classrooms per school; 3) the number of classes
that can be held in each classroom per day; and 4) other operational conditions.
Table VI-6
Summary of Existinl.!. Facilities Capacities*
~
CAP:\CITY 2008 ~ 20W ;ma ~ ~
AetuaJ
Elementary SeRee] ~ ~ !BOO 9,4+4 9,4+4 9,4+4 9,4+4
Middle SeReo] H.J-8 H.J-8 H.J-8 H.J-8 H.J-8 H.J-8 H.J-8
Senier HigR ~ ~ ~ ~ ~ ~ ~
~ ~ U,+&9 ~ ;!+.-W ;!+.-W ~ ~
"'~JOTE: The:€' C"!lf'at:ltle: are fef 13t:1dl:liflg." f1J~l_ HAl! tit'! Ani iRdl:ltle fWFta"'le e1n,'.TOfilfR:. Tl:le:e €'aflaellle: it::Ie ba:nl eA the m'nomUffi H.-I? {lfthe lnulthAg.'.
CAPACITY 2008 2009 20]0 2011 20]2 2013 20]4
Actual
Elemenlarv School 8.495 8.495 8.495 8.595 8.695 8.695 8.695
Middle School 5.818 5.818 5.818 5.8]8 5.818 5.818 5,818
Senior Hi gh 5.969 5.969 5.969 5.969 5.969 5.969 5.969
TOTAL 20.282 20.282 20.282 20.382 20.482 20.482 20.482
*NOTE: These caoacities ;ue for buiJdine-:-i on I\' and do not include nonable classrooms. These c:.\p:!c;lIes are based on the maxImum use (lfthe bUlldml!s.
Program capacity assumes that the average class will serve the following numbers of
students:
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI.18
FWCP - Chapter Six, Capital Facilities
Grade K-2 20 Students per classroom
Grades 3-5 25 Students per classroom
Grades 6-] 2 26 Students per classroom
GATE* 25 Stl:ldeHts per classroom.
Special Education ] 2 Students per classroom
Portables 25 Students per classroom
IEP** ] 5 Stl:ldCHts per classroom.
* G.^.TE is tile Gines aRs TaJeRtes (;8HeatioR I"rogram
** JEP are tile IRaivisHal EaHeatiol1 Programs
The school district uses portables at many school sites as an interim measure to house
new students until permanent facilities can be built.
There are other administrative measures that the school district could use to increase
school capacity. These measures may include double shifting, modified school calendar,
and year-round schooling. These measures have been used in the district on a limited
basis, but not district wide.
Forecast of Future Needs - Student Forecasts
The school district's Business Services Department prepares a forecast of student
enrollment annually. Projections are detailed at various levels; district total, school-
building totals, and grade level totals. Special populations such as vocational students,
special education students, and English as Second Language students are also included in
the forecast.
The basis for projections has been cohort survival analysis. Cohort survival is the analysis
of a group that has a common statistical value (grade level) as it progresses through time.
In a stable population, the cohort would be 1.00 for all grades. This analysis uses
historical information to develop averages and project the averages forward. The district
uses this method with varying years of history and weighting factors to study several
projections. Because transfers in and out of school system are common, student migration
is factored into the analysis as it increases or decreases survival rates. Entry grades
(kindergarten) are a unique problem in cohort analysis. The district collects information
on birth rates within the district's census tracts and treats these statistics as a cohort of
kindergarten for the appropriate enrollment years.
Long-range projections that establish the need for facilities are a modification of the
cohort survival method. The cohort method becomes less reliable the farther out the
projections are made. The school district study of long-range projections includes
information from jurisdictional planners and demographers as they project future housing
and population in the region.
Table VI-7 describes increased enrollment through the year;mH 2014. It shows that the
school district's student population will grow steadily every year with the highest growth
in elementary. The district has compared existing school capacity with growth forecasts.
New construction, modernization and expansion, and additional portable purchases will
mitigate the deficit in permanent capacity for the next six years.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-19
FWCP - Chapter Six, Capital Facilities
e era ay c 00 Jstnct tu ent orecast
ENROLLMENT (FTE) ~ ~ ~ ~ ~ ~ ~
AffiJaI
Elementaf) ~ ~ 9d&9 ~ ~ ~ %1-4
MiBBle SeRool ~ 4;lW) ~ 4M-9 MlJ& ~ ~
Senior HigR <r.+9& +Jl!j1 &.9&8 ~ ~ ~ &.++4
ro+Ab ~ ~ ftm ~ ~ ~ ~
Table VI-7
F d I W S hiD' , S d F
ENROLLMENT (FTE) 2008 2009 2010 2011 2012 2013 2014
Budget
Elementary 9.025 8.976 9.006 9.054 9.113 9.208 9.3]2
Middle School 5.162 5.091 5.119 5.120 5.085 5.037 5.0] ]
Senior High 6.880 7.0]2 6.985 6.797 6.749 6.725 6.729
TOTAL 21.067 21.079 21.110 20.971 20.974 20.970 21.052
location of New and Improved School Facilities
The district presented a bond for voter approval on May 15,2007, which was approved.
The bond will be used to replace four elementary schools (Lakeland, Panther Lake,
Sunnycrest, and Valhalla) and one middle school (Lakota). The Transportation, Nutrition
Services, and Maintenance departments would also be replaced. Additionally, district wide
upgrades to 24 other schools and district facilities will be paid for with the bond. Existing
schools are identified in Map Vl-6.
Finance Plan
Table VI-8 describes the school district's six-year finance plan to support the school
construction. The table identifies $8,968,301 $7,833,686 available from secure funding
sources and an additional $172,~'1O,000 $123,940,000 anticipated from other funding
sources between ~ 2008 and ~ 2014. These funds will cover the $158,000,000
$104.386,946 in planned project costs to the year ~ 2014.
The School Plan states that state matching funds and impact mitigation fees, if realized,
will be used to decrease the need for future bonds or will be used on additional capital
fund projects. The School Plan currently covers the years 2006 201 3 2008-2014. The
School Plan and accompanying six-year finance plan will be updated annually by the
school district. This will bring the plan into full compliance with GMA requirements.
Revised 2008 School, Rre, Water, and Sewer Comprehensive Plan Amendment
VI.20
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FWCP - Chapter Six, Capital Facilities
6.4.2 WATER SYSTEMS
This section summarizes the Lakehaven Utility District's -l-99& 2006 Comprehensive
Water System Plan (Water Plan, incorporated in full by reference) while providing up-to-
date information where warranted. Map V/-7 shows Lakehaven Utility District's
(hereinafter referred to as "the District" in this section) water service area boundary.
Other purveyors provide water to portions of the District's corporate area. The Tacoma
Public Utilities, for example, serves an area on the west side of the District's corporate
area and the=Highline Water District serves a small portion of the north side of the
District's corporate area (Map Vl-8). The City of Milton serves a small area on the south
side of the District's corporate area that is within the City of Milton limits. Areas on the
east side of 1-5 within the City limits of Auburn and Pacific are also provided water
service by the District by agreement ''lith the cities. These areas are at a higher elevation
than the valley cities can cost effectively serve.
Inventory of Existing Facilities
The locations of the District's wells, storage, and other major components of the
distribution system are provided in the Water Plan. The water system includes
approximately 450 miles of water main, 24 production wells, and 12 storage tanks. The
average annual daily demand in ~ 2007 was about ~ 10.54 million gallons:per:
day (MDG). The facilities are described in the following sections.
Groundwater Resources
The District's existing groundwater sources originate from four aquifer systems: the
Redondo-Milton Channel Aquifer; Mirror Lake Aquifer; Easter Upland Aquifer; and the
Federal Way Deep Aquifer. The Water Plan estimates that the combined production limit
for these aquifers on an average-annual basis is 12.3 MGD during average precipitation,
and 8.7 MGD during a simulated lO-year drought. The current peak-day combined
pumping capacity is 27.8 MGD, assuming the District's largest production well, Well
lOA (2.650 gpm), is out of service.
Second Supply Project
The District participates in the Second Supply Project (SSP, aka Tacoma's Pipeline No.
5). The District is accessing the pipeline at three flow control facilities provided at
strategic locations along its route through greater Federal Way. These facilities allow the
District to receive water from and send water to the Second Supply Project (SSP). These
facilities together add an average +.-8 7.6 MGD to the District's water supply, depending
upon the availability of water from the Green River. Water available from the SSP is
conditioned upon adequate in-stream flows in the Green River.
Water Quality
Historically Prior to 2000, the District has not had to treat its water supplies to meet
regulatory requirements before distribution to its customers. However, the District began
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FWCP - Chapter Six, Capital Facilities
a chlorination and corrosion control treatment program in July 2001 for all of its
groundwater and other sources of supply to meet newer regulations.
The district's status with respect to regulated drinking water contaminants covered by the
WAC 246-290 and anticipated water quality regulations is summarized in Section I O~
"Water Quality." of the Water Plan. Regulations that are prompting treatment of the
District' ~ groundwater supplies are the Lead and Copper Rule, the anticipated Ground
Water Rule, and the Surface Water Treatment Rule, due to the potential for increased
distribution of surface water obtained from Tacoma's (or other utilities') system(s)
throughout the District's distribution system the SSP. The District has also installed water
treatment systems at Well Sites 9, l71l7 Nl7B, I 91l9A, 20/20A, 2..L 22/22N22B,
23/23A, and 29 that remove iron, manganese, and other impurities from the groundwater.
Storage Facilities
According to the Water Plan, storage facilities will remain adequate through the planning
period. For the storage analysis, extended-period simulation modeling was conducted to
evaluate the storage draw-down during fire flow events and to evaluate storage
equalization during multiple-day periods of maximum-day demand conditions. The storage
analysis model was conducted using the "Backup Power Approach," which is summarized
in Section 9, "System Analysis," of the Water Plan. The District has installed an
emergency power system at its WelllOllOA Site, and is in the process of has install~d
emergency power systems at its Welll71l7Nl7B, and 1 91l 9A, and \Ve1l25 sites to
preclude the need for new storage facilities.
Water Conservation Measures
The District is committed to implementing aggressive water conservation measures to
reduce per capita water consumption. These include programs such as public information
campaigns, including block water rate structure to reduce peak day consumption, winter-
summer water rate adjustments to reduce summer consumption, and a "wet-month
average" sewer rate structure.
The District is also working with the City to introduce water conservation measures by
amending the zoning and building codes. These measures include a requirement for low
flow showerheads and toilets, utilizing species for landscaping with reduced irrigation
needs, and use of reclaimed water for irrigation.
TransmissionlDistribution System
The results of computer modeling have found the transmission and distribution pipeline
network to be very robust. Of particular note is that the fire insurance rating for South
King Fire and Rescue improved from Class 3 to Class 2 in 2004. The majority of the
District is served by this fire agency. Forty percent of the score for the rating process is
based upon available water supply. This rating improvement is a significant
accomplishment, as the new classification is on par with the rating held in Seattle and
Bellevue, the only other departments to hold a Class2 rating (no fire agency in
Washington holds a Class I rating). The pipeline network is continuing to be expanded
through developer extension projects undertaken by land development activity.
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FWCP - Chapter Six, Capital F acilrties
Emergency Interties
Emergency The District has eight emergency interties tHe District's viater system with
adjoining systems of other utilities. Emergency interties allow the District to buy or sell
water with adjoining utilities in an emergency and provides enhanced system reliability.
The District has three emergency interties with the City of Tacoma's water system, three
emergency interties with Highline Water District's water systems, aHd one emergency
intertie with the City of Milton's water system, and one emergency intertie with the City
of Auburn.
Forecast of Future Needs
The Water Plan estimates future need by analyzing existing water demand (measured
consumption plus unaccounted-for/non-revenue water loss) patterns on a daily, seasonal,
and yearly basis. The District breaks down the water demand values on an "equivalent
residential unit" (ER U) basis, which is essentially the amount of water used by an
"average" family residing in an "average" single family residence situated within the
District's water service area, if used uniformly over the year. The seven-year District-
wide average of measured unit consumption between I 999 and 2005 was 234.4 I gallons
per day per ERU. When including the unaccounted-for/non-revenue water loss
component, the District-wide average day demand becomes about 255 gallons per day
per ERU. Population and employment growth projections converted to ERU's are then
utilized to estimate future water demands. Utilizing a conservative methodology that
disregards the impact of the District's water conservation efforts, the Water Plan
estimates average day demands will increase from ~ 10.56 MGD in ~ 2010, to
+h(M. ] ] .90 MGD in 20] 2, and to ~ ] 3.76 MGD in 2025.
Expanded and Improved Facilities
The District has programmed a number of system improvements to maintain and expand
the existing water system. These improvements are summarized below.
Groundwater Resources
The District is drilling and developing an additional production well (Well No. 33) to
perfect its wator rigHts be added to the Well 19 water right permit. The District is
continuing to pursue its OASIS prejeet (Optimization of Aquifer Storage for Increased
Supply) proiect, under the ASR cOFlcept (Aquifer Storage and Recovery) concept. The
OASIS feasibility study determined that the Mirror Lake Aquifer can be used to store up
to approximately 9.4 billion gallons of water filled over the winter from excess water
supply and withdrawn over the drier summer months for water supply purposes.
Combining funding from its wastewater utility, the District is also pursuing its Water
Reuse/Reclamation PFeje€t Program, utilizing wastewater suitably treated at the Lakota
Wastewater Treatment Plant, conveyed through a separate pipeline system, and utilized
for beneficial purposes, such as augmenting groundwater supplies.
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FWCP - Chapter Six, Capital Facilities
Second Supply Pipeline
Improvements are being implemented to the Howard Hanson Dam-on the Green River
that will expand storage behind it, which will help mitigate the seasonal variation in
available water by increasing in-stream flows during the drier parts of the year.
Water Quality
Filtration is planned for the Green River water conveyed by the Second Supply Project in
the future in coordination with the SSP partners. The District has plans to install wateJ:
one additional treatment system& at the Well &te& IOC, site 17/17.^..'17B, and 2 I to
remove iron, manganese, and other impurities from the groundwater.
TransmissionlDistribution System
Minor improvements to the transmission and distribution pipeline network are
recommended in the Water Plan, such as a new transmission main in the Adelaide and
Lake Grove neighborhoods to convey water more efficiently to nearby storage facilities.
The District has also developed a design feasibility report for the OASIS 538-578
Pressure Zone Transmission Main Proiect. This proiect would improve the local supply
capabilities from Pressure Zone 538 to Pressure Zone 578. Significant investments are
also contemplated to relocate existing pipelines that will conflict with infrastructure
resulting from street improvement projects undertaken by other agencies within the
District's water service area.
Finance Plan
A utility undertakes a capital program for many different reasons, including: expanding
the capacity of its systems, maintaining the integrity of existing systems, and addressing
regulatory requirements. The District is required to comply with its own Water Plan and
to support regional decisions on population growth and land use.
The District has identified several significant capital improvement projects in its Water
Plan. The scheduling of these projects is included in the District's most recent Capital
Improvement Program (CIP) that is developed and approved annually.
The District has access to sufficient funds that can be utilized for operation and
maintenance of its existing facilities, and for pursuing capital projects. In addition, the
District has depreciation, interest income, assessment income, and connection charge
monies that it can utilize for funding the CIP. Additionally, the District can borrow
money or increase rates, if necessary, to best meet the needs of its customers.
The District has utilized a very conservative approach in budgeting for the CIP by
utilizing the growth projections developed by each of the land use jurisdictions located
within the District. The District will provide facilities as required to support growth
within its service area. The schedule and project costs will be updated annually through
the District's budget and capital improvement program process.
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FWCP - Chapter Six, Capital Facilities
6.4.3 SEWER SYSTEMS
Lakehaven Utility District's Comprehensive Wastewater System Plan (Wastewater Plan,
incorporated in full by reference, including modifications made to it through the first four
amendments [Amendment No.4 was adopted on February 9,2006], and any future
amendments) was last updated in 1999. The Wastewater Plan is in the process of being
updated and is scheduled to bc updatcd soon for completion in the summer of 2009. The
Lakehaven Utility District's (hereinafter referred to as "the District" in this section) sewer
area is located in the southwest portion of King County, including the unincorporated areas
east of the existing City limits of Federal Way. Map VI-9 shows the District's sewer
service area. Other utilities provide retail sewer service to relatively small portions of the
District's corporate area, including Midway Sewer District on the north side of the District,
the City of Auburn on the east side of the District, and the City of Milton/Pierce County on
the south side of the District. In addition, other utilities provide conveyance and treatment
services to portions of the District's retail sewer service area, including Midway Sewer
District, Metro/King County, Pierce County, and the City of Tacoma. As of the end of
~ 2007, the District was serving a residential population of approximately &+,gOO
] I 4.000 through ~ 24,500 connections.
Inventory of Existing Facilities
The sanitary sewer system is comprised of three major components: the trunk collection
system, the pump station system, and the wastewater treatment and disposal system. The
trunk system collects wastewater from drainage basins and conveys it to the treatment
facilities, primarily by gravity flow. In areas where the use of gravity flow is not possible,
pump stations and force mains are used to pump the sewage to a location where gravity
flow can be used. The locations of the major components are provided in the Wastewater
Plan.
The existing collection system operated and maintained by the District consists of
approximately ~ 340 miles of sanitary sewer pipe, 28 pump stations, six siphons, and
two secondary wastewater treatment plants, namely the Lakota Wastewater Treatment
Plant and the Redondo Wastewater Treatment Plant. The system has been constructed
over a number of years, as dictated by development trends in the area. The system is
currently divided into seven primary basins and 40 smaller sub-basins. The wastewater
generated within the two largest basins, Lakota and Redondo, flow to the District's
wastewater treatment plants. The remaining five basins currently discharge to the other
utilities for treatment and disposal, as mentioned above.
The District currently has the capacity in all the major components of the system to
accommodate the existing demand for sanitary sewer service. The wastewater treatment
plants have been retrofitted with ultraviolet (UV) disinfection systems to replace
chlorination systems to comply with state regulations. Major sewer facilities have recently
been constructed to expand sewer service into large "unsewered" areas (the I 9th120th
A venue SW Sewer Trunk and Weyerhaeuser Sewer Trunk), and to divert flow to its own
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FWCP - Chapter Six, Capital Facilities
treatment facilities that had previously been conveyed to other utilities for treatment (Pump
Station No. 45 and the South End Diversion Sewer Trunk). Significant upgrades have been
undertaken for its largest pumping facility, Pump Station No.6, to improve its reliability
and provide an odor control system. Other existing pump stations have been significantly
upgraded with new pumps and electrical systems (Pump Station No.7, 10, and 22), and
others have been provided on-site emergency generators to allow their continuous
operation during a commercial power outage (Pump Station No. 35). A recent major
project was undertaken to replace deteriorated pipe material for the North Beach Sewer
Trunk Pipeline along the Puget Sound shoreline at Lower W oodmont. In addition to the
expansion of the District's collection system funded by developers, the District recently
funded a new low pressure sewer collection system to pro'/ide se',ver service availability to
residents in the established Lakota BeacH neighborhood near tHe PHget Sound SHoreline in
the North Lake and Five Mile Lake areas.
Forecast of Future Needs
Population forecasts are based on the adopted land use plans of the various jurisdictions
within which the District operates. The population figures are presented by drainage
basin to allow for evaluation of the system and consideration of future improvement
alternatives. The population within the District's sewer service area is projected to
increase to nearly 150,000 I 27,000 by Wl-12028, approaching the projected "ultimate"
population of 180,000 based upon land capacity. An estimated 7,500 on-site wastewater
disposal systems are in operation within the District's corporate boundary. It is
anticipated that sewer service will be extended to these "unsewered" areas as on-site
systems become less viable to maintain and/or when new development requires public
sewers.
The average base daily flow tributary to the District's two wastewater treatment plants,
excluding infiltration and inflow (I & I), is currently estimated at ~ 7.2 MGD and is
expected to increase to nearly &J) 8.2 MGD by Wl-1 2028, and nearly 17.0 MGD at full
development. Peak hourly flows tributary to the District's two wastewater treatment
plants, including I & I, are currently estimated at ~ 20.0 MGD, and are expected to
increase to nearly ~ 21.3 MGD by Wl-12028, and 40.0 MGD at full development.
Hydraulic capacity at both wastewater treatment plants is estimated to be available up to the
original design peak hour capacities of 22.2 MGD for Lakota and 13.8 MGD for Redondo.
Expanded and Improved Facilities
The District is planning has started construction for the rehabilitation and lengthening of
the Redondo Wastewater Treatment Plant's outfall pipeline that discharges treated
wastewater into Puget Sound. This proiect will be completed by September 2008. A
project to further dewater and dry the replace old biosolids material that results from the
'.vastewater treatment process is being considered dewatering equipment with new, more
efficient equipment to help reduce operating costs is under design. The District is
pursuing many other proiects to improve the performance of the facilities (energy
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FWCP - Chapter Six, Capital Facilities
conservation, water quality, biosoild quality, reduced maintenance, etc.). Combining
funding from its water utility, the District is also pursuing its Water ReuselReclamation
Project, utilizing wastewater suitably treated at the Lakota Wastewater Treatment Plant,
conveyed through a separate pipeline system, and utilized for beneficial purposes, such as
augmenting groundwater supplies.
Additional new and expanded sewer facilities are planned to divert additional flow to its
own treatment facilities that is currently being conveyed to other utilities for treatment
(new Pump Station No. 44 and expanded Pump Station No. 33). On-site emergency
generators are planned at other existing pump stations (Pump Stations No. 12, 37 and 4 I)
to allow their continuous operation during a commercial power outage. The District is
continuing to fund new pressure sewer collection systems to provide sewer service
availability to residents in established neighborhoods, particularly those around lakes
(North Lake, Fiye Mile Lalce, etc.).
Finance Plan
A utility undertakes a capital program for many different reasons, including: expanding
the capacity of its systems, maintaining the integrity of existing systems, and addressing
regulatory requirements. The District is required to comply with its own Wastewater Plan
and to support regional decisions on population growth and land use.
The District has identified several significant capital improvement projects in its
Wastewater Plan. The scheduling of these projects is included in the District's most
current Capital Improvement Program (CIP) that is developed and approved annually.
The District has access to sufficient funds that can be utilized for operations and
maintenance of its existing facilities, and for pursuing capital projects. In addition, the
District has depreciation, interest income, assessment income, and connection charge
monies that it can utilize for funding the CIP. Additionally, the District can borrow
money or increase rates, if necessary, to best meet the needs of its customers.
The District has utilized a very conservative approach in budgeting for the CIP by
utilizing the growth projections developed by each of the land use jurisdictions located
with the District. The District will provide facilities as required to support growth within
its service area. The schedule and project costs will be updated annually through the
District's budget and capital improvement program process.
6.4.4 FIRE FACILITIES
This section summarizes the South King Fire and Rescue Strategic Leadership Plan, and
the department's subsequent updates. The fire department provides service to the entire
City of Federal Way, the entire City of Des Moines, and surrounding unincorporated
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
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FWCP - Chapler Six, Capital Facilities
area. Total population in the department's service area is approximately 150,000 citizens.
Services include fire suppression, fire prevention (building inspection and public
information), emergency medical, hazardous materials responses, public education,
emergency management, and rescue emergencies (special operations). South King Fire
and Rescue has a contract with the City of Federal Way and Valley Communications for
the provision of emergency 9 I I communications, wherein they act together with the City
as a part owner of Valley Communications. The South King Fire and Rescue Strategic
Leadership Plan identifies and programs improvements that are necessary to maintain
existing service standards and to meet the needs of future residents and businesses. The
plan and future updates are adopted by reference into the FWCP.
The fire department provides fire suppression service to the entire City. In order to do
this, the department has adopted LOS standards found in the South King Fire and Rescue
Resolution Number 4 13.
· Each emergency fire response should include a minimum of 15 trained and
equipped firefighters and apparatus commensurate with the emergency (a
standard response of four engines, one ladder truck, and one command vehicle
are sent on all structural incidents).
· Each emergency medical response should include a minimum of one response
vehicle and three fully-equipped and fully-trained crew members on a responding
engine company, or two crew members on an aid car (either an engine or an aid
car, or a combination of both, can be sent on the response depending upon the
severity).
. The fire department provides a full building inspection service for fire code
compliance.
The department is currently providing service that is generally consistent with its adopted
LOS standards.
The fire department also depends on having adequate water pressure available in fire
hydrants to extinguish fires. The department works with the Lakehaven Utility District,
Highline Water District (in the City of Des Moines), and other water utilities within its
corporate limits, to ensure that adequate "fire flow" is always available. Lakehaven
Utility District's Water System Plan analyzes "fire flow" rates available at different
points in its water system, and programs improvements to the water system to ensure that
sufficient water is available for fire suppression.
Emergency Medical Services
Emergency Medical Services (EMS) responds to 91 I calls and provides field services.
This service is paid for by property taxes. EMS is provided as a marginal cost to the fire
department as fire facilities are utilized to provide this service to the community. The fire
department replaces its five front line aid cars, of which staffs three on a normal basis,
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-30
FWCP - Chapter Six, Capital Facilities
commensurate with its capital replacement plan and capital reserves system. The section
on funding (Funding Plan) addresses how the ongoing replacement purchase of these aid
cars will be funded.
Inventory and Capacity of Existing Facilities
The department has two major types of capital facilities. One is fire stations and the other
is capital investment in equipment and, in particular, fire engines. The department's fire
stations are shown on Map VI-JO.
Forecast of Future Needs
From 1986 through 1992, emergency responses increased at an average annual rate of
over eight percent. In I 990, public education efforts included 9 I I -use/abuse training. The
increases in call volume during 1993 and 1994 leveled off with 1994 volume increasing
only 1.5 percent from the 1992 level. It is unknown, however, how much, if any, effect
the 9 I I public education effort had on actual call volumes. In 1995 and 1996, calls for
service again increased at an average rate of 8.1 percent. Although calls actually
decreased slightly in 1997, call volumes increased by 14 percent in I 998. The call data
indicates a fairly steady increase of approximately six percent per year. Emergency
medical incidents have increased more rapidly than non-medical incidents. During the
I 990s, structure fires have declined. The challenge for the fire department will be to
manage fixed-cost investments, such as new stations, and to be flexible in its ability to
meet fluctuating call volumes.
location and Capacity of Expanded or New Facilities
In September of 2005, the citizens within the City of Des Moines (protected by King
County Fire Protection District #26) voted overwhelmingly to merge with the Gtty-ef
Federal Way Fire Department (King County Fire Protection District #39). The result of
this merger caused the name of the fire department to change from the Federal Way Fire
Department to its present South King Fire and Rescue. The legal name for the fire district
is actually King County Fire Protection District #39 (KCFPD #39), although the
department does business as South King Fire and Rescue.
South King Fire and Rescue operates out of eight stations, seven of which are response
stations with the eighth being a training and maintenance facility. Two of the eight
stations are located within the City of Des Moines, two stations lie within unincorporated
King County, and four are located with the City of Federal Way. As of 2006 projections,
the fire department responds on approximately I 6,000 emergencies annually.
The department may have need for an additional station in the near future in the south
end of the City in the vicinity of 356th and Pacific Highway; or, possibly a little more
north in the area of South 336th or 3481h and Pacific Highway South. If this area continues
to experience significant commercial growth, the department anticipates that the calls for
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
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FWCP - Chapter Six, Capital Facilities
service will also continue to grow. In this eventuality, an additional station may be
needed to maintain acceptable response times. The department has acquired property in
the area of 356th and Pacific Highway South through a swap of properties with
Lakehaven Utility District to assure future availability of a station site.
Additionally, the department may have a need for an additional station in the future in the
far north end of the fire district within the City of Des Moines. The North Hill area of
Des Moines is protected both by South King Fire and Rescue, as well as KCFPD #2, via
an interlocal first response agreement. The timing of this potential new station would be
predicated upon any future merger discussions between the two fire districts (South King
Fire and Rescue and KCFPD #2), none of which are currently taking place.
Any new station should be able to accommodate an on-duty crew of three fire fighters,
with appropriate living and sleeping quarters. In addition, the structure should be able to
house two engines and an aid car, with room for growth dictated by LOS demands. It
may also be appropriate to provide a public meeting room and an office for community
policing in new facilities. The cost of these facilities is approximately $2,000,000
$4,000,000. Equipment would be in the range of $700,000 $ I ,000,000 for a new station.
The fire department does not presently have a timeline for construction of new fire
stations at either of their two proposed fire station locations.
Funding Plan
The fire department has established a capital reserve fund for the systematic replacement
of all capital equipment. These reserves are funded from the annual revenues of the
department. The department also has established a long term goal of a minimum of four-
paid fire fighters on each fire apparatus (this is the national standard adopted by NFPA
17 10). Additional staff that is hired in support of that goal will be funded from either new
construction levies or additional voter-approved levies. The department has not
established any funds for purchase of new stations or associated equipment. These
purchases would require voter-approved bonds.
In the department's annually adopted budget, capital projects are identified. This capital
projects list is up-dated based on completed projects and changing priorities. The FWCP
adopts by reference the South King Fire and Rescue Strategic Leadership Plan~ as well as
the annual capital improvements program update.
Additionally, the department is seeking to receive impact fees based upon growth within
the community, which directly affects its level of service. This is being sought both
locally and legislatively, as fire districts have to manage growth the same as schools and
other public facilities. If successful, impact fees could assist in offsetting the capital costs
of added infrastructure.
Revised 2008 School, Fire. Water. and Sewer Comprehensive Plan Amendment
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FWCP - Chapter Six, Capital Facilities
6.5 GOALS AND POLICIES
The goals and policies in this section implement the GMA requirements and the CWPP.
The City of Federal Way takes responsibility for implementing only those goals and
policies for services provided by the City.
Special service districts, such as the school, utility, and fire districts, must implement
goals and policies that are consistent with their respective plans. The City does intend,
however, to closely coordinate the City's plan with these service districts so that the
citizens of Federal Way receive the highest level of service possible.
Goal
CFG1 Annually update the Capital Facilities Plan to implement the FWCP by
coordinating urban senJices, land use decisions, level of service standards, and
financial resources with a fully funded schedule of capital improvements.
Policies
CFPl Provide needed public facilities and services to implement the FWCP.
CFP2 Support and encourage joint development and use of community facilities with
other governmental or community organizations in areas of mutual concern and
benefit.
CFP3 Emphasize capital improvement projects that promote the conservation,
preservation, redevelopment, or revitalization of commercial, industrial, and
residential areas in Federal Way.
CFP4 Adopt by reference all facilities plans and future amendments prepared by other
special districts that provide services within the City. These plans must be
consistent with the FWCP.
CFP5 Adopt by reference the annual update of the Federal Way Capital Improvement
Program for parks/recreation, surface water management, and the Transportation
Improvement Program.
CFP6 Protect investments in existing facilities through an appropriate level of
maintenance and operation funding.
CFP7 Maximize the use of existing public facilities and promote orderly compact
urban growth.
Goal
CFG2 To meet current needs for capital facilities in Federal Way, correct deficiencies
in existing systems, and replace or improve obsolete facilities.
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FWCP - Chapter Six, Capital Facilities
Balancing existing capital facilities needs with the need to provide additional facilities to
serve growth is a major challenge for Federal Way. It is important to maintain our prior
investments as well as serve new growth. Clearly, tough priority decisions are facing
Federal Way policy-makers.
Policies
CFP8 Give priority consideration to projects mandated by law, and those by state and
federal agencies.
CFP9 Give priority consideration to subsequent phases of phased projects when phase
one is fully funded and under construction.
CFP10 Give priority consideration to projects that renovate existing facilities and preserve
the community's prior investment or reduce maintenance and operating costs.
CFPll Give priority consideration to projects that correct existing capital facilities
deficiencies, encourage full utilization of existing facilities, or replace worn out
or obsolete facilities.
CFP12 Give priority to projects where leveraged monies such as grants and low interest
loans can be used.
Goal
CFG3 Provide capital facilities to serve and direct future growth within Federal Way
and its Potential Annexation Area as they urbanize.
It is crucial to identify, in advance of development, sites for schools, parks, fire and
police stations, major stormwater facilities, greenbelts, open space, and road connections.
Acquisition of sites for these facilities must occur in a timely manner and as early as
possible in the overall development of the area. Otherwise, acquisition opportunities will
be missed, with long-term functional or financial implications.
Policies
CFP13 Provide the capital facilities needed to serve the future growth anticipated by
the FWCP.
CFP14 Coordinate efforts between the Public Works and Parks Departments in the
acquisition of and planning for public open space, recreation, public education,
and stream preservation within the Hylebos Basin. Departments may combine
resources as appropriate to increase project efficiencies and success rates in
pursuit of grant opportunities.
CFP15 Give priority consideration to projects needed to meet concurrency
requirements for growth management.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-34
FWCP - Chapter Six, Capital Facilities
CFP16 Plan and coordinate the location of public facilities and utilities in advance of need.
CFP17 Implement a concurrency management system which permits project approval
only after a finding is made that there is capacity available in the transportation
system sufficient to maintain the adopted level of service standard.
CFP18 The provision of urban services shall be coordinated to ensure that areas
identified for urban expansion are accompanied with the maximum possible use
of existing facilities and cost effective service provisions and extensions while
ensuring the protection and preservation of resources.
CFP19 Coordinate future economic activity with planning for public facilities and services.
CFP20 Purchase property in the Potential Annexation Area and keep it in reserve for
future City parks and surface water facilities.
CFP21 Consider public/private partnerships to leverage structured parking in
association with City Center development or redevelopment, in fulfillment of
comprehensive plan vision and goals.
Goal
CFPG4 Provide adequate funding for capital facilities in Federal Way to ensure the
FWCP vision and goals are implemented.
The GMA requires that the Land Use chapter be reassessed if funding for capital facilities
falls short of needs. The intent is to ensure that necessary capital facilities are available
prior to, or concurrently with new growth and development. Capital facilities plans must
show a balance between costs and revenues. There are essentially five options available
for balancing the capital facilities budget: increase revenues, decrease level of service
standards, decrease the cost of the facilities, decrease the demand for the public service,
or reduce the rate of growth and new development.
Policies
CFP22 Manage the City of Federal Way's fiscal resources to support providing needed
capital improvements. Ensure a balanced approach to allocating financial
resources between: I) major maintenance of existing facilities; 2) eliminating
existing capital facility deficiencies; and 3) providing new or expanding
existing facilities to serve new growth.
CFP23 Use the Capital Facilities Plan to integrate all of the community's capital project
resources including grants, bonds, general funds, donations, impact fees, and
any other available funding.
CFP24 Ensure that long-term capital financing strategies and policies are consistent
with all the other FWCP chapters.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-35
FWCP - Chapter Six, Capital Facilities
CFP25 Pursue funding strategies that require new growth and development to pay its
fair share of the cost of facilities that are required to maintain adopted level of
service standards. One such strategy that should be implemented in the near
term is an impact fee program for parks and transportation.
CFP26 Promote a more efficient use of all public facilities by enacting interlocal
agreements which facilitate joint maintenance and operations of those facilities.
CFP27 Use the following available contingency strategies should the City be faced
with capital facility funding shortfalls:
· Increase revenues by selling general obligation bonds, enacting utility
taxes, imposing impact fees, and raising property tax levy rates.
· Decrease level of service standards to a level that is more affordable.
· Decrease the cost of the facility by changing or modifying the scope of the
project.
· Decrease the demand for the service or facilities by establishing a
moratorium on development, focusing development into areas where
facility capacity is available, or changing project timing and/or phasing.
CFP28 Aggressively pursue grants or private funds when available to finance capital
facility projects.
CFP29 Maximize the usefulness of bond funds by using these monies to the greatest
extent possible as matching funds for grants.
Goal
CFPG5 Ensure that the Federal Way Capital Facilities Plan is current and responsive
to the community vision and goals.
The role of monitoring and evaluation is vital to the effectiveness of any planning
program and particularly for the Capital Facilities chapter. The City's revenues and
expenditures are subject to economic fluctuations and are used to predict fiscal trends in
order to maintain the City's adopted level of service for public facilities. This Capital
Facilities Plan will be annually reviewed and amended to verify that fiscal resources are
available to provide public facilities needed to support adopted LOS standards.
Policies
CFP30 Monitor the progress of the Capital Facilities Plan on an ongoing basis,
including the completion of major maintenance projects, the expansion of
existing facilities, and the addition of new facilities. Evaluate this progress with
respect to trends in the rate and distribution of growth, impacts upon service
quality, and FWCP direction.
CFP31 Review, update, and amend the Capital Facilities Plan annually. Respond to
changes in the rates of growth, new development trends, and changing City
priorities, budget, and financial considerations.
Revised 2008 School, Fire, Water. and Sewer Comprehensive Plan Amendment
VI-36
FWCP - Chapter Six, Capital Facilities
Make provisions to reassess the FWCP periodically in light of the evolving
Capital Facilities Plan. Take appropriate action to ensure internal consistency of
the chapters in the plan.
CFP32 Continue to coordinate with other capital facility and service providers to
ensure that all necessary services and facilities are provided prior to or
concurrent with new growth and development.
Goal
CFPG6 Manage the Surface Water Utility in a manner that makes efficient use of
limited resources to address the most critical problems first, and which
expresses community values and priorities.
Policies
CFP33 The utility shall continue to have a role in developing and implementing
regional, state, and federal surface water policies and programs and, in doing so,
shall seek to:
· Achieve the City's environmental goals.
· Contain utility ratepayer costs.
· Ensure state and federal requirements are achievable.
· Maintain local control and flexibility in policy/program implementation.
· Provide consistency with CWPP.
The utility's role in developing and implementing regional, state, and federal
surface water policies and programs will include:
· Influencing legislation through lobbying and written and verbal testimony
during formal comment periods
· Participating in rule making
· Reviewing technical documents
· Serving on advisory committees and work groups
· Participating in multi-jurisdictional studies and basin planning
· Entering into cooperative agreements with neighboring and regional
agencies to accomplish common goals as appropriate and necessary
CFP34 The utility's funds and resources shall be managed in a professional manner in
accordance with applicable laws, standards, and City financial policies.
CFP35 The utility shall remain a self-supporting enterprise fund.
CFP36 The utility Capital Improvement Program (CIP) will provide funding for the
following types of projects:
I) Projects addressing flood control problems.
2) Projects needed to meet water quality policies.
3) Projects needed for renewal/replacement or additions to current
infrastructure and facilities.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-37
FWCP - Chapter Six, Capital Facilities
4) Projects necessary for resource protection and stewardship.
CFP37 To the extent of funding limitations, the CIP shall be sustained at a level of
service necessary to implement cost effective flood control mitigation; meet
water quality policies; maintain system integrity; provide required resource
stewardship and protection; and meet federal, state, and local regulations.
CFP38 The utility will continue to strive to minimize the use of loans to fund necessary
capital improvements, and will generally operate on a "pay-as-you-go basis."
However, low interest loans (i.e. Public Works Trust Fund) and/or grants will
be used to leverage local funds when feasible.
CFP39 Rates shall be set at the lowest level necessary to cover utility program
expenses, meet levels of service identified in the "Comprehensive Surface
Water Management Plan," meet debt coverage requirements, and sustain a
reserve balance consistent with these policies on a long-term basis.
CFP40 Utility rates shall be evaluated annually and adjusted as necessary to achieve
utility financial policy objectives.
CFP41 Utility rates will allocate costs between different customer classes on an
equitable basis.
CFP42 The utility rate structure will be based on a financial analysis considering cost-
of-service and other policy objectives, and will provide adjustments for actions
taken under approved City standards to reduce related service impacts.
CFP43 Rates shall be uniform for all utility customers of the same class throughout the
servIce area.
CFP44 Rate assistance programs may be provided for specific low-income customers.
CFP45 The utility's annual budget and rate recommendations shall provide funding for
the following reserve components:
I. A working capital component based on 45 days of the current year's
budgeted operating and maintenance expenses. Under no circumstances
shall a budget be submitted for a planned drop in reserves below this level.
2. An emergency/contingency component to cover excessive costs resulting
from unexpected catastrophic events or system failures. Based on historical
utility experience, this amount will be set at $500,000, which is the estimate
of the net cost of emergency services to be paid from rate resources,
excluding any potential reimbursements that may be received from Federal
Emergency Management Act grants, the City's General Liability Fund, or
other external revenue sources.
Revised 2008 School, Fire, Water, and Sewer Comprehensive Plan Amendment
VI-38
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Comprehensive Plan
I
Potential Location of City Center
Public Spaces and Bicycle Routes
Legend
Potential Public Space Locations
- Existing Bicycle Route
.1_11 Planned Bicycle Route
Surface Water
Building
Street
Park
City Center Core
City Center Frame
Map Date: March, 2007
~ Scale:
N 0 500 1,000 Feet
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{&~ Federal Way
This map is accompanied by NO warranties.
Capital Facilities Element
Map VI-4a
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CHAPTER TEN - PRIVATE UTILITIES
10.0 INTRODUCTION
This chapter satisfies a Growth Management Act (GMA) requirement that cities prepare a
Private Utilities chapter. This chapter describes the location of existing utilities and the
proposed location of new utilities, as well as the capacity of existing and proposed
utilities. The GMA requires the Federal Way Comprehensive Plan (FWCP) to have
internal consistency. This means that the Private Utilities chapter must be fully
coordinated with other chapters of the FWCP. This is particularly important for Federal
Way's City Center and in the 1-5/99 corridor where new development and other land use
change is anticipated in the near future.
In accordance with WAC 365-1 95-320(2)(c), this Private Utilities chapter includes plans
for natural gas, electricity, telecommunications, and cable television service for the City
and its planning area (Map X-I- Council Approved PM Boundary, maps are located at
the end of the chapter and were revised in 2007 as part of the 2006 Comprehensive Plan
Amendments). Each utility plan will describe and analyze existing and proposed utility
systems within Federal Way and improvements necessary to meet growing consumer
demand. In most cases, maps are provided to illustrate the existing system and proposed
improvements. Plans for water supply and sewer are found in the Capital Facilities
chapter of the FWCP.
The City sees the GMA requirement to prepare a Private Utilities chapter as an
opportunity to identify ways of improving the quality of services provided within the
City. The City will use this Private Utilities chapter to identify goals and develop policies
to ensure that provision of utilities is properly coordinated with land use.
The City acknowledges that it would not have been possible to prepare this chapter
without the assistance of local utility providers.
10.1 ORGANIZATIONAL AND LEGAL CONTEXT
Privately owned electrical, natural gas, and line telephone utilities are regulated by the
Washington Utilities and Transportation Commission (WUTC). Cellular telephone
communication companies are licensed by the Federal Communications Commission
(FCC). Cable television companies are regulated by the Federal Communications
Commission (FCC) and the Communications Act of 1934, as amended. Private utilities
must have a franchise agreement to place utilities in the public right-of-way or on private
property. Franchise agreements give each utility the non-exclusive right to provide its
category of service within the City.
FWCP - Chapter Ten, Private Utilities
10.2 COUNTYWIDE LAND USE POLICIES FOR UTILITIES
The King County Growth Management Planning Council (GMPC) drafted the following
Countywide Planning Policy (CWPP) that is relevant to private utilities:
C06 Aggressive conservation efforts shall be implemented to address the need
for adequate supply for electrical energy and water resources, protect
natural resources, and achieve improved air quality. Efforts shall include,
but not be limited to, public education, water reuse and reclamation,
landscaping which uses native and drought-resistant plants and other
strategies to reduce water consumption, small lot size, low-flow
showerheads, conservation credits, and energy efficiency incentives in
new and existing buildings.
This Private Utilities chapter is consistent with the aforementioned CWPP.
10.3 PUGET SOUND ENERGY
Description of Utility
Puget Sound Energy Company, Inc. (PSE) is an investor owned private utility
headquartered in Bellevue, Washington. It provides electric and natural gas service to
approximately ],377,388 ],042,213 metered customers within the company's 6,000
square mile service territory. This service territory encompasses eleven counties in
western and central Washington. PSE is regulated by the Washington Utilities and
Transportation Commission (WUTC) and the Federal Energy Regulatory Commission
(FERC). The Natural Gas Policy Act of 1978 was designed to increase competition
among energy sources by encouraging the development of new natural gas resources and
the development of nationwide transmission pipelines.
PSE builds, operates, and maintains an extensive electric and gas distribution system
consisting of generating plants, electric transmission lines, gas supply mains, distribution
systems, substations, and pressure regulating stations. It is a hydroelectric-based
company purchasing about 40 percent of its power from utilities that own five large
hydro facilities on the Columbia River.
&* Four PSE owned hydroelectric plants, on the Nooksack, Baker River, Snoqualmie,
WJ:Hte, and Puyallup rivers add to the hydro base on the west side of the Cascades. Other
PSE owned or partly owned sources include three coal-fired plants (in Colstrip,
Montana), and six gas and oil-fired plants.
Revised ~ 2009
X.2
FWCP - Chapter Ten, Private Utilities
General Location
PSE supplies electric and natural gas service within the entire limits of the City of
Federal Way. The quality of service within Federal Way is dependent on the local
delivery system operated by PSE, the bulk transmission system operated by Bonneville
Power Administration (BPA), and power generation by a number of agencies, including
PSE. Natural gas is supplied to the entire region through pipelines owned and operated by
Williams Gas Pipeline - West, Salt Lake City, Utah. The "gate station" off the pipeline
that provides most of the natural gas supply to Federal Way is located in Derringer (near
Auburn).
Type of Service: Electric
Transmission Lines (] 15kV). Schematically, Figure X-1 (page 4) describes how electricity is
transmitted from the generation source to customers. Map X-2 describes that portion of
PSE's transmission system that covers Federal Way. It is a grid that provides a link
between BP A's Bulk Transmission System and the local distribution system that connects
with customers. The "Bulk Transmission System" is operated by the BPA, which operates
a region wide, interconnecting, transmission system that supplies electric power to utilities
from federal hydroelectric projects east and west of the Cascades. The primary service
BPA provides to PSE is wheeling energy around the region. All the transmission lines
supplying Federal Way are energized at I 15kV (Kilovolt). These lines supply power into
the Federal Way distribution system and provide connections to Tacoma City Light, King,
and Pierce Counties. Power is transferred from the transmission system to Federal Way's
local distribution system at six distribution substations. Power also comes into the City
from substations located in Pierce County and unincorporated King County.
Transmission Switching Stations. The only switching station in Federal Way is the Starwood
Station. Switching stations are used to control and monitor power flow on 1 15kV lines in
order to increase system reliability.
Distribution Substations. Distribution substations transform voltages of 1 15kV or greater to lower
voltages of 12 or 34kV. The following stations are located in Federal Way: Lakota, Kitts
Corner, Belmore I, Belmore II, Marine View, Starwood 1, Starwood 2, West Campus, and
Weyerhaeuser.
Future Facility Construction
PSE predicts that the load for the greater Federal Way area will grow by 103.9 MV,^.
between 1990 aHd 2020. Map X-2 shows proposed transmission lines and substations
necessary to increase service reliability and/or capacity in the Federal Way area to meet
this projected load growth. The additional substations needed include:
· Enchanted
· Steel
.
Killarney ·
Twin Lakes ·
Federal Way
Five Mile Lake
· Dolloff
.
In addition, Marine View will be expanded to a switching station.
Revised ~ 2009
X-3
FWCP - Chapter Ten, Private Utilities
Figure X-l
Electricity Supply From Source to Customer
Subslsllon
nansrrmer
I'
I 15kV transmission lines are proposed in two separate locations:
. One additional line extending from Marine View Substation located at
approximately South 2951h and Pacific Highway South, east generally along 3041h
Street to 51 sl Avenue South.
. One additional line along Military Road from South 320th Street south to the
Pierce County line.
PSE forecasts that these improvements, along '.'/ith others elsewhere in the sl:Ibarea, will
prod\:1ce a system that will be operating at 72.5 percent of capacity by the year 2020.
Additional transmission line and transformer capacity may be necessary on the
PSE/Tacoma City Light (TCL) intertie at Starwood. Proposed cogeneration facilities in
TCL's tidetlats area could potentially expand may require expansion of the existing
Revised 2002 2009
X-4
FWCP - Chapter Ten, Private Utilities
system. The timing of any improvement would depend on the design and capacity of the
cogeneration facility.
PSE also has an active asset management plan. The plan includes replacing poles as they
age, and as necessary to maintain or to increase line clearances.
Type of Service: Natural Gas
PSE provides natural gas to the City and surrounding communities through a network of
interconnecting supply and distribution mains (Map X-3). The components and hierarchy
of natural gas supply are illustrated in Figure X-2 (page 6). ,^.ccording to PSE's Rate
Department, tIhe average house (using natural gas for both heat and hot water) consumes
about 1,000 therms per year. Ten therms equals approximately one "mcf' (one thousand
cubic feet) of gas per year.
'When planning the size of ne'Ngas mains, PSE l:lses a saturation model which assumes all
new hO\:lsebolds willl:lse natural gas since 99 percent of new homes constructed, where
bl:lilders have the choice, are 1:ISing nat1:lral gas. Extensiofl of service (typically
conversion) is based on reql:lest afld the res1:llts of a marlcet aflalysis to determifle if
re'/enues from an extension will offset the cost of cOflstructiofl.
PSE had 17,319 gas customers in the City as of November 1999. There were 12,&55 in
the City in November 19&9. Based OR grO\vth, PSE anticipates 22,500 c1:lstomers in the
City by 2009. The existiRg system is capable of supplyiflg approximately 50,000
Cl:lstomers ifl the Federal \~!ay area.
It is estimated that PSE currently serves 17,971 customers within the city limits of the
City of Federal Way.
Gas Supply Mains: These are generally larger diameter (sixjnch steel afld larger) mains
designed to operate at higher pressure ( I 00 psig to 250 psig) to deliver natl:lral gas from
the s1:lpply s01:lrce to preSSUH;J reducing stations. PSE has 35,650 feet of 12 inch supply
maifl located in Military Road S01:lth and 3,200 feet of six iflch located elsewhere.
Pressure Reducing (District Regu.'ators) Statiens: These are located at variol:ls locations
throl:lghol:lt the system to redtlce stlpply main pressl:lre to a standard distributiofl operating
pressure of approximately 60 psig. There are five regulator stations located in Federal Way.
Distrihution Mains: Distribution mains are fed from District Regulators. These are typically
&,6, 1,2 and 1.25 iflch in diameter. The pipe material is typically polyethylene (PE). PSE
currently has approximately 350 miles of distribution main serving \vithifl the City of
Federal ')/ ay.
Supply mains (measuring 16", 12",8",6", and 4" in diameter) transport gas from the gate
stations to district regulators. This pipe material is typically wrapped steel (STW).
Revised 200a 2009
X.5
FWCP - Chapter Ten, Private Utilities
Figure X-2
Typical Puget Sound Energy Distribution System
GATE STATION
Tha polnl al wllleh oas
110m NW PIpeline enlers
Ihe WNG systt11l. Here
an OdOranlls acld~
lor salety. Pressure Is
Id1lCtlllo 200 10 300
p.I~ ancllhe Oas
II mete/ea.
liMITING STATION
lIere Ilia prasSUla Is
redue~ from 260 psi
to belween 60 ancl200 psl
limnIng stallontare ollen
aboYe-orOllll\l SIl1ltIurel.
~unm~
mele! ntslnclllda I .
'~uI1lor 'Nllleh CU1S
tha lIIUSUltlOlboul
114 psl Tltt METER
II JOIIll1Oma mtlSUlts
tht amOllllI of natural
oas batno used 101
spaea end 1II1e!heallno
ancl other asts.
-1 I.
-t ~(:.""
-t
-t
-t
01.
01 - TAANSMISSION LINE
01 Thm un~et9round nnes art balllaen 6
and 16 Inches In llIamtlel. P'el$lIle In
" Ihesa llnes rlttaoeutOlXld 250 psi.
~""
NOATIlY,It:ST PIPEliNE
The Inlersllla plpellna set\'lnO WNO Is HW PIpeline. mlch conslslsol2
pmllel pIpes, a 25.!neh and a 3001nch. Pressure nrlet lrom 600 10 900
pOllll\ls per square Inch (p$!). Tha niMal OIS$Pjl1y orlolnales.P1Illl1rlly
from Canada and Ihe sulltllllasl Unlled Slales.
IIITERMEnIAn PRESSURE
OP) DISTRICT REGULATOR
Hera lilt pressure Is ra~
mln 10 batwaen 20 ancl60 PSl
Olsttlc\ reoulIlora lllmtsh OIS
10 WNG's Inlerme1llalO pleSSllft
(IP) dlslrlbullon srslem.
IP DISTRIBUTION MAlI!
Thesllllldef9lOllnd lines
nrylns!Ulrom1i1lne1lu
108lnehetlnlllamalu. .
Pressvrts MIIOI ~5 psl
District Regulators (DR) reduce supply main pressures to typical distribution operating
pressures of 25 to 60 psig.
Distribution mains are fed from the district regulators. These typically are 8", 6", 4", 2",
and 11,4" diameter lines. The pipe material typically is polyethylene WE) or wrapped steel
(STW).
Individual residential service lines are fed by distribution mains and are typically %" in
diameter. Individual commercial and industrial service lines are typically I '.4",2" or 4" in
diameter.
Revised 2002 2009
X-6
FWCP - Chapter Ten, Private Utilities
Future FaciJity Construction
THere are tHree types of cOflstruction anticipated in the Federal 'Nay area. These incll:lde:
NCI',' ins1al!atiol1 due to increased capacity of existing cestomers or cOHyersions from an
alternate feel.
Main r-cp!accN'lcnf J3Fejccts to facilitate improved maintenance and system reliability.
Rcplaccmcnt or rcf.ocafion of facilities dl:le to mm'licipal and state projects.
Leng Rangc P,(alls (',vir,"ziafivc ycars): IHstall 12 iflch STW High Pressl:lre Supply M.aifl iH
the north end of Federal Way at approximately SmIth 272M Street afld Military Road
South (Map X 4).
Minimum pressure delivery in distribution systems is approximately 15 psig:. If growth
would result in design pressures below 15 psig. there are several methods of increasing
the pressure in the line, including::
a. Looping the distribution and/or supply lines to provide an alternative route for
the gas to travel to an area needing additional supply. This method often involves
construction of supply mains, district regulators, and distribution mains.
b. Installing mains parallel to existing mains to supplement supply of natural gas to
a particular service area.
c. Replacing/upsizing existing pipelines to increase volume.
There are three types of construction:
I. New or replacement of existing facilities to increase capacity requirements due to
new building construction and conversion from alternate fuel.
2. Main replacement to facilitate improved maintenance of facility.
3. Replacement or relocation of facilities due to municipal and state proiects.
PSE makes an effort to coordinate construction work with municipal proiects in order to
minimize cost and impacts to surrounding community. Due to franchise agreements, PSE
is required to relocate existing facilities when required due to the municipal proiect.
The following maior projects (Mao X-4) are anticipated between now and the year 201 7
to serve customers in the City of Federal Way:
Planned for 2008:
· No distribution system improvements known or planned at this time.
Revised~2009 X-7
FWCP - Chapter Ten, Private Utilities
Tentative Future Proiects:
. Continuing to work on the Pacific Highway South project from ISth Avenue
South, south to South 3041h Street replacing an existing 4" STW lP with a 6" PE
IP; estimated construction is 200S.
. Long range plan is to install a 16" STW High Pressure Supply Main in the north
end of Federal Way at approximately South 272nd Street and Military Road
South; estimated completion in 2009.
Due to the growing popularity of natural gas in the Federal Way and surrounding areas,
PSE will continually evaluate the necessity of the above proiects and alternatives. Changes
in the project route, construction schedule, and detail could occur as they are dependent on
budgets and WUTC approval.
10.4 TELECOMMUNICATIONS PLAN
The telecommunications section focuses on line telephone, wireless communication,
Internet service and cable TV. Telecommunications is not only important for voice
transmission but also provides the infrastructure for the transmission of images and
electronic data. In the City, telecommunications service providers include QW~est,
which operates both land-based and cellular telephone systems, several wireless
providers, and Comcast which provides cable TV and Internet service.
The telephone portions of the telecommunications industry are extremely competitive and
for this reason, the City had difficulty obtaining detailed information about operations
and plans. As a result, the section of the plan addressing telephone service: (i) reflects the
City's commitment to providing advanced telecommunications services; (ii) provides a
general description of how the existing system works; and (iii) describes the process for
improving delivery.
Telephone System
Existing Facilities and Operations -QW~est Communication Corporation.,.lHe:- delivers
telecommunication service to the Federal Way planning area as regulated by WUTC.
A local exchange area is served by a Central Office (CO), which contains various kinds
of switching equipment. From a CO, there are typically four main cable routes extending
relatively north, south, east, and west. From each main cable route there are branch
distribution routes. These facilities may be aerial or buried, copper or fiber. Extending
from the branch distribution routes are local lines that can be used for voice or data
transmission by subscribers.
Revised ~ 2009
X.8
FWCP - Chapter Ten, Private Utilities
Proposed Improvements -QW~est is required by law to provide adequate
telecommunications services on demand in compliance with RCW80.36.090 and WUTC
regulations. Accordingly, QWwest will provide facilities, upon reasonable notice, to
accommodate whatever growth pattern occurs within the City. Due to advances in
technology, additional capacity is easily and quickly added to the system.
Wireless Networks
Existing Systems - The City of Federal Way is currently served with a number of wireless
service providers. Wireless communication is becoming increasingly important in the
telecommunications world. It is a combination of a portion of the radio frequency spectrum
with switching technology, making it possible to provide mobile or portable telephone
service to virtually any number of subscribers within a given area. Transmission quality is
comparable to that provided by conventional wireline telephones, and the same dialing
capabilities and features available to wireline users are available to cellular users. The
wireless/cellular communications sector of the economy is growing rapidly.
In 1997, the City adopted land use review procedures for siting facilities associated with
these services. These regulations were subsequently revised in 2000 and 2001. All of
these technologies use a line-of-sight radio signal transmitted and received by antennas.
Therefore, it is not possible to underground the antennas or structures on which the
antennas are mounted. The FCC regulates the cellular telephone industry by controlling
where carriers can operate and what frequencies can be utilized in their operation. This
ensures that their operation does not interfere with AM/FM radio and cable television
transmissions. If interference does occur, the cellular tower operator is required by the
FCC to eliminate any noise or interference that impacts local citizens. For example, if a
television set or radio experiences interference from the tower, the operator must either
correct the problem or disable the cellular site.
Wireless service transmits and receives low power high frequency radio signals. The
basic technology is as follows:
1. The service originates from a cellular phone, pager, computer, dispatch service,
or personal communications service.
2. The signal is transmitted to the nearest cellular communications facility, known
as a cell site, which processes numerous cellular phone calls and routes them to
the nearest hub cellular switching office.
3. At the cellular switching office, also known as a Mobile Telephone Switching
Office, the call is further processed and the call is routed to the party being
called. The call may be routed via traditional landline or via a cellular network
depending on the nature of the receiving device.
System Capacity - Capacity is a function of frequency of use, the number of sites in a
geographic area, and the number of customers. However, wireless service providers
consider site locations, the number of calls handled, number of customers, and cell site
capacity to be proprietary information.
Revised ~ 2009
X-9
FWCP - Chapter Ten, Private Utilities
Improvements to the Cellular System - Like the non-cellular telephone companies, wireless
companies expand services in response to growth. For this reason, companies closely
analyze market demand to "determine expansions into new service areas. The cellular
network is expanded by dividing a larger cell into several smaller cells to increase the
number of available channels. Capacity may also be expanded through technological
advances in digital equipment.
Internet Service
Internet service is presently provided by telephone, cable, and satellite. QWwest provides
Internet service via telephone lines and Comcast provides Internet service via cable. The
Weyerhaeuser Company and Williams Communication have recently obtained franchises
from the City to construct fiber optic communication systems throughout the City. In
addition, as the City constructs or reconstructs streets, it is providing conduits to assist in
the installation of fiber optic communication systems.
Cable TV Plan
On November 18, 2002, Comcast and AT&T Broadband merged to form the new
Comcast Corporation. Comcast Corporation, which is headquartered in Philadelphia,
Pennsylvania, is the largest U.S. cable company serving more than 21 million customers
in 41 states, as of 2003.
Figure X-3 (page 10) is a general description of the components of the cable TV (CATV)
system and shows supply from source to customer. One of the primary components of a
cable system is the headend site Can electronic control center where the information
signal is processed for distribution through the cable system. The signal can be received
either off a hard line (cable), satellite dish, microwave antennas, and/or TV antenna.
Existing Conditions
Map X-5 shows-the Comcast service areas covering the City. Comcast's Tacoma, Pierce
County system, serves the majority of the City. A small area in the northern part of Federal
Way and parts of the area to the east ofI-5 are served by the Comcast's Auburn system.
The headends, located north and south of the City, supply the signal by microwave feed.
The majority of the system has been designed and built at a capacity of 450 MHz and will
be upgraded consistent with the franchise agreement between Comcast and the City of
Federal Way.
Map designations depict the main trunk cable lines (coax and fiber) distributing signals
throughout Federal Way. Feeder cables (not depicted) branch from the main trunk cables
to distribute the signals to neighborhood areas. From there, individual connections are
made to the customer's service entry.
Revised ~ 2009
X-l0
FWCP - Chapter Ten, Private Utilities
Figure X-3
Cable Source to Customer
I Trunk Amplifier/BrIdger
I Trunk Cable
,
,
,
,
,
,
,
,
,
,
,
. -Tower ,"
,
,
,
,
,
,
,
--..
[}--N~"
---
---
---
---
---
----
..-..
--..
-:.. Earth Station
-
J
....... Pedestal
I- Underground Feeder Cable
System Analysis
In June 1998, Comcast was providing cable TV service to 29,787 customers citywide.
This service level represents 7 I percent of potential customer connections in the City.
Existing cable television facilities are currently capable of servicing approximately 98
percent of the potential customer connections in Federal Way.
Comcast makes every attempt to provide service to all residents within its franchise areas.
Factors considered in extending service are overall technical integrity, economical
feasibility, and franchise requirements.
Revised ~ 2009
X-11
FWCP - Chapter Ten, Private Utilities
Proposed Improvements
Cable television installations are made to new subscribers (either to new dwelling units
or, to a much smaller degree, to residences who have not opted for cable before) at
published rates, provided they are less than 150 feet from a distribution or feeder line.
Connections requiring longer runs are charged on a time and material basis. Most public
work considerations, such as tree trimming, work in the right-of-way, restoration of
property, and so on, are covered in the City of Federal Way Master Cable Television
Ordinance and Franchise Agreement.
Comcast works closely with utility companies and the City to stay informed on proposed
developments so that cable can be a part of a development's plans. Each year, engineers
assigned to the Federal Way area assess the need for system expansion based on
telephone inquiries, permitting data from the City and County, and technological
advances in distribution equipment.
The total mileage of cable plant within the City is approximately 280 miles. The
company now offers digital service to Federal Way customers Comcast has also begun
replacing existing copper cable trunk lines with fiber optic, which can be configured to
carry video or data transmission signals.
10.5 GOALS AND POLICIES FOR CITY ACTION
The Private Utilities chapter provides an opportunity for the City to assist utility
companies in delivering efficient service to customers, and to seek to reduce potential
negative impacts on the natural and built environments. This section builds upon system
descriptions to identify issues and sets forth policies to coordinate the provision of
utilities with City planning.
The GMA requires that the utilities element include the general location, proposed
location, and capacity of all existing and proposed utilities. This has resulted in cities and
counties becoming more actively involved in the way in which utilities are sited and
provided. In order to protect both citizens and utility customers, the City will work in
accordance with the following goals and policies:
Goals
PUG1 Work with private utility companies to allow them to provide full and timely
service that meets the needs of the City's residents and businesses, both present
and future.
PUG2 Work with private utility companies to allow them to provide service in a way
that balances cost-effectiveness with environmental protection, aesthetic
impact, public safety, and public health.
Revised~2009 X-12
FWCP - Chapter Ten, Private Utilities
PUG3 Process permits for private utility facilities in an efficient and timely manner, in
accordance with franchise agreements, development regulations, the FWCP, and
adopted codes.
PUG4 Ensure that development regulations are consistent with public service
obligations imposed upon private utilities by federal and state law.
Policy and Issue Statements
1ssue Statement: Provision of Timely and Economic Services to the Citizens and Businesses
of Federal Way.
Partnership with private and public service providers is a continual theme of the FWCP.
The City plays a critical role in the provision of private utilities. The City approves
permits that allow utilities to build transmission towers, lay distribution lines, and
connect customers. If the City responds quickly and appropriately, it helps the utility
companies respond to customer needs quickly and efficiently. However, the City must
balance these considerations with its other responsibilities, including bringing them into
compliance with due process, ensuring consistency with the FWCP, addressing aesthetic
impacts, and protecting the natural environment. Therefore, the City must continue to
communicate with utilities and periodically review their needs as well as the policies in
the FWCP and its permit processing to ensure that the results are in the best interest of
Federal Way residents and businesses.
The City must also be mindful of the need to provide a choice of energy sources to
Federal Way's residents and businesses. Choice of energy source is important because it
creates competition in the marketplace that helps to keep costs down. Providing
alternative energy sources is also important because if one energy source fails, the other
may be available.
Policies
PUP1 The City's right-of-way permitting process should not unnecessarily delay the
expansion or improvement of the utility network.
PUP2 The City will, if possible, coordinate with other jurisdictions on proposed utility
improvements that impact a multi-jurisdictional area.
PUP3 The City should work to encourage, to the extent possible, the supply of all
utilities to existing and new homes, offices, industrial, and commercial buildings.
Issue Statement: Coordination Between Utilities, Capital Facilities, City, and Private
Developers.
Revised :1002 2009
X.13
FWCP - Chapter Ten, Private Utilities
The costs of pipe, cable, or conduit installation can add significantly to the cost of
providing service. Installing utility lines, which follow existing right-of-ways and
easements, can also create disruptions to traffic and cause damage to pavement and
landscaping. These costs and disruptions can be reduced if utilities share the same trench
and perform work simultaneously.
Consequently, the City encourages utilities to continue exchanging information about
plans for expansion, maintenance, and upgrading of facilities. The City presently
provides information to all utilities about its public works projects, such as street
improvements, which may provide opportunities for installing new systems.
Policies
PUP4 The City encourages the joint use of trenches, conduits, or poles, so that utilities
may coordinate expansion, maintenance, and upgrading facilities with the least
amount of right-of-way disruption.
PUPS The City encourages utilities to inform one another of plans to expand or
improve utility services.
PUP6 The City will endeavor to inform utilities of upcoming improvements or
expansions that may provide opportunities for joint use.
PUP7 The City will endeavor to notify utilities of proposed plans to make highway or
right-of-way improvements.
PUPS The City hereby incorporates by reference PSE's GMA Electrical Facilities Plan
into this private utilities element as now existing or hereafter amended or adopted.
lssue Statement: Energy Conservation.
State and federal law requires energy conservation in building design. State and Federal
statues also require that power providers implement energy conservation policies. In
accordance with these mandates, PSE has an Energy Select Program that provides
information on qualified contractors for potential customers.
State law requires that the City's building code conforms to the Washington Energy Code
(W AC 51-1 I). However, the energy code sets out only minimum standards for energy
conservation. Therefore, cities have developed conservation conscious design codes that
go beyond the minimum requirements of the energy code.
Policies
PUP9 The City shall, at minimum, ensure that its buildings comply with state and
federal standards for energy conservation.
PUPIO The City will endeavor to work with utility companies to promote and educate
the public about strategies for conserving energy.
Revised 2002 2009
X.14
FWCP - Chapter Ten, Private Utilities
Issue Statement: Importance of Telecommunications and the Information Superhighway.
Society is in the midst of a revolution in information and communication that is changing
the way that people interact with each other. For example, today, many of the transactions
and communications that make up the majority of our day are possible from a single
workstation. This revolution is being fueled by recent advances in computing and
telecommunication technology.
There are several technological innovations that have stimulated these changes in our
lifestyles, including: fiber optic cables, the "Integrated Services Digital Network" (ISDN)
and digital subscriber loop (high-speed communications over copper) technology. These
technologies combine to expand the capacity of the telecommunications network. This
expansion allows the provision of a diverse range of services on one system including,
telecommunications, cable TV, radio, business services, shopping, and professional
services. It will also be possible for institutions such as schools, universities, government,
and emergency services to broadcast on this single system.
Technology is also being developed to expand capabilities for transmitting information.
In the past, one could transmit voice by telephone, text/graphics by facsimile, and data by
modem. Now it is possible to transmit video images, and potentially to broadcast to a
mass audience using these new technologies.
These advances in technology are forcing telecommunication companies to reevaluate
their business strategies. Technological change has made it possible for all services to be
provided on one cable, and companies are jockeying for position to create that system.
These advances have great potential to alter the way we do business in Federal Way. For
economic development reasons, the City must ensure that the atmosphere for investment
encourages companies to bring these advanced services to Federal Way, and that the
community's growing needs are addressed.
It is critical for people and businesses to have access to the information superhighway if
they are to enjoy a fully active role in society and the economy. In this sense, the
information superhighway is analogous to the road network, where all citizens have a
"right-of-way." For this reason, government has an essential role in ensuring that the
right of citizens to both receive and transmit information is protected, and in ensuring that
municipalities maintain their ability to regulate information providers in the same manner
that they regulate users of the rights-of-way.
Policies
PUPIl The City will encourage and work with telecommunication and cable companies
to develop fiber optic cable networks and to increase interconnectivjty between
different networks.
PUP12 The City will endeavor to work with utility companies and other public
institutions, such as the School District, to develop a full range of community
information services, available to citizens and businesses through the
telecommunication network.
Revised ~ 2009 X-15
FWCP - Chapter Ten, Private Utilities
Issue Statement: Health Impact of Electro-Magnetic Fields (EMF) and Microwaves.
There is much public and scientific interest about the health effects of Electro Magnetic
Ftelti5 low level Electric and Magnetic Fields (EMF) created by the electricity sapply
system emitted by the use of electricity and its impacts on human health. This interest has
resulted primarily from studies that sHggest a possible link betweefl EMF aBd certain
forms of caflcer. However, this statistical link does Bot f1ecessarily iBdicate cause and
effect relatiOJ'lships. Considerable research is underway, supported iB large part by the
$65 million fUBding provisioB iB the National Energy Policy Act of 1992. Puget 80and
Energy has taken aB active role iB this debate. However, there are, as yet, 1'10 agreed apon
safety thresholds or tolerance levels for humaB expos\:lre to EMF. The National Institutes
for Health and the World Health Organization have done extensive research on the topic.
and have been unable to find a conclusive link between EMF exposure and adverse
impacts on human health. Because EMF exposure is not recognized as a health hazard, it
is not regulated bv governmental agencies.
Electro-Magnetic Fields are found wherever electricity exists. EMF are generated by
high-voltage transmission lines, low-voltage lines, and substations, as well as electrical
appliances and devices found in homes and businesses. The strength of an EMF depends
on the amount of current flow, not on voltage, and current is a function of energy
consumption. Research is clear that EMF are not blocked, reduced, or altered by most
solid objects. This means they are not blocked by vegetation, or by any form of
screening, or covering by earth. It is however, important to note that EMF diminish
rapidly with distance from source.
Research Of! both EMF aBd microwaves has beef! cOBtradictory and geBerally iBconclHsive.
However they are issHes that mHst cOBtinHe to be monitored. Policy responses to this iss\:le
must be adopted as more information becomes available. Research on EMF and human
health continues in the scientific community. PSE continuously monitors the results of this
research and operates its electric system in compliance with all applicable safetv
regulations.
Policies
PUP13 The City shall continue to monitor research into the health effects of Electro-
Magnetic Fields (EMF) and microwaves. The City will take appropriate action
once definitive conclusions about health implications are reached.
1ssue Statement: Environmental and Aesthetic Impacts.
Utility systems have a broad range of associated environmental and visual impacts. Much
of Federal Way's electrical, telecommunications, and cable system is mounted on
overhead poles. Pole-mounted systems not only reduce the aesthetic appeal of
streetscapes but also contribute to system failures and power outages caused by falling
trees and branches. Undergrounding utilities is a potential solution to both problems, but
must be balanced against the cost associated with such undergrounding.
Revised ~ 2009
X.16
FWCP - Chapter Ten, Private Utilities
As with other types of development, the impacts of utilities on environmentally sensitive
areas need to be evaluated. These impacts are addressed in the context of broad
environmental protection policies in the Natural Environment chapter of the FWCP and
through measures for protecting critical areas in the zoning code. On the other hand, there
is also a need to provide for the location and continuing maintenance of essential public
and private utilities in environmentally sensitive areas, if no feasible alternative location
exists. The existing Federal Way City Code (FWCC) makes provisions for this in the
environmentally sensitive area provisions.
The FWCC sets out some requirements for undergrounding utilities in new subdivisions
and in existing right-of-way in accordance with the WUTC. These exemptions include
the undergrounding of transmission lines I IS k V and greater.
The City should continue to work in partnership with the utility companies to further
address aesthetic impacts. Requiring undergrounding across the entire Federal Way area
is prohibitively expensive. However, there are key areas, such as the City Center and
along Highway 99, where undergrounding of utilities is important to improving the visual
image of the area in order to stimulate economic development. The City should work
with the utilities and also support statewide efforts by WUTC to devise a method of
paying for such improvements.
The City has a right-of-way vegetation ordinance that allows removal or pruning of
vegetation within rights-of-way without a permit only when there is imminent danger to
the health, safety, or welfare of residents. This process could be further improved if the
City and utility companies prepared a right-of-way vegetation plan meeting utility needs
and addressing environmental and streetscape improvements to be made by the City. This
approach to streetscape is particularly important in the newly developing City Center.
Policies
PUP14 To the maximum extent possible and based upon applicable regulations, the
City should require the undergrounding of utility distribution lines in new
subdivisions, new construction, and significantly reconstructed facilities,
consistent with all applicable laws.
PUP15 To the maximum extent possible and based upon applicable regulations, the
City should work with the utilities in preparing a plan for undergrounding
utilities in areas where their visual impact is critical to improving the
appearance of the City, such as the City Center and along Highway 99.
PUP16 The City should, to the extent practical, work with utility providers in preparing
a right-of-way vegetation plan that ensures that the needs of landscaping and
screening are balanced with the need to prevent power outages.
PUP17 The City should require that site-specific utility facilities such as antennas and
substations be reasonably and appropriately sited and screened to mitigate
adverse aesthetic impacts.
Revised ~ 2009 X-17
FWCP - Chapter Ten, Private Utilities
PUP18 The City should work with the utilities and also support statewide efforts by
WUTC to devise a method of paying for improvements associated with
environmental and aesthetic impacts.
PUP19 Through its development regulations, the City shall continue to address the
siting, screening, and design standards for wireless!cellular facilities, substations,
and antenna facilities in such a manner as to allow for reasonable and predictable
review while minimizing potential land use and visual impacts on adjacent
property.
Issue Statement: Planning to Meet the City's Future Needs.
The plans for system improvements and extensions described in the Private Utilities
chapter are based on the population and growth forecasts provided by the utilities. The
Land Use chapter will provide utility providers with information on where and when new
growth will occur in the City. This will allow utility companies to plan for expansion of
their systems to meet future needs. The City may assist the utilities by continuing to
provide them with future plans and by soliciting input for future planning projects.
Policies
PUP20 The City should provide utility companies with plans, forecasts, and supporting
data to assist in the proper planning for utilities. The City should integrate
communication with the utility companies into its Management Information
System to allow for fast and efficient communication.
PUP21 The City should encourage utility providers to base extension and sizing of
systems on the Land Use Plan in order to adequately serve anticipated growth.
PUP22 The City should encourage utilities to provide them with their utility service
plans to allow better integration with other utilities and City plans.
PUP23 The City and utilities should be encouraged to develop an integrated
Geographic Information System (GIS) to better serve mutual needs and those of
the public.
Revised 2002 2009 X -18
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