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Ord 98-330 ORDINANCE NO. 98-130 AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF FEDERAL WAY, WASHINGTON, ADOPTING AMENDMENTS TO THE CITY'S GROWTH MANAGEMENT ACT COMPREHENSIVE PLAN, ADOPTING AMENDMENTS TO DEVELOPMENT REGULATIONS CONTAINED IN CHAPTERS 20 AND 22 OF THE FEDERAL WAY CITY CODE, AND ADOPTING AMENDMENTS TO THE CITY'S ZONING MAP. 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), a housing element, a capital facilities plan element, a utilities element and a transportation element (including transportation system map(s»; and WHEREAS, the GMA also requires the City of Federal Way to adopt development regulations implementing its Comprehensive Plan; and WHEREAS, the Federal Way City Council adopted its Comprehensive Plan with land use map (the "Plan") on November 21, 1995, and adopted development regulations and a zoning map implementing the Plan on July 2, 1996; and WHEREAS, under RCW 36.70A130, the Plan and development regulations are subject to continuing review and evaluation, but the Plan may be amended no more than one time per year; and WHEREAS, the City may consider Plan and development regulation amendments pursuant to Article IX, Chapter 22 of the Federal Way City Code ("FWCC"); and ORD# 98-330 ,PAGEl (CÖ~Y WHEREAS, in 1998 the City of Federal Way accepted applications for parcel- specific changes to Plan's land use and transportation system maps, and the City's zoning map, and considered amendments to the Plan's and development regulations' text; and WHEREAS, on May 4, 1998, the City SEPA Responsible Official issued a Determination of Nonsignificance on the proposed map changes and Plan and development regulation text amendments; and WHEREAS, the Plan amendments address all of the goals and requirements set forth in the Growth Management Act; and WHEREAS, the City of Federal Way, through its staff, Planning Commission, City Council committees, and full City Council has received, discussed and considered the testimony, written comments and material from the public, in that: I. the City's Planning Commission considered the requests for Plan land use map and transportation system map changes and for zoning map changes, and considered the proposed Plan and development regulation amendments, at public hearings held on May 6, 1998, May 20, 1998, June 3, 1998, June 17, 1998 and July I, 1998, following which it approved and recommended adoption of certain map changes and Plan and development regulation amendments; 2. the Land Use and Transportation Committee of the Federal Way City Council conducted public hearings consisting of special meetings of the whole City Council on the requested map changes and on the Plan and proposed development regulation amendments on August 17, 1998, September 14, 1998, September 21,1998, October 5,1998, October 19,1998, and Nov 2, 1998, following which it recommended adoption of certain of the requested map changes and denial of others, and recommended adoption of the Plan and development regulation amendments; and ORD # 98-330 , PAGE 2 3. the full City Council considered the matter at its meetings on November 17, 1998 and kçm!lJ1§-Ll~ and December 15, 1998, and WHEREAS, the City Council desires to adopt the Plan and development regulation amendments, and certain of the requested map changes; NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF FEDERAL WAY, WASHINGTON, DOES HEREBY ORDAIN AS FOLLOWS: Section I. Findings A. The proposed amendments to the Comprehensive Plan, as set forth in Exhibit A hereto, reflect new or updated infonnation, developed since the initial adoption of the Comprehensive Plan, on capital improvements, transportation system standards, and comprehensive plan policies. They therefore bear a substantial relationship to public health, safety, and welfare, are in the best interest of the residents of the City, and are consistent with the requirements of RCW 36.70A, the King County Countywide Planning Policies, and the unamended portion of the Plan. B. The proposed amendments to the Comprehensive Plan land use and transportation system maps, as set forth in Exhibit D hereto, are compatible with adjacent land uses and sunounding neighborhoods, and will not negatively affect open space, streams, lakes or wetlands, or the physical environment in general. They 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/or will allow reasonable use of property subject to constraints necessary to protect environmentally sensitive areas. They therefore bear a substantial relationship to public health, safety, and welfare, are in the best interest of the residents of the City, and are consistent with the ORD # 98-330 , PAGE 3 requirements ofRCW 36.70A, the King County Countywide Planning Policies, and the unamended portion of the Plan. c. The proposed amendments to the zoning map, and to the development regulations, as set forth in Exhibits B, C, and D hereto, are consistent with the applicable provisions of the comprehensive plan, bear a substantial relation to public health, safety and welfare, and are in the best interest of the residents of the City. Section 2. Comprehensive Plan Amendments Adoption. The 1995 City of Federal Way Comprehensive Plan, including its land use element map and transportation system maps, a copies of which are on file with the Office of the City Clerk, hereby are and shall be amended as set forth in Exhibits A and D hereto, except that, with respect to Transportation Site Specific Request TI contained in Exhibit D, the Planning Commissions's recommendation is conditionally adopted according to conditions adopted by the City Council and on file with the City Clerk. A copy of Exhibits A and D are on file with the Office of the City Clerk and are hereby incorporated by this reference as if set forth in full. Section 3. Development Regulations and Zoning Ma'p Amendments Adoption. The development regulations of the City of Federal Way, specifically, Chapters 20 and 22 of the FWCC, are hereby amended as set forth in Exhibits B, C and D hereto, a copy of which are on file with the Office of the City Clerk and which documents are hereby incorporated by this reference as ifset forth in full. Section 4 Amendment Authority. The adoption of Plan and development regulation amendments in Sections I and 2 above is pursuant to the authority granted by Chapters 36.70A and 35A.63 RCW, and pursuant to FWCC 22-537. ORD# QR-11n , PAQE4 ~. 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. ~. Savings Clause. The 1995 City of Federal Way Comprehensive Plan, and Chapters 20 and 22 of the Federal Way City Code, shall remain in force and effect until the amendments thereto become operative upon the effective date of this ordinance. Section 7. Ratification. Any act consistent with the authority and prior to the effective date of this ordìnance is hereby ratified and affirmed. Section 8 Effective Date. This ordinance shall take effect and be in force five (5) days from and after its passage, approval, and publication, as provided by law. PASSED by the City Council of the City of Federal Way this ] ~th day of December , 1998. CITY OF FEDERAL WAY MAy'~ ORD # 98-330 , PAGE 5 ,." . ATTEST: :?2. ,(ì~~~ CIT CLERK, N. CHRISTINE GREEN, CMC APPROVED AS TO FORM ¡;£Y15 C" ~~-4 I~. CITY ATTORNEY, LONDI K. LINDELL FILED WITH THE CITY CLERK: 11/16/98 PASSED BY THE CITY COUNCIL: 12/15/98 PUBLISHED: 12/18/98 EFFECTIVE DATE: 12/23/98 ORDINANCE NO. 98-330 K:ICDlORDINAICOMPPLAN.98 ORD# 98-330 , PAGþ 6 i � MOTION TO t�MEND COUNCIL BILL # 205 M TI N I move to amend Section 2 of Council Bill #205, to adopt the Planning Commission's recommendation on Transportation Site Specific Request T1 and delete SW 342" Place between 19�` Place SW and 21$` Avenue SW from the Comprehensive Plan. This motion is contingent upon four conditions: CONDITION NO. l: That the developer agree to design and construct 19'� Place SW from its present terminus to the intersection of SW 344"' Street, and design and construct SW 344�' Street from its intersection with 19`� Place SW westerly to the boundary of the Park `N Ride site, with this construction to be completed no later than September 1, 2001; CONDITION NO. 2: That, within 60 days of today's date, the developer's agreement to design and construct be set forth in a development agreement executed by the developer and the City Manager and acceptable in form and substance to the City Attorney; CONDITION NO. 3: That, as a condition of the development agreement, the developer provide security in a form acceptable to the City Attorney for the full acquisition, desi�n, and construction costs of construction of 19�` Place and SW 344'� Street; and CONDITION NO. 4: If a development agreement is not executed within 60 days as provided herein, Council deletion from the Comprehensive Plan of SW 342° Place between 19'� Place SW and 21a` Avenue SW is automatically rescinded, and that road section is included as part of the City's Comprehensive Plan transportation map. ------------------------------------------------------------------------------------------------------------------ MAYOR: For information purposes, I am providing the specific language amending Section 2 of Council Bill #205 to the City Clerk. [DO NOT READ AMENDED TEXT] Section 2. Com�rehensive Plan Amendments Ado�tion. The 1995 City of Federal Way Comprehensive Plan, including its land use element map and transportation system maps, a copies of which are on file with the Office of the City Clerk, hereby are and shall be amended as set forth in Exhibits A and D hereto, exce tn that, with res�ect to Trans�ortation Site S�ecific Re4uest T1 contained in Exhibit D. the Plannin� ('c�mmission's recommendation is conditionall,y ado�ted according to conditions ado�ted � � � the City Council and on file with the Ci� Clerk. A copy of Exhibits A and D are - file with the Office of the City Clerk and --��-=�'' `'��"-'�-`� are hereby incorporated by this reference as if set forth in full. GET SECOND ON MOTION VOTE MOVE ADOPTION OF COUNCIL BILL #205 AS AMENDED. GET SECOND. VOTE. 1N Pr�� — P�s . c�a .- i� ��c� � ru��,�. ��— t..�.c.�.. cN U�, �J�. c v.� MOTION TO AMEND COUNCIL BIL #205 � ° CN�" I tJ�:�.r�"." l."�,p'2. t''J�.c�1> I move to amend Exhibit D to Council Bill #205, to correct the maps pertaining to Land Use Site Specific Request No. 1 to include that portion of Tract 17, of the Midwa� Suburban Tracts in which Weyerhaeuser has an ownership interest within the area to be designated Multi- family under the Comprehensive Plan and RM 3600 on the zoning map. DISCUSSION: Based on staff review of this matter, the portion of Tract 17 was included within the area reviewed by the Planning Commission, and reviewed by staff as part of SEPA environmental review. It was apparently subsequently inadvertently removed from the maps accompanying the request. The area has been requested by the applicant, Weyerhaeuser, to be included, and Weyerhaeuser has provided documentation of its option ownership interest in the parcel as well as the consent of the current record owner to the designation. The property is part of Weyerhaeuser's overall development proposal, and it is logical that it receive Comprehensive Plan and zoning designations at this time. GET SECOND VOTE Site Specific Request #1 The City of Federal Way Vicinity/ Parcel Map �� ♦� Legend: �■■ Federal Way City �imits ����� Specific Site Request Area Boundary � Specific Site Request Area � Cityof Federal Way Vicinity Map � •� Scale: 1 to 4440 1 Inch equals 370 Feet 0 500 Feet � �� � � ��\1 ����r��r=,_.f�L--� N � GIS DIVISION /usars/ C J CITY OF FEDERAL WAY MEMORANDUM December 15, 1998 TO: Mayor and City Council Members • FROM: Gregory D. Moore, AICP, Director of Community Development Services Margaret H. Clark, AICP, Senior Planner SUBJECT: 1998 Comprehensive Plan Update -- Follow-Up on Boundaries of Comprehensive Plan Amendment Site Specific Request No. 1(Weyerhaeuser Residential North Annexation) -- Letter from Mr. Elley, Owner of Tract 17 In a December 8, 1998 memorandum to you, staff concluded that the change in the boundary to exclude Tract 17 occurred late in the comprehensive plan amendment process and was based on staff's assumption, drawn from the annexation petitions, that Weyerhaeuser was not pursuing annexation of Tract 17. Stafftherefore recommended that Tract 17 be included in the Comprehensive plan amendment request for Site Specific Request No. 1 based on the following conditions: Weyerhaeuser shall provide documentation that they own or have an option to buy Tract 17. If Weyerhaeuser has only an option to buy, the record owner must submit a signed request for the Comprehensive Plan designation of Multi-Family and the zoning designation of RM 3600. If the documentation for purchase and request for comprehensive plan designation is not provided by the December 15, 1998 City Council meeting, Tract 17 shall be eliminated from the proposaL Enclosed is a letter dated December 9, 1998 from John Elley, owner of Tract 17, stating that he supports the requested comprehensive plan designation and zoning and is currently completing the final terms for the sale of the property to Quadrant. In addition, Peter Orser, Quadrant's representative today stated that Quadrant has a verbal agreement with Mr. Elley to purchase the property and he will have a signed agreement available at tonight's City Council meeting. You will be provided a further update tonight. I:\COMPAMND\TRACT17.1/December 15, 1998 1 DEC 10 199E 13�42 FR QUADRANT CORP � • t December 9, 1948 To Whom It Mey Concern: 425 646 6300 TO 912536614129 • I, John R. Elley, am the owner of Lot 17 of the Midway Suburban Tracts. P.02i02 I understand that the Quadrant Corporation has applied to amend the comprehensive plan and zoning for my property which would apply in the event the properiy was at�nexed into the city. I am supportive of this action as I am c�un�ntly completing the final terms for the sal� of the property to the Quadrant Corporation. Sincerely, �' John R. Elley � 12/10/98 TSU 14:41 [T%/R% NO 7345� 1 4 x F^` t y a r l 5 i �i,. 1 a `i t m a' w M1 f e ���E���.�.�I�r����',4 .�.r�.� '~�+�1:: From V���o� to Plan Decernber 1998 Chapter Contents One Two Three Four Five Six Seven Eight Nine Ten Glossary List of Acronyms Table of Contents CITY OF FEDERAL 1NAY Comprehensive Plan Adopted November 1995 Revised December' 1998 Lists of Tables, Maps, Figures Cha�tS (Revisedl Introduction (Revisedl t Land Use (Revised) Transportation IRevisedl Economic Development Housing Capital Facilities IRevisedl City Center IRevised) `�'otential Annexation Areas IRe��sea1 �`�`f'�la�ura� Erivironment (Revised) Private Utilities (Revised) (Created) (Created) f�age C-2 I-1 II-1 III-1 IV-1 V-1 VI-1 VII-1 VIII-1 IX-1 X-1 G-1 G-7 I Federal Way Comprehensive Plan Contents List of Tables Chapter Two Land Use Table II-1 Net Commercial and Office Capacity Table II-2 Net Capacity of Residential Designations Table II-3 Net New Residential Capacity of Non-Residential Designations Table II-4 Summary of Additional Dwelling Unit Capacity Table II-5 Land Use Classifications Chapter Three Transportation Table III-1 Table III-2 Table III-3 Table III-4 Table III-5 Table III-6 Table III-7 Table III-8 Table III-9 Table III-10 Table III-11 Table III-12 Table III-13 Table III-14 Table III-15 Table III-16 Table III-17 Table III-18 Table III-19 Transportation Plan Chapter Subsection Key Service Providers Characteristics of Functional Classifications of Streets Washington State Access Classification System Chapter 468.52 WAC (7-14-94) City of Federal Way Access Management Standards Planning and Operational Levels of Service Major Street and Roadway Improvements TSM Strategies Applicable to Federal Way Intelligent Traveler Systems (ITS) Applications in Federal Way Purposes of Walking and Biking Trips Non-Motorized User Problems and Solutions TIP Non-Motorized Improvements Evaluation of TDM Strategies Federal Way Mode Split Survey Results METRO Improvement Plan Projects in Federal Way Work Trips and Mode Split Estimates TIP HOV Improvements Federal Way Transportation Improvement Plan (TIP) 1998-2004 Capital Improvement Program (CIP) 2005-2015 Chapter Four Economic Development Table IV-1 Table IV-2 Table IV-3 Table IV-4 Table IV-5 Summary of Development Potential in Southwest King County Cities Economic Development Areas and Actions Development Zones: Description Development Zones and Land Use Development Zones and Land Use Revised December 1998 C�Z Federal Way Comprehensive Plan Contents Chapter Five Housing Table V-1 Annual Household Income by Household Size Table V-2 Affordable Housing for Retail and Service Employees Chapter Six Capital Facilities Table VI-1 Table VI-2 Table VI-3 Table VI-4 r� L Table VI-5 Table VI-6 Table VI-7 Table VI-8 Table VI-9 Table VI-10 Table VI-1 1 Summary of Existing Parks and Open Space Parks Recreation Needs Year 2010 Parks Recreation Financing Plan City of Federal Way Facilities Plan 1998 to 2013 Surface Water Management Component Transportation Improvement Plan (TIP) 1998 to 2004 Summary of Six-Year Capital Plan Summary of Existing Facilities Capacities Federal Way School District Student Forecast School Funding Plan Lakehaven Utility District 1998-2007 Capital Improvements Projects Summary Water Department (in 5000's) Lakehaven Utility District 1998-2007 Capital Improvements Projects Summary Wastewater Department (in 5000's) Chapter Seven City Center Table VII-1 Land Use Development, Summer 1995 Chapter Ten Private Utilities Table X-1 Substation Loads and Capacity Revised December 1998 C-3 Federal Way Comprehensive Plan Contents u u List of Maps Chapter Two Land Use Map II-1 Generalized Existing Land Use Map II-2 Comprehensive Plan Designations Chapter Three Transportation Map 111-1 Map III-2 Map III-3 Map III-4 Map III-5 Map III-6 Map III-7 Map III-8 Map III-9 Map III-10 Map III-1 1 Map III-12 Map III-13 Map 111-14 Map III-15 Map III-16 Map III-17 Map III-18 Map III-19 Map III-20 Map III-21 Map III-22 Map III-23 Map III-24 Map III-25 Map III-26 Map III-27A Map 111-27B Travel Patterns from Residential Areas in the Federal Way Planning Area Existing Significant Streets Highways Existing and Planned Traffic Signals Average Weekday Traffic (19921 Functional Classification of Existing Streets and Highways Proposed Functional Classifications of Streets and Highways Planned Street Sections WSDOT Access Management Classifications Federal Way Access Management Classifications Existing 1995 Congested Streets Highways 2003 Congestion with Existing Streets 2015 Congestion with 2003 Improvements of Streets Highways 2015 Congested Streets on 2003 Network 2015 Congested Streets on 2015 Network High Crash Rate Intersections High Crash Rate Corridors Recommended Major Street Improvements Inventory of Sidewalks on Major Streets (1992) Non-Motorized Facilities Plan All Day Transit Service Peak Hour Transit Service Proposed Transit Routes Helicopter Landing Areas Recommended Heliport Siting Areas Through Truck Route Plan 6 Year TIP Locations 20 Year CIP Projects Regional CIP Projects Revised December 1998 C-4 Federal Way Comprehensive Plan Contents Chapter Four Economic Development Map IV-1 Southwest King County and North Pierce County Sub-Region Chapter Six Capital Facilities Map VI-1 Map VI-2 Map VI-3 Map VI-4 Map VI-5 Map VI-6 Map VI-7 Map VI-8 Map VI-9 Map VI-10 Map VI-1 1 Major Parks Open Space Parks Plan Planning Areas Hylebos Lower Puget Sound Basins Surface Water Trunk Systems Functional Classifications of Existing Streets and Highways Federal Way School District #210 Lakehaven Water Service Area Water Utility Major Components Lakehaven Sewer Service Area and Basins Utility Major Components Federal Way Fire Department #39 Chapter Seven City Center Map VII-1 Map VII-2 Map VII-3 Map VII-4 Map VII-5 Map VII-6 Map VII-7 Map VII-8 Map VII-9 Vicinity Map Boundaries of City Center Area The Concept Plan City Center Land Use Designations Enhanced Street Network Principle Pedestrian and Bicycle Connections Potential Transit Alignments and Stops Potential Open Space and Bicycle Routes Phasing Concept, 1995-2005 Chapter Eight Potential Annexation Areas Map VIII-1 Map VIII-2 Map VIII-3 Map VIII-4 Map VIII-5 Map VIII-6 Map VIII-7 Map VIII-8 Federal Way Fire Department Federal Way School District #210 Parks Plan Planning Areas Lakehaven Utility District Boundary Lakehaven Sewer Service Area Basins Hylebos Lower Puget Sound Basins Functional Classifications of Existing Streets and Highways 25 Foot Contours Revised December 1998 C-5 Federal Way Comprehensive Plan Contents Map VIII-9 Advisory Committee Recommendation Map VIII-10 Potential Annexation Areas Chapter Nine Natural Environment Map IX-1 Areas Susceptible to Ground Water Contamination Map IX-2 Surface Water Resources Map IX-3 Geologic Hazards Map IX-4 Priority Habitats Species Chapter Ten Public Utilities Map X-1 Map X-2 Map X-3 Map X-4 Map X-5 Council Approved PAA Boundary Existing and Proposed Improvements to the Sub-Transmission System Washington Natural Gas Supply Mains Proposed Improvements (Puget Sound Energy) Cable Service by TCI Revised December 1998 C-6 Federai Way Comprehensive Pian Contents List of Figures Chapter Two Land Use Figure II-1 The Concept Plan Chapter Three Transportation Figure III-1 Figure III-2 Figure III-3 Figure I11-4 Figure III-5 Historical Transportation Infrastructure Current Multimodal Transportation Systems Roadway Cross Section A& B Roadway Cross Section C& D Roadway Cross Section E& F Roadway Cross Section G& H Roadway Cross Section I& J Roadway Cross Section K& L Roadway Cross Section M& N Roadway Cross Section O& P Roadway Cross Section Q& R Roadway Cross Section S& T Roadway Cross Section U& V Roadway Cross Section W& X Roadway Cross Section 'Y Z Special Cross Sections Land Use Intensity vs. Transit Demand Chapter Five Housing Figure V-1 Federal Way Age Distribution by Population in 1990 Figure V-2 Federal's Way Income Groups Figure V-3 Federal Way's Housing Stock Figure V-4 Projected Households vs. Historic Housing Growth Chapter Seven City Center Figure VII-1 Aerial View of City Center Figure VII-2 Potential Core Area Development Figure VII-3 Potential Frame Area Development Figure VII-4 Potential Redevelopment of Surface Parking Areas Revised December 1998 C-� Federal Way Comprehensive Plan Contents Figure VII-5 Illustration of City Center, 1995 Conditions Figure VII-6 Illustration of City Center Evolution, 2005 Chapter Ten Private Utilities Figure X-1 Electricity Supply from Source to Customer Figure X-2 Typical Washington Natural Gas Distribution System Figure X-3 Cable Source to Customer Revised December 1998 Federal Way Comprehensive Plan Contents List of Charts Chapter Two Land Use Chart il-1 Percent Gross Land Area Based on Zoning in Effect in Early 1995 Chart II-2 Population Projection Chart II-3 Percent Gross Land Area By Comp Plan Use Designation Revised December 1998 C"9 Introduction j � - �- 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"� � 0 e.. Li. Federal Way Comprehensive Plan Introduction 1.0 INTRODUCTION What Is a Comprehensive Plan? he Comprehensive Plan lays out a vision for the future of Federal Way during the coming 20 years. The Plan retains Federal Way's com- mitment to maintain the residential character of a large portion of the City, focusing higher density resi- dential and retail growth along the Pacific Highway South corridor. This Comprehensive Plan also responds to the require- ments of the Growth Management Act (GMA) of 1990 and amendments of 1991. The Plan carries out Vision 2020, the Puget Sound region's multiple urban growth centers concept, and King County's County- wide Planning Policies (CWPP's), which also call for multiple urban centers and a strong urban growth boundary. This chapter gives an overview of the comprehensive planning effort, profiles Federal Way's past and present, and concludes with a discussion of Federal Way's vision for its future. This plan contains a glossary of terms at the end of the document to help the reader with terms that may not be clear or understandable. 1.1 THE COMPREHENSIVE PLANNING EFFORT u Why Plan? Federal Way plans for people. People need a safe and secure place to live, an economy that provides jobs, a transportation system that allows them to get around, schools, colleges, and recreational opportunities. It is the city government's responsibility to provide public services and facilities, develop policies, and adopt regulations to guide the growth of a city that meets the needs of its people. From incorporation to the present, the guide for Federal Way's growth and development has been the Comprehensive Plan. The role of the City of Federal Way's Comprehensive Plan is to state clearly our community's vision for its future, and to articulate a plan for accomplishing this vision over the next 20 years. The Plan seeks to answer a number of questions: What areas are most suitable for development or redevelopment? What areas should be preserved in their natural state? Where should growth occur? How can we manage th�t growth to realize our vision for the community? How should we address traffic congestion? How many parks do we need, of what size, kind, and where? How can we encourage preservation of our historic resources? How can we ensure an adequate supply of affordable housing for all income levels? What utilities and public services will we need? How will the community pay for all of these things? Each of the Plan's chapters addresses these questions and more in the areas of transportation, land use, historic preservation, economic development, capital facilities, utilities, and housing. The answers form the policies which guide implementation of our com- munity vision. The policy statements within each chapter are used to guide new or revised zoning and other regulations. The Plan also sets a clear frame- work for where the community will need to spend money on capital facilities, how much, and identifies available funding sources. As a whole, this Compre- hensive Plan offers a flexible frame-work for Federal Way's future, allowing for adaptation to real conditions over time. Why Revise Our Plan? Between 1990, when the interim comprehensive plan was first adopted for the City of Federal Way, and Revised December 1998 Federal Way Comprehensive Plan Introduction today, the City has grown from 19.9 square miles and 67,554 people, to 21.4 square miles and 76,820 people. This rapid growth and change in the character of the City has naturally provided impetus to revise and update the Comprehensive Plan. This Comprehen- sive Plan, and the code amendments which follow it, reflect the unique characteristics of our community and public input on Federal Way's vision for its future. Requirements of the Growth Management Act The Growth Management Act (GMA, RCW 36.70A. 140), was passed by the Washington State Legislature in 1990, with amendments added in 1991. The Legis- lature passed the GMA in recognition of the rate of growth which was occurring throughout the State, par- ticularly on the west side of the Cascades. The Legis- lature was responding not only to the rate of growth, but also to the type and location of growth. Two-thirds of the State's population and household growth in the 1980's took place in unincorporated areas, and pro- duced sprawling subdivisions, commercial strips, and urbanization of land, which only ten years before, was rural. This rapid growth pattern resulted in increased traffic congestion and inadequate public services, and has threatened forest land, agricultural land, and environmentally sensitive areas such as wetlands. These impacts have been felt in Federal Way, just as they have been felt in other parts of the State. The GMA requires that each jurisdiction produce a comprehensive plan which contains, at a minimum, elements pertaining to land use, transportation, capital facilities, housing, and private utilities. These elements must be consistent with one another. Juris- dictions also are required to adopt policies and reg- ulations protecting resource lands and critical areas, such as agricultural land, wetlands, and hill-sides. Each jurisdiction must coordinate its plan with the plans from sunounding jurisdictions. The Act also requires that each city designate an urban growth boundary (UGA), or potential annexation area (PAA) as they are called in King County. The PAA defines the area within which the city anticipates it could provide the full range of urban services at some time in the future. It also represents the area within which the city will consider annexations and the boun- dary beyond which it will not annex. Perhaps what most distinguishes the GMA from pre- vious planning statutes is the requirement that public services must be available or funded at some desig- nated level of service before development may occur. If a jurisdiction cannot provide services to an area, then it may not permit development in that area. The 1991 amendments to the GMA require all coun- ties planning under the act to adopt CWPP's. The jurisdictions in King County formed a group called the Growth Management Planning Council (GMPC) composed of elected officials from the King County Council, City of Seattle, and suburban cities. The mission of the GMPC was to draft the CWPP's for King County. These policies were adopted in 1992 and are binding on the jurisdictions in the County. In 1994, amendments to the CWPP's were proposed by the GMPC. These amendments were subsequently adopted by King County and are binding on all juris- dictions in the County, although it should be noted that Federal Way voted not to ratify. The Federal Way Comprehensive Plan has been pre- pared according to the provisions of the GMA and the CWPP's. However, Federal Way's plan also contains many components which are not referenced in the GMA; these additional components are included in the plan due to their importance to the Federal Way com- munity. Although Federal Way's goals and policies for growth and the provision of services are guided by GMA requirements, and are based in part upon State and regional goals, they primarily reflect the vision and goals of our own citizens. How Was the Plan Developed? The ideas in this Plan were developed through discus- sion, debate, and the creative thinking of thousands of Federal Way citizens, working with City staff and elected officials. Consistent with the GMA, the City of Federal Way provided early and continuous oppor- u Revised December 1998 I-2 Federai Way Comprehensive Plan Introduction tunities for citizens to participate in CityShape. City- Shape is the name given to the City's comprehensive planning project. CityShape is the process that was used to develop this Comprehensive Plan and is also the name of the Plan itself. CityShape, the process, started in the Fall of 1992 with a series of open houses and field trips. The first open house was held on September 16, and featured displays from all City departments and the various special service districts. The event had two objectives. The first was to explain to citizens how urban services are delivered, how much those services cost, and how citizens could be involved in the development of the City's new Plan. The second objective was to have people describe their likes and dislikes about the City as it existed in 1992 and share their thoughts about what the City ought to look like in 20 years. The second major CityShape event occurred on October 26, 1992. The event was a field trip to Burn- aby and Vancouver, British Columbia, to look at one possible future for Federal Way. The Vancouver area has a light rail system called Sky Train and Burnaby has a high density suburban shopping ma1120 miles southeast of downtown Vancouver. The City took 70 members of its various Boards and Commissions to look at how light rail works; how land use is influ- enced by rail and vice versa; what a redeveloped, mixed use, high intensity shopping mall looks like; and how attractive higher density residential neighbor- hoods can look, given specific development guidelines. On November 19, 1992, the City conducted a second open house. This time the objective was to review and evaluate three land use plan alternatives. The first alternative was a slow growth concept with a land use pattern that was fairly similar to what currently exists in the City. The second was a moderate growth con- cept that focused the majority of new growth in a redeveloped, higher density, mixed use downtown. The third alternative was a higher growth scenario which included the downtown concept of alterative two, but also envisioned an expanded office park/ business park concept in the vicinity of West Campus and the 348th Street corridor. Those present seemed to favor a hybrid with characteristics of alternatives two and three. Economic development and growth was the topic of the third open house held January 21, i993. The City- Shape staff team presented three economic develop- ment alternatives with low, medium, and higher growth concepts. Participants expressed support for a medium to high growth scenario which diversified the economic base in Federal Way and gave the commun- ity about as many jobs as there are projected house- holds in the year 2012. The next open house was held on March 10, 1993, and focused on the vision for a City Center. Attendees completed two exercises. The first was to evaluate three alternative orientations for a downtown: easd west along 320th Street, north/south in the vicinity of 20th Avenue, and along a diagonal from Steel Lake Park to 320th and Highway 99. The second exercise was to use building blocks to accommodate projected growth in the downtown. The higher the density, the smaller the area for downtown. The lower the density, the more spread out the downtown. Participants concluded that a higher density, pedestrian-friendly downtown oriented north/south from the center of SeaTac Mall made good sense and accommodated a high capacity transit system in fine fashion. On June 2, 1993, the city staff provided interested citizens a short course in transportation planning. The presentation identified the congested street corridors as they were in 1992 and projected how and where congestion would increase by 2012, given the impacts of growth. Staff also presented five different arterial improvement alternatives which would either maintain or reduce congestion by 2012, together with some estimate of the effectiveness of particular arterial improvements for resolving transportation problems in the community. The participants concluded that the maximum construction option called "super widen- ing" was not appropriate or even feasible. They did, however, favor a more modest list of arterial improve- ments, including a"diagonal parkway" along the BPA power line, which generally maintained the 1992 level of service. The last two public forums dealt with capital facilities planning. The first of these was held June 22, 1993. At this session, staff gave participants level of service options for streets and parks, provided cost estimates I-3 Revised December 1998 Federal Way Comprehensive Plan Introduction associated with each level of service, and asked par- ticipants working in groups to agree on the level of service they wanted for streets and parks based on their willingness to pay for service. With a high level of consensus, participants were willing to pay for a parks level of service of 10.5 acres per thousand pop- ulation. Given the cost for streets, the desired level of service was to lower the standard about 60 percent from the 1993 level. The second capital facilities public forum was held December 9, 1993, and focused on how to pay for ser- vices. At this forum, each work group was given a work sheet that described total capital costs for parks and streets, and data describing the revenue sources available to cities and how much revenue each source could potentially generate. The objective was to develop a financing package, including recommended taxing levels, which would pay for the desired street and park system. There was a lot of disagreement, but voter-approved bond issues, impact fees, and to a lesser extent, utility ta�ses received some support as the preferred revenue sources. On the other hand, there was near total agreement that there should be no business and occupation tax in Federal Way. In November 1993, the City published a draft environ- mental impact statement that evaluated the various growth, land use, City Center, transportation, and cap- ital facilities options. In addition, the staff-consulting team began writing the various chapters of the Com- prehensive Plan, consistent with the direction which emerged from the field trips, open houses, and public meetings. Early in 1994, the City's Planning Com- mission began holding work sessions, to which the public was invited, to review each of the chapters as they were written and provide comments and feedback as appropriate. The Commission started with the Private Utilities chapter on March 2, followed by Housing (3-9-94), Potential Annexation (3-16-94), Natural Systems (4-13-94), Economic Development (4-27-94), Land Use and City Center (6-1-94), Capital Facilities (8-3-94), and ended with the Transportation Chapter on September 7, 1994. Comprehensive Plan. As part of that process, staff concluded it was again time to touch base with the City Council to ensure the Plan was on target with their expectations. To facilitate the discussion, staff prepared a two page vision statement that summarized the Plan. The City Council reviewed the vision statement at a retreat on February 24, and 25, 1995, and indicated it was on target. The vision statement was subsequently expanded to a 20 page executive summary of the Plan, including general policy direction. On April 18, 1995, the City Council conducted a public hearing on the expanded vision statement and, based in part on the testimony, proposed some amendments to it. On May 2, the City Council formally reviewed the expanded vision statement and directed staffto complete the Comprehensive Plan as soon as possible. To this point, the narrative has focused on the formal public participation process. Concurrently, there were a series of ineetings to which staff was invited to talk about the future of Federal Way, vision, land use plan- ning in general, and the Comprehensive Plan more specifically. There were hundreds of these meetings over the course of two years. They included slide shows, small discussion groups, meetings with neigh- borhood associations, the Chamber of Commerce's monthly luncheon and its subcommittees, real estate brokers, property owners, elementary and high school classrooms, displays at the mall, civic organizations, and many others. The result was broad based interest and participation in the development of the City's new Comprehensive Plan. At the time the Plan was released, the mailing list contained over 700 names, all of whom were notified that the Hearing Draft Comprehensive Plan was available for public review and comment. C� The Hearing Draft of the Comprehensive Plan was completed and released for public review on July 5, 1995. Subsequently, the Comprehensive Plan was adopted on November 21, 1995, by the City Council per Ordinance 95-248. This is the first update to the Comprehensive Plan since its initial adoption in 1995. In the Fall of 1994, staff was ready to began assimi- lating the individual chapters to create an integrated Revised December 7 998 I-4 Federal Way Comprehensive Plan Introduction Organization of The Plan While we cannot predict the future, we can attempt to shape the type of community in which we live, work and play. The Comprehensive Plan will function as the City's statement of how it will meet the challenges posed by growth in the next century. The heart of the Plan is the nine individual elements which outline goals and policies. The Plan includes five elements which are mandated by the Growth Management Act: land use, transportation, capital facilities, housing, and private utilities. It also includes four elements which the GMA does not mandate, but that are very appropriate. The first is an economic development element that is not only recommended by the Countywide Planning Policies, but also recog- nizes Federal Way's position as a major employer in South King County. The second is an annexation element as has been discussed eazlier in this chapter. The third is a chapter which describes the City's commitment to the preservation of the natural envi- ronment and the policy direction to make it happen. Finally, the Plan includes a subarea plan for the City Center which reflects the City's vision for the future and helps to implement the regional vision for a hierarchy of urban centers in the Puget Sound. Each of these elements has been coordinated with the others, resulting in a Plan which is internally consis- tent. Each of the goals in the Plan, while expressing a specific policy direction, also functions as part of a coordinated expression of the City's vision for the future. Plan implementation is the next step and is discussed in the final section of this chapter. 1.2 FEDERAL WAY'S COMMUNITY PROFILE: PAST AND PRESENT Planning for the future requires a good understanding of how our community has grown and changed in the past. The following discussion provides that backdrop as a context for subsequent chapters. The earliest recorded accounts of the Federal Way area tell of Native American families who resided in the area of the Muckleshoot Reservation on the east side of the Green River Valley and traveled west to the shores of Puget Sound for the plentiful fisheries resources. Generations of Muckleshoot Indians wore a westward trail across the heavily forested plateau to the area which is now Saltwater State Park. The arrival of the white man in the nineteenth century resulted in a steady decline in the Indian population and by 1890, nearly the entire population had dis- appeared from the area. Isolated on a triangular shaped plateau rising steeply from the Puget Sound, the Federal Way area had little waterfront access or roadways and accordingly, was sparingly developed compared to Tacoma and Seattle. As late as the turn of the century, the original settlers at Dash Point and Dumas Bay had to row to Tacoma for supplies and mail. Old Military Road, extending north from Fort Steilacoom, past Star Lake to Seattle and Fort Lawton was the first road through the area, constructed around 1856. Over time, narrow dirt roads were added to provide easdwest access and by 1900, a road was constructed between Star Lake and Redondo. The second cross road, the "Seattle Road," connected old Military Road and Kent. The Seattle-Tacoma Interurban Line, com- pleted in 1901, provided a fast and easy way to reach these urban cities. Improved access brought many visitors to the azea and Star Lake became a popular summer recreation site. By the 1920's, Federal Highway 99, the interstate which linked the western states from north to south, was complete. At this time, Federal Way was still primarily forest and farmland. Fred Hoyt had a cabin on Dumas Bay and started a road to Tacoma (still called Hoyt Road). The timber companies, which had a major logging operation going, built an early rail- road line and were instrumental in getting Marine View Highway (now Dash Point Road) built in the early 1920's. This roadway spurred development along the coastline. Soon thereafter, Peasley Canyon Road was built to connect Military Road with the Auburn Valley. This road later became known as South 320th Street. In these early days, roadways set Revised December 1998 I-5 Federal Way Comprehensive Plan Introduction the stage for development in the area and are the same ones that play an important role in the City today. By the start of World War II, a number of small, thriving communities made up the area that is now Federal Way. Some communities were clustered around lakes, such as Steel Lake, Star Lake, and Lake Geneva. Others were sited to take advantage of the view of Puget Sound, like Adelaide and Buenna. As each of these communities grew, residents built small schoolhouses for their children. By the late 1940's, King County consolidated the many individual red schoolhouses into the Federal Way School District, from which the City gets its name. During this same period, a library was built along the edge of Highway 99, and between 308th Street and 320th Street, a small "downtown" developed with a general store, lumber yard, realty office, beauty parlor, feed store, and gas station. By the end of the 1950's, the ten blocks between 308th and 320th Streets became the first roadside commercial district. One of the more unique developments was Santa Faire, a family oriented theme park. New shopping areas were added around the park, helping to create a`COmmunity focus' for the residents of the area. As this commercial area developed, the rest of Federal Way was changing as well. The Boeing Company expanded their operations in Renton and the Kent Valley and began advertising nationally for engineers. Those engineers in turn began roaming the wooded acreage in Federal Way in search of housing. One of the earliest residential developments was Marine Hills, built in 1958 overlooking Puget Sound. Weyer- haeuser, one of the early timber companies, had large land holdings in the area and began to develop their land into high quality housing with amenities like golf courses. Weyerhaeuser's development company also began developing commercial property, creating the West Campus business park. The plan was to integrate offices and businesses with lush landscaping. Though initially the corporate office market was not strong, West Campus has grown almost to capacity, providing space for many civic buildings such as City Hall, the police station, the area's major health care centers, and higher density housing. Another major landmark in the area is SeaTac Mall, built in the mid-1970's on what was farmland south of 320th Street. The Mall is one of the largest in South King County and is the anchor for retail development in the area. The Mall was a result of population growth in the region and its location was determined by the 320th Street intersection with Interstate 5. T'he Interstate supplanted Highway 99 as the main artery for commuter traffic in the County. By the mid 1980's, South King County was growing quickly. Retail growth occurred along Highway 99, especialiy at the 320th Street intersection. Road and office space were developed to accommodate the increased growth. Residential growth was also prom- inent, following plans developed by King County, with a large number of apartment homes. The changes to the community, with increased housing and traffic, created a movement for greater self determination. In 1989, the citizens of this area voted for incorporation and the City of Federal Way was born. Federal Way's Future Vision Federal Way's challenge for the future is to protect what the community believes is most important, while meeting the State's growth management goals. The following paragraphs describe what Federal Way will look like in the year 2012, and beyond, if it balances these growth management mandates with the needs and desires of Federal Way citizens. Federal Way is a great place to live, work, and play because of its: Government For and By the People: All governmental entities reflect the can-do attitude of Federal Way citizens and parmer with them to provide quality services, often through volunteerism. Governmental entities reflect the community's values of diversity, innovation, and participation. Together, the com- munity and its neighborhoods have built a sense of identity and ownership for Federal Way and its future. Fiscally conservative, innovative financial and Revised December 1998 I-6 Federal Way Comprehensive Plan Introduction management (contracting model) strategies, along with economic growth, have allowed the community to enjoy a moderate tax rate, with bond issues approved to support major projects. The community vision has maintained a focus and continuity for staff and fiscal resources on the defined vision. Responsible Growth: The community realized that some level of growth in all segments of the com- munity (economic, population, housing, etc.) was inevitable, and chose to channel that growth into very specific development goals. The overall character of the community has remained much as it was 20 years ago. Infrastructure has been developed concurrently with growth, preserving the community's quality of life. Development goals have fostered the preservation of a primarily residential community and open natural areas with concentrated urban development in the City's Center. An increase in the number of corporate headquarters, some annexation, and build out of available single family sites, at competitive prices, has accommodated modest population growth. Some new multi-family development is concentrated in the City Center/99 corridor area, primarily through ilowntown condominiums. This pedestrian friendly, multi-use City Center, with multi-story and underground park- ing facilities works well for many. Most Federal Way citizens enjoy the pedestrian plazas of the City Center. Statewide planning goal #6 states that, "Private prop- erty shall not be taken for public use without just compensation having been made. The property rights of landowners shall be protected from arbitrary and discriminatory actions." The City supports preserva- tion of private property rights, however, property rights must be balanced with the health, safety, and general welfare of the community. Economic Yitality: Strategically located in the Pacific Rim, between SeaTac Airport and the Port of Tacoma, Federal Way provides jobs as an international and regional retail and employment center. As an "edge city," Federal Way is also home to several corporate headquarters located in and around the Weyerhaeuser campus. Companies choose Federal Way for its sense of neighborhood identity, mix of housing stock, prox- imity to natural resources (mountains, oceans, and waterways), and safety. The growth in the corporate headquarters segment of the economy has netted economic spinoffs for Federal Way's small business community, as small business provides support ser- vices for the corporate park companies. Growth in the small business economy has generated some redevel- opment of previously large retail warehouse facilities to accommodate office, retail, and light manufactur- ing. Quality jobs have boosted disposable income, supporting expansion of Federal Way's retail and commercial sectors. The resulting enhancements to the community's ta�c base have helped to support a high quality of community life. E�cient Tra�c System: Federal Way's transportation system links neighborhoods with the City Center, and Federal Way with other communities in the Puget Sound region. Concentrated economic growth in the corporate campus and City Center have allowed mass transit to connect Federal Way's economic core with the economic and leisure hubs of Puget Sound com- munities. Concentrated growth has allowed the com- munity to maintain the infrastructure in outlying areas, focusing new infrastructure in the City's Center. Youth have found the transportation system easy and safe to use in getting to school. Safety, Infrastructure, and Utilities: This issue has been addressed at the neighborhood level, where com- munity-based policing philosophies and citizen efforts to create a sense of neighborhood with real and perceived safety are most effective. A professional and compassionate law enforcement force communi- cates clearly with the community's diverse popula- tions and business community, providing a visible community presence, as well as acceptable emergency call response times. Improvements in safety have been a cornerstone for the community's economic and residential growth. The utility and fire districts share this community vision and have targeted their efforts and resources to continue to provide effective and efficient delivery of water, sewer, telephone, tele- vision, power, and fire services. Increased coordina- tion between these districts and the City, and these districts and their regional counterparts, have ensured adequate service expansion to make the community's development vision a reality. Revised December 1998 Federal Way Comprehensive Plan Introduction Caring for Our Own: Governmental and social service agencies work in concert to provide a caring and safe environment for all Federal Way citizens. Ever- improving educational institutions, public and private, serve all interests and ages throughout the community. Neighborhoods have joined with the schools in their area to improve student achievement, school facilities, and resources. Strong educational institutions and the leadership of the Federal Way School District and Highline Community College have contributed to the community's economic growth, providing a trained work force and quality education for the families of employers who locate here. The City has been the catalyst for creating a one-stop shopping center for human services, with programs at all levels of govern- ment requiring greater participation from clients in improving their individual situations. These relationships have had significant cultural, edu- cational, and economic benefits for the community. This vision will not be easily achieved. It will require difficult choices. In order to grow gracefully, and remain a healthy and desirable community, tomor- row's higher density growth areas must be accomp- anied by improved amenities for urban life. More resources will be required to maintain the high quality of life we cunently enjoy, thanks to our parks, streets, and other public services. A combined effort of the public sector, neighborhood groups, businesses, schools, and individual citizens will be required. The early and continuing cooperation and collaboration of these groups in this process will ensure this vision will be realized. Quality Culture, Environment, and Play: Parks, trails, sports, and cultural arts facilities cater to the active lifestyle of Federal Way citizens. By partnering with the Federal Way School District and other agencies, the community has developed a long range plan for facilities, parks, and services which is yielding more and better facilities and joint facility utilization than any one agency could provide alone. A performing and cultural arts center has been built, although it will require operating subsidies for its first eight years. The Federal Way area is blessed with a bounty of natural beauty and scenery. This bounty includes dra- matic vistas of Mt. Rainier; numerous lakes, streams, and wetlands; the pastoral setting in the Spring Valley area; and views of Puget Sound and Vashon Island from the saltwater ridge. The City is committed to preserving this vast natural resource for the citizens and future citizens of Federal Way. Regional Player: Finally, Federal Way institutions and citizens are regional partners and participants in the economic, political, and cultural life of Puget Sound. This participation has yielded funding opportunities for community facilities, including housing and hu- man services. Other regional efforts have safe-guarded the community against outside impacts that detract from our community's quality of life. Regional par- ticipation has crossed the seas with sister city relation- ships which are supported by Federal Way citizens. Getting to the Future from the Present This Plan is intended to manage growth and change in Federal Way over the next 20 years. The future des- cribed in the Plan cannot be achieved all at once. Over the life of the Plan, growth will likely occur more slowly at times, more rapidly at others, and in some- what different patterns and sequences than is currently foreseen. The best a Plan can be is a well-educated guess about how to accommodate people and condi- tions that cannot be known in advance. An effective Plan must be flexible enough to succeed within a range of likely conditions and can be adjusted as those conditions are monitored and evaluated, while main- taining a steady aim at its ultimate goals. How Will The Plan Be Implemented? Adopting a Comprehensive Plan is the first step toward realizing the City's vision. The vision is achie- ved when the Plan is implemented. Federal Way's implementation program is comprised of a combina- tion of short-term and long-term actions. Some of the short-term actions include amendment of the City's zoning code and approval of rezones that match the Plan's land use designations. Other actions include the annual update of the City's six year Capital Improve- Revised December 1998 I-8 Federal Way Comprehensive Plan Introduction i ment Program which describes the street, park, and surface water utility projects the City intends to build. There are also long-term actions including subarea planning, monitoring, evaluating, and amending the Plan as conditions change; and developing a capital investment program that allocates resources to pro- jects that will spur the City's development in the direction envisioned in the Plan. regulatory and fiscal support. Federal Way works with other levels of government, non-profit providers, and citizens groups to support an array of activities and services that contribute to the quality of life of Federal Way's citizens. These include public safety, health, cultural, educational and environmental activities, and human services. To ensure that the interrelationships of all aspects of urban life are addressed, planning will be undertaken by the City in a way that is supportive of and coordinated with the Plan. Monitoring and Evaluation: Will be done periodically to assess progress toward achieving Comprehensive Plan goals as well as to measure the conditions and changes occuning within the City. Monitoring and evaluation will help ensure consistency within and among the Plan elements, as well as with the Growth Management Act and County and regional growth plans. Monitoring and evaluation will lead to both Plan amendments and improved ability to project future conditions. Citizen participation in City processes will build upon the dialogue between government and citizens that began with the development and adoption of the Plan. The City will strive to find improved means to com- municate with, and involve citizens in planning and decision-making. The City will strive to provide infor- mation that can be easily understood and to provide access for public involvement. This will include pro- cesses for making amendments to and implementing the Plan. Subarea Plans: Will follow the adoption of the Plan and will produce amendments that tailor the Plan's citywide perspective to individual areas, whether they are neighborhood retail nodes, or light manufacturing areas. This plan contains a subarea plan for the City Center. Subarea plans are expected to continue to aid in adjusting and fine-tuning the Plan over time. Coordination with Other Jurisdictions: Is occurring through the regional planning processes. Federal Way representatives have participated with King County, other cities, and the Puget Sound Regional Council in numerous discussions. Some issues have been addres- sed and others have been identified for additional discussion. Undoubtably, continued regional planning forums will need to be created to meet the Growth Management Act's challenge for regional action toward creating, implementing, and funding a shared vision for the greater Puget Sound region. Regulatory Provisions: To implement the Plan will include retaining, modifying, and/or replacing existing regulations, and/or drafting new regulations consistent with the policies and goals of the Plan. A Strategic Investment Strate�: Will describe a framework for making resource allocation decisions in an environment where wants and needs always exceed the finite resources available. Tradeoffs among many possible investment choices will be made to achieve the Plan's goals. The framework will add dimension to the Plan's goals by enabling them to be addressed over time. Human Services, Public Safety, and Environmental Planning: Will continue to build upon the foundation established by the Plan. Much of the Comprehensive Plan, as developed to fulfill the Growth Management Act, addresses physical development and its related Application of the Plan The principal purpose of the Comprehensive Plan is to provide policies that guide the development of the City in the context of regional growth management. These policies can be looked to by citizens and all levels of government in planning for the future of Federal Way. The Plan format generally presents a discussion about an issue followed by a goal, and some policies related to that goal. Goals describe what the City hopes to realize over time, and are not mandates or guarantees. Policies describe actions that will need to be taken if Revised December 1998 1�9 Federal Way Comprehensive Plan Introduction the City is to realize its goals. Policies should be read as if preceded by the words, "It is the City's general policy to..." A policy helps guide the creation or change of specific rules or strategies (such as develop- ment regulations, budgets, or program area plans). City officials will generally make decisions on spe- cific City actions by following ordinances, resolu- tions, budgets, or program area plans that themselves reflect relevant Plan policies, rather than by refening directly to this Plan. Implementation of most policies involves a range of City actions over time, so one cannot simply ask whether a specific action or project would fulfill a particular Plan policy. For example, a policy that the City will "give priority to" a particular need indicates that need will be treated as important, not that it will take precedence in every City decision. Some policies use the words "shall" or "should," "ensure" or "encourage," and so forth. In general, such words should be read to describe the relative degree of emphasis that the policy imparts, but not necessarily to establish specific legal duty to perform a particular act, to undertake a program or project, or to achieve a specific result. Whether such a result is intended must be determined by reading the policy as a whole, and by examining the context of other related policies in the Plan. Some policies may appear to conflict, particularly in the context of a specific fact situation or viewed from the different perspectives of persons whose interests may conflict on a given issue. A classic example is the "conflict" between policies calling for "preservation of the environment" and policies that "promote econo- mic development." Because Plan policies do not exist in isolation, and must be viewed in the context of all potentially relevant policies, it is largely in the appli- cation of those policies that the interests which they embody are reconciled and balanced by the Legisla- tive and Executive branches of City government. Before this Plan was adopted, the City of Federal Way had many policies in place which were approved over the course of many years, and which affect the full range of programs and services provided by the City. To the extent a conflict may arise between such a policy and this Plan, the Plan will generally prevail, except that policies that are used in the application of existing development regulations shall continue to be used until those regulations are made consistent with the plan pursuant to RCW 36.70A. 040. Discussion is provided to explain the context in which decisions on goals and policies have been made, the reasons for those decisions, and how the goals and policies are related. The discussion portions of the Plan do not establish or modify policies, but they may help to interpret policies. Appendices to the Plan contain certain required maps, inventories, and other information required by the GMA, and in some cases further data, discussion, and analysis. The appendices are not to be read as estab- lishing or modifying policies or requirements, unless specified for such purposes in the Plan policies. For example, descriptions of current programs in an appendix do not require that the same program be continued, and detailed estimates of how the City may expect to achieve certain goals do not establish additional goals or requirements. Comprehensive Plan Amendment Process The City will update this Plan annually in order to keep this document current with the community's vision and the City Council's policy direction. In addition to updating chapters, such as Capital Facilities, the public will also be notified that a comprehensive plan amendment will be taking place. Individual requests will be considered during the annual update process. Acknowledgments The City Council and staffthank the hundreds of citizens who have made the CityShape project a success. We look forward to working with you over the next 20 years to make your vision Federal Way's future.� Revised December 1998 I-10 r m � Q C N � � \ 1 I I I � �l � i � I � � I I i l I j � , �� i I From ViSio� �o Plan Federal Way Comprehensive Ptan Land Use 2.0 INTRODUCTION hrough the CityShape and Vision process, the community produced a general concept of what the City should look like and function like in the future. This general concept was used to form the basis of the Land Use chapter. The Land Use chapter serves as the foundation of the Comprehensive Plan by providing a framework for Federal Way's future development, and by setting forth policy direction for Federal Way's current and future land uses. Development of land, according to adopted policies and land use designations discussed in this chapter, should result in an appropriate balance of services, employment, and housing. The land use policies are supplemented by a land use designation map that provides a visual illustration of the proposed physical distribution and location of various land uses. The Generalized Land Use map (Map II-1) allocates a supply of land for such uses as services, employment, parks, open space, and housing to meet future demand. 2.1 THE LAND USE CONCEPT Federal Way's existing land use pattern (the physical location of uses) exists as a result of development administered by King County until 1990 and subse- quent development under Federal Way's jurisdiction. As shown in Chart II-1, in early 1995, over 54.91 percent of Federal Way's gross land area allowed for single family development, 8.17 percent for multiple family development, and 16.49 percent for office, retail, and manufacturing uses. Updates to the Com- prehensive Plan will not substantially modify this land use pattern. What will change is how various pieces of the land use pattern interact to achieve common land use goals. Figure II-1 depicts the land use concept. The land use concept should result in the following: Chart //-1 PERCENT GROSS LAND AREA Based on Zoning in Effect in Early 1995 onaeR ��s_��� OPEN SPACE (0.8 PARKS (6.40%) MULTI-FAMILY (8.17%) ra� �s.s�%� SINGLE FAMILY (54.91%) NANUFAC. (6.20%) OFFICE (3.98%) Transformation of the retail core into an intensely developed City Center that is the focus of civic activity which provides a sustainable balance of jobs and housing; Preservation and enhancement of existing residential neighborhoods; Creation of a network of parks and open space areas; Diversification of the City's employment base by creating distinct employment areas; Promotion of new opportunities for residential development near transit centers; Provision of community and commercial services to residential communities; To the extent practicable, preservation of environ- mentally sensitive areas; Promotion of convenient residentially scaled shopping for residential neighborhoods; Promotion of housing in the City's commercial areas close to shopping and employment; Revised December 1998 II-1 Federal Way Comprehensive Plan Land Use Coneeetrate �ew devdopment ia the Highrrar 99/{.S corridoc. Uevelop infrastrudure to support cbrridor derelopment Transfom� retail oorc i�to a new mixed-use Gty Crnter. P�erve and enhance ezisting single- family neighborhoods. Geate a eet�w�ic of parks and apen spaoe rncridors. Diversify employment base by Qea6ng disti�ct employment areas. Ge ate oew �rttensive res�deatiaf communities supported br trans�ti Provide communitv and rnmmeroia! services to �esidentia! aornmunitia. Pceserve environmrntally sensi6ve land from adverse development 1 Figu� ll-1. The Concept Plan Revised December 1998 ��_y CITY OF FEDERAL WAY COMPREHENSIVE PLAN � � �• .»«• 0 � 0 0 � � � LANDUSE ELEMENT Lege�d: �'� �ederal Wa City Limits • • � � � ��:: � � GENERALIZED E:�CISTING LAND USE Y Other City Limits Federal Way City Center �esidential - Singls Family �esidential - Multi-Family ;:ommeraal �ffioe industrial �gricufture institutional Uses (indudes schools, hospitals, fire stations, postal fiacilities and park and ride lots) Developed Public Park Undeveloped Park Open Space and Common Areas �iecreational Chruch/Syn�qogue Vacant Source: King County Assessor. Data is based on 1995 valuations. Land use information is not available for all parcels. �lo land use information is available f�r Pierce County. -- SCALE -- 1 Inch aquals 4,000 Feet crrr oF G � �� � " Y Y A� � OIS DNISION � � ,1 � NOTE: T',i�s map is intended for use as a graphical representatian ony. The City of Federal Way makes no warranty as m ds aa;uracy OeoamDer 1➢97 iNhPmapaluaeb.aml Federai Way Comprehensive Plan Land Use u Promotion of redevelopment of "strip commercial" areas along major arterials into attractive, mixed- use corridors served by auto and transit; Promotion of the development of well designed commercial and office developments; and Accommodation of Puget Sound Regional Council growth projections within the proposed land use plan area. 2.2 RELATIONSHIP TO OTHER LAND USE CHAPTERS The land use concept set forth in this chapter is con- sistent with all Comprehensive Plan chapters. Internal consistency among the chapters of the Comprehensive Plan translates into coordinated growth and an efficient use of limited resources. Below is a brief discussion of how the Land Use chapter relates to the other chapters of the Comprehensive Plan. Economic Deveiopment Federal Way's economy is disproportionately divided; retail and service industries comprise nearly two-thirds of Federal Way's employment base. Dependence on retail trade stems primarily from the City's evolution into a regional shopping destination for South King County and northeast Pierce County. Increased regional competition from other retail areas, such as Tukwila and the Auburn SuperMall, may impact the City's ability to capture future retail dollars. To im- prove Federal Way's economic outlook, the economic development strategy is to promote a more diverse economy. A diversified economy should achieve a better balance between jobs and housing and supports the City's quality of life. In conjunction with the Economic Development chap- ter, this Land Use chapter promotes the following: A City Center composed of mid-rise office build- ings, mixed-use retail, and housing. Community Business and Business Park develop- ment in the South 348th Street area. Continued development of West Campus. Development of East Campus (Weyerhaeuser Cor- porate and Office Park properties). Redevelopment and development of the SR-99 cor- ridor into an area of quality commercial and mixed use development. Establishment of design standards for commercial areas. T'he land use map designations support development necessary to achieve the above (see the Comprehen- sive Plan Designations Map 11-2). A complete dis- cussion of economic development is set forth in the Economic Development chapter. Capital Facilities Capital faeilities provided by the City include: trans- portation and streets, parks and open space, and sur- face water management. Infrastructure and Urban Services The amount and availability of urban services and infrastructure influences the location and pace of future growth. The City is responsible for the con- struction and maintenance of parks and recreation facilities, streets and transportation improvements, and surface water facilities. Providing for future growth while maintaining existing improvements is dependent upon the community's willingness to pay for the construction and financing of new facilities and the maintenance of existing facilities. As outlined in the Capital Facilities Plan, new infrastructure and services may be financed by voter approved bonds, impact fees, and money from the City's general fund. Revised December 1998 ��-4 Federal Way Comprehensive Plan Land Use To capitalize on the City's available resources for urban services and infrastructure, this Land Use chapter recognizes that concentrating growth is far more cost effective than allowing continued urban sprawl. Concentrating growth also supports the enhancement of future transit improvements. Water Availability Based on reports from the Lakehaven Utility District, the estimated available yield from the underlying aquifers is 10.1 mgd (10 year average based on aver- age annual rainfall). The total 10-year average with- drawal from the aquifers is 9.4 mgd (10 year average annual based on actual production). The District con- trols which wells to use, thus which aquifers are being pumped from, based on a number of considerations including water levels and rainfall. As a result, the water levels in the aquifers have remained stable. Concentrating growth, along with conservation mea- sures, should help to conserve water. Water Quality Parks Open Space One of the most important and valued elements of a high quality living and working environment is a parks and open space system. Providing parks and open spaces contributes to a reduction in environ- mental impacts such as noise and air pollution; increases the value of adjacent properties; provides areas for passive and active recreation; and helps preserve the natural beauty of the City. To maximize open space opportunities, the City will coordinate with adjacent jurisdictions to create a region-wide open space system as contemplated in the Countywide Planning Policies (CWPP's). Map II-2 depicts areas where existing and/or proposed parks and open spaces are located. This map is consis- tent with the City's Comprehensive Parks, Recreation, and Open Space Plan. For a complete discussion, please refer to the Comprehensive Parks, Recreation and Open Space Plan. Potential Annexation Area u Maintaining a clean source of water is vital to the health and livability of the City. Preserving water quality ensures a clean source of drinking water; and, continued health of the City's streams and lakes. Maintaining water quality is also important for main- taining the health of the aquifers which rely on surface water for recharge. Contamination of an aquifer, by contaminated surface water, could lead to serious health concerns. To address this concern and impacts of new development, the City prepared a Surface Water Management Plan. The plan specifies actions to ensure water quality including the development of regional detention/retention facilities to control rate and quality of water runoff. Furthermore, develop- ment of a well-head protection program with the Lakehaven Utility District should provide guidelines to avoid possible contamination. Policies contained in the Natural Environment chapter provide direction for development near wellheads and in aquifer recharge areas. For a complete discussion, please refer to the Capital Facilities chapter. To facilitate intergovernmental planning and policy coordination, the CWPP's require each jurisdiction to, designate a potential annexation area" (PAA). The City's PAA lies within unincorporated King County, generally east of the present City boundary. The boun- dary has been defined through cooperative agreements between the City and adjacent jurisdictions. Land use designations are currently not proposed by the City for this area, with the exception of two areas for which 10 percent petitions have been received from the Weyer- haeuser Corporation. These areas are located east of I- 5 and north of South 320th, and north of Highway 18 at about 38th Avenue South. City provided urban ser- vices and utilities (to the extent the City controls such services, either directly or by contract) may be pro- vided to this area when an annexation is accepted. In the future, the amount of land and population to be annexed into the City will depend on the number of annexation petitions received by the City and the availability of urban services. The City does not intend to actively seek annexations. A comprehensive Revised December 1998 II-5 CITY OF FEDERAL WAY COMPREHENSIVE PLAN � CON�PREHENSIVE PLAN DESIGNATIONS ADC'Pl'ED, REVISED DEGEMBER 23, 1998 LANDUSE ELEMENT !_egend: �'' r� t=ederal Way City Limits /�,� 1'otential Annexation Area • L��end: _ City Center Core � C;:ty Center Frame Ci�rporate Park ''� Office Park ''' ' ` Br �s�ness Park � N Business � C�mmerciaVRecreation � C;�mmunity Business � P�-�rks and Open Space _ Multi-Family Single Family-High Density Single Family-Medium Density Singfe Family-Low Density � sca�E -- 1 Inch equels 3,750 Feet • am °F G � �� a1S DNISION MAP II-2 NOTE: This map is intended for use as a graphical representation anly. The City of �ederal Way makes no warrarriy as to its accuracy �rr teee swp Federal Way Comprehensive Plan Land Use plan for the PAA may be prepared by the City to assign land use designations and zoning. This plan will provide guidance for all future citizen initiated annexation proposals. A complete discussion regard- ing the City's PAA's can be found in the Potential Annexation Area chapter. A complete discussion of housing can be found in the Housing chapter. City Center Natural Environment Federal Way's natural beauty is apparent. Lakes, streams, wetlands, and Puget Sound provide a scenic backdrop as well as a source for active and passive recreation. The Land Use chapter seeks to protect Federal Way's unique natural resources through poli- cies that support the preservation of these areas for future generations. For a complete discussion, please refer to the Natural Environment chapter. Housing Housing is a basic need and a major factor in the quality of life for individuals and families. An ade- quate supply of affordable, attractive, and functional housing is fundamental to achieving a sense of com- munity. The central issue related to iand use is sup- plying enough land to accommodate projected growth for a range of incomes and households. Presently, housing is provided primarily in single family sub- divisions or multiple-unit complexes. This plan devises strategies to increase housing options and choices. The Land Use chapter advocates changes to current development codes to increase flexibility in platting land and encourage housing as part of mixed-use developments in commercial areas. The latter provides an opportunity to locate housing closer to employment and shopping, and create affordable housing. Map II-2 depicts single family and multiple family residential areas as staying generally in the same geo- graphic boundary as the original comprehensive plan map. The proposed land use designations will provide adequate capacity to meet projected growth. See Section 2.8 for further discussion. Map II-2 depicts two City Center land use designa- tions. The City Center Core and Frame areas will direct the location and extent of growth in the City Center. The creation of an identi-fiable and vibrant "downtown" is one of the primary goals identified by the community during the City-Shape planning pro- cess. The policies of the Land Use and City Center chapters envision a concentrated City Center com- prised of mixed-use developments, pedestrian- oriented streetscapes, livable and affordable housing, a network of public spaces and parks, and develop- ment of superior design and yuality. The City Center will provide a central gathering place for the com- munity where civic and cultural activities and events take place. A complete discussion of the City Center can be found in the City Center Chapter. 2.3 POLICY BACKGROUND State and County land use policies provide a statutory framework for the development of City land use policies. It is important to briefly review State and County level policies to better understand the histori- cal conditions which have shaped the goals and policies in this chapter. Growth Management Act The GMA acknowledges that, "...a lack of common goals expressing the public's interest in conservation and the wise use of our lands pose a threat to the environment, sustainable economic development, and the health, safety and high quality of life enjoyed by residents of this state" (RCW 36.70A.010). The Act provides a framework for content and adoption of local comprehensive plans. The Act provides 13 goals to be, "...used exclusively for the purpose of guiding development of comprehensive plans and develop- Revised December 1998 Federal Way Comprehensive Plan Land Use ment regulations." A number of the State GMA goals pertain to land use. They are as follows: Urban Growth Encourage development in urban areas where adequate public facilities and services exist or can be provided in an efficient manner. Reduce Sprawl Reduce the inappropriate conversion of undeveloped land into sprawling, low-density development. dictions. Most notable is Vision 2020's direction for Regional Transportation. An important connection between Vision 2020 policies and the City's land use policies is development of an urban center, referred to as the City Center Core in this Comprehensive Plan. Urban centers are to accommodate a significant share of new growth, services, and facilities. The idea is to, "...build an environment in the urban centers that will attract residents and businesses" by concentrating residences, shopping, and employment in close proximity to each other and regional transit. u Open Space and Recreation Encourage the retention of open space and development of recreational oppor- tunities, conserve fish and wildlife habitat, increase access to natural resource lands and water, and develop parks. Environment Protect the environment and enhance the State's high quality of life, including air and water quality and the availability of water. Public Facilities and Services Ensure that those public facilities and services necessary to support development shall be adequate to serve the develop- ment at the time the development is available for occupancy and use without decreasing current service levels below locally established minimum standards. Historic Preservation Identify and encourage the preservation of lands, sites, and structures that have historical or archaeological significance. Property Rights —Private property shall not be taken for public use without just compensation having been made. The property rights of landowners shall be protected from arbitrary and discriminatory actions pursuant to state and federal law. Regional Policies Vision 2020 and the CWPP's, both required by GMA, provide a regional framework to achieve the goals of the GMA. Vision 2020 is the long range growth management, economic, and transportation strategy for the central Puget Sound region encompassing King, Kitsap, Pierce, and Snohomish counties. It provides broad direction agreed to by member juris- The CWPP's are a further refinement of policy direc- tion contained in the GMA and Vision 2020 and are a result of a collaborative process between King County and the suburban cities within. Policies contained herein have been prepared to implement the CWPP's as they apply to the City. CWPP's provide a frame- work for both the County and its respective cities. Adherence to these policies ensures that plans within the County are consistent with one another. These policies address such issues as the designation of urban growth areas, land use, affordable housing, provision of urban services for future development, transportation, and contiguous and orderly develop- ment. CWPP's have the most direct impact on land use policies in this chapter. By undertaking the following actions, the Land Use chapter is consistent with CWPP's direction: Promoting phased development for efficient use of land and urban services; Creating a City Center (urban center) as an area of concentrated employment and housing, served by high capacity transit, public facilities, parks, and open space; Limiting growth outside the City Center to areas that are already urbanized; Encouraging in-fill development; Expanding business and office park development to include limited commercial; and Establishing incentives to achieve desired goals. u u Revised December 1998 II-8 Federal Way Comprehensive Plan Land Use 2.4 PROJECTED GROWTH DEVELOPMENT CAPACITY Projected Growth In 1998, approximately 76,820 people called Federal Way home. Most of the growth to date occurred during the decades of the 1960's and 1980's in which the City's population doubled. Federal Way is now the seventh largest city in the State and the third largest in King County. Future population and employment growth has been forecasted through a cooperative effort between the state, counties, and cities (Chart II-2). Through the CWPP's, the City's target ranges for household and employment growth over the next 20 years is defined. Federal Way's target household range is 13,425 16,556; and employment target range is 13,300 16,400. Development Capacity Through the goals and policies of the Comprehensive Plan and the Comprehensive Plan Designations Map (Map 11-2), the City is required to show that it has the capacity to accommodate projected growth target ranges for housing and employment. To determine� the City's ability to accommodate forecasted growth (both residential and employment) a capacity analysis was conducted. The results of this effort is summa- rized in Tables II-1 thru II-4, and in the following Methodology section. Methodology Using a methodology consistent with the recommen- dations of the King County Land Capacity Task Force, the City calculated capacity for all land use designa- tions. In general, capacity is defined as the number of additional dwelling units or square feet of improved floor space (commercial and industrial uses) that can be accommodated within a comprehensive plan land use designation. Capacity figures for both vacant and redevelopable land were calculated. Once the theo- retical capacity was derived, a series of reductions were applied. The reductions account for land con- sumed by right-of-ways, building footprint, environ- mentally sensitive areas, and for public purpose (parks, cemeteries, etc.). The summation of these dis- counts ranged from 47 to 72 percent depending on the land use designation. In addition to the reductions outlined above, a market discount factor was applied to vacant land (10 per- cent) as well as redevelopable land (17 percent). Cha�t //-2 Population Projection Central Puget Sound Region Chart //-3 PERCENT GROSS LAND AREA BY COMP PLAN LAND USE DESIGNATION C c 0 c 0 w o. 0 a PARKS OPEN SPACE RETAIL (7 i AIIY (8.20 (7.63%) FAMILY (54.64%) Revised �ecember 1998 11-9 1960 1970 1980 1990 200Q 2010 2020 Federal Way Comprehensive Plan Land Use Application of the market factor (discount) acknow- ledges that not all potentially developable parcels will be available for development and that some parcels may not be financially feasible to develop or re- develop. Finally, a cushion (discount of 25 percent) was applied to cover any inaccuracy in the data sources used and to account for any unforeseen cir- cumstances which may affect the development of a given parcel of land. Employment figures were then derived from the final square footage calculations for commercial and office land use designations using commonly acceptable square foot per employee ratios. Capacity Analysis The following tables (Table II-1 thru 11-4) illustrate the City's development capacity.. In summary, the employment figure of 69,358 new jobs shows that the City has the capacity to easily accommodate projected employment growth (13,300 16,400 new jobs) over the next 20 years. As shown in Table II-4, the City has the capacity to accommodate 16,723-23,994 addi- tional households, thus surpassing the CWPP's target range of 13,425-16,556. 2.5 URBAN DESIGN AND FORM In addition to guiding development, the Land Use chapter will also guide the quality and character of the City's future development pattern through goals and policies related to the form, function, and appearance of the built environment. These goals and policies, related to quality development, will serve as a basis from which to develop appropriate implementation measures. Implementation of design standards will be achieved primarily through a series of zoning amend- ments and design guidelines, to be used as an integral component of the development review process. Com- mercial guidelines will support comprehensive plan policies by addressing integration and preservation of natural features; location and type of pedestrian amenities and public spaces; pedestrian and vehicle circulation; building setbacks, orientation, form, and scale; landscaping; and mixed-use design. Residential design guidelines, potentially as a component of subarea plans, will address neighborhood character, and compatibility between residential and mixed-use/ commercial development. Table II-1 Net Commercial and Office Capacity Proposed Building Area/Gross Floor Area (in acres) Comprehensive Plan Land Use Employment Designations Vacant Redevelopable' Net Developable new jobs Business Park 90.4 27.9 118.3 8,889 City Center Core 33.1 31.2 64.3 6,997 City Center Frame 16.8 .91 18 1,931 Community Business 38.1 24 62 5,492 Corporate Park 50.6 30.7 81.3 14,164 Neighborhood Business 13.6 2.9 16.5 1,466 O�ce 147.4 27.2 174.6 30,419 Tot81s 390.1 144.9 535.0 69,358 7fre capacily ojlhe ciry's commercial mid office areas (7'able U-/) supporf Ihe shiJl lowa►d divers�ing fhe job marke/ by proridingjorfumre grow�h in enrploynienr seaors orher r/rWi relail. 'A 50 percent threshold. Land is considered redevelopable if the value of the building is less than 50 percent of the assessed value of the land. Revised December 1998 ��-10 Federal Way Comprehensive Plan Land Use Table II-2 Net Capacity of Residential Designations Existing Dwelling Vacant/Redev Comp Plan Designation Units (potential units) Total Net Units Single Family 16,681 5,413 12,684 22,094 29,365 Multiple Family 12,826 3,852 16,678 Mobile Homes 1,393 1,393 Totals 30,900 9,265 -16,536 40,165 47,436 New residenlial oppomrniiies (Table /I-2) wi!/ be provided Ihrough �hr con�inued bui/cFoul oJexis�ing muliip/e jamily areas rmd along with in-fill mid p/miing oJremaining parcels !n sing/eJanNly areas. loble shows Ihal approximale/yS,'S9 dwe//ing uni/s oJnew mu/Iip/eJan�ily housiitg wi/! be provided in iro�Nresidential designalions. lles�denlral mrmbers do nor incl�ale accessory dwelling unils. Net New Residential Comp Plan Designation City Center Core City Center Frame Neighborhood Business Community Business Totals Table II-3 city of Non-Residential Net Developable Residential Acres 52.6 17.7 8.3 31.1 109.7 Potential Dwelting Units 3,272 773 361 1,353 5,759 Table II-4 Summary of Additional Dwelling Unit Capacity Comprehensive Plan Designation Buildable Acres/Net Developable of Additional Dwelling Units Residential Areas Commercial/Office Designations that Allow 109.7 5,759 Residential Component Multiple Family 88.4 3,852 Single Family N/A 5,413 12,684 Accessory Dwelling Units 1 Total Residential Capacity 16,�23 23,994 King County Planning Policies Household Target Range 13,425 -16,556 Table II-4 summarizes dwelling unit capacity. The table clearly shows sufficient capacity to accommodate anticipated growth beyond the year 2012. New household and employment forecasts from PSRC will be evaluated against the preceding tables to ensure that there is sufficient capaciry to accommodate future growth. Capaciry numbers pertain only to incorporated Federal Way; dces not include the City's Potential Mnexation Area. Revised December 1998 II-11 Federal Way Comprehensive Plan Land Use �i0A1 Policies LUGI Improve the appearance and function of the built environment. Policies LUPl Develop residential design performance stan- dards to maintain neighborhood character and ensure compatibility with surrounding uses. LUP2 Use design and performance standards to achieve a greater range of housing options in multiple family designations. LUP3 Support the establishment of design and per- formance standards to create attractive and desirable commercial and office developments. LUP4 Maximize efficiency of the development review process. LUPS Assist developers with proposals by contin- uing to offer preapplication meetings in order to produce projects that will be reviewed efficiently. LUP6 Conduct regular reviews of development reg- ulations to determine how to improve upon the permit review process. LUP7 Integrate and coordinate construction of public infrastructure with private development to minimize costs wherever possible. LUP8 Increase efficiency in the permit process by responding to State legislation concerning development review processes. 2.6 DEVELOPMENT REVIEW PROCESS The Land Use chapter provides the policy foundation for implementing zoning and development regula- tions. In developing policy concerning future land use regulations, or revisions to existing regulations, every effort was made to instill certainty and efficiency in the development process. Recent State legislation has focused on developing streamlined and timely permit processing. Prior to this legislation, the City con- ducted Developer Forums to solicit input regarding the City's permit processing system. Comments received during the Forums provided invaluable infor- mation to evaluate the City's permit system. Through the following policies, the City continues to strive to provide an efficient and timely review system. 2.7 CITYWIDE POLICIES Citywide policies apply to all Comprehensive Plan designations. These general policies are intended to maintain the quality of the living and working environment and ensure that the interests, economy, and welfare of the community are considered. Policies LUP9 Designate and zone land to provide for Federal Way's share of regionally-adopted demand forecasts for residential, commercial, and industrial uses for the next 20 years. Goal LUG2 Develop an efficient and timely development review process based on a public/private partnership. LUP10 Support a diverse community comprised of neighborhoods which provide a range of housing options; a vibrant City Center; well designed and functioning commercial areas; and distinctive neighborhood retail areas. Revised December 1998 II-12 Federal Way Comprehensive Plan Land Use LUPI l Support the continuation of a strong residen- tial community. LUP12 Evaluate household and employment forecasts on a periodic basis to ensure that land use policies based on previous assumptions are current. LUP13 Distribute pazk and recreational opportunities equitably throughout the City. 2.8 LAND USE DESIGNATIONS The land use designations in the Comprehensive Plan recognize the relationships between broad patterns of land uses. The designations set forth locational criteria for each specific class of uses consistent with the long term objectives of the Plan. These designations pro- vide the purpose and intent for specific zoning dis- tricts. The location of comprehensive plan land use designations are shown on the Comprehensive Plan Designations Map (Map 11-2). Residential Areas Single Family Federal Way is known for its quality single family neighborhoods. This section contains goals and policies that will shape future development and pro- tect or improve the character and livability of established neighborhoods. The demand for and development of single family housing is expected to continue for the foreseeable future. Single family development will occur as in-fill development of vacant lots scattered throughout existing neighborhoods and as subdivisions on vacant tracts of land. To address future housing needs, the Land Use chapter encourages new techniques for developing single family subdivisions. Such tech- niques include clustering, planned unit developments, lot size averaging, and zero lot line development. New to single family neighborhoods is the introduction of accessory dwelling units and special needs housing as required by State law and City ordinance. Further- more, future residential code revisions will address the compatibility and design of in-fill development and special needs housing. Single Family Low Density The Single Family Low Density designation retains larger urban lots in order to avoid development pres- sure on or near environmentally sensitive areas and to retain areas that have unique area-wide circumstance. There are two notable locations: Spring Valley, located in the southern portion of the City; and along Puget Sound near Dumas Bay in the vicinity of Camp Kilworth and the Palisades Retreat property. The Single Family Low Density designation continues the historic application of low density zoning in areas that lack urban services and infrastructure. Moreover, the application of large urban lot zoning is appropriate to avoid excessive development pressures on or near environmentally sensitive areas as well as to serve as a buffer between adjacent land use designations of higher densities. The Single Family Low Density designation in the Spring Valley and Dumas Bay areas have numerous environmentally sensitive features including, but not limited to: wetlands, flooding potential, geologically hazardous areas, streams (including salmonid habitat), and wildlife habitat, and groundwater infiltration potential. Due to the sensitive nature of this area, the Draft Hylebos Creek and Lower Puget Sound Plan recommends zoning of one lot per five acres. Single Family Medium Density The Single Family Medium Density designation creates urban lots with a density range of one to three dwelling units per acre to avoid developing on or near environmentally sensitive areas. The Single Family Medium Density designation can be found along the Puget Sound shoreline and south of South 356th Street, both east and west of SR 99. Lot sizes of 35,000 and 15,000 square feet provide for a transition in density between land designated as Single Family High and designated as Single Family Low. Some Revised December 1998 ��-13 Federal Way Comprehensive Plan Land Use areas designated as Single Family Medium still lack urban services and infrastructure. The relatively large lot sizes along the Puget Sound shoreline areas are appropriate due to geological features including steep slopes and landslide hazards commonly associated with marine bluffs. As with the Single Family Low designation, the Single Family Medium designations south of South 356th is located in the West Branch Hylebos Creek Sub-Basin. As noted in the Single Family Low Density description, this sub-basin contains a number of environmentally sensitive areas. LUP16 Revise existing land use regulations to pro- vide for innovation and flexibility in the design of new single family developments and in-fill. LUP17 Encourage the development of transporta- tion routes and facilities to serve single family neighborhoods. Special attention should be given to pedestrian circulation. LUP18 Encourage the development of parks and the dedication of open space in and adjacent to residential areas to preserve the natural setting of Federal Way. Single Family High Density A majority of the single family residential land in the City is designated as Single Family High Density. Urban densities of and 8.7 dwelling units per acre in the RS 9.6, RS 7.2, and RS 5.0 zoning districts respec- tively, provide for a range of housing densities. Single Family High Density residential designations are located within close and convenient proximity to neighborhood business centers, areas of existing or future employment, transit, and existing urban infra- structure and services. Future Single Family High Density development should provide good access to collector and arterial streets. Goal LUG3 Preserve and protect Federal Way's single family neighborhoods. LUG3.1 Provide wide range of housing densities and types in the single family designated areas. Policies LUP14 Maintain and protect the character of exist- ing and future single family neighborhoods through strict enforcement of the City's land use regulations. LUP15 Protect residential areas from impacts of adjacent non-residential uses. LUP19 Consider special development techniques (e.g., accessory dwelling units, zero lot lines, lot size averaging, and planned unit developments) in single family areas, pro- vided they result in residential development consistent with the quality and character of existing neighborhoods. LUP20 Preserve site characteristics that enhance residential development (trees, water- courses, vistas, and similar features) using site planning techniques such as clustering, planned unit developments, and lot size averaging. Multiple Family The multiple family residential land use designation represents an opportunity to provide a range of housing types to accommodate anticipated residential growth. Increasing population, the decline in average family size, and increasing cost of single family homes have created heavy demand for new housing types. The Land Use chapter encourages the develop- ment of new housing types, such as duplexes, town- houses, and condominiums in existing multiple family areas and within mixed-use development in com- mercial areas. During the 1980's, the City's landscape changed as a number of large apartment complexes were con- Revised December 1998 II-14 Federal Way Comprehensive Plan Land Use structed. These aparhnents, often built without regard to scale or amenities, created a general dissatisfaction with the appearance of multiple family development. Future code revisions should address issues regarding appearance, scale, location, and type of dwelling units. Incentives for creating desired development such as duplexes and townhouses should be considered. LUP24 Multiple family residential development should be designed to provide privacy and common open space. Variations in facades and roof lines should be used to add character and interest to multiple family developments. Multiple Family Multiple Family designations in large part are in areas currently zoned for multiple family development. Designations of 3600, 2400, and 1800 square feet per dwelling unit, corresponding to densities of 12, 18 and 24 dwelling units per acre respectively, will continue to be used. Opportunities for new development will occur through redevelopment and build-out of remain- ing parcels. To address the design and appearance of multiple family development, residential code revi- sions are expected to be developed in the near future. The primary goal of these code revisions is to develop multiple family housing that is reflective of the com- munity's character and appearance. LUP25 Encourage the establishment of street pat- terns and amenities that encourage walking, bicycling, and transit use. Commercial Designations Existing commercial areas are auto-oriented and characterized by one story low intensity development. In the future, these areas will become more intensively developed and pedestrian oriented, and in some desig- nations, accommodate housing. Transforming existing areas into places where people want to live, shop, and work requires changes. Commercial areas should con- tain street furniture, trees, pedestrian shelters, well marked crosswalks, and buildings oriented to and along the street to provide interest and allow easy pedestrian access. Goal LUG4 Provide a wide range of housing rypes and densities commensurate with the commun- ity's needs and preferences. Policies LUP21 Allow and encourage a variety of multiple family housing types in designated com- mercial areas, especialiy in the City Center Core and City Center Frame areas. General Policies for Commercial, Office, and Business Park 1'he following general policies apply to all commer- cial, office, and business park designations. Specific goals and policies related to each land use designation follow the discussion of each, except for Corporate Park and Commercial Recreation. These two desig- nations, and the uses allowed in them, are defined by preannexation concomitant development agreements with the City. LUP22 Develop design and performance standards for multiple family developments to achieve integration in commercial developments. Performance standards should focus on scale, appearance, and compatibility. LUP23 Support multiple family development with transportation and capital facilities improvements. Policies LUP26 Provide employment and business oppor- tunities by allocating adequate land for commercial, office, and business park development. LUP27 Encourage development of regional uses in the City Center. Revised December 1998 5 Federal Way Comprehensive Plan Land Use LUP28 Develop regulatory incentives to promote common open space, public art, and plazas in commercial and office developments. LUP29 Provide for a mix of commercial and resi- dential uses in commercial areas, except Business Park and Office. LUP30 Ensure compatibility between mixed-use developments and residential azeas by regu- lating height, scale, setbacks, and buffers. LUP31 Encourage quality design and pedestrian and vehicle circulation in office, commer- cial, and business park developments. LUP32 Encourage commercial development to locate along street edge (where deemed appropriate) to provide pedestrian street access. Provide pedestrian access between developments and to transit stations. LUP33 Identify and designate streets where on- street parking can be safely provided with- out unduly slowing traffic flow or jeopardi- zing traffic safety. LUP34 Provide developer incentives for inclusion of housing in commercial projects. Business Park The Business Park designation is a new designation that substantially encompasses the uses found in the former Manufacturing Park zoning designation where large undeveloped and underdeveloped parcels, having convenient access to Interstate 5 and Highway 18, provide a natural location for business park devel- opment. The advent of the Business Park designation is intended to capture the growing demand for higher quality, mixed-use business parks which permit a mixture of light manufacturing, warehouse/ distribution, office, and limited retail uses to serve the immediate needs in the area. Revisions to design and performance standards will address site development, lot size, setbacks, and modulation. Goal LUGS Develop a quality business park area that supports surrounding commercial areas. Policies LUP35 Encourage quality, mixed-use development for office, manufacturing, and distribution centers. LUP36 Develop business parks which fit into their sunoundings by grouping similar industries in order to reduce or eliminate land use con- flicts, allow sharing of public facilities and services, and improve traffic flow and safety. LUP37 Develop a South 348th Street Subarea Plan to address development of a street grid, open space, storm drainage, utilities, and building locations. LUP38 Limit retail uses to those that serve the needs of people employed in the area. City Center Core The intent of establishing the City Center Core is to create a higher density, mixed-use designation where office, retail, and government uses are concentrated. Other uses such as cultural/civic facilities, community services, and housing will be highly encouraged. City Center Frame The City Center Frame designation provides a zone of less dense, mixed use development physically sur- rounding a portion of the City Center Core. The Frame area will have similar look and feel of the Core, but, the emphasis will be on providing residential develop- ment with accessory retail and office uses. Together, they are meant to complement each other to create a `downtown' area. A more detailed description, along with goals and policies regarding the City Center Core and Frame, can be found in the City Center chapter. Revised December 1998 II-16 Federal Way Comprehensive Plan Land Use Community Business The Community Business designation encompasses two major retail areas of the City: It covers the "strip" retail areas along SR-99 and the large "bulk" retail area found near the South 348th Street area, approxi- mately between SR-99 and I-5. Community Business allows a large range of uses and is the City's largest retail designation in terms of area. The Community Business designation generally runs along both sides of SR-99 from South 272nd to South 348th. A wide range of development types, appearance, ages, func- tion, and scale can be found along SR-99. Older, single story developments provide excellent oppor- tunities for redevelopment. Due in part to convenient access and available land, the South 348th Street area has become a prefened location for large bulk retailers such as Eagle Hard- ware, Home Depot, and Costco. Due to the size of these facilities, the challenge will be to develop these uses into well functioning, aesthetically pleasing retail environments. To create retail areas that are aesthetically and func- tionally attractive, revised development standards, applied through Community Business zoning, should address design quality, mixed-use, and the integration of auto, pedestrian, and transit circulation. Site design, modulation, and setback requirements should also be addressed. The size and scale of hotels, motels, and institutional uses should be limited in scale so as not to compete with the City Center. Goal LUG6 Transform Community Business areas into vital, attractive, mixed-use areas that appeal to pedestrians and motorists and enhance the community's image. Policies LUP39 Encourage transformation of Pacific High- way (SR-99) Community Business corridor into a quality mixed-use retail area. Retail development along the corridor, exclusive of the City Center, should be designed to integrate auto, pedestrian, and transit circulation. Integration of public amenities and open space into retail and office development should also be encouraged. LUP40 Encourage autaoriented large bulk retailers to locate in the South 348th Street Com- munity Business area. Neighborhood Business There are nearly a dozen various sized nodes of Neighborhood Business located throughout the City. These nodes are areas that have historically provided retail and/or services to adjacent residential areas. This Plan recognizes the importance of firmly fixed boundaries to prevent commercial intrusion into adjacent neighborhoods. An economic analysis done as part of the comprehensive planning process deter- mined that every new resident can support 15 square feet of new commercial use. Based on this multiplier and forecasted population growth, existing sites provide sufficient capacity to accommodate existing and future demand for Neighborhood Business space. Neighborhood Business areas are intended to provide convenient goods (e.g., groceries and hardware) and services (e.g., dry cleaners, dentist, bank) at a pedes- trian and neighborhood scale close to adjacent resi- dential uses. Developments combining residential and commercial uses provide a convenient living environ- ment within these nodes. In the future, attention should be given to design features that enhance their appearance or function of these areas. Improvements may include sidewalks, open space and street trees, and parking either on street or oriented away from the street edge. The function of neighborhood business areas can also be enhanced by safe pedestrian, bicycle, and transit connections to surrounding neighborhoods. The need to address expansion or intensification may occur in the future depending on population growth. Future neighborhood business locations should be carefully chosen and sized to meet the needs of adja- cent residential areas. Revised December 1998 Federai Way Comprehensive Plan Land Use Goal LUG7 Provide neighborhood and community scale retail centers for the City s neighborhoods. ment agreement has established the comprehensive plan designation and zoning (Office Park-4) particular to Enchanted Park. Policies LUP41 Integrate retail developments into surround- ing neighborhoods through attention to quality design and function. LUP42 Encourage pedestrian and bicycle access to neighborhood shopping and services. LUP43 Encourage neighborhood reta�il and personal services to locate at appropriate locations where local economic demand and design solutions demonstrate compatibility with the neighborhood. LUP44 Retail and personal services should be en- couraged to group together within planned centers to allow for ease of pedestrian movement. LUP45 Neighborhood Business centers should consist of neighborhood s.cale retail and personal services. LUP46 Encourage mixed residential and com- mercial development in Neighborhood Business designations where compatibility with nearby uses can be demonstrated. LUP47 Neighborhood Business areas should be served by transit. LUP48 The City shall limit new commercial development to existing commercial areas to protect residential areas. Commercial Recreation The Commercial Recreation designation acknow- ledges the unique recreational opportunity associated with the Enchanted Park property. Enchanted Park is an indoor/outdoor amusement facility most noted for its water park. A preannexation concomitant develop- Office Designations Federal Way is well known for its quality office parks. Developments within the West Campus area embody good design and are representative of desired future office park development. Complementing office pazk development is the addition, through annexation of Weyerhaeuser Corporate Headquarters property, of land for corporate park development. Together, office and corporate park development will provide new job opportunities within the community. Office Park The Office Park designation emphasizes high quality office development that allows for a mix of office and compatible manufacturing type activities. Changes to the Office Park classification will permit a limited amount of retail support services, along with the cur- rent mix of office and light manufacturing uses. Goal LUG8 Create o�ce and corporate park develop- ment that is known regionally for its design and function. Policy LUP49 Continue to encourage quality office development in West and East Campus Office and Corporate Park designations. Corporate Park The Corporate Park designation applies to Weyer- haeuser property generally located east of Interstate Highway 5. The property is a unique site, both in terms of its development capacity and natural features. The Corporate Park land use designation applies only to the Weyerhaeuser Corporate Campus. The Cor- Revised December 1998 II-18 Federal Way Comprehensive Plan Land Use porate Park designation is surrounded by Office desig- nations with OP-1, 2, 3 zoning. The Office Park zones are anticipated to develop as corporate head- quarters, offices and as ancillary uses. These types of developments are characterized by large contiguous sites containing landscaping, open space, and buil- dings of superior quality. The Office Park zones are for the development of other corporate headquarters and office parks that serve to complernent Weyer- haeuser Corporate headquarters. Development stan- dards and conditions for these two designations are unique to Weyerhaeuser's property and are outlined in a preannexation concomitant development agreement entered into by the City and Weyerhaeuser Corporation. 2.8.5 SHORELINE MASTER PROGRAM Purpose The Shoreline Management Act (SMA) identifies seven land and water use elements that, if appropriate to the community, are to be dealt with in the develop- ment of area-wide shoreline goals. They include: shoreline use, economic development, public access, conservation, recreation, historical/cultural, and circulation. Master programs are also encouraged to include any other elements which, because of present uses or future needs, are deemed appropriate to effect- uate the policy of the Shoreline Management Act. Residential land use of shorelines of the state within Federal Way makes up the largest share of the devel- oped shorelines in the city. Much of the undeveloped shoreline is in private ownership, subdivided into small lots and presently zoned to allow for residential use. Because of present and future needs of residential shoreline use, goals and policies have been formulated as part of a residential element to guide and plan for that development. The following comprehensive set of shoreline goals provide the foundation and framework on which the balance of the master program has been based. These goals and policies are reflective of the level of achievement believed to be intrinsically desirable for all shoreline uses, needs, and developments, and establish a program policy commensurate with the intent and objectives of the Shoreline Management Act. The policies contained herein should be enforced through the applicable chapters of the Federal Way City Code. Shoreline Use Element An element which deals with the distribution, (oca- tion, and extent of: 1) the use of shorelines and adjacent areas for housing, transportation, office, public buildings and utilities, education, and natural resources; 2) the use of the water for aquaculture and recreation; and 3) the use of the water, shoreline, and uplands for other categories of land and water uses and activities not specified in this master program. Goal LUG9 Preserve or develop shorelines, adjacent uplands, and adjacent water areas in a manner that assures a balance of shoreline uses with minimal adverse effect on the quality of life, water, and environment. Policies LUP50 Shoreline land and water areas particularly suited for specific and appropriate uses should be designated and reserved for such uses. LUP51 Shoreline land and water uses should satisfy the economic, social, and physical needs of the regional population, but should not exceed the physical carrying capacity of the shoreline areas. LUP52 Where appropriate, land and water uses should be located to restore or enhance the land and water environments. Revised December 1998 9 Federal Way Comprehensive Plan Land Use LUP53 Like or compatible shoreline uses should be clustered or distributed in a rational manner, rather than allowed to develop haphazardly. LUP54 Multiple uses of shoreline should be encouraged where location and integration of compatible uses or activities are feasible. LUP55 Unique and fragile areas of the shoreline should be protected from uses or activities that will have an adverse effect on the land or water environment. a. Shoreline access areas should be plan- ned to include ancillary facilities such as parking and sanitation when appropriate. b. Shoreline access and ancillary facilities should be designed and developed to provide adequate protection for adjacent private properties. LUP59 Public access should be maintained and regulated. LUP56 Non-residential uses or activities which are not shoreline dependent should be encour- aged to locate or relocate away from the shoreline. LUP57 Federal Way shall consider the goals, objec- tives, and policies within the shoreline master program in all land use management actions regarding the use or development of adjacent uplands or the water areas, adjacent uplands and associated wetla�ds or streams within its jurisdiction where such use or development will have an adverse effect on designated shorelines. Public Access Element An element making provision for public access to publicly-owned shorelines and assessing the need for providing public access to shoreline areas. Goal LUG10 Increase public access to shoreline areas provided that private rights, public safery, and the natural shoreline character are not adversely affected. Policies LUP58 Development of public access should respect and protect the enjoyment of private rights on shoreline property. a. Public access should be policed and improved consistent with intensity of use. b. The provision to restrict access as to nature, time, number of people, and area may be appropriate for public pedes- trian easements and other public access areas where there are spawning grounds, fragile aquatic life habitats, or potential hazard for pedestrian safety. c. Facilities in public shoreline access areas should be properly maintained and operated. LUP60 Design of access should provide for the public health, safety, and enjoyment. a. Appropriate signs should be used to designate publicly owned shorelines. b. Within the shoreline environment, pedestrian and non-motorized access should be encouraged. c. Public access to and along the water's edge should be available in publicly owned shorelines that are tolerant of human activity. LUP61 Priority for access acquisition should con- sider resource desirability, availability, and proximity of population. Revised December 1998 II-20 Federai Way Comprehensive Plan Land Use a. A shoreline element in the parks acqui- LUP64 sition and development program should be encouraged so that future shoreline access is acquired and developed by established criteria and standards as part of an overall master plan. LUP62 Public access should be provided in new shoreline developments. a. There should be incentives to encourage private property owners to provide shoreline access. 2. 3. b. Public pedestrian easements should be provided in future land use authoriza- tions, and in the case of Federal Way projects along lakes, streams, ponds, and marine lands, whenever shoreline features are appropriate for public use. Shorelines of the city that include, but are not limited to, any of the following conditions should be considered for pedestrian easements: 1. Areas of significant, historical, geo- logical, and/or biological circum- stances. Areas presently being legally used, or historically having been legally used, by the public along the shore- line for access. Where public funds have been expended on or related to the water body. LUP63 Shorelines of the city should be available to all people for passive use and enjoyment. a. Viewpoints, lookouts, and vistas of shorelines of the city should be publicly accessible. b. New developments shauld minimize visual and physical obstruction of the water from shoreline roads and upland owners. General policies. a. Where appropriate, utility and transpor- tation rights-of-way on the shoreline should be made available for public access and use. b. Publicly-owned street ends which abut the shoreline should be retained and/or reclaimed for public access. c. Shoreline recreational facilities and other public access points should be connected by trails bicycle pathways, and other access links where appropriate. d. Public pedestrian easements and access points should.be of a nature and scale that would be compatible with the abut- ting and adjacent land use as well as natural features, including aquatic life. e. Access development should respect and protect ecological and aesthetic values in the shorelines of the city. Conservation Element An element which deals with the preservation of natural shoreline resources, considering, but not limited to, such characteristics as scenic vistas, park- ways, vital estuarine areas for fish and wildlife protec- tion, beaches, and other valuable natural or aesthetic features. Goal LUGl l Assure preservation of unique and non- renewable natural resources and assure conservation of renewable natural resources for the benefit of ezisting and future generations and the public interest. Revised December 1998 11'2� Federal Way Comprehensive Plan Land Use Policies LUP65 Shorelines which are of unique or valuable natural character should be acquired for public benefit, commensurate with preser- vation of the ecosystem. a. Unique and fragile areas in shoreline areas should be designated and retained as open space. Access and use should be restricted or prohibited when necessary for their preservation. b. When appropriate, Federal Way should acquire those shoreline areas which are unique or valuable. Subsequent use of such areas should be governed by their ecological carrying capacity. LUP66 All renewable natural resources should be managed so that use or consumption does not exceed repienishment. a. Through policies and actions, Federai Way should encourage the management and conservation of fish, shellfish, wild- life, and other renewable resources. LUP67 Resource conservation should be an integral part of shoreline planning. b. In shoreline areas, the natural topog- raphy should not be substantially altered. c. Shoreline structures should be sited and designed to minimize view obstruction and should be visually compatible with the shoreline character. d. Wildlife and aquatic habitats, including spawning grounds, should be protected, improved, and, if appropriate, increased. LUP69 Resources should be managed to enhance the environment with minimal adverse effect. a. Aquaculture in shoreline areas should be conducted with all reasonable pre- cautions to insure the preservation of the natural character and quality of the shoreline. b. Shoreline activity and development should be planned, constructed, and operated to minimize adverse effects on the natural processes of the shoreline, and should maintain or enhance the quality of air, soil, and water on the shoreline. u a. When feasible, Federal Way should ini- tiate programs to reverse any substantial adverse impacts caused by existing shoreline development. b. All future shoreline development should be planned, designed, and sited to mini- mize adverse impact upon the natural shoreline environment. LUP68 Scenic, aesthetic, and ecological qualities of natural and developed shorelines should be recognized and preserved as valuable resources. a. When appropriate, natural flora and fauna should be preserved or restored. c. Any structure or activity in or near the water should be constructed in such a way that it will minimize adverse physical or chemical effects on water quality, vegetation, fish, shellfish, or wildlife. d. Use or activity which substantially degrades the natural resources of the shoreline should not be allowed. LUP70 Salmon and steelhead habitats support valuable recreational and commercial fish- eries. These habitats should be protected because of their importance to the aquatic ecosystem and the state and local economy. Revised December 1998 11-22 Federal Way Comprehensive Plan Land Use a. Salmon and steelhead habitats are: 1. Gravel bottomed streams used for spawning; 2. Streams, lakes, and wetlands used for rearing, feeding, and cover and refuge from predators and high f. Bioengineering is the preferred bank protection technique for rivers and streams used by salmon and steelhead. g. Open pile bridges are preferred for crossing water areas used by salmon and steelhead. waters; 3. Streams and salt water bodies used as migration corridors; and 4. Shallow areas of salt water bodies used for rearing, feeding, and cover and refuge from predators and currents. b Non-water-dependent or non-water- related uses, activities, structures, and landfills should not be located in salmon and steel-head habitats. c. Where alternative locations exist, water- dependent and water-related uses, activ- ities, structures, and landfills should not be located in salmon and steelhead habitats. d. Where uses, activities, structures, and landfills must locate in salmon and steelhead habitats, impacts on these areas should be lessened to the maxi- mum extent possible. Significant una- voidable impacts should be mitigated by creating in-kind replacement habitat near the project where feasible. Where in-kind replacement mitigation is not feasible, rehabilitating degraded habitat may be required. Mitigation proposals should be developed in consultation with the affected local government, the Department of Fisheries, the Department of Wildlife, and affected Indian Nations. Developments which are outside salmon and steelhead habitats but which have the potential to significantly affect these habitats should be located and designed so they do not create significant nega- tive impacts on salmon and steelhead habitats. h. Impervious surfaces shall be minimized in upland developments to reduce storm- water runoff peaks. Structures and uses creating significant impervious surfaces shall include stormwater detention systems to reduce stormwater runoff peaks. i. The discharge of silt into waterways shall be minimized during in-water and upland construction. j. Adopt-A-Stream programs and similar efforts to rehabilitate salmon and steel- head spawning streams are encouraged. k. Fishery enhancement projects are en- couraged where they will not signifi- cantly interfere with other beneficial uses. 1. Project proponents should contact the Habitat Management Division of the Department of Fisheries, the Habitat Division of the Department of Wildlife or affected Indian Nations early in the development process to determine if the proposal will occur in or adjacent to a salmon and steelhead habitat. m. When reviewing permits for uses, activities, and structures proposed for salt water areas, streams, wetlands, ponds connected to streams, and shore- lines adjacent to these areas; staff should contact the Habitat Management Division of the Department of Fisheries or the Habitat Division of the Depart- ment of Wildlife to determine if the pro- posal will occur in or affect an adjacent Revised December 1998 II-23 Federal Way Comprehensive Plan Land Use salmon or steelhead habitat. Staff should also contact affected Indian Nations. Recreation Element An element for the preservation and expansion of all types of recreational opportunities through programs of acquisition, development, and various means of less-than-fee acquisition. paths, periphery parking, and adequate sanitary facilities should only be allowed where appropriate. b. Beaches and other predominantly un- developed shorelines already popular should be available and designated as medium intensity recreational use areas to be free from expansive development; intensity of use should respect and pro- tect the natural qualities of the area. Goal LUG12 Provide additional shoreline dependent and water oriented recreation opportunities that are diverse, convenient, and adequate for the regional population consistent with the carrying capacity of the land and water resources. Policies LUP71 Areas containing special shoreline recrea- tion qualities not easily duplicated should be available for public use and enjoyment. a. Opportunities should be provided for the public to understand natural shore- line processes and experience natural resource features. b. Public viewing and interpretation should be encouraged at or near governmental shoreline activities when consistent with security and public safety. LUP72 Shoreline recreational use and development should enhance environmental quality with minimal adverse effect on the natural resources. a. Stretches of relatively inaccessible and unspoiled shoreline should be available and designated as low intensity recrea- tional use areas with minimal develop- ment. Service facilities such as foot- c. Small or lineaz portions of the shoreline suitable for recreational purposes should be available and designated as transi- tional use areas that allow for variable intensities of use, which may include vista points, pedestrian walkways, water entry points, and access from the water; utilizing stream floodplains, street ends, steep slopes, and shoreline areas adja- cent to waterfront roads. d. At suitable locations, shorelines should be made available and designated as high intensive use areas that provide for a wide variety of activities. e. Overall design and development in shoreline recreational areas should be responsive to the site characteristics of those areas and be consistent with the level of use in the area concerned. f. Recreation areas on the shoreline should have adequate surveillance and maintenance. g, The public should be provided with additional off-site and on-site guidance and control to protect shoreline resources. h. Where a wide berm is needed for dry beach recreation, and physical condi- tions permit sand retention, considera- tion should be given to creating a Class Revised December 1998 II-24 Federal Way Comprehensive Plan Land Use I beach' when such development does not destroy valuable biota or unique physical conditions. Access to recreational shoreline areas afforded by water and land circulation systems should be determined by the concept of optimum carrying capacity and recreational quality. j. Non-water oriented recreational facility development should be kept inland away from the water's edge, except where appropriate in high intensive shoreline use areas. LUP73 The provision of adequate public shoreline recreation lands should be based on an acquisition plan with a clear public intent. LUP74 A balanced variety of recreational oppor- tunities should be provided for people of different ages, health, family status, and financial ability. areas from remote-outdoor undeveloped areas to highly developed indoor- outdoor areas. e. Recreational development should meet the demands of population growth con- sistent with the carrying capacity of the land and water resources. Circulation Element An element dealing with the location and extent of existing and proposed major thoroughfares, trans- portation routes, and other public facilities; and coordinating those facilities with the shoreline use elements. Goal LUG13 a. Appropriate specialized recreation facilities should be provided for the developmentally disabled, or others who might need them. Policies Circulation systems in shoreline areas should be limited to those which are shore- line dependent or would serve shoreline dependent uses. The physical and social environment shall be protected from the adverse effect of those systems on the quality of water, life, or environment. b. Shoreline recreation areas should pro- LUP75 New surface transportation development vide opportunities for different use should be designed to provide the best pos- intensities ranging from low (solitude) sible service with the least possible infringe- to high (many people). ment upon the shoreline environment. Opportunities for shoreline recreational experiences should include developing access that accommodates a range of differences in people's physical mobi- lity, capabilities, and skill levels. d. Shoreline recreational experiences should include a wide range of different �Pursuant to Federal Way City Code, Chapter 18, Article III, Section 18-163, a"Class I beach means a beach or shore having dependable, geologically fully developed, and normally d ry backshore above hi gh tide." a. New transportation facilities and improvements to existing facilities that substantially increase levels of air, noise, odor, visual, or water pollution should be discouraged. b. Transportation conidors should be designed to harmonize with the topog- raphy and other natural characteristics of the shoreline through which they traverse. Revised December 1998 ��'25 Federal Way Comprehensive Plan Land Use c. Surface transportation facilities in shoreline areas should be set back from the ordinary high water mark far enough to make unnecessary such protective measures as rip-rap or other bank stabilization, landfill, bulkheads, groins, jetties, or substantial site regrade. LUP76 Circulation systems should be located and attractively designed so as not to unneces- sarily or unreasonabiy pollute the physical environment or reduce the benefits people derive from their property; a�d they should encourage alternative routes and modes of travel. a. Motorized vehicular traffic on beaches and other natural shoreline areas should be prohibited. b. Transportation facilities providing access to shoreline developments should be planned and designed in scale and character with the use proposed. c. Circulation routes should provide for non-motorized means of travel. LUP77 Circulation systems disruptive to public shoreline access and other shoreline uses should be relocated where feasible. LUP79 General policies. a. New transportation developments in shoreline areas should provide turnout areas for scenic stops and off road rest areas where the topography, view, and natural features warrant. b. Shoreline roadway corridors with unique or historic significance, or of great aesthetic quality, should be retained and maintained for those characteristics. c. New transportation facilities crossing lakes, streams, or wetlands should be encouraged to locate in existing cor- ridors, except where any adverse impact can be minimized by selecting an alter- nate conidor. Residentiai Element An element dealing with housing densities, residential subdivisions, shoreline access, necessary support services, and locations of single-family dwellings (including manufactured homes) and multi-family dwellings without distinction between part-time or full-time occupancy. Goal �J a. Transportation elements disruptive to LUG14 Shoreline residential areas shall permit a the shoreline character which cannot variety of housing types and designs with feasibly be relocated should be condi- densities and locations consistent with the tioned or landscaped to minimize visual ability of physical and natural features to and noise pollution. accommodate them. LUP78 Shoreline circulation systems should be adaptable to changes in technology. a. Federal Way should promote and en- courage modes of transportation which consume the least amount of energy while providing the best efficiency with the least possible pollution. Policies LUPSO Residential developments should be exclu- ded from shoreline areas known to contain development hazards or which would adver- sely impact sensitive areas as identified in Chapter 18, Division 6 of the Federal Way City Code. Revised December 1998 II-26 Federal Way Comprehensive Plan Land Use a. Residential development should be pro- hibited in floodplains within the 100 features of the landscape during site development and construction. year floodplain. LUP82 Residential use of shorelines should not b. Residential development should be pro- displace or encroach upon shoreline depen- hibited in areas of severe or very severe dent uses. landslide hazard. LUP83 Residential densities should be determined c. Residential development should be with regard for the physical capabilities of regulated in shoreline areas with slopes the shoreline areas, public services require- of 40 percent or greater. ments, and effects such densities have on the environment. d. Shoreline areas containing other poten- tial hazards (e. g., geological conditions, un-stable subsurface conditions, erosion hazards, or groundwater or seepage problems) should be limited or restric- ted for development. e. The burden of proof that development of these areas is feasible, safe, and eco- logically sound is the responsibility of the developer. �.UP81 Residential developments should have min- imal impact on the land and water environ- ment of the shoreline and minimize visual and physical obstruction. a. Residential development should be regulated in identified unique and fra- gile areas as required under the city's sensitive areas regulations. b. Residential development on piers or over water should not be permitted. c. Landfill for residential development which reduces water surface or flood- plain capacity should not be permitted. d. In residential developments the water's edge should be kept free of buildings and fences. a. Subdivisions and new development should be designed to adequately pro- tect the water and shoreline aesthetic characteristics. b. New residential development should only be allowed in those shoreline areas where the provision for sewage disposal and drainage ways are of such a stan- dard that adjoining water bodies would not be adversely affected by pollution or siltation. c. Residential development along shore- lines should be set back from the ordin- ary high water mark far enough to make unnecessary such protective measures as filling, bulk headin�, construction groins or jetties, or substantial regrading of the site. d. Residential developments should be designed to enhance the appearance of the shoreline and not substantially inter- fere with the public's view and access to the water. Shoreline Environments Purpose e. Every reasonable effort should be made In order to more effectively implement the goals, to insure the retention of natural shore- objectives, and policies of this master program and the line vegetation and other natural Shoreline Management Act, the shorelines of the state Revised December 1998 11-27 Federal Way Comprehensive Plan Land Use within Federal Way have been categorized into four separate environment designations. The purpose of these designations is to differentiate between areas whose geographical features and existing development pattern imply differing objectives regarding their use and future development. encourage multiple use of the shoreline if the major use is shoreline dependent. Each environment represents a particular emphasis in the type of uses and the extent of development which should occur within it. The system is designeil to en- ourage uses in each environment which enhance the character of the environment while at the same time requiring reasonable standards and restrictions on development so that the character of the environment is not destroyed. The determination as to which designation should be given to any specific shoreline area has been based on, and is reflective of, the existing development pattern; the biophysical capabilities and limitations of the land; and the goals and aspirations of the local citizenry. Each environment category includes: l) a definition describing the development, use, and/or features which characterize the area; (2) a purpose which clari- fies the meaning and intent of the designation; and, (3) general policies designed to regulate use and develop- ment consistent with the character of the environment. Urban Environment The urban environment is an area of high-intensity land use including residential, office, and recreational development. The environment is particularly suitable to those areas presently subjected to intensive land use pressure, as well as areas planned to accommodate urban expansion. The purpose of designating the urban environment is to ensure optimum utilization of shorelines within urbanized areas by permitting intensive use and by managing development so that it enhances and main- tains the shoreline for a multiplicity of urban uses. The environment is designed to reflect a policy of increasing utilization and efficiency of urban areas, promote a more intensive level of use through redevelopment of areas now underutilized, and Policies LUP84 Emphasis should be given to development within already developed areas. LUP85 Emphasis should be given to developing visual and physical access to the shoreline in the urban environment. LUP86 To enhance the waterfront and insure max- imum public use, commercial facilities should be designed to permit pedestrian waterfront activities consistent with public safety and security. LUP87 Multiple use of the shoreline should be encouraged. LUP88 Redevelopment and renewal of substandard areas should be encouraged in order to accommodate future users and make maxi- mum use of the shoreline resource. LUP89 Aesthetic considerations should be actively promoted by means of sign control regula- tions, architectural design standards, land- scaping requirements, and other such means. LUP90 Development should not significantly degrade the quality of the environment, including water quality and air quality, nor create conditions which would accentuate erosion, drainage problems, or other adverse impacts on adjacent environments. Rural Environment The rural environment is intended for shoreline areas characterized by agricultural uses, low density resi- dential (where most urban services are not available), and areas which provide buffer zones and open space between predominantly urban areas. Undeveloped shorelines not planned for urban expansion or which do not have a high priority for designation in an Revised December 1998 II-28 Federal Way Comprehensive Plan Land Use alternative environment and recreational uses com- patible with agricultural activities are appropriate for the rural environment. The purpose of designating the rural environment is to preserve agricultural land, restrict intensive develop- ment along undeveloped shorelines, function as a buffer between urban areas, and maintain open spaces and opportunities for recreational uses within the ecological carrying capacity of the land and water resource. New developments in a rural environment should reflect the character of the surrounding area by limiting density, providing permanent open space, and maintaining adequate building setbacks from the water to prevent shoreline resources from being destroyed for other rural types of uses. Policies LUP91 Recreational access to the shorelines should be encouraged. Recreational facilities should be located and designed to minimize conflicts with other activities. LUP92 New development should reflect the character of the surrounding area by limit- ing residential density, providing permanent open space, and maintaining adequate building setbacks from the water. Conservancy Environment The conservancy environment consists of a shoreline areas which are primarily free from intensive develop- ment. It is the most suitable designation for shoreline areas of high scenic or historical values, for areas un- suitable for development due to biophysical limita- tions, and for commercial forest lands. Conservancy areas are intended to maintain their exis- ting character. This designation is designed to protect, conserve, and manage existing natural resources and valuable historic and cultural areas. The preferred uses are those which are nonconsumptive of the physical and biological resources of the area. Policies LUP93 New development should be restricted to those which are compatible with the natural and biophysical limitations of the land and water. LUP94 Diverse recreational activities which are compatible with the conservancy environ- ment should be encouraged. LUP95 Development which would be a hazard to public health and safety, or would materi- ally interfere with the natural processes should not be allowed. LUP96 The flood hazard overzone regulations shall apply to development within flood plains. LUP97 Structural flood control devices should be strongly discouraged in the conservancy environment. LUP98 In areas with poorly draining soils, develop- ment should not be allowed unless con- nected to a sewer line. LUP99 Development should be regulated so as to minimize the following: erosion or sedi- mentation, the adverse impact on aquatic habitats, and substantial degradation of the existing character of the conservancy environment. Natural Environment The natural environment consists of areas character- ized by the presence of some unique natural features considered valuable in their undisturbed or original condition and which are relatively intolerant of inten- sive human use. Such areas should be essentially free from development or be capable of being easily restored to natural condition, and they should be large enough to protect the value of the resource. Revised December 1998 II-29 Federal Way Comprehensive Plan Land Use The purpose of designating the natural environment is to preserve and restore those natural resource systems existing relatively free of human influence. These systems require severe restrictions of intensities and types of uses permitted so as to maintain the integrity of the natural environment. The policies that make up each use activity have been founded on the premise that all reasonable and appro- priate uses require regulatory control. Other provi- sions such as a view enhancement, public access, erosion control, water quality, long term benefits, and aesthetic considerations have also been reflected in Policies LUP100 Natural areas shouid remain free from all development which would adversely affect their natural character. LUP101 The intensity and type of uses permitted should be restricted in order to maintain the natural systems and resources in their natural condition. LUP102 Limited access should be allowed to those areas in the natural environment. LUP103 Uses which are consumptive of the physical policy statements. Shoreline uses and activities not specifically identi- fied, and for which policies have not been developed, will be evaluated on a case by case basis and will be required to meet the intent of the goals and objectives of this master program, the policy of the Shoreline Management Act, and shall be consistent with the management policy and character of the shoreline environment in which they propose to locate. Aquatic Resource Practices Of all facets of economic shoreline activity, pro- duction from fisheries is the most vulnerable to massive destruction from an error in environmental and biological resources, or which may control. Close monitoring of water quality and an degrade the actual or potential value of the aggressive policy of pollution abatement and control natural environment, should be prohibited. are mandatory for full realization and sustenance of this economic base. LUP104 Uses and activities in locations adjacent to natural areas should be strictly regulated to insure that the integrity of the natural environment is not compromised. Shoreline Use Activities Aquaculture addresses state hatcheries, commercial hatcheries and beds, and natural hatcheries and beds within Federal Way shorelines. Underwater ayuaria are considered as aquaculture although the use is principally recreational. Aquaculture has two modes: Purpose Shoreline use activities are specific uses, or groups of similar uses, that have been outlined by the Depart- ment of Ecology Final Guidelines as being character- istic of the shorelines of the state. They have been formulated as implementing tools to further carry out the intent and policy of this master program and the Shoreline Management Act. They also represent a major criterion to be used in evaluating proposed development and alterations to the shoreline environ- ment; with their ultimate influence, to a large extent, dependent upon how well they are enforced. 1. The harvest of uncontained plant and animal populations that exist on the nutrients and foods available in the environment restock themselves according to the fecundity of the population, and survive as the food and nature allow. 2. Artificial stocking or raising of stock in feedlots or pens using selective breeding and controlled feeding programs for increasing production and rearing a uniform product. Pen culture requires confinement and the presence of fixed structures that compete for space. Pens, rafts, Revised December 1998 II-30 Federal Way Comprehensive Plan Land Use and hatcheries require certain environmental condi- tions to assure the survival of their contained popula- tions. Some of these conditions are small wave forces, good flow, good water quality, temperature limits, good anchoring ground and accessibility, and, pos- sibly, good natural food and nutrient supply. The confinement of fish or shellfish in concentration imposes an extreme biological load in a small area. Dense populations degrade water quality and deposit heavy fecal sediments below the pens or on the floor of embayments. The principal impacts of aquacultural activity within the shoreline are: 1. Pollutants in the water body such as fish, organic wastes, and additives for feeding and disease control. 2. Navigation hazards such as holding pens, rafts, nets, and stakes. LUP109 Aquacultural structures should use open pile construction where significant littoral drift occurs. LUP110 Prior to use of an area for ayuacultural enterprises, consideration should be given to the capability of the water body to absorb potential wastes. LUPlll Shoreline areas having extremely high natural potential for aquaculture should be preserved for that purpose. Commercial Development Commercial development pertains generally to the use or construction of facilities for transaction and sale of goods and services as opposed to industrial develop- ment (treatment together with ports) which pertains to the design and fabrication of products. 3. Watercourse alteration to supply water. 4. Netting and flooring of river beds for spawning channels. 5. Shoreline access limitations where shellfish are being protected and contained. Policies LUP105 Federal Way's support should be given to the State Departments of Fisheries and Game to improve stream conditions, open new spawning areas, and establish new fish runs. LUP106 Pens and structures for commercial aqua- culture should not be located on Class I beaches, or swimming beaches. LUP107 Aquacultural enterprises should be located in areas which would not significantly restrict navigation. LUP108 In aquaculture enterprises, development of multiple aquaculture systems should be encouraged. The principal impact factors upon the shoreline from commercial development are pollutants (e.g., erosion, sedimentary, chemical, and microbial) and aesthetic destruction. Erosive pollutants from commercial development are generated from surface runoff and both surface and sub-surface subsidence. �Chemical pollution is derived from fuel spillage. Microbial loading arises from poor containment of organic wastes associated with human habitation and recrea- tional activities. Policies LUP112 Consideration should be made of the effect a structure will have on scenic value. LUP113 Commercial structures and ancillary facili- ties that are not shoreline dependent or water-oriented should be placed iniand away from the immediate water's edge. LUP114 The use of porous materials should be encouraged for paved areas to allow water to penetrate and percolate into the soil. Use of holding systems should be encouraged to control the runoff rate from parking lots and roof tops. Revised December 1998 11-3� Federal Way Comprehensive Plan Land Use LUP115 Commercial enterprises locating within LUP119 In developed shorelines not served by shoreline areas should be constructed to utilities, utility construction should be withstand normal rain and flooding con- encouraged to locate where it can be shown ditions without contributing pollution to the that water quality will be maintained or watercourse or shoreline. improved. LUP116 Commercial development which is not LUP120 Federal Way should be consulted prior to, shoreline dependent should provide a buffer or at the time of, application for construc- zone of vegetation for erosion control. tion of regional utility facilities to be located in or along shorelines. Utilities Few, if any, utility systems could be installed com- pletely without coming under the jurisdiction of this master program. The focus of the policies in this section is on how these utility facilities within the shoreline environment can be planned, designed, constructed, maintained, and rehabilitated to be consistent with the intent of the Shoreline Management Act. Types of utility facilities in Federal Way vary from regional transmission by trunklines, pipelines, and transmission lines to subregional distribution facili- ties. These are essentially pipes and wires. Regional facilities generally are high voltage or high pressure systems with substantial potential impact in case of failure. Their impacts on the environment are also generally greater because of their scale and safety requirements. The types of utilities covered are communications (radio, TV, and telephone), energy distribution (petroleum products, natural gas, and electricity), water, sanitary sewers, and storm sewers. Policies LUP121 Utility corridors crossing shorelines of the state should be encouraged to consolidate and concentrate or share rights-of-way where: a. Public access (inctuding view) would be improved. b. Concentration or sharing would not hinder the ability of the utility systems to be installed, operated, or maintained safely. c. Water quality would be as good or better than if separate corridors were present. LUP122 Public access consistent with public safety and security should be encouraged where rights-of-way for regional utility facilities cross shorelines of the city. LUP123 New utility facilities should be located so as neither to require extensive shoreline pro- tection nor to restrict water flow, circula- tion, or navigation. LUP117 Utilities which lead to growth should not be LUP124 Utility facilities and rights-of-way should be extended into or along shorelines without selected to preserve the natural landscape prior approval of such extension by appro- and minimize conflicts with present and priate land use authority. planned uses of the land on which they are located. LUP118 Utilities located in shoreline environments inappropriate for development should not make service available to those areas. LUP125 New utility routes should be designed to minimize detrimental visual impact from the water and adjacent uplands. Revised December 1998 II-32 Federal Way Comprehensive Plan Land Use LUP126 New free standing personal wireless service facilities are discouraged from locating within the shoreline environment. Shoreline Protection Shoreline protection is action talcen to reduce adverse impacts caused by current, flood, wake, or wave action. This action includes all structural and non- structural means to reduce these impacts due to flooding, erosion, and accretion. Specific structural and nonstructural means included in this use activity are bulkheads, rip-rap, bank stabilization, and other means of shoreline protection. The means taken to reduce damage caused by erosion, accretion, and flooding must recognize the positive aspects of each, so that the benefits of these natural occurrences will be retained, even as the problems are dealt with. Erosion does not exist without accretion of material eroded, be it a bench or a sandbar. Likewise, accretion cannot occur unless material has been eroded. Policies LUP127 Structural solutions to reduce shoreline damage should be allowed only after it is demonstrated that nonstructural solutions would not be able to reduce the damage. LUP128 Planning of shoreline protection should encompass sizable stretches of lake or marine shorelines. This planning should consider off-site erosion, accretion, or flood damage that might occur as a result of shoreline protection structures or activities. LUP129 Shoreline protection on marine and lake shorelines should not be used as the reason for creating new or newly usable land. LUP130 Shoreline protection structures should allow passage of ground and surface waters into the main water body. LUP131 Shoreline protection should not reduce the volume and storage capacity of rivers and adjacent wetlands or flood plains. LUP132 Whenever shoreline protection is needed, bioengineered alternatives such as natural berms and erosion control vegetation plans should be favored over hard surfaced struc- tural alternatives such as concrete bulkheads and sheet piles. LUP133 The burden of proof for the need for shore- line protection to protect existing or pro- posed developments rests on the applicant. LUP134 Shoreline protection activities which may necessitate new or increased shoreline protection on the same or other affected properties where there has been no previous need for protection should be discouraged. LUP135 New development should be encouraged to locate so as not to require shoreline protection. LUP136 Areas of significance in the spawning, nesting, rearing, or residency of aquatic and terrestrial biota should be given special consideration in reviewing of shoreline protection actions. LUP137 Shoreline protection actions should be discouraged in areas where they would block beach parent material. LUP138 Multiple use of shoreline protection struc- tures or nonstructural solutions should be encouraged. Transportation Facilities The circulation network use category addresses trans- portation facilities such as roads, railroads, bridges, trails, and related facilities. The impact of these facil- ities on shorelines can be substantial. Some existing facilities were constructed to serve transportation needs of the moment with a minimum expenditure and very little assessment of their primary or secondary Revised December 1998 II-33 Federal Way Comprehensive Plan Land Use impacts on shoreline aesthetics, public access to the water, and resultant effects on adjacent properties and water quality. Planning for new transportation facil- ities within the shoreline area today requires a greater awareness of the environmental impacts transportation facilities will have on shorelines, in addition to the necessity for integrating future shoreline land use plans with the transportation system that serves developments on the shoreline. Policies LUP139 Pedestrian access should be built where access to public shorelines is desirable and has been cut off by linear transportation cor- ridors. New linear facilities should enable pedestrian access to public shorelines where access is desirable. LUP140 New surface transportation facilities not related to, and necessary for the support of, shoreline activities should be set back from the ordinary high water mark far enough to make unnecessary protective measures such as rip rap or other bank stabilization, land- fill, bulkheads, groins, jetties, or substantial site regrade. LUP141 Shoreline transportation facilities should be encouraged to include in their design and development multi-modal provisions where public safety can be assured. LUP142 Shoreline transportation facilities should be planned to fit the topography and minimize cuts and fills; and should be designed, lo- cated, and maintained to minimize erosion and degradation of water quality and to give special consideration to shoreline aesthetics. LUP143 Transportation and utility facilities should be encouraged to coordinate joint use of rights-of-way and to consolidate crossings of water bodies when adverse impact to the shoreline can be minimized by doing so. LUP144 Transportation facilities should avoid shore- hazards (e.g. slide and slump areas, poor foundation soils, marshes, etc.). LUP145 Transportation facilities should minimize shoreline rights-of-way by orienting gener- ally perpendicular to the shoreline where topographic conditions will allow. LUP146 Shoreline roadways should have a high priority for arterial beautification funds. LUP147 Abandoned road or railroad rights-of-way which contain unique shoreline amenities should be acquired for public benefit. LUP148 Federal Way should extend its trail and bicycle trail system, particularly as it relates to shorelines, to western Federal Way. LUP149 All transportation facilities in shoreline areas should be constructed and maintained to cause the least possible adverse impacts on the land and water environments, should respect the natural character of the shore- line, and should make every effort to pre- serve wildlife, aquatic life, and their habitats. Piers and Moorages A pier is a structure built over or floating upon the water extending from the shore. Some are used as a landing place for marine transport or for recreational watercraft. Piers are designed and constructed as either water (floating) or pile supported, both of which have positive and negative environmental aspects. Floating piers generally have less of a visual impact than those on piling and they provide excellent protec- tion for swimmers from boat traffic. Floating piers however, interrupt littoral drift and can starve down cunent beaches where pile piers do not. Pile piers can provide a diverse habitat for marine life. Both types can create impediments to boat traffic and near-shore trolling. Pier construction requires regulation to pro- tect navigation rights, preserve shoreline aesthetics, and maintain the usable water surface and aquatic lands for life forms characteristic and important to those areas. u line areas known to contain development Revised December 1998 II-34 Federal Way Comprehensive Plan Land Use Policies fragile areas, submerged lands, and shoreline vegetation. LUP150 Open pile pier construction should be pre- ferred where there is significant littoral b. The effect such structures have on navi- gation, water circulation, recreational and commercial boating, sediment movement and littoral drift, and shore- line access. drift, where scenic values will not be im- paired, and where minimal alteration to the shoreline and minimal damage to aquatic resources can be assured. LUP151 Floating pier construction should be pre- LUP158 Moorage buoys should be preferred over ferred in those areas where scenic values are floating and pile constructed piers on all high. tidal waters. LUP152 Piers should be discouraged where conflicts LUP159 Floating structures and open pile structures with recreational boaters and other recrea- are preferred over landfills or solid struc- tional water activities would be created by tures in water areas used by salmon and pier construction. steelhead. LUP153 The random proliferation of single purpose piers should be discouraged. Preference should be given to shared use of piers in all shoreline areas. LUP154 Temporary moorages should be permitted for vessels used in the construction of shoreline facilities. The design and con- struction of such moorages shall be such that upon termination of the project the aquatic life can be returned to their original condition within one year at no cost to the environment or the public. LUP155 Shoreline structures that are abandoned or structurally unsafe should be abated. LUP156 Substantial additions or alterations, inclu- ding but not limited to substantial develop- ments, should be in conformance with the policies and regulations set forth in the master program. LUP157 Piers, docks, buoys, and other moorages should only be authorized after consid- eration of: Recreation Recreational experiences that depend on, or utilize, the shoreline include: harvesting activities of fish, shellfish, fowl, minerals, and driftwood; various forms of boating, swimming, and shoreline pathways; and watching or recording activities, such as photography, painting, or the viewing of water dependent activities. Principal focal points are at parks and access beaches, road ends, viewpoints, features of special interest, water-access points, and destination points for boaters. Facilities at these focal points may include fishing piers, swimming floats, paths, parking areas, boat ramps, moorings, and accessory recreational facilities. The management of recreational land is determined by balancing the recreational carrying capacity (or impact of the environment on people) and the ecological car- rying capacity (the impact of people on the environ- ment). Measures to accomplish this are by designation of areas for use-intensity, interpretation, and regula- tion. These different recreational use areas coincide with the four environments—natural, conservancy, rural, and urban. There are multiple benefits derived from the park program, for example: recreational lands contribute substantially to open space by conser- vation of land, preserving historic sites, offering aesthetic relief and variety, contributing to a healthful environment, and shaping and preserving the com- munity form. In addition to the provisions of recrea- a. The effect such structures have on wild- life and aquatic life, water quality, scenic and aesthetic values, unique and Revised December 1998 II-35 Federal Way Comprehensive Plan Land Use tional opportunities, Federal Way coordinates with other governmental agencies, commercial, and volun- teer groups to provide these opportunities for the public. The policies are directed toward providing shoreline dependent and water oriented recreational opportunities. They are also directed at protecting health and safety by separating incompatible activities and channeling them into their most appropriate environments. LUP168 Underwater parks should be extensions of shoreline parks, or be created or enhanced by artificial reefs where natural conditions Policies LUP160 The development of recreational acquisition plans should give emphasis to the acqui- sition of prime recreation lands prior to their being preempted for other uses. LUP161 In open spaces having an established sense of nature, improvements should be limited to those that are necessary and unlikely to detract from the primary values of the site. LUP162 The siting of all developments should aim to enhance and protect the area concerned. LUP163 Structural forms should harmonize the topo- graphy, reinforce the use area, minimize damage to natural resources, and support recreation with minimal conflict. LUP164 New buildings should be made sympathetic to the scale, form, and proportion of older development to promote harmony in the visual relationships and transitions between new and older buildings. LUP165 Whenever possible, natural materials should be used in developing shoreline recreational areas. LUP166 Artificial irrigation and fertilization should be restricted to high-intensity use areas. LUP16'7 Existing buildings that enhance the char- acter of the shoreline should be used for recreation wherever possible. or aquatic life could be observed with minimal interference. LUP169 Public recreational shoreline areas should serve as emergency havens of refuge for boaters. LUP170 Physical and/or visual access to the water should use steep slopes, view points from bluffs, stream valleys, and features of special interest where it is possible to place pathways consistent with public safety with- out requiring extensive flood or erosion protection. LUP171 The acquisition of public easements to the shoreline through private or quasi-public shorelines should be encouraged. LUP172 Existing public recreation shorelines should be restored where it is possible to reveg- etate; resite roads and parking areas that are close to the shoreline; and remove stream channelization and shoreline protection devices when the facility has either deterio- rated or is inconsistent with the general goals of this program. LUP173 Prime fishing areas should be given priority for recreational use. LUP174 Boating activities that increase shore ero- sion should be discouraged. LUP175 Effective interpretation should be provided to raise the quality of visitor experiences and provide an understanding of the resource. Residential Development The shorelines in Federal Way are more widely used for residential purposes than for any other use. Much of the undeveloped shoreline is privately-owned, sub- Revised December 1998 11-36 Federal Way Comprehensive Plan Land Use divided into small lots, and zoned to permit residential development. The pressure to develop shorelines for residential uses has continued to result in property subdivision and escalating waterfront land values. Residential devel- opment of shorelines is accomplished in a variety of ways from large plats and subdivisions to single lot development for housing; any of which, if poorly planned, can culminate in the degradation of the shoreline environment and water resource. The Shoreline Management Act generally exempts "...construction on shorelands by an owner, lessee or contract purchaser of a single family residence for his own use or the use of his family..." from its permit requirements. However, even though single family homes are not considered substantial developments, the intent of the act has established the basis for planning and regulating them. Policies LUP181 The established velocity, quantity, and quality of stormwater discharge should be considered in terms of the sensitivity of the proposed receiving environment. The dis- posal mode selected should minimize changes in infiltration, runoff, and ground- water recharge. LUP182 Developers of recreational projects such as summer homes, cabins, campgrounds, and similar facilities should satisfactorily demonstrate: a. The suitability of the site to accom- modate the proposed development without adversely affecting the shore- line environment and water resource. b. Adequate provisions for all necessary utilities, including refuse disposal, and the compatibility of the development with adjacent properties and surroun- ding land uses. LUP176 Residential developments should be per- mitted only where there are adequate pro- visions for utilities, circulation, access, site layout, and building design. LUP177 Subdivisions should be designed at a level of density, site coverage, and occupancy compatible with the physical capabilities of the shoreline and water body. LUP178 Residential development plans submitted for approval should contain provisions for protection of groundwater supplies, erosion control, landscaping, and maintenance of the shoreline integrity. LUP179 Residential subdivisions should be designed so as to protect water quality, shoreline aesthetic characteristics, vistas, and normal public use of the water. LUP180 Subdivisions should provide public pedes- trian access to the shorelines within the development in accordance with public access element of this master program. c. That recreational opportunity exists on the site and does not depend on adjacent public land to furnish the activity. 2.9 ESSENTIAL PUBLIC FACILITIES Pursuant to the GMA, no comprehensive plan can preclude the siting of essential public facilities and each should include a process for siting essential public facilities. The GMA includes these provisions because siting certain public facilities has become dif- ficult due to the impacts many of these facilities have on the community. In Chapter 22 of the Land Use Regulations, the City has defined essential public facilities and provided a land use. process for siting them. Essential public facilities include those facilities that are typically difficult to site, such as airports, state or regional transportation systems, correctional facilities, and mental health facilities. Revised December 1998 II-37 Federal Way Comprehensive Plan Land Use Policy LUP183 The City Code shall include a list of locally defined essential public facitities which shall include the list of essential state public facilities maintained by the office of finan- cial management. 2.10 PHASING Phasing focuses growth to those areas where public investments for services are targeted. By doing so, these areas become more attractive for development. Consistent with CWPP's, Federal Way proposes to use a tiered system for accommodatin� future growth. The primary purpose of this technique is to assure a logical sequence of growth outward from developed areas. Future growth will be directed to the City Center and other areas with existing infrastructure and urban services. This will be followed by focusing growth to areas where in-fill potential exists. Lastly, growth will be directed toward areas of undevetoped land or to the City's potential annexation area. For those areas of the City that are lacking services, these lands should be retained or reserved until build out has occurred in developed areas. Based on phased growth concept outlined above, the City should develop criteria for a phasing plan over the next 10 and 20 years. Phased growth will promote efficient use of land by: Reducing talcpayers costs by locating new development nearest to existing urban services; Adding predictability to service facility planning; Reducing commuter miles and protecting air quality by locating housing and jobs near each other; Encouraging in-fill and redevelopment where environmental impacts have already occurred; and Reserving land for future parks and open space. Policies LUP184 Establish priority areas for public facility and service improvements, especially for transportation. These priority areas should be located where public facility and service improvements would effectively advance Federal Way's growth vision. Priority areas will shift over time as improvements are installed and an acceptable level of service is attained. LUP185 When and where service deficiencies are identified, the City, along with service pro- viders, will develop capital improvements programs to remedy identified deficiencies in a timely fashion or will phase growth until such programs can be completed. LUP186 Work with King County through the devel- opment of an interlocal agreement to assign phasing to the City's potential annexation area. LUP187 The City should limit spending on capital facilities in those areas of the City and potential annexation area that are not desig- nated as priority areas for capital projects. 2.11 INCENTIVES In certain designations, incentives allowing more development than otherwise permitted should be used to encourage features which provide a public benefit and/or contribute to the mitigation of growth impacts. For example, development in the City Center that provides common open space or affordable housing units, may gain additional floors or a reduction in the number of parking stalls. Incentives can play an u u Revised December 1998 II-38 Federal Way Comprehensive Plan Land Use important role in the development of the City Center and must be substantial enough to influence market conditions by making them attractive to the develop- ment community. Policies LUP188 Develop incentives to encourage desired development in commercial areas, espec- ially in the City Center Core and Frame. LUP189 Consider incentives for desired multiple family residential development (town- houses, duplexes; etc.). 2.12 HISTORIC RESOURCES Historic preservation involves the identification, maintenance, renovation, and reuse of buildings and sites important to a community's history. Buildings or sites may be associated with a particular style or period in the community's past, or with historic or significant historic events or persons. Historic preser- vation to date has largely been undertaken by the Historical Society of Federal Way. Historic preserva- tion is listed as the thirteenth goal in the GMA which encourages jurisdictions to, "Identify and encourage the preservation of lands, sites, and structures, that have historical or archaeological significance." Goal LUG15 Use historic resources as an important element in the overall design of the City. Policies LUP190 Identify vista points and landmarks such as major trees, buildings, and land forms for preservation. LUP191 Develop a process to designate historic landmark sites and structures. Use devel- oper incentives or other mechanisms to ensure that these sites and structures will continue to be a part of the community. LUP192 Recognize the heritage of the community by naming (or renaming) parks, streets, and other public places after major figures and/ or events. LUP193 Zoning should be compatible with and conducive to continued preservation of historic neighborhoods and properties. LUP194 Safeguard and manifest Federal Way's heritage by preserving those sites, buildings, structures, and objects which reflect significant elements of the City's history. LUP195 Catalog historic sites using the City's gea graphic information system. LUP196 Undertake an effort to publicly commem- orate historic sites. LUP197 The City shall continue to work with the Historical Society of Federal Way towards attainment of historic resource policies. 2.13 IMPLEMENTATION The following actions are recommended to implement the policy direction outlined in this chapter. Imple- mentation will occur over time and is dependent on resources available to the City and community. The following items are not listed in order of importance or preference. Establish Comprehensive Planning and Zoning for Potential Annexation Area Comprehensive planning and the assignment of zoning designations should be completed for the City's potential annexation area. This will provide the City with needed direction relating to future annex- ations and growth. Planning for this area pursuant to WAC 365-195 requires a considerable planning effort Revised December 1998 II-39 Federal Way Comprehensive Plan Land Use and policy development. An interlocal agreement between King County and the City regarding planning actions should be prepared. Residential Code Revisions for Multiple Family Residential code revisions to implement design stan- dards for multiple family residential development are in the process of being prepared and are anticipated to be adopted in late 1998. Subdivision Code Revisions Amendments to the subdivision code have been adopted to bring the code into compliance with State law and recent State legislation. Revisions to the sub- division code have provided platting options for single family development, such as clustering and zero lot line development. Area Rezone Following adoption of the 1995 Comprehensive Plan, a new zoning map was prepared and adopted to sup- port the comprehensive plan designations. This update includes some site specific requests for changes to comprehensive plan designations. The zoning map will be amended to conform to the changes in land use designations. The Land Use Plan and The Zoning Code Implementation of policies and goals of the Land Use chapter is done in large part through the zoning code. Following adoption of the 1995 Comprehensive Plan, the City made revisions to the zoning code, consistent with Comprehensive Plan direction. The zoning con- version chart, Table II-5, shows the connection between the various zoning designations and the Com- prehensive Plan designations. Phasing Plan A phasing plan shall be prepared to prioritize areas of new growth based on available and proposed infra- structure improvements. Project Environmental Impact Statement for City Center To facilitate growth in the City Center and Frame, the City should complete an environmental impact state- ment (EIS). By doing so, development consistent with the direction outlined in the EIS will not have to go through prolonged environmental review. This can be a powerful incentive for private development in the City Center. Subarea Plans Over the years, citizens from various areas of the City have come forth to testify before the Planning Com- mission and City Council regarding their neighbor- hood or business area. Development of subarea plans can lead to area specific visions and policies. This type of specific planning, developed with citizen input and direction, can lead to improved confidence and ownership in the community. Areas where sub-area planning should be considered include: SR-99 Corridor, South 348th Street area, and Twin Lakes neighborhood. Incentives Develop an incentives program, for both residential and commercial development. Incentives should be substantial enough to attract development and should be used to create affordable and desired types of housing and to encourage development within the City Center. Revised December 1998 II-40 Federal Way Comprehensive Pian Land Use Table II-S Land Use Classifications Flan Classification Zoning Classification Single Family Low Density Residential Suburban Estates (SE), one dwelling unit per five acres SingleFamily -,Medium Density Residential RS 35,000 15,000 'Single Family -�iigh Density Residentisl RS 9600, 720Q 5000 MWti-Family Residentisl RM 360Q 2400, 1800 City Center Core City Center Core City Center Frsme City Center Frame Office Office Puk Office Park 1, 2, 3- Professional Office 'Community Business Community Business Business Park Business Pazk Neighborhood Business Neighborhood Business Corporate Park Corporate Park-1 Commercial Recreation Office Park-4 Open 5pace Parks A variety of zoning is assigned. J Revised December 1998 11'4� i _ --- -- � , i - I � , , --- __ 'r _ _ ; � i �� _ � I a � � �a 0 m 0 � Fro�m Vi��o�� to Plan Federal Way Comprehensive Plan Transportation 3.0 INTRODUCTION he Transportation chapter of the Comprehen- sive Plan establishes the framework for pro- viding a transportation system (facilities and services) and focuses on actions needed to create and manage the transportation infrastructure and services. The GMA (RCW 36.70AA20[3]), "...encourages efficient multi-modal transportation systems that are based on regional priorities and coordinated with county and city comprehensive plans." In addition, the act outlines guidelines for the preparation of the transportation plan, which is a mandatory element of the plan. Specifically, these guidelines (RCW 36. 70A.070[6]) include: The land use assumptions used in the plan; Facility and service needs, including: An inventory of existing facilities; Level of service standards for all facilities and services; An action plan for bringing system deficits up to standard; Forecasts of future traffic growth; and Identification of system expansion and trans- portation system management needs. A financing plan which includes: A comparison of funding needs vs. available resources; A six-year financing strategy; and An assessment of how funding deficits will be managed. Intergovernmental coordination efforts; A demand management strategy; and A concurrency management strategy. This transportation plan is consistent with GMA reyuirements in terms of the general policy direction and that it includes all components required in a GMA compliant plan. This plan is also consistent with the direction provided by the Metropolitan Transportation Plan as outlined in Vision 2020 and the Land Use chapter in this compre- hensive plan. As discussed in Vision 2020, this plan proposes a more diverse, multi-modal transportation system by encouraging viable alternatives to the single occupant vehicle, including car and van pooling, non- motorized vehicles, and improved public transit which allows integration for a possible future Hi�h Capacity Transit system. T'his comprehensive plan also includes a land use chapter which is supportive of this vision and the region's transportation future. It encourages densities and intensities in locations that support a more diverse, multi-modal transportation system. Finally, this transportation plan conforms with the Countywide Planning Policies (CWPP's) for King County as adopted in 1992 and amended in 1994. These policies include Framework policies FW 18-20 and Transportation Polices T1-T23. In essence, these Policies encourage development of a High Capacity Transit System, Public Transit, High Occupancy Vehicles, Transportation Demand Management and Systems Management options, Non-Motorized Travel, and regional coordination and cooperation. The poli- cies also discuss the importance of level of service standards as they relate to financing and concurrency management strategies. Background The process of providing a transportation system involves numerous agencies at the local, state, and national levels. The cycle of providing a system involves planning, change approval, funding, imple- menting, operating, monitoring, and administering the elements of the system. Some components are provided by other agencies, such as METRO and WSDOT; the City can only influence their efforts and system components. The Transportation chapter, including the administra- tive procedures developed from it, guides the provision of facilities. Until recently, the cycle of planning and providing facilities could be summazized as shown in Figure III-1. Revised December 1998 III-1 Federal Way Comprehensive Plan Transportation HISTORICAL TRANSPORTION INFRASTRUCTURE THE PLANNING IMPLEMENTATION CYCL E Land Use Plan Transportation Plan Transportation Improvement Program Regional, State 8� Federal Funding Application Process Funding Implementation Process Design Right-of-Way Bidding Construction Operation Figure III-1 Revised December 1998 111-2 Federal Way Comprehensive Plan Transportation u Through a combination of national and state legis- lation, as well as regional planning efforts, the process has been changing in recent years. Physical and eco- nomic limitations of continued expansion of the high- way system and other factors such as environmental issues have been key factors in the shift. Figure Ill-2 reflects the process as it might be viewed today. Areas of Required Action The City has direct influence over certain aspects of the transportation system and indirect influence over others. Table III-1 provides a structure for under- standing these areas of responsibility. It also reflects the organization of the remainder of the chapter for the Transportation Plan. The Growth Management Act requires that the Puget Sound Regional Council certify the transportation chapters of local comprehensive plans. Certification is based upon conformity with state legislation con- cerning transportation chapters and consistency of the City's plan with the Metropolitan Transportation Plan, which has become known as Vision 2020. Conformity focuses on five requirements for the Transportation chapter: Consistency with the Land Use chapter. Identification of facility and service needs. A financial plan to support the transportation plan. An intergovernmental coordination plan. Development of Transportation Demand Management strategies. Table III-1 Transportation Plan Chapter Subsection Section Facility/Service Example of City Activities 3.0 Introduction N/A 3.1 Streets and Roadways Provision, maintenance, and better use of streets. 3.2 Transportation System Management Geometric and signalization improvements, access management, capacity enhancements. 33 Non-Motorized Transportation Sidewalks, bike trails, transit access, ways between/within neighborhoods. 3.4 Transportation Demand Management Alternate modes (carpool, vanpool, transit), pazking policies, CTR legislation. 3.5 Local and Regional Transit Buses, provision for stops, etc. in design standards, land uses, corridors, transit centers. 3.6 HOV Facilities HOV lanes, transit signal priority, park ride lots/transit centers. 3.7 Aviation Design guidelines for heliports; Influence regional airport efforts. 3.8 Freight and Goods Develop local standards and truck routes; SR 167-99 planning. 3.9 Marine Plan and accommodate ancillary needs of Port of Tacoma 3.10 Implementation Strategies Financing (improvement districts, impact fees, grants). Implementation (ptioritiza- tion and programming). Monitoring (traffic counts, accident rewrds, plan compazison). Revised December 1998 III-3 Federal Way Comprehensive Plan Tra�sportation CURRENT MULTIMODAL TRANSPORTATION SYSTEMS PLANNING, IMPLEMENTATION MANAGEMENT Land Use Ysion Fedetal Legislation Exis6ng Condi6ons StateLegisladon LOS Standands Regionai Potiaes Transportatio� Plan Facitities Services Local Transportation Improvement Program Region/State Regional Systems, Policies, Agreements, Etc. Transportation System Management Funding IMPLEMENTATION Local Regionat Strcets Roads Tr�sit System Transit Amenities FGghways/MOV System TOM Programs TDM Programs Non-Motorized Non-Mototized OPERATION MONITORING Figure III-2 �J s Revised December 1998 III-4 Federal Way Comprehensive Plan Transportation Existing Conditions Biking and walking modes are used for about seven percent of all trips. The value is somewhat lower for work trips. The following sections provide a summary of Federal Way's existing transportation characteristics. This information was developed during the preparation of the 1993 Community Profile report. Who Travels Where and Why? Travel patterns in the Federal Way planning area are shown on Map III-1. About 57 percent of person trips originating each day in Federal Way are completed within the City and the immediate area. One in three trips originating in the City are destined to points along the Seattle/Tacoma high capacity transit conidor. Nearly '75 percent of Federal Way travel is focused on the residence, either as the point of origin or destination. How Do People Travel? As in much of suburban King County, the Single Occupant Vehicle (SOV) is the dominant mode of long distance travel. Nearly 8 out of 10 work trips occur by this mode. Between I S and 20 percent of all work trips are made by High Occupancy Vehicles (HOV's). Of these, less than three percent are by transit. What Role Do Park Ride Lots Play? Park and ride facilities are in high demand in Federal Way, as throughout the region. Of today's three lots, with a total of 1,900 spaces, nearly all are filled on the average weekday. Adding a lot at 21st SW at SW 344th (northeast corner) will increase area capacity by about 650 stalls. How- ever, Metro studies have identified the need to double the present supply by 2010. Utilization of the existing park ride lots (at South 272nd, South 320th, and South 348th) is a mix of regional traffic. Federal Way users range from a low of 44 percent in the South 272nd Street lot to a high of 60 percent in the South 348th Street facility. Are There Areas Needing Increased Transit Service? Areas outside Federal Way which generate or attract city trips and which are not heavily ser- viced by transit include: The Kent Valley (Renton, Kent, Auburn, and Puyallup). Tacoma. Rainier Valley Duwamish South. Are There Existing Street Deficiencies? The average occupancy of vehicles is similar to Congested intersections are located predominately the suburban Seattle average at 1.2 people per in the City Center area and along Highway 99. vehicle. Raising the average occupancy would EasUwest routes which experience high levels of reduce congestion. demand include South 320th Street and South 348th Street. Most area employers (68 percent of those respon- ding to a City survey) reported that bus service exists within one block of their work place. Traffic accidents cost travelers in the city over $14 million per year. Most accidents are conges- tion related. Revised December 1998 III-5 MAP III-1 Federal Way Comprehensive Pian Transportation Federal Way's Subarea Roles In establishing a future direction for the City's trans- portation system, it is vital not only to understand existing characteristics of travel, but also the nature of land uses which generate travel. Subareas of the City are readily identifiable. They range from mixed use centers along the I-5 corridor to residential areas which developed with widely varied land use patterns. Following is a summary of the pre- sent characteristics in the subareas of the City. Western Residential Area u The Western Residential Area consists primarily of suburban type dwelling units. Over half of all residen- tial dwellings in the study area are in this area. While transit is provided to the area, the development pat- terns have been designed to accommodate the auto and not transit. The steady progression of residential development in the western areas of the City has resulted in a mix of middle and upper income residences. Dwelling unit density is around three to five units per acre. This density does not readily support transit service, nor does the existing street pattern (cul-de-sacs and few through roads). For example, the Twin Lakes area was designed with serpentine, discontinuous streets and cul-de-sacs which make it difficult for transit penetra- tion and pedestrian connectivity. In general, there are too few streets; the arterial streets are used for nearly all traffic circulation, and there is a strong need for more east/west corridors. The present street pattern focuses eastlwest trips from the Western Residential Area into the business core. This, combined with the north/south commute pat- terns, (predominantly to work centers along the I-5 and SR-99 conidors) and business district generated commercial and retail trips, results in high congestion in the business district, especially during the evening commutes. Commercial Core Area The primary commercial areas lie west of I-5 and east of about l lth Place South. This includes SeaTac Mall retail, SR 99 corridor, and office uses in the West Campus area. About I 1,000 job opportunities attract Federal Way and regional trips to this area. Consumers and clients of core area businesses also contribute to the travel patterns of the area. While the Western Residential Area contains the highest con- centration of housing, the Core Area witnesses the greatest traffic demand. Today's 77,000 evening peak hour trips to and from the area are expected to in- crease to nearly 116,000 trips by 2015. Compounding the problems associated with the attractiveness of the area, trips beginning and ending in the Western Resi- dential Area are funneled through this area by the limited system of east-west arterial streets, principally South 320th and South 348th as these connect to I-5. There is a need for improved circulation, fewer com- mute trips to help reduce peak period congestion, improved transit and access to transit, and a means to improve goods and services circulation both internally and to the regional transportation networks. East of I-5 Area The lowest level of development in and about the City falls east of I-5, within Federal Way's Potential Annexation Area. This presents the possibility of large increases in travel demand in the future. As this devel- opment occurs, it will be imperative to the success of the overall vision that supportive development and transportation patterns be encouraged. In other words, there is a need for a sufficient grid of more inter- connecting streets. Regional Perspective Vision 2020, developed in the early 1990's, was updated in 1995 by the Puget Sound Regional Council (PSRC) as its Metropolitan Transportation Plan (MTP). The objective is to assure compliance with federal and state legislation which has been enacted Revised December 1998 Federal Way Comprehensive Plan Transportation since the original adoption of the metropolitan plan. Key strategies of Vision 2020 include: Determines modal performance expectations. Creation of a regional system of central places framed by open space. Investment in a variety of mobility and demand management options to support the central places. Maintain economic opportunity while managing growth. Conservation of environmental resources. Early mitigation of adverse effects of concentra- ting development. Monitoring and updating of Vision 2020. Documents needed improvements under Vision 2020, incorporating local level growth manage- ment plans, financial needs, and a regional con- gestion management system. A structure for monitoring progress towards the achievement of the plan and improvement to mobility issues is being designed. The City's role in this pro- cess has already been established through the involve- ment of key staff and elected officials at the regional and state levels. Coordination and planning with PSRC, WSDOT, METRO, King County, and the Sound Transit principally is an on-going local effort. Service Providers The Metropolitan Transportation Plan (MTP) is the Table III-2 lists key service providers in the region, product of the current planning efforts. It is coordin- and their primary functions with which the City main- ated and managed by PSRC and: tains contacts through the planning process. Pertinent information on the impacts of their programs are Identifies the transportation system of regional noted in the text of the plan. significance. Table III-2 Key Service Providers Service Providers Primary Functions The State Department of Transportation (WSDOT) State Highways, Park Ride lots, HOV lanes METRO Transit, Park Ride, CTR Coordination Sound Transit High Capacity Regional Transit Pierce Transit Transit, Park Ride, CTR Coordination Pierce County Connecting Roadways 8c Tr�c and Land Use Change Impacts King County Connecting Roadways, Traffic Control Devices Maintenance, Traffic and Land Use Change Impacts Private Utilities Puget Sound Energy, US West, and TCI for Utilities on ROW Lakehaven Utility District Utilities Within Right of Way Fire District Fire Hydrants in Right of Way Neighboring Cities Tacoma, Des Moines, Kent, Auburn, Pacific, Algona, Edgewood, Milton, and Fife for Tr�c and Land Use Change Impacts. Connecting Roadways u Revised December 1998 111-8 Federal Way Comprehensive Plan Tra�sportation The City is well positioned to capitalize on its close proximity to the Ports of Tacoma and Seattle, and the SeaTac Airport. It is important to maintain e�cient access and to support the viability of these inter- national transportation facilities. Summary of Major Needs In summary, Federal Way has defined its role through the end of the 20th Century and into the 21 st Century as one supporting the regional direction; becoming an urban center and developing the appropriate combina- tion of transportation services and facilities to support the inherent development pattern of the proposed land use plan. The following major needs or improvements are related to transportation in Federal Way: Assure Port and SeaTac Airport access. Assure free moving intra- and inter-state high- ways. This provides free moving people, freight, and goods to maintain economic viability of the region. Provide a transportation system that supports the City's Land Use Plan. Provide for additional arterial streets and inter- connecting streets in both business and residential areas to reduce congestion and reliance on the few existing arterials. Provide additional easdwest arterials or other ways to relieve east/west travel congestion. lmprove pedestrian and bicycle facilities with better access between cul-de-sacs, neighborhoods, to transit corridors and centers, and within business areas. Provide alternatives to SOV's to reduce their use, relieve congestion on streets (especially in peak hours), and provide more rapid movement of people, goods, and services on streets. This may include helicopter, rail, increased transit, park and ride lots, car and van pools, telecommuting, and information highway products. Provide transportation system management tech- niques to improve mobility. This may include impact fees to build better transportation facilities, parking fees to reduce SOV use, subsidies for bus passes, car and vanpool use, free business area shuttle buses, and land use regulations that sup- port transportation system improvements. Provide a transportation system that protects and enhances the environment and quality of life. Provide the funding needed to maintain existing infrastructure and implement needed transporta- tion system improvements. Provide cooperative transportation solutions that are interjurisdictionally coordinated to meet local and regional needs. Transportation Goals Policies Goal TG1 Maintain mobility for residents and busi- nesses through a balanced, integrated system of transportation alternatives that: a. Meet local and regional needs through inter- jurisdictionally coordinated and integrated systems. b. Reduce auto dependency, especially single occupancy vehicle (SOV) use. c. Support the land use vision and plan. d. Protect and enhance the environment and quality of life. e. Provide acceptable levels of service for each transportation mode that are also commen- surate with their planned levels of funding. Revised December 1998 111"9 Federal Way Comprehensive Plan Transportation Policies TPl Integrate land use and transportation plan decisions to support the land use vision and plan. TP2 Implement Federal, State, and Countywide planning policies. TP3 Provide integrated, multiple travel options to residents and workers, especially those with disabilities, that are also effective alternatives to the single-occupant vehicle. TP4 TP5 Give priority to transit and supportive needs. Protect neighborhoods from traffic impacts. prioritized to promote high occupancy vehicles, trains, buses, carpools, and vanpools along existing rights-of- way, and to incorporate high capacity transit if it becomes available to Federal Way. Several actions relating to streets and roadways are necessary for the City to adopt its transportation plan. The City must establish and adopt the following standards: Functional Classification of Streets. Access Management Classification. Street Standards. Level of Service (LOS) Standards. TP6 Give priority to transportation alternatives that Prioritized list of street and roadway improve- improve mobility in terms of people and ments that support the Land Use Plan. goods moved for the least cost. Concurrency Management Plan. TP7 Establish mobility levels of service appro- priate for the alternatives and location. TP8 Provide funding necessary for transportation needs at the appropriate levels of service. Financing Plan. Existing Conditions An extensive inventory of the existing roadway system in Federal Way was reported in the City's 3. STREETS AND ROADWAYS 1993 Community Profile. The following excerpts on existing conditions are taken from that document. In Federal Way, the predominant mode of travel will likely remain the private automobile. It is clear that major expansion of the highway system with the intent of expanding capacity for the single occupant auto will less frequently meet federal, state, and regional policies. Modifications to the transportation system which are likely to receive funding are those which will promote the increased movement of people and goods as opposed to vehicles. Street and Highway System Federal Way is served by a network of publicly main- tained streets and highways connecting local com- munities and urban centers in the Puget Sound region, as shown in Map 111-2. There are two major freeways in the Federal Way planning area: Alternatives which move people rapidly to their des- Interstate S(1-S) is four lanes in each direction, tinations must be provided as congestian grows and with a posted speed limit of 60 mph. This free- driving time increases for users of single-occupant way serves as the main north/south freeway for vehicles. The future transportation system will be re- regional travel in western Washington. Revised December 1998 III-10 qTY OF FEDERAL WAY COMPREHENSIVE PLAN EXISTING SIGNIFICANT STREETS AND HIGHWAYS TRANSPORTATION ELEMENT Le�nd City Limits Potential AnnexaUon Area SCALE 1 Inch equals 6,800 Feet pRN MAP III-2 Federal Way Comprehensive Plan Transportation SR 18 is two lanes in each direction, with a posted speed limit of 60 mph. This freeway acts as an east/west alternative to I-90, connecting to I-90 east of Issaquah and serving the communities of Auburn, eastern Kent, Covington, and Maple Valley. Primary roadways in the Federal Way planning area include: Pacific Highway South (SR 99) Military Road South 1 st Avenue South 21 st Avenue SW South 272nd Street South 288th Street South/SW 312th Street South 320th Street/Peasley Canyon Rd South 336th Street South 348th StreedCampus Drive SW SR 509 (Dash Point Rd) Enchanted Parkway (SR 161) South/SW 356th Street These roadways serve major activity centers within Federal Way, including commercial activities in the South 320th Street corridor between Pacific Highway South (SR 99) and Interstate 5(the City Center), com- mercial developments along Pacific Highway South, at South 348th Street and Enchanted Parkway South, and several smaller commercial centers located within various residential areas. The roadway system also serves concentrations of office uses located within the City Center, West Campus, and the Weyerhaeuser Headquarters/East Campus area. The roadway system within the city connects to the surrounding regional transportation network, which provides access to other major activity centers including Seattle, SeaTac Air- port, Tacoma, the Port of Tacoma, Kent, and Auburn. cipal arterials is important to achieve the maximum capacity of a given facility. South 320th Street cur- rently has 13 signalized intersections that are irreg- ularly spaced and, in some cases, spaced too close to each other. Coordination of the signal system on South 320th Street was implemented in 1993, from I-5 to 1 st Avenue South, together with the coordination of signals on SR 99 from South 288th to South 324th Street. In addition, coordination of the signal system along SR 99 from South 336th Street to South 356th Street and along South 348th Street from I-5 to 1 st Avenue South was implemented in 1995. Benefits of signal coordination are quantified in Section 3.2, under Signalization Improvements. Traffic Volumes 1992 average weekday traffic volumes on selected arterials aze shown on Map 111-4. The roadway with the highest daily traffic volume is I-5. This facility carried nearly 158,000 vehicles on an average week- day in 1992 (WSDOT, 1992). Historical growth on I-5 has fluctuated in recent years in the Federal Way vicinity. Between 1985 and 1990, the average daily traffic increased at an average annual rate of 5.3 per- cent. However, from 1990 to 1992, the average daily traffic decreased at an average annual rate of four percent. Federal Way's busiest arterial, South 320th Street between I-5 and SR 99, carries approximately 55,000 vehicles per day. On South 320th Street, average weekday traffic has grown at an annual rate of 5.8 percent since 1985. Other arterial roadways with significant daily traffic are portions of Pacific High- way South and South 348th Street, carrying 40,600 and 53,500 vehicles per day, respectively. i Traffic Signal Locations Map III-3 shows the locations of signalized inter- sections within the Federal Way planning area. Cur- rently, signals are maintained and operated by the City under a contract with King County. The ability to coordinate signals along congested minor and prin- Forecasts of Future Travel Travel can be described in terms of the purpose of the trip and the trip beginning and end points. Federal Way exhibits a wide variety of travel purposes. Trips Revised December 1998 111-12 CIN OF FEDERAL WAY COMPREHENSIVE PLAN EXISTING AND PLANNED TRAFFIC SIGNALS TRANSPORTATION ELEMENT Legend Federal Way City Limits Potential Annexation Area Existing Traffic Signal communication System Proposed Traffic Signal Communication System Existing Traffic Signal Planned Traffic Signal Fire Signal SCALE 1 Inch equals 6,800 Feet a1RM MAP III-3 Average Weekday Traffic (1992) LEGEND 7900 Average Weekday Traffic �E�zAt— Map III-4 Federai Way Comprehensive Plan Transportation range from children walking to school to adults com- muting. Not all of these trips are typically analyzed in transportation planning, although emphasis is increasing for non-motorized trips and transportation management systems. u To assist in categorizing trips, the area of interest was divided into Transportation Analysis Zones, or TAZ's. This structure allows a link between travel data and land use data. Estimates of the number of households and employees were made for each TAZ. These land use estimates were then translated into traffic demand on major arterials using a computer modeling process. The model was used to estimate existing and future traffic volumes within the Federal Way planning area. The model can also be used to estimate demands for various modes of travel, including auto, carpool, and transit. There is a fairly consistent relationship between the number of trips produced each day and the density of residential dwelling units. Depending on the density of the area and other factors, it is possible to forecast the total number of trips produced in an area. In a similar fashion, employment densities can be used to forecast person trips attracted to an area. Each parcel of land generates traffic based on its type of use and intensity of development. The evening peak hour is a modeling standard, since it usually is when the highest demand occurs. Future Travel Demand The community visioning process explored a series of future (2010) land use intensities and configurations. Concepts of future development which would accom- plish regional and City goals were explored. The con- cepts were then turned into estimates of travel demand and the necessary transportation improvements were identified. Through the Environmental Impact State- ment (EIS) process, a recommended alternative was identified, which includes significant improvements to the existing street system, along with other transporta- tion demand management and transit actions. In general, between 1990 and 2010, an increase in total person trips of approximately 40 percent is predicted. City Action Areas for Transportation Plan Adoption Functional Classification of Streets Public streets are classified according to their func- tions related to mobility and land access. These func- tional classifications help facilitate planning for access and circulation, standardization of road designs, and provision of a hierarchy for roadway funding. The classification system is typically shown in map form which can be used by planners and developers alike to determine improvements and program needs. The types of functional classifications for Federal Way are described below. Freeway A multi-lane, high speed, high capacity roadway intended exclusively for motorized traffic with all access controlled by interchanges and road crossings separated by bridges. Principal Arterial A roadway connecting major community centers and facilities, often constructed with partial limitations on access and minimum direct access to abutting land uses. Minor Arterial A roadway connecting centers and facilities within the community and serving some through traffic while providing greater access to abut- ting properties. Collector A roadway connecting two or more neigh- borhoods or commercial areas, while also providing a high degree of property access within a localized area. Collectors have been separated into principal and minor designations according to the degree of travel between areas and the expected traffic volumes. Local Street All other roadways not otherwise classified, providing direct access to abutting land uses and serving as feeders to facilities with higher functional classifications. Designation of roadway functional classification is an integral part of managing street use and land develop- ment. In Washington, as in most states, classification of streets is necessary for receipt of state and federal Revised December 1998 5 Federal Way Comprehensive Plan Transportation highway funds. Inconsistent or misdesignation of functional class (usually in the form of under- classification) can lead to poor relations with residents and the traveling public. Studies have shown that tra�c volumes in excess of about 1000 vehicles per day on residential streets produce markedly increased objection on the part of local residents. Misdesigna- tion of a street segment to a lower classification when the amount of expected traffic warrants a higher class can also result in under-design of facilities producing long term capacity problems. Table 111-3 summarizes the typical characteristics of each functional classification. The latest functional classifications of roadways in the Federal Way plan- ning area are shown in Map Ill-S and the proposed functional classification in Map 111-6. Illustrative examples of cross-sections A through Z aze shown in Figure III-3(a-b) to Figure III-4 respec- tively, for the street system within Federal Way. Map III-7 illustrates which cross-section would be used for each arterial and collector within the community. Since the City does not plan local street networks, the applicable street cross-section for local streets will be established through the City's development review process, which is ongoing. Access Management Classif cation Access management is the regulation of intersection and driveway spacing to improve the safety and pre- serve capacity of major streets. Roadway crash rates are heavily dependent on the spacing of turning con- flicts. By reducing the number of driveways and turning movements through shared access to multiple parcels, and restricting turning movements in con- gested areas, the safety and efficiency of the City's streets can be maintained. Table III-3 Characteristics of Functional Classifications of Streets Right of Way Width' Number Expected Daily Road Classification of Lanes Existing Code Recommended Posted Speed Traftic Interstate/Freeways' 4+ (varies) Varies Varies 60mph 30,000+ Principal Arterial 2 to 7 80' to 100' 68' to 120' 35-SOmph 5,000+ Minor Arterial 2 to 5 70' to 80' 68' to 106' 30-40mph 5,000-35,000 Principal Collector' 2 to 5 60' to 70' 68' to 100' 25-35mph 5,000-25,000 Minor Collector� 2 to 3 60' 60' to 80' 25-35mph 1,000-5,000 Local Street 2 50' 36' to 66' 25-35mph up to 1,000 Genera! Comments 5 Channels local traffic to principal collectors or arterials. Design for buses per 1 Umrted access, state �unsC�chon. 2 Connects subregional activiry crnters and communities. 3 Provides major movement capacity; collecting neighborhood and business traffic to higher level arterials. 4 Connections between neighborhood or commercial areas. Design consideration for dvcks. Mt"CKU standards. 6 Primary function is access to abutting land use. Through traffic can be discouraged by use of tr�c control devices. 7 The exact cross-sections and standards for a particular street within the community will be established through the Ciry's design. Revised December 1998 III-16 • • • CITY OF FEDERAL WAY COMPREHENSIVE PLAN FUNCTIONAL CLASSIFICATIONS '• OF EXISTING STREETS Puget Sound -� `� - - -- r r - ,, •.- �•• AND HIGHWAYS �; � • { TRANSPORTATION ELEMENT kX ; i �♦ ` - - - -- Legend - - -- Federal Way City Limits ° - -- I T • • • ' Potential Annexation Area � I ; ♦•♦ d �� Freeway ♦. i �� % Principal Arterial ♦,♦ - d - -- I �' ,, C' Minor Arterial __ - Principal Collector • /U Minor Collector I • I ♦ - -SCALE — ♦• 1 Inch squab 5,800 Feet MAP 111 -5 l oos � �aml ADOPTED FUNCTIONAL CLASSIFICATIONS OF STREETS AND HIGHWAYS r Cross Section A a� 8� s� �2� s� �z� �2� s� 8� 3� 4 Lanes HOV Uftl. Sld�walk Pianf�r HOV Lsf1 Turn HOV PIan1�r Sld�walk IHII M e d i a n frlp 2'—'+-- 6�'_"'�_� 2'� Strl M�dian (whero LT not nssded) 86' 120' Ci'033 $CCti0t1 B 4 Lanes HOV s�' s� �2� 1�� �2� �z� s� 6�' Median Sld�walk HOV Ll1f TUffl HOV Sidwralk I-12'-� 14'-�-12=-I M�dtan S 320th Street (where LT not needed) In City Center 84' 100' ROW er �aa�m�nt may b� m�d�d. ]R,oadw�y Cross �ec�io� A FIG. III-3 (a b) ✓�V' 'CSr,it*y,`f�.. �ross ��ion c� s� s� s� 5� s� �2� 5� s� s� 3� 4 Lanes Bike Ulll. Sid�wolk Plonlx Bik� Lef1 Tu�n Bik� Plant�r Sid�walk Ufil M e d i a n SM Mp f 2'� 6�� 2�� Medtan (where LT not needed) 72' 106' ��°oss �ectio� t��� 4 Lanes Bike 3' 12' S' 11 1 1' 1 1' 6' 12' 1 1' S' 12' 3' M e d i a n UNI. Std�walk Bike LeTt Turn Bike Std�walk Utll. Strlp F—� 2�� 6�� 2�� Sfrlp Median (where LT not �eeded) 1�1 C I t�/ C e n t e r 72' 102' �.l 11� �.l I y I I 1 �t)� FIG. III 3 (c-d) r Cross Section E s� s� s� tz� s� �z� �z� s� 8� s� 4 Lanes Median Ufil. Sld�wolk GIan1�r Lef1 Tu�n Plan}�r Std�walk lHll Strl SMp Z� 6'� 2'� M�dian (whero LT not nesdsd) 64' 98' Cross Section F 4 Lanes Median 3' 12' 12' 11' 1 1' 6' 12' 12' 12' 3' Ufll. Sld�walk I.l1t TUrt1 Sld�walk Ufii. �P 2�� 6� Z� Sfrlp M�dian 1 (whsrs LT not nesdsd) I'1 C I 1�/ C e n t e r 64' 94' lR,oadway Cross �ection lE lF FIG. III 3 (rt7 Cross Se�tion G 5 Lanes Bike 3' 8' 6' 11' 11' 12' 11' 11' S' 6' 8' 3' til. Sld�wolk Planhr Blk� C�nt�r Lan� Blk� Planbr Sld�walk UHI P ss� 0�� �'033 $eCti011 H 5 Lanes Bike 3' 12' S' 11' 11' 12' 11' 11' S' 12' 3' Ufll. Sid�walk 81ks C�nf�r Lan� 81ks Sld�walk Ufll. SMp SMp In City Center 66' 9 6' l�oadway �Cross ��ctIlOn l[-� FIG. III-3 (g-til r Cross Section I 3� s� s� z� 2� s� e� 3� 5 La n e s Uttl. Sld�walk Planf�r C�nf�r Lan� PIaM�r Sld�walk U411 SMp SM 58' 92' GYoss Section J �1 5 Lanes 3' 12' 12' 11' 12' 11' 12' 12' 3' WII. Sid�walk Gnf�r Lan� Sld�walk UfIL gyNP SMp In City Center 58' 88' �,oa�dway �ross �ection FIa. III-3 (i-�) Cross Section K s� e� s� s� 2� s� s� s� 3� 3 Lct n e s B i k e UIII. Sld�walk Piaed�r Blk� C�nbr Lan� Nk� Plant�r Sid�walk UMt rip Strl 44' 78' Cross Section L l_ 3 Lanes Bike 3' 12' S' 11' 12' 11' S' 12' 3' U111. Sld�walk Bike Gnt�r Lan� Biks Sld�walk Ufll. StAp Strlp In City Center 44' 74' G l�o�dway �ross ��c�IlO� ]K IL FIa. III-3 fk-D Cross Section M �1 3� s� s� r r r s� e� s� 3 La n e s UNi. Sid�wolk Planf�r Gnf�r Lan� Plardv Sld�walk UHI Str1p Strl 36' 70' Cf033 $CCt1011 N '1 3 Lanes s� �z� s� 12� s� �2� s� Parking Ufll. Sid�wolk Parklnp Gnt�r lan� Park�np Sldwralk Ufll. Sfrlp ��p In City Center 50' 80' ]R,oadway Cross �ectio� 1Mf �T FIG. III 3 (m�il Cross Section O 3� e� s� �z� �z� s� s� s� 3� 2 Lanes Bike Ufll. Sldwalk PlanMr Blk� Blk� PlanMr Sld�walk Utll lrlp Sirl 34' 68' CI'033 �CtiOtl P 2 Lanes Ditch 3' 6' 10' 4' 12' 12' 4' 10' 6' 3' uni. Ditch N N Dlfch ufl1. StAp �P O g 32' 70' ]�oadway Cross ��ct�o� FIG. III 3 (o p) CT093 SCCti0I1 Q a� ,2� e� �r ir 8� �r a� 2 Lones Utll. Sld�walk Parkinp Parklnp Sld�walk Ufll. P a r k i n g 5}rlp �p In City Center 40' 70' $CCt R 2 Lanes 3' 6' 4' 8' 12' 12' 8' 4' 6' 3' P a r k i n g Ufll. s Parklnp Parklny s UMI. SMP 3t�P 40' 66' ]�oadway Cross �ect�on Q R, FIG. III 3 (q-r) (koas Section S 3' S' 4' 8' 10' 10' 8' 4' 3' 2 La n e s UNI. Parklnp Pa�lAnp UHI. P a rk i n g S}►IP 36' 60' �['OS4 SCCti01l T 2 Lanes 3' S' 8' 2 12' 12' 2' 8 5' 3' D i t c h UNI. DHoh DNeh UNI. g g Str1p g 333F 28' 60' 1R,o�dway �ross ��ctio� F1G. III-3 (s�t) r Croas Section U J 3' S' 4' S' 8' 8' 8' 4' 5' 3' 2 Lanes u►a. ra.�i�a Pen�i�9 um• P a r k i n g �P i SMp 32' 56' C $CCt V 2 Lanes 3' S' 8' 12° 12' 8 5' 3' D i t c h WII. Dlteh DMoh U}II. SMp j SMp 24' 56' lftoadwa,y Cross �ect�on �J �T Fl(3. III-3 (u�v) Cross Section W li 3' 5' 4' 8' 12' S' 4' 5' 3' La n e g parkln0 Pa,�� P a r k i n g StAp �NP 28' 52' �033 �CCti0I1 X 2 Lanes 3' S' 8' 10' 10' 8 5' 3' D i t c h Ufll. DMeh DNoh Ufll. Sfrlp �V 2�� 52' ]�oadw�y Cross ��c�ion FIG. III-3 (w-x) Cross Section Y 3� s� u �o� u �o� s� a� Inf ill Cul—de—sac utu. um. smv Q SMo 0 0 20' 36' ��4�+ tiv "i C.!'03S ►�Ct�OII Zi t'yp •.};5�. C� Cul—de—sac Terminus 3' S' 3' 6' 32' S' 3' IHII. Gnta bland Ufil. SfAp S1rlp 0 9�� O6� l�oa�dw�y Cross �ection Z F1G. III-3 (y� G ►��C��1 �.H'OSS o��'Ct�01�S FIG. III-4 CITY OF FEDERAL WAY COMPREHENSIVE PLAN � PLANNE[� STREET SECTIONS TR/�,NSPORTATION ELEMENT L�gend: i'�.i� Faderal Way Cityr Limits / �, � Pater�rtial Mnexation Area • • Roadway Secfion: �O/' A - 4 lanes + HOV �� B- 4 lanes + HOV (City Centerj �/ C - 4 lanes + Bike ♦� f D- 4 lanes +&ke (City Center) = �� : E - 4 lanes ; \\ � F - 4 lanes (City Center) �� G - 518nes + Bike ,^� H - 5 lanes + &ke (City Center) �-'�;� I - 5 lanes � J • 5 lanes (Ciry CeMer) �� K - 3 lanes + Bike �� L - 3lanes + Bike (G1ty Center) � M - 3 lanes ��� N- 3 lanes + Parldng (Ciry Center) ^� O - 2 lanes + Bike � P- 2 lanes + Di�ch (Low Density) ,'' �`.���-`` Q- 2 lanes + Parldng (City Cerr[er) r /� R- 2 lanes � Parldng (CommerciaYlndustrial) ��-' S- 2 lanes + Parldng (Single Famiiy) /�� T 2 Isnes + D'RCh (Low Density) crtr oF G � ```` �� '� V Y RY �Ni DNISfON MAP III-7 NOTE: This map is iMended for use as a qraphical, representation ony. The City af Federal Way makes no warraMy as to rts accuracy December 19Y8 3� Federal Way Comprehensive Plan Transportation Access is one of the major factors influencing func- tional classification. Generally, higher classifications (interstates or freeways) serve a limited access func- tion, while lower classifications (local roads, cul-de- sac streets) serve a local access function. The State of Washington approved legislation requiring that access onto state facilities be granted by permit and that such access conform to an access management classifica- tion system (RCW 47.50). The WSDOT put into place two administrative codes. The first identifies the administrative process (including permit fees for issuing access permits on state facilities), and the second defines the access classification system (WAC 468.5 l and 468.52, respectively). A summary of the access classifications from WAC 468.52 is provided in Table 111-4. The criteria used to define the classification system included functional classification, adjacent land use (existing and pro- posed), speeds, setting (urban or rural), and traffic volumes. The classification system was developed with assistance from the cities by the WSDOT North- west Region planning office. The authority to permit access to state facilities lies with the state in unincorporated areas and with the cities in incorporated areas. WAC 468.5 l requires that cities with permit authority adopt a classification system equal to or more restrictive than that proposed by WSDOT. The WSDOT required cities to establish an appropriate access classification system by mid 1996. All state routes within the City also needed to be classified, with the exception of SR 18 and I-5, which are limited access facilities and not subject to the access classification system. Map III-9 indicates the access classifications within the City. These access standards would be imple- mented as part of review of land development, as an element of street improvement projects, and to ameliorate locations with high crash rates as a part of traffic safety maintenance. Street Standards As the transportation system evolves, periodic review of the comprehensive plan, changes to the subdivision code, and street standards are necessary. Street standards within city code convey the vision of the comprehensive plan in greater detail. Similar to the classification map, they guide the development pro- cess activities. For example, components of the subdivision code can require certain types of street standards (e.g. widths, parking, etc.) to support desig- nated transit compatible development. Street design standards show preferred cross sections for each arterial and street segment in the City. Level of Service (LOS) Standards Level of Service (LOS) on a street or roadway is a qualitative description of traffic flow conditions during a specific time period. This measure considers trax�el conditions as perceived by motorists and pas- sengers in terms of travel speed, travel time, freedom to maneuver, traffic interruptions, delays, comfort, and convenience. Levels of service have traditionally been given letter designations from A through F, with LOS A representing ideal operating conditions, and LOS F representing "forced flow" conditions beyond capacity. Table III-5 illustrates the Ciry's proposed access classification system. The primary purpose of access management is to improve safety; therefore, higher access classifications are triggered either by crash rates or lane configurations that are less safe at higher volumes. Similariy, access spacing standards are the most restrictive for turning movements with the highest potential for accidents. Map III-8 indicates WSDOT's access classes on state highways in Federal Way. According to the Highway Capacity Manual (HCM), level of service is quantified differently for roadway segments as opposed to intersections. For example, on roadway segments the LOS is defined by the general spacing of cars traveling on the street and their level of interference with one another. At intersections, however, the LOS is defined by the length of delay a driver experiences in passing through the intersection or waiting to turn into or out of a side street. The definitions for each level of service and methodologies Revised December 1998 III-34 Federal Way Comprehensive Ptan Transportation Table III-9 Washington State Access Classification System Chapter 468.52 WAC (7-14-94) Minimum Posted Planned Private Speed Typical Planned Intersection Connection Clsss Functional Characteristics (MPH) Median Treatment Spacing* Spacing* 1 High speed/volume, long trips urving: interstate, 50 to 55 Restrictive, where multi- 1.0 mi 1320 feet. interregional, interciry travel. Service to abutting land lane is warranted. One per parcel subordinare to service of major traflic movements. 2 Medium to high speeds/volumes, medium to long trips Urban: Restrictive, where multi- 0.5 mi. 660 feet. serving: interregional, interciry, intraciry havel. Service to 35 to 50 lane is wa�ranted. One per parcel abutting land subordinate to service of traffic movement. Rural: 45 to 55 3 Moderate speeds/volumes, short trips serving: intercity, intra- Urban: Restrictive where multi- Rural: 0.5 mi 330 feet ciry, intercommuniry travel. Balance between land access and 30 to 40 lane is wamanted. Two-way Urban: mobility. Used where land use is less than manimum build Rural: left-turn lane may be 0.5 mi/less with signal out, but developmrnt potential is high. 45 to 55 utiliud. progression analysis. 4 Moderare speeds/volumes, short trips serving: interciry, intra- Urban: Non-reshictive Rural: 0.5 mi 250 feet ciry, intercommunity travel. Balance between land access and 30 to 35 Urban: mobiliry. Used where level of developmrnt is more intrnsive Rural: 0.5 mi/less with signal and major land use changes less likely than class 3. 35 to 45 progrcssion analysis. 5 Low to moderate speeds, moderate to high volumes, 25-35 Non-restrictive 0.25 mi/ 125 feet primarily short trips in intracity and intracommuniry travel. less with signal Service of land access dominant function. progression analysis Nole: 1 his lahle is jor sun�mury purposes only ard is �roi i�idwled in ihe WA(' Satrce (WSD07) •See lexl oJ /he WACJor exceplia�s Table lil-S of Federal Wav Access Management Standards Minimum Signal Through Progression Access Traffic Crossing Right- Right- Efficiency*** Classification Median Lanes Movements Left-Turn Out Left-Turn in Turn Out Turn In I Only at signalized Only at signalized 330 150 150 40% Raised 6 intersections intersections 2 Raised 4 330 330 330 150 150 30°/a Two-Way Left- 3 Turn Lane 4 150 150* 150* 150* 150* 20% Two-Way Left- 4 Turn Lane 2 150• 150* 150* 150* 150* ]0% •Does not apply to Single Family Residential uses. "Greater spacing may be required in order to minimize conflicu with queued traffic. *"If the existing efficiency is less than the standard, new uaffic signals may not reduce the existing efficiency. S. Raised Medians will be required if any of the following conditions are met: 1. There are more than two through traffic lanes in each dircction on the street being accessed. 2. The street being accessed has a crash rate over 10 craches per million vehicle miles, and currently has a two-way left-tum lane. b. Two-way left-turn lanes will be required if the street being accessed has a crash rate over 10 crashes per million vehicle miles, and currently dces not have a left-tum lane. Revised December 1998 111-35 • CITY OF FEDERAL WAY COMPREHENSIVE PLAN WSDOT f S ACCESS MANAGEMENT CLASSIFICATIONS Puget Sound TRANSPORTATION ELEMENT t � Legend �•`•� Federal Way City Limits . • • • Potential Annexation Area ah ^� Limited Access �`.♦ i ���� Class 4 A .� N He EP Y `� � I • Old E ♦ ' f t • 8. ? • ♦� - -SCALE •♦ I Inch equals 5,800 Feet !_ him MAP III -8 ,'— =Ws FEDERAL WAY ACCESS MANAGEMENT CLASSIFICATIONS Federal Way Comprehensive Plan Transportation for calculating LOS are contained in the Transporta- tion Research Board Special Report 209, Highway Capaciry Manual (1985, updated 1994). Level of service is used by the City of Federal Way for two primary purposes: (1) to calculate the amount of transportation facilities the City needs in the future, and (2) to measure the adequacy of the public services which serve existing and proposed development. The first use of LOS is addressed in this section, in which alternative improvement scenarios are evaluated against these levels of service. The second use of LOS relates to the "concurrency" requirement of GMA, as described in Section 3.10. The two uses of LOS utilize the same basic standards and methodology, such that consistency is maintained. LOS Standard The City's goal is to maintain or improve upon a PM peak hour roadway LOS so that it is at least within capacity. The plan expects some change in the present patterns of travel behavior through increased use of non-SOV modes, such as walking, bicycling, transit, carpooling, and van- pooling. The LOS standard should reflect the impact of increased non-SOV modes of transportation. LOS Methodology Within urbanized areas, most of the roadway congestion occurs at signalized inter- sections. However, it is not always practical to mea- sure traffic flows at every intersection, and this type of detailed analysis does not provide a full perspective on how well the overall roadway network is per- forming. Due to the complex nature of traffic flows and the ability of motorists to take alternative routes for similar trips, the City of Federal Way has selected a LOS methodology which is an expansion of the traditional LOS measurements presented in the High- Analysis Procedure Planning' (v/c) Operational Delay (sec) 'Transportation Reuarch Ci =Highway Capaciry Manual. 'lanning and O� A B way Capacity Manual. The City uses the following two criteria for measuring LOS. Corridor and Roadway Segment Volume/Capacity (Y/C) Ratio The volume/capacity (v/c) ratio directly compares the volume on a roadway segment with the capacity of that segment to carry traffic volumes. The ratio, expressed in a range as shown in Table III-6, can then be used as a planning level LOS indicator. The capacity of the roadway segment reflects the condition of the road (e.g. width of lanes, amount of driveway disturbances, whether there exists a left turning lane, etc.) and the type of traffic control along its length (e.g. frequent traffic signals reduce capa- city). A v/c greater than 0.90 is used to identify loca- tions for a more rigorous operational analysis. In an operational analysis, the level of service standard for planning purposes will be a v/c of 1.00, with a LOS of E, using a 120-second cycle at signalized inter- sections. In order to reflect an emphasis on non-SOV modes, LOS will be measured by average delay per person rather than the Highway Capacity Manual's average delay per vehicle. The City chooses this methodology to determine development impacts and mitigations. Current LOS Defrciencies Map III-10 illustrates the 1995 PM peak hour level of service deficiencies on Federal Way's arterials. This figure indicates that South 320th Street, Pacific Highway South (SR 99), Enchanted Parkway, Military Road, and portions of South 348th Street are among the most congested cor- ridors in Federal Way. These are the primary routes that carry commuters, shoppers, business trips, freight and goods, and other vehicles throughout the day and especially during peak periods. Table III-6 �erational Levels of Service C D E F 0.00 0.60 I 0.61 0.70 I 0.71 0.80 I 0.81 0.90 I 0.91 l.00 1.00 0.00 5.00 I 5.10 15.00 I 15.10 25.00 I 25.10 40.00 I 40.10 60.00 I>60.00 Naterials on Hi¢hway Capacity. Revised December 1998 III-38 EXISTING 1995 CONGESTED Federal Way Comprehensive Plan Transportation Future LOS Deficiencies Map III-11 illustrates the expected 2003 PM peak hour level of service deficien- cies for the "current trends" if no additional improve- ments are constructed. Map III-12 depicts congested streets with "1998-2003 TIP" improvements. The current trends condition assumes that limited roadway improvements would be made on the existing street system, while the recommended plan includes signifi- cant improvements to several major and minor arterial routes. Without improvements, South 320th Street, Pacific Highway South (SR 99), Enchanted Parkway, Military Road, and portions of South 348th Street would remain the most congested corridors in Federal Way. The recommended plan would improve condi- tions along all of these streets. but also to poor sight distance at unsignalized inter- sections. These safety issues can be addressed by implementing the following measures: Identify high crash rate locations on an annual basis, and identify projects to improve safety at these locations. Implement access management measures to reduce turning conflicts in high accident conidors. Enforce intersection sight distance standards to remove vision obstructions on the corners of �nter- Map 111-13 depicts congested streets in 2015 if only the improvements in the 1998-2003 TIP are construc- ted. Map 111-14 depicts congested streets if the 1998- 2015 CIP improvements are constructed. LOS on State Facilities In the 2015 Cunent Trends Alternative, the entire portion of I-5 in the Federal Way planning area will experience severe peak- 'direction congestion in the PM peak hour. Most of SR 99 and SR 161, as well as major portions of SR 18, will also be congested. The "Recommended Alterna- tive" shows similar conditions, although traffic con- gestion along SR 99 and SR 161 would be somewhat reduced. Traffic Safety When considering transportation improvements, enhancements to traffic safety must be considered. Intersections with high crash rates are shown in Map III-IS and major street segments with high crash rates are shown in Map III-16. The majority of crashes in Federal Way are related to congestion. Intersections with high levels of conges- tion create frustration for drivers who may then per- form risky measures. Common manifestations of frustration include running a red traffic signal or a signalized intersection producing too small a gap at an unsignalized intersection, or speeding on local streets to make up for time lost at a congested location. Many accidents in neighborhoods are related to speeding, sections and at driveways. Where supported by neighborhoods, install traffic calming measures in residential areas. Educate the public through project open houses and press releases on safety benefits of transporta- tion projects. Increase enforcement of traffic laws, particularly laws pertaining to behaviors that cause the most severe and highest frequency of crashes. Street and Roadway Improvement Plan Table III-7lists major street and roadway projects which are included in the 2015 recommended trans- portation plan. The locations of these projects are shown in Map 111-17. These projects will have the most significant impact on reducing corridor and system-wide congestion within the City. A full listing of recommended street and roadway improvements is provided in the Transportation Improvement Program, described in the "Implementation Strategies" section. The WSDOT has jurisdiction over state highways in the City. These include I-5, SR l8 (South 348th Street), SR 99 (Pacific Highway South), SR l61 (Enchanted Pkwy South), and SR 509 (Dash Point Raad). However, since many residents depend on these and other state facilities in the region, it is important the City consider the policies and efforts of the DOT. The City is responsible for the maintenance of State routes (except I-5 and SR-18 east of 16th Revised December 1998 III-40 2003 CONGESTION WITH EXISTING STREETS CITYOF FEDERAL WAY _ w w CITY OF FEDERAL WAY COMPREHENSIVE PLAN 2015 CONGESTED STREETS + ON 2005 NETWORK Puget Sound ON � TRANSPORTATION ELEMENT ! ,t Legend �•`•� Federal Way City Limits LU 2M x = . • • • Potential Annexation Area ♦� ICI Congested Streets � I ♦`,` 1 0 Congested Intersections t ♦ �� A `• / N H8 p Y ♦ ♦ • I std E �♦ � ' � � • 8. SCALE 1 Inch equals 5,800 Feet • pltM I MAP III -13 1Yi0 mt76.�trd _ w w CITY OF FEDERAL WAY COMPREHENSIVE PLAN 2015 CONGESTED STREETS g --�- ON 2015 NETWORK Puget Sound , TRANSPORTATION ELEMENT t � Lund d � -` -� Federal Way City Limits ,� . • • • Potential Annexation Area ,� '♦, �� Congested Streets t N ♦� � He P y �♦ I 0 • 3rd 1E �♦ �+ 1 • 8 — SCALE -- 1 Inch equals 5.800 Feet h ' I • MAP III -14 D•owhw 1M $w0 fnfw.aw 1W 1W 1W CITY OF FEDERAL WAY COMPREHENSIVE PLAN HIGH CRASH RATE . INTERSECTIONS 1 (1994-1996) Puget Sound TRANSPORTATION ELEMENT r } 1 _J ro Legend ���•� Federal Way City Limits . ' • • Potential Annexation Area Mn s ♦\ ■ 1.00 -1.50 Crashes/MEV* \• \% t > 1.50 Crashes/MEV \ N -' • > 2.00 Crashes/MEV Na REP y % * Million entering vehicles _ Note:lntersections \ ♦\ I °} averaging less than 2 crashes per year 3rd E '\♦ I not shown. ♦ IP _ ♦\ -- SCALE -- c r ° \ 1 Inch equals 5,800 Feet h 1 I • I • � ' \� ,'� MAP III - 15 %y Map .do.•.rnber, „,omrnl 1W 1W 1W • • • CITY OF FEDERAL WAY COMPREHENSIVE PLAN HIGH CRASH RATE .. CORRIDORS Puget Sound (1994 -1996) TRANSPORTATION ELEMENT t Legend �•`•� Federal Way City Limits . • • • Potential Annexation Area a I '♦ N Crash Rate > 50 /mvm* '♦ r ♦�`.♦ Crash Rate 25 - 50/mvm N �� -' •�'�•* Crash Rate 10 - 25/mvm " R E P Y Crash Rate 5 - 10 /mvm �e ,♦ - * million vehicle miles •♦ p • ♦ - _� rc b 1E `♦ < < • J 2 ♦ ♦, 1 t d Y ♦♦ ^" SCA ""' C Ir / • 1 Inch aWab 6,800 Feet • •RN MAP III -16 My pWW Dmmrbw 106 aft mnl Federal Way Comprehensive Plan Transportation Table III-7 Major Street and Roadway Improvements FACILITY FROM TO DESCRIPTION OF IMPROVEMENTS 1 Military Rd S S 272nd g 288� Widen to five lanes provisions for bicycles, sidewalks, illumination, landscaping, property acquisition. Widen to three lanes provisions for bicycles, sidewalks, 2 Military Rd S S 288th 31st S illumination, landscaping, property acquisition (incl. S 304th to 28th S). Widen to five lanes provisions for bicycles, sidewalks, 3 S 356th lst S SR 161 signal modification, illumination, landscaping, property acquisition, coordination with regional storm detention. Construct over crossing of I-5, construct new (5) lane 4 S 312th 28th S Military Rd S roadway, provisions for bicycles, sidewalks, illumination, landscaping, property acquisition. 5 S 312th Military Rd g 1 st S Construct new (5) lane roadway, provisions for bicycles, S sidewalks, illumination, landscaping, property acquisition. 6 SR 99 S 272nd Dash Pt Rd Construct Arterial HOV lanes, both directions. 7 SR 99 Dash Pt Rd S 312th Construct Arterial HOV lanes, both directions. 8 SR 99 S 312th S 324th Construct Arterial HOV lanes, both directions. 9 SR 99 S 324th S 340th Construct Arterial HOV lanes, both directions. 10 Dash Pt Rd SR 99 ]st S Widen to three/four lanes. 1 I S 316th S l st S W Valley Hwy Extension. 12 I-5 SR 18 SR-161 Construct collector/distributor roads beside I-5 to extend the SR-18 interchange south to SR-161. 13 SR-161 SR 18 Military Widen to five lanes, curb, gutter, sidewalk, and illumination. 14 SW 336th Wy/ 26th PI SW Hoyt Rd SW W�den to five lanes, curb, gutter, sidewalk, and illumination. SW 340th St 15 S 320th St SR 99 1 st Ave S Construct arterial HOV lanes. 16 SR 99 S 340th S 356th Construct arterial HOV lanes. 17 S 348th SR 99 Ist Ave S Construct arterial HOV lanes. Revised December 1998 III-47 • 0 • CITY OF FEDERAL WAY COMPREHENSIVE PLAN RECOMMENDED MAJOR STREET IMPROVEMENTS Puget Sound •,. .- TRANSPORTATION ELEMENT t � Legend s �•`•� Federal Way City Limits ° e. �, ,� • • Potential Annexation Area © ��I Street Widening/New Connection Projects I �� ,; ••'''�•' Non Motorized Projects N % / ° EP Intersection Projects •/ ® • Map Identification Number I e►d 1E � � • �% • • • ` ® -- SCALE — ♦ ebb 1 Inch equals 6.800 Feet MAP III -17 tm vft WMftR.m Federal Way Comprehensive Plan Transportation Avenue South) within the City limits and for the issu- ance of right-of-way use permits subject to WSDOT review. (capacity) improvements. The latter may not be fully funded and may therefore affect the imple- mentation of the following WSDOT projects: The State has enacted several policies to relieve the various problems facing travelers. These policies include: Improve personal mobility (emphasizing move- ment of people and goods, over vehicles). Enhance transportation to support economic opportunities. Coordinate regional transportation planning and implementation. Improve energy and environmental efficiency. Promote public-private and public-public partnerships. Improve freight and goods mobility. Enhance transportation to support tourism. Promote land use patterns to improve mobility Improve public transportation. Enhance transportation system efficiency (i.e., management). Improve air quality. The City's plan has been developed in awareness of these policies and supporting programs. The City's plan is in compliance with the WSDOT's direction and vision. The transportation plan for Federal Way relies on the State in the following action areas: HOV system completion on 1-5 and other freeways. Implementation of the State System Plan. This plan identifies, in priority order, the need for maintenance, preservation, safety, economic initiatives, environmental retrofit, and mobility HOV access improvements, primarily I-5 medians. Interchange improvements for I-5 from SR 18 to SR 161. Overpass/underpass improvements for I-5 at South 312th. Arterial HOV and other enhancements on SR 99 south from South 272nd Street to South 356th Street. Improvements to SR 509 (Dash Point Road) between SR 99 and 21 st Avenue SW. SR 509 extension from Burien along the western and southern sections of SeaTac Airport south to I-5. The SR 509 extension north from Tacoma to the new SR 67 connection on I-5 at Fife. This extension will likely occur in the 2015 planning horizon. To have I-5 and 509 coin- cident along I-5 from Fife to South 272nd would be consistent with this plan. An option which would place added SOV and truck traffic on SR 99 would not be consistent with this plan. Continued improvements to monitoring, with possible provision of information systems regard- ing travel conditions. Right-of-way acquisition for rail and the above improvements before construction. The addition of park and ride lots and added capa- city for existing ones. This includes the planned lot on 21 st SW at SW 344th. SR 18 improvements east of SR 99. Advanced vehicle identification (AVI) on SR 99 to provide transit priority. I-S HOVLanes As noted in the section on transit and HOV's, a major improvement along I-5 proposed by the State is extending HOV improvements south to the Pierce County line. These changes are consistent Revised December 1998 III-49 Federal Way Comprehensive Plan Transportation with the assumptions included by the City in its analy- sis efforts, and support the concepts envisioned in the plan. WSDOT has also identified the next generation of improvements to the HOV system on I-5 (and other regional facilities). This effort will identify ways to improve HOV and transit access to the freeway (pre- dominately along the medians of these highways). Such concepts are, again, consistent with this plan. SR 509 Two projects will affect this facility; both outside the City of Federal Way. To the north, there is on-going planning for extension of SR 509 from Burien along the western and southem sections of SeaTac Airport to I-5. Four alternatives are being investigated through an EIS process. The most south- ern of these four I-5 connections is at South 272nd at the northern edge of the City. A new inter-change with I-5, and improved park and ride options, would be features of this alternative. It is consistent with the concepts embodied in this plan. The Tire I EIS for the SR 509 South Extension Project has selected Alterna- tive C as the preliminary preferred alternative. This particular alternative would join I-5 near South 210th Street, and add capacity to I-5 south to at least South 272nd Street. The second modification to SR 509 will be south of Federal Way. SR l67's connection to Tacoma from Puyallup will be improved during the planning horizon. As part of this effort, the connection with SR 509 in Tacoma will be modified. The State has not resolved the issues related to modifying this connec- tion. Analyses will look into the best methods to accomplish this connection, and will likely examine how best to connect to an improved SR 509 to the north (see preceding paragraph). An option to have I-5 and 509 coincident along I-5 is consistent with this pian. An option which would place added SOV and truck traffic on SR 99 is not consistent with this plan. Other Action Areas Way, the transit centers would be for bus transit only. The integration of the road system for vehicles and buses with high capacity transit is incorporated into this plan. METRO and Pierce Transit provide bus and park ride facilities to Federal Way. These are also identi- fied and integrated into the City's plan. King County, Pierce County, Tacoma, Kent, Auburn, Algona, Pacific, Edgewood, Milton, and Des Moines presently border Federal Way or its potential anne�cation area. An integrated street system with these adjoining juris- dictions is incorporated into this plan. Sound Transit's approved plan includes regional bus service to connect transit centers. These could connect Federal Way to the south with Tacoma, and Lakewood, to the north with Tukwila and Seattle, and to the northeast with Auburn, Kent, Renton, and Bellevue. Transportation Goals Policies It is proposed that the City adopt the following goals and policies with respect to transportation facility improvements which allow it to maintain options into the future; especially with respect to transit enhance- ments. This may result in a conservative approach to highway improvements which might slow the rate of progress in the area of non-SOV mode use. Goal TG2 Provide a safe, efficient, convenient, and financially sustainable transportation system with sufficient capacity to move people, goods, and services at an acceptable level of service. The City shall develop and adopt policies for the construction, reconstruction, maintenance, and preservation of new and existing facilities. Sound Transit is reviewing a high capacity transit sys- tem alternative for a second phase in early 2006. The City plan identifies stations/transit centers on or near the I-5/SR-99 corridor at South 272nd Street, South 316th Street, South 336th Street, and South 348th Street. Until light rail transit is extended to Federal Policies Policies which affect streets and roadways are divided into five categories: General, Functional, Safety, Multimodal, and Community/Aesthetic. Revised December 1998 III-50 Federai Way Comprehensive Plan Transportation General TP9 Identify and implement changes to the trans- portation system which reduce reliance on the single occupant vehicle. Support state, regional, and local visions and policies. TP10 Protect existing and acquire future right-of- way consistent with functional classification cross section (transit, rail, bike, and pedes- trian) needs. Require developments to dedicate right-of-way as needed for develop- ment commensurate with the impacts of the development. At a minimum, setback limits shall be used to assure that buildings are not placed within the right-of-way requirements for planned transportation facilities. Right-of- way dedication shall be commensurate with a development's impact to the existing and planned transportation system. TP16 The City's LOS standard shall be E. This is defined herein as a volume/capacity ratio less than 1.00 in accordance with Highway Capacity Manual (1994) operational analysis procedures. At signalized intersections, the analysis shall be conducted using a 120- second cycle length and level of service E is defined as less than 60 seconds of stopped delay per vehicle. Where transit or HOV facilities are provided, the LOS shall be mea- sured by average delay and volume/capacity ratio per person rather than per vehicle. This standard shall be used to identify concunency needs and mitigation of development impacts. For long-range transportation planning and concurrency analysis, a volume/capacity ratio of 0.90 or greater will be used to identify locations for the more detailed operational analysis. TP17 Expand arterial capacity by constructing chan- TPll Coordinate street and roadway improvement nelization improvements at intersections when programs with appropriate state, regional, and they are an alternative to creating new lanes local agencies. along a roadway corridor. TP12 Maintain the transportation forecasting model for use in impact analysis, capital facilities planning, and monitoring of the plan. TP13 The maintenance and preservation of existing TP19 streets, roadways, and related infrastructure shall take precedence over major street improvement projects that enhance system capacity. Functional TP14 Provide access between major development areas identified in the recommended alterna- tive, while improving business access and protecting city neighborhoods. TP15 Specify an appropriate arterial LOS which balances the economic, ecological, acces- sibility, and livability needs of city residents, consumers, employers, and employees. TP18 Determine street classifications by balancing travel needs with changing right-of-way uses and neighborhood character. Limit single-occupant vehicle capacity increases to those required to maintain the existing LOS, either by providing new streets or by widening existing streets. Maintain existing and preserve future street connections vital to system integrity. TP20 Take advantage of opportunities to open new road connections to create route alternatives, especially in areas with few access choices. TP21 Enhance traffic circulation and access with closer spacing of through streets, unless geo- graphical constraints do not permit, as follows: a. Arterial streets at least every mile. Revised December 1998 III-51 Federal Way Comprehensive Plan Transportation b. Collector streets approximately every 660 feet in the City Center and'/a mile elsewhere. Multimodal c. Local streets with a maximum block perimeter of 2,640 feet. d. Non-motorized paths with a maximum block perimeter of 1,320 feet. Safety TPZ2 Develop access management standards to minimize the number of curb cuts on arterials to improve pedestrian and vehicle safety TP23 Minimize through traffic on residential streets by maximizing through travel opportunities on arterial and collector streets. TP24 Consider safety first in the design of inter- section improvements. TP25 Allow improvements to traffic flow only where they contribute to traffic and pedes- trian safety, high capacity transit and HOV system enhancements, and reduce air pollution. TP26 Employ traffic calming measures in neighbor- hoods (where feasible) where traffic volumes and speeds on local streets consistently exceed reasonable levels. TP27 Prohibit parking on arterial and collector streets, except on low volume business district streets in the Ciry Center when neither safety nor transit operations would be compromised. TP28 Improve safety on residential streets by: a. Reducing street widths while maintaining on- street parking. b. Increasing separation between sidewalks and streets. c. Reducing design speeds to discourage speeding. TP29 Reduce reliance on the single occupant auto by prioritizing and implementing supportive local-level transit, HOV, and non-motorized improvements. TP30 Identify and plan for multi-modal freeway, arterial, and collector street improvements which ensure more efficient use of existing roads and enhancement of HOV, transit, and related non-motorized operations. TP31 Integrate the traffic circulation network with high capacity transit, HOV, bicycle, and pedestrian networks with consideration to regional system needs, including air and port facilities. TP32 Structure the City's improvement program to strategically place increments of public and private investment that complement the multi- modal vision of the plan. This should include "matching" improvements to supplement the efforts by other agencies to provide HOV and transit facilities. TP33 Acquire rights-of-way for high capacity transit whenever possible in advance of their need, and make accommodations for any improvements, whether public or private, to provide for future high capacity transit needs without major redevelopment (e.g., locate structures so they would not need to be altered to accommodate future high capacity transit facilities). Community/Aesthetic TP34 Design arterials to fit with the planned character of areas they pass through. TP35 Minimize visual distraction to drivers on arterials. TP36 Make arterial travel a pleasing visual exper- ience in order to reduce driver frustration and speed. Revised December 1998 111-52 Federal Way Comprehensive Plan Transportation TP37 Keep through traffic to state routes and arterials. Discourage the use of local or neigh- borhood streets for through movements (unless part of an overall process of creating a street grid): TP38 Include sufficient area in rights-of-way for bike lanes, sidewalks, and landscaped medians to provide separation from motorized traffic as funds allow. Use landscaped medians to separate opposing traffic when safety and aesthetic purposes dictate the need. 3.2 TRANSPORTATION SYSTEMS MANAGEMENT (TSM) Transportation Systems Management (TSM) focuses on maximizing use of the existing systems travel capacity. The concept was first originated in the mid- 1970's by the U.S. Department of Transportation. Since that time, it has been applied by a host of different ways in cities and metropolitan areas around the country. More recently, the 1991 Federat Trans- portation Act (ISTEA) expanded the vision of TSM introducing the term Congestion Management Systems (CMS). The terms CMS and TSM are syn- onymous in this document. Again, the focus of TSM is to identify ways to man- age the transportation system (usually streets and highways, from a local agency perspective) to ma�ci- mize the carrying capacity of existing facilities. TSM activities can include new construction, but they typi- cally modify an existing facility. TSM options can be grouped into the following categories: Geometric Improvements Geometric Improvements Access Management Signalization Improvements Capacity Enhancements The term Geometric Improvements refers to projects intended to "re-shape" the physical layout of roads. Through reported problems and periodic monitoring (see section on Monitoring which follows), isolated improvements can be defined which will improve the operation of traffic and increase safety. Such improvements are under the City's control. While there are national and state level guidelines, the City's adopted design standards guides the design of these improvements. Sometimes called Spot Improve- ments, their low cost and net increase in efficiency make them particularly popular. Signalization Improvements Signalization improvements include traffic signal installation or removal, and operational strategies. Historically, the City has relied on other agencies to service its traffic signals. The County has maintained some signals under contract to the City, while the State has operated those on certain state routes. This has produced a fragmented approach to traffic control. Recognizing this, the City recently initiated a central computer system to control key intersections in the City Center. This program consolidated all signals under King County-contracted maintenance and operation. Only signals at I-5 off-ramps remain under WSDOT jurisdiction, although signal timing is main- tained by the City to provide signal coordination. Traffic along South 320th Street, South 348th Street, and SR 99 benefit from coordination and improve- ment to signal timing and phasing. A decrease in delay of up to 29 percent was measured in an earlier study. The cost of such improvements has been rapidly recovered by this reduction in delay to drivers. Air quality is also enhanced due to fewer unnecessary stops. In addition, transit reliability has increased. These groupings cover a host of alternative actions. Coordinated signal systems require periodic attention Not all are appropriate for a city to undertake. The to maintain their e�ciency because traffic conditions more popular and successful ones are listed in Table change over time. While Federal Way is not directly III-8, TSMStrategies Applicable to Federal Way. operating the signal systems, it has focused on hiring Revised December 1998 111-53 Federal Way Comprehensive Plan Transportation u Table III-8 TSM Strategies Applicable to Federal Way Strategy Low or None High Geo►netric l�rovements -Channelization -Bus Turnouts -Exclusive Turn Lanes -Intersection Widening SignaJization linproveneents -New Signals -Signal Removal -Coordination -Timing/Phasing Optimization -Monitoring Access Management -Tum Prohibitions -Access Management -Driveway Restrictions/Removal -Signing Capacity Enhance�nts -Arterial Frontage Roads -Railroad Over-crossings -Intersection Grade Separation traffic personnel in the Public Works Department who have experience in this area and can manage the contracted work Monitoring of the system is another activity which the City controls directly. Whether or not the City oper- ates the signals, a monitoring and reporting program should be set up. This would include the gathering of traffic information, its processing, and the reporting of the results in a systematic fashion. Changes in opera- ting conditions should be reported to responsible officials on a regular basis and should be used as part of the prioritization process in making local improve- ments (see the section on Implementation Strategies). The City has developed a master plan to provide signal communications, coordination, and monitoring as shown in Map 111-3. Access Management Access Management is another means to manage traffic flow efficiency. These measures can be insti- tuted by the City on its facilities. Further, the State Department of Transportation encourages the City to manage access to state routes in the City, often by use of controls and restrictions. (See the Roads and Streets section for access management category desig- nations.) Controls and restrictions are often placed where recurrent safety problems have been noted. Signing, which is a form of traffic control, is impor- tant to the motoring public. One component often overlooked is directional or informational signing. Another reminds travelers of regulations. Since a number of jurisdictions operate roads in and about Federal Way, a comprehensive effort to coordinate signing would be useful in placing street improve- ments. Such a system would route motorists and other travelers to the most appropriate route (see section on Intelligent Traveler Systems). Capacity Enhancements Capacity enhancements typically include road widening. They are construction oriented (as opposed to operational), and are often constructed to assure an Revised December 1998 111-54 Federal Way Comprehensive Plan Transportation existing road segment operates as efficiently as nearby segments. For example, traffic monitoring might indicate a section of freeway carries more local, short trips than long distance, through trips. By adding a parallel frontage road, the freeway might operate more efficiently. Another example might consist of two heavily used streets being grade separated at their intersection point to accommodate flow. Intersections such as South 320th Street at SR 99, South 348th Street at SR 161, and South 348th Street at SR 99 may be considered for such improvements in future planning cycles. Traffic Signal Coordination Capacity enhancements typically are higher in cost than other TSM strategies. Funding from outside sources is timited. Therefore, such projects must be carefully justified. Advanced Technology and TSM Applications of new technology can also be categor- ized as TSM measures. Originally called Intelligent Vehicle Highway Systems and now known as Intel- ligent Traveler Systems, they are being rapidly developed for all modes of travel. Key to many of them is improved traveler information. As described further below, their application holds great merit for managing congestion, improving safety, and inform- ing travelers of multiple travel options. Signal Coordination on SR 99 —South 288th to South 356th. Complete signal coordination along major arterial sections. Completed. Signal Coordination on South 348th —I-S to Ist South. Complete signal coordination along major arterial sections. Completed. Signal Coordination on South 320th —I-S to Ist South. Completed. Signal Coordination on SW Campus Drive. Signal Coordination on 21st SW. Signal Coordination on SR161 (Enchanted Parkway). Traffic Signalization South 312th 8th Avenue South. Place traffic signal to manage changing traffic conditions. An Intelligent Traveler Systems Plan was recently prepared for the State of Washington. Directed by WSDOT, it established a framework for implemen- tation of a variety of ITS options. Table 111-9 lists the main categories of ITS application, their relative applicability in Federal Way, and the degree of impact each might have on the City's vision and plan. TSM Projects The following projects have been identified under the City's TSM program. 21st Avenue SW SW 325th. Place traffic signal to manage changing traffic conditions. Completed. SW Dash Point Road 8th Avenue SW. Install left turn lane and traffic signal. SW Dash Point Road 21st Avenue SW. Install right turn lane, traffic signal, illuminate inter- section. Completed. SW 340th Street 35th Avenue SW. Signalization and school crossing illumination. Completed. SR 99 South 330th Street. Signalize. Intersection Improvements (Channelization, Geometrics, etc.) South 336th Street: 13th Avenue South 18th Ave- nue South, Right Turn Lane SR 99. Construct eastbound right turn lane and westbound left-turn lane. Revised December 1998 III-55 Federal Way Comprehensive Plan Transportation u Table Ili-9 Intelligent Traveler Systems (ITS) Applications in Federal Way ITS Category Example Application Area Degree of City Control Impact to Vision Public Transit Monitoring of Transit Operations s► Automatic Faze Payment +s� Dynamic Ridesharing HOV Lanes Parking Priority Treatment HOV-Signal Priority HOV-Automated Highways s► Employer-Based TDM Initiatives Vehicle Guidance Control �s, Road Use Pricing s► s► Ferry Management. N/A N/A Traveler Information Traveler Information Databases Trip Planning (Pre-trip) +s� Trip Guidance En Route +y Vehicle Monitoring Warning Systems �4 +s� Traftic Management Incident Detection Management s► Traffic Network Monitoring Communication Systems Traffic Control Systems Construction Management s-► Freight Fleet Management Route Planning Scheduling Vehicle Cargo Monitoring Regulatory Support Internodal Port Transfers N/A N/A Other Services Emergency Service System Mgt. Enforcement Services Traveler Safery/Security s► Air Qualiry Monitoring Pricing +5, High/Positive Somewhat/Possibly +y- Low/Questionable Pursue Revised December 1998 III-56 Federal Way Comprehensive Plan Transportation South 356th Street Right Turn Lane SR 99. 150' right turn lane. Completed. TP41 Public comments and requests will supple- ment routine traffic monitoring to identify and correct traffic control needs, as well as other noted system deficiencies. i Continuing Minor Tra�c Improvements. Place signal revisions and other traffic controls at various locations to manage the dynamics of short term changes in traffic conditions. SN' Campus Drive 6th Avenue SW. Install new traffic signal and left turn storage lanes. Completed. South 320th SR 99. Redesign intersection to accommodate changing traffic patterns. SW 340th Hoyt Road SW. Construct left turn lanes and signalize. South 336th 20th Avenue South. Add left turn lanes to accommodate changing traffic demand. South 288th 20th South. Add left turn lanes to accommodate changing traffic demand. Transportation Goals Po�icies Goal TG3 Extend the functional life of the existing transportation system and increase its safe, e�cient operation through application of TSMstrategies. Policies TP39 Continue to implement traffic signal coordina- tion projects as the primary component of a TSM program. As funds permit, monitoring of traffic operations will be carried out to assure efficient timing of traffic signals. TP40 The Manual of Uniform Traff c Control Devices, developed at the federal level, will be employed in the design and placement of traffic controls. TP42 Arterial HOV improvements will be construc- ted along key conidors to improve flow and encourage use of these more efficient modes. TP43 Minor capital projects, placing spot (locali- zed) traffic improvements, will be carried out to extend the capacity of system components. TP44 Capacity enhancements will be made where other, lower cost improvements will not conect deficiencies. They will be carefully justified to compete for limited funds. TP45 Employers will be encouraged to institute complementing TSM actions to those under- taken by the City. This will create consistency and understanding, thereby improving travel conditions. TP46 Intelligent Traveler System options will be monitored by Staff, who will periodically recommend additional ITS-TSM options. TP47 Access Management, placing restrictions on left turns across major arterial streets, will be used to reduce crash rates and extend capacity of major arterials. TP48 As technology permits, and the city HOV system is implemented, opportunities will be sought to modify the signal coordination strategies to provide priority to HOV's. TP49 Incident response timing plans should be developed for parallel arterials to accommo- date diversion of traffic from freeways caused by lane closures. Revised December 1998 III-57 Federal Way Comprehensive Plan Transportation 3.3 NON-MOTORIZED MODES The two most popular modes of non-motorized transportation are walking and bicycling. Walking constitutes the greatest percentage of personal travel. Unfortunately, short trips (under one mile) are usually not counted in urban travel statistics. We make at least as many short trips as longer trips by motorized vehicles. When travel by younger generations is con- sidered, the importance and magnitude of short trips can be better appreciated. As pointed out in a recent State Department of Com- munity, Trade, and Economic Development report, the popularity of bicycling has increased in the U.S. since the 1970's. A 1991 survey found that 1.67 percent of Americans and 2.9 percent of people in the Western states commuted to work by bike in October 1990. The Census Work Trip data for Federal Way reported slightly less than one percent bicycle use and about two percent walking for work trips in 1990.' Table 111- 10 summarizes the trip purposes reported in 1990 as part of the National Personal Transportation Study. Table III-10 Purposes of Walking and especially to access other modes of transportation. In Germany, for �xample 43 percent of arrivals at rail stations are by bike. A 15 percent figure is common in Japan. Nationally, 54 percent of the population lives within five miles of their work place. There is a tremendous opportunity for people to walk or bike if we provide safe, direct pedestrian, and bicycle facilities. Safety is another area of concern for pedestrians and cyclists. The WSDOT reports that the vast majority of pedestrians killed or injured are struck while crossing the roadway, most often at intersections. Nearly half of all bicycle/automobile accident occur at inter- sections. The state is monitoring pedestrian and bicycle accidents as performance measures of the service objectives. Funding is no less an issue with non-motorized facilities than road and transit services. The ability of the City of Federal Way to provide non-motorized facilities is limited by funding sources and competing program needs. The extent of this constraint becomes apparent when the estimated $300,000 cost to provide needed wheelchair ramps for transportation disadvan- taged persons in Federal Way is compared to the recent annual budget amount of $30,000. Purpose Walk Bike Work 11% ]0% Shopping 18% 10% School/Church 20% 14% Social/Recreational 34% 55% Other 17% 11% Table III-10 indicates that U.S. citizens may not have discovered the bicycle as a commute vehicle, and that opportunities for walking to work are limited. It is possible that the location of jobs relative to homes and the lack of connections between major travel points contribute to this. Can this change? One needs only look to other nations to find examples of bicycle use, Your Community's Transportation System, Department of Community Development, State of Washington, Olympia, WA, April 1993. Walking and biking do not appear to play a major role in satisfying urban travel needs at present. This will not occur until we provide a safe network for pedes- trians and bicyclists and develop a system that is oriented towards pedestrians and bicyclists. Walking and bicycle ways are a potential means of providing increased accessibility for the full range of citizens; including young, old, and transportation disadvan- taged. A safe network of non-motorized facilities will provide the opportunity for recreational and commuter users to reduce their dependence on automobiles. State Regional Coordination Issues On the federal and state level, coordination, planning and implementation of non-motorized facilities has gained significant support as an alternative mode of transportation. The 1990 Intermodal Surface Trans- Revised December 1998 ���-58 Federal Way Comprehensive Plan Transportation portation Efficiency Act (ISTEA) emphasizes the benefits of non-motorized modes of travei and pro- vides a revenue resource for funding planning and implementation activities. The State of Washington has developed service objectives for bicycle and pedestrian transportation systems primarily to increase use and improve safety. The State has also defined the non-motorized systems in terms of state-owned and state-interest. The state-owned system refers to state highways, interstates, fenies, and Amtrak. "State- interest facilities are local, regional, or statewide facilities that are vital to the statewide economy and the mobility ojpeople and goods. On a regional level, the Metropolitan Transportation Plan (PSRC 1995, MTP-3), identifies major issues to be addressed by the plan including: Identify performance based strategies; Develop criteria for identifying regionally significant projects; Establish funding levels and financially constrained plans; Develop better standards; Ensure consistency in planning among local jurisdictions; Establish priorities for funding; and, Involve the public involvement and providing coordination. To provide regional guidance and coordination, the MTP calls for a significant increase in facilities that support pedestrian and bicycle travel. The three com- ponents of the MTP strategy include development of a regional network of non-motorized transportation facilities, development of local networks for non- motorized travel, and development of a transit net- work that is fully accessible to pedestrians and bicyclists. These strategies are consistent with and incorporated into the non-motorized section of this element of Federal Way's Comprehensive Plan. To develop a facility plan and strategies for non- motorized modes of travel, attention to the perceived needs of regional and local users will help create a viable system. Table III-I1 lists common problems related to the use of non-motorized travel and options to improve these uses. Table III-Il Non-Motorized User Problems and Solutions Problem Solution Alternatives Lack of Facilities, Route Complete system elements and gaps. Discontinuities Review and condition new development. Trip Too Long Interconnect developments and cul-de-sacs with trails. Create closer opportunities (jobs housing balance). Bike Security Add storage facilities at destination and on transit. Clothing/Cleanliness Add showers, changing areas, and restrooms. Personal Security Assure lighting, wider facilities, motorist compliance with laws. Re-time signals. Where appropriate, separate from vehicles. Unaware of System Designate (sign) routes. Public education, advertising, provide maps. Revised December 1998 III-59 Federal Way Comprehensive Plan Transportation Pedestrian System Background Walking supports many trip purposes. Significant foot traffic occurs in areas with concentrations of children and high population densities, such as downtown and retail centers. Also, as the American population ages, higher numbers of elderly, who no longer can drive or who choose walking for exercise, are using walkways (sidewalks, paths, and trails). Planning for walkways requires an understanding of the patterns of foot traffic and a decision on which trips can be appropriately supported through invest- ment by the public sector. For example, a community such as Federal Way, much of which has been built with neighborhood streets, may find it can only afford to place sidewalks along major streets. For financial reasons, it may be necessary to accommodate foot and bicycle traffic on residential streets within the neigh- borhood, but provide pedestrian separation from traffic on busier streets through the placement of side- walks. In 1992, pedestrian facilities were inventoried and are shown in Map 111-18. This inventory has recently been revised. As noted in this map, several arterial streets do not have sidewalks or have side- waiks that are substandard. In 1993, the city adopted a policy that makes the city responsible for maintaining sidewalks. A program to construct missing segments of sidewalk, or to construct sidewalks only within certain arterial classification, should be considered. Pedestrian Improvement Options Street lighting, hand/guardrails, directional signing, wheelchair ramps, and traffic signal crossing indica- tions are some of the amenities which may be required as part of a pedestrian system. Many existing facilities in Federal Way do not have these amenities and inhibit safe pedestrian improvement and access to transit. The actual provision of these amenities is usually assured through the adoption of design and construction standards, which are applied to new or significantly reconstructed facilities, such as streets, subdivisions, public, and commercial buildings. The Americans with Disabilities Act (ADA) requires designs which provide access for the mobility impaired, and are required for all facilities affording public access. This act also requires the retrofitting of buildings and their access for the mobility impaired. This applies to the need to place ramps at all cross- walks and intersections on City streets. There are also many older areas of Federal Way that have no side- walks and pedestrian amenities, the lack of which tend to impair safe pedestrian movement. An assessment of needed pedestrian amenities and the condition of existing sidewalks should be carried out to prioritize, fund, and construct a functional pedestrian system. Education and Training The public, especially grade school children, should be educated on pedestrian safety. Programs such as "Ped-Bee" (Bellevue, Kirkland) teach children traffic and pedestrian safety. As the American public grows older, it will be increa- singly necessary to consider their needs. A recent study by the Center for Applied Research reports that 20 to 40 percent of the elderly who do not drive depend upon walking for their travel needs. The report also points to the fact that traffic signals may fail to take the slow walking speed of these individuals into consideration. The Federal Highway Administration is presently considering the study's findings. While there is no immediate action required by the City, it is likely that municipalities such as Federal Way will be prompted to give more explicit consideration to the walking needs of the elderly in the future. A strategic objective for Federal Way's pedestrian system should be as follows: Short Term Strategy. Improve safety and comple- ment the transit system, making it more acces- sible. It is necessary to attend to the safety needs of pedestrians, correcting locations having high crash rates, and making ADA required ramp improvements. Connections to the transit system can also be made to provide a missing link in what could be a"seamless" public transit system. In extending the pedestrian system to provide access Revised December 1998 111-60 CITY OF FEDERAL WAY COMPREHENSIVE PLAN INVENTORY OF SIDEWALKS ON MAJOR STREETS _ . -. % — 1 ♦ (1992) Puget Sound I ,,. TRANSPORTATION ELEMENT Legend `• Federal Way City Limits " Potential Annexation Area � I ♦�, - -.� •'�'v'" SuWandard Width No Sidewalk a ,� ♦� �� �-' ^� 5ft. or Greater H8 E p Y ♦ ` .-.. b E ♦ • ♦ •�° SCALE ♦ 1 Inch equals 5,800 Feet -� �� MAP III -18 4ffl,M �� Federal Way Comprehensive Plan Transportation to the transit system, transit amenities such as bus shelters should also be provided. Mid Term Strategy. Provide extensions to the walkway system. Logical, safe, and convenient connections to parks, schools, neighborhoods, retail areas, transit, and other points of amaction should be considered. The major interim exten- sion of the network should provide connections to and within neighborhood and business centers. This will support the neighborhood area and con- cepts imbedded in the plan vision. A network of walkways and trails on roadways should be integrated into the Parks Comprehensive Plan and its trail system to provide for the needs of both recreation and commuter uses. Long Term Strategy. Focus public and private investtnent in the City Center. At present, the pedestrian system does not contribute to the iden- tity of the downtown. The future system must link commercial establishments, public open space, and public buildings with transportation facilities. Pedestrian facility development is supported by zoning regulations and development review in the form of the City's design guidelines, to make sure pedestrian access is accounted for and is consistent with this plan. T'hrough a collective vision for the denser core area, this can become an amactive feature for Federal Way. Without it, the resulting pedestrian environment will remain forbidding. BICYCLE SYSTEM Background The Federal Way Bicycle Advisory Committee (FWBAC), Federal Way's citizen advocacy group of bicycling enthusiasts, wishes to see Federal Way become one of the best cities for non-motorized modes of travel. Their goals are to make available to the citizens an interconnected network of bike facilities for commute, utilitarian, and recreational users. Incor- porated by this reference to the Federal Way Compre- hensive Plan is the "City of Federal Way Bicycle Plan," May 1994, which is intended to act as a guide for policy makers when making or planning for needed bicycle improvements in the greater Federal Way area. The following summarizes key recommen- dations and gives some examples of possible programs: Staffing. PSRC's MTP acknowledges that com- munities with dedicated bicycle planners aze more likely to have extensive programs for pedestrians and bicyclists, a well developed facility plan, and design standards for bicycle facilities. A Bike Planner is recommended to facilitate and imple- ment non-motorized programs. This planner could also implement other components of the transpor- tation plan such as TDM, grants, and the TIP. Education and Training. The public needs to be made aware of alternatives to the single occu- pancy vehicle (SOV) and that bicycles have equal rights to cars on the road. Volunteers and FWBAC members could assist with education programs promoting safety and rules of the road for bicyc- lists. Programs for grade school children would be beneficial. Users could learn from "Bicycle Buddies." Programs such as "Safety Town" and bicycle rodeos teach children traffic and bicycle safety. Promotion. Bicycles should be promoted as an alternative means of transportation for commuting and for recreation. Publications could have bike riding tips. Maps of bike routes need to be pub- lished. Nationally, 54 percent of all people work within five miles of work. Safe and direct bike rides on trails or routes could increase the use of bicycles as a commuting alternative. Enforcement. Cars and bicyclists that disobey the rules of the road make the roads tess safe for everyone. Greater enforcement would be beneficial. Plan. The adoption of a Non-Motorized Facilities Plan developed with the Comprehensive Trans- portation Plan will provide a classification of the types and locations of bike trails and routes to provide an interconnected network of facilities to meet the needs of Federal Way. Revised December 1998 III-62 Federal Way Comprehensive Plan Transportation Standards. The adoption of design standards for bicycle facilities will ensure that the safety and quality standards of the community are met. This includes trail widths, pavement markings, signs, bike racks, and lighting for both public and private facilities. Safety can be enhanced by identifying how intersections and driveways are designed and what kinds of catch basin lids and pavement markings are to be used. WSDOT and AASHTO have developed design standards for bicycle facilities. Facilities. The TIP provides a prioritized listing of non-motorized improvements. These are shown in Table III-12. A small Capital Improvements cate- gory should be identified for improvements to non-motorized modes of travel, such as replacing catch basin grates that are not bike safe, to con- struct small improvements such as minor discon- tinuities of bike facilities and to install signs and pavement markings. Major capital improvements for streets should incorporate non-rnotorized facilities. Additionally, prioritized projects just for bicyclists will also help provide a continuity for the principal bike facilities shown on the Non- Motorized Facilities Plan and provide a basis to Building owners and employers should be encour- aged to provide bicycle parking, bicycle security, showers, and lockers. Transit agencies also should be encouraged to provide bicycle parking, security, and a means of trans-porting bicycles so they can be used at trip destinations. Funding. Reliable on-going funding is needed to accommodate the state, regional, and local goals in providing and supporting non-motorized modes of transportation. Grants are one source to pursue. The following is a list of national grant sources which indicates the level of interest in bicycling as transportation. National Highway System (NHS) Surface Transportation Project (STP) Congestion Mitigation and Air Quality (CMAQ) Improvement Program Federal Lands Scenic Byways Program National Recreational Trails Federal Transit Title III compete for available funding sources. Table III-12 TIP Non-Motorized Improvements LOCATION IMPROVEMENT COST YEAR BPA Trail Phase 11: lst Ave S to SW Campus Dr (Completed) Trail Development $0.631 Million 1995 Military Road: I-5 North to I-5 South Shoulder Improvement $1.176 Million 2006+ S 312th St: Dash Pt Rd to lst Ave S Shoulder Improvement $0.308 Million 2002 Weyerhaeuser Way S 320th St to S 349th St Shoulder Improvement $0.652 Million 2002 BPA Trail Phase I11: SW Campus Dr to SW 356th St Trail Development $1.947 Million 2001 BPA Trail Phase IV: SW 356th St to City Limits Trail Development $I.230 Million 2004+ lst Ave S: S 292nd St to S 312th St Shoulder Improvement $0.282 Million 2004+ 9th Ave S: S 333rd St to S 348th St Widen for Bike Lanes $2. Million 2004+ Revised December 1998 III-63 Federal Way Comprehensive Plan Transportation Bicycle Improvement Options In competing for limited funding sources, it is essen- tial that this section's recommendations, like the pedestrian/walkway system, be programmed for implementation in a logical fashion. The following are the criteria proposed for establishing the prioritized order of improvements. They are listed in their recommended order of precedence. 1. Maintenance and operations. Maintenance of trails, signs, etc. Regular sweeping of trails. Safety Improvements: Replace catch basin grates that are not bicycle safe. Remove hazards and minor discontinuities of trails. Striping and pavement markings for bike trail delineation. Signs. u 2. Public and private development or redevelopment. Off-road developments. Schools. Parks. Subdivisions. 3. Roadway construction or reconstruction. Include bike facilities as a part of all projects as funding allows. 4. Bike facility construction projects which provide access to: Transit. Parks. Neighborhood centers. Libraries. Work sites. Churches. Schools. 5. Completion of sections of the regional trail sys- tem (when identified by PSRC). 6. Creation of a commuter biking system. 7. Creation of a recreational biking system. Non-Motorized Facilities Plan To assist the City in identifying important facilities for non-motorized modes of travel, as well as provide guidance for the location of improvements in the non- motorized plan, a facility plan has been developed. Consistency and coordination with regional and other adjacent agency plans and projects will ensure a seam- less system of pedestrian and bicycle facilities. Pierce County, Tacoma, and King County have to some de- gree identified important facilities. The Pierce County and Tacoma plan identify important bicycle connec- tions at SW Hoyt Road, SW Dash Point Road and SW 356th Street. These connections are also identified on the Federal Way Plan. T'he closest regionally signifi- cant non-motorized facility to Federal Way is the Interurban Trail. Access easUwest to the Interurban Trail from Federal Way is provided on shared facili- ties on South 320th Street, South 288th Street, and South 272nd Street. The Federal Way Non-Motorized Facility Plan is shown in Map 111-19. The State, Region (PSRC) and King County have identified improvements to non-motorized facilities to enhance non-motorized transportation. The FWBAC also identified improvements needed to accommodate non-motorized facilities. Improvements identified by FWBAC will be considered along with the Federal Way and Regional Transportation Improvement Programs. This plan illustrates the proposed system of desig- nated bicycle facilities for the City. The complete sys- tem will be composed of three types of non-motorized facilities, classified as follows: Class 1 facilities are separate trails, operating in their own rights of way. Class 2 facilities are signed bike routes which operate jointly with roadways. Class 3 facilities are shared road facilities. Under this plan, the common element will be shared road facilities. Where there is sufficient right-of-way, cyclists can be allowed to share the road with motor- ized vehicles. No signing or striping will be placed on these facilities. Revised December 1998 III-64 W CITY OF FEDERAL WAY COMPREHENSIVE PLAN NON- MOTORIZED FACILITIES PLAN Puget Sound ' ,. -•- , TRANSPORTATION ELEMENT t Legend Federal Way City Limits ° • • • • Potential Annexation Area Class 1 (Separate Trail) K "j Class 2 i (Joint Use With Roadway) N8 REP Y < `,�•� Note: All other streets in ^, ! • . Federal Way, including 3 ►d E , J those not shown, are Class 3 - •� -- SCALE -- !,�° - 1 Inch equals 5,800 Feet c / •. • • �_� �aa•� MAP III -19 Lisp prhad May 1990 monmu.aml W Federal Way Comprehensive Plan Transportation Another common element of the bicycle system will be a network of bike routes and bike lanes. Routes will be established where there is sufficient on street width to accommodate cyc}ists in traffic. To maintain continuity and guide travelers, the system will be designed with distinctive markers, possibly designed in a citywide competition. Where the needs of the cyclist warrant, Class 2 bike lanes can be installed using approved pavement marking techniques and signing. TP51 Provide a one mile grid of bicycle facilities connecting major activity centers, recreational A limited number of Class 1 bike trails separated from vehicles will be provided through the plan. Key among these facilities will be a cross town trail along the BPA Power Line right-of-way, between 11 th Place South at South 324th Street and SW 356th Street at about 16th Avenue SW. This facility will provide a non-motorized link between residential neighborhoods, the Aquatic Center, Panther Lake, and commercial/ retail areas including SeaTac Mall. Transportation Goals Policies Non-motorized transportation facilities will be increa- singly important to the City in meeting the travel needs of its residents and workers and to reduce our dependence on automobiles. The pedestrian and bicycle systems can be implemented through a priori- tized series of improvements to complement the transit, and HOV systems as well as create a key link to business, cultural, recreational, and residential elements that are a part of the CityShape Vision. Goal TG4 Enhance community livability and transpor- tation by providing a connected system of pedestrian and bicycle ways that is also inte- grated into a coordinated regional network. Policies TP50 Provide sidewalks on both sides of all arterial streets as funding allows. facilities, and schools. TP52 Incorporate pedestrian and bicycle features as design elements in the City Center as reflected in the CityShape Vision and City Center Street Design Guidelines. TP53 Ensure that City facilities and amenities are ADA compatible. TP54 Work to extend the existing system of side- walks, bikeways, and equestrian ways in the city to provide safe access to public transit, neighborhood and business centers, parks, schools, public facilities, and other recrea- tional attractions. TP55 Work with other agencies, particularly relating to regionally significant facilities, to pursue funding for pedestrian and bicycle amenities. TP56 Inform and educate the public on safety and use of non-motorized facilities. TP57 Ensure non-motorized facilities are safe and well maintained. Actions 1. Work with high capacity transit agencies to ensure such non-motorized travel amenities as shelters, benches, bicycle racks, lighting, and information kiosks are incorporated in the design and improve- ment of transit facilities. 2. Establish a funding program which prioritizes the most critical non-motorized improvements first, while realizing opportunities for property owners, neighborhoods, or business groups to create por- tions of the system through public-private partner- ships. Revised December 1998 111-66 Federa� Way Comprehensive Plan Transportation 3. Facilitate the School District's designation of a system of safe school walking routes, and, where possible, make capital budget decisions that support such a system. 4. Emphasize the enforcement of laws that reduce pedestrian, cyclist, and vehicle conflict. 5. Improve public awareness of the laws that protect pedestrians and cyclists and of non-motorized facility locations. 6. Include maintenance of non-motorized facilities in the City's on-going transportation services prehensive plan, unless transportation improve- ments or strate� to accommodate the impacts of development are made concurrent with the devel- opment. These strategies may include ...demand mana eg ment and other transportation systems management strategies (emphasis added). u program. 7. Acquire access paths between existing develop- ments, cul-de-sacs, public facilities, business areas, and transit followed by trail construction to improve non-motorized circulation. Require the same for all new developments or redevelopments. 3.4 TRANSPORTATION DEMAND MANAGEMENT ITDM) Several pieces of recent legisiation have led the city into the realm of Transportation Demand Management (TDM). These include the State GMA, Commute Trip Reduction Act (CTRA), and federal level require- ments under both TEA-21 and Clean Air Act Amend- ments as reflected in the State Implementation Plan. The GMA cites the need for a variety of "management actions;" including the requirement that the transpor- tation chapter of each plan include an identification of system expansion needs and transportation system management (TSM) needs to meet current and future demands. The act goes on to note: After adoption of the Comprehensive Plan ...local jurisdictions must adopt and enforce ordinances which prohibit development approval if the devel- opment causes the level of service on a transpor- tation facility to decline below the standards adopted in the transportation element of the com- The purpose of the following section is to provide recommendations on the appropriate approach to TDM for a suburban city such as Federal Way. Since the preponderance of employment is currently outside the City, there can only be limited influence on traffic congestion within Federal Way by travel management through TDM. Options must be selected accordingly. Table III-13 stratifies various TDM alternatives by their functional grouping and potential effectiveness, implementation difficulties, and expected cost effec- tiveness. Fortunately, several of the more effective options are within the purview of the City. The Puget Sound Regional Council's (PSRC) Vision 2020 identified five basic strategies that overlap with those presented in Table III-13. These strategies are: Telecommuting Parking Pricing and Subsidy Removal Compressed Work Week Employer-Based Management Parking Supply Strategies The PSRC also recognizes that the following issues must be addressed to support successful TDM imple- mentation in the region: Lack of data on effectiveness. Emerging technological and social shifts. Lack of regional coordination. Need for TDM strategies to address non-commute trips. Lack of funding flexibility to finance TDM investments. Lack of alternatives to single occupant vehicle (SOV) travel. Lack of public support. While TDM actions are aimed at reducing travel demand or, at least, shifting it to more opportune travel times, several focus on consolidating person Revised December 1998 III-67 Federal Way Comprehensive Plan Transportation Table III-13 Evaluation of TDM Strategies Who Pays L L EvaluAtion Criteria for Incrementsl `'I Transportation Demand Potential Effectiveness Implementation Difticulties Cost Management (TDM) Strategies F [ra PUBLIC MODE SUPPORT MEASURES Increases the effectiveness of Public Education and Promotion other strategies up to 3% None Low-medium Area-wide Ridematching Services 0.1-3.6% VMT reduction None Low Ongoing competition for Medium- Transit Services Up to 2.5% VMT reduction public funds high Up to 8.3% commute High fares compazed to transit; Vanpool Service VMT reduction finding riders drivers Medium Up to 2.5% regional Competition for public funds; Transit and Vanpool Fares VMT reduction equiry concerns Medium 0-2%regional VMT reduction Minimal for low cost actions; Non-Motorized Modes great for high cost actions Low-high Up to 1.5% VMT reduction Medium- HOV Facilities .2%trip reduction High cost; public acceptance high Medium- Pazk and Ride Lots 0-0.5% VMT reduction None high EMPLOYER BASED TDM MEASURES Tax implications for Monetary Incentives 8-18%trip reduction at site some subsidies Low-medium As much as a 1% regional Employee or Alternative Work Schedules VMT reduction management reluctance Low 0.1-2.0%regional VMT Commute Support Programs reduction None Low Guaranteed Ride Home Unknown Liability concerns of employers Low 20-30% site reduction Low to revenue Parking Management in SOV trips Employee opposition producing Space; local zoning Low to revenue Facility Amenities Minimal alone requirements producing Transportation Management Funding and political support Associations 6-7% commute trip reduction* required Low-medium •These results are from pre CTR experiences. A broader range ojeffectiveness would be expected in the presence of CTR legislation. PRICING STRATEGIES Public resistance; legislative Revenue Gasoline Tax Increases 4-10% regional VMT action; travel alternatives producing reduction required Public resistance; legislative Revenue VMT Tax 0.1-11%regional VMT action; travel alternatives producing reduction required Revised December 1998 111-68 Federal Way Comprehensive Plan Transportation Who Pays a a> e� Evaluation Criteria for Incremental Transportation Demand Potential Effectiveness Implementation Difticulties Cost j��^ Management (TDM) Strategies W Public and political resistance; travel alternatives required; Revenue Congestion Pricing Up to 5% regional VMT technical and enforcement producing reduction difficulties Legislative action; negative 1-5%regional VMT and public sentiment; opposition Revenue Parking Tax trip reduction from private sector producing TELECOMMUNICATIONS STRATEGIES Up to 10°�6 commute VMT Telecommuting reduction Prevailing corporate culture Low Advanced Telecommunications Moderate to high Untested, unproven concepts Low-high LAND USE STRATEGIES Development Impact Mitigation Varies with mitigation Landowner and developer Low to medium requirements resistance Mixed Land Use/Jobs Housing VMT reductions up to 10% Public resistance; slow rate of Low to medium Balance effective change Transit-Oriented and Pedestrian Increase in transit, bike, and Requires design review; Medium to high Friendly Design pedestrian trips developer resistance Residential Density Increases VMT reductions of up to 10% Public and developer resistance Medium to high per household to required densities Lazge increase in density often Employment Center Densiry SOV work trip reductions of required to realize significant Medium to high Increases up to 50% change Local council action required; Parking Management 1 to 5% region-wide VMT public/retailer resistance; Low reduction enforcement issues Unknown; probably reflects Requires policy changes, On-Site Amenities effectiveness of mixed use public, and private inertia are Low to medium development barriers POLICY REGULATORY STRATEGIES Legislative action required; Trip Reductio Ordinances .1 4% regional VMT resistance to expanded Low-medium reduction regulation Restrict Access to Facilities and Political will to face public Activity Centers 2.8-10% VMT reduction opposition Low to high Support New Institutional Require strong advocacy, Arrangements Unknown public, private support Low to high Legislative action needed; Increase HOV lanes to 3+ Possible 1.5% reduction public resistance Low Parking Restrictions 1-5%trip reduction Public, developer resistance Low Revised December 1998 111-69 Federai Way Comprehensive Plan Transportation trips to fewer vehicles. The City views High Occu- pancy Vehicle (HOV) and transit use as key to reducing travel demand. As discussed in later sections, provision of on-street and off-street HOV facilities and controls will support this strategy. For example, arterial HOV lanes will complement the regional sys- tem. Similarly, traffic signal priority and preferential parking, access, and egress for HOV will further bolster the program. the City agreed to file an annual report on the program and to accept advice from METRO on alternative strategies which local employers might be encouraged to use in meeting the goals. The City also agreed to conduct a review of its parking requirements as part of the process and to play an active role in the regional process. It is the City's intent to also set an example for other employers through the establishment of CTR programs among its employees. u Effectiveness of TDM Alternatives Recently, WSDOT conducted a study of the effective- ness of alternative TDM strategies. This work was carried out for the National Association of Regional Councils and provides interesting conclusions. The study looked into both the cost of TDM strategies and the potential reduction in vehicle miles traveled (and air pollution) resulting from the efforts. Interestingly, this work identifies the least and the most effective strategies, which are summarized in Table 111-13. The researchers noted that land use planning and related strategies are also potentially highly cost-effective. Commute Trip Reduction Act The Commute Trip Reduction Act was passed by the State Legislature in 1991 and revised in 1997. It is also a part of the State Clean Air Act. The intention of the law is to improve air quality, reduce traffic con- gestion, and decease fuel consumption. It focuses attention on larger employers with the intent of reach- ing concentrations of workers who might use shared- ride and non motorized modes to travel to and from work. Working from 1992 as the base year, employers are encouraged to reduce SOV use and vehicle miles of travel (VMT) by 35 percent in 2005. In 1992 the baseline characteristics were established for South King County (including Federal Way) at an 85 percent share to SOV's and an average trip length of 93 miles. In meeting the 2005 goal, SOV use would need to drop to 55 percent and average VMT to six miles. Based on recent (March 1995) surveys of Federal Way Employers, the 1995 SOV goal of 72.25 percent and the 1995 Vehicle Miles Traveled (VMT) goal of 7.91 miles were not met. The actual SOV percent was 87.4 percent. The average work site trip length was esti- mated as 12.9 miles and the average zone trip length was 9.07 miles. The over-all mode split results from the survey are shown in Table 111-14. Similar to the issues stated in the MTP, reasons for driving alone included convenience and a lack of alternatives. Table III-14 Federal Way Mode Split Survey Results MODE MODE SPLIT SOV (Single Occupant Vehicle) 86% 2+ carpool 04% 6+ Carpool O 1 Bus/'I'ransit O 1 Walk 10% Telecommute O 1 Did Not Work 02% Unknown 03% Recommendations Based upon the above, the following recommen- dations are made: 1. Encourage voluntary expansion of the CTR In 1993, Federal Way adopted an ordinance consistent Program to employers of less than l00 employees. with the CTR guidelines. In adopting the ordinance, The encouragement by employers may be as Revised December 1998 III-70 Federal Way Comprehensive P;an Transportation diverse as subsidized bus passes, car pool space 8. While bicycle, pedestrian, and bus transit services priority, bike racks, shower facilities, van pools, car and facilities may be desirable for other reasons, pool information access, telecommuting, var-iable they should not be looked on as highly cost- work hours, etc. effective strategies to the exclusion of those actions listed above. 2. Encourage the formation and expansion of area- wide ride-sharing programs. Such programs oper- ate with little direct cost to the City and are highly Transportation Goals Policies cost-effective. 3. Facilitate the creation of Park and Ride facilities and transit centers to supplement the regional system, either directly through acquisition of property or indirectly through development conditions where employer vans are required to shuttle employees to Park and Ride facilities or transit centers. Through Transportation Demand Management options, the City can maximize the effectiveness of the public investment dollar. Many jurisdictions are finding non-construction, or management actions, critical to the overall achievement of congestion management and protection of neighborhoods. As such, the Transportation Demand Management goals for Federal Way can be expressed as follows. 4. Facilitate enhancements to the HOV System. This may include the acquisition of property for HOV lanes, construction of arterial HOV lanes on City arterials and State highways, and priority treat- ments for buses at traffic signals. At the very least, opportunities to support improved access to the State system of HOV lanes should be identi- fied and supported. Increase density of land uses and encourage a mix of uses to locate near bus routes, park and ride lots, and transit centers through the adoption of the Comprehensive Plan and its supporting zoning. This policy is vital to the creation of a regional bus and rail system and will also be an effective way to reduce traffic congestion and air pollution. Goal TG5- a. Employ and promote the application of non- construction, and transit/HOYconstruction actions to preserve and enhance mobility and assist in achievement of the land use vision. b. Develop methods to successfully measure and achieve the following HOV Transit mode split levels by the year 2010: 1 S percent of all daily trips over one mile in length; 30 percent of all work trips; and 40 percent of trips between major activity centers. 6. Encourage mini transit centers in the City Center, neighborhood shopping areas, and multifamily nodes, together with enhanced pedestrian and bicycle access and security. 7. lmprove pedestrian and bicycle access to bus routes and transit centers. This can be a require- ment of subdivision, development, and redevelop- ment. The City may need to acquire easements and construct trail connections. Development incentives could be granted for providing such amenities that are pedestrian, bike, and transit friendly. Assist all qual�ing and voluntary employers in the Federal Way planning area achieve the Commute Trip Reduction Act travel reduction goals by the January 1, 1999, objective year and encourage other employees to also meet the goals. d. Ensure that all members of the community, includ- ing those with transportation disadvantages, have viable travel options or alt�rnatives. e. Use transportation demand management to help achieve an appropriate arterial level of service which balances the economic, ecological, C Revised December 1998 III-71 Federal Way Comprehensive Plan Transportation accessibility, and livability needs of the Ciry's residents, consumers, employers, and employees. Policies TP58 Support the achievement of City and regional mode split goals through encouragement of local and regional work at home and transpor- tation coordination programs such as ride matching services and van pools. TP59 Support other transportation demand manage- ment programs that can be shown cost- effective in achieving plan goals, while allow- ing residents and employers discretion to choose the methods they wish to employ. TP60 Develop an arterial street HOV system and related enhancement, which complements the regional freeway HOV system, through the following actions: Place emphasis on the development of HOW and transit priority improvements; especially those requiring minimal cost or construction. These improvements should pace the exten- sion of the regional system and minimize the gap between traveler needs and system capacity. Establish an urban traffic control system that gives priority to buses and HOV's. TP61 Establish policy that when arterials require more than four through lanes to maintain the adopted LOS, additional travel lanes will be for HOV's. As HOV lanes reach the adopted LOS standard, increase the vehicle occupancy requirements for their use( e.g. increase from two or more to three or more occupants). LOS will then be calculated by the average delay per person. Provide improved operational efficiency to the City's transportation system and support regional monitoring programs through regular, structured reporting, monitoring, and perfor- mance evaluation. TP62 Modify the development review process by: Incorporating revised impact analysis pro- cedures which comply with State GMA Concurrency and other requirements. The revisions need to include revised Level of Service standards. Streamlining it to the extent possible to minimize private development costs. Where developments are consistent with this plan, they should be allowed to proceed by mitiga- ting site impacts; developing appropriate com- ponents of the HOV, transit, non-motorized and motorized chapters; and participating in an equitable citywide improvement funding or mitigation payment program. Incorporating requirements of the Americans with Disabilities Act. Requiring explicit consideration of pedestrian and bicycle circulation, as well as parking and general circulation needs. TP63 Adopt a flexible level of service standard which employs a measurement factor that accommodates demand management to help balance likely levels of growth, with oppor- tunities to create a multi-modal transportation system. TP64 Encourage non-motorized improvements which minimize the need for residents to use motorized modes by providing: 1) access to activity centers; 2) linkage to transit, park ride lots, and school bus networks; 3) comple- tion of planned pedestrian/jogging or bicycle trails; and 4) designating a network of streets which can safely and efficiently accommodate bicycles. TP65 Enhance a non-motorized system by the following actions: In instances where the citywide system of bike lanes, trails, and sidewalks crosses or abuts new development or redevelopment, Revised December 1998 ���-72 Federal Way Comprehansive Plan Transportation consider requiring the developer to mitigate the impact of the development on the City's transportation system by constructing bike lanes, trails, and sidewalks that interface with the existing system. essential to providing area residents with mobility options in the future. Unlike road services, however, the City is constrained in its ability to provide these alternatives. Coordinate development of the non-motorized system with surrounding jurisdictions and regional system extensions. Extend the existing system of City sidewalks to all streets. TP66 Recognize that TDM requires coordination, and work with regional representative and other adjacent communities to develop coordinated TDM strategies. 3.5 LOCAL AND REGIONAL TRANSIT Public transit service is provided to area residents by a combination of fixed-route, express, dial-a-ride, and subscription bus services. King Country METRO serves the City directly, while Pierce Transit buses provide connections from the Park and Ride lot on I-5 at South 320th to Tacoma and Puyallup. Amenities supporting transit patronage include Park and Ride lots and waiting-area shelters. The Federal Way School District and King County's Multi-Service Center also provide special, local area bus services. Locally and nationally, public transit services, ranging from local buses to regional rail, are witnessing increased attention. Despite declining transit ridership in the late 1980's and early 90's, these services are being viewed at the regional, state, and federal levels as essential to meet public trave) needs. Many people with low incomes or special mobility needs depend on transit. The City of Federal Way supports the pro- vision of viable transit services as a cornponent in a multimodal transportation system. Coupled with car pooling and van pooling, improved transit service is viewed by the City of Federal Way as The City's involvement with the provision of transit services is indirect—through such efforts as suppor- tive land use planning (to generate sufficient transit patronage) and roadway design features (to accom- modate transit and other high occupancy vehicles). The City's planning process has focused on develop- ment of a transit-supportive environment, including improved pedestrian and bicycle access to transit. Public works projects anticipate enhanced regular route, local bus service, and the possible implemen- tation of a regional light rail system. Expansion of regional transit and HOV systems is critical to the achievement of Vision 2020, which guides the regional Metropolitan Transportation Plan. Federal Way's vision, which includes a City Center with surrounding commercial and residential land uses, is enhanced by both an improved regional bus system and a rail system. Local circulation routes will also be essential. The Federal Way plan has been structurEd with primary emphasis on locations which can become transit centers. In the interim, transit centers will be focused at Park and Ride lots. Existing Conditions An extensive inventory of existing transit services in and about Federal Way was reported in the City's 1993 Community Profile. The following excerpts on existing conditions are taken from that document. Map III-20 indicates Federal Way's existing regular, express, and Dial-A-Ride route locations, as well as its park and ride lot locations and planned bus routes. There are 24 regular and express service routes which provide nearly 250 bus trips to, within, and through Federal Way each day. In total, about 3,000 to 3,500 person trips are made by regular, express and Dial-A- Ride service each day. About one percent of all daily (and three percent of peak hour) Federal Way trips are made by transit, which is comparable to other suburban areas. Revised December 1998 III-73 • • • CITY OF FEDERAL WAY COMPREHENSIVE PLAN ALL DAY TRANSIT SERVICE . EffeW June 1998 �a Puget Sound Star Lak a TRANSPORTATION ELEMENT ,s3,,s4 • 1�• � Legend ♦`•� Federal Way City Limits W • • Potential Annexation Area 801 178 1 88 1 178 74 rid 4Y. Transit Route Perk S:R[de' - 903 g 1 184> 1 174 :,78:1:$1: 1 183.1$8:'194, 903 i • 901.BEl3:. . 1 l 03 l . -- • %� ♦` 1 r ♦� • E 4 Pr a t, 188 S FedsrW Wa i Pf* & Rich r SCALE -- ` 1 Inch squab 6,300 Feet 1 , . MAP III -20 Federai Way Comprehensive Plan Transportation The majority of service is provided to Park and Ride facilities where more than half of Federal Way's transit riders access transit. Routes into the neighbor- hoods of the City are oriented to the higher density areas where there is lower auto ownership and greater reliance on transit. The potential for improvement was corroborated by comparing auto and transit travel times. The recently adopted METRO Six Year Plan would accommodate these changes in customer needs by setting policies which would shift layout of the system to multiple Hubs and Spokes focused on transit centers with rapid service between centers. This would provide radial local service to take customers to a city center. Thus, citizens would be able to catch express service to such destinations as Auburn, Puyallup, Tacoma, and Seattle. In addition, the 1996 voter approval of Sound Under a demonstration project, METRO instituted Dial-A-Ride Transit (DART) service to portions of the City in 1992. Today, DART service follows a semi- fixed routing with service provided to patrons who do not live or work on fixed routes. Is transit service available today? In a 1991 survey by Federal Way, the answer seemed to be a resounding "No." Distributed to approximately 30,000 residents, nearly 2,000 responded, many of whom (87 percent) were auto drivers. When asked for reasons why they did not use transit, the following responses were received: Auto required for worWpersonal errands 47%. Buses do not go to destination 33%. Auto saves time 30%. Bus schedules are not convenient 29%. Bus stops too far away 23%. Parking is free/low cost at work 23%. Transfers are inconvenient 20%. However, in another survey, among 75 employers of varying size, nearly 75 percent indicated that service is available within one block of their establishment. Local Transit Service Development Most transit service to and from Federal Way is oriented toward downtown Seattle. Historic, radial expansion of the system from the downtown is one reason for this. More significant is that density, con- gestion, and parking costs have kept transit competi- tive in the downtown Seattle market. It was not prudent for METRO to expand service for the growing suburban market where there was little congestion and parking was abundantly available. However, suburban-to-suburban travel demand and local congestion have increased the need to reevaluate and begin planning for crosstown service. Transit's Sound Move Initiative provides greater means to serve emerging travel patterns. Other Factors Affecting Transit Use While transit routes exist within Federal Way neigh- borhoods, the existing street layout, with its many cul- de-sacs and dead-end streets, is not always conducive to transit use. Buses cannot run along every residential street. They usually operate on collector and arterial streets, thus residents often have to walk several blocks to reach a route. Research has shown that when potential patrons have to walk over'/< mile, many will not use transit. Because of the distance between residences. and bus stops, and frequent express-type service to Park and Ride lots, many transit users travel to the three Federal Way lots. However, these lots are nearly always at capacity. Efforts to expand their capacity by both METRO and WSDOT have been hampered by the relatively high cost of land to provide for expansion. Despite high land costs, WSDOT plans to construct a new 600 space Park and Ride lot at 21 st SW at SW 344th Street when funds are available. In considering future land use and transportation alternatives for the City, a balance must be sought between creating transit compatible land uses and providing system access from park and ride facilities and stations. Dial-a-Ride Transit (DART) As noted above, this service was introduced by METRO in 1992 and is being evaluated for its poten- tial as a component of future transit service in subur- Revised December 1998 III-75 Federal Way Comprehensive Plan Transportation u ban communities such as Federal Way. Dial-A-Ride service is demand activated by the users. Users origin- ally phoned in and van service was provided within two hours. Unlike regular route service, only the area being served was defined, not the routes. The service has since been modified to operate with semi-fixed routes, which due in part to greater schedule relia- bility, has dramatically increased ridership. Should ridership continue to improve, regular fixed route service may soon be attainable. Paratransit Service In addition to the service program for general purpose travel, METRO has embarked on a significant pro- gram to improve services for persons who cannot use regular route bus service. This program has been developed to meet the requirements of the Americans With Disabilities Act (ADA) of 1990. It provides high quality public transportation service to eligible custo- mers. Improvements in this program will continue in order to meet the deadlines imposed by the Act by I 997. People with limited resources who are either 65 or older or who have disabilities may qualify for Para- transit. Called ACCESS Transportation, the Paratran- sit services currently provides door-to-door transpor- tation Monday through Friday for 25 cents. Monthly and annual pass stickers are available as well. Key elements to METRO's Paratransit Plan are the provision of: Supplemental service in Western King County within'/4 to 1'/z miles on either side of regular route service; Next-day reservations up to l4 days in advance, with trips scheduled seven days a week; Fares held to the same level as one-zone regular bus fares; and Scheduled service to be the same as the near- by, regular routes. Federal Way is within a METRO service area from 5 a.m. to 2 a.m. Regional Transit Improvements The METRO Six Year Plan is consistent with the regional public transportation concepts embodied in the Regional Transit Authority's plan for longer range rail and bus improvements. It provides a first step toward building an integrated system of expanded services and capital facilities. Now that a regional transportation system has been approved by voters, Federal Way's land use and transportation plans accommodate its impacts and implications. The City Role Supporting activities by the City, either under the shorter range METRO Plan or the Regional Transit Plan (RTP), would include preferential traffic signal treatment for regional (express) buses, and coopera- tion with WSDOT in improving access to the state highways in the area. The Land Use plan will support both the regional and local transit systems through configuration of land uses and allowable densities. Historically, most of Federal Way was developed at five units to the acre or less. The land use chapter of the Comprehensive Plan includes higher densities in the City Center and along the SR-99 corridor. A threshold in transit planning seeks 15 to 20 dwelling units per acre to support HCT systems. The results of such intensification are shown in Figure III-S, which depicts the ability of differing development densities to generate higher transit mode splits. The primary area supporting HCT will be concentra- ted along Highway 99 north and south of South 320th Street. The City Center will be located northeast of the intersection of these two arterial roadways. Higher density residential areas will be located in the City Center core and frame, increasing in intensity in areas surrounding transit centers or major transfer points such as Park and Rides. Revised December 1998 ���-�s N 4 O N N 0 O N 3% 1% 6% 3% Land Use Intensity vs. 'Ilransit Demand LEGEND Note: This level of transit use only attainable with High Capacity Transit Station in place EDEIZAL uv Figur� III-5 DAILY RANGE OF TRANSIT USE LOW HIGH 6% 16%* Zone Density Federai Way Comprehensive Plan Transportation Table III-1 S METRO Improvement Plan Projects in Federal Way Target Service Level Category Route/Description Peak/Midday/Evening Transit Service 187 Neighborhood service between Federal Way Hub and SW Federal Way. 30/30/60 177 Peak direction express service Federal Way Hub to Seattle CBD. SadSun 30/60 181 East-west local service between the Federal Way, Auburn, and Green River 36 trips/day Community College Hubs; continuing through Kent East Hill to Lake 30/30/60 Meridian P&R and Kent Hub. Sat/Sun 30/60 183 East-west local service between Federal Way and Kent, includes stops in 30/30/60 Camelot, Star Lake P&R, and Kent West Hi1L SadSun 60/60 188 Add service to 21st Avenue SW. 30/30/60 903 Revise to connect to Pierce Transit Route 61 serving Northeast Tacoma.. SadSun 60/60 194 Two way express service connecting Federal Way Hub, SeaTac Hub, and 30/30/30 Seattle CBD, includes stops at Star Lake and Kent-Des Moines P&R's. SatlSun 30/30 Transit Hub Park Federal Way transit hub with passenger and bus layover facilities; METRO is contributing to a third Federal Ride Way P&R, a 600-stall lot currently in final design by WSDOT; Expand Star Lake P&R by approximately 500 stalls, either on the surface to the north of the existing lot, or by the construction of a parking structure on the existing site. Speed Reliability Current speed and reliabiliry study underway on SR 99 from Boeing Access Road to South Federal Way PBcR. Non-motorized Collaborate with local jurisdictions in the planning and design of bicycle and pedestrian access improvements Access (e.g., bike lanes, curb cuts, gutters. sidewalks, and rail crossing improvements). Improvement Priorities Metro (King County Metropolitan Services) has iden- tified transit service improvements in south King County in their draft six-year plan. These improve- ments are depicted in Table III-15. To support expanded regional transit, a more exten- sive feeder bus system will be needed. METRO and Pierce Transit have worked with the City in develop- ing concepts for improved transit service in and about the City in the future to support the CityShape land use vision. Key features include: Expanded Bus Route Coverage Existing Peak Hour Transit Service and potential new bus routes are depicted on Maps III-21 and III-22. Improved Regular Route Bus Service Buses would run every 15-30 minutes, linking neighborhoods, Green River Community College, Valley employers, and other south county cities. Transfers to Pierce County buses would also be made easier. Dial-A-Ride Service This on-call service would be modified as needed to complement regular route ser- vice. New technology would help provide a more flexible set of services, penetrating neighborhoods where regular buses are prohibited. Paratransit services would also expand door-to-door service for people with disabilities. Transit Main Streets Selected travel corridors would be designed to combine freyuent bus service with neighborhoods and City Center shops or services. Comfort, safety, as well as bicycle and pedestrian access would be emphasized along these corridors. Transit Prioriry As with regional express routes, special lanes and signals could allow local buses, as well as van pools and car pools, to by-pass congestion. Areas under consideration, through regionally funded studies, include SR 99, South 348th, and South 320th Streets. Diamond lanes for HOV's, including buses, would be completed along SR 99, and South 348th Street. Revised December 1998 mw 1w mw Cr Y OF FEDERAL WAY COMPREHENSIVE PLAN 197 ... Igo PEAK HOUR TRANSIT SERVICE 1 1 178 EBeodve dune 1 9W 1 5 177 91 17 00 N TRANSPORTATION ELEMENT Star Lake Park & Ride Pu et Sound g 152.183.190• 191.192.194, 195;197 ,p V M l Legend .. J Federal Way City Limits . • •' Potential Annexation Area s 1 76 Fk /v Transit Route 1�8 178 8 \� 178 1178 Federal Wav ♦, 188 3 Park:& 173:174175 m ♦ �` •\ 178 188 "� g ^ 181 194 �/ 176;1.77178;. 181;.183.194. Y \ a 197 903 / ' 196:197901; 903:PT402:.: 803 188 90 PT500 ♦ —SCALE ,♦ 1 inch equals 6,300 Feet S Federal Wt ♦� � Park & Ride ♦• 194,198,197 $ • •. • • � •• 4RM � MAP III -21 mw 1w mw r PROPOSED TRANSIT ROUTES Federal Way Comprehensive Pian Transportation Traveler Information Systems Through the applica- tion of high-tech communications systems, METRO has already begun installing devices to track the loca- tion of vehicles and to provide the traveling public with real-time information on system options. These systems will be enhanced under a comprehensive sys- tem of transit, HCT, HOV, and freeway monitoring. As described later in the plan, it is anticipated that a vastly improved traveler information system will make both the local and regional transit system more attractive to local residents. Six-Year Plan Implementation In 1996, METRO appointed several citizens in South King County to recommend improvements in transit service to imple- ment the Six-Year Plan. This group met for over a year and has recommended the development of a grid pattern of local service routes and consolidating com- muter routes to Seattle, and increasing the frequency of routes connecting to other communities. The first phase was implemented in September 1997, and modified the following routes: Route 181 was rerouted to South 336th Street, 20th Avenue South and South 324th Street, ii►stead of Weyerhaeuser Way South and South 320th Street. Frequencies were increased to 30 minutes midday. Route 902 was replaced with a new Route 183 from the Federal Way Transit Center to the Kent Transit Center via the Star Lake Park Ride. Overlapping portions of Route 192 were deleted. Route 903 was rerouted to 1 st Avenue South and South 320th Street from South 356th Street and 20th Avenue South between West Campus and the Federal Way Transit Center, providing all-day service to 1 st Avenue South. Route l94 was rerouted to 9th Avenue South from Pacific Highway South, providing all-day service to several CTR affected employers. The second phase of improvements would restructure routes in the remainder of Federal Way and is planned for implementation in June 1998. A sample route structure is shown in Maps III-20 and 21. The ulti- mate conceptual plan is shown in Map III-22. Sound Transit Improvements The voter-approved Sound Move Initiative will provide improvements to the Federal Way Transit Center and the Star Lake Park Ride. At both locations, direct access road- ways will be constructed from the Park Rides to the HOV lanes on I-5. Express bus service will also be provided between Tacoma and Seattle, and another route will connect Federal Way with Auburn, Kent, Renton, and Bellevue. Plans for extending light-rail between SeaTac and Tacoma will also be reviewed. Federal Way Transit Center Location The Federal Way Transit Center is currently located at the Federal Way Park Ride. At the time of adoption, the City Center element of the Comprehensive Plan proposed a new location at South 316th Street and 20th Avenue South. The primary driver for this location was the assumption that light-rail between Seattle and Tacoma would follow SR 99. Since adoption of the plan, conditions have changed and discussion of alternate locations has emerged. Sound Transit's Sound Move Initiative allocated $4 Million for the construction of a new Transit Center, in coordination with the enhance- ment and/or relocation of the existing Transit Center and direct access ramps. The Transit Center is considered by the City as a major anchor to the urban center designation in the Vision 2020 plan adopted by the PSRC. The location of the Transit Center should be surrounded by prop- erty that has potential to redevelop into transit- supportive uses, thus assisting to ensure both the success of the Transit Center itself and the economic vitality of the City Center. Based on thee considerations, the Transit Center and any associated capital facilities (such as park and ride facilities) should be located as closely as possible to the geographic center of the City Center. This point is located at the intersection of 20th Avenue South and the proposed South 3l 8th Street. In no case should the Transit Center be located east of 23rd Avenue South, as the proximity to I-5 would limit redevelopment to transit-supportive land uses. u Revised December 1998 111-81 Federal Way Comprehensive Plan Transportation Table III-16 Work Trips and Mode Split Estimates Current ZO10 Federal Way Region Federal Way Region Mode Work Trips Daily Trips Daily Trips Work Trips Daily Trips Daily Trips Drive Alone 79% 86% 72% 70-74% 81-85% 62-68% CarNan Pool 14% 8% 15% 18-20% 8-10% 16-18% Transit 3% 1% 6% 4-5% 2-3% 8-10% Other 4% 5% 7% 4-5% 5-6% 8-10% The Result of Transit Expansion The net result expected from placement of improved transit locally and in the region is meaningful im- provement to mode split (the percentage use of each mode). The predicted (and present) values are as shown in Table Ill-16. While not large in magnitude, with only a 13 percent share of trips by transit and other HOV's in 2010, one must view the impacts during peak periods and along congested travel cor- ridors in assessing the implications. It is possible, after the turn of the century, that: One in every four Federal Way Work trips will be by HOV and transit modes; One in every three Regional Daily trips will be by these modes; and, Over 50 percent of all work trips to urban centers such as Federal Way will be by HCT and HOV. Guiding the Process To strategically position itself in the regional transit funding process, Federal Way's plan has been pre- pared to integrate with the Metropolitan Transporta- tion Plan, METRO's Six Year Plan and the RTP. Road improvements which have been identified will focus service to the transit centers or Park and Ride lots and support access to the regional system or provide an increment of capacity which would relieve congestion and air pollution. To foster achievement of the transit vision, a series of supportive actions are necessary. T'he land use distri- butions should take advantage of opportunities to increase densities in a transit friendly fashion. In the core area, street planning would, in many cases, pro- vide exclusive access routes to transit centers as the area increases in density. A staged implementation of service in the City Center will be required. This can be accomplished by creating incentives for developers and through investment of public dollars to protect options and provide logical increments of service. The provision of transit cor- ridors, improved traffic circulation, and improved non-motorized access to transit will also be necessary. Key interim and long term improvements must con- tinue to focus on transit service to transit centers and Park and Ride lots. As the City moves toward 2010, strategically located lots, with bus, bike, and pedes- trian access will be necessary. Complementing this, the City can look to the land use development process and the rising interest of employers to provide "self- managed" travel options. The City will encourage transit-oriented land use patterns, especially along intensified corridors. The State's Commute Trip Reduction (CTR) legislation will also guide these efforts. Transit extension into many of the City's neighbor- hoods will not be possible due to the configuration of the existing street network. However, opportunities do exist to connect neighborhood collector streets, per- Revised December 1998 111-82 Federal Way Comprehensive Plan Transportation haps limiting passage to HCT, buses, and HOV's. Such extensions into neighborhoods will require strengthening of roads or their structural failure will be rapid. Most routes will remain on major streets where traffic flow improvements can be made to expedite service. Enhancements to transit (HCT and HOV) flow will become increasingly popular as signal preemption techniques are perfected. Several of these systems are being tested at present. The likely sequence of the longer term development and travel events is shown in section 3.6. Transportation Goais Policies Goal TG6- a. Prepare and provide for an enhanced, high capaciry transit system, maintaining area residents' mobility and travel options. b. Foster phased improvements which expand transit services in time to meet the demand for these services. Policies TP67 Promote the creation and use of a regional transit system which provides a cost-effective alternative mode of travel to the single occu- pant auto, and assists the region in attaining air quality standards. This system should be extended to the City on a timely basis and be preceded by phased implementation of in- creased levels of local and regional bus and HOV services which maximize accessibility to regional jobs and maintains Federal Way as a regional activity center. venient connections from city neighborhood activity centers to the regional transportation system. TP69 The target levels of mode split (share) to tran- sit and HOV's for planning purposes should be: 15 percent of all daily person trips; 30 percent of all daily work trips; and 40 percent of all work trips between major activity centers. TP70 The regional and local transit systems should be designed to meet the requirements of the elderly and disabled (as prescribed by the Americans with Disabilities Act) and should take advantage of technological advances in transportation reflected in Advanced Public Transit Systems (e.g., traveler information, system monitoring, performance monitoring, etc.). TP71 The City will continue to cooperate with regional and local transit providers to develop facilities that make transit a more attractive option (e.g., bus shelters, rapid intermodal connections, frequent all day service, safe and attractive facilities). TP72 The development of successful transit com- muter options (e.g., subscription buses, special commuter services, local shuttles) should be supported by the City. TP73 Through subarea planning, with the coopera- tion of transit service providers, work to make transit part of each neighborhood through appropriate design, service types, and public involvement. TP74 Enhance the viabiliry of regional and local transit service by establishing design stan- TP68 Identify and promote development of a local level transit system which complements the regional system while meeting the travel needs TP75 of City residents, consumers, employers, and employees. This system should provide con- dards for streets that move transit, pedestrian, and cyclists in the City Center. u Preserve right-of-way for transit facilities as development applications are reviewed and perm itted. Revised December 1998 III-83 Federal Way Comprehensive Plan Transportation TP76 Create an incentive program which rewards development that establishes densities suppor- tive of the adopted regional transit plan. capacity to allow conversion of general purpose lanes, this will afford a cost effective alternative. TP77 Encourage the use of incentives to stimulate transit, car, and van pool use. 3.6 HIGH-OCCUPANCY VEHICLE FACILITIES A Regional Freeway High-Occupancy Vehicle (HOV) System Plan, or core HOV system, has been desig- nated for the freeway system in the region. The HOV system includes using the middle lanes of I-5 south from Seattle through Federal Way to Tacoma, includ- ing possible direct access to the South 272nd and South 320th Street transit centers along I-5. HOV facilities are viewed at the regional, state, and federal levels as essential to meet public service needs. Also, HOV facilities may provide vital accessibility to developing urban centers in the Puget Sound Region. This core HOV system is currently under study (WSDOT Puget Sound Regio» Pre-Design Studies) to identify direct access locations which will enhance the HOV system and improve transit and non-transit HOV travel times. HOV System The legislature has, in the past, committed to com- pleting the WSDOT core freeway HOV lane system. The Puget Sound Regional Council's (PSRC's) Yision 2020 (the Metropolitan Transportation Plan) includes completion of the Core HOV system as the corner- stone to promoting HOV travel in the region. Features will include ramp meters and queue bypass lanes, as well as integration of Intelligent Vehicle Highway System (IVHS) features such as dynamic signing, radio information, and advanced vehicle detection. Emphasis will be placed on providing improved access routes from large employers and where conges- tion exists today. Generally, HOV lanes will be added to existing facilities, but where there is sufficient At the regional level, the HOV system will be avail- able to a mix of vehicles. The occupancy level will be varied to maintain at least an average peak hour opera- ting speed of 45 mph. As demand increases and speed is lowered below this threshold, the level may be var- ied, for example, from two or more people per vehicle to three or more. WSDOT created the Office of Urban Mobility to coordinate long range and emerging trans- portation planning issues between WSDOT, PSRC, and its member jurisdictions. Among its projects will be the evaluation of alternative HOV treatments to provide the most effective combination of facilities to maximize speeds and reliability of bus service. Regional planning has applied HOV planning on a local scale. The King County Arterial HOV plan, August 1993, identifies I-5, SR 99 (Pacific Highway), South/SW 320th Street and South 348th Street as potential corridors for implementation of HOV and transit priority treatments. The plan specifically identifies: Proposed (median) HOV lanes on I-5 extended from SR 516 to Pierce County. Freeway Access study on SR 18. HOV Corridor and Access Study at South 272nd Street. HOV lanes on South 348th and access improvements to I-5. HOV Corridor Studies on South/SW 320th Street and SR 99. Intersection Improvements on South/SW 320th at 1 st Avenue South and 21 st Avenue SW. New or improved park and rides and a transit center within the city. Sound Transit will construct direct access HOV connections at South 272nd Street and South 320th Street. WSDOT is also considering direct HOV access at South 348th Street. WSDOT agrees to the need of HOV lanes with automatic vehicle identification (AVI) to provide priority to transit vehicles on SR 99 north of South 356th Street and includes them in their system plan. Revised December 1998 ���-84 Federal Way Comprehensive Plan Transportation Table III-l7 TIP HOV Improvements Federal Way Location Improvement Cost Year S 348th I-5 to SR 99 HOV/Signal Coordination $6.9 Million 1995 Completed Regiona! C!P SR 99/SW 336th Transit Center Unknown 2010+ City Center, S 316th 20th S Transit Center $6.1 Million 2000+ SR 99/S 272nd Transit Center Park Ride $12.7 Million 2010+ SR 161/S 356th Transit Center Park Ride $13.1 Million 2010+ 21 st and SW 344th Park Ride $8.8 Million 1999 SR 99, S 272nd to Dash Pt HOV Lanes $20.2 Million 2006 SR 99, Dash Pt to 312th HOV Lanes $13.9 Million 2008 SR 99, S 312th to S 324th HOV Lanes $7.2 Million 2002+ SR 99, S 324th to S 340th HOV Lanes $24.0 Million 2004 SR 99, S 340th to S 356th HOV Lanes $18.6 Million 2010+ S 272nd I-5 Direct HOV Access $27 Million 2010 S 320th I-5 Direct HOV Access $27 Million 2010 S 348th I-5 Direct HOV Access $27 Million 2010+ S 320th St: SR 99 Ist Ave S HOV Lanes $15 Million 2010+ S 348th St: SR 99 Ist Ave S HOV Lanes $12 Million 2010+ The Future HOV System HOV enhancements within the Federal Way planning area will consist of signal priority treatments, exclu- sive lanes, increased park and ride opportunities, and other improvements to be identified as demand increases. These latter improvements can include separate (preferential) access lanes or roadways. This means utilizing HOV lanes on highways and arterial streets wherever practical, if transit and car pool movements can be enhanced, and optimizing the occupancy rate to move the most people possible. TIP Improvements Improvements in the City's Transportation Improve- ment Program (TIP) to support the HOV system are identified in Table III-17. Many of these HOV facility needs will need to be provided by outside agencies, including Sound Transit, WSDOT, and METRO. Federal Way is working closely with these agencies to implement these improvements over the next several years. Revised December 1998 III-85 Federal Way Comprehensive Plan Transportation Transportation Goals Policies Goals TG7- a. Place high priority on development of HOV and transit priority lanes. b. Develop arterial HOY lanes on bus routes with priority for transit at tra�c signals. c. Work with the transit agencies, WSDOT and King County, in applying for funding for �IOV improve- ments that complement transit and non-transit HOY facilities and park and rides within Federal Way. d. Work with WSDOT to complete the Core HOV system on 1-S as planned. 3.7 AVIATION Another vital link in the fabric of area transportation is the aviation system. As pointed out in the Com- munity Profile, this extends beyond regional aviation to local issues surrounding flights over portions of the City ("overflights") and local helicopter activity. At the regional level, there has been recurrent debate over the issue of maintaining SeaTac as the regional facility or establishing a new airport. The City recog- nizes the economic benefits of its proximity to the airport, as well as the liability to Federal Way's quality of life which air traffic can produce. The City will continue to insist upon maintaining the quality of life expected by area residents. Local Level Opportunities currently used by helicopters. The City is the base for 12 helicopter operators. Together, these operators field a combined fleet of 38 rotor craft. This fleet serves the following types of purposes: 1) Business Operations, associated with corporate activity and air taxi services; 2) Emergency Services, including activ- ity associated with St. Francis Hospital, the Federal Way Fire Deparhnent, and King County Police; 3) Law Enforcement (primarily King County Police); 4) Government Flights, which are primarily military helicopters from Fort Lewis south of Tacoma; and 5) Disaster Mitigation. The planning and siting of helicopter facilities has been divided into emergency and commercial uses and facilities. Potential roles of heliports and a process for selecting prospective sites in Federal Way have been identified. Given potential roles and siting considera- tions, the discussion of possible courses of action can be pursued within the community. Potential roles for heliports in Federal Way would add disaster mitigation to business, emergency service, and law enforcement activities. Planning efforts are currently underway between Seattle and King County to incorporate helicopters and designated landing facilities into the region's emergency preparedness planning. Public heliports in Federal Way would be a key link in a regional disaster mitigation system. Potential improvements to existing heliport operations were identified in the heliport planning process. They include improved safety, better utilization of emer- gency response resources, and increased reliability of helicopter operations. Safety can be improved: on the ground (through improved, properly designed surfaces and fencing of the landing area), and in the air (through proper identification and illumination). Reliability would be increased through placement of modern equipment which would improve the safety of poor weather operations. The practice of providing standby fire protection support, which now occurs for transfer of St. Francis Hospital patients, could be eliminated. Federal Way experiences a relatively high level of helicopter overflights today, due in part to its prox- The Heliport Master Plan (HMP) of June 1994, by imity to Boeing Field and also to the routine use of I-5 Ketchum and Company, is used as a guide for goals as a flight conidor in order to minimize noise. Map and policies which decision makers may use in the III-23 shows twelve landing areas in Federal Way implementation of heliport facilities in the City of Revised December 1998 III-86 Helicopter Landing Areas LEGEND 1. Fly Wright Company Landing Area 2. Fly Wright Company Landing Area 3. 336th St. Medical Transfer Point 4. Fire Station t!8 (Emergency) 5. 272nd St. Park 8t Ride (Emergency) 6. Thomas Jefferson High School (Emergency) 7. Twin Lakes Golf Course (Emergency) 8. Federal Way High School (Emergency) 9. Woodmont Elementary School (Emergency) 10. Weyerhauser Corporate Landing Area 11. Green Gables Elementary School (Emergency) 12. Fire Station !t3 (Emergency) arroF G Ay�� Map III-23 Federal Way Comprehensive Pian Transportation Federal Way's Transportation Comprehensive Plan. This plan identifies key elements which should be considered as part of the next phase and the public discussion on options to pursue. It advocates that the following questions be evaluated in making the decision: Economic When will the development for emer- gency and commercial uses of heliports be justified? Identify primary medical helicopter transfer points by a Global Positioning System (GPS) points and on Airlift Northwest helicopter navigational computers. The City should develop a heliport ordinance/ code section consistent with the PSHSP and Puget Sound Helicopter Emergency Lifesaver Plan (PS/HELP). Environmental What will the noise effects be and will mitigation measures be sufficient to meet com- munity interests? Operational Does the facility work in terms of air operations and routine maintenance? And, does the area accommodate the physical needs of such flights? Finally, in selecting candidate sites, a sequential pro- cess of narrowing alternatives would be employed. Fifteen large zones would be evaluated, initially using general criteria. Then, the "short listed" zones would be further screened for specific sites capable of sup- porting a heliport facility. The Heliport Master Plan provides an in depth site selection matrix and is pro- vided for use in this decision making. The results of a preliminary evaluation in the HMP is shown in Map 111-2�. The Heliport Master Plan recommends the following: The City should appoint a representative to the Puget Sound Heliport System Plan (PSHSP) Advi- sory Committee, which is investigating a system of heliports. St. Francis Hospital should consider an emergency heliport on its property for a trial period. The Federal Way Fire Department should elim- inate its policy of attending each ambulance/ helicopter transfer at Weyerhaeuser. Appropriate agencies should establish an EMS- only heliport. The City of Federal Way should participate in the PS/HELP. Transportation Goais Policies Goal TG8- a. Support the area's economy by assuring residents and area employers access to a full range of travel modes, including interciry airport facilities, while maintaining the qualiry of life reflected in the plan vision. b. Provide guided opportunities for the improvement of heliport facilities and services in and around the City. Policies TP78 Continue to represent the community in matters pertaining to the regional airport(s). TP79 Promote extension of fixed guide way facili- ties to the regional airport as an effective means of resolving congestion problems that affect City residents and businesses. TP80 Finalize and adopt guidelines for short range, local area rotor craft facility installation and use. These will be designed to minimize noise and safety risks and recognizing the jurisdic- tion of the Federal Aviation Administration. Revised December 1998 III-88 Recommended Heliport Siting Areas LEGEND City Limits Most Compatible Region With Heliport Development G F�ElZAL �v Map III-24 Federal Way Comprehensive Plan Transportation 3.8 FREIGHT AND GOODS Transportation related decisions can have a significant impact on freight and goods movement, affecting the economic competitiveness of local and regional businesses. When freight and goods movement was confined mostly to rail on separate right-of-way, there was not a great need to include freight and goods in urban planning processes. That situation has changed. Today, even at the local level, our dependence on trucks for deliveries has been heightened. Industry's adoption of "just-in-time" inventory systems and increasingly popular overnight small parcel services, as limited examples, have increased demand for lim- ited roadway space. Combined with increased urban (commuter) congestion, trucks are not able to perform their role in the economy as e�ciently as they did a decade ago. The general approach to transportation planning has failed to systematically consider freight and goods movement needs. Recent state and national legis- lation, encouraging such an approach, recognizes that local government has long played a role in managing this component of our transportation system. At the local level, development standards assure the provision of adequate on-site facilities such as loading docks; the width, frequency, and location of drive- ways; the turning radius at intersections for curbs; and pavement standards to carry trucks and bus loads. Other government actions include restriction of over- sized vehicles on roads and bridges that cannot sup- port their weight or size, and the designation of truck routes. Similar activities can be found at the regional and state levels. Local Level Needs/Opportunities Federal Way displays a unique set of circumstances with respect to freight and goods movement. An understanding of its history, as well as current issues and projects, can contribute to adoption of appropriate long term policies and action strategies. While extensive truck and rail oriented development has not taken place in Federal Way, freight and goods movement, primarily by trucks passing through the City, has obviously had its impacts. Situated between the major urban centers of Tacoma and Seattle, the Federal Way planning area has been influenced by four major arterials. Military Road, the original arterial through the area, still displays the benefits of a design aimed at accommodating heavier freight and goods vehicles. Its concrete road sections no longer carry large numbers of pass-through truck traffic. It now provides local access for truck deliveries to established neighborhoods. Until the interstate system was developed in the 1960's and 70's, Highway 99 served as the truck route through the area. Today SR 99 provides a distribution function, mostly for delivery purposes, but also affording access to such regional facilities as the US Postal facility just west of Pacific Highway near South 336th Street. Along its southern sections, crossing into Pierce County, truck drivers find an alternate route to a congested I-5. Today, the major roadways for freight and goods movement into and through the area are provided by I- 5 and, to a lesser extent, SR 18. As the regional econ- omy has grown, the volume of truck traffic along these highways has increased. Today, the highest con- centration of regional truck traffic passes through Federal Way's section of the I-5 corridor. As pointed out in the following sections, the volume of this traffic influences congestion as well as economic competi- tiveness. Map III-25 depicts the City's truck route plan, including existing and proposed truck routes. Regional Activities Trucking centers in Federal Way include the Ever- green Center which has SR 99, SR 18, and SR 161 on three of its sides and Ernie's Center on SR 99 at South 330th Street. These facilities cater to this important segment of our economy, the movement of freight and goods. Looking toward the future, several regional road pro- jects may affect freight and goods movement through Revised December 1998 III-90 w w w CITY OF FEDERAL WAY COMPREHENSIVE PLAN THROUGH TRUCK -- ROUTE PLAN Puget Sound ._ TRANSPORTATION ELEMENT •,_ t > Legend rb �•`•� Federal Way City Limits : • • Potential Annexation Area Existing Truck Routes \ ♦\ .• *4 * Proposed Additional ♦\ I Truck Route •\ < 1 N M9 ♦ \ � d / REPK Y \♦ I 3/d 1E •\ �u • ♦ J \ 8. • \ b — SCALE 1 Inch equals 5,800 Feat M MAP III -25 ..N Kmp~ L * 1ft7 w w w Federal Way Comprehensive Plan Transportation the area. Improvements along I-5, which will make truck traffic more efficient, include truck climbing lanes in the Southcenter area. At present, there are major points of delay for peak hour traffic. Trucks aniving on I-5 and on SR 18 just east of I-5 from I- 405 have problems, since they are not able to approach the hill climb at posted speed and delay other travelers, many of whom are headed to Federal Way. Perhaps one of the most significant improvements proposed in the region's Metropolitan Transportation Plan (MTP), is the improved connection of SR 167 with I-5 at Fife and into the Port of Tacoma. The current industrial development in the area of the Port masks the growing importance of the Green River Valley, both as a trans- portation corridor and as a generator of freight and goods movement. Increasing accessibility to the SR 167 corridor will provide an alternate route for truck based freight and goods movement. Hill climbs from the valley floor, either along I-5 or SR 18, might be avoided, relieving capacity problems along these facilities. SR 509 is being studied for consideration of an ex- tension, tying back to I-5 at South 2l Oth Street or SR 516. This route will open an alternate route to the Port of Seattle's international freight facilities, as well as to provide access to the airport industrial complex. To the extent that this new route's design considers im- pacts to I-5, SR 99, and local street system in Federal Way, it provides great benefit to Federal Way. Other long range actions which will affect freight and goods movement in this north/south corridor include Intelligent Traveler Service (ITS�with improved (truck) vehicle identification, and commuter rail ser- vice in the Green River Valley. ITS features (descri- bed in greater detail under Demand Management) will be incorporated into the "high tech," I-5 conidor being designed under the state DOT's Yenture Pro- gram. Advanced communication systems will allow better detection of slow-downs, accidents, and even hazardous vehicles moving through Federal Way, which certainly affect the City's local residents trave- ling these regional facilities. providing high capacity transit to the south end of the region. Care must be taken to avoid forcing a shift in cargo carrying capacity from rail to truck in the south county corridor. Highway commuter needs warrant keeping this "traffic" on rails. Consistent with the requirements set at the federal level, PSRC and WSDOT are focusing increased efforts towazds understanding freight and goods movement and identifying solutions to problems faced by local, regional, state, and international shippers. Using studies by the Port of Seattle and WSDOT, PSRC and the Economic Development Council have established a Freight Mobility Roundtable. The Roundtable brings together key carriers, producers, and consumers, as well as nationally recognized con- sultants on the topic. This effort is seen as setting the pace for other areas around the country. The Round- table efforts will be linked with a series of other efforts by the Regional Council, including: Building a commodities flow database; Identifying current and future problem areas that inhibit or restrict the effective movement of freight and goods; Recommending road, intermodal, and other sys- tem improvements to address these problems, while meeting federal and state Clean Air Act strictures; and Developing planning guidelines for use at the local level. The benefits of supporting these regional activities will be maintenance of accessibility for City residents and businesses. Local Needs Within the City, continued growth of local truck traffic can be anticipated. Densification of the urban core, along SR 99 and South 320th, as well as the South 348th corridor, will lead to increased numbers of trucks along primary arterials. To the extent that Commuter Rail service in the Valley can avoid impacting freight and goods move- ment, it is viewed as a positive step in the direction of Street design standards and road classifications adop- ted under this plan will assure that new and rehabili- tated facilities are built to appropriate standards. Revised December 1998 III-92 Federal Way Comprehensive Plan Transportation Where pavement, bridge, and neighborhood traffic management systems, or planned land uses indicate that roadways cannot handle truck traffic, designated truck routes will be adopted to protect existing investments and assure continued quality of life. With the enhancement of neighborhood centers, truck deliveries may increase as consumer activity shifts to these areas. While localized neighborhood intrusion is unlikely, isolated cases can be managed using traffic calming techniques. To accomplish effective planning and management of freight and goods movement in the area, traffic moni- toring (volume counts) will include vehicle c�assifica- tion, allowing the patterns of use to be better under- stood. Another technique which can be employed to assure adequate consideration of truck needs is the involvement of those industries and businesses gen- erating the traffic in roundtable discussions, such as the regional activities described above. Transportation Goals and Objectives Freight and goods movement is recognized as a vital link in the chain of local and regional economies. Yet, the characteristics of larger vehicles (trucks in the case of Federal Way) can produce significant impacts to area mobility, livability, and infrastructure. With these factors in mind, the City adopts the following goals and strategies. Provide or encourage improvements which enhance the movement of goods and services to businesses in the greater Federal Way area. Encourage interests to view Federal Way as a viable resource area for ancillary freight and goods activity, drawing upon its excellent location along the I-5 Conidor, other State Routes, and proximity to air and port facilities. Establish revised code requirements and a desig- nated truck route system that accommodates the needs of both the private sector and residents. Discourage the use of road facilities by vehicles carrying Hazardous Materials and those with weight, size, or other characteristics that would be injurious to people and property in the City. Adopt revised code provisions which acknow- ledge the characteristics of modern trucks and provide a balance between movement needs and quality of life. Support regional transportation projects which are appropriately designed and will preserve the capa- city of I-5 and State Routes. Involve major generators of area freight and goods movement in discussions to identify their needs and priorities as part of improvement programming. Goal TG9- Improve movement offreight and goods throughout the region and within the City, while mai»taining quality of life, realizing the vision of our comprehensive plan, and mini- mizing undue impacts to City infrastructure. Objectives and Strategies Cooperate with state and regional agencies in identifying freight and goods movement needs of area employers. 3.9 MARINE The City of Federal Way has no marine facilities to be addressed in the plan. However, its proximity to the Port of Tacoma and the support role it can provide to its facilities is recognized and the following goals and objectives are proposed. Revised December 1998 III-93 Federal Way Comprehensive Plan Transportation Transportation Goals and Objectives Goal TG10. To foster the development of the local econ- omy for Federal Way residents and employers as may be possible through access to regional marine facilities. Objectives Encourage the planning and construction of improved regional highway, rail, and marine facilities in the area of the Port of Tacoma. Coordinate with local business organizations, and provide feedback on international and regional transportation issues and on transport needs and opportunities related to all modes of transportation. Encourage international relationships, such as our sister-city relationship with Hachinohe, to foster marine related trade. 3.10 IMPLEMENTATION STRATEGIES Provision of transportation facilities and services requires the timing of new projects to meet the needs of the community. At the same time, existing facilities must be maintained and the public's investment pro- tected, maximizing the life of the infrastructure. The purpose of this section is to describe various strategies available to the City to implement the preferred trans- portation and land use plan. a Concurrency Management System to regulate the pace and scale of new growth within the community. The implementation plan for Federal Way focuses on the next six-year time period within which to forecast needs and to identify reliable options for transporta- tion funding. In reality, the City's implementation program began in 1990 at incorporation. During the past five years, several major transportation improve- ments have been completed or will soon be opera- tional. While these improvements have occurred, the actual City growth rate has been lower than projected, thus creating fewer impacts on the transportation sys- tem. Since the City also has modest growth expecta- tions over the next six years, the proposed transporta- tion improvement program for 1998-2004 is expected to maintain existing levels of service on the arterial system. At present, the City's transportation system is pro- vided by a variety of agencies. The City operates, improves, and maintains most of the streets and road- ways, although the State operates I-5 and SR 18, east of SR 161. Private development may construct various local street improvements, which then become the property of the public and must be maintained by the City. The City is also responsible for the management of the transportation system, which includes the setting of standards for design, maintenance and operations, and review and approval of modifications. Transportation Improvement Program The Transportation Improvement Program (TIP) counts on strong coordination with other agencies to help finance needed improvements on the state high- way system, facilities in adjacent jurisdictions, along with expanded transit services provided by Metro. The Preferred Plan proposes a balanced investment among modes of travel, increasing the commitment to travel by transit, ridesharing, bicyclists, and pedes- trians. This strategy may create somewhat higher levels of roadway congestion near transit centers, but will provide more travel options for those who choose to use other modes of travel. Growth management requires an implementation program which earmarks sufficient financial resources, while putting into place Map III-26 shows, and Table III-18 lists, the City's TIP for 1998 to 2004, as of June 1997. Map III-27A, Map III-27B, and Table 111-19 depict the City's 2005- 2015 CIP for regional projects and City projects that will be required beyond the six-year planning horizon in the TIP. Most of the projects listed in the table have been identified throughout the planning process and reflect differing degrees of evaluation. They provide a Revised Oecember 1998 III-94 1 W 1W CITY OF FEDERAL WAY COMPREHENSIVE PLAN 6 YEAR TIP PROJECTS J Puget Sound ;® ` TRANSPORTATION ELEMENT Legend d � Federal Way City Limits Potential Annexation Area Street Widening/New I Connection Projects �� ,; �'�`•'� Non Motorized Projects N rMe REP K Y • Intersection Projects Map Identification Number and I E `• '' < < • 8. �r - •`" — SCALE- 1 Inch equals 5,800 Feet �� u _♦ �.�„„,„ MAP 111 -26 MR prMt•d L* IM $N4ftrMfio.wM 1 W 1W Federa�Comprehensive Plan Transportation Table III-18 Transportation Improvement Plan (TIP) —1998 to 2004 MAP ID CAPITAL PROJECT LIST 1998 1999 2000 2001 2002 2003 2004 TOTAL I S 320th St C SR 99: Add tum lanes 136,200 1,482,900 1,619,100 '2 S 336th St: 13th Ave S- 18th Ave S: Widen to 4/5 lanes 693,500 693,500 *3 Military Rd S C S 304th St: Add turn lanes 704,000 704,000 '4 Military Rd S�u S Star Lake Rd: Signalize, add left-turn lane 180,000 180,000 5 SR 99: S 312th St S 324th St: Add HOV lanes 200,000 554,600 8,395,400 9,150,000 *6 S 312th St: SR 99 23rd Ave S: Widen to 5 lanes 3,336,100 1,200,000 4,536,100 7 SW 340th St Hoyt Rd SW: Signalize, add tum lanes 83,900 271,100 355,000 8 23rd Ave S: S 317th St S 324th St: Widen to 5 lanes 800,000 3,172,000 1,601,000 5,573,000 '9 SR 509 8th Ave SW: Signalization, left tum lanes 279,000 279,000 10 21st Ave SW Cu SW 334th St: Relocate fire signal 180,000 180,000 I I SR 99 S 330th St: Signalization, left-turn lanes 100,000 140,000 240,000 12 S 288th St Cu SR 99: Add left-tum lanes I,l 15,300 I,115,300 13 S 312th St C 14th Ave S: Signalization 180,000 180,000 14 SR 99: S 324th St S 340th St: Construct HOV lanes 950,000 10,722,000 11,672,000 I S S 336th St C Weyerhaeuser Way S: Realign intersection 648,700 648,700 16 S 320th St u 1 st Ave S: Add 2nd left-tum lanes WB and NB 1,739,000 1,739,000 17 SR 99: S 284th St SR 509: Construct HOV lanes 960,000 8,672,000 9,632,000 I S S 356th St: I st Ave S- SR 99: Widen to 5 lanes 400,000 6,805,000 7,205,000 19 S 320th St Cu 20th Ave S: Add NB right-tum lane, 2nd WB left-tum lane 1,358,000 1,358,000 Revised December 1998 III-96 Federal Way Comprehensive Plan Transportation 20 S 320th St 23rd Ave S: Add 2nd left-turn lanes on 320th 3,900,000 3,900,000 21 S 348th St: 9th Ave S- SR 99: Add HOV Ianes, EB right-tum lane at SR 99 3,096,000 3,096,000 '•22 21st Ave SW/SW 357th St: SW 356th St 22nd Ave SW: Extend 2-lane collector 750,000 750,000 **23 SW 312th St: 1 st Ave S- SR 509: Widen to 3 lanes 3,775,000 3,775,000 SUBTOTAL CAPITAL PROJEC7'S 6,992,700 6,780.600 10,136,400 9,050,300 10,722,000 10,712,700 14,186,000 68,580,700 MAP ID NON-MOTORI2ED CAPITAL PROJECT LIST 1998 1999 2000 2001 2002 2003 2004 TOTAL *'24 BPA Trail Phase 111: SW Campus Dr SW 256th St: Extend trail 375,000 164,000 1,408,000 1,947,000 25 SW 312th St: SW Dash Pt Rd Ist Ave S: Shoulder improvement 60,000 60,000 26 Weyerhaeuser Way S: S 320th ST S 349th St: Shoulder improvement 652,700 652,700 SUBTOTAL NON-MOTORIZED CAPITAL PROJECTS 435,000 164,000 0 1,481,400 0 652,700 2,444,000 2,977,500 TOTAL CITY EXPENDITURES 7,427,700 6,944,600 10,136,400 10,458,300 10,722,000 11,365,400 1,418,600 71,240,400 •Projects identified in the 1995 StreeUTraffic Bond issue. These projects were selected to address safety and congestion in vazious parts of the City for a total of 57.5 million. •'Delele from the TIP to derive Arterial Slreet Improvement Plan (ASIP). Note: Project costs are inflaled a1 3% per yeaz. • • • CITY OF FEDERAL WAY COMPREHENSIVE PLAN 20 YEAR CIP PROJECTS .... Puget Sound TRANSPORTATION ELEMENT r © Legend Federal Way City Limits ° _ Cs7 ,� • ' Potential Annexation Area \` ^� Street Widening/New Connection Projects \ ,,. ••'� Non Motorized Projects P ,i • Intersection Projects Map Identification Number , SCALE �\ 1 Inch equals 5,800 Feet MAP 111 -27A ,on WAKAWW106=1 M MW CITY OF FEDERAL WAY COMPREHENSIVE PLAN REGIONAL CIP PROJECTS .,. Puget Sound a ' • TRANSPORTATION ELEMENT r Legend S �•� Federal Way City Limits . • • Potential Annexation Area �I Street Widenin ew Connectlon Projects \`\ ,; �' •••�'�•' Non Motorized Projects H4 PK l` / © Intersection Projects 18 Map Identification Number O 1 E •\ �` - •`° '' - -SCALE \ I Inch squab 6. 1800 Feet lIRK C MAP III -27B I Map ,M R ,m1 M MW Federa�Comprehensive Plan Transportation Table III-19 Capital Improvement Program (CIP) 2005 to 2015 COSTS IN 1997 DOLLARS Commutative Map ID CITY CIP PRIORITY PROJECT LIST Design Acquisition Construction Total 2005 Cost 200_5 Cost 1 SR99: SR 509 S 312th St: Add HOV lanes 10,000,000 12,667,701 12,667,701 2 SR 99 S 336th St: Add 2nd EB left-tum lane 761,000 964,012 13,631,713 3 Military Rd S: S 272nd St S 288th St: Widen to 5 lanes 2,580,000 3,268,267 16,899,980 *•4 S 316th Shc Ith PI S: Extend 3 lane collector 2,578,700 3,266,620 2Q166,600 *'S S 252nd St: SR 99 SR 161: Signalization and extension of 3 lane collector 2,798,000 3,544,423 23,711,022 6 S 312th St �u 8st Ave S: Signalization 18Q000 228,019 23,939,041 7 S 348th St Ist Ave S: Add WB and SB right-turn lane 2nd SB left-tum lane 1,433,000 1,815,282 25,754,322 8 SR 99: S 340th St S 356th St: Construct HOV lanes 1QOOQ000 12,667,701 38,422,023 9 S 320th St: I st Ave S- 8th Ave S: Add HOV lanes 5,000,000 6,333,850 44,755,874 10 S 344th St: 9th Ave S- SR 99: Extend 2 lane collector 30Q000 38Q031 45,135,905 I I S 324th St: SR 99 23rd Ave S: W iden to 5 lanes 4,000,000 5,067,080 SQ202,985 12 S 348th St: Ist Ave S- 9th Ave S: Add HOV lanes 5,000,000 6,333,850 56,536,835 13 S 320th St 8th Ave S- SR 99: Add HOV lanes 5,000,000 6,333,850 62,87Q686 14 S 333rd St: 8th Ave S- 13th PI S: Extend 3 lane coilector 500,000 633,385 63,504,071 I S 13th PI S: S 330th St S 336th St: Extend 3 lane collector 500,000 633,385 64,137,456 16 S 356th St cCi SR 99: Add 2nd left-tum lane NB 500,000 633,385 64,770,841 U lst Ave S: S 316th St S 320th St: Widen to 5 lanes 1,485,000 1,881,154 66,651,995 I8 lst Ave S: S 348th St S 356[h St: Widen to 5 lanes 3,160,000 4,002,993 70,654,988 19 S 312th St: 23rd Ave S- 28th Ave S: Widen to 3 lanes 5,175,000 6,555,535 77,210,523 Revised December 1998 III-100 Federal Way Comprehensive Plan Transportation COSTS IN 1997 DOLLARS Commutative Map ID CITY CIP PRIORITY' PROJECT I.IST Design Acquisition Construction Total 2005 Cost 2005 Cost 20 S 336th St: 18th Ave S- Weyerhaeuser Way S: Widen to 3 tanes 261,000 330,627 77,54I,150 21 SW 320th St �,u� 21st Ave SW: Add 2nd WB Ieil-turn lane 750,000 95Q078 78,491,228 22 S 320th St u 23rd Ave S: Add NB through and 2nd right-turn lane I,500,000 1,900,155 80,39I,383 23 S 356th St: SR 99 SR 161: Widen to 5 lanes 3,915,000 4,959,405 85,350,788 ••24 14th Ave S: S 312th St S 320►h St: Extend 3 lane collector 5,900,000 7,473,943 92,824,731 25 S 348th St �u SR 99: Add 2nd left-tum lane on SR 99 750,000 950,078 93,774,809 26 21st Ave SW: SW 336th St SW 344th St: Widen to 5 lanes 1,250,000 1,583,463 95,358,271 27 Military Rd S: S 288th St S 304th St: Widen to 5 lanes 2,600,000 3,293,602 98,651,874 *•28 SW 344th SUIOth Ave SW: SW Campus Dr 21st Ave SW: Extend 3 lane collector 5,000,000 6,333,850 104,985,724 29 Ist Ave S: S 366th St SR 99: Extend 3 lane arterial 7,90Q000 1Q007,484 I 14,993,208 30 S 312th St: 28th Ave S- Military Rd: Extend 5 lane arterial across I-5 13,700,000 17,354,750 132,347,958 *'31 S Star Lake Rd: S 272nd St Military Rd S: Widen to 3 lanes 500,000 633,385 132,981,343 32 SW Campus Dr SW 304th St: IOth Ave SW Hoyt Rd SW: Signal coordination 210,000 266,022 133,247,365 •'33 Weyerhaeuser Way S: S 336th St SR 18: Widen to 3 lanes 250,000 316,693 133,564,057 34 S 336th St: 9th Ave S- 13th Ave S: Widen to 5 lanes 650,000 823,401 134,387,458 35 28th Ave S/S 317th St: S 304th St 23rd Ave S: Widen to 3 lanes I,000,000 1,266,770 135,654,228 36 21st Ave SW: SW 344th St SW 356th St: Widen to 5 lanes 1,875,000 2,375,194 138,029,422 •'37 SW 344th Sd35th Ave SW: 21st Ave SW SW 340th St: Widen to 3 lanes 2,383,000 3,018,713 141,048,135 38 1 st Ave S: S 320th St S 330th St: Widen to 5 lanes 5,000,000 6,333,850 147,381,985 39 S 288th St: SR 99 Military Rd S: Widen to 5 lanes 3,000,000 3,800,310 151,182,295 40 S 304th St �u SR 99: Add left-turn lanes on 304th 750,000 950,078 152,132,373 41 47th Ave SW: SR 509 SW 320th St: Widen to 3 lanes 250,000 316,693 152,449,065 111-1U1 Feder�i Comprehensive Plan Transportation COSTS IN 1997 DOLLARS Commutative Map ID CITY CIP PRIORITY PROJECT LIST Design Acquisition Construction Total 2005 Cost 2005 Cost 42 Hoyt Rd SW: SW 320th St SW 340th St: Widen to 3 lanes 1,250,000 1,583,463 154,032,528 43 S 348th St C Ist Ave S: Add 2nd lett-turn lanc on 348th 1,250,000 1,583,463 155,615,991 44 Ist Ave S: SW 310st St SW 312th St: Widen to 3 lanes 750,000 950,078 156,566,068 45 21st Ave SW: SW 312th St SW 320th St: Widen to 5 lanes 3,263,000 4,133,471 160,699,539 46 SW 336th Way SW 340th St: 26th Ave SW Hoyt Rd SW: Widen to 5 lanes 4,000,000 5,067,080 165,766,619 ••47 S 308th St: Sth PI S- 8th Ave S: Extend 2 lane collector 1,290,000 1,634,133 167,400,753 48 S 288th Sr Military Rd S- I-5: Widen to 5 lanes 2,000,000 2,533,540 169,934,293 •'49 S 304th St SR 99 28th Ave S: Widen to 3 lanes 2,610,000 3,306,270 173,24Q563 50 SW Campus Dr: Ist Ave S- IOth Ave SW: Widen lanes/sidewalk 2,875,000 3,641,964 176,882,527 51 S 312th St: lst Ave S- 14th Ave S: Widen to 5 lanes 4,000,000 5,067,080 181,949,607 52 SW 320th St 47th Ave SW: Signalization 200,000 253,354 182,202,961 •'S3 S 308th St: 8th Ave S- SR 99: Widen to 3 lanes 500,000 633 182,836,346 54 S 320th St Sth Ave SW: Signalization 180,000 228,019 183,064,365 55 Ist Way S C S 333rd St: Signalization 180,000 228,019 183,292,383 56 SW 320th St cr 7th Ave SW: Signalization 180,000 228,019 183,520,402 57 SW 320th St Cu 1 Ith Ave SW: Signalization I80,000 228,019 183,748,421 58 lOth Ave SW SW 334th St: Signalization (80,000 228,019 183,976,439 59 SW 356th St cCi 13th Way SW/14th Ave SW: Signalization 180,000 228,019 184,204,458 Subtotal City CIP Projects 0 0 0 14S,412,700 184,204,458 Revised December 1998 111_102 Federal Way Comprehensive Plan Transportation Map ID CITY NON-MOTORI2ED CIP PRIORITY PROJECT LIST 60 BPA Trail Phase IV: SW 356th St City Limits: Extend trail 61 9th Ave S: S 348th St SR 99: Construct trial 62 SR 99: S 256th St S 372rd Sr Shoulder improvement 63 I st Ave S: S 292nd St S 312th St: Shoulder improvement 64 9th Ave S: S 333rd St S 348th St: Widen for bike lanes Subtotal City Non-Motorized CIP Projects 0 COSTS IN 1997 DOLLARS Design Acquisition Construction 0 I 0 I 0 Total I,000,000 I ,000,000 54,600, 229,000 2,000,000 4,283,600 2005 Cost 1,266,770 I ,266,770 69,166 290,090 2,533,540 5,426,336 Commutative 2005 Cost 1,266,770 2,533,540 2,602,706 2.892,796 5,426,336 TOTAL CITY CIP PROJECTS 0 0 0 149,696,300 189,630,794 COSTS IN 1994 DOLLARS Map ID REGIONAL CIP PRIORITY PROJECT LIST Design Acquisition Construction Total 2005 Cost 1 SR 99: S 272nd St S 284th St: Add HOV lanes 9 12,201,529 2 SR 18: W Valley Nwy Weyerhaeuser Way S: WB truck climb lane 6,500,000 8,234,006 3 Transit Center: City Center (location to be determined) 2,000,000 2,600,000 6,600,000 11,200,000 14,187,825 4 SR 18 Cu Weyerhaeuser Way S: Signalize ramp intersections 60,000 0 240,000 360,000 456,037 5 S 320th St: 8-5 Peasley Canyon Rd: Add HOV lanes 3,600,000 4,140,000 10,260,000 6,000,000 7,600,620 6 1-5 Cu SR 161: Construct interchange reconfigure SR 18 interchange 41,640,000 52,748,306 7 S 272nd St S Staz Lake Rd: Construct left-turn lanes on 272nd 500,000 633,385 8 Park Ride: 21st Ave SW SW 344th St 2,080,000 2,392,000 5,928,000 8,826,000 11,180,513 9 SR 99 r�i S 279th St: Reconfigure intersection, signalization 350,000 443,370 10 S 312th St: Military Rd Slst Ave S: Extend w/bike lanes, sidewalks 40,000 46,000 114,000 2,426,000 3,073,184 III-103 Federa�Comprehensive Plan Transportation COSTS IN 1994 DOLLARS Map ID REGIONAL CIP PRIORITY PROJECT LIST Design Acquisition Construction Total 2005 Cost I I Weyerhaeuser Way S: Military Rd S- S 320th St: Extend 3 lane collector 3,216,000 4,073.933 12 Peasley Canyon Rd: S 321st St W Valley Hwy: Widen ro 5 lanes 12,OOQ000 15,201,241 13 S 321 st St C S Peasley Canyon Rd: Add W E3 lefi-turn lane 250,000 3 I 6,693 14 S 320th St C Military Rd S: Add right-turn lanes on S 320th St 451,000 519,000 1,256,000 766,000 970,346 IS Military Rd S: S 320th St SR I8: Widen to 3 lanes 3,260,000 4,129,670 16 Military Rd S: 31st Ave S- S 320th ST: Widen to 3 lanes 3,500,000 4,000,000 9,300,000 3,263,000 4,133,471 17 SR 509: SR 99 ist Ave S: Widen to 3 lanes 210,000 2,970,000 1,338,000 4,518,000 5,723,267 18 Military Rd S: SR 18 S 360th St 5,577,000 7,064,777 19 Military Rd S: S 360th St SR 161: Widen to 3 lanes 6,435,000 8,151,665 20 SR 509 c�i 47th Ave SW: Add turn lanes, signalization 591,000 748,661 21 S 272nd St Military Rd S: Add SB and EB right-turn lanes 737,000 933,610 22 S 272nd St Q Military Rd S: Add 2nd NB left-turn lane 750,000 950,078 23 SR 509: Ist Ave S- 21 st Ave SW: Widen to 3 lanes 500,000 575,000 1,425,000 2,610,000 3,306,270 24 S 316th St: Slst Ave S- W Valley Hwy: Extend 5 lane arterial 400,000 460,000 1,140,000 8,759,000 11,095,639 25 16th Ave S: S 272nd St SR 99: Widen to 3 lanes 1,720,000 2,178,845 26 28th Ave S/S 349th St: Weyerhaeuser Way S- S 360th St: Widen to 3 lanes 3,000,000 3,800,310 27 51 st Ave S/S 321 st St: S 288th St S Peasley Canyon Rd: W iden to 3 lanes 8,600,000 10,894,223 28 Park Ride and Transit Center: SR 99 cCi 272nd St 3,800,000 3,920,000 18,280,000 10,440,000 13,225,080 29 Park Ride and Transit Center: SR 161 C S 356th St 1,700,000 3,000,000 17,000,000 10,440,000 13,225,080 30 S 360th St: SR 181 32nd Ave S: Widen to 3 lanes 3,001,000 3,80I,577 31 S 3361h Transit Center (S 336th St �,ul SR 99) I,100,000 I,500,000 3,000,000 6,464,000 8,188,402 32 S 272nd St: SR 99 Military Rd S: Widen to 5 lanes 2,700,000 3,105,000 7,695,000 I I,500,000 14,567,856 Revised December 1998 III-104 Federal Way Comprehensive Plan Transportation Map ID Map ID REGIONAL CIP PRIORITY PROJECT LIST 33 SR 509: 30th Ave SW 47th Ave SW: Widen to 3 lanes 34 SR 509: 47th Ave SW West City Limits: Widen to 3 lanes 35 S 272nd St: Military Rd S- Lake Fenwick Rd S: Widen to 5 lanes 36 S 228th SU38th Ave S/S 334th ST/33rd PI S: Military Rd S- Weyerhuser Way S: Widen to 3 lanes 37 S 288th St: I-5 S lst Ave S: Widen to 5 lanes Subtotal Regional CIP List REGIONAL NON-MOTORIZED CIP PRIORITY PROJECT LIST 38 Military Rd S: S 260th St I-5 39 Military Rd S: 31 st Ave S- SR 161 40 S 320th St: I-5 West Valley Hwy Subtotal Regional Non-Motorized CIP List COSTS IN 1994 DOLLARS Design Acquisition Construction Total 22,141,000 29,227,000 83,476,000 4,510,000 4,623,000 4,204,000 4,376,000 3,036,000 216,080,000 2005 Cost 5,713,133 5,856,278 5,325,501 5,543,386 3,845,914 273,723,679 COSTS IN 1994 DOLLARS Design Acquisition Construction Total 2004 Cost 80,000 0 300,000 380,000 481,373 500,000 0 2,400,000 3,280,000 4,155,006 I50,000 0 0 3,050,000 3,863,649 730,000 0 2,700,000 6,710,000 8,500,027 TOTAL REGIONAL CIP PROJECTS 22 ,871,00(1 29,227,000 86,276,000 222,790,000 282,223,706 TOTAL CITY CIP PROJECTS 22,8'/1,000 29,227,000 86,276,000 372,486,300 471,854,501 "Delete from the TIP to derive the Arterial Street Improvement Plan (ASIP). Note: 1) Project which are planned to be completed between 20(W and 2015 are estimated in 2004 dollars. 2) Annual programs are inFlated at three percent per year. Revised�cember 1998 III-105 Federal Way Comprehensive Plan Transportation usable estimate of transportation needs for matching broad estimates of forecast revenues. For program- ming purposes, these projects have been prioritized using the methodology below. Project Prioritization Prioritization is part of the process associated with implementing projects in the order most needed. It is a tactical effort to determine the sequence of events to meet strategic goals, as summarized in the Transpor- tation Improvement Plan (TIP). To determine the sequence of improvements in the City's TIP, several factors had to be balanced. These included considera- tion as to when improvements would be needed, the City's ability to compete for funds, as well as providing improvements across motorized and non- motorized projects. Nine factors used to rank projects are shown as follows. Factors Used in Prioritization of Improvements Transportation Effectiveness l. Concurrency requirement. 2. Corridor Congestion relief (volume/capacity). 3. Enhanced Safety. Alternative Modes 4. Transit HOV Supportive. 5. Non-Motorized Supportive. Environmental 6. Air yuality improvement. Implementation 7. Cost Effectiveness. 8. Ease of Implementation. 9. Community Support. A project was given a rating for each factor on a scale of 0 to 4. The ratings were then summed across all of the factors to produce a total "score" for each project. Projects were prioritized in order of highest to lowest score. Plan Highlights The projects and programs listed in Tables Ill-18 and III-19 represent a broad range of multi-modal trans- portation improvements. Key system investment features include the following: Transportation System Management improve- ments along key arterials, including installation of new traffic signals at needed locations. Several miles of roadway improvements. New arterial extensions on new alignments. Regional HOV lanes along I-5, SR 99, South 320th Street, and South 348th Street. Transit centers at the City Center and on SR-99 at South 336th, South 272nd, and South 356th Street. Expansion of local transit service, according to METRO's six-year plan. Non-motorized investments for pedestrians and bicycles along identified corridors. Substantial funding for ongoing road maintenance and annual programs, including overlays, bridge replacements, minor capital improvements, and neighborhood safety. Maintenance and Operations Planned expenditures of $5,674,889 for the proposed transportation investment program will be for main- tenance, operations, and annual programs within the City. Maintenance of the existing system is critical to the success of the Comprehensive Plan and the ability of the City to accommodate increases in jobs and housing. The maintenance of the existing network, along with low-cost traffic management actions, will improve the system's ability to move people and goods without making significant changes to the overall travel patterns or physical dimension of the streets. While several roadway capacity expansions are being proposed, most of the City's future street network is already in place. It will carry much higher volumes of traffic, which will contribute to increasing maintenance requirements, which are included in the above total maintenance and operation costs. Revised December 1998 III-106 Federal Way Comprehensive Plan Transportation Financing The purpose of a transportation financing strategy is to develop an adequate and equitable funding program to implement transportation improvements in a timely manner. Without adequate funding the transportation plan cannot be implemented in an efficient and cost- effective manner. Furthermore, the inability to fund transportation projects could result in unacceptable levels of congestion and roadway safety. The financing program recognizes various user groups, including traffic from existing and future City of Federal Way development, and regional or sub- regional traffic. Funding sources are not fixed and require annual review and re-programming. Where non-city funds are sought, the City's projects may be competing for limited funds. Without attention to financing require- ments, the operation, maintenance, and expansion of the transportation system will not occur in a timely fashion. Funding Needs Given that the City has only been incorporated since 1990, there is not a long history of financial expen- diture which can be reviewed. The needs forecast through the planning process call for $292,545,069 in total funding needs, plus $293,595,943 for non-City projects, as listed in Table III-18. Funding Strategy Already implemented in Federal Way is a portion of its funding of long term transportation improvements under this Comprehensive Transportation Plan. The following improvements, begun in 1990, have been or will be completed: South 348th Street, SR 161 to SR 99. Completed. SR 161, South 348th to I-5 Overpass. Completed. 16th Avenue South, SR 99 to South 348th Street. Completed. South 356th Street, 21 st Avenue S W to 1 st Avenue South. Completed. South 320th Street Corridor Signal Interconnect, I-5 to 1 st Avenue. Completed. SR 99 Corridor Signal Interconnect, 288th to 356th. Completed. South 348th Corridor Signal Interconnect, SR 18 to 1 st Avenue South. Completed. BPA Trail Phase 1& 2, 1 lth Place South to Campus Drive SW. Completed. Numerous traffic signal installations and upgrades. In addition, in 1995, the City passed a$7.5 million Street/Traffic Bond to improve 10 major projects (see TIP list, Table 111-18, for projects). The projects are funded by a utility tax in the amount of 1.37% for construction and 0.28% for maintenance and opera- tions over the 10-year life of the bonds. T'hese projects, when combined with the City's com- mitments over the next six years, will help maintain an acceptable level of transportation mobility for residents and businesses. The City aggressively pursues federal and state funding sources for arterial street projects in order to maximize the use of City funds to maintain City streets and fund improvements to streets that would not fare well in grant-funding selection criteria. For the purposes of identifying funding sources in com- pliance with GMA requirements, the following strategies are used. Surface Transportation Program grants would be used to fund 86.5 percent of the cost of projects that improve multi-modal mobility on arterial streets. State Transportation Improvement Board (TIB) funding would be used to provide the remaining 13.5 percent of the cost of projects. Hazard Elimination Program grants would be used to fund safety improvement projects up to the maximum grant amount of $300,000. The City would fund the remainder of the cost of the project or ten percent, whichever is greater. Transportation Enhancement Program grants would be used to fund 80 percent of the cost of non-motorized capital projects. The City would fund the remaining 20 percent. Revised December 1998 il1-107 Federal Way Comprehensive Pian Transportation State TIB grants would be used to fund 80 percent of the cost of the remaining arterial street projects. The City would fund the remaining 20 percent. Street projects on collectors would be funded by the City or adjacent development. Local street improvements would be funded by development. Based on these criteria, the TIP would be funded as follows: Surface Transportation Program (Statewide and Regional): $31,741,500. Hazard Elimination Program: $600,000. Transportation Enhancement Program: $1,648,500. Transportation lmprovement Board: $19,525,200 City funds: $1,751,900. The City would be able to fund this level of improve- ments over the six-year period. Funding Sources Funding sources for operation and expansion of the City's transportation.system fall into several cate- gories. Some sources consist of reliable annual funds, others are periodic, such as grants, and some are avail- able options. The use, availability, and applicability of these various sources is not always at the discretion of the City. Most sources have limitations imposed by either the enabling legislation or City policy. The following two categories of funds are available to fund the TIP: State Motor Fuel Tax: The Street Fund was estab- lished to account for the receipt and disbursement of state levied unrestricted motor vehicle fuel taxes which must be accounted for in a separate fund: $1,160,895 was received in 1997. Restricted State Fuel Tax: The Arterial Street Fund was established by state law to account for the use of state shared fuel tax revenues dedicated for this purpose: $540,485 was received in 1997. Motor Vehicle Excise Tax (MVET): Motor vehicle excise tax is collected on motor vehicles at the time owners purchase their vehicles licenses. Cities are allocated 8.83 percent of the total amount collected by the State, which is distributed on a per capita basis. The 1997 amount received was $925,525. Vehicle Re�istration Fee: A vehicle registration fee was approved in 1993 by the State Legislature to address transportation needs within growing communities. T'he 1997 amount received was $645,252. Transportation Development Charges (SEPA Mitigation): The City is assessing traffic impact mitigation for new development as a part of SEPA review. The mitigation amount is based upon the percentage of traffic, directly attributable to the new development, that uses the facility which is the subject of each needed City improvement project. That percentage is then multiplied by the cost of that improvement project. The resulting amount is the portion of the cost of each improve- ment that is to be paid by the owner of the new development. The City collected $130,295 in 1997. 1. ExistingAnnual Sources: The City has control over the establishment and programming of a variety of funding sources enabled by State legislation. Cur-rently the City utilizes the following options: Citv General Funds: The general fund was estab- lished to provide services typically offered by local governments, and derives its funding primarily from local tax sources. The general fund provided $947,351 to the street fund in 1997. Other Minor Services: These include Commute Trip Reduction (CTR) revenues and street use perm it fees. 2. Other Periodic or Available Sources: Additional funding will be generated through other sources. Some are currently utilized, others may be used in the future. Funding also is derived from outside sources (State, Federal, County, Metro) and often requires application. Revised December 1998 III-108 Federal Way Comprehensive Plan Transportation Transportation Equitv Act (TEA-211: This is a federal program designed to improve the transpor- tation system that helps air quality and relieves congestion. The City has been awazded $2,464,242 towards projects in the current TIP. This equals an average of $821,414 per year. State Transportation Improvement Board (TIB) Fund: This is a State wide transportation fund available to local agencies for roadway improve- ments. The City has been awazded $8,444,478 towards projects in the current TIP. This equals an average of $2,814,826 per year. Bond Issue: A written promise to pay a specified sum of money at a specified future date. Bonds are typically used for long term debts and to pay for specific capital expenditures. The City has financed bond measures for transportation projects as well as increasing the City's overlay program by $800,000 for the next l0 years. Traffic Impact Fees: A traffic impact fee ordinance can be established to provide regulatory mitigation. The fee could take into account such elements as the benefits or impacts of develop- ments in various sub-areas of the City, impacts at key locations, projects that promote alternative transportation, buses, car, and van pools, etc., and development incentives for increased public facilities investments, especially in areas such as the City Center. Traffic impact fees would be based upon actual direct impact of new develop- ment on the transportation system. Recently, the City has been very successful at obtain- ing grant funding. The six-year TIP is fully funded through the year 2000. A key reason for this success was the ability to provide more than the minimum requirement of local matching funds. Additional local revenues would help in assuring critical projects are funded. Concurrency The transportation chapter of the Growth Management Act (RCW 36.70A) requires each city and county planning under GMA requirements to incorporate a Concurrency Management System (CMS) into their comprehensive plan. A CMS is a policy to determine whether adequate public facilities are available to serve new developments. In this manner, concunency balances the transportation investment program with land use changes envisioned by the City over the next several years. Legisiative Requirement The transportation element section of the Washington State GMA reads: "Local jurisdictions must adopt and enforce ordinances which prohibit development approval if the development causes the level of service on a transportation facility to decline below standards adopted in the transportation element of the compre- hensive plan, unless transportation improvements or strategies to accommodate the impacts of development are made concurrent with development (RCW 36. 70A.070). The phrase "concurrent with development" means that public infrastructure improvements and strategies required to service land development be in place, or financially planned for, within six years of develop- ment. In Washington State, the transportation CMS's must include all arterials and transit routes; but may include other transportation services and facilities. Concurrency Management The application of concurrency for transportation assures that improvements and programs for accom- modating planned growth are provided as develop- ment permits are issued. The concurrency strategy balances three primary factors: available financial resources, acceptable transportation system perfor- mance conditions, and the community's long-range vision for land use and transportation. The City has Revised December 1998 III-109 Federal Way Comprehensive Plan Transportation identified probable financial capabilities, anticipated system performance conditions (level-of-service), and has proposed a roster of transportation investments and programs that implement the Comprehensive Plan. The Plan presents an allocation of estimated available transportation resources matched to planned improve- ments which are scheduled over the planning period. With the general estimates of costs, revenues, and timing for construction, as required by the Growth Management Act, the Plan predicts the acceptance of development permits that are consistent with its policies. The GMA requires that a contingency plan be outlined in case the City should fail to obtain the resources anticipated to make the necessary transportation improvements to maintain the adopted LOS standards. This analysis is sometimes termed "plan-level con- currency." Strategies for maintaining or rectifying adopted LOS standards in the event of a budget short- fall include the foliowing: Increase the level of funding commitments in sub- sequent years; Review and adjust the City's overall land use vision to lower the overall transportation demand; Reprioritize improvements to address system capacity needs as the highest priority; and Modify (i.e., lower) the LOS standard to match available resources. Modifying the LOS standard cannot be recommended because safety problems usually result from increased congestion and adversely impact air quality and transit operations where HOV facilities do not exist. The adopted LOS standard accounts for HOV's and transit by basing it on average delay per person rather than delay per vehicle. Reprioritizing improvements to address capacity would result in a lack of funding for safety and non- motorized transportation. This would be inconsistent with adopted goals and policies to encourage non- motorized transportation and maintain roadway safety. Lowering transportation demand to match available capacity would restrict the City's ability to function as an urban center consistent with County and Regional plans. Furthermore, the City has little ability to reduce traffic through the City caused by growth in neigh- boring jurisdictions or overflow from congested free- ways. Therefore, improvement in funding for trans- portation appears to be the most realistic alternative. Of the previously listed funding sources for transpor- tation, there are some that the City can control and some that the City can influence. The City can control the general fund, SEPA mitigation, bond issues, and traffic impact fees. These local funding sources can be used to leverage grants at the state (TIB) and federal (TEA-21) levels. State and federal increases in fund- ing are increasingly difficult to obtain; therefore, in order to be competitive for grant funding, local fund- ing becomes increasingly important. Bond issues can be successful but must have a funding source themselves, either property or utility taxes. In order to be successful, bond issues must have a list of projects to be funded, voter support, and a time line for completion.l'he projects to be funded must con- sider voters concerns about who benefits from the projects and what impacts the projects may have. For example, if a project is perceived as benefitting resi- dents of another city or the business community to the exclusion of City residents, the bond measure may fail. Finally, the impermanence of bond issue funding complicates the City's ability to effectively plan for large projects which, due to their size, may have to be phased. If a multi-year multi-phase project was not funded consistently, the full benefits of the project may not be realized. Under state law, counties may authorize a local option gas tax up to 10 percent of the state gas tax. In King County, it is estimated that if passed, a local gas tax of 2.3 cents per gallon would generate $836,000 per year for Federal Way, if distributed per capita under exis- ting state law. However, until the county acts on such a proposal, it is unknown how funds would be distributed. General fund revenue is generally not used much for transportation purposes because many voters believe Revised December 1998 III-110 Federal Way Comprehensive Plan Transportation that gas tax and MVET revenues should be adequate for funding transportation needs. It is also generally unpopular to have street projects compete against human services, parks, police, etc. SEPA mitigation is used extensively and is effective for mitigation of incremental impacts, but is cumber- some to administer when addressing cumulative impacts. As currently practiced in Federal Way, it is unfair to large developments in that no mitigation is assessed for projects that generate less than 10 peak hour trips (e.g. a nine-lot single-family plat). It also funds a relatively small percentage of a total project's cost because existing traffic is included in the calcu- lation of a development's "fair share" of the project, even if the project would not be necessary if there were no new developments. Hence, existing property owners and residents still subsidize projects to accom- modate new growth, but only larger developments pay mitigation, so small developments are subsidized even more. A transportation impact fee (TIF) addresses the dis- advantages of other local funding sources. It can be assessed to all developments based on new vehicular trips for roadway capacity, transit trips for transit improvements, and non-motorized trips for non- motorized improvements. It does not compete against other City services. It pays only for improvements needed to accommodate new development, and funding follows the pace of growth. It does not require City residents or property owners to subsidize projects for new growth. It treats new development fairly, regardless of size. It also lends simplicity and predict- ability to the development community because developers know what mitigation expenses will be. It would simplify development review because lengthy impact analyses would only be required for the largest developments, thus reducing costs for medium-sized developments. The increased cost to small develop- ments, particularly developments small enough to not trigger SEPA mitigation under the City's existing pro- cedures, are easily outweighed by the afore-mentioned advantages of a TIF. Regular updating of the Comprehensive Plan and Transportation chapter will afford opportunities for the City to modify the LOS standard or to secure other funding sources necessary to implement the capital improvements needed to maintain the adopted level of service standard. Concurrency Testing State law requires that a concurrency "test" be applied to all development proposals as a condition of granting a development permit. A concurrency test compares a proposed development's need for public facilities and services to the "capacity" of the facilities and services that are available to meet demand. Other questions that need to be addressed are at what point in the development process does concurrency apply, what types of development permits are subject to the concurrency test, and should fees be charged for con- currency testing to cover staff and administrative costs associated with the testing. Federal Way's approach is to implement transpor- tation improvements and programs that it can afford to finance. These improvements and programs are based upon the Comprehensive Plan, which includes a level- of-service standard for the transportation system. The primary purpose of the Concurrency Management Program is to allocate available resources based on the timing and location of development, and to assess mitigation fees based upon each new development's share of the improvements that are planned in the subarea within which it is located. Level-of-Service measures the outcome of and progress toward the planned growth rate. Concurrency Management and SEPA While concurrency requirements are similar in many ways to the requirements of the State Environmental Protection Act (SEPA), there are some important differences, as follows: Concurrency reyuirements are more demanding; if they are not met, denial of the project is mandated. Revised December 1998 III-111 Federal Way Comprehensive Plan Transportation Concurrency is based on a Level-of Service (LOS) standard; SEPA has no specific standard as its basis. Concurrency requirements only apply to capacity issues; SEPA requirements apply to all environ- mental impacts of a project, including transporta- tion safety. Concurrency has timing rights related to develop- ment; SEPA does not. Therefore, concurrency does not replace SEPA, but rather becomes an integral part of a comprehensive program that relates private and public commitments to improving the entire transportation system. SEPA will focus primarily on site impacts that could result in additional transportation requirements in specific instances (particularly access to the site or impacts in the immediate vicinity that could not have been anticipated in the overall transportation investment strategy for the system). Concurrency conclusions in this Comprehensive Plan do not excuse projects from SEPA review. However, they do address major system infrastructure issues that must be properly adminis- tered under both SEPA and the Growth Management Act. Monitoring The cycle of managing transportation facilities and services has recently been expanded. Emphasis is now being placed on monitoring the transportation system to assure that the community's vision, as reflected in the Comprehensive Plan, is being met. level legislation place requirements (and authority) on the Puget Sound Regional Council (PSRC) to monitor aspects of the transportation land use process. For example, Federal congestion management systems require a regional performance monitoring system. The PSRC is currently developing such a monitoring system which is expected to provide key information on the achievement of plan goals and objectives. Within this context, Federal Way may be called upon to monitor local actions including: Project Implementation (versus planned improve- ment program). Program Status and Implementation (e.g., CTR programs). Policy Adoption (versus those called for in the plan). Motorized and Non-motorized Traffic Volumes and Vehicle Occupancy on local facilities (versus that forecast by the City plan). Land Use Development Approvais or Density Patterns (vs. plan-anticipated growth). Parking data such as pricing, policies, and management. Concurrency management requires the City to monitor the progress of transportation improvements against the impacts of growth occurring within the community. This test will be crucial in measuring the ongoing performance of the Comprehensive Plan over the commg years. Transportation Goals and Policies Goal In addition, all projects that are complex in nature or involve significant capital expenditures have a value engineering study performed in order to select the most cost effect alternative. As a part of the project implementation phase, all projects are required to be reviewed and approved by the City Council at the 30 percent, 85 percent, and 100 percent design phases. In the past, transportation planning merely forecasted expected growth in demand and sought ways to provide the needed capacity. Today, Federal and State TG11 Develop and implement funding mechanisms to: a. Leverage state and federal funds for transpor- tation improvements. b. Meet GMA 's concurrency requirements. c. Provide consistent, fair, and predictable assessment of su�cient mitigation fees for development consistent with SEPA. Revised December 1998 III-112 Federal Way Comprehensive Plan Transportation d. Assure that adequate transportation infra- structure is provided to accommodate forecast growth. Policies TP81 Prioritize transportation projects considering concurrency, safety, support for non-SOV modes, environmental impacts, and cost effectiveness. forecast needs and to identify reliable options for transportation funding. The actions needed during this period take into account transportation investments the City has undertaken since incorporation, combined with realistic expectations of growth. The City cur- rently conducts value engineering on lazge construc- tion projects and should continue to do so. All con- struction projects will be presented before the City Council at increments of 30 percent, 85 percent, and 100 percent for review and approval. TP82 Assure cost-effective maintenance of trans- portation facilities under the City's jurisdiction. TP83 Utilize the City's traffic signal system for data collection to monitor consistency with con- currency requirements. TP84 Develop a concunency ordinance by 1998 as required by the GMA consistent with the City's adopted LOS standard. TP85 Develop a transportation impact fee by 1999 to simplify development review, assess miti- gation fees consistently and fairly, improve the City's ability to leverage grant funding for transportation funding, and provide adequate infrastructure to accommodate new growth. TP86 Adopt interlocal agreements with neighboring jurisdictions to identify methods to assure consistency between comprehensive plans, and adopt fair and consistent means of addres- sing the impacts of growth and development between jurisdictions without undue adminis- trative burdens. Summary of Implementation Goals In emphasizing multiple modes of travel, it is recog- nized that resources will have to be spread and balanced among modes. In achieving this goal, the City should undertalce various strategies to implement its transportation plan by 2015. The near term efforts should focus on projects to: 1) mitigate safety prob- ems; 2) preserve and protect the existing infra- structure; 3) expand multiple modes of travel and assure access for the transportation disadvantaged; 4) mitigate localized traffic congestion problems; and 5) expand the system for new growth. These actions are expected to maintain reasonable levels of service on the arterial highway system during this period. Investment Focus Emphasize early investment in lower cost Trans- portation Systems Management actions aimed at improving the performance of the existing street system. Actions will include intersection spot improvements, new and coordinated traffic signals, and neighborhood traffic management. Identify and preserve necessary rights-of-way at the earliest opportunity. Work with transit providers to promote expanded local and regional bus services and to encourage a transit supported land use pattern. and Policies for Transportation Expand current park and ride facilities and Careful management is recognized as the key to develop support programs to encourage use by fruition of the Comprehensive Plan's vision. The Federal Way residents. transportation system has multiple users and multiple Create a street network within the City Center that funding sources. The implementation plan for Federal �ncludes a by-pass circulation route for through Way focuses on the next six years within which to traffic and express transit. Revised December 1998 III-113 Federal Way Comprehensive Plan Transportation u Develop and apply clear development standards to obtain necessary infrastructure changes as property develops. Improve the pedestrian environment Citywide, with special focus along SR 99 and within the City Center. Focus on safe and efficient pedestrian facilities and improve the ability of pedestrians to safely travel throughout the community. Implementation Process Work closely with adjacent local agencies and preferably, prepare interlocal agreements (espec- ially WSDOT and Metro) to formally establish commitments for coordinated transportation planning and implementation. C Develop a comprehensive Transportation Invest- ment Strategy using a two-stage approach. The first stage should be an updated six-year Trans- portation Improvement Program (TIP), the second stage being a long-range comparison of transpor- tation needs and revenues through 2015 and beyond. Work towards obtaining new funding sources that have the greatest local control for utilization on the most pressing local transportation needs; have the least strings attached; minimize stafftime for obtaining and reporting on the use of the funds; are received on a regular (such as monthly) basis; are predictable; inflation adjusted; and can be counted on for long term financial project planning. Formally establish a process for prioritizing, designing, financing, and monitoring the comple- tion of transportation system projects and pro- grams. Identify clear departmental roles and responsibilities. Monitor the status of the transportation system so that progress towards the Plan's vision can be assured and improvements are in place in time to meet forecast demands. Develop a Concurrency Management Strategy for the City that facilitates the full integration of the programming and administration of transportation improvements, services, and programs with the Comprehensive Plan. Assure that transportation system improvements are programmed to be available for use within six years of development permit approval if level of service is forecast to be exceeded within the subarea of the permit. Monitor and make adjustments as ne�ded to trans- portation level-of-service standards and approach based on growth rates, comprehensive plan amendments, and financing for projects. Integrate a transportation impact program within the development mitigation structure. Work with the regional bus providers to promote a transit-supported land use pattern. Program projects to: 1) mitigate safety problems; 2) preserve and protect the existing infrastructure; 3) expand multiple modes of travel and assure access for the transportation disadvantaged; 4) mitigate localized traffic congestion problems; and 5) expand the system for new growth. Revised December 1998 III-114 � � L-- -�1- __ _ __ - �1 �_ � �� �---- __ _ , __ _ - -- -- ����- �___ J _ _ -, '� _ _---- - l - —, ��_ � 1 � ,---- ��, � % _ _� �� Economic Development r' �0 0� �� �r '� v ._ ets � � � 0 e� � u � Federal Way Comprehensive Plan Economic Development 4.0 INTRODUCTION he Growth Management Act (GMA) includes economic development as one of its basic goals and it is a theme that runs throughout the Act. It considers the need to stimulate economic develop- ment throughout the State, but requires that these activities be balanced with the need to protect the physical environment. It encourages the efficient use of land, the availability of urban services, and the financing strategies necessary to pay for infrastructure. Finally, the Act mandates that communities do their planning and then provide the zoning and regulatory environment so that appropriate development can occur. It recognizes that while the public sector can shape and influence development, it is the private sector that generates community growth. The Puget Sound Regional Council (PSRC), has also adopted region-wide goals and objectives to guide multi jurisdictional transportation and land use policies that will be implemented through local com- prehensive plans. Economic development is implicit in many of the goals and objectives of VISION 2020. The VISION 2020 strategy emphasizes that continued economic stability and diversity is dependent upon public and private sector collaboration to identify needs, such as infrastructure and land, and to invest in services that will promote economic activity. VISION 2020 also emphasizes that the stability of the regional economy increases when it develops and diversifies through the retention and strengthening of existing businesses and the creation of new business. King County, through its growth management plan- ning policies and process, re-emphasizes the economic development implications of growth management. The Countywide Planning Policies promote the creation of a healthy and diverse economic climate. The Policies describe the need to strengthen, expand, and diversify the economy. They encourage protection of our natural resources and enhancement of our human resources through education and job training. The Countywide policies also speak to the need to make an adequate supply of land available for economic development by providing necessary infrastructure and a reasonable permitting process. Within this policy framework, Federal Way has outlined a vision of its economic development future. Its vision is to transform itself from a suburb of Seattle into a diversified and self contained city (Map IY-1). However, in doing so, it is important to realize that Federal Way is part of the larger Puget Sound economy, and therefore this transformation will depend on the market forces at work within the larger region. To achieve this vision, the City must diversify its employment base by adding professional and man- agerial jobs, and by improving the balance between jobs and households in the City. The potential is there. Federal Way's unique location between the two re- gional centers of Seattle and Tacoma, both with large concentrations of population and large, successful ports, and its relationship within the Central Puget Sound region represent significant opportunities. T'he City is also home to Weyerhaeuser's Corporate Head- quarters and West Campus Office Park, one of the premier office park areas in the region. The City's economic development vision is based on: 1) economic and demographic analysis completed as part of the comprehensive planning process; 2) market analysis of long-term real estate development in Federal Way; 3) interviews with realtors and property owners; 4) synthesis of real estate and development trends in the Central Puget Sound area; and 5) review and comment from the Planning Commission. 4.1 THE ECONOMIC DEVELOPMENT VISION FOR FEDERAL WAY The vision for economic development in Federal Way is a focused economic development strategy intended to build a diverse economy and to achieve a better jobs and housing balance. The strategy encourages or speeds up the trends and transformations that are already occurring in this community. The major objectives of the strategy include the following: Provide a better balance between housing and jobs. iv-� Federal Way Comprehensive Plan Economic Development Diversify the economic base by encouraging higher paying white collar and technical jobs while preserving and enhancing the strong retail base. Emphasize redevelopment and land assembly through the I-5/SR-99 corridor, especially in the City Center, as well as the 348th and 336th areas. Create horizontal mixed use employment sector growth in the South 348th Street area in the near term (1990-2000). Create Corporate and Office Park employment sector growth in East and West Campus in the mid-term (1995-2010). Redevelop and improve the quality of the mixed use development along Pacific Highway South from South 272nd Street to South 356th Street (1995-2010). Create mid-rise, mixed use employment sector growth in the City Center in the long term (2005- 2020). Encourage quality development throughout the City to attract desirable economic development in Federal Way. Maintain and improve the quality and character of the existing residential neighborhoods. Promote high quality, higher density residential neighborhoods in the Highway 99 corridor in close proximity to jobs and good public transportation. Future Regional Role for Federal Way Encourage economic development diversity by aggressive pursuit of regional economic activity. Maintain its share of local resident-serving retail and services, and increase its share of regional, national, and international oriented business firms. Increase its capture of region-serving office development. Transform the City Center into the focal point for commercial and community activities, as well as a major transit hub. Diversify the local economy to provide quality office and business park space. Generate more demand for hotel room-nights through growth in business pazk and office space. Add more businesses relative to the number of new housing units. Take advantage of its location with respect to the Ports of Tacoma and Seattle, as well as the Sea- Tac International Airport. Public and private sectors in the Federal Way area act cooperatively and aggressively to attract firms. Actively pursue relationships with cities in other parts of the Pacific Rim region for trade, com- merce, and cultural advantage. Retail Areas SeaTac Mall and other regional retailers within the City expand to meet the demand and become more competitive with other regional retailers. High-cube, high-volume retail in Federal Way increases faster than population. Costco, Home Depot, and Eagle Hardware are typical examples of this recent retail trend. Growth in resident-serving retail occurs in existing commercia) nodes and in redevelopment areas along SR-99. Neighborhood scale retail development keeps pace with population growth. iv-2 CITY OF FEDERAL WAY COMPREHENSIVE PLAN SOUTHWEST KING COUNTY AND NORTH PIERCE COUNTY SUB-REGION ECON�MIC DEVEL❑PMENT ELEMENT LEGEND FEDERAL WAY C]TY LIM]TS POLITICAL/STATE BOUNDARY STATE HIGHWAY This nap is ntend�d for use as a graphical repr�sentatton only. The City+ of Federal 1�lay inakes no Marranty as to �ts accuracy. p�110� GIS DIVISIaN MAP IV-1 SCALE� 30,000' DATE� DECEMBER .995 Federal Way Comprehensive Plan Economic Development Pedestrian-oriented retail development emerges gradually in the redeveloped City Center. real estate market as an alternative to the Green River Valley. Small amounts of retail use occurs on the ground floor of offices and residential buildings, as well as in business parks. Neighborhood scale retail development emerges in response to growth in multi-family concen- trations in the I-5/SR-99 corridor and new single family development on the east side of I-5. Old, outdated strip centers along the SR-99 corridor redevelop as a mix of retail, office, and dense residential uses. Office Development West Campus area builds out by 50 percent from current levels. Offices of regional, national, and/or international firms locate in West Campus, and East Campus adjacent to the Weyerhaeuser Corporate Headquarters. City Center becomes an acknowledged office area. Garden, high-rise and mid-rise office space, and mod�rn industrial buildings increase rapidly in areas with land assembled for business parks and in redeveloped retail areas. Office development is integrated with retail, residential, and business parks. Federal Way attracts corporate headquarters. Scattered, old offices are replaced with newer uses. Business Parks High-amenity, high quality business parks accelerate capture of the Southwest King County West Campus builds out 33 percent more business park space. Business park land is assembled and able to capture and redevelop a net 75 percent increase in space, primarily in the SR-99/I-5 corridor around 344th and SR-18/SR-99 to 356th. Business parks contain a mix of uses in and among buildings as dictated by the market for high quality space. One-owner, integrated, campus-like high amenity areas are encouraged for corporate headquarters and modern research/development of high tech- nology uses east of I-5. The City of Federal Way works with other agencies to provide services for education and training, as well as social services and other remedial programs for the underemployed and the unemployed. Development of technical and research space increases in East Campus. Residential Areas High quality residential areas are important for attracting and retaining businesses. Federal Way will evolve by increasing local employment relative to residential units. A range of housing types, densities, and prices allow the broad spectrum of employees to live near their work and recreation. The City of Federal Way encourages integration of high- density housing with retail and other uses, especially along SR-99 and in the City Center. IV-4 Federal Way Comprehensive Plan Economic Development 4.2 SUMMARY OF EXISTING CONDITIONS AND TRENDS Income Federal Way's demographic characteristics are typical of new suburban communities. However, compared with other communities in South King County, Federal Way's residents are more at�luent, with higher than average incomes and education achievement. In 1990, for example, Federal Way's median family income ($38,311) was nearly 20 percent higher than any other Southwest King County community. Thirty- two percent of all families in Federal Way earned more than $50,000 annually. In other Southwest King County communities, this figure ranged from 18 to 26 percent. Conversely, only about 25 percent of all families in Federal Way earned less than $25,000 per year. In other South County communities, this figure can be 33 percent or more. Economic Base Federal Way functions as an established and expand- ing "sub-regional center" for both housing and economic activities. Its current economic base is composed of retail trade, which is 34 percent of total employment, and service industries, which are 31.8 percent of total employment. The remaining 34 per- cent of employment is from manufacturing industries. This contrasts with the Southwest King County region in which 43 percent of employment is in manufac- turing, most of which is with or related to operations of the Boeing Company or is in warehouse/distribution. Federal Way is primarily a bedroom community. It has more households than jobs and as a result, pro- vides more workers to the region than it amacts. The City's employment base grew rapidly during the 1980's, increasing by 6l percent. During that same period, its residential population grew by 94 percent. Federal Way's retail base is diverse and attracts customers from outside the City limits. Its market share, however, is relatively low compared to other Southwest King County communities. Although SeaTac Mall captures a good deal of the Southwest King County region's general merchandise trade, a high percentage of the local populace goes elsewhere to shop for automobiles, building materials, and furni- ture. The ratio of retail sales to the City's population and income is relatively low, but it still attracts more in retail sales than goes to other areas. Federal Way's share of Southwest King County service business (2.9 percent) is well below any of its neighboring cities, except Des Moines. Housing One of Federal Way's strengths is the range and quality of its housing stock. The quality, quantity, and range of options for housing are major factors in business siting decisions. In the 1990 census, Federal Way's housing was valued slightly higher than other Southwest King County communities, but lower than the average of all King County housing. Median value of owner-occupied homes in Federal Way was $118,800 in 1990. This contrasts with median values in neighboring Southwest King County cities of $91,500 to $107,100 and $140,100 for al l King County. Compared with the cost of owner occupied housing, rental housing is somewhat more expensive. While single family houses remain Federal Way's dominant housing type, the majority of housing starts in the late 1980's were multi-family. Multi-family units as a percentage of all housing units increased from less than 10 percent in 1970 to nearly 40 percent in 1990. During the late 1980's, there were twice as many multi-family housing units constructed in Federal Way than single family housing units. From 1990 to 1992, permitting of multi-family construction stopped, and single-family construction slowed to about one-third of late 19801evels. As a result, rental housing costs are higher in Federal Way than both the Southwest King County and the Countywide average. The 1990 median monthly rental rate for Federal Way was $476, while the median monthly rental rate for King County communities varied between $398 and $458. IV-5 Federal Way Comprehensive Plan Economic Development Federal Way's Regional Role Federal Way's position in a regional context includes several contradictory characteristics. On the one hand, Federal Way is an emerging sub-regional center; on the other, it still has some characteristics associated with an outlying suburban or even rural area. Federal Way is characterized by: High-quality single and multi-family residential areas. A range of housing that includes very modest tract homes, manufactured dwellings, and large luxury waterfront homes. Autaoriented, suburban scale regional, and community shopping centers and strip centers. Corporate headquarters. A single high-quality business and office park—West Campus. Little developed space for quality business, flex-tech, and office parks. Semi-rural areas, wildlife areas, truck stops, recreation-amusement parks, areas without utilities, and much vacant open space. A waterfront primarily occupied by high-quality homes, but not particularly accessible to the public. Many marginal commercial areas with redevelopment potential along SR-99 which are vestiges of a prior era. The non-residential areas of Federal Way reflect a community that has the ability to absorb higher den- sity (more compact) uses and greater development as growth in the Central Puget Sound region continues. And even though Federal Way is a new City in a suburban area, much of its future will be tied to redevelopment and transformation. Industrial and business park space available to rent in Federal Way is a minuscule share of the Southend- Green River-Seattle market area (0.5 percent). The South King County industrial area (including indus- trial parks, business parks, and flex-tech hybrid business/office parks) is cunently the strongest real estate market in Western Washington. According to several major real estate research publi- cations, the industrial areas of Seattle, Green River Valley, Eastside, Everett and Fife/Tacoma comprise one of the strongest and fastest growing areas in the U.S. The City of Federal Way is in a major strategic position to capitalize on this trend. Federal Way is located at the intersection of I-5 and SR-18 with easy access to the Port of Tacoma, Port of Seattle, and SeaTac International Airport. In addition, issues in the Green River Valley (the existence of wetlands, lack of developable land, rising land prices, poor access to I-5, and contaminated sites in older industrial areas) are to Federal Way's advan- tage. Federal Way should be able to amact a broader mix of land uses and economic activity to its redevelopment areas, especially those near the inter- section of I-5, SR-99 and SR-18. West Campus This development sets a standard in the region and is one of the best examples of a true mixed-use master-planned community in the Pacific Northwest. The quality of development in this area is decidedly different than elsewhere in Federal Way and Southwest King County. O�ce Development The relatively small amounts of quality office space available for rent in Federal Way comprises 11.2 percent of that available in the South King County market area. The South King County office market has been dominated by Boeing's space needs. That feature is slowly changing. Only a small amount of the South King County office market is in buildings that would be classed as mid-rise buildings, most of which are located in SeaTac, Renton, and Tukwila. The Rest The remaining industrial, commercial, and retail space in Federal Way is typically a jumble of isolated and lower to average quality development iv-s Federal Way Comprehensive Pian Economic Development scattered along Highway 99. Such development masks the quality of West Campus and the Weyerhaeuser headquarters complex and could also slow the trans- formation of Federal Way from a suburb into a major sub-regional city. much unrealized potential. In addition, both the City and suburbs have vacant and redevelopable land, as well as relatively cheap accessible land for residential development. In summary, Federal Way's position in both Central Puget Sound and Southwest King County is the result of its past and its strong current retail and residential role. Much of the pre- and post- World War II highway- related space that developed in the 1970's and 80's in response to rapid population growth is now ready for redevelopment. The West Campus and East Campus areas will serve as a model for the quality of modern commercial, office, and business park space Federal Way will need in order to attract its share of future regional growth. Urban design and infrastructure in other areas of Federal Way must be brought up to these standards. In addition, the existence of large parcels of land ownership in the 344/356th area and 312/324th area of the core corridor will give Federal Way a development advantage. Federal Way's Competitive Position in Southwest King County Subregion While many of the development patterns are set in the Southwest King County sub-region, six cities are poised for significant change. These six cities are Auburn, Federal Way, Kent, Renton, SeaTac, and Tukwila. There are several sources of uncertainty for each of these cities related to strength of current major developments, available vacant and redevelopable land, routing of regional transit facilities, as well as community and political support. Table IV-1 summarizes the major current positions and patterns of challenge and opportunity. In addition to these six cities in Southwest King County, Tacoma is an important competitor to Federal Way. Tacoma is an older city that has been trying to improve its downtown and image for more than a quarter century. It has continually devoted its own funds, as well as State and Federal grants, to stimulate economic development. Tacoma has a strategic location on the highway system and a strong port with The Tacoma azea faces challenges similar to those confronting the six cities of Southwest King County. In addition to its port and relationship to international commerce, Tacoma has the largest concentration of office space south of Seattle and is second only to Bellevue for office space outside of Seattle in Washington State. In summary, any program of economic development for Federal Way must monitor conditions and trends in Tacoma and Southwest King County, and act decisively and aggressively to increase the City's strategic position. 4.3 FORECAST OF ECONOMIC GROWTH IN FEDERAL WAY The growth forecasts used in the other chapters of this plan are based on the PSRC regional forecasting model. The PSRC uses an economic model to project regional growth and then downloads growth pro- jections to the jurisdictions in the region. By contrast, the economic forecasts prepared for this chapter used specific market segments for retail, office, and business park development to extrapolate future land and redevelopment space needs. The process used for Federal Way was based on an analysis of economic and real estate trends in the region. In addition, the Federal Way forecasts were based on assumptions consistent with the Vision for Federal Way which is the basic concept for the plan. The forecasts that evolved out of the technical analysis of existing land use and economic conditions combine both extrapolations of the future and assumptions about Federal Way's vision. The forecast indicated moderate growth in retail space consistent with Federal Way and Southwest King County's population growth in the face of more competition in iv-� Federal Way Comprehensive Plan Economic Development Table IY-1 Summary of Development Potential in Southwest King County Cities Aubum Fedenl Way Kent Renton Sea-Tac Tukwila Currcnt Niche -Industrial areas -Regional mall -Industrial land -Business parks -Airyort related -Regional retail -Vacant land -West Campus -Bceing -Mid-rise office -Redevelopable land -Bceing -Regional mall -East Campus -Business parks -Mid-rise office -Redevelopable light -Weyerhaeuser Hdq -Vacant land industrial -Vacant land -Mid-rise office redevelopable land Opportunities -Presence of Boeing -Weyerhaeuser -Bceing facilities -Bceing -Adjacrnt to SeaTac -Strong retail identify -Commuter rail -West Campus -Commuter rail PACCAR's mfg. 8c Airport concentration -Established office, -East Campus -Established office, office complex -l.ack of identity -Redevelopment business parks -Large concenhation business parks -Mid-rise buildings -Major HCT potrntial industrial areu of retail industrial areas -Potential Stations planned -Frceway access -Cross-valley hwy -Land assembled for -Cross-valley hwy redevelopment -One large strategic location at cross- connector planned. redevelopment connector planned areas parcel assembled roads 1-405/I-5 -Sub-centrel location -Future hwy cross- -Bceing office/mfg behveen Ports of roads (I-5 complexes Tacoma Seattle SR509) from -Proximiry to SeaTac -I-S/SR 18 Seattle will open Ai�port to Port of crossroads acres for office and Seattle -HCT stations business parks -Cmnmuter rail unanticipated -Urban centeris anticipated to be on High Capaciry Transit line' -Pnmit process rec- ognized forspeed of tumaround Challenges -Distance from 1-5 -Distance to Port of -Industrial image -Limited retail -Adjacent to Sea7'ac -Limited vacant land major economic Seattle -No prospect for attractions Ai�port for business concentrations -Dispersed HCT -Limited land for -Massive office parks -Low-scale development -Off-center location business 8c o�ce redevelopment -Fraway acceu not development pattern on SR 167 parks required easy or obvious -Off-center location -Not on commuter -Small land holdings -Small land holdings -Land assembly -Limited vacant land -WeNands rail in CBD in CBD required -No obvious crnter or -Little market-quality -Wetlands -Not anticipated to -Not on commuter focal point within business office be on High- rail Tukwila park space outside Capaciry Transit of West Campus line -Off-crnter cross- roads (I-405 8c SR t67) 'NOTF.': The Cily oj7ukwilu has noi ye� been designalyd �o be on rhr High Cupncity Trm�.si� line as currenrlv represenled in �he regional Irauporvaiion plwi the sub-region. Office and business park space is expected to grow relative to the region and sub-region. Federal Way is expected to increase its capture of office space as well as tenants of business park space. T'his forecast also assumes aggressive planning and investment in infrastructure in order to transform the community at an accelerated rate. Like all forecasts, these should be periodically monitored relative to the real estate market conditions in South King County and Central Puget Sound, and economic conditions in Federal Way. In addition, the economic development policies and underlying assumptions related to local and regional decisions concerning infrastructure, transportation systems, and land use regulation should be carefully monitored. Federal Way's forecast to the year 2015 is based on several key assumptions which should be reanalyzed at least every five years, along with trends and conditions in local economic and real estate activity. The key assumptions are: Regional trends in population and employment are at least as robust as the Puget Sound Regional Council current estimates which are derived from State and nationa( long-term forecasts. iv-$ Federal Way Comprehensive Plan Economic Development The Regional Transit Authority implements some type of High Capacity Transit Plan including: Improved bus service. Traffic control measures. Highway improvements. T'he Auburn Mall is moderately successful. with the public planning and regulatory processes. The staffls ability to link several programs, team up with other departments, and leverage limited funds allow them to take meaningful and effective action. In addition, innovative techniques such as Transfer of Development Rights, Planned Unit Developments, and Concomitant Agreements to attract and retain businesses, and streamlined permitting processes Local public and private sectors jointly finance adequate infrastructure. The City adopts plans and policies that provide appropriate development incentives and reason- able processes to guide implementation of this vision by the private sector. The business and residential community supports the vision with indirect political support for necessary and timely infrastructure. 4.4 IMPLEMENTATION Attributes of Successful Economic Development Programs Successful economic development programs typically have the following attributes. First, they receive material support and leadership from the mayor, City Council and senior City staff. Second, the municipal leadership is willing to work creatively and coopera- tively with private sector leaders and businesses to accomplish economic development goals. They have the ability and find the resources to target infra- structure projects and programs to encourage develop- ment or redevelopment of specific areas. To do this, they work aggressively to secure State and Federal funds for local public and private assistance. Likewise, City staffare empathetic toward economic development goals and knowledgeable about working within City legal constraints, budget constraints, and community tolerances to assist businesses and the real estate development process. The staff also have the ability to react and make decisions quickly and consis- tently to provide assistance for private sector dealings should be utilized to help improve economic development. The City's Role in the Economic Life of a Community In the State of Washington, the direct actions that cities can take to impact economic development are severely limited by the State Constitution and its interpretation. Direct financial assistance through loans, grants, and tax rebates are severely limited or forbidden. Courts have consistently ruled that the use of public funds and actions to assist specific businesses, individuals, and developments is unconsti- tutional in the State of Washington. In addition, voters have reinforced this position when they have had the opportunity to authorize tax increment financing. Occasionally, communities have used this consti- tutional conservation to stunt creativity with respect to local community economic improvement. Despite these constraints, there are a number of things a city government can do with respect to economic development activities. One of the most significant direct actions a city can take is provide the necessary infrastructure. This includes: 1) developing long term facilities expansion plans; 2) designing the specific systems and projects; 3) raising or borrowing local funds to finance the projects or act as a conduit for state, federal, and intergovernmental funds; and, 4) forming public-private partnerships to jointly construct projects. Second, a city can deliver high quality and cost effective urban services. These necessary services include police and fire protection, parks, recreation and cultural services, social services and job training, and a well run land use planning and regulatory iv-s Federal Way Comprehensive Plan Economic Development process. In addition, a city can actively participate in public/private groups designed to help businesses and the development community as they work their way through the state and federal regulatory processes. Third, a city can directly impact economic develop- ment by doing market research or by being a land owner and developer. For example, a city could develop, maintain, and disseminate data and analysis on local development conditions and trends, as well as monitor important trends and assumptions upon which plans, programs, and strategies are based. In addition, a city can buy land, aggregate parcels, and make necessary improvement so that it is ready for new development or redevelopment. This also allows a city to joint venture with a private sector partner if that is appropriate. this strategy is to help businesses resolve problems so that they can expand locally rather than move to another community. Problem resolution includes helping a business find a larger more suitable site, work through a land use or zoning regulation problem, or access necessary infrastructure. This strategy typically has low to moderate cost implications and a high probability of success. Second, the relocation of firms from other parts of the country or new plant locations are rare and do not account for a significant share of local employment growth relative to overall employ- ment growth in the United States. Typically, local government amacts new business to their com- munity with direct financial incentives. This strategy has high risk for the number of successes and has a high cost. In terms of indirect roles, a city can act as a facilitator to convene public and private entities to work on issues of local importance and reach consensus. Prep- aration of a comprehensive plan is an example of this important indirect action. A city can act as a represen- tative of local resident's and business's interests in resolving regional and countywide problems such as traffic congestion, housing, and human service issues. A city can also mobilize local community support for important projects and problem-solving; and work to improve the overall image of the community and in doing so, make the community more attractive for economic development. General Approaches to an Economic Development Strategy There are basically three local economic development strategies which impact the level of private business growth in a community. First, studies of employment growth experience in local communities in the United States show that the large majority of new jobs are generated by expansion and retention of businesses that are already located in the community. A city's role in Third, new businesses that are the result of new business start-ups, spin-offs from existing local firms, and new business ideas and technologies are another effective way that communities increase employment and businesses within a local area. Local government encourages new business formation usually through indirect methods. This strategy has moderate-to-high costs depending on actions and low-to-moderate degree of success. Federal Way is an important community within the region. Its economic importance has historically been associated with the size of its population and strategic location. Federal Way has the same package of economic assets and liabilities that amacts firms to the Pacific Northwest. Most "footloose" firms searching for a new location will select a region or state, then select a specific location. Federal Way can most affect this site selection and community growth process through its influence on the supply of real estate. The "supply side" approach is consistent with State law, traditional community tolerance for assisting business in Washington State, and the range of financial demands on most local jurisdictions. iv-� o Federal Way Comprehensive Plan Economic Development Human Resource Programs In addition to the economic development strategies discussed in the previous section, human resource programs are another general way whereby cities can be effective at economic development. These pro- grams are often not included as part of an economic development program because they focus on assisting people rather than businesses. However, improving and remediating human resources is an important long run approach. The previous three general approaches to economic development strategies try to raise revenues, reduce costs, or reduce risks for business location, facility investment decisions, and operating decisions of businesses. Since it is difficult for a local community with lir�ited financial resources to stimulate "demand-side" factors for its land and location, the actions required to imple- ment the recommended policies use "supply-side" oriented methods to stimulate industrial and com- mercial development. Implementation of a supply side strategy should increase the City's opportunities to capture a larger share of regional real estate market activity, resulting in a stronger, more diverse economy, tax base, and quality of life in Federal Way. There are several "supply side" tools that local governments control. They can use these tools to prepare the supply of available developable land and infrastructure for economic growth. These actions include: Human resource programs make a community attractive to new and existing businesses by improving the local labor force. Components of a human resources program include: 1) providing temporary support for underemployed workers, unemployed workers, and their families; 2) providing job training and retraining to improve an individual's ability to enter or remain in the work force; 3) creating referral and other programs that allow labor resources to become more mobile and to respond to information about job openings; and, 4) by providing social service programs that meet the needs of community residents who are temporarily not able to participate in the economy. Federal Way could use its existing Human Services program working with local social service agencies and educational institutions to deliver these programs, with a focus on helping residents who are underemployed and unemployed. Economic Development Strategy For Federal Way As with many cities, Federal Way will have limited funds with which to pursue its economic development goals. The City will have to use its resources in a focused and prioritized manner to have a positive impact on the local economic base. Table IY-2 summarizes how Federal Way will implement an appropriate economic development strategy. Assembling land for redevelopment. Reducing or balancing the supply of land by enacting zoning that reduces the supply of marginal or ill-located lands. Enacting favorable land use regulations. Minimizing uncertainty in local regulatory processes. Offering assistance in state and federal permitting. Streamlining the permitting process. Mobilizing community support by working with the private sector to actively encourage the retention and expansion of existing businesses as well as bringing in new development, businesses and jobs to the community. Seeking opportunities to promote the community by working with the private sector to build consensus on community opportunities and goals. Funding the City portion of public/private groups to allow them to do an effective job in marketing the community. Providing leadership to motivate and convene local human and financia) resources. Using the local tax base and debt capacity to finance public infrastructure that could accommodate or stimulate private development. Sponsoring projects, and acting as a responsible party to receive any available funds that may be provided by State and Federal agencies. iv-i i Federal Way Comprehensive Plan Economic Development Table IV-2 Economic Development Areas and Actions Sub Area of Who Initiates What Land Uses Are How Are They Federa W ay Action Encouraged Encouraged Reason Timing PRIMARY ECONOMIC AREAS City Center Public w/ Mid/high-rise office. RTA Station. To increase capture of Emphasis 5-10 private MF residential. In-fill infraswcture. regional growth. (20) years. support. Civic/cultural. Urban design regulations Pedestrian-oriented retail. incentives. Public amenities. 344th to Public w/ Mix of low rise office light Regulations that Capture the current Emphasis 0.5 356th/SR99 private industry. encourage high-quality market svength in bu- (10) years. support. "Big box" retaiL design. siness industrial park Aggressive infrastructure uses in Southwest King investment. County. Sub-area EIS CIP. West Campus Current land Buildout maintain quality. Facilitate buildout. West Campus, one of Ongoing in owners. Assist maintenance of the highest quality response to public areas. master planned market. developments in the Pacific Northwest. East Campus Weyerhaeuser High-quality corporate office Cooperative city planning Large Iand owner with In response to Corp. parks. infraswcture policies. vision, resources, market uack record. corporate Generate demand for actions. CBD business parks. 336th linkage: Public w/ High density MF. Land use capital Provide housing su- As appropriate four primary private Low rise office. improvements for gradual pport services for for market. economic dvpt support. Supportive retail. redevelopmenUin-fill. economic areas. areas. Public amenities. Traffic development. Old Hwy 99 Public w/ High capacity business Land use capital Provide a range of ho- As appropriate outside of main private related. improvements for gradual using support for market. economic areas. support. High density MF residential. redevelopment in-fill. services retail for Low rise office. Development from traffic. economic residential Auto-oriented retail, arcas. Neighborhood commercial. The economic development strategy for Federal Way will use these "supply-side" oriented methods to stimulate industrial and commercial development. Most studies of economic development have shown that 60 to 80 percent of new employment growth in a community is derived from businesses that are already operating in the community. These studies also attribute a significant amount of local employment growth to the formation of new businesses that are spin-offs from existing larger firms. These new firms may be started by employees who have new ideas, new processes, or technologies that are not appropriate for or valued by the parent firm. Economic Development Goals The City of Federal Way will not wait for market forces to create the future, but will act to shape and accelerate the evolving market trends in the direction of its vision. The City will pursue the following goals to implement economic development. Goals EDG1 The City will emphasize redevelopment which transforms the City from a suburban to an urban area. iv-� 2 Federal Way Comprehensive Plan Economic Development EDG2 The City will encourage concentration of non- residential development into four primary areas: Mixed-use development in the City Center (312th and 320th, SR-99 to I-5). Mixed-use development in the area around 348th and SR-99. High-quality business park development, including corporate headquarters, continued in and around West Campus. High-quality corporate headquarters in a park-like campus setting east of I-5. EDG3 The City will help facilitate redevelopment of existing neighborhood commercial centers in the SR-99 corridor and the 336th area between West and East Campus. EDP6 The City will work actively to formulate ways for joint public-private funding of infrastructure. EDP7 The City will develop zoning and financing incentives that encourage prioritized development consistent with comprehensive and sub-azea plans and orderly, phased growth. EDP8 The City will utilize innovative planning techniques such as Transfer of Development Rights, Planned Unit Developments, and Concomitant Agreements. EDP9 The City will utilize innovative financing techniques such as Local Improvement Districts, and Industrial Revenue Bonds. Economic Development Policies Transforming the City Center and business park areas will require the implementation of the following policies: EDPl The City Center and business park areas will receive special attention in the Compre- hensive Plan. EDP2 The City will initiate a process to master-plan these sub-areas jointly funded by public and private entities. EDP3 T'he City will initiate a process to develop high-quality urban design and infrastructure standards for these areas. EDP4 The City will complete environmental impact statements for these two sub-areas so that specific projects that are consistent with the sub-area plan may only require an environ- mental checklist. EDPS The City will complete designs for public infrastructure to be jointly funded by the City and private land owners. EDP10 The City will mobilize community support by working with the private sector to actively encourage the retention and expansion of existing businesses as well as bringing in new development, businesses, and jobs to the community. EDPII The City will promote the community by working with the private sector to build consensus on community opportunities and goals. EDP12 The City will fund its portion of the public/ private groups to allow them to do an effective job in marketing the community. EDP13 The City will adopt design guidelines to enhance the urban environment to retain and attract businesses and residents. EDP14 The City will adopt streamlined permitting processes consistent with State and Federal regulations to reduce the up-front costs of locating businesses in the City. EDP15 The City will develop an aggressive public safety program designed to protect residents and businesses. C� IV-13 Federal Way Comprehensive Plan Economic Development EDP16 The City will encourage strong public and private leadership to solicit community support for internal and external funding assistance. EDP17 The City will periodically monitor local and regional trends to be able to adjust plans, policies, and programs. EDP18 The City will actively work with represen- tative groups of business and property owners, including the Chamber and other local business associations, to enhance citywide and sub-area improvements and planning. EDP19 The City, in conjunction with the local business community, will actively pursue ties to Pacific Rim nations. EDP20 The City will work with appropriate local and regional human resource and social service agencies to provide programs for underem- ployed and unemployed persons in the community. EDP21 The City recognizes the importance of cultural and recreational activity to its economy and through the Arts Commission and Parks Department will pursue joint ventures with private groups and individuals in developing cultural and recreational opportunities. EDP22 The City will encourage the expansion of existing and development of new multi- purpose facilities to host cultural and The foregoing policies will assist the City of Federal Way to pursue an accelerated transformation toward the community's vision of its future. Table IV-3 describes the four major employment, economic activity areas of the City that will receive the bulk of future commercial and industrial develop- ment. The table summarizes the characteristics, location, and planning process required as well as the major transformation required. The major public and private actions required for each area are listed. The Land Use and City Center chapters of the Comprehensive Plan describe these four areas in more detail. Table IV-3 describes the current ownership pattern and major activities where the City will act affirmatively to transform these areas so that an increased share of regional growth will be attracted to the City. In the areas of multiple ownership, control and implementation of the community's vision will require more explicit effort and resources from the City government. Both West and East Campus have, or will develop, their own high standards for quality of the new development. The type of development expected to occur in each of the four major economic zones important to Federal Way's vision is related in Table IV-4. Also related in the table are who the main competitors will be for each of these four areas. The land use policies and regulations for each area should accommodate and encourage these activities. These policies and regula- tions are discussed in the Land Use, City Center, and Transportation chapters of the Comprehensive Plan. recreational activities. IV-14 Federal Way Comprehensive Plan Economic Development Table IV-3 Development Zones: Description Vertical Mixed City Master-Planned Master Planned Horizontal Mixed- Center Mixed Campus Corporate Campus Use Business Parks Area 312th/320th West Campus East of I-5 344th/356th Ownership Diverse Diverse Single Diverse Plsnning Joint Public/Private Private emphasis Private Emphasis Joint Public/Private Major Transformstion Retail to office emphasis 8c Infill and continue Vacant to high quality Scattered industrial Activity includes hotels. trend since 1974. corporate headquarters retail to qualiry high tech. mixed used. Major Public Actions Comprehensive Plans C C C C Subarea Plans C Private Private C Design Standards C Private Private C EnvironmentalImpact C C C C Analysis Infrastructure Planning C C C C Infrastructure Design C Private Private C Financing Joint Private Private Joint Examples Seattle CBD West Campus Redmond Willows High Tech Corridor Denny Regrade High Tech Conidor Road Renton Burnaby BC Harbor Pointe Tukwila Bellevue Kent Tacoma Auburn Portland Lynwood ('=Cirv irti�io�r.s mid le�de aciion Table IV-4 Development Zones and Land Use Market Current VerticAl Master- Master- Horizontal Segment Charscteristics Competitive Mixed Planned Plsnned Mixed-Use Examples City Mixed Corporate Business Center Campus Park Parks RETAIL High Cube Freeway access Moderate amenities 348th SR18 V High Volume Cheap land/space u IV-15 Federal Way Comprehensive Plan Economic Development u J Market Current Vertical Master- Master- Horizontal Segment CharacterisNcs Competitive Mixed Planned Planned Mixed-Use Examples City Mixed Corporate Business Center Campus Park Parks Festival High densiry population employment Pike Place V Regional draw Market Retail restaurants Bellevue Mall stores Square WesUake Center Edmonds LaConner Employment High auto or pedestrian va�c Southcenter V V V V Resident Tacoma Mall Supporting Aubum Mall Rapidly growing population Southcenter V Mall-like Freeway access Tacoma Mall Hotel Serves employment centers SeaTac O��y at Provides meeting space Tukwila freeway Tacoma intersection OFFICE Garden •Heavy landscaping Older Bellevue V V •Low pedesvian levels Redmond •Low/moderate in/out Vaffic •Small business/professional business Renton services, FIRES Tukwila along •Serves local regional business arterials •Auto oriented •Residential areas close Mid-rise •Larger tenants, sub-regional regional Bellevue V V V Occazionally •Moderate landscape Tukwila if park of •Moderate in out Renton Master Plan •Small/medium business services. Lynnwood medial/dental FIRES Queen Anne •Branch offices Lake Union •Surface parking or on deck Elliott Way •Some transit Factoria Freeway interchanges High •Pedesuian Vaffic •High amenities Seattle V V Rise/Higher •Public transit •Larger businesses Bellevue •Moderate Vaffic •Professional services SeaTac •Headquarters, branch offices Renton •Regional serving F.I.R.E.S. •Underground or deck parking BUSINESS PARKS •Auto/truck oriented •Warehouse/retail High Tech V V •Cheap land •Government offices Corridor •Employment density Eastside •Manufacturing assembly Renton •Office local/regional Tukwila •Professional business service Kent •Distribution service Lynnwood IV-16 r1 L_J • • � �� � i � � � � I { ( `�' � � � I � I i •� , �- � , � � � I I . i � I I � I I � From Vl�io� to Plan _ 0 � � � � Federal Way Comprehensive Plan Housing 5.0 INTRODUCTION his chapter was prepared in conjunction with the Land Use chapter of this Comprehensive Plan. Together they provide a holistic view of how housing stock may be expanded and improved to meet the City's housing needs over the next 20 years. The emphasis of this chapter is on preserving the high quality of existing residential neighborhoods while improving housing opportunities for low income families and persons with special housing needs. These housing needs were identified in a Housing Needs Assessment which the City completed in the Fall of 1993, and are summarized in this chapter. The Growth Management Act (GMA) requires that housing issues be addressed in both the Land Use and Housing chapters. To gain a full picture of how new housing will be provided in Federal Way, both chapters should be read. As a general rule, the Land Use chapter describes what densities will be permitted in the various neighborhoods of the City and makes recommendations for how new residential neighbor- hoods should be designed so that they are a positive addition to the community. The Housing chapter focuses on the demand for new housing, the availa- bility of a range of housing types and styles, and on the housing needs of low and moderate income families, special needs populations, and the homeless. 5.1 LEGAL CONTEXT Washington State Growth Management Act In preparing its comprehensive plan, GMA requires cities to, "...encourage the availability of affordable housing to all economic segments of the population and to promote a variety of residential densities and housing types." It also encourages "preservation of existing housing stock." The Act discourages con- version of undeveloped land, "...into sprawling, low- density developments." (RCW 36.70A.020, 1990 Supp.) T'he GMA requires that the Housing chapter include: An inventory and analysis of existing and pra jected housing needs. A statement of goals and policies for housing preservation, improvement, and development. Identification of sufficient land area for the number of needed housing units, including government assisted housing, housing for low income families, mobile/manufactured housing, multifamily housing, and special needs housing. This defines the amount of land that the City must designate for housing in the Land Use chapter. A strategy and policy for meeting the housing needs of all economic segments of the community. Encouragement for innovative land use manage- ment techniques to enhance affordable housing opportunities, including density bonuses, cluster housing, planned unit developments, and transfer of development rights. Affordable Housing Inventory A 1993 legislative amendment requires that all cities and public agencies develop an inventory of public properties no longer needed for use and which may be available for affordable housing. The inventory is to identify individual property locations, size, and current zoning category. Public agencies include all school districts and the State departments of Natural Resources, Transportation, Social and Health Ser- vices, Corrections, and General Administration. The inventory is provided to the Washington Department of Community, Trade and Economic Development (CTED) and is to be updated annually by November 1. The inventory is available from CTED upon written request (RCW 35.21.687). v-� Federal Way Comprehensive Plan Housing Accessory Dwelling Units The City is required by the State Housing Act of 1993 to include provisions for accessory housing. To allow local flexibility, the provisions are subject to such regulations, conditions, and limitations as determined by the City Council (RCW A.63.230). Consistent with the adoption of this Comprehensive Plan, the City prepared and adopted accessory dwelling unit pro- visions consistent with the State's mandate. Multi-County Policies percent of the County's median family income. Local actions to encourage development of affordable housing may include, but are not limited to, providing sufficient land zoned for higher housing densities, revision of development standards and permitting procedures, reviewing codes for redundancies and inconsistencies, and providing opportunities for a range of housing types. Additionally, all jurisdictions should participate in a cooperative, Countywide effort to address current low income housing needs. Initially, this effort will include identifying a Countywide funding source and Countywide programs to address housing needs that cross jurisdictional boundaries and benefit from Countywide application. C In response to GMA, the Puget Sound Regional Council (PSRC) adopted regional housing policies. These policies promote fair housing access to all per- sons regardless of race, color, religion, gender, sexual orientation, age, national origin, family status, source of income, or disability. Policies seek to strengthen interjurisdictional efforts for fair distribution of low and moderate income and special needs housing. PSRC policies seek to provide a diversity of housing types to meet needs of all economic segments of the population. Jurisdictions should promote cooperative efforts to ensure that an adequate supply of housing is available throughout the region. Each jurisdiction should work at preserving existing affordable housing stock and providing access to public transit for the residents in such housing. Policies promote develop- ment of institutional and financial mechanisms to provide housing near community centers. They also encourage consideration of the economic impact of regulations and development of regulations which do not burden the cost of housing development and maintenance. Countywide Policies In 1994, King County adopted Countywide Policies for affordable housing that promote a"rational and equitable" distribution of affordable housing. The policies establish numerical housing targets which each city should accommodate and specific targets for housing affordable to households earning less than 80 Other Countywide housing policies require jurisdic- tions to evaluate existing subsidized and low cost housing resources, and identify such housing that may be lost due to redevelopment, deteriorating housing conditions, or public policies or actions. Jurisdictions should develop strategies to preserve existing low income housing and provide relocation assistance to households that may be displaced due to public action. For jurisdictions such as Federal Way, which have elected to have an urban center, the Countywide planning policies provide that the center be planned to accommodate a minimum of 15 dwelling units per acre. All jurisdictions should monitor and report on various aspects of residential development within their com- munities. They should define annual targets for housing development and preservation, and track progress in achieving Countywide and local goals for housing all economic segments of the population. The County's Growth Management Planning Council (GMPC) is charged with determining whether development of housing for all economic segments of the population is satisfying housing needs. If new housing falls short of ineeting the Countywide need for housing, and particularly affordable housing, the GMPC may recommend additional actions. Implications for the Housing Chapter In summary, based upon the foregoing laws and policies, Federal Way's Housing chapter should include an inventory of existing housing stock; u v-2 Federal Way Comprehensive Plan Housing identify housing needs, and set minimum housing targets for each economic segment of the population; provide for sufficient, appropriately zoned land to meet these needs; and identify appropriate goals, policies, and strategies for achieving these housing targets. Tools for achieving these goals may include amendments to the zoning code to encourage a more diversified housing stock, promote imaginative design, and encourage development of affordable housing. Strategies may also include provisions for interjurisdictional efforts to provide and finance affordable housing. The primary objective should be to create residential neighborhoods which are of high quality, provide social and community support and meet the needs of all segments of society. 5.2 HOUSING NEEDS ASSESSMENT to declining interest rates. Rents are currently rising faster in Federal Way than in nearby communities, probably due to the lack of new apartment construct- ion in Federal Way over the past three years. Population The population of Federal Way is currently younger than other South King County communities, creating a demand for family housing, recreational facilities, and support services. However, by the turn of the century, Federal Way's population will contain a much higher proportion of senior citizens. Senior citizens require such services as in-home care, congregate and nursing care facilities, and transportation. Figure v 1 describes the current distribution of Federal Way's population. FYgrrrt T� 1 Federa/ Way Age D�ribuBon by Populat�on In I990 Existing Conditions Introduction Federal Way has grown rapidly over the last 13 years. The area doubled in population during the 1960's and again in the 1980's. Since its incorporation in 1990, the City has grown by seven percent. Based on PSRC forecasts, moderate growth will continue through the turn of the century when the inventory of vacant land is consumed and will then slow down considerably. By the year 2020, Federal Way's population is pre- dicted to be approximately 50 percent greater than it is today. Households are more affluent in Federal Way than in nearby communities. This is reflected in higher home prices. Both home prices and rents have increased faster than income over the past 20 years. By 1990, Federal Way had the highest housing costs among Southwest King County communities for both owner occupied houses and rental units. The down side was that 18 percent of homeowners and 31 percent of renters in the City were paying more than 30 percent of their household income for housing. Home owner- ship has become more affordable in recent years due 30,000 25,000 20,000 15,000 10,000 5,000 0 Sowce: 7990 census Household Income Understanding the distribution of Federal Way's household income is also critical in planning for future housing needs. GMA defines income groups as follows: Very Low Income: 0 to 30% of county median income. Low Income: 31-50% of counry median income. V-3 Under 18 19-29 30-54 55-64 65-74 Over 75 Federal Way Comprehensive Plan Housing Moderate Income: 51-80% of county median income. Middle Income: 81-120% of county median income. Upper Income: 121 or more of county median income. King County's 1990 median income for all house- holds was $36,179. A breakdown of Federal Way's income groups are shown in Figure Y-2. Fligure V-2 Federal Way's Inconie Groaps -,�a�. uppsr �noome Is.a% a�. y J �i��s s 1 s�A r J �i s s�e ?..f +�.f� a o e� A�� '��I O �-.s'e e �r?�s' v i 9 q _�o�. �/My LOW �1100RI0 Niaae �ncome 2s.99c j�. j�� I �ow trwome �s� Mode�ate x�come u.s96 s�: �s90 c��s More specifically, the 1993 Housing and Urban Development (HL1D) guidelines for King County's various income groups are shown by household size in Table V-1. While Federal Way households are generally more affluent than elsewhere in the County, approximately 30 percent of the population in the City is part of a household that earns less than 80 percent of the King County median family income. About 1,000 house- holds in the City of Federal Way are currently receiving housing assistance from King County Housing Authority or living in subsidized private housing. Employment During the 1980's, Federal Way's employment base grew faster than any other suburban area of King County. T'his growth was primarily in retail and ser- vice jobs and by 1994, more than Ys of Federal Way's employment base was in retail sales, followed closely by service employment. These industries typically pay low wages and as a result, these workers have diffi- culty finding housing they can afford despite working full time jobs. Accordingly, there may be an imbal- ance between jobs available in Federal Way and the earnings needed to afford local housing. Ironically, this may result in employees working in the City commuting from other communities where cheaper housing is available and higher wage earners who live in Federal Way commuting to other cities for higher paying jobs. To illustrate some of these points, Table Y-2 provides four representative jobs from small retail or service firms. Annual incomes and affordable housing costs have been computed for the average pay rates in each job. The annual income column demonstrates that these jobs may provide an inadequate income to sup- port a family. Similarly, the affordable rent and home price columns show a gap between these pay scales and current housing costs if this is the sole income for a family. The average Federal Way home (approxi- mately $152,000 in 1995) remains generally unafford- able to employees in retail and service jobs. In the more extreme cases, the individuals and families may need some type of government subsidy to access even rental housing. If these employment trends continue, the City may be under increased pressure to provide housing assistance to those employed locally in low wage jobs. Housing Inventory For the most part, the housing stock in Federal Way is in good condition. A majority of existing housing was built after 1960 and over 70 percent after 1970. The City has very little concentration of substandard housing typically found in older urban areas. Houses in poor condition do exist in isolated cases azound the City and in small pockets. These include Westway; v-a Federal Way Comprehensive Plan Housing Median Moderate 80% Low 50% Very Low 30% 1 $33,600 $26,900 $16,800 $10,100 Table V-1 Annual Household Income bv Household Size 2 3 4 $38,400 $43,200 $48,000 $30,700 $34,550 $38,400 $19,200 $21,600 $25,900 $11,500 $14,400 $15,550 5 6 7 8 $51,850 $55,700 $59,500 $63,350 $41,450 $44,550 $47,600 550,700 $25,900 $27,850 $29,750 $31,700 $15,550 $16,700 $17,850 $19,000 Table V-2 Affordable Housing for Retail and Service Waiter Cashier Average Average Annual Hourly Hours/Week Income Pay 54.97 28 $7,236 $6.56 33 $11,257 Monthly Mortgage Mortgage Rent Payment Principal Utilities $181 $181 $281 $281 Ssles Clerk $7.94 36 $14,864 $371 $371 Truck Driver $9.19 40 $19,115 $478 $47S 'Bonower is qualifred a130% ojgross income jor housing to income rallo. '30.year �rfgage pnyable at 7. S% fixed interes� rate with 18 ojmonlhly payment jor taxes, insurance, and �infena�e. 'Home price based on S% down poyment Source: Washington Stote Employmenl Securiry; /994 Area Wnge Survey jor King Snohomish CounNes, Decembtr 1994. (located north of 308th and west of 1 st Avenue) and an area south of 356th and east of 21 st Avenue Southwest. As depicted in Figure Y-3 (source: 1990 census), 58 percent of Federal Way's housing stock is constructed as single family homes. The remaining supply is comprised of 37 percent multiple family units, five percent mobile homes, and approximately'/z percent of other types of housing. In 1993, there was an inventory of 714 assisted housing units located within Federal Way. Of these, 428 units, or 60 percent, are owned by King County Housing Authority and the remaining are privately owned and receiving some kind of subsidy. In addition to these assisted housing units, the Housing Authority reports that 342 families living in Federal Home Price' $19,261 520,275 $32,490 $34,200 $40.366 $42,491 $52,076 $54,817 Figure V-3 Federal Way's Housing Stock .y.: .T. sinpb Famy 5ex, on�r Ty�ss o% �oe� �mes sx 1' 379� V-5 Federal Way Comprehensive Plan Housing Way postal zip codes are receiving HUD Section 8 housing assistance certificates and vouchers. In total, approximately 1,000 households within Federal Way currently receive housing assistance. There are presently seven organizations that offer emergency shelter and transitional housing to residents of Federal Way. Altogether, they provide approximately 250 emergency shelter beds and 46 transitional housing units in South King County. None of these organizations, by themselves, have the capacity to adequately meet the demand for service. Even with close cooperation and coordination, they have had difficulty meeting the demand for services and providing case management for clients. Another important way to provide affordable housing is to prevent the existing affordable housing stock from being redeveloped or deteriorating to the point that it is no longer useable. Although the City can generate maps of property with high redevelopment potential, there is no data which specifically describes how much property is actually redeveloped and how many affordable housing units are actually lost. To address these situations, the Countywide policies pro- mote development of strategies to preserve existing low income housing. Toward that end, Federal Way currently allocates approximately $200,000 per year in CDBG funds to housing rehabilitation programs subject to funds availability. These services are provided by contract with the King County Housing Authority. Future Housing Needs The GMPC adopted PSRC housing projections which estimate that there may be between 13,425 and 16,566 new households in Federal Way by the year 2012. Figure Y-4 depicts the historic growth rate of the total number of housing units constructed within Federal Way by decade, in relationship to the number of new households projected within Federal Way by the end of this planning period. The distinction is that housing units are actual constructed habitable structures, whereas households reflect occupied housing units. Figure V-4 J u Projected Households vs Historic Housing Unit Growth 5000� 4000� 3000� 2000 z 1000 Actual Housing Units Projected Households Source: 1. 1992 Comprehensive Housing Affordabiliry Strategy. 2. 1995 Office of Financial Management Housing Unit Estimate. 3. King Counry Countywide Planning Policy Household Target,• 1994 to 2o1z. The number of housing units always exceeds the number of households, and is dependent on vacancy rates. These forecasts also attempt to predict the demand for housing by income groups. Specifically, the County- wide planning policies suggest that Federal Way plan for an additiona13,222 to 3,976 units that are afford- able to low and very low income families (24 percent of projected net household growth) and 2,282 to 2,816 housing units that are affordable to moderate income families (17 percent of projected net growth) by the year 2010. The remaining 7,921 to 9,774 units should be affordable to middle income families (22 percent of projected net household growth) and upper income families (37 percent of projected new household growth). Housing is considered affordable when a family is spending not more than 30 percent of their monthly income, or two and a half times their annual income, v 1940 1950 1960 1970 1980 1990 2000 2010 2020 Federal Way Comprehensive Plan Housing for housing. For a three person very low income family in Federal Way (see Table V-1), it means that the monthly rent plus utilities must be less than $360, or if they are buying a home, it must cost less than $36,000 at 1993 prices. Clearly, it will require some creativity to provide market rate two bedroom rental units for less than $360 per month. To build homes that are available for $36,000 would require some significant public subsidy. PSRC housing forecasts also indicate that the City may add approximately 3,500 new multiple family units by the turn of the century, and 10,000 multiple family units by the year 2020. Multiple family housing might rise from 37 percent of Federal Way's total housing stock at present, to 40 percent in 2000 and 45 percent by 2020. These numbers represent forecasted growth of particular housing types, but are not considered mandatory requirements for the City. However, the Comprehensive Plan does contain sufficient capacity to meet forecasted multiple family growth in the event it occurs. To ensure that these projected new housing units, if built, are a positive 'addition to the community, the City will need to review and revise its multiple family residential code to encourage more variety in the types of units available, more innovative and aesthetically pleasing design, and require more aggressive management of buildings and facilities. There are between approximately 150 and 175 homeless children in kindergarten through sixth grade in the Federal Way School District. There may be a need for 96 units of housing for persons with AIDS in southwest King County by the year 2000. Federal Way may wish to cooperate with the King County Consortium and neighboring cities to adopt effective housing goals and policies to meet future housing needs. A comprehensive strategy will ensure that safe and suitable housing is available to residents of all income levels and special needs, as required by GMA. Housing Capacity As is described in the Land Use chapter, this Compre- hensive Plan provides more than enough capacity to accommodate a range from 13,425 to 16,566 new housing units, which are forecast for Federal Way by the year 2012. The land use plan will accommodate between approximately 16,723 and 23,994 new resi- dential units, including between 5,413 and 12,684 detached single family homes, approximately 1,700 accessory dwelling units, and up to 9,610 multiple family units. Requests for help by Federal Way residents for homeless shelters, transitional housing, and special needs housing exceed supply. Highlights of a recent review of supportive housing for residents of Federal Way with special needs indicates that: The number of individuals and families turned away from each shelter ranges from none to six times the number admitted. The domestic abuse shelter turned away nearly five times as many as it served in 1993. There is a need for more supported living units (apartments and shared single-family homes) for the mentally ill. In general terms, the primary component of the City's housing strategy is to promote in-fill while protecting the character and quality of its existing single family residential neighborhoods. New detached units will be constructed on vacant lots in existing neighborhoods but they will be compatible with the existing homes. Planned Unit Developments and other special develop- ment techniques may be added to the zoning code to encourage compatible development on difficult sites and near environmentally sensitive areas. However, in-fill development will not be permitted at the ex- pense of the quality of life in existing neighborhoods. A secondary component of the housing strategy is to encourage higher density residential uses in the I-5/ Highway 99 corridor, including the City Center. Row houses, townhouses, condominiums, and mid-rise v-� Federal Way Comprehensive Plan Housing apartment buildings may be appropriate in this area subject to the availability of utilities and other infrastructure, access to public transportation, jobs, shopping, entertainment, and social and human services. This plan anticipates that during the next 20 years, the City Center and the Highway 99 conidor will redevelop and accommodate the majority of the new housing units, particularly multi-family housing units, added to the City's inventory. The area will gradually become a more dense, mixed use, pedestrian friendly, high amenity, high quality, vital part of Federal Way. The third part of the strategy is to ensure that there is sufficient land available for other housing needs such as government assisted housing, manufactured housing, group homes, and foster care facilities. The Land Use chapter and zoning code provide support for this type of housing. The City may also wish to elim- inate baniers to siting special needs housing within residential zones to ensure the opportunity for adeq- uate provision of these services. Together, the Housing chapter and the associated development regulations provide sufficient capacity to accommodate projected housing growth for all eca nomic segments of the population. It is important that the City implement a housing program that will assist private developers and private non-profit organiza- tions in meeting the identified housing needs. Such action is not only required by GMA, but it is also pru- dent public policy and will ensure a safe and suppor- tive housing environment for future generations. 5.3 KEY HOUSING ISSUES Preserving Neighborhood Character As the population of the area in and around Federal Way doubled during the 1980's, residents feared that existing neighborhood character and values were threatened. Approximately 7,000 new multifamily units were built in Federal Way between 1980 and 1990. Many of these units were not well designed and were haphazardly sited across the entire City. This resulted in substantial changes to the character of neighborhoods, or created whole new neighborhoods along major arterial streets. Preservation of existing neighborhoods has been cited as an important com- munity value in Federal Way. T'his value played a large role in the community's decision to incorporate. This Comprehensive Plan recognizes that neighbor- hoods are special places and are valuable and impor- tant to the quality of life for many citizens. New development in established neighborhoods must be sensitively designed and constructed. New develop- ment within existing single family neighborhoods should be limited to small scale, well designed in-fill and accessory housing. Likewise, new multiple family or mixed use development located along arterials run- ning through or adjacent to existing residential neigh- borhoods should be designed to minimize adverse impacts and with sufficient buffers. Development Review There are several actions the City may take to make housing more affordable. Time is money to a housing developer. Thus, whatever the City can do to reduce permit processing time will make housing more affordable. Accordingly, one of the first priorities for the City should be to revise the zoning code so that more land use decisions are administrative decisions, thereby avoiding time consuming public hearings. Second, the City should consult with the developer at an early stage in the review process to ensure that the applicant understands the meaning of City develop- ment regulations. Such early meetings allow the City and housing developer to agree on the best method to achieve a code compliant and mutually beneficial site plan prior to having spent significant sums on costly design and engineering work. A significant portion of the cost of building housing is the cost of providing the necessary infrastructure. If the City is interested in providing housing that is affordable to very low income citizens, it could, to the extent economically practicable, provide the necessary infrastructure, or possibly subsidize the cost of pro- viding public facilities such as streets, parks, utilities, v-s Federal Way Comprehensive Pian Housing transit facilities, public amenities, and social services CDBG funds and other grants are available for this purpose and should be used where appropriate. Citizen Participation u Citizens of the community should be actively involved in the preparation of this Comprehensive Plan, zoning regulations, and review of proposed development pro- jects. The result of this participation should be policies and regulations which are clear, precise, and easy to implement, and new development that is an asset to the community. Moderate scale housing development that is consistent with City policy and regulations should be reviewed and approved through a prescribed, efficient, and consistent administrative process which minimizes review time and the subsequent increases in project costs. Larger scale development plans, or those which will have significant impacts on sur- rounding neighborhoods, should have full pubiic review as defined in the Federal Way City Code. The public and the developer should have a clear under- standing of process, the types of issues which are open to discussion, and the time frame for completion of the review process. Housing Design and Innovation The City's existing Comprehensive Plan and zoning code do not encourage new and diverse housing forms. The challenge in this new plan and subsequent code revision work is to be flexible when presented with creative and high quality design proposals. Of course, this flexibility must be balanced with the need to provide a degree of certainty to the developer and to give clear guidance to policy makers, staff, and public. The following paragraphs describe several regulatory mechanisms which the City could include in its zoning code that would encourage superior design, a greater variety of housing types, and reduce costs. Incentives For Good Practice Many jurisdictions include incentives in their zoning code which encourage developers to build projects in a way that produces some identified public benefits. The public benefits might include creative designs that are sensitive to community and neighborhood values, dedication of land or right-of-way for public use, and construction of urban amenities, community facilities, and other public spaces. The incentives might include density bonuses, extra development potential, or expedited permit processing. Inclusionary Zoning In certain zones, development might be required to meet certain City goals, such as providing affordable housing, as set out in the zoning code. It is becoming more commonplace for jurisdic- tions to require major developers to provide a portion of low income housing in developments over a certain scale. Planned Unit Development A Planned Unit Development (PUD) ordinance allows developers flexibility to achieve design, layout, or density that is suited to a specific site. As an example, a PUD allows clustering of housing density in more developable portions of a site while protecting important open space and environmentally sensitive areas. A PUD ordinance gives the City and the development com- munity flexibility to provide a variety of housing types and costs in new residential areas or smaller, older, mixed use neighborhoods. Transfer of Development Rights This technique allows a developer to transfer permitted density from one part of a site to another, or from one site to another. It is a useful technique for protecting parts of sites that are environmentally sensitive without loss of land value. It also allows for more dense forms of housing development, thereby reducing housing costs. Diversifying Housing Choice The majority of the housing available in Federal Way today is fairly homogenous. Housing primarily con- sists of single family detached units, constructed in the sixties and eighties, laid out in isolated subdivi- sions disconnected from the urban fabric. There are some mobile home parks and a few duplexes located in the City. The rest of the housing stock tends to be low density, two and three story apartment buildings. V-9 Federal Way Comprehensive Plan Housing This provides only a narrow range of choices and does not fully reflect the range of housing options that could be built. It creates a situation where an increasing number of families find it difficult to obtain suitable housing in the community. This includes senior citizens who have owned and lived in their homes for many years and either cannot afford, or are no longer able to maintain, their homes. It affects empty nesters and couples who have raised their families who, for life- style reasons, no longer need or want a large single family house and the associated maintenance. Young adults, students, young married couples, and low income workers would like to live in the community where they grew up or currently work, but cannot find a house that fits their housing needs or cannot afford the available housing. New housing should be more diverse, contributing to community character and relating better to the neigh- borhood environment. It should reassure residents that they will be able to afford to live close to their jobs, friends, and families. It will also help preserve and maintain neighborhoods that include a healthy mix of ages and incomes. Housing Affordability and Special Needs Housing Federal Way has one of the highest housing costs (for both owned and rental housing) among Southwest King County communities. The population of Federal Way also tends to be younger than other communities, creating a strong demand for moderately priced housing. There are approximately 8,000 low income households currently in Federal Way which are in need of housing assistance in order to afford housing. Some of these are part of a growing number of senior citizens who are likely to need both housing assistance and related services within the next decade. PSRC also projects a strong demand for affordable multiple family units through the year 2000 to serve low and moderate income families who work in Federal Way. GMA and the Countywide Planning Policies require that municipal jurisdictions adopt strategies for pro- viding a"fair share" of identified regional housing needs. The Countywide policies set a target of 5,500 to 6,790 new affordable housing units in the City by the year 2020. Of that number, 3,200 to 3,900 must be affordable to low and very low income citizens. These are ambitious goals for a young City still trying to establish itself and its vision for the future. The need for homeless shelters, transitional housing, and special needs housing exceeds the available supply. County policies as well as GMA require provisions for special needs housing. Special needs housing, also called `supportive housing,' brings together housing and support services for community residents who need special services in order to live independently or with minimum assistance. This includes community wide services for those who live in their own homes, as well as services in housing operated by public and private agencies. Although the proportion of elderly is smaller in Federal Way than in neighboring South County cities, the City's seniors (65 and over) were sti116.2 percent of the population in 1990, with another 6.5 percent between the ages of 55 and 64. Average life expec- tancy continues to climb, and we should expect an increasing percentage of Federal Way's population will be 65 and over in the next 10 to 20 years. Because women tend to live longer than men, this population will be predominantly female. Elderly people, are often reluctant to give up the com- fort and security provided by their own homes. With this in mind, federal and state policy has shifted from one of providing institutionalized care for seniors to a more home based or "aging in place" policy. Many seniors, and most of those over 75, need some in home services. As elderly people become more frail, their supportive service needs increase. They may be better served in congregate care facilities, or eventually, nursing homes. Federal Way should begin planning for a continuum of care that minimizes family stress and public costs. In-home services should be available Citywide, while congregate care facilities and nursing J v-�o Federal Way Comprehensive Plan Housing homes should be located near to community services and shopping areas, and away from busy traffic corridors. The 1994 King County Comprehensive Housing Affordability Study, estimates that there are 7,500 chronically mentally ill and 67,000 seriously disturbed persons living in King County. Safe and affordable housing, a key element in a long-term therapy program for these people, is not available for a majority of the low-income mentally ill in King County or Federal Way. Northwest Mental Health manages housing and services in Federal Way and believes that there is a need for 121 more units of supported apartments and shared single-family homes in South King County. A number of these may be located in Federal Way. Federal Way is currently served by two programs for victims of domestic violence. The Domestic Abuse Women's Network (DAWN) in Kent provides 10 shelter beds, as well as crisis intervention and support services. Statistics show that DAWN turns away nearly five times as many as they are able to shelter during each year. The South King County Branch of the YWCA also serves Federal Way area residents. They recently opened 14 units of transitional housing for victims of domestic abuse in South King County. There is clearly a large unmet need for emergency housing in South King County for victims of domestic abuse. King County jurisdictions receive Housing Oppor- tunities for Persons with AIDS rental assistance funding from HLJD. Federal Way participates in the oversight of this program with Seattle acting as the lead authority. A recent Five Year AIDS Housing Plan estimates a need for 852 units of AIDS housing in King County by the year 2000. Of these, 96 will be needed in Southwest King County based on the his- toric proportion of persons living in this area at the time of their diagnosis. Several organizations in South King County offer emergency shelter and transitional housing to residents of the City of Federal Way. Existing data concludes that cunent facilities are inadequate when compared to requests for help. The number of individuals and families turned away from shelters ranges up to six times the number admitted. There are many reasons that people and families end up homeless. Families and individuals sought shelter in King County during 1991 for the following reasons: employment and income related problems (19 percent of those seeking shelter); eviction and displacement (18 percent); domestic violence (16 percent); family crisis (16 percent); mental illness, alcohol, and sub- stance abuse (7 percent); and other, including run- aways, new arrivals, and medical problems (23 percent). According to established service providers, suburban homelessness is also increasing. Data from the South King County Multi Service Center indicates that the proportion of women, children, and families seeking shelter is growing rapidly in this community. It is difficult to estimate the number of homeless children there actually are in Federal Way, but the Federal Way School District reports that in their District alone, there are between 150 and 175 home- less children in kindergarten through sixth grade. Federal Way Youth and Family Services reports that many homeless children come from abusive homes or suffer from emotional neglect. Homelessness and domestic instability may cause deep emotional scars which impacts a child's ability to focus his or her full attention on education. There is also a need for transitional housing for home- less individuals and families. State and Federal rules restrict the length of stay in emergency shelters to 60 days. So, after many families have exhausted their time in an emergency shelter, they need access to longer term transitional housing, where they can live for one or two years, obtain necessary support services, and stabilize their lives. Data is scarce so it is very difficult to estimate the number of beds that are needed to house the special needs population. However, there is unmet need in this service area. The City is committed to fostering programs and supporting service providers to assist in meeting this need subject to economic limitations, City revenues, and the need to balance housing against all other public needs. v-i i Federal Way Comprehensive Plan Housing Policy Coordination and Regional Participation County Consortium and other South King County cities when designing and implementing housing and housing related services. The GMA and good planning practice require that each chapter of the Comprehensive Plan be coor- dinated and consistent with goals and policies set forth in the other Plan chapters. This is especially true of the Housing chapter, particularly as it relates to the Land Use and Transportation chapters. The GMA also requires that City policies for afford- able housing be consistent with Countywide Planning Policies. PSRC, King County, and Federal Way have jointly adopted regional planning goals that estimate fair share housing targets, including low and moderate income housing targets which promote an equitable distribution of low income housing. This type of housing is most appropriate in urban centers which contain jobs and good public transit access. Consistent with these requirements, the City's Land Use chapter proposes multiple family housing and mixed use development in the City Center, along the SR-99 and I-5 corridor, and to a limited extent in the neighborhood retail centers. All of these locations are or will be well served by public transit. The City has also determined that housing, and in particular, multiple family housing, will be designed so that it provides a quality place to live and is an asset to the community. In addition, the City is committed to fair housing access to all persons without discrimination. This Housing chapter must also be coordinated and consistent with the County's and the City's funding programs for housing. This is particularly true for programs such as the Community Development Block Grant, Home, and other Countywide funding initia- tives as recommended by the GMPC's Housing Finance Task Force. The City also recognizes that most of the housing issues found in Federal Way are common to the County, Seattle, and the other suburban jurisdictions. In order to insure quality in the City's provision of housing services, and to help eliminate duplications of effort, the City should coordinate with the King 5.4 HOUSING CHAPTER GOALS AND POLICIES The following section provides goals and policies for providing, preserving, and improving housing condi- tions in Federal Way. These goals and policies pro- vide a framework from which to develop implementing strategies and work programs for the community. The purpose of these goals and policies is to provide housing opportunities to all segments of the popula- tion. Consistent with GMA, these goals and policies should promote a variety of densities and housing types, and encourage preservation of the City's existing housing stock. Overall Goal Preserve and protect Federal Way's existing high quality residential neighborhoods and promote a variety of opportunities to meet housing needs of all residents of the community and region. Preserving Neighborhood Character Goal HG1 Preserve and protect the quality of existing residential neighborhoods and require new development to be of a scale and design that is compatible with existing neighborhood character. Policies HPl High density housing projects will not be permitted in existing single family residential neighborhoods. v-i2 Federal Way Comprehensive Plan Housing HP2 Design guidelines should be adopted poten- tially in subarea plans that will specify in detail neighborhood character and require that new housing be consistent with these design guidelines. HP3 Amend development regulations to accommo- date a diverse range of housing forms that are compatible with neighborhood character and create an effective transition between the City Center, business areas, and residential neighborhoods. HP4 Allow accessory housing units within single family neighborhoods that protect residential character, ensure proper access, maintain specific design standards, and comply with all applicable laws. Policies HP8 Encourage public input into development of planning and regulatory documents through a formal public process characterized by broad, thorough, and timely public notice of pending action. HP9 Consider the economic impact of all develop- ment regulations on the cost of housing. HP10 Maximize efficiency in the City's develop- ment review process and ensure that unneces- sary time delays and expenses are eliminated. Provide streamlined permitting processes for development that is consistent with the Comprehensive Plan and Federal Way City Code and that has no adverse impacts. HPS Maintain a strong code enforcement program HPlI Encourage community input, where appra to protect residential areas from illegal land priate, into the development permit process by use activities. providing thorough and timely information to the public. HP6 Conduct periodic surveys of housing condi- tions and create programs, including housing HP12 Assist developers with housing proposals at rehabilitation, to ensure that older neighbor- the earliest possible opportunity, including hoods are not allowed to deteriorate, subject preapplication meetings to produce projects to availability of funding for such surveys and that can be reviewed quickly and maximize programs. their ability to receive permits. HP7 If allowed by applicable law, development inside and outside the City should be required to provide their fair share of onsite and offsite improvements. Diversifying Housing Choice And Design Goal Community Involvement And Development Review Goal HG2 Involve the community in the development of new housing to a degree that is consistent with the scale of impact on the surrounding neighborhoods. HG3 Develop a Comprehensive Plan and zoning code that provide flexibiliry to produce innova- tive housing solutions, do not burden the cost of housing development and maintenance, and diversify the range of housing types available in the City. V-13 Federal Way Comprehensive Plan Housing Policies HP13 The City's development regulations and Land Use chapter of the Comprehensive Plan will be coordinated to allow low income and special needs housing around the City Center and other areas providing proximity to low wage employment, safe and convenient access to transportation and human services, and adequate infrastructure to support housing development. HP14 Amend development regulations to encourage superior design and greater diversity of housing types and costs through such tech- niques as incentives, inclusionary zoning, planned unit developments, density bonuses and transfer of development rights. Housing Affordability Goal HG4 Develop a range of affordable housing oppor- tunities for low income groups consistent with Countywide Planning Policies and the needs of the community. Policies HP21 Promote fair housing access to all persons without discrimination. HP22 As estimated by Countywide Planning Policies, maintain sufficient land supply within the City to accommodate 17 percent of the City's projected net household growth for those making 50 to 80 percent of King County's median income and 24 percent making less than 50 percent of inedian income. HP15 Consider zero lot line standards within planned unit developments to create higher density single family neighborhoods with large open space areas. HP16 Consider reducing minimum lot sizes to allow construction of smaller, detached single family houses on smaller lots. HP17 Continue to permit mixed use residential/ commercial development in designated com- mercial areas throughout the City. Include developer incentives and design standards. Require a portion of new housing on sites of significant size to be affordable to low income households. Ensure that affordable housing is not concentrated in particular neighborhoods by setting a percentage limit to the number of affordable housing units that can be included in new housing developments. HP24 Ensure that any new affordable housing remains affordable. HPl8 Establish administrative procedures to permit HP25 innovative housing designs, provided they are of high standard and consistent with the Comprehensive Plan. HP19 Establish incentives, such as density bonuses, for providing a portion of affordable housing in new developments. HP20 Periodically review and update development regulations to incorporate opportunities for new housing types. Allow and encourage use of manufactured housing in residential zones, provided it conforms to all applicable Federal, State, and local requirements and is compatible with the character of the surrounding neighborhood. In order to maintain existing affordable housing, the City should continue to allow manufactured home parks in existing locations. However, new manufactured home parks will not be permitted, nor will expansion of existing parks be allowed. V-14 Federal Way Comprehensive Plan Housing HP27 Encourage new residential development to achieve maximum allowable density based on net building area. Special Needs Housing Goal HP28 Explore Federal, State, and local resources to assist in financing affordable housing. Encourage expansion of home ownership options through such means as first time home buyer programs, housing cooperatives, lease- purchase ownership, and other housing models. HP29 Consider delaying, deferring, or exempting affordable housing from development fees, concurrency requirements, payment of impact fees, offsite mitigation, and other development expenses that do not compromise environ- mental protection or public health, safety, and welfare or constitute a nuisance. HP30 Support tax law amendments that provide relief to affordable and special needs housing. HP31 Identify low income housing resources that may be lost due to redevelopment or deterior- ating housing conditions. Develop strategies that seek to preserve existing low income housing, and that seek to provide relocation assistance to households that are displaced as a result of such activities. HP32 Annually monitor residential development to determine the total number of new and redeveloped units receiving permits and units constructed, housing types, developed densities, and remaining capacity for residential growth for all income levels and needs. HP33 Integrate and coordinate construction of public infrastructure with private development to minimize housing costs wherever possible or practicable. HGS Develop a range of housing opportunities that meet the requirements of people with special housing needs, including the elderly, mentally ill, victims of domestic abuse and persons with debilitative conditions, or injtiries. Policies HP34 Remove existing regulatory baniers to siting special needs housing to avoid concentration and to ensure uniform distribution throughout all residential and mixed use zones, subject to performance standards that protect residential amenity, ensure proper access, and maintain design standards. HP35 Review percnit applications for special needs housing in close coordination with service pro- viders and the City's Human Services program. HP36 Assist local service organizations and self help groups to obtain funding and support. HP37 Ensure that access to special needs housing is provided without discrimination. Goal HG6 Develop emergency shelter and transitional housing facilities for the homeless. Policies HP38 Foster and support services that are not con- centrated in particular neighborhoods by setting a percentage limit to the number of affordable housing units that can be included in new housing developments. V-15 Federal Way Comprehensive Plan Housing HP39 Coordinate City actions related to homelessness with the City's Human Services Program and 5.5 IMPLEMENTATION ACTIONS other shelter providers. HP40 Continue to permit emergency and transitional homeless facilities within the City. HP41 Emergency shelters and transitional housing should be regulated to avoid concentration of facilities, mitigate impact on surrounding uses, ensure that such housing is properly managed, and avoid significant impacts on existing residential neighborhoods. Regional Participation Goal HG8 Coordinate and integrate the City's program with other area housing and service providers. Policies HP42 Policies and regulations related to affordable housing should be consistent with Countywide and multi-counry policies. HP43 Establish effective links with King County and other area cities to assess need and create housing opportunities for low income and special needs households, and develop a housing program that addresses issues common throughout the entire region. HP44 Subject to availability of funds, participate in the production and periodic update of a housing needs assessment for the City and region to ensure that policy is based upon a rational evaluation of housing needs and priorities. HP45 Ensure equitable and rational distribution of low income and affordable housing throughout the region that is compatible with land use, transportation, and employment locations. Implementation of policies contained in the chapter will occur over a number of years and is dependent on resources available to the City and the community. The following implementation strategy lists actions that the City may take in the next five years. 1. Develop an inventory of public properties no longer needed for use and which may be available for affordable housing. Evaluate use of such property for affordable housing against all other competing public uses. 2. Inventory and report on the estimated number of units for each income segment following adoption of the Comprehensive Plan, for purposes of Countywide monitoring of capacity for housing development. Annually monitor residential development and determine the total number of new and redeveloped units receiving permits, units constructed, housing types, developed densities, and remaining capacity for residential growth based on income categories. 4. Conduct periodic surveys of housing conditions to direct the housing rehabilitation programs. 5. Develop strategies for protecting low income housing that may be lost due to redevelopment or deteriorating housing conditions. 6. Develop guidelines, potentially as subarea plans, that require consistency with specified neighbor- hood character and design requirements. 7. Assign a City representative to participate with other agencies to create a comprehensive housing program that addresses issues common throughout the entire region, and to seek and develop funding opportunities and strategies. v-i s Federal Way Comprehensive Plan Housing 8. Prepare and periodically update a housing needs assessment. Encourage low income and special needs housing around the City Center. 9. The following is a menu of potential development regulation amendments which should be considered: Diversify housing forms and encourage superior design through techniques such as incentives, planned unit developments, density bonuses, and transfer of development rights. Create effective transitions between the City Center, businesses, and residential areas. Maximize efficiency of development processes. Streamline processes for development con- sistent with the Comprehensive Plan, zoning code, and having no significant adverse impacts. Zero lot line standards. Reducing minimum residential lot sizes. Establish administrative procedures for innovative design. Establish maximum and minimum require- ments for low income housing on sites of significant size. Eliminate barriers to uniformly siting special needs housing throughout all residential areas. Preclude concentration of homeless facilities. v-i 7 Capital Facilities � __ _�L___ _ - _ _� l—"�' � — � `� �_. _----- _ _-_�`__ �---- ;__ ____� �`-- - -- J � \ , _ � r - � i � ■ ) _��` , C !� ..�. f�.. O � C O .�.�. ti7 r... ""� � O c.. �� � • • Federal Way Comprehensive Plan Capital Facilities 6.0 INTRODUCTION he City of Federal Way is expected to add between 13,425 and 16,566 housing units and 13,300 and 16,400 jobs between the years 1992 and 2002. This growth will stimulate the local econ- omy 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. 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. Level of Service The Growth Management Act The 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 ser- vices exist or can be provided in an efficient manner. 12. Public facilities and services. Ensure that those public facilities and services necessary to support development shall be adequate to serve the devel- opment 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 pub- lic 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. To prepare a Capital Facilities chapter, one of the first decisions a jurisdiction must make involves the level of service (LOS) standard. The level of service stan- dard refers to the amount and quality of services and facilities that a community wants for itself. For example, the LOS for a parks system is usually described in terms of the number of acres of park land 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 park land 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 along the order of five acres per 1,000 population. In any event, the City must adopt LOS standards for all the services and facilities it provides so that it can: 1) evaluate how well it is serving its existing residents, and 2) determine how many new facilities will have to be constructed to ser- vice new growth and development. The significance of this decision, and the associated cost implications, will become obvious in the following discussion. Concurrency In addition to mandating that a Capital Facilities chapter be included in the Comprehensive Plan, the GMA also introduced the concept of concurrency. In general terms, concurrence describes the situation where adequate and necessary public services and Revised December 1998 V�'� Federal Way Comprehensive Plan Capital Facilities facilities are available "concurrent" with the impacts of new development, or within a specified time thereafter. Concunency 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 levet 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 which 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[6e]) states: "...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 the City could enact ordinances that require a project level concurrency test for other services and facilities if it chooses to. At this point, the City of Federal Way is not proposing any additional concurrency require- ments. It is, however, a goal the City may want to consider in the future. "...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 "concunent with the development" shall mean that improvements or strategies are in place at the time of development, or that a financial commitment is in place to complete the improvements or strategies within six years. To satisfy the project level concurrency requirement, the last section of the Transportation chapter, chapter three, contains a concurrency management discussion. As mentioned previously, project level concurrency is only required for transportation system facilities. However, the procedural criteria for adopting compre- hensive plans (WAC 365-195-060[3]) states that, Impact Fees The GMA allows local jurisdictions to assess impact fees for pazks, transportation, and schools. It was clearly the intent of the legislature to have new growth pay its share of the impact on public facilities. Impact fees must be based on an adopted capital facilities plan. In addition, the collected fees must be used for projects that benefit the development paying the fees. The fees must. also be used within five years of the date they were collected or returned to the payee. Furthermore, impact fees can only be used to mitigate the impact of new development. They cannot be used to make up existing system deficiencies as is the case when a jurisdiction is actually providing a lower LOS than its adopted LOS standard. 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 (CWPP's) origin- ally adopted in 1992, and amended in 1994, contain a number of goals and policies regarding capital facili- ties and the provision of urban services. Those relevant CWPP's are the following: COl Jurisdictions shall identify the full range of urban services and how they plan to provide them. CO2 Jurisdictions and other urban service pra viders shall provide services and manage Revised December 1998 VI-2 Federal Way Comprehensive Plan Capital Facilities natural resources efficiently, through regional C013 coordination, conjunctive use of resources, and sharing of facilities. Interjurisdictional planning efforts shall evaluate approaches to share and conserve resources. CO3 Service provision shall be coordinated to ensure the protection and preservation of resources in both rural areas and in areas that are developing, while addressing service needs within areas currently identified for growth. C04 All jurisdictions acknowledge the need to develop a regional surface water management system which crosses jurisdictional boundaries and identifies and prioritizes program ele- ments 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. Urban sewer system extensions in unincor- porated King County shall be permitted con- sistent with the provisions of the King County Sewerage General Plan, Countywide Planning Policies, and the policies of the jurisdiction in whose potential annexation area the extension is proposed. FW13 Cities are the appropriate provider of local urban services to urban areas, either directly or by contract. Counties are the appropriate provider of most countywide services. Urban services shall not be extended through the use of special purpose districts without approval of the city in whose potential annexation area the extension is proposed. Within the urban area, as time and conditions warrant, cities should assume local urban services provided by special purpose districts. FW32 Public capital facilities of a Countywide or Statewide nature shall be sited to support the Countywide land use pattern, support eca nomic activities, mitigate environmental impacts, provide amenities or incentives, and minimize public costs. Amenities or incen- tives shall be provided to neighborhoods/ jurisdictions in which facilities are sited. Facilities must be prioritized, coordinated, planned, and sited through an interjurisdic- tional process established by the GMPC, or its COS 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 encour- aged, especially for large commercial and residential developments and for high water LU29 users such as parks, schools, golf courses, and locks. CO10 In the urban area identified for growth within the next ten years, urban water and sewer sys- tems 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 appro- priate, the systems are allowed by the relevant jurisdictions, and management keeps the sys- tems operating properly and safely. successor. All jurisdictions shall develop growth phasing plans consistent with applicable capital facili- ties plans to maintain an urban area served with adequate public facilities and services to maintain an urban area to meet at least the six year intermediate household and employment target ranges consistent with LU67 and LU68. These growth phasing plans shall be based on locally adopted definitions, service levels, and financing commitments, consistent with State GMA requirements. The phasing for cities shall not extend beyond their potential annex- ation areas. Interlocal agreements shall be developed that specify the applicable mini- mum zoning, development standards, impact Revised December 1998 VI-3 Federai Way Comprehensive Plan Capital Facilities mitigation, and future annexation for the potential annexation areas. approve a permanent utility tax to pay for the main- tenance and operations costs associated with the new capital facilities. LJ 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, densities, and infra- structure 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 addi- tional 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 genera( fund on an annual basis. On-going revenues include property taxes, sales taxes, utility taxes, im- pact fees, and business and occupation taxes. The other category of funds are 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-21, IAC, and Urban Arterial Fund money. On-going funds can be used for either capital facilities or maintenance and operations. However, it is prudent financial manage- ment 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 1995. As part of that bond issue, voters were asked to 6.1 PARKS AND RECREATION Inventory of Existing Facilities The City of Federal Way adopted the Comprehensive Park, Recreation, and Open Space Plan in December of 1991. The City updated the Plan in 1995 (which is adopted by reference in this plan). The Parks Plan covers not only the City of Federal Way proper, but also includes the City's Potential Annexation Area (PAA) east of Interstate 5. The original 1991 Parks Plan identified 39 parks and open spaces totaling some 998 acres in the planning area. The 1995 Plan updated the inventory to include new parks added to the City's system. The Plan also lists school district facilities, State, and County facili- ties as well as private recreation facilities. Map VI-1 describes the location of major parks and open space within the Federal Way planning area. Table VI-1 summarizes this inventory as of July 1997. When the City incorporated in 1990, there were approximately eight acres of park land available per 1,000 residents in Federal Way. Since that time, the City has purchased additional property and developed new facilities. T'hese include the Lake Klahanee Com- munity Senior Center, Dumas Bay Centre (formerly Visitation Retreat Center), Celebration Park, and Steel Lake Annex facilities. These facilities are described in greater detail in the City's Park Comprehensive Plan. The result is that the City is now providing 10.9 acres of parks per 1,000 residents. This represents a fairly dramatic increase in the LOS being provided to local residents. In addition to acquiring and developing new facilities, the City has taken administrative actions to take advantage of other available public recreational facili- ties. The City enacted interlocal agreements with the School District to jointly operate and maintain school �J Revised December 1998 VI-4 • • • Federal Way Comprehensive Plan Capital Facilities Tab[e VI-1 Summary of Existing Parks and Open Space AGENCY ACRES SITES Ciry Park/Recreation Areas 803.44 45 County Park/Recreation Areas 23.65 4 State Park/Recroation Areas 295 2 School District Areas 134.68 21 Private Parks/Recreation Areas 184.13 10 Total Pazks and Open Space 1440.9 82 recreational facilities. As a result, the City now jointly operates and maintains a major community park in conjunction with Saghalie Junior High School. Also, the City has agreements to provide recreational pro- grams and schedule play fields at several elementary schools. These facilities are now formally available nights and weekends, year around for use by local residents. When one considers all of the parks and recreation facilities which are now available through interlocal agreements in the parks planning area, City residents now have access to approximately 17 acres of parks and open space per 1,000 residents. This inventory includes all City, County, State, and School District facilities. This is a substantial increase in the LOS over the past seven years. However, for the purposes of parks planning, the LOS standard adopted in the City's Parks Plan and this Capital Facilities chapter is 10.9 acres of city owned park land per 1,000 popula- tion. This LOS standard is generally consistent with the LOS that the City is presently providing. Forecast of Future Needs Based on population estimates included in this Plan, and the adopted LOS standard for parks and open space, the City estimates that it will need to acquire Table VI-2 Parks Recreation Needs Year 2010 PLANNING PROPOSED PROPOSED OPEN AREA PARK LAND SPACE A 24.0 80.0 B 45.0 0 C 25.0 25.0 D 3.0 0 E 5.0 42.0 F (Outside City) N/A N/A G(50% Outside City) 2.5 30.0 H (Outside Ciry) N/A N/A TOTAL 104.5 177 and develop 104 acres of new pazks and an additional 177 acres of open space between now and the yeaz 2010 in the Plan. These estimates are summazized in Table VI-2. 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 800 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-2 indicates the location of the parks, recrea- tion 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 1995 Parks and Recreation Plan. Revised December 1998 VI-6 Federal Way Comprehensive Plan Capital Facilities Finance Plan Table YI-3 describes the proposed parks projects that will be needed between now and the year 2003, together with cost estimates programed by year. Table VI-3 also identifies the revenues that will be available during the same time period to finance these new facilities. In 1997, the City Council passed a utility tax. A portion of the revenue from this tax is being used for the construction of the improvements to Celebration Park. T'he City annually updates its Parks Recreation capital improvements program. These updates reflect new project priorities, eliminate projects that have been completed, and add new projects to the program. 6.2 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-3 describes the planning area boundary, basin, and sub-basin boundaries. Map VI-4 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 Compre- hensive Surface Water Facility Plan. Man System As part of its 1994 Surface Water Facilities Plan, the City completed an inventory of the storm water 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 improve- ments to the man-made 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 storm- water runoff. However, individual developments must treat storm water on site prior to releasing it to the regional system. System Capacity As another part of the Surface Water Facilities Plan, the City developed a model of its surface water facili- ties including the natural part of the system, the var- ious 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 ■]00 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. Forecast of Future Needs Based on model results, utility engineers annually update a detailed 20 year capital facilities plan. The plan identifies projects, prioritizes them, estimates the cost, and re-examines the utility rate structure to en- sure that there is sufficient funding available over the next 20 years to construct these projects. Revised December 1998 VI-7 I I i �TI �f L k r F,. �_Y. I _:�I�_ �j �I� 7 d T 1 r� i �J PUGET SOUND `��`�r"' r L.�,,, i r �J' i �{C T Y f /y f 1 A} v SW 1 T G n-�� A� v� J L-�� r >y;..' 4� Q 1 4 7) 1 v Z 1 1 A,I��A a� �r`�' Y I Y r F- vi 3 Y i 1. v�F��.� r t S 33�'iTH ST i--- �T, _t. t� ��—L— r r L� h S 348Tt1 jI r.u. t �i r l rT, z f`- 'r. a r f W 1 1��� j 1 i S 352N J� j J_ ��L L-- 'I t� �I �LCl --1 r J 6QTH T l 4il I� a T C �.l i�� t�� i N t i i f' fi� s 3r�i F+. I I� r– �i ti f J i F i l 1 I .l, --iT f� 1 r. I i I.ii S j 1 i r l� .a 1 CITY DF FEDERAL WAY C�MPREHENSIVE PLAN PAR�S P LAN PLAlVNI1�TG AREAS GAPITAL FAC[LITIES ELEMENT LE GEND FEDERAL WAY CITY LIM[TS P�TENTIAL ANNEXATION AREA PARKS, RECREATI�N ❑PEN SPACE B�UNDARY PLANNING AREA BOUNDARY Ths nnp is �ntentled for use as a graph�cnl representnt�on only. ihe C:ty oF Federul Nuy nnkes ro•arrnnty ns to �ts accurncy. °^°n G vv G[S D[VIS[ON M A P V I- 2 SCALE: 1' 5,000' DATE� DECEMBER 1995 CITY OF FEDERAL WAY COMPREHENSIVE PLAN N w s s LOyVEP PUGET SOUND BASIN PUGET SOUND i t 1- i l '>.l L Lr�� j� r� P �`T H LO�G �''�I.�G�:T l� ,l r L �-t.���7 riiL�.�l A I 1 I,Q�_ �.1 I 1� l l l j r r i�� i i I af_ I i I J H I• I I��� I I(Ta Cl I _1C� i r i�:l jJ` i f 1 I ,�IOR OWE i�ll SOU ►�J �_I1. s z�2 1 i�;'`•3 f s n t '�P', HYLE�O�� �c LO�VER PUGET S�UND �ASINS CAPITAL FACILITIES E�EMENT LEGEND FEDERAL WAY CITY LIMITS P�TENTIAL ANNEXATION AREA f EST �AN SW I31 I S /34�TI-� vl� a D D �GP �f� _f_,;, K f- N; y 1 s�r ��r S t t U r j J 1 1 /�.r S 33 TH fi, jr 1 I S �J W ,ou,� �-W -Y I �7- i I Z�� r �I`T��__ �1 i \'i`;��`1� I�� ,1I I \l.I N 1 I�� I Cj I F �n\ 1 Q Q�� r 2 I j��� y S 373 iQ,;�T T` I r T� �L �OwJ Y E _f ��i� h� i i. i; 1 EASf ,BRAN l��,� t 1 r. f M�1fL�80� GRE,�K i ii i i i 'i i DRAINAGE BASIN B�UNDARY SUB-BASIN BOUNDARY Th�s map is intended for use as a graphicnl representntion only. The C�ty of Federal 4/ay r+akes no warranty as to �ts accuracy. QIY Or MAP VI :3 �v GIS DNISION SCALE: 1" 5,000' DATE: DECEMBER :995 �1 1 1� i f 1 �r �i�l. E Federal Way Comprehensive Plan Capital Facilities C� Table VI-3 Parks Recreation Financing Plan FUNDING SOURCES 1998 1999 2000 2001 2002 2003 BEGINNINGFUNDBALANCE $8,439,752 $175,850 $22Q850 $685,850 $950,850 5165,85 Bonds $249,706 Donations $550,537 Fee in Lieu $70,000 $10,000 $10,000 $10,000 $10,000 $10,0 Funding TBD by Council' $550,000 $600,000 $750,000 $750,000 S80Q,0 General Fund $445,575 TBDZ TBDZ TBDz TBDZ TB Grants $5'12,806 $800,000 $150,000 $150,000 EI50,00 Interest Eamings $93,724 State Tax (Gas) $5,000 $5,000 $5,000 55,000 E5,0 Utility Tax $680.668 ToTALFtTNDINGSUURCES 511,102,765 5740,850 51,635,856 S1,�110,850 51�865,859 3i,1 PROJECTS $1.998 L999 $2,000 $2.001 $2,002 $2,00 Community Parks Acquisition $ISQ000 $150,000 $100,000 $100,0 Design $40.000 Development/Renovation $8.234,260 $250,000 Facilities Acquisition Design $100.000 DevelopmenURenovation $2.016.741 $110.000 $500,000 Neighborhood Parks Acquisition $100,000 $100,000 $100,000 Design $50.00 Development/Renovation $87.692 $50,000 Open Space Parks Acquisition Design Development $319,706 $70,000 Sports Field Design $300,000 Renovation $19,277 $1,000,000 $I,000,00 $1,998 $1.999 $2,000 $2,001 52,002 $2,00 Trails Acquisition Design $249,242 DevelopmenURenovation $700,000 ToTA[.PRO7EC7s 510,926,918 S520,000 S950,000 5650,000 S1,700,OOQ 51,130 ENDING FUND BALANCE S175,850 S220,850 5685,550 5950,850 S16:S,$SO 5715,8 I. Deparunmt budget proposal to the Ciry CounciL 2. Ciry Council approved budget. Revised December 1998 VI-11 Federal Way Comprehensive Plan Capital Facilities Locations and Capacities of Future Facilities Table VI-4 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 YI-4, 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. 6.3 TRANSPORTATION The GMA requires that local jurisdictions prepare a transportation chapter as part of the Comprehensive Plan. The GMA also authorizes jurisdictions to assess impact fees for transportation system improvements that are necessary to accommodate the tra�c 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. Table VI-S contains the City's Transportation Improvement Plan (TIP), which is a six year finance plan for transportation projects. T'he Transportation Chapter also contains a Capital Improvement Plan (CIP) which is a 20 year transportation facilities plan. Inventory of Existing Facilities Chapter three describes the complete inventory of the City's transportation facilities. Map VI-S indicates the City's street classification system. One of the motivations for incorporation in 1990 was that the City had grown significantly over the past decade without benefit of necessary transportation system improvements. Residents were dissatisfied with the declining LOS in transportation. In response, the City acted quickly to make road improvements. The City added capacity to the system by widening and improving South 356th Street, 16th Avenue South, and 348th Street. It also coordinated the traffic signals along South 320th Street to improve traffic flows and lobbied for the Dial-A-Ride Transit service in Federal Way. The result is that the LOS for transportation services in the City has been stabilized and improved. With this in mind, the City Council has adopted the 1995 LOS as the standard for service delivery into the future. Forecast of Future Needs Based on the adopted LOS standard for transportation, the City used the EMME2 computer transportation modeling program to evaluate future transportation system needs. Please review chapter three for details associated with this analysis. The conclusion is the City will have to construct the projects identified in the 1995 transportation improvement program (refer to the Transportation chapter) in order to maintain the existing LOS between now and the year 2015. C J u Revised December 1998 VI-12 Tab/e V/-4 Federa�Comprehensive Plan Capital Facilities Tab[e VI-S Transportation Improvement Plan (TIP) —1998 to 2004 MAP ID CAPITAL PROJECT I.IST 1998 1999 2000 2001 2002 2003 2004 TOTAL I S 320th St c�i SR 99: Add turnlanes 136,200 1,482,900 1,619,100 *2 S 336th St: 13th Ave S- 18th Ave S: Widen to 4/5 lanes 693,500 693,500 •3 Military Rd S C S 304th St: Add tum lanes 704,000 704,000 •4 Military Rd S� S Star Lake Rd: Signalize, add left-tum lane 180,000 180,000 5 SR 99: S 312th St S 324th St: Add HOV lanes 200,000 554,600 8,395,400 9,150,000 '6 S 312th St: SR 99 23rd Ave S: Widen to 5 lanes 3,336,100 1,200,000 4,536,100 7 SW 340th St Hoyt Rd SW: Signalize, add tum lanes 83,900 271,100 355,000 8 23rd Ave S: S 317th St S 324th St: Widen to 5 lanes 800,000 3,172,000 1,601,000 5,573,000 •9 SR 509 �u 8th Ave SW: Signalization, left tum Ianes 279,000 279,000 10 21st Ave SW SW 334th St: Relocate fire signal 180,000 180,000 11 SR 99 c�i S 330th St: Signalization, left-tum lanes 100,000 140,000 240,000 12 S 288th St C SR 99: Add left-tum lanes l,l 15,300 1,115,300 13 S 312th St 14th Ave S: Signalization I80,000 180,000 14 SR 99: S 324th St S 340th St: Construct HOV lanes 950,000 10,722,000 11,672,000 IS S 336th St cr Weyerhaeuser Way S: Realign intersection 648,700 648,700 16 S 320th St c�i Ist Ave S: Add 2nd left-tum lanes WB and NB 1,739,000 1,739,000 17 SR 99: S 284th St SR 509: Construct HOV lanes 960,000 8,672,000 9,632,000 Revised December t998 VI-14 Federal Way Comprehensive Ptan Capital Facilities MAP ID CAPITAL PROJECT LIST 1998 1999 ZO00 ZOOI 200I 2003 2004 TOTAL 1 S S 356th St: Ist Ave S- SR 99: W iden to 5 lanes 400,000 6,805,000 7,205,000 19 S 320th St u 20th Ave S: Add NB right-turn lane, 2nd WB left-tum lane 1,358,000 1,358,000 20 S 320th St 23rd Ave S: Add 2nd left-tum lanes on 320th 3,900,000 3,900,000 21 S 348th St: 9th Ave S- SR 99: Add HOV lanes, EB right-tum lane at SR 99 3,096,000 3,096,000 **22 21st Ave SW/SW 357th St: SW 356th St 22nd Ave SW: Extend 2-lane collector 750,000 750,000 '•23 SW 312th St: lst Ave S- SR 509: Widen to 3 lanes 3,775,000 3,775,000 SUBTOTAL CAPITAL PROJECTS 6,992,700 6,780,600 10,136,400 9,050,300 10,722,000 10,712,7011 14,186,000 68,580,700 MAP ID NON-MOTORIZED CAPITAL PROJECT LIST 1998 1999 2000 2001 2002 2003 2004 TOTAL "24 BPA Trail Phase 111: SW Campus Dr SW 256th St: Extend trail 375,000 164,000 1,408,000 1,947,000 25 SW 312th St: SW Dash Pt Rd Ist Ave S: Shoulder improvement 60,000 60,000 26 Weyerhaeuser Way S: S 320th ST S 349th St: Shoulder improvement 652,700 652,700 SUBTOTAL NON-MOTORIZED CAPITAL PROJECTS 435,000 164,000 0 1,481,400 0 652 ,700 2,444,000 2,977,500 TOTAL CITY EXPENDITURES 7�427,7011 6,944�600 10�136,400 10�458�300 10�722,000 11,365�400 1,418 ,600 71 •Projects identified in the 1995 SlreeVTraffic Bond issue. These projects were selected to address safety and congestion in various parts of the City for a total of 57.5 million. •'Delete from the TIP to derive Arterial Street Improvement Wan (ASIP). Note: Projecl costs are inFlated at 3% per year. Revised December 1998 VI-15 Puget Sound • 06 CITY OF FEDERAL WAY COMPREHENSIVE PLAN ADOPTED FUNCTIONAL CLASSIFICATIONS OF STREETS AND HIGHWAYS CAPITAL FACILITIES ELEMENT Legend �•`•� Federal Way City Limits . • • ' Potential Annexation Area i r ICI Freeway ♦• ; t ^� Principal Arterial ` Minor Arterial _ Principal Collector • �� Minor Collector 1E Is i V SCALE -- 1 Inch equals 5,800 Feet • • • 4"W IM '*W mr4F: ' 1— G MAP VI -5 Federal Way Comprehensive Plan Capital Facilities Locations and Capacities of Future Facilities The TIP is a prioritized list of capital projects that have been identified for the period 1998 through 2004. The projects have been identified by location, with the project costs indicated by anticipated year of expendi- ture (for multi-year projects). Financing Plan Pages III-94 to III-109 of the Transportation chapter describes the City's adopted TIP, including the revenue sources and project costs. munity Resources. Field Operations includes Patrol and Traffic. The department's 122 employees are supplemented by more that 30 community volunteers who provide a wide range of services, reducing the city's costs while involving community members in the department's day to day operations. 6.4 POLICE SERVICES In May, 1995, the Federal Way City Council voted to end the police services contract with the King County Sheriffs Department and to establish its own city police department at the end of the contract period in November, 1996. The City's management and staff immediately began planning and transitional process to implement the Council's decision. With a staffing model, rank structure, vision and values statement, and transitional budget established, the City hired a police chief in January, 1996, followed with the hiring of employees to fill other allocated positions. Full staffing of 93 officers and 29 non- sworn positions was achieved in July, 1997. The formation of a new department was accomplished within the allocated transition budget and the newly formed department began traffic enforcement and records and evidence management on September 16, 1996. The new department assumed responsibility for all police services including patrol and criminal investigations on October 16, 1996. The department consists of two divisions, Support Services and Field Operations. Support Services includes Administration, Records, Crime Prevention, Property Evidence, Criminal Investigations, and Com- The capital plan for the Public Safety Program con- tains the preliminary facility and equipment needs, and funding sources in the delivery of Federal Way's police service. Table VI-6 summarizes this plan. The City is currently contracting for jail and court with King County and emergency communication services with Valley Communications Center. There are possi- bilities that the City may start its own municipal court and/or emergency communications center during the six year planning horizon. Should the City Council decide to make such changes, a companion funding plan will need to be established. A total of $4.5 million was set aside from the General Fund between 1994 and 1996 to provide funding for the various operating equipment, hardware/software, and personnel transitions. At the end of 1997, with the transition substantially complete, all major equipment and software are in place and the budget has $305,000 remaining. The transition budget did not include funding for a new facility. The City assumed the lease from King County and continued operation at the same location. In 1998, the City Council allocated the remaining balance from the start up fund to the pro- posed new facility. Facilities In 1997, the City Council approved a$16.15 million bond issue for various projects, including $4.5 million for a public safety building. As we are near the eve of the second anniversary of the operation, the new department has become familiar with the community expectations, service consumption, and department operations. However, it�is recognized that the service programs and the department staffing level are still evolving and the facility needs today may not meet the needs five years from now. Therefore, City staff rec- ommends that the design and planning of the public safety facility be delayed by three to five years. Revised December 1998 VI-17 Federa�Comprehensive Plan Capital Facilities Table VI-6 Summary of Six-Year Capital Plan Six-Year Projection Prior Year Current Six-Year Item (0000mitted� Balance 1998 �999 2000 2001 2002 2003 2ppq Total BEGINNING BALANCE 55,109 55,620 $6,347 $7,106 57,000 $5,560 52,465 $5,620 Sources Department Startup Balance $305 Department Capital General Fund Operating) $222 $45 $10 $45 $10 $110 Replacement Reserve' $304 $436 5476 $482 5490 $515 5540 $574 $3,076 1997 Bond Proceeds for Public Safety Building $4,500 Interest&Miscellaneous $75 5281 5317 $355 $350 $278 $123 $1,705 Sources $5,109 5733 5757 5799 5890 5875 $863 5707 54,891 TOTAL FUNDING SOURCES $5,109 55,842 56,377 S7,146 $7,996 57,875 56,423 $3,172 $10,511 Proposed Facility Public Safety Building 5250 $2,000 $3,500 $250 $6,000 Equipment New Patrol Vehicle w/MDT (Four in 1998) 5160 $35 S35 $705 Replacement Vehicles' $62l $180 $288 $180 $1,269 New DP/Com HwdSwdEquipment $62 S10 SIO S10 $10 $40 Replacement DP/Com FUSw/Equipment' $30 $40 $80 $125 $125 $125 $525 County Wide 800 MFIZ Eq. ReplacementZ 5400 $400 Total PS Capital Needs 5222 $30 $40 S996 52,315 53,958 5965 58,304 ENDING BALANCE 55,109 55,620 56,347 S7,106 57,000 S5,560 52,465 $2,207 $2,207 I. City policy requires the replacement of operating equipment be funded within a department's operating budget regardless if the equipment is acquired through purchase, lease, grant, or other giR. Amount s6own represents the estimated annual replacement reserve contributions from the Public Safety budget. 2. The County wide 800 MHZ equipment was financed through a three-year countywide property tax levy. The implementation plan called for the systems replacement after 10 years from implementation (2004), to be funded through a replacement reserve collected through a user fee, and each city is responsible for Ihe replacement of its own equipment (radio, etc.). Revised December 1998 VI-18 Federal Way Comprehensive Plan Capital Facilities Equipment The City's fiscal policy requires replacement reserves approximating the replacement cost established for operation equipment. This policy covers office equip- ment, vehicles, telephone systems, and computer hard- ware and software (when it is valued at more than $1,000, has more than two yeazs of useful life, and will require replacement after its initial useful life). The requirement appties to all equipment regardless if it is acquired through purchase, lease, donation, or grant. The annual replacement reserve budgeted in the Public Safety Department as part of its operating cost is approximately $436,000 in 1998, and $470,000 in 1999. The City expects the reserve will substantially meet the needs of the department's future equipment replacement. New equipment and software needs will be evaluated and funded within the City's operating budget. 6.5 SCHOOL FACILITIES This section summarizes information in the Federal Way School District No. 210, 1997/98 Capital Facili- ties 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 Way, portions of the incorporated City of Kent, City of Des Moines, and unincorporated areas of King County to the east of Interstate 5. The District pro- vides educational programs to all students who live in the School District service area, whether they live in Federal Way, Kent, Des Moines, 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 VI-6 shows the location of every school in the District. Table YI-7 summarizes the District's student capacity. At this time, the District has sufficient capa- city 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 "pro- gram 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-7 of Existin� Facilities CAPACITY Elementary School Junior High Senior High TOTAL hese cauacities are for bu 1997 Actual 1998 11,202 11,176 4,721 4,�21 3,905 3,905 19,828 I 9,802 i do not include oortable classroon 1999 Z000 11,150 11,124 4,721 4,721 3,905 3,905 19,776 19,750 capacities are based on th u 2001 2002 2003 11,098 11,582 11,582 4,721 4,721 4,721 4,005 4,005 4,005 19,824 20,308 20,308 imum use of the buildings. Revised December 1998 VI-19 3a W O W Z LL. o �o VU J 0 0 r N Q Q W IJ. e W w W a a U �3 U c a� t� ffi a N 8 b v i E c W 1 Q V 0 .s s o �g E H Ed N .w. S'i a� Z� Federal Way Comprehensive Plan Capital Facilities "Program Capacity" assumes that the average class will serve the following numbers of students: Grade K 24 Students per classroom Grades 1-6 27 Students per ciassroom Grades 7-12 25 Students per classroom GATE* 25 Students per classroom Special Education 12 Students per classroom Portables 25 Students per classroom IEP** 15 Students per classroom GATE is the Gifted and Talented Education program IEP are the Individual Education Programs The School District uses portables at many school sites as an interim measure to house new students until permanent facilities can be built. There are other administrative measures that the School District could use to increase school capacity. These measures may include double shifting, modified school calendar, and year-round schooling. These measures have been used in the District on a 1'rmited basis, but not District wide. Forecast of Future Needs Student Forecasts The School District has a relatively sophisticated methodology for forecasting student population increases. The methodology has historically projected student population increases with a 98 percent rate of accuracy based on the following variables: Students transferring in from other schools. Students remaining in their current grade. Table VI-8 describes increased enrollment through the year 2003. It shows that the School District's student population will grow steadily every year with the highest growth in elementary schools. The District has compared existing school capacity with growth forecasts. The deficit in permanent capa- city will be mitigated by additional portable purchases for the next six years. The District is planning to add one elementary school and increase the capacity at Harry S. Truman High School with modernization. In addition, the District is currently executing a Study and Survey of all facilities. This Study and Survey will provide direction for long range planning of future facilities to achieve the objectives of the Dis- trict Learning Plan and anticipated increases in student population. Location and Capacity of New and Improved School Facilities One new elementary school and one senior high school expansion are planned for the District over the next six years. Scheduled improvements are: Harry S. Truman High School (Modernization and Expansion) 31455 28th Avenue South Elementary #24, site to be determined Number of housing units in the District. Existing schools are identified in Map YI-6. Students moving from one grade to another. Table VI-8 Federal Way School District Student Forecast ENROLLMENT (FTE) Elementary Junior High Senior High TOTAL ACTUAL 1997 1 5,144 4,372 Z0,615 1998 1 5,040 4,607 20,976 1999 1 5,014 4,762 21.321 2000 1 5,077 4,862 21,641 2001 11,778 5,299 4,763 2I,840 2002 11,847 5,533 4,739 22, l 19 2003 12,046 5,554 4,805 22,405 Revised December 1998 V1"21 Federal Way Comprehensive Plan Capital Facilities Finance Plan Table YI-9 describes the School District's six year finance plan to support the school construction. The table identifies $12,714,303 available from secure funding sources and an additional $22,095,133 antici- pated from other funding sources between 1998 and 2003. These funds will cover the $29,596,891 in planned project costs to the year 2003. 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 used on addi- tional capital fund projects. The School Plan currently covers the years 1998-2003. The School Plan and accompanying six year finance plan will be updated annually by the School District. This will bring the plan into full compliance with GMA requirements. 6.7 WATER SYSTEMS This section summarizes the Lakehaven Utility Dis- trict's 1991 Comprehensive Water System Plan while providing up-to-date information where warranted. Map VI-7 shows the District's water service area boundary. Other purveyors provide water to portions of the District. The City of Tacoma, for example, serves an area on the west side of the District. High- line Water District serves a small portion of the Dis- trict on the north side. The City of Milton serves a small area on the south side of the District that is within the City of Milton limits. Areas on the east side of I-5 within the City limits of Auburn and Pacific receive water from the District by agreement with the cities. These areas are at a higher elevation than the valley cities can cost effectively serve. The District is nearing completion of a major update of the plan that should be completed in 1998. The 1991 Plan, and any future amendments, are incorporated into this Plan by reference. Inventory of Existing Facilities The District's wells, storage, and major components of the distribution system are located on Map YI-8. Other facilities are described in the following sections. Interties Interties connect Lakehaven's system with adjoining systems of other utilities. Interties allow the District to buy or sell water with adjoining utilities and are an essential back-up which provide enhanced system reliability. Interties have been installed at seven different locations with three of the adjacent water purveyors. Not all interties allow two-way flow. Details of these interties are described below: An intertie is installed on SW 325th Street near 35th Avenue SW between the District and the City of Tacoma system and serves as an emergency supply to Tacoma. An intertie has been installed on SW 349th Street near 30th Avenue SW between the District and the City of Tacoma system. This intertie was enhan- ced in 1991 by the construction of a control valve station to allow full-time supply by Tacoma to the District's system. A third intertie with the City of Tacoma was added at 15th Avenue SW and SW 356th Street to provide an additional full-time supply by Tacoma to the District's system. One intertie, located on Pacific Highway South at South 276th Street extended, has been installed between Lakehaven and Highline Water District. This intertie can provide emergency water to the Highline District. An intertie between Highline Water District and the Lakehaven system is installed at Pacific High- way South at about South 274th Street. This inter- tie can flow in either direction since the systems on both sides of the intertie operate at a 490 foot system head. Revised December 1998 V1_2Y a 3a W �W LL W �a �a a W Za W a> W W J z w w w W Q Q cts Q o E c m c o o x m U a� y C V a (n �ia�3 i �L d d c$ d Q N r 0 d 1 a a V i 0 0 d �s 0 N yN O E y Q i0 N Z� 6 A Q� 3a w W C �W LL� O U H Z W Z J a O W Q O Q W W W a Q U 0 =a'z'= E c a� c�n J X U a� C �d td .v a�i �S�' a o '�i i y �i W N tn O N Q Y Q V a. W m y cu a Q� �ao$��o ��1 ap�i0 d m t^ W d 7 t m L v 0 C N 1 a Q C d� �,L N a� e� Q� E N �i d E° z� 0 I Federal Way Comprehensive Ptan Capital Facilities SECURED FUNDING SOURCES Impact Fees (1) Land Sale Funds (2) State Match Funds (3) TOTAL Table VI-9 School Funding Plan 1998 1999 2000 2001 $700,000 $23,754 $2,225,000 $1,791,832 $788,028 $250,000 $68,191 $4,950,600 $1,105,000 $811,898 $7,175,600 53,596,832 �1,623,680 $250,000 568,191 2002 I 2003 TOTAL 55,123,051 $6,687,498 $12,714,303 UNSECURED FUNDING SOURCES 1998 1999 2000 2001 2002 2003 TOTAL State Match Funds (6) $4,800,000 $4,800,000 Bond or Levy Funds (4) $15,000,000 �15,000,000 Land Fund Sales (7) $1,000,000 $I,000,000 Impact Fees (5) $1,295,133 $1,295,133 TOTAL 522,095,133 522,095,133 NEW $CHOOLS 1998 1999 2000 2001 2002 2003 TOTAL New Elementary Site (i l) $600,000 $600,000 New Elementary School (t�24) $6,300,000 54,200,000 510,500,000 MODERNIZATIONS Truman Senior High (alternative) $50,523 $3,233,680 $2,155,787 $5,389,467 TEMPORARY FACILITIES Portables (8) $1,222,624 $623,680 $561,312 $2,307,616 Federal Way Academy (10) $374,208 $374,208 OTHER Safety Improvemenu (9) $4,825,600 $4,825,6� Technology System Improvements Library System $500,000 $650,000 $650,000 $1,800,000 Technology System Improvements MIS Project $1,600,000 $600,000 $100,000 $2,300,000 Facilities Department $250,000 $250,000 $250,000 $250,000 $250,000 $250,000 �1,500,000 TOTAL $7,175,600 $3,596,832 $1,623,680 $250,000 $1Q344,992 $6,605,787 $29,596,891 Nota: I) These fees are cwrently being held in a King County and City of Federal Way impact fee account, and will be available for use by the Disvict for system improvemmts. 2) These funds come from various sales of land and are set aside for estimated expenditures. 3) Guaranteed State match reimbursements. 4) These funds, if secured, will be used for modernirrtion of schools. 5) 7'hese are projected fees based upon known residential development in the District over the next six years. 6) These funds are projected state matching funds. 7) These funds are projected land sale income. 8) These fees represent the cost of purchasing and siting new portables. 9) These projects have been approved by the Board of Directors and cover most schools. These projects do not increase capacity. 10) Federal Way Academy is a junior high program that will increase capacity at one junior high site. 11) This site is larger than 10 acres. Revised December 1998 VI-25 Federal Way Comprehensive Plan Capital Facilities An intertie is installed on Marine View Drive near the boundary between Highline Water District and the Lakehaven system at South 252nd Street. This intertie can provide emergency water to the High- line District. One connection facility is proposed in the vicinity of Military Road and the Bonneville Administration Power Line. The second connection facility would be located at the Well No. 19 site. These facilities together would add from 4.62 to 5.87 million gallons per day (mgd) to the District's supply depending on the final contracted allocation. It should be noted however, water available from the Second Supply Pipeline is conditioned upon adequate in-stream flows which the expansion of storage behind Howard Han- sen Dam will provide. An intertie has also been constructed with the City of Milton's water system, but due to significant differences in head between the two systems (450 feet, LUD vs. 330 feet, Milton), water is only pro- vided to Milton on an emergency basis. The City should carefully monitor progress on all of these projects, to ensure that water will be available to meet future needs as identified in this Plan. Forecast of Future Needs The 1991 Water System Plan estimates future need by analyzing existing water consumption patterns on a daily, seasonal, and yearly basis. The District converts gross water consumption values into per capita con- sumption in gallons per day. Average per capita water consumption in the District was projected to be approximately 114 gallons per day in 1993 and 1994. This figure multiplied by projected population growth, provides a rough estimate of the future demand for water. These numbers were reduced slightly to account for the reduction in water consumption associated with the District's water conservation program. The Plan assumed a three percent annual growth rate through 1995 and a two percent rate through 2000. Location of Expanded And Improved Facilities The District has programmed a number of system improvements to maintain the existing system, con- serve water, develop water sources, drill wells, add storage, and expand distribution. These improvements are summarized below. Second Supply Pipeline The District is currently involved in developing other sources of water. The most significant effort is the Second Supply Pipeline (formerly called Pipeline 5). Based on the 1994 pipeline construction schedule, the District would access the pipeline at two locations. Wells The District currently has sufficient well capacity to accommodate peak water demands for future growth through the near-term. The answer to future water demand is not merely through drilling more wells. Additional wells are needed to meet summer peak demands. It is well documented, however, that the existing wells have the pumping capacity to produce more water than is available from local aquifers. Therefore, the District is planning several projects to increase supplies from outside the District, thereby allowing local aquifers to recharge and increase recovery during the peak sum- mer season. Source Treatment The 1991 Water System Plan identifies a potential need for water treatment in the near future. The decision to provide treatment will depend to some extent on legal interpretation of Federal and State drinking water laws. A more important concern relates to adding chlorine to the drinking water. The addition of chlorine to the existing well water will precipitate iron/manganese from the water and cause staining of fixtures and clothes if the iron/manganese concentration is not reduced before chlorination. A treatment strategy would probably provide for removal of iron and Revised December 1998 VI-26 Federal Way Comprehensive Plan Capital Facilities manganese compounds together with disinfection by chlorine. The District will be providing corrosion control, disinfection, and sequestering of iron and manganese at all of its water sources. In the event wells containing iron/manganese above Federal limits are needed for future supply needs, treatment wili be provided at those sources. Storage Improvements According to the 1991 Water System Plan, storage is adequate at this time. Calculations show that the 538 pressure zone will likely require additional storage in the next few years to meet future needs. The DistricYs updated water system plan will determine when and where this new storage should be located. Water Conservation Measures T'he District is committed to implementing aggressive water conservation measures to reduce per capita water consumption. These include programs such as public information campaigns, rate adjustments to reduce summer and peak day consumption, and every third- day lawn watering calendars. At present, the conservation program is voluntary, but certain manda- tory curtailment measure may be implemented in the future if extreme conditions warrant such measures. The District will also work with the City to introduce water conservation measures by amending the zoning and building codes. These measures could include a requirement for low flow showerheads and toilets, landscaping with reduced irrigation needs, and use of reclaimed water for irrigation. Finance Plan The District has identified several significant capital improvement projects in its water systems plan. The general description and scheduling of these projects is included in the Lakehaven Utility District's Capital Improvement Program for the years 1998- 2007 (Tab1e Y1-10). The District has approximately $37 million in the bank to be utilized for Capital Projects and Operations. In addition to this money, the District has depreciation, interest income, assessment income, and connection charge monies that it can utilize for funding their Capital Improvement Plan (CIP). Addi- tionally, the District can borrow money or increase rates, if necessary, to best meet the needs of its custo- mers. The District has utilized a very conservative approach in budgeting for the CIP by utilizing the growth projections utilized by each of the jurisdictions located within the District, even though growth over the past six years has been significantly below what has been planned for (actual growth in connections has been about one percent per year). If growth con- tinues as it has over the past six years, some projects identified in the CIP may not need to be built as scheduled. 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. 6.8 SEWER SYSTEMS The existing Wastewater Comprehensive Plan was originally adopted in 1983. Since being adopted, the Plan has been amended on numerous occasions. The last amendment was approved by King County early in 1990. The Lakehaven Utility District has begun a major update of the Plan that should be completed by the end of 1998. The 1983 Plan, and any future amend- ments, are incorporated into this Plan by reference. The Lakehaven Utility District serves an area that includes the unincorporated areas east and north of the existing City limits of Federal Way. Map VI-9 shows the District's sewer service area. Inventory of Existing Facilities The sanitary sewer system is comprised of three major components; the trunk collection system, the pump station system, and the treatment plants. The trunk system collects wastewater from drainage basins and conveys it to the treatment plant primarily by gravity flow. In areas where using gravity flow is not possible, Revised December 1998 VI-27 Federal Way Comprehensive Plan Capital Facilities Table VI-10 Lakehaven Utility District 1998-2007 Capital Improvements Projects Summary Water Department (in $000's) Pre 1998 1999 2000 2001 2002 2003 2007 TOTAL PROJECT TITLE 1998 Budget Est. Est. Est. Est Est PROJEC'1' COSTS SOURCE OF SUPPLY ASR Testing 163.5 163.5 327.0 OASIS I,100.0 1,090.0 1710.0 2,900.0 Source Water Treatment Well 19A 32.5 1.0 892.0 514.0 300.0 1,739.5 Source Water Treatment Well 9 17.0 66.0 604.0 13.0 700.0 Well IS/15A Electrical Upgrades 3.4 150.0 153.4 Well 16 Upgrade 25.0 25.0 Well 18 Electrical Upgrade 90.0 90.0 Well 25 Chlorination Station 90A 90.0 Well 29 Site Development Ph 1[I 110.1 967.0 459.0 1,536.1 TOTAL SOURCE OF SUPPLY 163.0 1,312.5 2,358.5 1,627.0 1,390.0 710.0 0.0 7 MAINS Aubum Intercie 41.9 1465.3 582.1 2,089.3 23rd Ave S Water Main Relocation 3.3 16.5 194.8 30.4 245.0 Military Rd S Water Main Relocation 10.0 1.5 11.5 S 312th St Water Main Relocation 33.6 374.7 30.2 438.5 S 356th Water Main Relocation Ph II 5.0 S.0 490.0 500.0 SW 356th St Water Main Relocation 183.4 30.0 213.4 1998 Federa� Comprehensive Plan Capital Facilities Pre 1998 1999 2000 2001 2002 2003-2007 TOTAL PROJECT TITLE 1998 Budget Est. Est. Es� Est Est PROJECT COSTS S 304th SdMilitary Rd W.M. Relocation 1.0 86.5 87 SR161 W.M. Relocation: 360th-384th 90.0 935.0 1,025.0 295th l2th Ave SW W.M. Replacement 95.0 95.0 35th Ave S 344th St Replacement 90.0 90.0 Redondo W WTP Water Main Replacement 50.0 50.0 S 344th/345th St Water Main Replacement 350.0 350.0 18th PI S Water Main Replacement 90.0 90.0 WD 56 ULID #3 Replacement 61.9 8.7 704.9 80A 855.5 S 334th 18th Ave Water Main Tie 40.0 40.0 SeaTac Mall Tie 100.0 100.0 S 344th, I lth Ave to Pac Hwy S W.M. Ext 160.0 160.0 12'� PI SW 304'" Transmission Main Ext. 20.7 0.5 514.8 64.0 600.0 16'" SW and SW 304`" Transmission Ext. 220.0 220.0 Seattle Intertie 130.0 970.0 1.100.0 Pipeline 5 Construction Contribution 1,800.0 1,800.0 9,000.0 12,600.0 Oversizing Payments 55.0 50.0 50.0 50.0 50.0 50.0 250.0 555.0 Distribution Improvements 300.0 900.0 1,000.0 1,100.0 7,000.0 10,300.0 Future Relocations/Roads 200.0 600.0 650.0 700.0 4,250.0 6,400.0 TOTAL MAINS 410.8 2,873.7 3,294.7 2,694.4 4,210.0 3,650.0 21.082.1 38,215.7 Revised December 1998 VI-29 Federal Way Comprehensive Plan Capital Facilities Pre 1998 1999 2000 20(Il 2002 2003 2007 TOTAL PROJECT TITLE 1998 Budget Est. Est. Est. Est Est PROJECT COSTS PUMPING 337th Booster Electrical Upgrade 90.0 90.0 Telemetry System Upgrade 235.0 45.7 30.7 30.7 30.7 30.7 403.5 Pump Station Well Upgrades 100.0 200.0 125.0 150.0 1,750.0 2,325.0 TOTAL PUMPING 235.0 135.7 130.7 230.7 155.7 180.7 1,750.0 2,818.5 INTANGIBLES Pipeline 5 Connection 11.6 I.0 108.0 689.8 131.0 941.4 Spoils Disposal Site 13.0 122.0 135.0 Corrosion Control Feasibility Study 126.9 31.4 158.3 Enhanced Natural Aquifer Recharge 2.8 50.0 300.0 200.0 50.0 200.0 550.0 1,352.8 Future Water Complan Updates 280.8 280.8 Lakehaven Utility District Water Complan 182.0 230.0 80.0 492.0 Administration Building Remodel 50.0 175.0 225.0 M1S Projects 27.0 1 I5.0 142.0 TOTAL OTHER INTANGIBLES 413.3 724.4 488.0 889.8 181.0 200.0 830.8 3,7Z7.3 REPAI R/REHABI LITATION Repair/Rehab Reserve 500.0 500.0 1,000.0 1,100.0 1,200.0 7,500.0 11,800.0 TOTAL REPAINREHAB O.O 500.0 5011.0 1,000.0 1,100.0 1,200.0 7,500.0 11,800.0 TOTAL WATER CIP 1,222.1 5,546.3 6,771.9 6,441.9 7,036.7 5,940.7 31,162.9 64,122.5 Revised�cember 1998 VI-30 CITY OF FEDERAL WAY COMPREHENSIVE PLAN LAKEHAVEN SEWER SERVICE AREA AND BASINS CaPITAL FACILITIES ELEMENT Legend: i�•,' Federal Way City Limits Poter�tial Annexation Area Lakehaven District Boundary Lakehaven Sewer Service Area Lakehaven Sewer Basin Areas SCALE 1 Inch equals 4,700 Feet SQurce: Lakehaven Utility District «rr oF G i Y� �Y ti1S DMSIQN MAP VI-9 NOTE: This rttap is intended for use as a graphical onry. The City of Federal Way makes no warranty as to its accuracy prioted December 1997 SI �z o c� m V y T �O' N '��C a y O o� N N w 2 w 0 o Y O Q 1 0 m 0 s d' v �D t m� ya V V T o�a m m r 3 I Q I v� r r r m a m w n m m v o' ;�D� cn a m m m a Orn nrn O �i C 'Q O r- rn� a �o rn� 2 �m C Federal Way Comprehensive Plan Capital Facilities pump stations and force mains are used to pump the sewage to a location where gravity flow can be used. Map VI-10 describes the location of these components of the sanitary sewer system. The District currently has the capacity in all the major components of the system to accommodate the existing demand for service. Forecast of Future Needs The District estimates that during the non-irrigation months (typically November through March), domes- tic sewage flows are normally equal to about 90 per- cent of the domestic water demand. On a household basis, the unit rate has been estimated at 225 gallons per day. It is estimated that commercial land use generates approximately 700 gallons per day per acre of land. When these sewer system use rates are applied to estimates of future commercial land and household counts, the District can calculate the size and location of additions and expansions to the sewer system. Wastewater generation or flow is directly related to ultimate land use. The District does not anticipate any enlargement of the existing treatment plants until well after the year 2001. This assumption is based on the built-out nature of the area served by the Redondo plant and the fact that the Lakota plant is currently operating at less than 40 percent of its designed capacity. Location and Capacities of Future Facilities The District develops a capital improvement projects (CIP) summary as a part of the annual district budget process. This CIP lists individual capital projects for the succeeding l 0 year time frame. The CIP prioritizes the projects according to the system needs. Also included in this list of projects are the ones that are continued from previous years. A list of these capital projects can be found in the District's Capital Improvement Program 1998 2007 (Table VI-11). Finance Plan The District updates its capital improvement program annually as part of the District's budget process. For specific information on the Finance Plan, please refer to the District's most recent capital improvements program for revenue and cost information related to the District's proposed capital projects. The District has approximately $37 million in the bank to be uti- lized for Capital Projects and Operations. In addition to this money, the District has depreciation, interest income, assessment income, and connection charge monies that it can utilize for funding their Capital Improvement Plan (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 utilized by each of the jurisdictions located within the District, even though growth over the past six years has been significantly below what has been planned for (actual growth in connections has been about one percent per year). If growth continues as it has over the past six years, some projects identified in the CIP may not need to be built as scheduled. The District will pro- vide facilities as required to support growth within its serv�ce area. 6.9 FIRE FACILITIES This section summarizes the Federal Way Fire Depart- ment, Long Range Plan (The Fire Plan). The Fire Department provides service to the entire City and surrounding unincorporated area. Services include fire suppression, fire prevention (building inspection and public information), emergency medical, and com- munications center for 91 l emergency calls. The Fire Plan identifies and programs improvements that are necessary to maintain existing service standards and to meet the needs of future residents and businesses. The Department's Fire Plan, and future updates, are adop- ted by reference in this Plan. Revised December 1998 VI-33 Federal Way Comprehensive Plan Capital Facilities Table VI-11 Lakehaven Utility District 1998-2007 Capital Improvements Projects Summary Wastewater Department (in $000's) Pre 1998 1999 2000 2001 2002 2003-2007 TOTAL PROJECT PROJECT TITLE 1998 Budget Est. Est. Est. Est. Est Cos'rs MAINS Weyerhaeuser Sewer Extension 71.0 554.5 108.5 734.0 Oversizing Payments 19.0 50.0 50.0 50.0 50.0 50.0 250.0 519.0 Meredith 2 Siphon Upgrade 66.5 53.I 119.6 Auburn-Redondo Siphon 22.0 238.9 260.5 521.4 I.ower Woodmont Side -(S) 193.2 188.0 361.2 Pump Station 33 Force Main 15.0 I5.0 15.0 I5.0 60.0 TOTAL MAINS 371.7 1099.5 434.0 65.0 65.0 50.0 250.0 2,335.2 PUMPING Pump Station 6 Rehabilitation 60.1 470.1 530.2 Pump Station 22 Detention Vault 28.0 452.0 480.0 Pump Station Fuel Tank Replacement 203.7 30.5 434.2 TOTAL PUMPING 291.8 952.6 0.0 0.0 0.0 0.0 0.0 1,244.4 TREATMENT Redondo WWTP Disinfection Upgrade 8.0 402.1 '734.5 1,144.6 Lakota WWTP Disinfection Upgrade 8.0 423.5 792.5 1,224.0 Lakota Pri. Scum Tank Modification 46.2 42.7 88.9 Stormwater Decant Facility 67.6 14.7 82.3 Federal�Comprehensive Plan Capital Facilities Pre 1998 1999 2000 2001 Z002 2003-2007 TOTAL PROJECT PROJECT TITLE 1998 Budget Est. Est. Est. Est. Est CosTs Water Reuse and Reclamation 4.0 100.3 353.2 452.9 205.3 1,115•7 Composting Facility 17.3 32.4 933.2 913.0 913.0 2,808.9 Redondo Noise Abatement 1.0 9.2 9.3 19.5 Redondo Debris Retaining Wall 32.3 101.9 134.2 Lakota Grit Unit Modifications 60.0 90/0 150.0 TOTAL TREATMENT 70.6 1,243.2 2,970.1 1,365.9 1,118.3 0.0 0.0 6,768.1 OTHER INTANGIBLES Sewer Comp Plan Update 94.7 262.0 37.0 264.0 657.7 Main Office Modifications 50.0 175.0 225.0 MIS Projects 27.0 115.0 142.0 PS 35 APU Building Electrical 41.0 85.2 �26•2 Pump Station 9 Access Relocation 75.8 6.5 g2•3 TOTAL OTHER INTANGIBLES 288.5 643.'7 37.0 0.0 0.0 0.0 Z64.0 1,233.2 REPA IR/REHABILITATION Repair/Rehab Reserve (Sewer Const) 400.0 200.0 200.0 200.0 200.0 200.0 I,000.0 2,400.0 TOTAL REPAUt/REHAB 400.0 200.0 200.0 200.0 200.0 200.0 1,000.0 2,400.0 TOTAL SEWER CIP 1,422.6 4,139.0 3,641.1 1,630.9 1,383.3 250.0 1,514.0 13,980.9 Revised December 1998 VI-35 Federal Way Comprehensive Plan Capitai Facilities The Fire Department provides fire suppression service to the entire City. In order to do this, the Department has adopted the following LOS standards: investment in equipment and, in particular, fire engines. The Department's fire stations are shown on Map VI-11. An emergency response time of less than six minutes, 80 percent of the time. Each emergency response should include a min- imum of one fire fighting vehicle and three fully- equipped and fully-trained crew members. The Fire Department provides a full building inspection service for fire code compliance. The Department is currently providing service which 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 to ensure that adequate fire flow is always available. The Water System Plan analyzes "fire flow" and programs improvements to the water system to ensure that sufficient water is available for fire suppression. Emergency Medical Services Emergency Medical Services (EMS) responds to 911 calls and provides field services. This service is paid for by taxes. Emergency Medical Services are pra vided as a marginal cost to the fire department as fire facilities are utilized to provide this service to the community. Although there are no dedicated facilities planned for provision of EMS, there are three aid cars that are scheduled for replacement in the year 2003 at a projected cost of $336,000. The section on funding (Funding Plan) addresses how 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 Forecast of Future Needs From 1986 through 1992, emergency responses increased at an average annual rafe of over eight percent. In 1990, public education efforts included 911 use/abuse training. The increases in call volume during 1993 and 1994 leveled off with 1994 volume increasing only 1.5 percent from the 1992 level. It is unknown, however, how much, if any, effect the 911 public education effort had on actual call volumes. In 1995 and 1996, calls for service again increased at an average rate of 8.1 percent. Emergency medical inci- dents have increased more rapidly than non-medical incidents. During the 1990's, 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 During 1996 and 1997, annexations by the cities of Des Moines and Kent have impacted the Federal Way Fire Department. The Kent annexation (north of 272nd and east of Pacific Highway South) will cost the Department an estimated $275,000 annually. The Des Moines annexation (Woodmont/Redondo) could cost the Department an estimated $500,000 annually, although a contract for services between the Depart- ment and Fire District #26 provides continued funding to the Department in exchange for continued fire pro- tection from the Department for those areas. It is unclear how long this relationship will remain in existence. If either party should give the required 12 month notice to eliminate the contract, District #26 would take ownership of Station #6 (27010 15th Ave- nue South). The Department has purchased property at South 288th and Interstate 5 as a contingency against that possibility. This would accommodate the building Revised December 1998 VI-36 CITY OF FEDERAL WAY COMPREHENSIVE PLAN i CAPITAL FACILITIES ELEMENT F�feral Way City Limits Potential Annexabon Area N �re Department Boundary FEDERAL WAY FIRE DEPARTMENT #39 Existing Fire Station Locations Proposed Fire Station Locations �SCALE— 1 Inch equels 4,500 Feet nrror G 019 DIVIlION MAP VI-11 NOTE: This map fs inten�d 1or use as a q�aphical represeMation ony. The City of Federal Way m�lces no warrarriy as to its aocuracy DeoemDer 1997 Federal Way Comprehensive Plan Capital Facilities of a new station that is more centrally located in the north end of the City. This realignment of stations, response areas and revenues wouid require closure of Station #5 (4966 South 298th). Second, the Department may have need for an additional station in the south end of the City in the vicinity of 356th and Pacific Highway. If this area continues to experience significant commercial growth, the Departrnent anticipates that the calls for service will also continue to grow. In this eventuality, an additional sta.tion may be needed to maintain accep- table response times. The Department has acquired property in this area through a swap of properties with Lakehaven Utility District to assure future availability of a station site. Any new station should be able to accommodate an on-duty crew of three fire fighters, with appropriate living and sleeping quarters. In addition, the structure should be able to house two engines and an aid car, with room for growth dictated by LOS demands. It may also be appropriate to provide a public meeting room and an office for community policing in new facilities. The cost of these facilities is approximately $I,500,000. Equipment would be in the range of $500,000 for a new station in the south end. Equip- ment for a new station in the north end would be provided from the closures of Stations 5& 6. Funding Plan The Fire Department has established a capital reserve fund for the systematic replacement of all capital equipment. These reserves are funded from the annual revenues of the Department. The Department also has established a goal of a minimum of three paid fire fighters on each fire apparatus. Additional staffthat are hired in support of that goal will be funded from new construction 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. This plan adopts by reference the Depart- ment's Fire Master Plan as well as the annual capital improvements program update. 6.10 GOALS AND POLICIES The goals and policies in this section implement the State's Growth Management Act requirements and the CWPP's. 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 which 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 Federal Way Comprehensive Plan by coordinating urban services, 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 City's Comprehensive Plan. CFP2 Support and encourage joint development and use of community facilities with other govem- mental or community organizations in areas of mutual concern and benefit. CFP3 Emphasize capital improvement projects which promote the conservation, preserva- tion, redevelopment, or revitalization of commercial, industrial, and residential areas in Federal Way. Revised December 1998 VI-38 Federal Way Comprehensive Plan Capital Facilities CFP4 Adopt by reference all facilities plans and future amendments prepared by other special districts which provide services within the City. These plans must be consistent with the Comprehensive Plan. correct existing capital facilities deficiencies, encourage full utilization of existing facili- ties, or replace worn out or obsolete facilities. CFP12 Give priority to projects where leveraged monies such as grants and low interest loans CFPS Adopt by reference the annual update of the can be used. Federal Way Capital Improvement Program for parks/recreation, surface water manage- Goal ment, and the 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. CFP13 Provide capital facilities to serve and direct future growth within Federal Way and its Potential Annexation Area as they urbcmize. It is crucial to identify, in advance of development, sites for schools, parks, fire and police stations, major storm water facilities, greenbelts, open space, and road connections. Acquisition of sites for these facili- ties 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 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. CFP13 Provide the capital facilities needed to serve the future growth anticipated by the Compre- hensive Plan. CFP14 Give priority consideration to projects needed to meet concurrency requirements for growth management. Policies CFP8 Give priority consideration to projects man- dated 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. CFPlI Give priority consideration to projects that CFP15 Plan and coordinate the location of public facilities and utilities in advance of need. CFP16 Implement a concurrency management sys- tem for which permits project approval only after a finding is made that there is capacity available in the transporta-tion system sufficient to maintain the adopted level of service standard. CFP17 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 Revised December 1998 VI-39 Federal Way Comprehensive Plan Capital Facilities �J extensions while ensuring the protection and preservation of resources. strategies and policies are consistent with all the other Comprehensive Plan elements. CFP18 Coordinate future economic activity with planning for public facilities and services. CFP19 Purchase property in the Potential Annexation Area and keep it in reserve for future City parks and surface water facilities. Goal CFPG4 Provide adequate funding for capital facilities in Federal Way to ensure the Comprehensive Plan 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 bal- ancing the capital facilities budget: increase revenues, decrease level of service standards, decrease the cost of the facilities, decrease the demand for the public service, and reduce the rate of growth and new development. Policies CFP20 Manage the City of Federal Way's fiscal resources to support providing needed capital improvements. Ensure a balanced approach to allocating financial resources between: (1) major maintenance of existing facilities; (2) eliminating existing capital facility deficien- cies; and (3) providing new or expanding existing facilities to serve new growth. CFP21 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. CFP22 Ensure that long term capital financing CFP23 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 implemen- ted in the near term is an impact fee program for parks, and CFP24 Promote a more efficient use of all public facilities by enacting interlocal agreements which facilitate joint maintenance and opera- tions of those facilities. CFP25 Use the following available contingency strategies should the City be faced with capital facility funding shortfalls: Increase revenues by selling general obli- gation bonds, enacting utility taxes, im- posing 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 chang- ing or modifying the scope of the project. Decrease the demand for the service or facilities by establishing a moratorium on development, focus development into areas where facility capacity is available, or changing project timing and/or phasing. CFP26 Aggressively pursue grants or private funds when available to finance capital facility projects. CFP27 Maximize the usefulness of bond funds by using these monies to the greatest extent possible as matching funds for grants. Goal CFPGS Ensure that the Federal Way Capital Facili- ties Plan is current and responsive to the community vision and goals. Revised December 1998 VI-40 Federal Way Comprehensive Plan Capital Facilities The role of monitoring and evaluation is vital to the effectiveness of any planning program and particu- larly 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 fis- cal resources are available to provide public facilities needed to support adopted LOS standards. CFP29 Review, update, and amend the Capital Facilities Plan annually. Respond to changes in the rates of growth, new development trends, and changing City priorities, budget, and financial considerations. Make provisions to reassess the Comprehen- sive Plan periodically in light of the evolving Capital Facilities Plan. Take appropriate action to ensure internal consistency of the chapters in the plan. Policies CFP28 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 pra gress with respect to trends in the rate and distribution of growth, impacts upon service quality, and Comprehensive Plan direction. CFP30 Continue to coordinate with other capital facility and service providers to ensure that all necessary services and facilities are pro- vided prior to or concurrent with new growth and development. Revised December 1998 VI-41 A � � � � .+ W � � �, ' I ' , -�- � I ' � , � � � � I i � . �, i _. I I � � � j , _ � i' �I From Vi�io� to Pian Federal Way Comprehensive Plan City Center 7.0 INTRODUCTION ederal Way's City Center Plan presents con- cepts and strategies for creating a definable and vibrant "City Center" for Federal Way and an "urban center" for Southwest King County. The plan integrates the community's vision for a City Center with the Puget Sound Regional Council's (PSRC) adopted VISION 2020 plan, and King County's Countywide strategy for developing a network of centers. In this Plan, the term "urban center" is used consistent with the VISION 2020/King County definition, or to refer to the general characteristics of a sub-regional center. The term "City Center" applies specifically to Federal Way's proposed center which includes a City Center core area and frame area. Only the City Center core area is intended to meet the requirements of an urban center. Purposes The principle purposes of the Federat Way City Center Plan are to: Create an identifiable downtown that is the social and economic focus of the City; Strengthen the City as a whole by providing for long-term growth in employment and housing; Promote housing opportunities close to employment; Support development of an extensive regional transportation system; Reduce dependency on automobiles; Consume less land with urban development; Maximize the benefit of public investment in infrastructure and services; Reduce costs of, and time required for permitting; Provide a central gathering place for the community; and Improve the quality of urban design for all developments. Background The VISION 2020 Plan (1995 update), Regional Goal #1 states: "Locate development in urban growth areas to conserve natural resources and enable efficient pra vision of services and facilities. Within urban growth areas, focus growth in compact communities and centers in a manner that uses land efficiently, provides parks and recreation areas, is pedestrian-oriented, and helps strengthen communities. Connect and serve urban communities with an efficient, transit oriented, multi-modal transportation system." King County's Countywide Planning Policies (CWPP's) support this goal by encouraging: Establishment of an urban center that is a vibrant, unique, and attractive place to live and work; E�cient public services including transit; and Responding to local needs and markets for jobs and housing. The CWPP's define urban centers as concentrated, mixed-use areas, a maximum size of 1'/z square miles (960 acres), and oriented around a high capacity tran- sit station. At build-out, the policies envision that the center would contain a minimum of 15,000 jobs within '/z mile of the transit center, 50 employees per gross acre, and an average of 15 households per acre. The urban center policies also call for: Adopting regulations which encourage transit use and discourage the use of single-occupant vehicles; Emphasizing the pedestrian features and promot- ing superior urban design; Providing sufficient public open spaces and rec- reational opportunities; and Uses that provide daytime and nighttime activities. CWPP's recognize that with this growth will come an increased need for infrastructure. The policies, there- fore, indicate that priority will be given to ensure the development of additional transportation and other infrastructure improvements necessary to support new, concentrated growth in urban centers. Revised December 1998 V��-� Federal Way Comprehensive Plan City Center During a series of community workshops, which are described in chapter one, participants helped to develop a"vision" for Federal Way's future. This vision includes the creation of a City Center. With the support of the residential and business community, Federal Way nominated itself to contain an urban center. Nominations were reviewed by the Growth Management Planning Council (GMPC), which con- firmed the Federal Way City Center core azea as an urban center in 1994. The urban center designation will help Federal Way gain access to County funds needed to provide infrastructure as the City Center grows. The Role of the City Center in Federal Way's Future There are several reasons why a definable, vital City Center is an important part of Federal Way's future. These include: Community Support The Federal Way community has made the City Center a significant part of its vision. Participants in community workshops helped to develop a"vision" for Federal Way's future. A keystone of that plan is an attractive, multi-faceted City Center providing the setting for civic features and commercial activities. Economic Development Federal Way's economic development strategy relies on a strong urban center. As discussed in the Economic Development chapter, Federal Way has the opportunity to transform itself from an essentially residential and retail based econ- omy to an emerging, sub-regional economic center with an expanded, more diversified employment base Natural Evolution The development of a more intensive, multi-use urban center is a natural step in Federal Way's evolution. Most new centers start out as bedroom communities. Retail businesses develop first; office and industrial activities next begin to locate at key transportation crossroads, adding jobs and strengthening the employment base. Federal Way has experienced all evolutionary phases, with the exception of one. The final step is achieving a sufficient critical mass in the City Center to produce lively street activity; support specialty business, cultural/entertainment facilities and a high quality hotel; justify the investment for public parks, amen- ities, and improved transportation systems; and create the interactive "synergy" of a true urban center. Federal Way's economic development strategy will add this final essential step in this evolution. Growth Management Developing a City Center is part of a regional strategy to address western Wash- ington's growth management problems. Public policy makers have focused increased attention on issues affecting our quality of life, including urban sprawl and the accompanying reduction of open space, declining housing affordability, and increasing traffic congestion. As stated previously, concentrating future growth within the four county region into a number of centers (rather than a continued pattern of dispersion), linked by an efficient high capacity transit system, is one of the principal goals to manage this growth. 7.1 VISION STATEMENT In the year 2010, the Federal Way City Center has evolved into the cultural, social, and economic center of the City and has fulfilled its role as one of Puget Sound's regional network of urban centers. This role is reinforced by pedestrian-oriented streetscapes; an efficient multi-modal transportation system; liveable and affordable housing; increased retail, service, and office development in a compact area; a network of public spaces and parks; superior urban design; and a safe, essential, and vibrant street life. The City Center is responsive to the needs of its resi- dents. In addition to general services which draw people from outside the region, such as retail, office, and hotel uses, the City Center is the primary com- mercial area providing local goods and services to the surrounding neighborhoods, and to residents and employees within the center area. Revised December 1998 VII-2 Federal Way Comprehensive Plan City Center Private development and City initiated actions have resulted in a balanced transportation network which accommodates automobiles, public transportation, high occupancy vehicles, pedestrians, bicyclists, and integrated parking. Pedestrian and bicycle circulation is emphasized along with other travel modes. The downtown urban fabric includes smaller blocks, lend- ing itself to efficient and pleasant travel. Concentrated development allows a significant number of jobs and residences to be located within close proximity to transit and a High Capacity Transit Station (HCT), thus, reducing dependency on the automobile and improving pedestrian mobility. Direct access to a regional transit system links the City Center to Seattle, Everett, Tacoma, Bellevue, SeaTac International Air- port, and other regional and local destinations. The diversity of housing opportunities has also in- creased and now includes townhomes, condominiums, and medium-high rise apartment buiidings which help to meet a significant portion of the community's housing needs. Residents walk or take transit to shop, work, and recreate. Community facilities and services, public spaces, parks, and trails complement the variety of housing and provide places for residents to come together as a community. A central gathering place for the community, the City Center is where the whole community can congregate and celebrate. Civic and cultural facilities, in addition to a park and open-space system, meet the needs of residents, employees, and visitors. These amenities connect to the Citywide and regional system of open spaces, parks, and trails. Public and private projects contain such design elements as fountains, sculptures, and unique landscaping. The quality of urban design for all developments, including streets, buildings, and landscaping, is high and contributes to an improved quality of life. Public buildings and spaces also set a high standard for design and compatibility with adjoining uses. Goals for the City Center Plan The goals and policies of the City Center Plan are derived from those of the Citywide Comprehensive Plan. The Comprehensive Plan addresses in greater detail the framework of regional plans and legislation which direct planning in Federal Way. It also dis- cusses the basic policies adderssing housing, parks, recreation, and commercial development. This plan builds on these policies, and provides specific recom- mendations and actions necessary to facilitate the development of the City Center. The following goals provide overall direction to policy makers and community members when making choices about growth and development within Federal Way's City Center. Additional goals and policies are located throughout this chapter, providing specific direction on other matters discussed. No set of goals or policies can address all potential issues that may arise in the course of implementing this Plan. There- fore, while these are fundamental to the Plan, they are not sacred and may need to be revised as situations warrant. Goals CCG1 Create an identiftable City Center that serves as the social and economic focus of the City. Defrne a City Center with distinct bound- aries, unique building types, and special features. CCG2 Attract a regional market for high quality o�ce and retail uses which increases employment opportunities, adds to the City's tax base, and establishes Federal Way's City Center as an economic leader in the South King County region. CCG3 Connect the City Center to a convenient regional transit system. Provide service between centers and nearby areas by arr eff cient, transit-oriented, and multi-modal transportation. system. CCG4 Create distinct districts within the City Cen- ter, defining the roles and characteristics of each such district. CCGS Encourage a mix of compatible uses to main- tain a lively, attractive, and safe place to live, work, and visit. Revised December 1998 VII-3 Federal Way Comprehensive Plan City Center CCG6 Focus on improving the existing character and image of the City Center. CCG7 Encourage housing opportunities in mixed residential/commercial settings. Promote housing opportunities close to employment. CCG8 Develop land use patterns whiCh will encour- age less dependency on the single occupant automobile. CCG9 Create an environment oriented to pedes- trians and bicyclists. CCG10 Create an environment that attracts high guality housing, commercial, and office uses. Develop reguirements for buildings, street- scape, and site design. CCG11 Create policies and regulations to reduce the amount of parking that is required. CCG12 Protect and enhance natural features of the area. 7.2 EXISTING CONDITIONS City Center Planning Area The City Center planning area is approximately 414 acres in size and is bounded by South 312th Street, South 324th Street, Interstate 5, and l lth Place and 13th Avenue South (see Maps VII-1 and VII-2). The City Center Core and Frame areas are 209 and 205 acres, respectively. General Image The City Center is not currently an identifiable down- town or urban center. The existing commercial devel- opment within the study area is typical of suburban strip retail and mall development. The dominance of mass retailing has large�y shaped the commercial core. The SeaTac Mall and spinoff retail centers are a regional destination and generate tremendous amounts of physical and economic activity. However, as is the case with most older suburban mall areas, the existing City Center area could be anyplace. It is similar to hundreds of other commercial centers across the country. The businesses do not connect to each other, nor to public and private spaces, residential neighbor- hoods, or civic uses, except by automobile. Develop- ments essentially reflect one pattern: a single story of "light" construction, surrounded by an apron of asphalt. Buildings feature concrete, or concrete block walls, creating austere and "generic" images. Another prevalent image of the area is the vast amount of surface parking. The availability of parking is essential to the current rype of retail found in Federal Way. City Center businesses serve regional as well as Revised December 1998 VII-4 Map VII-1 Vicinity Map Federal Way Comprehensive Plan City Center Map VII-2 Boundaries of City Center Area o �;I i �I�o �a�q�p i ���N o 1�-.�. iQ aj��y a�I� f'""'.:< G� e o. r; •�I� o r�-: n� T 3f2 _S� ��J� o• D� �oR ej� c; noR c.0 r K+�: p'J 'L`�'POOpaq °'p° g S 0 I Qas 9 sr. ,,r ';,r,;�,....,..., f 1 J/ a o; il° U 0 z� rur r A 1 b J b I J I� O ��v m 0 Q (s ��o� nnfl nnnfl ol I 11 OO local markets, and are heavily oriented to access by automobile. Actual building footprints relative to total parcel areas are quite small; the majority of most par- cels are used to provide surface parking. This parking is often underutilized, except during the peak holiday season. The current network of collectors and arterials, and the disjointed over-sized block grids within the exis- ting commercial area, contributes to significant traffic o i �rj i I �I P� "G;;.; o x�a �N I 1I I� U a� sT. u 4� i 1 f Il s 3tsen sT. o o ir �iMi,�s4. j G s �I 1 �zrH sr. j r i. q I o I'.• j��f J 11 i� 4 A i j I, IN s x7TH _S� v� I TK Ir �o I$ �r I t�' a s N 1J I �I^ L jil^ YI 4� i U�iN�� _r��' y� l i I�"� i j� I H d �--r congestion. The character of the street environment is also unfriendly to pedestrians. Signs proliferate the South 320th Street and State Route 99 (SR-99/Pacific Highway South) corridors. Some signs are as prom- inent as the buildings they purport to call attention to. The number and size of signs produce a negative effect on the visual image of the City. The City Center does not contain a significant residen- tial population. A pocket of residential housing exists Revised December 1998 VII-5 Federal Way Comprehensive Plan City Center between South 312th and 316th Streets, and SR-99 and 23rd Avenue South. Civic Buildings and Municipal Facilities Figure YII-1 depicts an aerial view of the City Center area looking south from the northwest corner of the City Center boundaries. Physical Conditions Land Use Most of the study area is currently developed and consequently, most new development in this area will displace existing low intensity uses. Buildings are dispersed throughout the area and lack pedestrian con- nections to each other and public rights-of-way. Cur- rent land use patterns favor auto-oriented commercial activity. The primary use in the City Center area is retail, followed by office, manufacturing, then resi- dential. SeaTac Mall is the `signature' development in the area. Table VII-1 lists the amount of land use development within the City Center planning area as of Summer 1995. Public and civic uses are scarce, with only four publicly owned non-park sites (the bus barn site north of 11 th Place South and South 320th Street; Truman High School, northwest of South 317 Street and 28th Avenue South; King County Library, 848 South 320th Street; and Federal Way School District Administrative Offices, 31405 Pacific Highway South). Parks, Open Space, and Natural Systems There are no public spaces within the City Center. Private green spaces, plazas and meeting spaces are few. Steel Lake Park to the northeast and Celebration Park to the southwest are on the perimeter of the City Center. Even though these parks are within walking distance of the City Center, they also serve, or will serve, as regional facilities in addition to serving local needs. The only other open space areas where natural systems are evident include the wooded edge of Inter- state 5 on the eastern edge of the City Center. The City Center contains one civic or municipal facility i.e., the Public Library. The next closest facility is the City of Federal Way Parks Department Steel Lake Annex and Maintenance Facility near South 312th Street and 28th Avenue South. Klahanee Senior/Community Center and City Hall are located a few miles southwest of the City Center at 33901 9th Avenue South and 33530 lst Way South, respectively. Circulation Roadways A key element defining mobility within the City Center planning area is the enormous size of its blocks. Most U.S. downtowns have blocks ranging from 250 to 500 feet on a side; block lengths in Federal Way are several times that. Because of the "superblock" configuration, motorists drive between and within parking areas serving City Center develop- ments to avoid congestion along City streets. Access to the area is provided by two principal arterial routes: South 320th Street (which runs east/west and connects to I-5), and SR-99 (which runs north/south). An inefficient hierarchy of streets feed these arterial roadways. The area lacks a system of minor arterial and smaller collector streets which could diffuse traffic efficiently away from these two principal arterials. The irregular spacing of traffic signals also adds to congestion. As such, the accessibility provided by the juncture of these routes, initially attractive to area residents, has been lost due to growth in traffic. Transit Service A minimum of 17 transit and dial-a- ride routes radiate from the City Center. However, service to the entire City Center is not the primary focus, especially during the peak periods of the day. A regional park and ride lot, located southwest of I-5 and South 320th Street, generates most of the area's transit ridership during peak periods of the day. Both King County/METRO and Pierce Transit serve this site. Congestion on I-5, South 320th Street, and SR-99 demonstrates the need for an enhanced transit system. However, the existing low intensity and dispersed land Revised December 1998 VII-6 Federal Way Comprehensive Plan City Center Figure VII-1 Aerial View of City Center ---ti-�-,��_�.,�G�--�-v--v-..--- i. y i I`"� �f� �.1.1.''�`�� r�r�t+J�tf,'`,�,�,� f� ur^��rv,,n�/�. �1�++�1... .,nl" �..rl.,rtir�.(t �2_ a aG� -.ast ch� I �s� Table VII-1 Land Use Development, Summer 1995 AREA City Center Retail/Office (1,000 sq. ft) 3,152 Manu. (1,000 sq. ft) 0 Civic (1,000 sq. ft) 14 Single Family Units) 0 Multi-Family Units) 352 Revised December 1998 V��_� Federal Way Comprehensive Plan City Center use patterns will not support significant increases in transit service. The area also lacks transit facilities such as bus pullouts and waiting areas, and a pedes- trian network to safe and direct access from transit stops. these neighborhoods are not located immediately within the proposed City Center, they are located con- veniently within walking, bicycling, or vehicular distance. They differ greatly in character and type. Pedestrian Environment and Bicycle Facilities A 1992 inventory of existing sidewalks within the City (see page V-22 of the Community Profile, Feb. 1993) revealed a deficiency of pedestrian facilities Citywide. The central core was highlighted as one of the areas which lacks an adequate pedestrian network. For example, most of SR 99 and portions of South 312th and 324th Streets and 23rd Avenue South lack side- walks. A majority of walking that does take place in the study area occurs within malls and along store- fronts of shopping center strips. Sidewalks connecting storefronts to public walkways are lacking. The few sidewalks that do exist are narrow, devoid of trees, and interrupted by numerous curb cuts. Crossing wide, busy streets such as South 320th Street and SR-99 can also be intimidating. There are few places to sit and enjoy pleasant weather, 'meet friends or have lunch outside. The current pedes- trian environment is unfriendly and unappealing. The division which exists between pedestrians and auto areas is not conducive to establishing the active street life desired in a Ciry Center. Bicyclists have even fewer facilities to choose from. City streets lack striping or signage for bike riders who must share the road with heavy volumes of traffic. Once bicyclists reach the area, they become frustrated by the lack of safe storage facilities for their vehicles. Residential The City Center contains approximately 737 units of housing, located primarily in the area east of SR-99, south of South 312th Street, north of South 316th Street, and west of 28th Avenue South. Other residen- tial neighborhoods surround the City Center area. West and south of South 320th Street and South l lth Place are pockets of multi-family housing. There are also single family neighborhoods west of Highway 99 and north of the South 312th Street corridor. While In 1997, two senior housing projects were constructed in the City Center Frame area. These projects are located south of South 312th Street and east of 23rd Avenue South, adjacent to the southern portion of Steel Lake Park. The two projects, Meridian/ Willamette Court and Woodmark at Steel Lake, consist of 300 and 85 living units respectively. The residents of these developments will have easy access to several shopping opportunities and services in the City Center area. Infrastructure Most of the existing facilities and infrastructure were inherited from King County. Since the incorporation in 1990, the City has not yet been able to significantly improve infrastructure or increase the number of facilities in the City Center. However, as the Ciry grows and implements the policies contained in its Capital Facility Plan, it will be able to direct invest- ment to meet its growth objectives. 7.3 THE LAND USE AND TRANSPORTATION CONCEPT FOR THE CITY CENTER The Concept Plan The concept is to redevelop the City Center and create a compact urban community and vibrant center of activity. The crux of the strategy is to promote a com- pact urban center with connections between where we live, work, and recreate, and create an urban environ- ment that is amenable to walking, bicycling, and transit. The concept, a result of the citizen participa- tion process called CityShape, implements the com- munity's goals outlined in Section 7.1. In summary, the concept is to: Revised December 1998 VII-8 Federal Way Comprehensive Plan City Center Establish a City Center to support high capacity transit (HCT) by locating residents and workers within convenient walking distance of HCT. Make efficient use of existing capital improve- ments by concentrating higher intensity land uses in the City Center. Encourage a mix of compatible uses where housing coexists adjacent to, above, or near commercial developments. Create a dense residential community within walking and bicycling distance of the core. Improve auto circulation in the City Center by completing the street grid, creating smaller blocks, and directing through traffic around the core, thus minimizing the impact of future growth on City- wide traffic patterns and congestion. Reduce impact of parking by encouraging struc- tured parking, reducing parking requirements, and implementing guidelines that enhance appearance. Create pedestrian and bicycle connections through- out the City Center and to sunounding neighbor- hoods. Provide safe and inviting environment for pedestrians and bicyclists with direct connections between activities and transit facilities. Develop and/or reconstruct streets to include sidewalks, street trees, benches, garbage receptacles, screen- ing of parking areas, etc. Create a high amenity pedestrian boulevard through the core, linked to a transit center and providing an attractive civic focus to SeaTac Mall. Provide a civic focus to create a sense of identity for all residents. Develop municipal and cultural facilities within the City Center core area. Develop public spaces in the City Center, particu- larly the core area. Enhance the City Center with a network of public spaces and parks connected to the Citywide and regional system of open spaces, parks, and trails. Encourage gathering spaces in private development. Map VII-3 applies the principles described above. The Plan depicts the City Center core area between SR-99 and I-5 and South 316th/317th and South 320th and 324th Streets. The City Center core area contains a concentration of higher-density, mixed-use develop- ment. The City Center frame area surrounds the core along the west and north edges and provides higher density, mixed use neighborhoods (primarily residen- tial) to support the core. It also provides a transition to surrounding single family neighborhoods. High capa- city transit runs through the middle of the City Center, and pedestrian pathways connect the HCT station with residential areas, future civic spaces, and the SeaTac Mall. Proposed Land Use Designations This section expands on the land use concepts descri- bed previously. The City Center plan proposes two different land use designations, each with its own distinctive characteristics, to guide evolution of the City Center, see Map VII-4. The City Center core and frame area designations give form to the concepts summarized in section 7.3. These land use designa- tions direct the location and extent of growth, and will reshape the nature of development, transforming the area into a compact, vibrant City Center. City Center Core Area For the last 20 years or so, lower density shopping mall areas at the edge of the nation's larger cities have gradually been redeveloped and transformed into more dense urban centers, emulating the development patterns and sense of place of more traditional down- towns. This transformation, to an area with a unique character and improved image, is proposed for the core area. The intent of the core area land use designation is to create a higher-density mixed use "center" for Federal Way, and become an urban center as envisioned in VISION 2020 and the CWPP's. The CityShape vision calls for concentrating growth requiring a higher demand for infrastructure in an area where sufficient Revised December 1998 VII-9 Federai Way Comprehensive Plan City Center Map VII-3 The Concept Plan Revised December 1998 VII-10 Federal Way Comprehensive Plan City Center Map VII-4 infrastructure capacity exists, or where such capacity can be provided efficiently. The infrastructure within the City Center, specifically the core area, is designed to handle the highest levels of demand within Federal Way. By orienting new growth around this invest- ment, the existing capacity can be utilized to its fullest extent. The core area designation also encourages the concentration of new development to help reduce development pressure in other areas of Federal Way. The core area land use designation encourages a greater diversity of uses within mixed-use types of development. Traditional City Centers are places where diverse office, retail, and government uses are concentrated, as well as cultural and civic facilities, community services, and housing. Many cities are advocating mixed-use development for a number of reasons. These include: Revised December 1998 VII-11 City Center Land Use Designations Federal Way Comprehensive Plan City Center Figure VII-2 Providing new housing and cutting down on auto- mobile dependency by bringing work places and residences into close proximity; Providing retail and service needs in close prox- imity to residential and employment areas; and, Improving feasibility of a development project. The proximity of urban services makes housing projects more desirable and a nearby source of consumers help make a commercial project more profitable. Concentrating growth in a specific area also supports future investment in transit, including a regional HCT system. Existing low density development does not generate sufficient levels of demand to justify HCT service. Promoting higher density uses within walking distance of transit facilities will improve the viability of this infrastructure. Additionally, concentrating the highest density of development in the core, where a significant number of jobs and residences will be within walking distance of a transit station, helps reduce dependency on the automobile and improve pedestrian mobility. The core area emphasizes pedestrian, bicycle, and transit mobil- ity. The core area will be less auto-oriented than the frame area, but it will not be unfriendly to the use of automobiles. Goals Policies Which Promote the Concentration of New Development in the City Center Core Area Goal The City Center core area will also be the central gathering place for the community—a place where the whole community can congregate and celebrate. Accordingly, the core should include an outdoor square, park, or commons, with public amenities such as fountains, sculptures, and unique landscaping. Other civic amenities or buildings, including a City Hall and/or a performing arts center, could be grouped around this City Center square (Figure VII-2). CCG13 Focus new growth with higher demands for infrastructure and transportation in the City Center, specifically the core area. Allow for higher intensity uses for e�cient use of land. Policies CCPl Support the concentration of uses within the core area to create a financial, retail, and business hub of Federal Way. Revised December 1998 VII-12 Potential Core Area Development Federal Way Comprehensive Plan City Center CCP2 Develop an attractive City Center which will attract quality development. CCP3 Revise land use regulations, as necessary, to allow the higher intensity development expec- ted over the next 15 to 30 years. CCP4 Create a City Center that is the primary com- mercial area providing local goods and ser- vices to the surrounding neighborhoods, and to residents and employees withirr the center. CCPS Provide streamlined permit review in the City Center to accelerate changes to the core area. CCP6 Work with urban service providers to ensure sufficient capacity is available for development. CCP7 Allow for a variety of uses and mixed use development within buildings, or complexes. Ensure that mixed-use development comple- ments and enhances the character of the surrounding residential and commercial areas. CCP8 Establish guidelines that list compatible uses. CCP9 Provide incentives to encourage residential development in City Center, core/frame areas. City Center Frame Area Residents choose to live in higher density housing for a variety of reasons. First, higher density is frequently less expensive than single family housing. Second, the convenience and proximity to work, needed services, and cultural activities is very desirable for many people. Finally, many people find that they do not need a large, single family detached house. Given their lifestyle, they appreciate the low maintenance and security of higher density living. There is a mutually supportive relationship between higher density residential uses and commercial activ- ities. Establishing a City Center frame area provides a zone for dense mixed-use development that surrounds and supports the core. It also. provides a transition between high-activity areas in the core area and less dense neighborhoods outside of the frame. The pre- sence of housing also activates downtown streets, day and night. The frame area allows uses that are similaz to those in the core area, but are of lower density and intensity. While the emphasis of the core area is to develop commercial and office uses with accessory residential, the emphasis of the frame area is residential develop- ment with accessory retail and office use. Together, the core and frame areas are complementary. Encour- aging multi-unit housing mixed with business and commercial use will help Federal Way meet regional land use goals. This is accomplished by encouraging the development of housing close to employment and transportation centers. To help transform the character of this land use designation, density bonuses should be allowed in exchange for amenities which contribute to a more pedestrian oriented environment (Figure YII-3). Figure VII-3 Revised December 1998 Vil-13 Potential Frame Area Development Federal Way Comprehensive Plan City Center Goals Policies Encouraging Location of Higher Density Residential Uses Around Core Area Goal CCG14 Increase housing opportunities and diver- sity of housing types within the City Center, speciftcally the Frame area. improvements. The City should focus transportation investments in the City Center to support transit and pedestrian-oriented land use patterns. These improve- ments should include: a smaller street grid, bicycle routes, public sidewalks and pedestrian pathways, and clear and identifiable transit routes. These transporta- tion improvements will also help meet City Center mobility needs in the event a HCT system is not developed. Policies CCP10 Revise land use regulations to allow the frame area to accommodate higher density residential uses accompanied by residen- tially oriented retail and service uses. CCPll Provide amenities such as community Goal to Improve Overall Circulation Goal CCG15 Provide a balanced transportation network which accommodates public transportation, high occupancy vehicles, pedestrians, bicyc- lists, automobiles, and integrated parking. services, parks, and public spaces to meet residential needs. CCP12 Develop guidelines that ensure effective transitions between different land uses and higher and lower densities. Circulation Federal Way's City Center plan is designed in accor- dance with VISION 2020 and CWPP's related to mobility. Although regional travel trends continue to show more cars on the road, more trips per person, and increases in the number of people driving alone, the emphasis of this Plan is to promote a variety of travel options. The City will focus both on transpor= tation improvements as well as influencing individual travel choices by increasing the attractiveness of alter- natives to the automobile. Encouraging growth in a compact, well defined City Center will help promote bicycling, walking, and transit use. The City Center will be connected to other regional urban centers and areas of the City by a multimodal transportation sys- tem, including a fast and convenient regional transit system. In order to function efficiently, mobility in the City Center must be enhanced by adding transportation Automobile Circulation The current network of collector roads and arterials, the disjointed grid, and large block sizes contribute to significant traffic congestion within the City Center. The solution is not to construct wider roads. Streets become less efficient as the numbers of lanes increases. Building new streets with fewer lanes versus widening existing streets is more cost effective, yields greater capacity, and will have less impact on the City Center. Automobiles are likely to continue as a dominant mode of transportation. A comprehensive network of collector arterials and other streets must be developed to distribute this traffic and create more driving choices. To the extent feasible, the City should con- nect streets to form a tighter grid within the City Center, especially in the core, by negotiating new public rights-of-way and building new streets. This "interconnectivity" serves to shorten and disperse trips, and consequently reduce travel on existing con- gested arterials. Map YII-S indicates the proposed street network changes. Additionally, alternatives to auto travel such as van and car pools, transit, pedes- trian corridors, and bicycle paths should also be emphasized. Revised December 1998 VII-14 Federal Way Comprehensive Plan City Center u Revised December 1998 VII-15 Map VII-S Enhanced Street Network Federal Way Comprehensive Plan City Center Goals and Policies to Improve Automobile Circulation and Reduce Usage Goal to better accommodate the needs of pedestrians and bicyclists, a network of facilities for people on foot and bikes will be established such as already exists for people in cazs. CCG16 Improve thellow of vehicular tra�c through the City Center and minimize increases in congestion. Policies CCP14 Improve traffic flow around and through the City Center by extending the street network, creating smaller blocks and completing the ring road along the west edge of the City Center. CCP15 Reduce congestion by supporting the Commute Trip Reduction Act. Develop commuting alternatives to single occu- pancy vehicles, including transit, walking, and bicycling. CCP16 The City's LOS standard shall be based on average person-delay to allow lower LOS for single-occupant vehicles and support pedestrian-friendly designs and transit signal priority treatment. CCP17 Discourage cul-de-sacs within the City Center. Pedestrian/Bicycle Connections Pedestrian and bicycle mobility is a vital part of the future City Center circulation system. Improvements for pedestrians and bicyclists should support increases in transit services and promote the development of the City Center. This Plan addresses the lack of pedestrian amenities and pathways by recommending changes to the development patterns and transforming the character of the streetscape. As the street system is redeveloped Reducing the size of the street grid as proposed, improving auto circulation and creating pedestrian paths through larger parcels, is critical to establishing walking patterns which reduce dependency on the automobile. As individual sites aze designed and developed to be more pedestrian friendly, and as the City provides improved pedestrian linkages, the pedestrian system will handle an increasing share of trips. As such, all streets should include some pedes- trian amenities, such as public sidewalks, street trees, benches, adequate lighting, dedicated bicycle paths, trash receptacles, and improved signage. Streets and pedestrian/bicycle access ways must be developed to provide for easy, safe, and fast pedestrian/bicycle access. In addition to adding public sidewalks and creating mid-block pathways, Map vll-6 depicts three prin- cipal pedestrian connections to improve pedestrian circulation. The first is developing connections between the HCT station, adjoining bus transfer facilities and other uses. The pedestrian and bicycle system is essential to other travel modes, particularly transit. Virtually all transit trips begin and end as pedestrian trips on public rights-of-way. All buildings within proximity to these areas should be required to facilitate pedestrian and bicycle movement. The second is to establish pedestrian and bicycle con- nections to SeaTac Mall, the region's largest generator of vehicular and pedestrian traffic. Linkages befween the proposed transit station and the SeaTac Mall are important. Unfortunately, South 320th Street is wide, congested, and presents a significant barrier to this connection. Providing an at-grade pedestrian and bicycle crossing could increase congestion and vehic- ular and pedestrian/bicycle conflicts. To facilitate this connection, and encourage redevelopment of existing parking areas, this Plan proposes a pedestrian bridge spanning South 320th Street. This connection would be enhanced by the presence of an elevated rail struc- ture and a two-story addition extending from SeaTac Revised December 1998 VII-16 Federal Way Comprehensive Plan City Center Map VII-6 Revised December 1998 VII-17 Principle Pedestrian and Bicycle Connections Federal Way Comprehensive Plan City Center Mall toward South 320th Street. The pedestrian over- pass would create a major connection between two areas in the City Center which have a high potential for new development and redevelopment. CCP20 The third is to connect the City Center to nearby neighborhoods and parks. Residential neighborhoods of varying densities surround the City Center. Steel Lake and Celebration Park are located to the northeast and southwest of the City Center, respectively. Both pedestrian and bicycle trails should extend to these residential neighborhoods and parks. Roads extending to these areas should emphasize the pedestrian con- nection by including additional pedestrian amenities. In order to provide good pedestrian connectivity across multi-lane arterials such as South 320th Street and Pacific Highway South, crossings should be pro- vided more closely than the existing'/<-mile spacing of traffic signals. Unsignalized pedestrian crossings would not be very safe, yet closer spacing of traffic signals make two-way signal coordination impossible to achieve, creating much more congestion and worsening safety and air quality. These conflicting needs must be resolved through the design process as these streets are reconstructed. Policies to Improve Pedestrian Connections Goal CCG17 Promote and facilitate the effective use of non-motorized transportation. Create a safe, e�cient and enjoyable pedestrian and bicycle system. Policies CCP18 Emphasize pedestrian and bicycle circula- tion to the same extent as other travel modes in all aspects of developing the City Center transportation system. Include public side- walks, street trees, and other pedestrian amenities for streets. CCP19 Revise local zoning codes, site planning requirements, and street design standards, as necessary, to establish a more pedestrian and bicycle friendly environment. Encourage new development to include active ground floor uses such as shops, com- munity services, office, and housing units. Connect adjacent buildings where possible to provide for streetscape continuity. CCP21 Develop clear and safe pedestrian paths through large parcels to enhance the pedes- trian network. CCP22 Site and screen parking lots to minimize impact on the pedestrian environment. CCP23 Connect the main entry of buildings to public sidewalks by a clear, identifiable walkway. CCP24 Encourage transit use by improving pedes- trian and bicycle linkages to the existing and future transit system, and by improving the security and utility of park-and-ride lots and bus stops. CCP25 Establish clear and well marked pedestrian crossings to reach transit facilities and other uses at a maximum spacing of 660 feet. CCP26 Connect Celebration Park and Steel Lake Park, via a pedestrian/bicycle pathway, bisecting the City Center: orient buildings, urban open spaces, plazas, etc., to pathways where feasible. CCP27 Develop special development standards to improve the appearance of, and pedestrian/ bicycle circulation along, South 320th Street and Pacific Highway South. Transit Efficient, convenient, and reliable transit is important to this Plan's emphasis to reduce auto dependency through the creation of viable travel options. Transit will play an important role in the development of the Revised December 1998 VII-18 Federal Way Comprehensive Plan City Center City Center and the region as a whole. A multi-modal system which includes transit will bring commuters and shoppers to and from other areas of Federal Way and adjacent communities. A high capacity transit system with a principal stop in the core area will dis- tribute people regionally and connect to other bus based transit systems. Transit stops throughout the center will help shoppers, employees, and residents to circulate around the City Center without the need to get into their cars. Encouraging a mix of land uses and densities at major transit access points will help meet passenger needs and reduce vehicle trips. supportive uses, thus assisting to ensure both the success of the Transit Center itself and the economic vitality of the City Center. Based on these considerations, the Transit Center and any associated capital facilities (such as park and ride facilities) should be located as closely as possible to the geographic center of the City Center. This point is located at the intersection of 20th Avenue South and the proposed South 318th Street. In no case should the Transit Center be located east of 23rd Avenue South, as the proximity to I-5 would limit redevelopment to transit-supportive land uses. High Capacity Transit Sound Transit is working with Puget Sound citizens and City representatives to develop a HCT network linking Everett, Tacoma, Seattle, Bellevue, and com- munities between them. Four HCT stations are pro- posed in Federal Way, including one in the City Center core area. Map VII-7 depicts the approximate HCT alignment and location of the City Center station. The Federal Way Transit Center is currently located at the Federal Way Park Ride. At the time of the adoption of the 1995 Comprehensive Plan, the City Center element proposed a new location at South 312th Street and 20th Avenue South. The primary driver for this loca- tion was the assumption that light-rail between Seattle and Tacoma would follow SR-99. Since adoption of the plan, conditions have changed and discussion of alternate locations has emerged. Sound Transits's Sound Move Initiative allocated $4 Million for the construction of a new Transit Center, in coordination with the enhancement and/or relocation of the existing Transit Center and direct access ramps. The Transit Center is considered by the City as a major anchor to the urban center designation in the Vision 2020 plan adopted by the PSRC. The location of the Transit Center should be surrounded by pro- perty that has potential to redevelop into transit- This Plan does not depend on the development of a HCT system. The proposed system is one of several transportation options. While HCT will help regional and local transportation needs, other modes will con- tinue to play a vital role. Many of the characteristics that are desired within the City Center, and support HCT, also support other modes such as van/car pooling, bussing, bicycling, and walking. To encourage transit use, the high capacity transit station shouid provide an inviting environment with comfortable pedestrian facilities, including shelter for waiting areas, convenient passenger drop-off zones, safe lighting, and street furniture. Conveniences like telephones, automatic teller machines, secure bicycle storage areas, and outdoor seating areas are also important elements of the station design. Provisions for vendors, small cafes, and carts will make outdoor spaces more lively. Stores adjoining the station can take advantage of the concentrations of people by specializing in goods and services needed by com- muters such as dry cleaning, videos, news kiosks, and day care. Federal Way's City Center station will be oriented principally to pedestrians and those arriving by other forms of transit. Providing for pedestrian/bicycle accessibility between surrounding properties, street network, general vicinity, park ride lots, and the HCT is essential. Revised December 1998 VII-19 Federal Way Comprehensive Plan City Center Map VII-7 Revised December 1998 VII-20 Potential Transit Alignments and Stops Federal Way Comprehensive Plan City Center Policies to Guide Transit Planning and Establish a High Capacity Transit Station Goal CCG18 Work with the transit providers to develop a detailed transit plan for the City Center. Ident� facilities, services, and implementa- tion measures needed to make transit a viable and attractive travel mode. Tailor the plan to meet local needs, through rapid transit, express buses, community service, and/ or demand-responsive service. Policies CCP28 Focus transportation investments to support transit and pedestrian/bicycle-oriented land use patterns, specifically in the core area. CCP29 Participate actively in regional efforts to develop a high capacity transit system to serve the City Center. Identify and preserve necessary right-of-way for high capacity transit alignments and station locations at every opportunity. "Land bank" parcels which will be used for the HCT system in the future, including land for the right-of- way and the station. CCP30 Create a compact zone around the HCT station for the highest intensities of land use. CCP31 Establish the most intensive levels of transit service to the City Center area. CCP32 Integrate any transit system with existing or new road right-of-way. Design any elevated or subway structure to be compatible with new development in the area. CCP33 Develop a bus transfer facility, on or off the street, which will connect the City Center with other communities in the City. The HCT and bus transfer stations will set a high standard for design and compatibility with adjoining uses. CCP34 Integrate the high capacity transit system with other transportation modes serving Federal Way and the region. CCP35 Integrate bicycle and pedestrian facilities with and connect to high capacity transit facilities during right-of-way acquisition, facility design, and optional phases. Civic Buildings and Open Spaces Public buildings including community centers, libra- ries, City Hall, performing arts theaters, conference centers, and schools provide places for the community to meet, exchange ideas, and socialize. The City should take advantage of every opportunity to locate a variety of civic buildings in and around the City Center. This will occur over time, but it is necessary to establish a clear direction through public policy. A network of outdoor spaces for recreation, strolling, gathering, and dining will make the City Center a lively and attractive place to live, shop, and conduct business. Each type of space should serve a range of users and activities. Outdoor spaces should range from a major urban park which is the focal point for down- town, to pocket urban plazas for lunch time gathering by residents, visitors, and workers. Some spaces will be publicly built and maintained, others will be con- structed along with private development. Privately developed gathering space is a major component of all City Centers: small parks and plazas are opportunities to enhance the urbanscape and image of the City Center. Courtyards, mews, and forecourts are ways to efficiently integrate open space to enhance a project. Visitors, shoppers, and employees often perceive these private spaces as public. The City should commit to assist in or provide incen- tives for, the development of plazas and parks that are open to the public. Map YII-8 proposes a central out- door gathering place within the core area, such as a park, plaza, or square, which will become the focus of community activities in the core. Uses around the edges of this plaza, such as transit facilities and cafes, should be sited to generate activity throughout the day. The edges of the plaza should be well defined Revised December 1998 VII-21 Federal Way Comprehensive Plan City Center Map VII-8 Potential Open Space and Bicycle Routes i�a Q 'p o 0 0 M O O V W U C*� q� u p� o 0 o dd P 1 h�� o p o .o c�o Q p a o 0 ]O T 0 Do 0 o p p O L"�� •�4 .1�4 .1�4 ..1� 0 PA4 p 0 7� Sl O d p� Q �o6=c� A� _uc. .u� po�Q d c"-'� �QC7���� .u_ -di-� a O' 8 p�� O o i ..J� rL.. a a u oa 0 Q4.o O q q a Q .j o u �j Steel Lake Park a�o o❑ _,1,_ 0 9 O�op0004�0 op �1 D �18th S v' O 9Q�8[dO�apb6 IT3 g n `S Ijn p U 6' °'��/r�l; m 40o p' qQ o ri' o L' t� C S 3��H S� �J ��p �io a o4 G' Q fl� �o r ��--J I 0 �o Q�� o rL. .Jr_ o �Celebration Park ��p��� o Ss"� i 319tri eL� Q► Q d❑ o C o ��00 I g 4° b m y ♦��J ��p 8'" ��6�TS10e� �![�1� o� Oo� t Zp g o o fR�� n �4 °ao� aZ�����a°�p' N Existing Bicycle Route Planned Bicycle Route ��u4 Target area for Civic Center '�i�►�' Park Revised December 1998 VII-22 Federal Way Comprehensive Pian City Center and landscaped to soften the hard surfaces of adjacent buildings and streets. This space should be physically and visually linked to the central pedestrian spine and transit center. Policies to Promote the Development of Civic Buildings and Urban Spaces Goal Parking The continued use of expansive surface parking con- flicts with the goal of redeveloping the City Center as a higher density mixed use area which supports the use of public transportation. In order to promote higher intensity land uses, which is pedestrian friendly and supportive of HCT, it is necessary to reduce the need for parking and encourage the provision of struc- tured parking within these areas. CCG19 Develop civic and cultural facilities in addi- tion to a public space and park system within the City Center to meet the needs of residents, employees, and visitors. These facilities and spaces should connect to the Citywide and regional system of public spaces, parks, and trails. Policies CCP36 Promote a diversity of public and privately funded recreational and cultural facilities throughout the City Center. Promote part- nerships between the City and other agen- cies, private organizations, and individuals to develop and meet the needs of City Center and the general community for these types of facilities. CCP37 Emphasize locating civic and cultural facilities within the core. Planned public facilities could include a City Hall, library, or performing arts complex. CCP38 Acquire land necessary to provide a broad range of recreational opportunities through- out the City Center. "Land bank" parcels in the core area for future municipal facilities. CCP39 Public buildings shall set a high standard for design and compatibility with adjoining uses. In the core, parking for municipal uses should be structured. CCP40 Development of public spaces within the City Center will focus on linking these to existing recreational components of the Citywide parks system. Moreover, parking lots have high redevelopment potential. There are numerous examples of commun- ities similar to Federal Way where former parking lots now contain multi-story developments. Parking will be needed for many years to come. However, as development pressures and land values increase, sur- face parking becomes expensive and property owners will be able to afford the conversion from surface parking to structured parking. In the interim, the City should encourage site layouts which facilitate future redevelopment of parking areas. Private and public partnerships should examine the feasibility of constructing a parking structure in the downtown commercial core area. Figure YII-4 is a conceptual illustration of the redevelopment of surface parking around a mall. Goals and Policies to Develop Alternatives to Existing Parking Development Goal CCG20 Reduce demand for parking in the City Center. Policies CCP41 Encourage public and private parking struc- tures (below or above ground) in lieu of surface parking in the core area. Consider a public private partnership to develop struc- tured parking in the downtown commercial core area. Revised December 1998 VII-23 Federal Way Comprehensive Plan City Center Figure VII-4 Potential Redevelopment of Surface Parking Areas f t Oucr f ime, parking garages, louxr parking sequirements cnd sharcd parking can allow J6r more intrnsirx deuelopment of land. CCP42 The City will encourage the provision of CCP44 Site and orient buildings and parking to structured parking through the use of bonuses allow redevelopment of surface parking. and incentives. CCP43 Buffer parking areas to increase compati- bility between surrounding uses. For larger lots, provide substantial landscaping, special lighting, and pedestrian walkways. CCP45 Allow on-street parking to create a buffer between pedestrians and traffic depending on street characteristics and role within the City Center. On-street parking should be viewed as a component of the parking supply for the area. Revised December 1998 VII-24 Federal Way Comprehensive Plan City Center CCP46 Encourage shared parking between uses to Policies maximize the use of available parking within the City Center. Streetscape To improve livability within the City Center area, the City must complete the street network and change its street standards. The street grid must be well inter- connected to make travel from one place to another as efficient as possible. The key to achieving this is to redefine streets as a network that will serve pedes- trians, bicycles, and transit, in addition to auto- mobiles. In areas where increased density is proposed, existing streets must be retro-fitted with sidewalks, street trees, street furniture, and other amenities. AI- lowing on-street parking also creates a buffer between pedestrians and vehicles. It also allows shoppers and visitors to park easily for short amounts of time. On street parking should be permitted on City Center streets (where feasible) except during the morning and evening commuting hours when the extra lanes are needed to accommodate the extra high volumes of traffic. CCP47 Acquire right-of-way, primarily through ded- ication from development, to complete and enhance the street network. CCP48 Design streets as public spaces, with appra priate pedestrian amenities, trees, sidewalks, bicycle paths, transit services, street furni- ture, and trash receptacles. CCP49 Construct streetscape improvements as an integral component of any roadway improvement. CCP50 Encourage buildings to front public rights-of- way, providing clear paths from the sidewalk to all entries. CCP51 Only SR-99 and South 320th Street shall be wider than five lanes. 7.4. IMPLEMENTATION The Transportation Element (Chapter 3) illustrates several street standards developed specifically for the City Center area. These streets will connect to other proposed and existing streets to complete a street grid. Street standards for existing and proposed streets within the City Center can be found in the second section of the Transportation chapter. These standards also incorporate the City Center Street Design Guide- lines adopted by the City Council in May 1998. Policies to Improve the Street Network and Streetscape Character Goal CCG21 Create street designations which reinforce the unique characteristics of the City Center. Developing a City Center will require collaboration between government entities, citizens, and developers. Phasing and development of certain elements, such as high capacity transit, are outside the City's control. Therefore, an implementation program must be flex- ible. It must also be tied to general goals, policies, and strategies rather than a detailed, step-by-step list of actions. The implementation section consists of: A set of strategies to guide implementing actions; An illustration of how these strategies can be real- ized over time; A 15 year action plan. Implementation Strategies Specific strategies must be pursued in order to coor- dinate various elements and actions that are dependent upon one another. For example, private development Revised December 1998 VII-25 Federal Way Comprehensive Plan City Center depends upon adequate infrastructure and amenities. Effective transit service depends upon supporting land use development to provide sufficient ridership. Rest- denial communities require adequate transportation and services, a pedestrian friendly environment, open spaces, and jobs to foster a sense of community. In addition, much of the City Center's development is dependent upon market demands and development that is not projected until about 2005. A regional high capacity transit corridor may not be implemented before 2005. However, regulatory and infrastructure actions must be taken in the interim to prepare for these developments. The following strategies form the basis to achieve desired City Center development. Establish regulations to shape and influence new development (0-1 years). Discourage low intensity auto oriented develop- ment in the core. Provide regulations and incen- tives to achieve a high intensity, mixed-use, pedestrian friendly development. Encourage mixed density residential develop- ment in the City Center frame area. Allow short term investment in the frame area that will support long terrr► core development. Develop specific plans to construct needed street and infrastructure improvements (1-5 years). Develop plans to define the location of street rights-of-way for completing the street grid and constructing transit facilities to provide predicta- bility for developers. Construct arterial improvements with associated landscaping and pedestrian amenities (timing set by capital facilities program). Prepare a pedestrian and bicycle plan and con- struct sidewalks, pedestrian paths, mid-block connectors, and bicycle connections to all areas of the City Center and particularly to a transit Improve both local and regional transit service. Begin new transit service configuration by adding a center bus stop and route buses to it u center (ongoing effort). Develop and manage structured parking facilities as needed to support more intensive development and gradually convert the core into less auto depen- dent area. Develop parking standards for the City Center Area. (begin immediately). Upgrade central bus stop to a transit center/ station and enhance regional and local transit services to it (2-7 years). Develop a regional HCT station at transit center (15-20 years). Construct civic features, public spaces, parks, and other urban elements to create a true urban center and promote civic identity (5-15 years). Develop major civic facilities in the City Center such as, a City Hall, performing arts center, and recreation center, to generate social and economic activity (5-15 years). Add amenities to residential areas to build new neighborhoods (begin immediately as an incre- mental program). Inciude landscaping and pedestrian improve- ments in all street construction (incremental program tied to actual improvements). Phasing Transforming the existing downtown commercial core area into the proposed City Center is an ambitious task. It requires a significant transformation from a low density, automobile oriented, largely retail area to a higher intensity, more pedestrian oriented mixed use area. It requires a change in housing patterns, lifestyle preferences, and transportation modes. The City Center plan acknowledges that the core will take some time to develop. The City can facilitate these changes if a series of small steps are taken over time. This is especially true if the steps are consistent with the emerging economic, social, and demographic trends. As is the intent of this plan, the phasing scenario pre- sented here accounts for the timing of market pro- jections and future actions. As noted above, the implementation strategy is keyed to projected trends and regional planning goals. Its form and character, as envisioned in the Plan, are dra- matically different from anything that now exists in Revised December 1998 VII-26 Federal Way Comprehensive Plan City Center the center. It will take some time for the development community to redirect its energy and investments to produce buildings that respond to the direction of the Plan. The demand for more intense development opportunities in the City Center is not projected for nearly a decade. In the meantime, there may be some deferred maintenance, short-term, high-turnover tenancies, and even vacancies, as the development community begins to assemble property for future redevelopment. The City should not encourage con- tinued low-scale investment in this area, since it will need to be amortized over a decade or two and will delay accomplishment of prefened development. As regulations are applied to modest renovations, it should be possible to secure some basic improvements. However, the City should not expect full implementa- tion of the vision for the City Center until owners are ready to install long-term, major development projects. Develop a pedestrian/bicycle plan that outlines a connected, safety-oriented system of routes and facilities. This Plan shall be used in programming capital projects, reviewing development proposals, and encouraging other agencies to integrate bicycle improvements and linkages into Federal Way pro- jects. The plan should emphasize linkages between transportation facilities, Celebration and Steel Lake parks, SeaTac Mall, and surrounding communities. Work with the transit providers to develop a detailed transit plan for the City Center. Identify facilities, services, acquisition strategies, and implementation measures needed to make transit a viable and attractive travel mode. Tailor the plan to meet local needs, through rapid transit, express buses, local service, and/or demand-responsive service. Figures YII-5 and YII-6 and Map YII-9 (located at the end of this chapter) illustrate key steps in the evolu- tion of Federal Way's City Center from 1995 through 2005. The illustrations are taken from a viewpoint just north of South 316th Street between 20th Avenue South and SR-99. The drawings do not necessarily indicate recommendations for specific sites. The loca- tions of the elements and the time frames may well vary. For example, the high-capacity transit line may follow a slightly different alignment and the City Hall could be located on a different site. The drawings do illustrate how a viable City Center can evolve through several coordinated, incremental steps taken over time. The approximate dates are based on current mar- ket demand and funding projections. However, new trends, funding priorities, and development opportun- ities may emerge, changing the timing. An illustration of 1995 conditions is included for reference. 1995 2005 Actions Institute zoning and design guidelines for the core area that encourages a high intensity pedestrian- oriented mixed-use City Center. Institute zoning and design guidelines for the frame area that encourage higher density residential with accessory commercial uses to support the core. Develop a parks and public spaces plan for the City Center. Begin negotiations for acquisition of land for a City Center park, plaza, or square. Improve the South 320th streetscape. Widen 312th and improve the streetscape. Improve SR-99 and establish mid-block crossings. Complete the Ring Road (14th Avenue). Complete the BPA bike trail. Negotiate and acquire rights-of-way to augment the City Center street grid. During permit review, ensure that new development is compatible with street grid. Reroute transit through the City Center and pro- vide a centralized transfer point. Develop a transit center and consider replacing the park-and-ride lot. Focus transit activities in the City Center core. Prepare an economic development program to assist with financing and construction of projects which support City Center development. Revised Oecember 1998 VII-27 Federal Way Comprehensive Plan City Center Begin negotiations to form a public private part- nership to provide structured parking near SeaTac Mall. Construct the parking structure. Accomplishments Since 1995 Comprehensive Plan Adoption Construct street grid enhancements. Negotiate for the HCT corridor properties. Construct the pedestrian overpass across 320th and build phase one of the City Center pedestrian mall. Begin negotiations and acquire property for a City Hall and a City Center park. Hold competition to design City Hall. Construct City Hall. Enhance educational and recreational opportunities in City Center. 2005 2015 Actions Construct City Center park with public amenities such as fountains, sculptures, and unique land- scaping, separate from Celebration Park. Continue building public-private parking garages. Improve community-wide transit service and implement a "spokes-of-a-wheel" service delivery pattern with City Center as the hub. Continue constructing streetscape and pedestrian improvements. Construct a performing arts center. Establish ribbons of green parks along the City Center pedestrian mall. Construct the HCT line. Construct streets to serve the transit facility. The following strategies have been implemented to address goals and policies of the City Center Chapter since the initial adoption of the comprehensive plan: In 1996, the City adopted code amendments for the City Center Core and Frame to allow for increased residential density and flexibility in siting residen- tial uses. The City also adopted Community Design Guidelines intended to improve the appearance of non-residential buildings and to expand pedestrian circulation, public open space, and pedestrian amenities. In 1998, in conjunction with King Counry/METRO, the City improved local and intercity transit which should result in more people having access to shopping and other opportunities in the City Center. In 1998, the City adopted policies to provide street- scape enhancements along the 320th corridor and development of standards for street lights, street trees, and their placement and location in the city center. The City has an adopted TIP and CIP plan which addresses major street improvements in the City Center. Minor collector and local street improve- ments would be provided by development as redevelopment occurs. The Chamber has hired an Economic Development Executive whose three main functions are creating an identifiable City Center (Downtown Revitaliza- tion), siting of the Regional Transit Authority facilities, and Marketing and Recruitment. Phases I and II of the BPA trail have been con- structed and Phase III is in the design stage. Revised December 1998 VII-28 Federal Way Comprehensive Plan City Center Figure VII-S Illustration of City Center,1995 Conditions S. 320th Street 20th Avenue S. Pacific Highway S. Revised December 1998 VII-29 Executel •••••-•-S.316thStreet Federal Way Comprehensive Plan City Center Map VII-9 Phasing Concept,1995-2005 o O Q h cC? �OPOS oaaca p Q, o o' f o o U 9 a 0 d` �Q��O O 1! a p�ar o 0 a�; oo �Sth Srto 4 a C�a aa �l 4oDOOO�.00 00 e ��,����6 j0 0 %�'=1r" 4��� g S�' Q 4 Q Op �a o L!' p o o 0 0 Q �Fi� o o c7d ,i, r4` P 9 o 0 a o p o _,L_ .Jr. .J� .J o T o 0 000 0 0 00� o.o -�T a a o -0 �0�� n 0 o Q� oG e a� .il� .u� [J �QO�� �L.. .J� .�L_ o i� s g L-- Steel Lake Park''` r r= jj 51.7 Acres� a� _,L_ ..J4 �L.. .J� i w p L_ I 4� 18 Sl�_1 v' c� -�Li a o Oo N h O .i r 3� J c� �,7 ��",�j fl a a 4 0 0 0 �s ��r�uA 8 4° SeaTac Mall i; Expanded Park Ride ►U �V- O .J4�. �F{�j��AtO� �9� e a o J Q �P� ���00 m y o� g o M ERION �Celebfation Park� pnp o �O� o aZ���qq m -83 AC es IIIIII��� n ..___r� n I1Q .�o �a��„Y� Proposed Right of Way N Proposed Roadway Improvements S. 320th streetscape improvements Add street li�hts trees, widen sidewalks and enhance intersection of S.320th St. and Pacific Hwy S. Pacific Hwy South Widen Road to include HOV lanes underground utility poles add sidewalks, street lights and trees and landscape median. S. 312th Street Widen Road to 5 lanes with sidewalks, street lights trees. 23rd Avenue South Widen Road to 5 lanes with sidewalks, street lights trees. Transit Center To be located as closely as passible to the geographic center of the City Center. This point is located at the intersection of 20th Avenue South and the proposed South 318th Street. in no case should the Transit Center be located east of 23rd Avenue South. Revised December 1998 VII-30 Federal Way Comprehensive Plan City Center Figure VII-6 Illustration of City Center Evolution, 2025 For Illustrative Purposes Only (Revised December 1998) x S. 320th Street imp�ovements Highway 99 Improvements r� U Revised December 1998 VII-31 Executel Expansion Rerouted Transit Service with New Transit Centers Potential Annexation Areas L— - _--�--- --� � �— _ —____ _- ---- � –� �_ - __ - - ---__ _ 1---- _ _ _ ___ ___ � - � '�- __- J _ __-� � , �--- �- ,,--- - , � \ � C � � O �+ C O ._ � � � � 0 ` �a.. Federal Way Comprehensive Plan Potential Annexation Areas 8.0 INTRODUCTION C J he Growth Management Act (RCW 36.70A. 110, GMA) requires each city to identify an Urban Growth Area (UGA) for itself. A city's UGA is, within certain counties, the unincorporated area surrounding the City which is characterized by urban development and can accommodate additional urban growth with services being provided by the subject city. In King County, the Countywide Plan- ning Policies (CWPP's) refer to a city's UGA as a Potential Annexation Area (PAA) so that it will not be confused with the Countywide UGA. This chapter includes state, regional and locai planning policies that relate to PAA's, summarizes the process and reasoning associated with designating of Federal Way's PAA, and provides policy guidance for future actions within the City's PAA in the future. The City's proposed PAA includes an island of unin- corporated King County situated between several south King County cities. While this area is not needed to accommodate Federal Way's anticipated 0 to 20 years of growth, it is an area characterized by urban type growth and is located in an area where urban services (including water, sewer, police, fire, general government, transportation, parks recrea- tion, etc.), can be most efficiently provided by the City of Federal Way or other special service districts. 8.1 STATEWIDE PLANNING GOALS Three of the 13 Statewide planning goals contained in the GMA relate directly to urban growth areas and PAA's. The three relevant goals are: Urban growth. Encourage development in urban areas where adequate public facilities and services exist, or can be provided in an efficient manner. Reduce sprawl. Reduce the inappropriate con- version of undeveloped land into sprawling, low- density development. Public facilities and services. Ensure that those pubiic facilities and services necessary to support development shall be adequate to serve the devel- opment at the time the development is available for occupancy and use, without decreasing current service levels below locally established minimum standards. 8.2 COUNTYWIDE PLANNING POLICIES In King County, the CWPP's that were enacted pur- suant to the GMA also provide guidance with regard to multijurisdictional joint planning, annexation, and the phasing of urban development. The most applic- able policies are: LU28 Within the Urban Growth Area, growth should be directed as follows: a) first, to centers and urbanized areas with existing infrastructure capacity; b) second, to areas which are already urbanized such that infrastructure improve- ments can be easily extended; and c) last, to areas requiring major infrastructure improvements. LU29 All jurisdictions shall develop'growth phasing plans consistent with applicable capital facil- ities plans to maintain an urban area served with adequate public facilities and services to maintain an urban area to meet at least the six year intermediate household and employment target ranges consistent with LU67 and LU68. These growth phasing plans shall be based on locally adopted definitions, service levels, and financing commitments, consistent with State GMA requirements. The phasing for cities shall not extend beyond their Potential Annex- ation Areas. Interlocal agreements shall be developed that specify the applicable minimum zoning, development standards, impact mitiga- tion, and future annexation for the Potential Annexation Areas. Revised October 1998 VIII-1 Federai Way Comprehensive Plan Potential Annexation Areas LU30 Where urban services cannot be provided within the next 10 years, jurisdictions should develop policies and regulations to: of a full range of urban services to areas to be annexed. u Phase and limit development such that planning, siting, densities, and infra- structure 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. FW13 Cities are the appropriate provider of local urban services to urban azeas, either directly or by contract. Counties are the appropriate provider of most countywide services. Urban services shall not be extended through the use of special purpose districts without the approval of the city in whose potential annexation area the exten- sion is proposed. Within the urban area, as time and conditions wanant, cities should assume local urban services provided by special purpose districts. LU31 In collaboration with adjacent counties, cities, and King County, and in consultation with residential groups in affected areas, each city shall designate a potential annexation area. Each potential annexation area shall be specific to each city. Potential annexation areas shall not overlap. Within the potential annexation area, the city shall adopt criteria for annex- ation, including conformance with Countywide Planning Policies, and a schedule for providing urban services and facilities within the poten- tial annexation area. This process shall ensure that unincorporated urban islands of King County are not created between cities and strive to eliminate existing islands between cities. LU3Z A city may annex territory only within its designated potential annexation area. All cities shall phase annexations to coincide with the ability for the city to coordinate the provision LU33 Land within a city's potential annexation azea shall be developed according to that city's and King County's growth phasing plans. Un- developed lands adjacent to that city should be annexed at the time development is proposed to receive a full range of urban services. Subse- quent to establishing a potential annexation area, in-fill lands within the potential annexa- tion area which are not adjacent, or not practi- cal to annex, shall be developed pursuant to interlocal agreements between the County and the affected city. The interlocal agreement shall establish the type of development allowed in the potential annexation area and standards for that development so that the area is devel- oped in a manner consistent with its future annexation potential. T'he interlocal agreement shall specify, at a minimum, the applicable zoning, development standards, impact mitigation, and future annexation within the potential annexation area. LU34 Several unincorporated areas are currently considering local governance options. Unincor- porated urban areas that are already urbanized and are within a city's potential annexation area are encouraged to annex to that city in order to receive urban services. Where annex- ation is inappropriate, incorporation may be considered. As is demonstrated in the remaining sections of this chapter, the process Federal Way used in developing its PAA and the product itself, is consistent with the applicable Statewide and Countywide Planning Policies. 8.3 CITY OF FEDERAL WAY ANALYSIS Federal Way began its formal evaluation of a PAA with the publication of an issue paper dated July 1991. This paper examined the requirements of GMA as Revised October 1998 V111-2 Federal Way Comprehensive Plan Potential Annexation Areas they relate to UGA's, and included a discussion of how urban services were being provided. The paper also described special purpose district boundaries, the transportation system, parks and recreation facilities, and physical features that potentially affect urban service delivery. This information is summarized in the following paragraphs. As noted earlier in this chapter, the GMA requires that urban growth be planned to occur only in areas that have adequate public services and urban government services to accommodate development. The GMA defines such services as fire, law enforcement, public health, education, recreation, sanitary and storm sewers, and domestic water supplies. With this in mind, this section reviews how and where urban services are provided in the unincorporated area surrounding Federal Way. Fire Protection The Federal Way Fire Department provides service to the City of Federal Way and most of the surrounding unincorporated area. The Department was formed in 1980 from a series of inergers which united several C� smaller fire districts in the area, some of which had been in existence since 1946. The resulting boundary encompasses some 36.6 square miles and has an esti- mated population of over 100,000. As of this writing, the consolidation trend continues. The Federal Way Fire Department is part of an administrative merge with the King County Fire District that serves Sea Tac and the North Highline District to form a larger more cost effective organization. This latest effort should allow the Fire Department to continue providing high quality fire protection to the City and its PAA into the foreseeable future. The City has worked closely with the Department in reviewing a recently completed Fire District Master Plan which complies with the GMA. The Department currently has three stations within the City limits and three facilities in unincorporated King County, within the PAA (refer to Map VIII-1 for locations). The Department's Master Plan identifies the new facilities the Department will need to continue providing ser- vice as its service area grows. The City included the Department's new facilities requirements and cost and revenue estimates in the City's Capital Facilities chapter. This should help to ensure that the Depart- ment has access to the most up to date information about population and employment growth, and is doing its long range facilities planning consistent with the City's Land Use and Economic Development plans. Law Enforcement At the time of incorporation, the City began contract- ing with the King County Sherif�s Department for police services. In the spring of 1995, the City decided to terminate its contract relationship with King County and form its own police department. The City's Public Safety Department began limited service on Septem- ber 16, 1996, and was fully operational on October 16, 1996. Federal Way's police department could be expanded at some time in the future so that it could effectively provide services to the PAA. Education Probably more than any other special district, a school district provides an area with a sense of community. The Federal Way School District #210 (as outlined on Map YIII-2), extends from the county line south to South 252nd west of I-5 and South 232nd Street, east of I-5 to the north, and for the most part along the edge of the plateau to the east. A school district pro- vides a common thread, be it through school activities such as organized sports, or through voting during school bond elections. City staff ineet regularly with School District admin- istrators to discuss growth management and school development issues. The District administration has indicated in these meetings that they would prefer to work with one jurisdiction as the District attempts to anticipate growth and develop plans for new school facilities. Revised October 1998 VIII-3 Federal Way Comprehensive Pian Potential Annexation Areas Parks and Recreation T'he City of Federal Way Parks, Recreation, and Cultural Services Department has developed a Com- prehensive Parks Recreation Plan for the City. The plan is based on the boundary of the Federal Way School District (Map VIII-2). The plan divides the area into subareas (Map VIII-3) for purposes of long range planning. Areas within the existing City limits are contained within subareas A through E, and areas in unincorporated King County are in F through H. The City has already committed funds to developing park lands outside the City limits. For example, Federal Way has purchased approximately 14.9 acres of property adjacent to King County's 14 acre Camelot Park. This is to remain a passive open space park with development being limited to parking and trail devel- opment within the park. The acquisition also provides much needed public access to the area that is virtually nonexistent for those that do not live next to the existing pazk. In addition, the City has begun to offer recreation and leisure programs at a variety of school sites, some of which are on the east side of Interstate 5, in the UGA. Interest in these programs is high and they are attrac- ting large numbers of citizens from both within and outside the existing City limits. In August of 1993, the City opened a new Community/Senior Center, Klahanee Lake Community Senior Center, that serves the greater Federal Way area. The center offers pro- grams to residents of the City and those in the sur- rounding unincorporated areas. District is about South 280th Street with a narrow strip extending along Puget Sound to South 252nd Street. The water service area boundary differs from the District boundary most noticeably on the west, where the boundary is along 30th 35th Avenue SW, and does not include the area in Milton along the King County line to the south. The entire boundary of the District is contiguous with other neighboring water systems. Maps contained in the District's water sys- tem comprehensive plan describe an extensive system of wells, storage tanks, and distribution mains. The water distribution infrastructure is sufficient to pro- vide water to virtually all the District. Sewer service is available in several azeas outside the City limits including the CamelodStar Lake area, north of Lake Dolloff, Redondo, Woodmont, a small area east of I-5 and south of Kitts Corner Road, and Portions of the Weyerhaeuser Corporate campus east of I-5. The sewer collection system is a combination of gravity flow lines and force mains. Map YIII-S indi- cates the sewer service area and drainage basin bound- aries. This boundary was modified in 1987 to extend a small portion of the service area further north adjacent to Puget Sound, and to include areas south to Pierce County. The map from the sewer comprehensive plan is used for illustrative purposes. Lakehaven Utility District has the treatment system capacity to extend sewer service to the majority of the City's PAA. i Water and Sewer The Lakehaven Utility District provides water and sewer service to properties within the City and to most of the unincorporated area surrounding the City. As indicated on Map VIII-4, the current District boundary is bordered on the south by the Pierce/King County line, on the east by the Green River Valley, and on the west by Puget Sound. The northern boundary of the Surface Water The City of Federal Way operates a surface water management utility which provides service to prop- erties within the City. The majority of the land area within the City is contained within the Hylebos Creek and Lower Puget Sound Drainage Basins. Map YIII-6 describes the boundaries of the major drainage basins and sub-basins in this area. East of I-5, surface water generally flows east into the Green River Valley basin. 1._J Revised October 1998 V111-4 CITY OF FEDERAL WAY COMPREHENSIVE PLAN 0 FEDERAL WAY FIRE DEPARTMENT #39 POTENTIAG ANNEXATION AREAS ELEMENT Federal Way City Limits Potential Annexabon Area Fre Department Boundary 0 Existing Fire Station Locations Proposed Fire Station Locations SCALE 1 Inch equals 4,500 Feet s cm oF G �r"}� wi ��o��� MAP Vlil-1 NOTE: This map is intended for use as a graphical representation onry. The City of Federal Way makes no warranty as to its accuracy october 199a �Z o g t� m o� H T N n N O y N �w m w N o y 1 0 0 a -v N m �a m 8' m t m z o r m C z 0 r m m D r m D m n C a O �I J J m z rn O v r O 0 0 r f o mm Nm m� PARKS PLAN • • r z r v �. � � � z � O c� m � gH a� G g y Q � _ �� �a _ o� � y � �' �o m N � s �' �� .� �� �d 0 � N 0 � � � � i� � � � � � � � � � - � � � � m � � � O � � .. � � .T � � m n �a �� V � V � � � �,;= j `% ••. ♦ •. � � � � � � � ' < � � a m � � � � -°• � � � � � r o � _ � � _� a � � � � � � � Z � � � � � m � �'z � v_r v, a �rn � � � � � C � Z � � Z � v- �r � � '< ""� r � � � O m '� _ �m <� m �� � CITY OF FEDERAL WAY COMPREHENSIVE PLAN � LAKEHAVEN SEWER SERVICE AREA AND BASINS POTENTIAL ANNEXATION AREAS ELEMENT Legend: ��•,' Federal Way City Limits /�� Poterrtial Annexation Area .•'~••�•° Lakehaven District Boundary �•'�' Lakehaven Sewer Service Area �''�,•� Lakehaven Sewer Basin Areas • -- SCALE -�- 1 Inch equals 4,700 Feet Source: Lakehaven Utility District � crtroR G `` � M F�Y QIS DM9WN MAP VIII-5 NOTE: This map is intended for use as a praphical representation only. The City of Federal Way madces no warranry as to its a�xuracy Decanber 1997 SN/cpmapsllssa.aml � � . Federal Way Comprehensive Plan — Potential Annexation Areas � King County currently provides surface water man- agement services to the unincorporated area. If and when annexations to Federal Way occur, the City's surface water utility could be expanded to provide service. However, because the majority of the PAA is in different drainage basins, it may make more sense and be more cost effective to contract with the County utility or the valley cities to provide surface water facilities to the properties in the PAA. The high level of accessibility from Federal Way to the east plateau promotes urban service delivery and underscores the sensibility of including the entire plateau in the City's UGA. The lack of easdwest transportation corridors would appear to impede the ability of cities on the floor of the Green River Valley to provide adequate levels of urban services to the area on the plateau. Transportation In terms of a street system, the area east of Interstate 5 is well connected to the City. There are no less than six principal arterials and three minor arterials that provide access across I-5. These arterials include: 1) SR 161, 2) SR l8 at South 348th Street, 3) South 320th Street, 4) Military Road at two locations, 5) South 272nd Street, 6) South 336th Street, 7) South 288th Street, and 8) South 375th Street. This degree of arterial access allows quick response times for emer- gency service vehicles such as police, fire, and aid � units. Due in large part to the steep slopes along the eastern edge of the plateau, the access east to communities in the Green River Valley is not particularly good. Map VIII-7 describes the street classifications for the Federal Way Community Planning area developed by King County. The only easdwest links from the plateau to the valley in the southern half of the plan- ning area are: 1) State Route 18, a limited access roadway; or 2) the Peasley Canyon Road, a narrow, winding road that eventually turns into 320th Street on the plateau. In the northern portion of the planning area, the major east/west connection from the plateau to the valley is 272nd Street, which is a four-lane roadway that can be hazardous during the winter months. The north/south transportation system along the plateau, between the City of Federal Way and Kent and Des Moines to the north, is more developed. Pacific Highway (99) and Military Road provide the major north/south arterial links, with I-5 providing regional linkages north and • south from the area. Topography A final point addressed in the 1991 issue paper con- cerns buffers and open space. The GMA (RCW 36. 70A.160) requires that cities, "...shall identify open space corridors within and between UGA's." The City and the surrounding unincorporated area sits on a plateau which has an average elevation of 300 to 400 feet above sea level (Map YIII-8). At the east edge of the plateau, steep slopes drop off to the Green River Valley below. These slopes are heavily forested, and because of the 40 percent slope, are generally unde- velopable. These slopes provide natural separation or open space corridors between the City's UGA's and those of the City of Auburn, as required under the GMA. 8.4 UNINCORPORATED SW KING COUNTY CITIZEN ADVISORY COMMITTEE Concurrent with the City of Federal Way's PAA evaluation process, King County initiated an infor- mation gathering process in the unincorporated areas surrounding the City. The King County Council formed a citizen's advisory committee (CAC) from the unincorporated areas surrounding the City to look at the PAA issue. The group was officially known as the Unincorporated Southwest King County Citizen Advisory Committee. Their mission was to advise the County Council where the PAA boundaries ought to be drawn in areas of the County. The CAC identified neighborhoods in the unincorporated area and the committee included residents from each of these geographic areas of the planning area. Revised October 1998 VIII-11 W W CITY OF FEDERAL WAY COMPREHENSIVE PLAN FUNCTIONAL CLASSIFICATIONS --r OF EXISTING STREETS `� - - -- •'" _ '' -.- �• AND HIGHWAYS Puget Sound -' r POTENTIAL ANNEXATION AREA ELEM ENT ' - - -- Legend f L - - - i , --- Federal Way City Limits ° "- ink- 0 . • • ' Potential Annexation Area � I , ♦ ! - - + -A t �♦ a ' 4 Freeway ♦• ^� Principal Arterial ; 1 ♦ ,. - -- - ; -' Minor Arterial Principal Collector • �� Minor Collector ,♦ t AT I ♦, - - -- - - - - - -- ♦. ... - -SCALE � FZ- ♦` ♦� 1 inch equals 6,800 Feet . -- -� MAP VIII -7 19W W W 25 FOOT CONTOURS Federal Way Comprehensive Plan — Potential Annexation Areas � The CAC, working with King County planning staff, developed a public outreach program to inform the citizens in the unincorporated areas of the work being done by the CAC. They commissioned a random sample telephone survey and mailed a questionnaire to gather information from area residents about annex- ation, urban service delivery, and their affinity toward the surrounding cities. Survey results were presented on a subarea or neighborhood breakdown to assist the CAC in making PAA boundary decisions. Based on these results, the CAC forwarded recommendations to the King County Council as described on Map VIII-9. 8. LICY/IMPLEMENTATION Im lementation of the PAA element of the Compre- h nsive Plan will involve surrounding cities and King ounty. Policy direction for PAA's has been estab- lished by the CWPP's. The following are the City's goals, policies, and action items that relate to PAA's and establish a framework for reviewing future requests. Goal PAAG1 Establish a Potential Annexation Area Boundary for the Ciry of Federal Way. 8.5 CITY OF FEDERAL WAY ADOPTION PROCESS As discussed earlier in this chapter, the analysis that was included in the 1991 issue paper provided the basis for a proposed PAA area for the City. Staff � presented the issue paper and proposed Urban Growth Boundary to the Federal Way Planning Commission. The Commission reviewed the proposal and held a public hearing. Most of the testimony received by the Commission was supportive of the proposed urban growth boundary. The Commission recommended that the City Council adopt the proposed PAA boundary. The City Council accepted the recommendation, but did not adopt it. Rather, the Council directed staff to begin negotiations with the neighboring cities of Auburn, Milton, Algona, Pacific, Des Moines, and Kent, all of whom had developed urban growth boun- daries that overlapped with Federal Way's proposai. The City negotiated with each of its municipal neigh- bors for the better part of a year. By the Fall of 1993, staff presented a revised PAA boundary to the City Council. The Council reviewed the proposal and adop- ted the PAA boundary on December 21, 1993. That boundary was amended in 1994. The City executed interlocal agreements with all of the neighboring cities based on the boundary described on Map VIII-10. • Policies PAAPl Using technical information provided, information from neighboring jurisdictions, and affected citizens, define and implement a PAA. PAAP2 Create and execute interlocal agreements on mutually agreeable PAA boundaries with the following King County cities: Des Moines, Kent, Auburn, Algona, Pacific, and Milton. PAAP3 Enter into an interlocal agreement with King County establishing the PAA for the City of Federal Way. PAAP4 Establish land use control, development plan review, and impact mitigation in the PAA through an interlocal agreement with King County. Goal PAAG2 Provide a framework for processing annexation requests. Revised October 1998 Vlil-14 Federai Way Comprehensive Plan — Potential Annexation Areas Policies PAAPS Process annexations of appropriate size. Appropriate size means an area that war- rants the staff time and expense involved in processing annexation requests and com- plies with the goals of the GMA and the C WPP's. PAAP6 Annexations generally should not have or create abnormally irregular boundaries. PAAP7 The annexation must, to the greatest extent possible, preserve natural neighborhoods and communities. PAAP8 The annexation, where appropriate, should adjust any impractical or irregular boundaries created in the past. PAAP13 The City will make a reasonable effort to ensure a smooth transition from King County to City of Federa( Way administration. PAAP14 The Ciry should establish departmental service needs prior to major annexations through a fiscal impact analysis. As revenues from each annexation area are collected, increase City services to main- tain current Citywide levels of service. PAAP15 Provide newly-annexed areas with the same level of service enjoyed by areas inside Federal Way, while at the same � • time maintaining current Citywide service levels. Goal PAAP9 Proposed annexations should use the 60 PAAG3 Develop a Comprehensive Plan map and percent petition method whenever possible. proposed aoning for the unincorporated areas of the Federal Way Potential PAAP10 Simultaneous adoption of proposed zoning Annexation Area. regulations should be required of all annexations. Policies PAAPIl Where appropriate, the City should allow PAAp16 Identify land uses in the Comprehensive concomitant development agreements in the Plan for the unincorporated areas and P�►�►'s• include proposed zoning for these areas. PAAP12 1'he City will require owners of land annex- pAAp17 Include policy direction in the Compre- ing into Federal Way to assume their pro- hensive Plan for the areas within the PAA portion of existing City bonded boundary relating to land use, transporta- indebtedness. tion, capital facilities, housing, and utilities. � • Revised October 1998 VIII-15 � C J • � � � � �� � `� � ��. � �.� �� 3 �a o� � N �� � N � a� �� � �� 0 � � � � R � � � $ � �. 'v C .... � .... 1 � � ..� 3 � z `° 1 m� �a �� o� c � � .. � � � a co � D � � X 0 _ � � �� ;' .. �t r � � w a � � � � � O � � � � � z � � rn � m � a z z rn � � � Z a �o rn n � � � rn Z � a r i � -o � �� rnm Nm <� rn �� �� Natural Environme�t � � � l / _ �� I _ ----- ' _� l_ , _ _ , _ _ _, � , � '� � -- � - ' �------------ _-_� , � � , J --_---------------� C � � O il�+ C O .� � r� ' :s � 0 ` �.1� Federal Way Comprehensive Plan — Natural Environment • 9.0 INTRODUCTION aintaining and improving the quality of the natural environment in Federal Way is central to the City's vision of the future. The quality of the City's hydrologic features, forested areas, and scenic vistas is one of the primary reasons that many families have chosen to live in Federal Way. Business people also make locational decisions based, in some measure, on quality of life factors and one might argue that the quality of the natural environment is important to the economic vitality of the City. Finally, maintaining the viability of the natural environment is prudent and cost effective public policy. If, for example, the City maintains or improves, the natural drainage system and how it functions, it will save tax dollars by not having to build and maintain costly storm drainage facilities. The intent of this chapter, and the goals and policies it contains, is to guide future actions such that the quality of the natural environment is maintained or improved. � The State Growth Management Act And Countywide Planning Policies • The Growth Management Act (GMA) defines critical areas as wetlands, aquifer recharge areas, fish and wildlife habitat, frequently flooded areas, and geolog- ically hazardous areas. Pursuant to the GMA (RCW 36.70A.060), the City amended its critical area regula- tions in 1993 to regulate development in environ- mentally sensitive areas. These amended regulations are contained in Article XIV, of the Federal Way City Code, titled Environrnentally Sensitive Areas. The City refers to "critical areas" as "sensitive areas" in its ordinances and the two terms are used interchangeably in the Comprehensive Plan. GMA also requires the protection of resource lands. Resource lands are defined as land related to resource- based industries, including productive timber, agri- culture, fisheries, and mineral extraction. Since Federal Way does not have land used by resource- based industries, policies regarding these types of lands are intentionally absent from this chapter. Development of this chapter is based on the same premise adopted in the King County Countywide Planning Policies (CWPP's) pertaining to the Natural Environment. Countywide Planning Policy FW-4 states in part, "Land use and development shall be regulated in a manner which respects fish and wildlife habitat in conjunction with natural features and functions, including air and water quality. Natural resources and the built environment shall be managed to protect, improve and sustain environmental quality while minimizing public and private costs. " 9.1 NATURAL ENVIRONMENT GOALS AND POLICIES Environmental Stewardship Federal Way recognizes that the natural environment is an intrinsic part of the urban fabric for the following important reasons: ■ It provides opportunities for recreation; ■ It provides habitat for wildlife and plant life; ■ It is part of the City's surface water management system and water supply; ■ It creates a positive visual image and open space; ■ It supports economic development goals; and ■ It is cost effective public policy. The merits and costs of environmental actions must be weighed and balanced against other important demands, such as public safety and recreation, hous- ing, public infrastructure, and economic development. Goal NEG1 To preserve the City's natural systems in order to protect public health, safety, and welfare, and to maintain the integrity of the natural environment. Revised Oecember 1998 IX-1 Federal Way Comprehensive Plan — Natural Environment Policies The City's natural environment is composed of a wide variety of land forms, soils, water courses, and vege- tation. The City's terrain ranges from steep hills and ridge lines to plateaus and lakes. Soil types vary from loam in the lowlands to sand, gravel, and till in the uplands. Land use and development practices need to be compatible with this variety of environmental con- ditions. As a general rule, the City intends to protect the natural environment rather than try to overcome its limitations for development. NEPl Protect and restore environmental quality through land use plans, surface water manage- ment plans and programs, comprehensive park plans, and development review. NEP2 Preserve and restore ecological functions, and enhance natural beauty, by encouraging com- munity development patterns and site plan- ning that maintains and complements natural land forms. NEP3 To the maximum extent practical, the City's future actions will be consistent with the goals and policies of this chapter of the Comprehen- sive Plan. NEP4 The City should work in concert with state and regional agencies, as well as with neigh- boring jurisdictions and tribes, to protect sensitive areas and the City's natural environment. NEPS To assist in evaluating existing and proposed environmental policy, the City should prepare inventories for each type of sensitive area to augment data received from other information sources. NEP6 The City encourages private donations of land or conservation easements for sensitive areas and their associated buffers. NEP7 The City may continue to require completion of environmental studies by qualified profes- sionals to assess the impact of proposed development on sensitive areas. 9.2 WATER RESOURCES Water resources include: streams, lakes, frequently flooded areas, wetlands, aquifer recharge areas, and shorelines. The aquifers and aquifer recharge areas are the primary source for the community's drinking water. The streams and wetlands are an essential part of the City's storm water drainage system that provide necessary flood and erosion control. The lakes and shorelines provide fish and wildlife habitat and valued places for recreation. To protect the value and function of each individual part, water resources must be managed as an integra- ted system. Use and modification of water resources and the surrounding terrestrial environment affects how the hydrologic cycle functions. The inappropriate alteration of water resources can cause detrimental impacts such as flooding, erosion, degradation of water quality, reduction in groundwater, and habitat loss. In order to minimize adverse impacts to water resources and to ensure their continued viability, the City promotes responsible land and water resource planning and use. The City will permit development in a manner that protects water quality and ensures continued eco- logical and hydrologic functioning of water resources. Protection should include maintenance of stream base flows, allowance of natural water level fluctuations in wetlands, aquifer recharge, and stream corridor habitat preservation. Due to the limited capacity of the under- lying aquifers and increased water demand, the City also encourages groundwater conservation measures. � � • Revised December 1998 IX-2 Federal Way Comprehensive Pian — Natural Environment Aquifer Recharge Areas (Groundwater) �� � Federal Way is dependent on groundwater as a primary source of drinking water. Although the Lake- haven Utility District does procure water from other purveyors, its main source is from the Redondo- Milton Channel aquifer that underlies the City. At present, the City has a general map of the aquifer recharge areas within the City. However, the District notes that the precise extent of aquifer recharge areas is uncertain, and these maps are being continually updated as studies are completed and new information is made available. Typical activities associated with land development, such as clearing and grading, affects the natural hydrologic cycle. Historically, stormwater was managed in a way that conveyed it to natural water bodies as expediently as possible. All of these activ- ities decrease the land's ability to absorb and retain water and increases the possibility of contamination. In addition to affecting aquifer recharge potential, increased runoff rate and volume has a deleterious effect on stream channels, water quality, and in-stream habitat. The following CWPP's address aquifer recharge areas and are consistent with the City's policies. Countywide Planning Policies NEP8 All jurisdictions shall adopt policies to protect the quality and quantity of groundwater. NEP9 Land use actions shall take into account impacts on aquifers determined to serve as water supplies. The depletion and degradation of aquifers needed for potable water supplies should be avoided or mitigated. Map IX-1, Areas Susceptible to Ground Water Con- tamination, is a map produced by the King County Department of Development and Environmental Services and Seattle-King County Health Department as a result of the study entitle MappingAquifer Susceptibility to Contamination in King County. This • study looked at three criteria: soils, surface geology, and depth to groundwater. Based on these criteria, areas were mapped as low, medium, or high suscep- tibility to contamination from activities occurring in the area. This information is the best available at this time and will be used along with other information on streams, wetlands, and wildlife habitat to determine appropriate zoning. Goal NEG2 To protect aquifer recharge areas. Policies NEP10 The City, in cooperation with Lakehaven Utility District, should continue to identify and map aquifer recharge areas within the City and its annexation area. Such areas shall be subject to regulations to protect the integ- rity of identified aquifer recharge areas. NEPII The City should encourage the retention of surface water runoff in wetlands, regional retention facilities, and in detention ponds, or use other similar storm water management techniques to promote aquifer recharge. NEP12 The City should establish land use and building controls to use stormwater infiltra- tion wherever feasible, and to minimize the amount of impervious surface created by development. NEP13 The City recognizes that septic tank and drain field systems have a potentially adverse impact on groundwater aquifers. If adequate engineering solutions are available, the City may require connection to sanitary sewer service where poor soil conditions persist and/or sewer service is available. Wellhead Protection Areas Because the City relies on groundwater for its drinking water, it must take preventative measures to avoid contamination in areas surrounding well sites. Revised December 1998 IX-3 Federal Way Comprehensive Plan — Natural Environment In addition, the City and Lakehaven Utility District should work cooperatively to implement the State's Wellhead Protection Program and Section 1428 of the 1986 Federal Safe Drinking Water Act, which gen- erally requires mapping wellhead protection zones and establishing an interagency wellhead protection plan. The Lakehaven Utility District is coordinating with local, state, and federal agencies to develop a Well- head Protection Program (WHPP) with the primary goal of preventing contamination of the groundwater supply. Another goal of the program is to promote awareness of special efforts to protect the groundwater and urge customers to take a proactive approach to protecting the source of the City's drinking water. The District anticipates completion of this program by the end of 1999. The following CWPP's and City policies will address wellhead protection. funds are budgeted for such modeling and mapping. � Countywide Planning Policies CAS(c)(2) Develop a process by which land use jurisdictions will `implement, as appra priate, purveyor Wellhead Protection Programs required by the Federal Safe Drinking Water Act.' CAS(c)(3) Determine which portions of mapped recharge areas and Wellhead Protection . Areas should be designated as critical. Goal NEG3 Implement a local wellhead protection pro- gram to ensure a safe source of drinking water and to avoid the large financial impact of contaminated wells. Policies NEP14 The City will work in conjunction with local water purveyors to delineate Wellhead Pra tection Areas for each well and wellfield as required and outlined by the State's Wellhead Protection program. NEP15 The City will work with water purveyors to model and map Wellhead Protection Areas, as NEP16 The City will work with water purveyors to conduct an inventory of all potential sources of ground water contamination within the Wellhead Protection Areas and assess the potential for contamination. NEP17 The City should establish an interagency Wellhead Protection Committee to coordinate and implement a Wellhead Protection Plan. NEP18 The City will work with water purveyors to develop a contingency plan for the provisions of alternate drinking water supplies in the event of well or wellfield contamination, as funds are budgeted for such purpose. NEP19 The City should establish buffer zones of sufficient size to protect wellhead areas. Streams And Lakes (Surface Water) � The City of Federal Way is located within the Hylebos Creek, Lower Puget Sound and Mill Creek drainage basins. These basins contain an integrated system of lakes and streams that provide a natural drainage system for over 36 square miles of southwest King County and northeast Pierce County (Map IX-2). Due to rapid urbanization, this natural system has been altered and in many areas no longer provides its original function or habitat. The primary focus of the policies below are to restore the natural functions that the City's lakes and streams once provided. Moreover, the CWPP's and the City's policies below acknow- ledge that it is more cost effective to restore the natural system than it is to construct a man-made equivalent. Countywide Planning Policy CA15 All jurisdictions shall implement the Puget Sound Water Quality Management Plan to restore and protect the biological health and • diversity of the Puget Sound Basin. Revised December 1998 IX-4 AREAS SUSCEPTIBLE SURFACE WATER RESOURCES Federal Way Comprehensive Plan — Natural Environment � Goal NEG4 Protect, restore, and enhance the City's lakes and streams. Policies NEP20 T'he City will seek to work cooperatively with King and Pierce County Surface Water Man- agement Divisions, the Puget Sound Water Quality Authority, Washington Department of Ecology, and other affected jurisdictions and tribes to implement water quality management strategies and to comply with Municipal National Pollutant Discharge Elimination Sys- tem regulations to address non-point pollution. NEP21 Surface water management facilities which use natural streams and lakes for storage should ensure that those natural features are not adversely impacted by their inclusion in the surface water system. • NEP22 The City may regulate private development and public actions to protect water quality and to ensure adequate in-stream flow to protect fisheries, wildlife habitat, and recreation resources. NEP23 The City will seek to retain native vegetation within riparian corridors. New planting of vegetation with the approval from the City may be required where such revegetation will enhance the conidor's function. Consideration should be given to the removal of non-native mvas�ve spec�es. � NEP24 Lakes should be protected and enhanced by proper management of watersheds and shore- lines, by improvements in water quality, by removal of invasive plant species, and by restoration of fish and wildlife habitat. NEP25 The City should adopt stream definitions that are reflective of stream function and habitat. The definitions should make a distinction between manmade conveyance systems and natural streams. NEP26 The City should continue to restrict stream relocation projects, the placing of streams in culverts, and the crossing of streams for both public and private projects. Where applicable in stream corridors, the City should give con- sideration to structures which are designed to promote fish migration and the propagation of wildlife habitat. NEP27 Erosion control measures shall be used for any work in or adjacent to stream or lake buffers. NEP28 Appropriate mitigation for detrimental im- pacts may be required for construction work within the buffer area associated with a stream channel or a lake. Furthermore, the City should work in cooperation with the Department of Fish and Wildlife through the Hydraulic Pro- ject Approval permit process for all develop- ment proposals which involve streams. NEP29 Essential public facilities and utilities may cross lakes or streams where no other feasible alternative exists. The amount of intrusion shall be the minimum necessary to complete the project. Frequently Flooded Areas Frequently flooded areas are defined as, "...areas in the floodplain subject to a one percent or greater chance of flooding in any given year including but not limited to, such areas as streams, lakes, and wetlands." Development in flood plains reduces the storage capa- city and increases the amount of runoff. Increased runoff overtaxes both natural and man-made convey- ance systems and leads to damage of public and pri- vate property. Cunently, there are no frequently flooded areas recog- nized by the Federal Emergency Management Act (FEMA) within the City of Federal Way. However, there are areas which meet the City's definition of frequently flooded areas. The policies below have been adopted to address those areas. Revised December 1998 IX-7 Federal Way Comprehensive Plan — Natural Environment Countywide Planning Policy CAl2(b) Each jurisdictions policies, regulations, and programs should effectively prevent new development and other actions from causing significant adverse impacts on major river flooding, erosion, and natural resources outside their jurisdiction. of the City's wetlands have been identified both by � private property owners and the City, undoubtably there are other wetlands which have not yet been precisely located and mapped. The following CWPP's and City policies address the protection of wetlands. Countywide Planning Policies Goal NEGS To prevent the loss of life and property in frequently flooded areas. Policies NEP30 T'he City should restrict the rate and quantity of surface water runoff to pre-development levels for all new development and redevelopment. NEP31 Where feasible, the City shall protect and enhance natural flood storage and conveyance function of streams, lakes, and wetlands. Wetlands Wetlands are valuable natural resources. There are several types of wetlands in the City and each plays a valuable role in the hydrological system. Wetlands types include marshes, bogs, ponds, forested, and scrub-shrub wetlands. By storing flood waters, wet- lands reduce flooding and down stream erosion; trap and absorb sediments; and help protect water quality. Furthermore, wetlands discharge water to aquifers and streams and help serve to replenish groundwater and maintain base flows of surface water systems. In short, wetlands are productive biological systems pro- viding rich habitat for fish and wildlife, and important storage capacity for the hydrologic system. Federal Way has several regionally significant wet- land areas. The largest can be found in and adjacent to the West Hylebos State Park, Dash Point State Park, Dumas Bay, and throughout Spring Valley. Other smaller wetlands also dot the landscape. While many CA1 All jurisdictions shall use as minimum stan- dards the 1989 Federal Manual for ldentifying and Delineating Jurisdictional Wetlands and reference the 1989 manual in their wetlands protection ordinance. CA2 In the long term, all jurisdictions shall work to establish a single countywide classification system for wetlands. CA3 Within each basin, jurisdictions shall form- ulate their regulations and other nonregulatory methods to accomplish the following: protec- tion of wetlands, assure no net-loss of wetland functions; and an increase of the quantity and qualiry of the wetlands. The top class wetland should be untouched. CA4 Implementation of wetland mitigation should be flexible enough to allow for protection of systems or corridors of connected wetlands. A tradeoff of small, isolated wetlands in ex- change for a larger connected wetland system can achieve greater resource protection and reduce isolation and fragmentatiorr of wetland habitat. Goal NEG6 Protect and enhance the functions and values of the City's wetlands. Policies NEP32 The City will protect its wetlands with an objective of no overall net-loss of functions or values. � � Revised December 1998 �X-8 Federal Way Comprehensive Plan — Natural Environment • NEP33 The City shall, as a minimum standard, use the methodology in the January 1989 Federal Manual for ldentifying and Delineating Juris- dictional Wetlands. Subsequent United States Army Corps of Engineers regulatory guidance letters will be used for regulatory delineations of wetlands within the City. NEP34 The City will work with other jurisdictions, tribes, and citizen groups to establish wetland policies and a classification system for wet- lands that allows for the designation of both regionally and locally unique wetlands. NEP35 The City will work with the Lakehaven Utility District to evaluate pumping rates within the Hylebos Creek and Lower Puget Sound drain- age basin to establish the effect of ground- water withdrawal on streams, lakes, and wetlands. the City should consider the classification system and protection measures contained in the Department of Ecology's Model Wetlands Ordinance. NEP37 Required wetland buffers shall be comprised of native vegetation typically associated with the type of wetland in question. Intrusion into the wetland buffer may be restricted, except for the location of essential public facilities and utilities where no other feasible alternative exists. No complete inventory of Federal Way's wetlands has been done to date. The City has identified the need for an inventory to assist with wetland protection. A com- plete wetland inventory will help the City create policy that reflects local as well as regional condi- tions. In addition, the public will be able to better identify existing wetlands. At present, all wetlands in the City are afforded a I00 � foot uniform buffer regardless of wetland size or type. While this allows for predictability, it does not pro- vide for flexibility nor does it reflect the varying degrees of wetland functions, values, and quality. The result may be either excessive or insu�cient wetland buffering. To improve the sophistication of Federal Way's wetland buffer requirements, the following policies call for a review of the present buffering requirements. Goal NEG7 Develop a wetland buffer system reflective of the variety of wetlands found in the City. Policies NEP36 The City should consider implementing a tiered wetland classification system based on wetland functions and values. The wetland classification system would set forth the appropriate wetland buffer widths. Further- more, any new wetland classification system • should also contain provisions for allowing buffer width averaging. As a reference point, Goal NEG8 Conduct a wetland inventory and map the wetlands using the City's geographic infor- mation system. Policy NEP38 As sufficient funds are budgeted, the City will complete an inventory of its wetlands to better understand the wetland system, and to refine the policies and regulations that protect the resource. Inventoried wetlands should be ranked, delineated, and mapped on the City's Geographic Information System. The City may permit urban development to cause the destruction of wetlands determined to be replaceable based on a variety of factors. In these situations, com- pensatory wetland mitigation, such as wetland crea- tion, restoration, or enhancement, must be provided. The City recognizes that the elimination of certain wetlands in exchange for appropriate mitigation can contribute to the overall wetland system, and may in fact achieve better resource protection. Revised December 199$ IX-9 Federal Way Comprehensive Plan — Natural Environment Goal and, supports the land use policy in the Land Use chapter of the Comprehensive Plan. • NEG9 Explore ways of mitigating wetland loss. Policies NEP39 The City should develop a wetland mitigation banking program. The plan will address resto- ration, creation, enhancement, monitoring, and contingency planning for the replacement or enhancement of wetlands. Goal NEG10 Create a new shoreline master program that is consistent with community values, land use, and environmental protection. Policies NEP40 Mitigation sites should replace or augment the wetland values to be lost as a result of a development proposal. Sites should be chosen that will contribute to an existing wetland system or, if feasible, restore an area that was historically a wetland. NEP41 All wetland functions should be considered in evaluating wetland mitigation proposals, including fish and wildlife habitat, flood storage, water quality, recreation, educational . opportunities, and aesthetics. NEP42 The City will protect wetlands by maximizing infiltration opportunities and promoting the conservation of forest cover and native vegetation. NEP43 Wetlands created as a result of a surface or stormwater detention facility should not be considered wetlands for regulatory purposes. Special regulations concerning these faci- lities should be developed. Shorelines The City of Federal Way adopted the King County Shoreline Management Program (Program) shortly after the City's incorporation. King County's program is a functional plan and was developed in compliance with the State Shorelines Management Act. In 1998, a new program was developed for the City that better reflects the values of the community; is consistent with Environmentally Sensitive Areas regulations; NEP44 The City should create a new Shoreline Master Program that is consistent with State law, and the policy direction of the Natural Environment and Land Use Chapters of this Plan. NEP45 The Shoreline Master Program should recognize the unique recreational and natural habitat of the City's shorelines. 9.3 GEOLOGIC HAZARDOUS � AREAS Geologically hazardous areas include: steep slope hazard, landslide and erosion hazard, and seismic hazard (liquefaction-prone) areas. WAC 365-195- 200(9) defines geographically hazardous areas as, "...areas that because of their susceptibility to erosion, sliding, earthquake, or other geological events, are not suited to siting of commercial, residential, or indus- trial development consistent with public health or safety concerns." In Federal Way, geologically hazardous areas have been mapped along much of the Puget Sound shore- line and in more limited areas north of Steel Lake, and west and south of Hylebos State Park (Map IX-3). Landslide-Prone Areas represent a potential hazard to people and property. Inappropriate development activ- ities may disturb the natural stability of soils, su�cial geology, slopes, and hydrology to the point that mass wasting, erosion, high run off, and stream siltation u Revised December 1998 IX-10 :=_a � � � � � - ����� - . , . . Federal Way Comprehensive Plan — Natural Environment • may occur. There are many areas in Federal Way, par- ticularly the high bluffs along Puget Sound, that have high potential for landslide. These areas typically have slopes greater than 15 percent, springs or ground-water seepage, and highly permeable sand and gravel soils overlaying relatively impermeable silt and clay soils. Seismic Hazard Areas are characterized by low den- sity cohesionless soils in association with a shallow groundwater table. During an earthquake, these soils become highly unstable and are unable to adequately support structures. With appropriate construction techniques, such as soil compaction or pile construc- tion, building owners can minimize the potential for damage to some extent. To identify seismically hazardous sites and recommend appropriate construc- tion techniques typically requires the services of a qualified geotechnical engineer. Soil Erosion problems are typical in all areas of Federal Way. Generally, these problems are the result of improper or inappropriate grading and construction practices. However, there are small areas of the City • where the soils are so erosion sensitive that urban development is not appropriate because of the sensi- tivity of these soils to disturbance. Steep Slope Areas are typically found along the western portion of Federal Way, as the land ends in high bank above the Puget Sound shoreline. In addi- tion, there are other isolated areas throughout the City. These hillsides are either naturally unstable, or susceptible to instability when disturbed. The following CWPP's and the City policies address protection of geologically hazardous areas. � Countywide Planning Policy CA13 All jurisdictions shall regulate development on certain lands to protect public health, prop- erty, important ecological and hydro-geologic functions, and environmental quality, and to reduce public costs. The natural features of these lands include: a) Slopes with a grade greater than 40 percent; b) Severe landslide hazard areas; c) Erosion hazard areas; d) Mine hazard areas; and e) Seismic hazards. Regula- Goal tions shall include, at a minimum, provisions for vegetation retention, seasonal cleazing and grading limits, setbacks, and drainage and erosion controls. NEG11 To adopt standards to ensure against the loss of both public and private property in geo- logically hazardous areas. Policies NEP46 Land uses on steep slopes should be designed to prevent property damage and environ- mental degradation, and to enhance open space and wildlife habitat. NEP47 As slope increases, development intensity, site coverage, and vegetation removal should decrease and thereby minimize drainage problems, soil erosion, siltation, and land- slides. Slopes of 40 percent or more should be retained in a natural state, free of struc- tures and other land surface modifications. NEP48 Landslide hazard areas should be free of development, unless the risks and adverse impacts associated with such development can be reduced to a negligible level. NEP49 ln areas with severe seismic hazards, special building design and construction measures should be used to minimize the risk of struc- tural damage, fire and injury to occupants, and to prevent post-seismic collapse. NEP50 Prior to development in severe seismic hazard areas, the City may require special studies to evaluate seismic risks and to identify appropriate measures to reduce these risks. NEP51 The City should develop special regulations that address construction on or near marine bluffs of Puget Sound. Regulations should take into consideration landslide potential, drainage, and vegetation removal. Revised December 1998 IX-12 Federal Way Comprehensive Plan — Natural Environment NEP52 Proposals for development on or near marine bluffs should substantiate, either through design or adherence to special development regulations, that the development has less than a 25 percent chance of failing by collapsing, or becoming dangerous and/or uninhabitable natural wildlife habitat to urban development can be partially offset by landscaping that includes a variety of native plants which provide food and shelter for wildlife. . due to slope movement within a 50 year time period. NEP53 Development along marine bluffs should take into consideration the unique habitat these areas provide by leaving as much native vege- tation as passible, especially snags. 9.4 FISH AND WILDLIFE HABITAT AREAS Fish and wildlife habitat conservation areas are con- sidered critical areas and are necessary for either resident animal species, or seasonal migratory animal species. These habitats are extremely important and, if altered, may reduce the likelihood that a given species will survive. Habitat conservation areas may include areas of species richness, breeding habitat, winter range, and migration corridors. These also include habitats that are of limited availability or high vulner- ability to alteration, such as cliffs, talus, and wetlands (Map IX-4). This chapter also recommends that the City complete the necessary studies to identify and map habitat conservation areas so that they can be protected. Significant habitat also exists in aquatic, wetland, and riparian areas and on steep slopes that are privately owned, but protected by development regulations. Linking public and private natural areas can provide food, shelter, and migration corridors for a healthy and sustainable population of salmon, songbirds, and other species. Countywide Planning Policies Through the following goals Federal Way sets out to conserve, protect, restore, and enhance fish and wildlife habitat areas. CA8 All jurisdictions shall identify critical fish and wildlife habitats and species and develop regulations that: a) Promote their protection and proper management; and b) Integrate native plant communities and wildlife with other land uses when possible. CA9 Natural drainage systems including associated riparian and shoreline habitat shall be main- tained and enhanced to protect water quality, reduce public costs, protect fish and wildlife habitat, and prevent environmental degradation. Jurisdictions within shared basins shall coor- dinate regulations to manage basin and natural drainage systems wlxich include provisions to: a) Protect the natural hydraulic and ecological functions of drainage systems to maintain and enhance fish and wildlife habitat, and restore and maintain those natural functions; b) Control peak runoff rate and quantity of discharges from new development to approximate predevelop- ment rates; and c) Preserve and protect resources and beneficial functions and values through maintenance of stable channels, adequate low flows, and reduction of future storm flows, erosion, and sedimentation. CA10 Jurisdictions shall maintain or enhance water quality through control of runoff and best management practices to maintain natural aquatic communities and beneficial uses. � CAlI Jurisdictions shall coordinate land use plan- Urban landscaping, parks, and open space are valuable ning and management of fish and wildlife supplements to natural areas in terms of providing resources with affected state agencies and the • habitat for a wide variety of wildlife. The loss of federally recognized Tribes. Revised December 1998 � IX-13 PRIORITY HABITATS & SPECIES Federal Way Comprehensive Plan — Natural Environment � Goal NEG12 Preserve, protect, and enhance fish and wildlife habitat. Policies NEP54 As feasible, the City will conduct studies needed to identify and map critical fish and wildlife habitat conservation areas and may re-evaluate existing regulations for the protection of these areas. 9.5 AIR QUALITY Air quality, once a problem for other regions of the United States, is now a major problem in the Pacific Northwest. The preservation of clean air is essential to maintaining the quality of life enjoyed in this region. Air pollution in the Puget Sound Region is the result of increased vehicle emissions primarily from cars and trucks. Therefore, if this region is going to resolve its growing air pollution problem, it must develop a more efficient and less auto-oriented transportation system. NEP55 The City should manage ayuatic and riparian (stream side) habitat in a way that minimizes its alteration in order to preserve and enhance its ability to sustain fish and wildlife. NEP56 The City shouid preserve and enhance native vegetation in riparian habitat and wherever possible. The following CWPP's and City policies are adopted to protect air quality. Countywide Planning Policy CA14 All jurisdictions, in coordination with the Puget Sound Air Pollution Control Agency and the Puget Sound Regional Council, shall adopt policies, methodologies, and standards that promote regional air quality, consistent with the Countywide Policy Plan. � NEP57 The City should encourage residents and businesses to use native plants in residential and commercial landscaping. Gosl NEP58 The City will protect wildlife corridors in the City owned open space where appro- priate. These areas should use native plants that support native species of birds and animals where appropriate. NEP59 As feasible, the City will adopt and imple- ment fish habitat conservation plans for the salmon runs in the Hylebos drainage, Lakota Creek, and any other identified salmon streams. These plans will include recom- mendations for improvements to the riparian conidor and provisions for adequate buffers adjacent to all proposed development. NEP60 The City should encourage informational and educational programs and activities dealing with the protection of wildlife. An example of such a program is the Backyard • Wildlife Sanctuary program established by the State Department of Fish and Wildlife. NEG13 To protect air quality. Policies NEP61 Support State and Federal air quality standards and the regulation of activities that emit air pollutants. NEP62 Encourage transportation demand man- agement and alternatives to the single occu- pancy vehicle in order to reduce energy consumption, air and water pollution. 9.6 NOISE Noise pollution can be harmful to the general public's health and welfare and has adversely affected the livability and comfort of neighborhoods within the Revised December 1998 �X-15 Federal Way Comprehensive Pian — Natural Environment City of Federal Way. Noise is primarily generated by: air traffic from Seattle-Tacoma International Airport (SeaTac); vehicle traffic; and construction activities. The City will need to continue its efforts at the regional and state level to mitigate the impacts assoc- iated with the SeaTac Airport. Goal NEG14 Develop programs and/or regulations to address noise pollution in all areas of the City. Policies NEP63 The City should develop and adopt con- struction standards to mitigate noise genera- ted by SeaTac Airport and Interstate 5, as well as other major arterials. NEP64 The City will evaluate potential noise im- pacts associated with non-residential uses and activities located in residential areas as part of the site plan review process. The City may adopt noise levet standards for all non-residential uses. NEP65 The City will continue to work with the Port of Seattle to mitigate noise impacts within the 65 ldn contour. In this effort, the City will work with the Port to field verify the results generated by the Integrated Noise Model. NEP66 The City will continue to work in concert with the Puget Sound Regional Council, Regional Commission on Airport Affairs, and the Airport Communities Coalition, or their successors or other entities, to resolve problems associated with the proposed expansion of SeaTac Airport. NEP67 In developing new roadway systems, the City will evaluate the noise impact on resi- dential neighborhoods as appropriate in, or through, residential areas. 9.7 OPEN SPACE Trails and open space corridors form linkages between and within neighborhoods, commercial areas, and neighboring jurisdictions. Open space corridors also provide wildlife habitat, recreation areas, as well as visual and physical separation between land uses. In order to achieve an effective open space system, the City will work cooperatively with surrounding juris- dictions to construct a network of open space. Open space can include: environmentally sensitive areas, forests, pasture land, lakes, and waterways. Areas identified as open space in the Comprehensive Parks Plan may be purchased or otherwise protected from development by the Ciry. Countywide Planning Policies CC7 All jurisdictions shall work cooperatively to identify and protect open space corridors of regional significance. CC8 Jurisdictions shall work to protect visual access to water bodies and rivers, and provide for physical access where appropriate. CC13 All jurisdictions shall develop coordinated level of service standards for the provision of parks and open space. Goal NEG15 Develop an open space network throughout the City and with adjacent jurisdictions. Policies NEP68 Open space is as important as wildlife habitat and should be linked with open space identified in the King County Open Space Plan. NEP69 The City should identify an open space plan and develop a program to acquire or accept donations of these areas for preservation. � � • Revised December 1998 IX-16 Federal Way Comprehensive Plan — Natural Environment � NEP70 The City should consider innovative ways 2. Develop a new Shorelines Master Program to be of acquiring property for open space such as consistent with the policies of this chapter and the transfer of development rights and develop- Land Use chapter, community values, and State ment incentives for set asides. law; 9.8 IMPLEMENTATION The implementation of the policies contained in this chapter will occur over a number of years and is dependent on resources available to the City and the community. The 1995 Comprehensive Plan listed the following six implementation strategies to be imple- mented in the next five years: 1. Revise the City's wetland buffering requirement; � � 3. Adopt a new definition of stream to distinguish between man-made conveyance systems and natural streams, requiring a definition change to the Environmentally Sensitive Areas Ordinance; 4. Map wellhead protection zones; 5. Inventary wetlands; and 6. Update aquifer recharge area maps: The City is in the process of revising its wetland buffering requirements, adopting its own Shorelines Master Program, adding a new stream definition, and conducting a wetlands inventory. '� Revised December 1998 IX-17 Privats Ut���tie� � _ __l_ _ _J !__� � _ _ --- ______ --- i �� -- I --__ _ _ _ _ :__ _ __.____ 1 - �. � � ---- � ;---- _ — i �_ ____--- . --- ----- � � C !V � O � C O .� � .�.� � � O � �.1� Federal Way Comprehensive Plan — Private Utilities � 10.0 INTRODUCTION 10.1 ORGANIZATIONAL AND LEGAL CONTEXT his chapter satisfies a Growth Management Act (GMA) requirement that cities prepare a Pri- vate Utilities chapter. This chapter describes the location of existing utilities and the proposed loca- tion of new utilities, as well as the capacity of existing and proposed utilities. The GMA requires the Com- prehensive Plan to have internal consistency. This means that the Private Utilities chapter must be fully coordinated with other chapters of the Comprehensive Plan. This is particularly important for Federal Way's City Center and in the I-5/99 conidor where new development and other land use change is anticipated in the near future. In accordance with WAC 365-195-320(2)(c), this Private Utilities chapter includes plans for natural gas, electricity, telecommunications, and cable television � service for the City and its planning area (Map X-I — � Council Approved PAA Boundary). Each utility plan will describe and analyze existing and proposed utility ` systems within Federal Way and improvements neces- sary to meet growing consumer demand. In most cases, maps are provided to illustrate the existing sys- tem and proposed improvements. Plans for water supply and sewer are found in the Capital Facilities chapter of the Comprehensive Plan. The City sees the G1VIA's 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 en- sure that provision of utilities is properly coordinated with land use. The City acknowledges that it would not have been possibie to prepare this chapter without the assistance of, Puget Sound Energy, TCI, US West, and AT&T Wireless. � Privately owned electrical, natural gas, and line tele- phone 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, with the exception of line telephone, 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. At the time of writing, the City has a franchise agreement with TCI, Puget Sound Energy, and Metricom, a wire- less provider, and is in the process of negotiating with other wireless providers wishing to locate their infra- structure on city property. 10.2 COUNTYWIDE LAND USE POLICIES FOR UTILITIES The King County Growth Management Planning Council (GMPC) drafted the following Countywide policy which is relevant to private utilities: C06 Aggressive conservation efforts shall be impie- mented to address the need for adequate supply for electrical energy and water resources, pro- tect 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 exist- ing buildings. Revised December 1998 x"� Federal Way Comprehensive Plan — Private Utilities This Private Utilities chapter is consistent with the aforementioned Countywide Planning Policy. 10.3 PUGET SOUND ENERGY Description of Utility Puget Sound Energy Company, Inc., (formerly Puget Sound Power & Light Company and Washington Natural Gas Company) is an investor owned, private utility headquartered in Bellevue, Washington. It pro- vides electric and natural gas service to approximately 1,377,388 metered customers within the company's 6,000 square mile service territory. This service ter- ritory encompasses eleven counties in western and central Washington. Puget Sound Energy (PSE) Com- pany 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 com- petition among energy sources by encouraging the development of new natural gas resources and the development of nationwide trans-mission pipelines. PSE builds, operates, and maintains an extensive elec- tric and gas distribution system consisting of genera- ting plants, electric transmission lines, gas supply mains, distribution systems, substations, and pressure regulating stations. It is a hydroelectric-based com- pany purchasing about 40 percent of its power from utilities that own five large hydro facilities on the Columbia River. Six PSE owned hydroelectric plants, on the Nooksack, Baker, Snoqualmie, White, and Puyallup rivers add to the hydro base on the west side of the Cascades. Other PSE owned or partly owned sources include four coal- fired plants (in Centralia, WA and Colstrip, MT), and six gas and oil-fired plants. General Location Way is dependent on the local delivery system oper- ated 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 Northwest Pipeline Corporation, 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 (I1 SkT�. Schematically, Figure X- 1 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 which provides a link be- tween BPA's Bulk Transmission System and the local distribution system which 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 pro- vides to PSE is wheeling energy around the region. All the transmission lines supplying Federal Way are energized at 115kV (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 trans- mission system to Federal Way's local distribution system at six distribution sub-stations, their capacities and loading levels are shown in Table X-1. Power also comes into the City from sub-stations 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 115kV lines in order to increase system reliability. � � � Distribution Substations. Distribution substations Puget Sound Energy Company supplies electric and transform voltages of 115kV or greater to lower natural gas s�rvice within the entire limits of the City voltages of 12 or 34kV. The following stations are of Federal Way. The quality of service within Federal )ocated in Federal Way: Revised December 1998 X-2 CITY OF FEDERAL WAY CDMPREHENSIVE PLAN � (� �I . � � � I �'"'` � 1-'�. J �\ • ! , �, �\`� . 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Z' i � —_ � , j c, L; �'--LT-- . " �v ;�r '" i `� c � � � i � "��, I ' � �` ''\ � I r `• � I � \ ; QP ' ,'� �: � � , ��.: � - - S 373�D T Z�� :- �� � � ��` __�� �' .� �.b.=. .� ,��� _-- _ � � r � � -- � � ; � � / `� ��, � " .� -- . �'i� .; —li—�— '. .__ �__ - - . _ - - �,,� � � --- __-- --- �-� _ -- ---- -- r, B COUI�TC�� A��'ROVED �AA BO�Jl�DARY UTILITY PLAN ELEMENT LEGEND — � — � — � — FEDERAL WAY CITY LIMITS - - - - - POTENTIAL ANNEXATION AREA TWs nup Is Intended for use as a graphical representation only. The C�ty of Federat �/ny ronkes no warranty as to �ts accurncy. -� � MAP X-1 �� GIS DIVISION SCaLE: i" = 5,000� DarE: DECEhfBER :995 EXISTING AND PROPOSED IMPROVEMENTS �r: =� - 1 ,�► r ,•� j � r•:,,��J���F' e �.`_'� s L r1�..- rY_ 1%_. _ ti.t I Federal Way Comprehensive Plan — Private Utilities Table X-1 shows that 94.4 percent of the systems rated capacity is utilized at peak winter load; there is ade- quate supply of electricity for the existing City popu- lation. PSE predicts that the required load for the greater Federal Way area will grow by 103.9 MVA between 1990 and 2020. As of December 1997, there were 41,900 electric customers in Federal Way. facilities in TCL's tideflats area could potentially ex- �� pand the existing system. The timing of any improve- j ment would depend on the design and capacity of the cogeneration facility. Type of Service: Natural Gas Table X-1 Substation Loads and Capacity Distribution Rating Winter Load Substations (MVA) December 1997 (MVA) Lakota 25 23.2 Kitts Corner 25 26.8 Belmore I 25 17.5 Belmore II 25 213 Marine View 25 23.4 Starwood 25 22.5 West Campus 25 16.6 Future Facility Construction Map X-2 shows proposed transmission lines and sub- stations necessary to increase service reliability and/or capacity in the Federal Way area to meet projected load growth over the next 30 years. The additional substations needed include: ■ Enchanted ■ Killarney ■ Dolloff ■ Steel ■ Five Mile Lake ■ Twin Lakes ■ Federal Way PSE forecasts that these improvements, along with others elsewhere in the subarea, will produce a system that will be operating at 72.5 percent of capacity by the year 2020. In order to serve additional substations planned across the subarea, several transmission projects are planned. A new 115kV transmission switching station (Free- man) is proposed southwest of Milton. This new switching station would allow 115kV lines to be con- nected with Starwood, White River, and the proposed Alderton station. Additional transmission line and transformer capacity may be necessary on the PSE—Tacoma City Light (TCL) intertie at Starwood. Proposed cogeneration Puget Sound Energy Company provides natural gas to the City and sunounding communities through a net- work of interconnecting supply and distribution mains (see Map X-3). The components and hierarchy of natural gas supply are illustrated in Figure X-2. According to PSE's Rate Department, the average house (using natural gas for both heat and hot water) consumes about 1,000 therms per year. Ten therms equals approximately one "mcfl' (one thousand cubic feet) of gas per year. When planning the size of new gas mains, PSE uses a saturation model which assumes all new households will use natural gas since 99 percent of new homes constructed, where builders have the choice, are using natural gas. Extension of service (typically conver- sion) is based on request and the results of a market analysis to determine if revenues from an extension will offset the cost of construction. PSE had 17,000 gas customers in the City as of December 1997. There were 11,500 in the City in December 1987. Based on growth, PSE anticipates 20,000 customers in the City by 2007. The existing system is capable of supplying approximately 50,000 customers in the Federal Way area. Gas Supply Mains: These are generally larger dia- meter (6" steel wrapped and over) mains designed to operate at higher pressure (100 psig to 250 psig) to deliver natural gas from the supply source to pressure reducing stations. PSE has 35,650' of 12" STW (steel wrap) supply main located in Military Road South and 3,200' of 6" STW located elsewhere. � , Pressure Reducing Stations: These are located at various locations throughout the system to reduce supply main pressure to a standard distribution opera- ting pressure of approximately 60 psig. There are five • regular stations located in Federal Way. Revised December 1998 X-6 WASHINGTON NATURAL GAS SUPPLY MAINS WASHINGTON NATURAL GAS � ;� � 0 ..' :.":':' � C �� �a �;�r.���� <<�a OATE STATION The point at which Oas . Irom NW Plpeline enters the WNG system. Here REGULA70R Most an odorant ls added meter selt U�c1u0e �� lor aalely. Pressure Is requlatot rrMcA cula reduced to 20010 3� LIMITING STATION the pessure to aEoui � psl, and the 9as Here the pressure Is 1/4 psl. TAe METHR Is me�ered. reduced Irom 260 psl at your hane measures to belween 60 and 200 psl. tAe artatmt ol twhttal � UmlUnq stallons are ollen qas Delnp used lot above�qround suuctures. space and eitW heatinq �� . � and othe� uses, � �- � y – � . -- > .1 � J 't.�t� h • . rt.�. • � - � � '� > > � � ,� — TRANSMISSION LINE ,� These unGerqtound Ilnes aro between 6 ,� and 16 k�cl�s in dtamde� Prr,ssnre In � � r r tAese Ilnes �verapes around 250 psl. n n n n n , SEBVICE LINE • ' Most ianqe In sl�e Irom $/8 � tnch U�dentl�q to 2 IncAes V In d1ar11elet� witA D�etint0 � Irom 4s a 60 pa1.— v ; ,, � .� v v . LIMITED SUPPLY LINE TAese underpround Ilnes are between 6 snd 12 Mches in dlamnter an0 G�7 pressaes areaqinp 125 psl. NORTN4{UEST PIPELINE TAe Intastate plpeflne alMnQ WNO Is NYV Plpeline, whICA eollSlals o12 � --- parallel pl�pes, � 26�ncA and a 3ak�ch. Prass�e warttes kom 600 to 900 � pounds pu squaro Inch (psq. The natunl pas�ppryr o�Mates prlmarlry Irom Can�a and Uro southwest Unned 3lates. iti "` . _ •, ��.: .,. IN7ERMEOIA7E PRf88URE (IP1018TRICT REBULATOR Nere tAe ptessure Is reduced �p�n to betwe� 20 �nd � pst, �kt►epnlatots hantsh oas to sNNC�'t d�tera�late orossure (�l dlstr�utlon sratem. � � IP OISTRIBUTION MA1N Theae nneerqrouno I�es to ryin sRe hom 1�i I�des 8 Mchea In �ameta Ressares svaiqe 35 p�. � b m � � y � �• � Cy m � � fi .�.. � � N C �' � �J. a� 0 C� �� � e� @ T fD a m o, � d � n 0 3 v m � �o � N G N v m � i � '<' °� m C � � N� N xl o� Federal Way Comprehensive Plan — Private Utilities Distribution Mains: Distribution mains are fed from District Regulators. These are typically 8", 6", 4", 2" and 1'/4" diameter. The pipe material is typically polyethylene (PE). PSE currently has approximately 350 miles of distribution main serving within the City of Federal Way. the City had difficulty obtaining detailed information about operations and plans. As a result, this section of the plan addressing telephone service: (i) reflects the City's commitment to providing advanced telecom- munications services; (ii) provides a general descrip- tion of how the existing system works; and, (iii) describes the process for improving delivery. �� Future Facility Construction There are three types of construction anticipated in the Federal Way area. These include: New installation due to increased capacity of existing customers or conversions from an alternate fuel. Main replacement projects to facilitate improved maintenance and system reliability. Replacement or relocation of facilities due to muni- cipal and state projects. Planned for 1998: None specifically identified. Long Range Plans (within five years): Install 12" STW High Pressure Supply Main in the north end of Federal Way at approximately South 272nd Street and Military Road South (see Map X-4)._ 10.4 TELECOMMUNICATIONS PLAN The telecommunications section focuses on line telephone, wireless communication, 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 US West, which operates both land-based and cellular telephone systems, AT&T Wireless, Airtouch, GTE, Sprint, Nextel, Western Wireless, and Metricom which provide wireless telephone and data services, and TCI which provides cable T'V service. The telephone portions of the telecommunications industry are extremely competitive and for this reason, Telephone System Existing Facilities and Operations — US West Com- munication, Inc. delivers telecommunication service to the Federal Way planning area as regulated by WUTC. A local exchange area is served by a Central Office (CO), which contains various kinds of switching equipment. From a CO, there are typically four main cable routes extending relatively north, 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 which can be used for voice or data transmission by subscribers. Proposed Improvements — US West is required by law to provide adequate telecommunications services on demand. Accordingly, US West will provide facilities 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 cur- rently served with wireless service by AT&T Wire- less, Airtouch, GTE, Sprint, Nextel, and Metricom. Wireless communication is becoming increasingly important in the telecommunications world. It is a combination of a portion of the radio frequency spec- trum with switching technology, making it possible to provide mobile or portable telephone service to vir- tually any number of subscribers within a given area. Transmission quality is comparable to that provided � � Revised December 1998 X-9 CITY OF FEDERAL WAY COMPREHENSIVE PLAN � � PROP�SED IMPROVEMENTS i��� 0 N (PUGET SOUND ENERGI� uriur�r Puw E�M�r -.�� . Federal Way City Limits Potential Annexation Area Dist�ibution Pipe Diameter , ,, _ ; --SCALE— 1 Inch equds 4.200 Feet � «n"F G � L�E.1'it�l_ �� MAP X-4 NOTE: This map �s intended tor use as a�ap�al re�ntatia� ony. The (�qr of Federal Way malces no waRanq� as m its aa:uncy �� Federal Way Comprehensive Plan — Private Utilities �\' 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 at between 30 to 40 percent per year. The number of wireless service providers (cellular phone, paging, two-way radio, etc.) are increasing. US West, AT&T Wireless, GTE, Sprint, Nextel, Western Wireless, and Metricom all have facilities, or have applied for permits to place facilities, in Federal Way. Therefore, it is important to address design standards and land use review procedures for siting facilities associated with these services. All of these technol- ogies 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 which impacts local citizens. For example, if a television set or radio experiences inter- ference 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. party being called. The call may be routed via traditional land line or via a cellular network depending on the nature of the receiving device. System Capacity – Capacity is a function of frequency of use, the number of sites in a geographic area, and the number of customers. However, wireless service providers consider site locations, the number of calls handled, number of customers, and cell site capacity to be proprietary information. Improvements to the Cellular System - Like the non- cellular telephone companies, wireless companies expand services in response to growth. For this reason, companies closely analyze market demand to deter- mine expansions into new service areas. T'he cellular network is expanded by dividing a larger cell into several smaller cells to increase the number of avail- able channels. Capacity may also be expanded through technological advances in digital equipment. Cable TV Plan Headquartered in Denver, Colorado, TeleCommuni- cations, Inc. (TCI) was formed in 1968 with the merger of the cable company and a common canier microwave operation. The company is one of the nation's largest cable operators with approximately 14.4 million customers at year-end 1997. Within its owned and operated cable systems, TCI Group plans to focus on its upgrade program during the next three to five years. The system upgrades will be considered and executed based on the requirements and potential of each market, consistent with TCI Group's "best fit" strategy. 2. T'he 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 j ' Mobile Telephone Switching Office, the call is � further processed and the call is routed to the Figure X-3 is a general description of the components of the cable TV (CATV) system and shows supply from source to customer. One of the primary compo- nents of a cable system is the headend site—an 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. Revised December 1998 X > � d < � 0 3 v 1 � � � � N C ID A m � .. A � '�'! d0 A � O '�i n W C y � 0 � �D •! -� f �" � �' Federal Way Comprehensive Plan — Private Utilities � � � Existing Conditions Map X-S shows-the TCI service areas covering the City. TCI'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 of I-5 are served by the TCI 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 TCI 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 connec- tions are made to the customer's service entry. System Analysis In June 1998 TCI was providing cable TV service to 29,787 customers citywide. This service level repre- sents 71 percent of potential customer connections in the city: Existing cable television facilities are cur- rently capable of servicing approximately 98 percent of the potential customer connections in Federal Way. TCI 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. Proposed Improvements Cable television installations are made to new sub- scribers (either to new dwelling units or, to a much smaller degree, to residences who have not opted for cable before) at published rates, provided that 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 consid- erations, 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. TCI 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 tele- phone 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, enabling the delivery of 36 additional channels and the potential of expanding that capacity. TCI has also begun replacing existing copper cable trunk lines with fiber optic, which can be configured to carry video or data trans- mission signals. 10.5 GOALS AND POLICIES FOR CITY ACTION The Utilities Element provides an opportunity for the City to assist utility companies in delivering e�cient service to customers, and to seek to reduce potential negative impacts on the natural and built environ- ments. This section builds upon system descriptions to identify issues and sets forth policies to coordinate the provision of utilities with City planning. The Growth Management Act requires that the utili- ties 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, Revised December 1998 X-13 Federal Way Comprehensive Plan — Private Utilities the City wil( work in accordance with the following goais and policies: Goals PUG1 Work with private utility companies to allow them to provide full and timely service which 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 bal- ances cost-effectiveness with environmental protection, aesthetic impact, public safety, and public health. ment. Therefore, the City must continue to commun- � icate with utilities and periodically review their needs as well as the policies in this plan and its permit pro- cessing 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 which helps to keep costs down. Providing alternative energy sources is also important because if one energy source fails, the other may be available. Policies PUG3 Process permits for private utility facilities in an efficient and timely manner, in accordance with franchise agreements, development regulations, the Comprehensive Plan, and adopted codes. PUG4 Ensure that development regulations are consistent with public service obligations imposed upon �rivate utilities by Federal and State law. Policy and tssue Statements Issue 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 this Comprehensive Plan. The City plays a critical role in the provision of private utilities. The City approves permits that allow utilities to build transmission towers, iay 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 comptiance with due process, ensuring consis- tency with this Comprehensive Plan, addressing aesthetic impacts, and protecting the natural environ- PUPl The City's right-of-way permitting process should not unnecessarily delay the expansion or improvement of the utility network. PUP2 The City will, if possible, coordinate with other jurisdictions on proposed utility im- provements that impact a rnultijurisdictional area. PUP3 The City should work to encourage, to the extent possible, the supply of all utilities to existing and new homes, offices, industrial, and commercial buildings. Issue Statement: Coordination Between Utilities, Capital Facilities, City, and Private Developers. The costs of pipe, cable, or conduit installation can add significantly to the cost of providing service. Installing utility lines, which follow existing right-of- ways and easements, can also create disruptions to traffic and cause damage to pavement and land- scaping. These costs and disruptions can be reduced if uti(ities 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 � Revised December 1998 X-14 CABLE SERVICE BY TCI Federal Way Comprehensive Plan — Private Utilities � public works projects, such as street improvements, which may provide opportunities for installing new systems. Policies Policies PUP9 The City shall, at minimum, ensure that its buildings comply with State and Federal standards for energy conservation. PUP4 The City encourages the joint use of trenches, conduits, or poles, so that utilities may coor- dinate expansion, maintenance, and up- grading 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 which 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. �' PUP8 The City hereby incorporates by reference Puget Sound Energy's GMA Electrical Facilities Plan into this private utilities ele- ment as now existing or hereafter amended or adopted. Issue Statement: Energy Conservation. State and Federal law requires energy conservation in building design. State and Federal statues also require that power providers implement energy conservation policies. In accordance with these mandates, Puget Sound Energy has an Energy Select Program which provides information on qualified contractors for potential customers.. State law requires that the City's building code con- forms to the Washington Energy Code (WAC 51-11). However, the energy code sets out only minimum standards for energy conservation. Therefore, cities have developed conservation conscious design codes �" which go beyond the minimum requirements of the � energy code. PUP10 The City will endeavor to work with utility companies to promote and educate the public about strategies for conserving energy. Issue Statement: Importance of Telecommunications and the Information Superhighway. Society is in the midst of a revolution in information and communication that has the potential to change the way that people interact with each other. For example, in the near future, most of the transactions and communications that make up the majority of our day will be possible from a single work station. This revolution is being fueled by recent advances in com- puting and telecommunication technology. There are several technological innovations that will stimulate 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 will combine to expand the capa- city of the telecommunications network. This expan- sion will allow 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 capa- bilities for transmitting information. In the past, one could transmit voice by telephone, texbgraphics by facsimile, and data by modem. Now it will be possible to transmit video images, and potentially to broadcast to a mass audience using these new technologies. These advances in technology are forcing telecom- munication companies to reevaluate their business strategies. Technological change has made it possible Revised December 1998 X-16 Federai Way Comprehensive Plan — Private Utilities for all services to be provided on one cable, and com- panies 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 devel- opment reasons, the City must ensure that the atmos- phere for investment encourages companies to bring these advanced services to Federal Way, and that the community's growing needs aze 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 PUPII The City will encourage and work with tele- communication and cable companies to develop fiber optic cable networks and to increase interconnectivity 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. Issue Statement.• Health Impact of Electro-Magnetic Fields (EMFs) and Microwaves. There is much public and scientific interest about the health effects of Electro-Magnetic Fields (EMF's) created by the electricity supply system. This interest has resulted primarily from studies that suggest a pos- sible link between EMF's and certain forms of cancer. However, this statistical link does not necessarily indicate cause-and-effect relationships. Considerable research is underway, supported in large part by the $65 million funding provision in the National Energy Policy Act of 1992. Puget Sound Energy has taken an active role in this debate. However, there are, as yet, no agreed upon safety thresholds or tolerance levels for human exposure to EMF's. Electro-Magnetic Fields are found wherever elec- tricity exists. EMF's are generated by high-voltage transmission lines, low-voltage lines, and sub- stations, 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 consump- tion. Research is clear that EMF's are not blocked, reduced, or altered by most solid objects. This means they are not blocked by vegetation, nor by any form of screening, or covering by earth. It is, however important to note that EMF's diminish rapidly with distance from source. Research on both EMF's and microwaves has been contradictory and generally inconclusive. However they are issues that must continue to be monitored. Policy responses to this issue must be adopted as more information becomes available. Policies PUP13 The City shall continue to monitor research into the health effects of Electro-Magnetic Fields (EMF's) and microwaves. The City will take appropriate action once definitive conclusions about health implications are reached. Issue 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 street- scapes but also contribute to system failures and power outages caused by falling trees and branches. � � � Revised December 1998 X-1 � Federal Way Comprehensive Plan — Private Utilities � Undergrounding utilities is a potential solution to both prob(ems, but must be balanced against the cost associated with such undergrounding. As with other types of development, the impacts of utilities on environmentally sensitive areas need to be evaluated. These impacts are addressed in the context of broad environmental protection policies in the Natural Environment chapter of this Plan and through measures for protecting critical areas in the zoning code. On the other hand, there is also a need to pro- vide 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 zoning code makes provisions for this in the environmentally sensitive area provisions. � � Existing City code sets out some requirements for undergrounding utilities in new subdivisions and in existing right-of-way in accordance with the WLTTC. These exemptions include the undergrounding of transmission lines 115 kV 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. How- ever, 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 State- wide efforts by WLTTC to devise a method of paying for such improvements. The City has a right-of-way vegetation ordinance which 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 s�treetscape 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 distri- bution lines in new subdivisions, new con- struction, 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 which ensures that the needs of landscaping and screening are balanced with the need to prevent power outages. PUPl? The City should require that site-specific utility facilities such as antennas and sub- stations are reasonably and appropriately_ sited and screened to mitigate adverse aesthetic impacts. 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 The City should modify the zoning regula- tions to address the siting, screening, and design standards for wireless/cellular facili- ties, sub-stations, and antenna facilities in such a manner as to allow for reasonable and predictable review while minimizing poten- tial (and use and visual impacts on adjacent property. Issue Statement: P(anning to Meet the City's Future Needs. Revised December 1998 x-� g Federal Way Comprehensive Plan — Private Utilities 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 T'he 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 Infor- mation System (GIS) to better serve mutual needs and those of the public. � � � � Revised December 1998 X-19 c 0 � H � � ; � r� --- � I � � I � -. � I ' � I � I I `� ' ' ' , r ----- , ; ,,_� ; �; l I � i � � � ! , I , � I i ��� j { j From Vi�ion to Pian Federal Way Comprehensive Plan — Glossary � GLOSSARY OF TERMS enforcement facilities, public school facilities, water facilities, sewer facilities, and fire and rescue facilities. Accessory Dwelling Unit (ADin — Either a free- standing detached structure or an attached part of a structure which is subordinate and incidental to the main or primary dwelling unit located on the subject property; providing complete, independent living facilities exclusively for one single housekeeping unit, including permanent provisions for living, sleeping, cooking, and sanitation. Affordable Housing — The HUD definition of "affordable housing" is housing where the occupant is paying no more than 30 percent of gross income for gross housing costs, including utilities. Aquifer Recharge Areas — Areas which are hydro- geologically susceptible to contamination and contam- ination loading potential including, but not limited to, such areas as sole water source ayuifer recharge areas, special protection groundwater management areas, wellhead protection areas, and other areas with a � critical recharging effect on aquifers used for potable water. Arterial — A major thoroughfare used mainly for through traffic rather than access to adjacent property. Arterials generally have greater traffic carrying capa- city than collector or local streets and are designed for continuously moving traffic. Buffer — An area on a property or site, generally adjacent to and parallel with the property line, either consisting of natural vegetation or created through the use of trees, shrubs, fences, and/or berms, designed to limit the view of and/or sound from the site to adjacent properties. Capital Facilities — As a general definition, struc- tures, improvements, pieces of equipment, or other major assets, including land that have a useful life of at least 10 years. Capital facilities are provided by and for public purposes and services. For the purposes of the Capital Facilities Chapter, capital facilities are surface water facilities, parks and open space facili- ties, transportation facilities, government offices, law Capital Facilities Plan (CFP) — A general plan that identifies and balances capital expenditures and reve- nues for a specified period of time and demonstrates the viability of the land use plan. Capital Improvement Progcam (CIP) — A six-year plan for future capital expenditures which identifies each capital project, including anticipated time of completion, and allocates existing funds and known revenue sources. T'he CIP is updated and adopted annually as part of the city budget. CityShape — CityShape is the name given to the pro- cess used to develop the city's Growth Management Act comprehensive plan. This name is also used for the plan itself. Cluster Housing — A development design technique that concentrates buildings in specific areas on a site to allow the remaining land to be used for recreation, common open space, or preservation of environ- mentally sensitive areas. Community Development Block Grant Program (CDBG) — A federal funding program which provides annual funding for eligible local governments for housing and community development programs targeted primarily to low-income persons and neighborhoods. Comprehensive Housing Affordability Strategy (CHAS) — A document which is prepared to lay out housing affordability strategies that address the needs of homeless, low, and moderate income people in ways that promote community and individual stability. Comprehensive Plan — A generalized coordinated policy statement of the governing body of the city that is adopted pursuant to the GMA. A document or series of documents prepared by a professional planning staff and planning commission that sets forth broad guidelines and policies for the future development of a communiry. Such plan should be the result of consid- erable public input, study, and analysis of existing Created December 1998 C''� Federal Way Comprehensive Plan — Glossary physical, economic, environmental, and social condi- tions, and a projection of what the future conditions are likely to be. Concomitant Development Agreement — An agreement between the City and an applicant under RCW 36.70B.170 that promotes diversity and crea- tivity in site design, protects and enhances natural and community features, and encourages unique develop- ments that may combine a mixture of residential, commercial, office, and industrial uses. Concomitant development agreements may be used to formalize site development requirements in conjunction with an area's annexation into the city, or as part of a specific development application. Concurrency — A program to ensure that those public facilities and services necessary to support develop- ment shall be adequate to serve the development at the time the development is available for occupancy and use without decreasing the current service level below locatly established minimum standards. (Under GMA, only transportation facilities and services must satisfy the concurrency requirement.) Density — The number of families, persons, housing units, jobs, or building per unit of land usually expressed as "per acre." Development Regulations — Any controls placed on the development or use of land by a city including, but not limited to, zoning ordinances, subdivisions ordin- ances, and environmental regulations. project or action may have a significant adverse effect upon the quality of the environment, SEPA requires that an EIS be prepared. The purpose of the EIS doc- ument is to provide the government decision makers with information to be considered prior to determining a project's acceptability. The Draft EIS, which is cir- culated for review and comment, describes the action, analyzes the impacts of the action, and proposes alter- natives and mitigating measures. Comments on and revisions to the Draft EIS are included in the Final EIS, the findings of which are appealable. Environmentally Sensitive Area (ESA) — Those areas designated, mapped, and regulated by environ- mentally sensitive area regulations. These areas have existing site conditions which require development standards to minimize specific on-site and off-site adverse environmental impacts such as stream siltation, hill slides, reduction of habitat areas, etc. Erosion Hazard Areas — Areas having a severe to very severe erosion hazard due to natural agents such as wind, rain, splash, frost action, or stream flow. Essential Public Facilities — Any facility or convey- ance which has the following attributes: 1) It is typically difficult to site due to unusual site require- ments and/or significant public opposition; 2) It is a necessary component of a system, network or program which provides a public service or good; 3) It is owned or operated by a unit of local or state govern- ment; private or nonprofit organization under contract with or receiving government funding; or private firms subject to a public service obligation; � � Development Right — The right to use or develop property for some economic purpose. Residential occupancy is a type of economic purpose. Development Standard — In respect to any develop- ment, fixed requirements, or standards imposed by regulation or ordinance. A setback is an example of a development standard. Environmental Impact Statement (EIS) — A doc- ument intended to provide an impartial discussion of significant environmental impacts which may result from a proposed development project or nonproject action. If the responsible official determines that a Fair Share Housing — A qualification of each juris- diction's "share" of middle and low income housing needs in a region or county, and a plan for how each jurisdiction will satisfy its obligation to provide for its share of the need. Fish and Wildlife Habitat Conservation Area — The management of land for maintaining species in suit- able habitats within their natural geographic distri- bution so that isolated sub-populations are not created. Habitat conservation areas include, but are not limited to, such areas as: Created December 1998 G-2 Federal Way Comprehensive Plan — Glossary � 1) Areas with which endangered, threatened, and sensitive species have a primary association. 2) Habitats and species of local importance. 3) Commercial and recreational shelifish areas. 4) Kelp and eelgrass beds; herring and smelt spawning areas. 5) Naturally occurring ponds under 20 acres and their submerged aquatic beds that provide fish or wildlife habitat. 6) Waters of the state. 7) Lakes, ponds, and streams planted with game fish by a governmental or tribal entity. 8) State natural area preserves and natural resource conservation areas. 9) Streams. � � Geographic Information System (GIS) — A compu- terized system used to map and access geographic information which is contained in a database. Geologically Hazardous Areas — Areas which, because of their susceptibility to erosion, landsliding, seismic, or other geological events, are not suited to siting commercial, residential, or industrial develop- ment consistent with public health or safety concerns. Geologically hazardous areas include erosion hazard areas, landslide hazard areas, seismic hazard areas, and steep slope hazard areas. Growt6 Management Act (GMA) — Refers to the 1990 Washington State Growth Management Act (ESHB 2929) as amended in ] 991, requiring urban counties and cities within those counties to develop comprehensive plans to deai with growth in Washing- ton State over the next 20 years. The GMA is codified in RCW 36.70A and other chapters. Growth Management Planning Council (GMPC) — A body made-up of city and county representatives and created through an interlocal agreement by most of the cities in King County and the county itself to undertake interjurisdictional planning pursuant to requirements of the GMA or its successor. High Capacity Transit (HCT) — A system of public transportation services within an urbanized region operating principally on exclusive rights-of-way. The supporting services and facilities necessary to imple- ment such a system, including interim express ser- vices and high occupancy vehicle lanes, which taken as a whole provides a substantially higher level of passenger capacity, speed, and service frequency than traditional public transportation systems operating principally in general purpose roadways. Includes light rail transit and express buses on exclusive bus ways and their supporting services. Impact Fees — Fees imposed on developers to help pay for cost of providing public facilities needed to serve new development. Such charges reflect a desire to make new development pay for its impact on the community. The use of impact fees is authorized by the GMA. Infrastructure — The basic foundation of facilities and services (for example: potable water, sewage treatment, power, and streets) which are necessary for urban development. King County Countywide Planning Policies (CWPP's) — As required for GMA, the King County Council adopted and the cities ratified a series of policies which embody a vision of the future of King County. These policies are intended to guide develop- ment of city and county comprehensive plans. Land Use — A term used to indicate the utilization of a piece of land. The term may be used for either the way in which the land is being used or may be used. Landslide Hazard Areas — Those areas potentially subject to episodic downslope movement of a mass of soil or rock including, but not limited to, the following areas: a. Any area with a combination of: 1. Slopes greater than 15 percent; 2. Permeable sediment, predominately sand and gravel, overiying relatively impermeable sedi- ment or bedrock, typically silt and clay; and 3. Springs or groundwater seepage. b. Any area which has shown movement during the holocene epoch, from 10,000 years ago to the present, or which is underlain by mass wastage debris of that epoch. Created December 1998 G-3 Federal Way Comprehensive Plan — Glossary c. Any area potentially unstable as a result of rapid stream incision, stream bank erosion or under- Mitigation — Methods or actions used to alleviate or lessen the impact of development. � cutting by wave action. d. Any area located in a ravine or on an active alluvial fan, presently or potentially subject to inundation by debris flows or flooding. e. Those areas identified by the United States Department of Agriculture Soil Conservation Service as having a severe limitation for building site development. f. Those areas mapped as class u(unstable), uos (unstable old slides), and urs (unstable recent slides) by the Department of Ecology. g. Slopes having gradients greater than 80 percent subject to rockfall during seismic shaking. Level of Service (LOS) — A measure of a public facility or service's operational characteristics used to gauge its performance. Local Improvement District (LID) — A financing mechanism whereby specially benefitted properties are assessed the costs of constructing public improvements. Low Income Housing — Housing affordable to house- hoids with incomes between 0 and 50 percent of the county's median income. Manufactured Housing — Factory-built housing that is transportable in one or more sections, is built on a permanent chassis, and designed to be a dwelling with or without a permanent foundation when connected to required utilities. Manufactured housing sha(1 be built to comply� with the National Manufactured Home Construction and Safety Standards of 1974 (regula- tions effective June 15, 1976). Mitigate — To reasonably reduce or eliminate the im- pact of development. See "Mitigation" for the defini- tion of mitigation which applies to environmentaliy sensitive area regulations. Mixed Use Development — The development of a tract of land, building, or structure with a variety of complementary and integrated uses such as, but not limited to, residential, office, retail, manufacturing, or entertainment in a compact urhan form. Pedestrian — An individual traveling on foot. Pedestrian Friendly — Development designs that encourage walking by providing site amenities for pedestrians. Pedestrian friendly environments reduce auto dependence and may encourage use of public transportation. Pedestrian Oriented — Businesses whose signs, advertising, window displays, and entry ways are oriented toward pedestrian traffic. Pedestrian oriented businesses may include restaurants, retail shops, per- sonal service businesses, travel services, banks (except drive-through windows), and similar establishments. Planned Unit Development (PUD) — A planning � technique which provides increased flexibility for the property owner in exchange for a higher quality development. Usuall}� used for larger parcels, PUD's are characterized by a focus on overall project design rather than lot-by-lot zoning, setbacks, and placement. Innovative housing types, open space, and recreation facilities are often included. Policy — An agreed upon course of action adopted and pursued by decision makers for achieving one or several goals and objectives and which are used to guide the formulation of regulations and programs. Potential Annexation Area (PAA) — Current unincorporated areas surrounding the City of Federal VJay which Federal Way may annex within the 20 year comprehensive plan time frame. T'hese areas have been agreed to by neighboring cities. Public Facilities — Any use of land or physical struc- tures, whether publicly or privately owned, for trans- portation, utilities, communication, or the benefit of the general public, including streets, schools, libraries, � Created December 1998 G-4 Federai Way Comprehensive Plan — Glossary � fire and police stations, municipal and county buildings, powerhouses, recreational centers, parks, and cemeteries. l..ar � Public Services – A variety of services such as fire protection and suppression, law enforcement, public heatth, recreation, environmental protection, etc., available to the public and provided by government, substantially funded by government, contracted for or by government, or provided by private entities subject to public service obligation. Puget Sound Regional Council (PSRC) – Formerly the Puget Sound Council of Governments, the PSRC is a regional pianning and decision-making body for growth and transportation issues in King, Kitsap, Pierce, and Snohomish Counties. Under federal trans- portation law, PSRC is the Metropolitan Planning Organization (MPO), responsible for regional trans- portation planning and programming of federal transportation funds in the four county region. It is also the designated Regional Transportation Planning Organization (RTPO) for the four county region. PSRC manages the adopted regional growth strategy, Vision 2020. Right-of-Way – Land dedicated or conveyed to the public or a unit of government, the primary purpose of which is the movement of vehicies and/or pedestrians and providing for access to adjacent parcels, with the secondary purpose of providing space for utility lines and appurtenances and other devices and facilities benefitting the public. State Environmentat Policy Act (SEPA) – Chapter 43.?1C RCW. The state law passed in 1971 requiring state and local a�encies to consider environmental impacts in the decision-making process. A determina- tion of environmental significance must be made for a}l non-exempt projects or actions which require license or decision from a government agency. If the action does not have significant adverse environ- mental impacts, a Determination ofNonsignificance (DNS) is issued. lf the action has adverse environ- mental impacts that can be mitigated, a Mitigated Determination ofNonsignificance (MDNS) is issued. If the action or project could have major impacts, an Environmental Impact Statement (EIS) is required. Street Furniture – Constructed, ahoveground objects such as outdoor seating, kiosks, bus shelters, sculp- tures, tree grids, trash receptacles, fountains, and telephone booths that have the patential for enlivening and giving variety to streets, sidewalks, plazas, and other outdoor spaces open to, and used by, the public. Streetscape – A term in urban design that defines and describes the character and quality of a street by the amount and type of features and furnishings abutting it. Such features and furnishings may include trees and other landscaping, benches, lighting, trash receptacles, bollards, curbing, walls, different paving types, sign- age, kiosks, trellises, art objects, bus stops, and typical utility equipment and appurtenances. Strip Commercial – Commercial or retail uses, usually one-story high and one lot deep, that front on a major street. Subarea Plan – A comprehensive, long range plan that focuses on a particular area or neighborhood of the city, e.g. the City Center. Townhouse – A form of ground-related housing where individual dweliing units are attached along at least one common wall to at least one other dwelling unit. Each dwelling unit occupies space from the ground to the roof and has direct access to private open space. Transfer of Development Rights (TDR) – A program in which the unused portion of a"sending" property's zoning capacity—one of the separable rights of property—is sold to the developer of a "receiving" site, who is allowed to add the capacity to the zoned limit of that site. TDR's can be used to prevent demolition of affordable housing units, protect historically significant property, environmentally sensitive areas, or open space. Transportation Demand Management (TDM) – Private and public strategies and programs designed to manage demand based on transportation supply. Strategies are typically aimed at reducing the number of vehicle trips, shortening trip lengths, and changing the time of trips out of peak hours. TDM programs are frequently directed toward increasing the use of public Created December 199$ G-5 � Federal Way Comprehensive Plan — Gtossary transportation, car pools and van pools, and non- motorized travel modes. Transportation Equity Act for t6e 21st Century (TEA-21) — Federal reauthorization bill for transpor- tation funding, passed in ] 998. Successor to ISTEA, authorizing higher funding levels through the year 2003. Transportation Improvement Program (TIP) — A six-yeaz funded program of transportation improve- ments. The TIP is updated and adopted annually. Urban Center — Defined in the Countywide Planning Policies as an area for focusing growth and aligning a high capacity transit system. To be designated an urban center an area must: have a land area of between 0.5 and 1.5 square miles; be able to support a mini- mum of l 5,000 jobs within 1 and 1'/z miles of a transit center; have a minimum density of 50 jobs per gross acre; and a minimum residential density of 15 house- holds per �gro�s acre. Urban Growth Area (UGA) — The area designated in the King County Comprehensive Plan for urban development and to be served with urban services, in addition to greenbelts, open space, and other appro- priate areas. Urban Growth Boundary — A site specific line, delineated on a map or by written description, that separates the projected urban growth from rural land. Urban Services — Includes those governmental services historically and typically delivered by cities and includes storm and sanitary sewer systems, domestic water systems, street cleaning services, fire and police protection services, public transit service, and other public utilities associated with urban areas and normally not associated with rural areas. Vision 2020 — The adopted regional growth strategy�� � which describes linking high density residential and employment centers throughout the region by high capacity transit, and promoting a multi-modal trans- portation system. Vision 2020 was adopted in 1990 by the Puget Sound Council of Governments, which was. the predecessor to the Puget Sound Regional Council. Wellhead Areas — An area immediately adjacer�t to, �.. potable water well site. � � . -:n.� <: Wetland — Those areas that are inundated or saturated by surface or groundwater at a frequency and duration sufficient to support, and that under normal circum-_,. stances do support, a prevalence of vegetation typi- ,, cally adapted for life in saturated soil conditions. -, � Wetlands generally include swamps, marshes, bo�s,,,., and similar areas. ,;� _ : . .� Zero Lot Line Development (ZLL) — A siting tech-,,, nique which allows single-£amily houses to be built:, along one lot line. This helps to preserve privacy and . usable yard space, especially in smatl lot areas. ;. ,,,�, Variations include angled "Z-lots," alternate width._ .��- lots, and shared lot lines, which give the appearance,o � a duplex. , Zone or Zoning District — A specifically delineated ,� area or district in a municipality within which gen- ;,,; erally uniform regulations or requirements govern the use, size, and development of land and buildings. Zoning — A type of development regulation that man- ages the use and development of land. Federal Way's �. zoning regulations are contained in the Federal W'ay.,. .. .. a Ciry Code Chapter Z2. , Zoning Map — The series of maps adopted by the_, "�. city, and designated the official zoning map ofthe , ciry, showing the geographical location of use ,z�ne� within the municipal boundaries. t ....al V . . . T . � Created December 1998 G-6 Federal Way Comprehensive Plan — Glossary � � LIST OF ACROIVYMS _ AASHTO ADA ADU AVI BPA CFP CAC CDBG CHAS CIP CMAQ CMS CTR C WPP DNS EIS EMF EMS ESA FCC FERE FWBAC GIS GMA GMPC GPS HCM HCT HMP HOV I SDN ISTEA ITS LID LOS American Association of State Highway and Transportation O�cials � � Amer'icans with Disabilities Act Accessory Dwelling Unit � Automated Vehicle Identification Bontievill� Power Administration Capital Facilities Plan Citizens Advisory Committee Community Development Block Grant Progr�m Comprehensive Housing Affordabi�lity Strategy Capital Improvement Program Congestion Management and Air Quatity Concurrency Management System �ommute Trip Reduction � King County Countyvvide Planning Poli�ies � . : Determination of Nonsignificance Enviranmental lmpact Statement " Electro Magnetic Fie1d' ' Emergency Medical Service Environmentaliy Sensitive Area Federal Communications Commission Federal Energy Regulatory Commission Federat�Way� Bicycle Advisory Comm ittee Geographic Information System Growth Mana�ement Aet _ . . Growth`�Management Planning Ca�►ricil Glot�al Positioning System Highway Capacity Manual � High Capacity Transit Heliport Master Plan - High�bccupancy Vehicle . _ Integrated Services Digital Network_ Intermodal Surface Transportation� ; Efficiency Act of 1991 Intelligent Traveler Service Local Improvement District Level of Service MDNS Mitigated Determination of Nonsignificance mgd Million Gallons per Day mph Miles per Hour MPO Metropolitan Planning Organization MTP Metropolitan Transportation Ptan MVET Motor Vehicle Excise Tax NHS National Highway System PAA Potential Annexation Area PSE Puget Sound Energy PS/HELP Puget Sound Helicopter Emergency Lifesaver Plan PSHSP Puget Sound Heliport System Plan PSRC Puget Sound Regional Council PT Pierce Transit PUD Planned Unit Development RCW Revised Code of Washington RPTO Regional Transportation Planning Organization RT'A Regional Transit Authority (Sound Transit) SEPA State Environmental Policy Act SOV Single Occupancy Vehicle SR State Route STP Surface Transportation Project TAZ Transportation Analysis Zone TDM Transportation Demand Management TDR T'ransfer of Development Rights TEA-21 Transportation Equity Act for the 21 st Century TIB 'Transportation Improvement Board TIF Transportation Impact Fee TIP Transportation Improvement Program TSM 'Transportation Systems Management UGA Urban Growth Area v/c Volume/Capaciry Ratio VMT Vehicle Miles Traveled WAC Washington Administrative Code WSDOT Washington State Department of Transportation WUTC Washington Utilities and Transportation Commission ZLL Zero Lot Line G-7 Created December 1998 - - - • - •