HomeMy WebLinkAboutTRACKS 1 Land Use 2025_0423Jefferson County Comprehensive Plan 1–1 Public Review Draft June 2025
1 Land Use
1.1 FRAMEWORK
The Land Use Element establishes the future goals and policies
addressing rural lands and rural character, rural villages, and
communities, and incorporated and unincorporated urban growth
areas (UGAs). A fundamental focus of the periodic update has been
a refreshed set of land use goals and policies that meets community
needs to strengthen the economy, provide housing choices,
welcome tourists, create opportunities for active living, steward the
natural environment, offer public services and infrastructure to
support growth, and maintain an exceptional quality of life.
The Land Use Element is arranged in four components:
▶ Framework: The Framework section presents countywide land
use plan concepts, population trends and forecasts, current land
use inventories, current surface water conditions, public health,
comprehensive land use map categories, and general land use
and surface water policies that apply countywide.
▶ Rural: Consistent with Rural Element requirements under the
GMA, the Rural section addresses rural character, rural
residential densities, and areas that qualify as exceptions to rural
Casey Scalf via the Jefferson Landworks Collaborative
This element supports the Vision Statement by
preserving the rural character
of land and lifestyle in Jefferson County. Priorities in this element protect open
spaces, forests, and farmland
for long-term management and conservation, while also embracing ideas that foster
opportunities for increased
synergy between natural and built environments. Additional concepts support integrating diversified
economic activity and innovations in housing and industry that benefit overall ecosystem vitality and offer
opportunities for all residents to thrive.
Connection to the
Vision Statement
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Jefferson County Comprehensive Plan 1–2 Public Review Draft June 2025
densities: (limited areas of more intensive rural development
(LAMIRDs) and Master Planned Resorts (MPRs)).
▶ Resource: This section summarizes the Comprehensive Plan’s
approach to conservation of natural resource lands of long-term
commercial significance; these lands are more fully addressed in
the Natural Resource Element. Additionally, this section
addresses conservation of forested lands in rural areas not zoned
for resource production.
▶ Urban: The Urban section of the Land Use Element addresses
UGAs, including the county portion of the City of Port Townsend
UGA and the Irondale and Port Hadlock UGA. Additionally, this
section addresses current and planned residential and
commercial uses, and urban services necessary to support the
UGA.
Land Use Typologies
Under the GMA, lands are generally characterized as rural, resource, or
urban. Accordingly, this Land Use Element defines and regulates these
categories as follows:
▶ Rural Areas: This term refers to lands which are not within an
UGA and are not designated as natural resource lands having
long-term commercial significance for production of agricultural
products, timber, or the extraction of minerals. Rural areas may
consist of a variety of uses and residential densities at levels that
are consistent with the preservation of rural character. Rural
areas can include LAMIRDs, which provide opportunities for rural
economic development and housing, and Master Planned
Resorts (MPRs).
▶ Natural Resource Lands: This term refers to agriculture,
aquaculture, forest, and mineral resource lands which have long-
term commercial significance. A detailed discussion of Natural
Resource Lands can be found in the Natural Resources Element,
and goals and policies related to aquaculture are contained in the
Jefferson County Shoreline Master Program.
▶ Urban Growth Areas: This term refers to areas designated for
growth that make intensive use of land for the location of buildings,
structures, and impermeable surfaces to such a degree as to be
incompatible with the primary use of such land to produce food,
other agricultural products, fiber, or the extraction of mineral
resources.
The three major land use categories are reflected on the following map.
Rural (Chimacum), Windermere
Resource, Carolyn Gallaway
Urban, Carolyn Gallaway
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Jefferson County Comprehensive Plan 1–3 Public Review Draft June 2025
Exhibit 1-1 General Land Use Categories (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Community Development, 202518; BERK, 202518.
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Jefferson County Comprehensive Plan 1–4 Public Review Draft June 2025
Population Growth Projections
The State of Washington Office of Financial Management (OFM)
publishes population projections for each county for use in the GMA
planning efforts every five years. The County is responsible under the
GMA for allocating population in consultation with the City of Port
Townsend.
In 202415, Jefferson County and the City of Port Townsend developed a
population projection and urban population allocation for the City of
Port Townsend, and Irondale and Port Hadlock UGArban Growth Area,
and the Port Ludlow and Pleasant Harbor Master Planned Resorts
based on OFM’s 202212 Medium projections. The County passed
Resolution #68-1118-24R on November 18, 2024#38-15 on October 26,
2015, adopting the updated population forecast (see page 30 of
Appendix B). OFM has since published 2017 projections, but results are
nearly identical.1 The 2018-2038 population forecast is Existing and
future population projections for the City of Port Townsend, the
Irondale and Port Hadlock UGA (County Urban), and specific rural areas
are summarized in Exhibit 1-2.
Exhibit 1-2 Jefferson County and City of Port Townsend 20-year Population Projection and Distribution (2018-20382025–2045)
Location (Unincorporated unless noted) 2024 Population 2025 Est. Population Growth Allocation
2025-2045 Projected
Growth4
2045 Projected
Population
2025-45 Projected
Growth Rate5
Urban Subtotal 13,483 13,837 80% 4,720 18,551 1.48%
Port Townsend (Incorporated)1 10,530 10,807 40% 2,360 13,167 0.99%
County Urban1 2,953 3,024 40% 2,360 5,384 2.91%
Rural & Resource Areas1 20,217 20,755 20% 1,180 21,935 0.28%
Port Ludlow MPR2 2,979 2,979 N/A 660 3,639 1.01%
Pleasant Harbor MPR2 — — N/A 182 182 N/A
Brinnon RVC2 774 774 N/A 43 817 0.27%
Quilcene RVC2 490 490 N/A 43 533 0.42%
Other Rural & Resource Areas3 15,974 16,512 N/A 252 16,764 0.08%
Countywide Total1 33,700 34,586 100% 5,900 40,486 0.79%
Legend: MPR = Master Planned Resort; RVC = Rural Village Center. Notes: 1 Countywide population in 2024 and for Port Townsend, the Irondale and Port Hadlock UGA, and the rural areas
overall is based on OFM’s 2024 UGA Small Area Estimates. The 2025 population for these same areas is then estimated based on the 2024 relative percentages and 2025 countywide total from the adopted CPPs.
1 The OFM medium growth forecast for 2038 developed in 2017 shows a projected population of 39,397, slightly
higher than the 2012 medium series at 39,221.
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Jefferson County Comprehensive Plan 1–5 Public Review Draft June 2025
2 The 2023 ACS 5-year population estimates for the Port Ludlow, Brinnon, and Quilcene Census Designated Places (CDPs) are used as existing population estimates for the Port Ludlow MPR, Brinnon RVC, and Quilcene RVC. The
CDPs are slightly larger than the actual MPR or RVC boundaries but are used here for estimation purposes. No
existing population is assumed in the Pleasant Harbor MPR as no permanent residences are currently developed.
3 Total population in the other rural areas was calculated by subtracting the individual rural area estimates from the total rural population estimate
4 See Exhibit 85 in Appendix E for more information about estimated population growth by rural subarea.
5 Calculated as a compound annual growth rate.
Sources: ACS 5-year Estimates, 2019-2023 (Table S0101); Jefferson County Resolution #68-1118-24R, 2024; OFM UGA Small Area Estimates, 2024; Jefferson County, 2025; BERK, 2025.
Location (Unincorporated
unless noted) 2010 Population1
Allocation Total Growth County-wide
2010-38 Projected Growth
2018 Projected Population7 2018-38 Est. Growth2
2038 Projected Population
2010-38 Projected Growth Rate3
Port Townsend UGA
(Incorporated)
9,113 36% 3,366 9,661 2,814 12,479 1.13%
Port Hadlock/
Irondale UGA4
3,580 19.4% 1,814 3,795 1,516 5,394 1.48%
Port Ludlow MPR 2,603 10.1% 944 2,759 789 3,547 1.11%
Pleasant Harbor (Brinnon) MPR -- 4.5% 421 -- 352 421 24.1 %
UGA/MPR Subtotal 15,296 70% 6,545 16,215 5,471 21,841 1.28%
Rural & Resource Areas Subtotal 14,576 30% 2,804 15,452 2,445 17,380 0.63%
County-wide Total 29,8725 100% 9,349 31,667 7,8166 39,221 0.98%
Legend: UGA = Urban Growth Area, MPR = Master Planned Resort
1 Source: Estimated using tract and block data, 2010 U.S. Census. 2 Source: Estimated based on OFM’s 2018 Projection for Jefferson County (31,405) and 2010 population shares. 3 Calculated as a compound annual growth rate.
4 In 2004, the Tri-Area UGA became known as the Port Hadlock/Irondale UGA.
5 Source: 2010 U.S. Census 6 The net total of 7,816 was reported in Resolution 38-15; however, when adding 5,471 and 2,445 the total is 7,916. 7 Calculated 2018 from increasing OFM published 2017 population 31,360 by 1.0098 = 31,667. CAGR 2010-2018 =
0.00732086. (31,667/29,872)^(1/8)-1, and increased 2010 allocations to 2018 by (n2010 * 1.00732086)^8
Because of legislative changes to Comprehensive Plan Periodic review
schedules, the Joint Growth Management Steering Committee
adopted population projections for separate planning periods for the
City of Port Townsend and Jefferson County. The City of Port
Townsend’s allocation and planning efforts were conducted based on
the 2016-2036 20-year planning period. The City of Port Townsend
completed its plan in 2016 consistent with the original due date for
Growth Management Act planning by the City of Port Townsend,
whereas Jefferson County, as a slow-growing county, was allowed by
Commerce to extend its Growth Management Act planning efforts to
2018 and is addressing a 2038 horizon. The Port Townsend 2036
population projection of 12,165 is very similar to the projection in 2038 of
12,479.
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Jefferson County Comprehensive Plan 1–6 Public Review Draft June 2025
Consistent withSimilar to the County’s and the City of Port Townsend’s
prior methodology, 3680% of the projected countywideCounty-wide
growth would be planned for and accommodated within the urban
growth area, including 40% of growth allocated to Port Townsend and
40% to the Irondale and Port Hadlock UGA. This would increase , an
increase from the estimated observed population share in Port
Townsend from 31% in 2025 to an effective share of 33% in 2045.of 30.5%
in 2010. The Irondale and Port Hadlock UGA would increase its
population share from 12% to 19.4% an estimated 9% in 2025 to 13% in
2045 with implementation of urban wastewater services and planned
urban densities. MPR shares of growth are based on development
agreements and expected growth trends—the share of growth in the
MPRs would increase slightly by 2045 from 8.6% to 9% in the Port
Ludlow MPR and from 0% to 0.4% in the Pleasant Harbor MPR. The
share of growth in the Brinnon and Quilcene Rural Village Centers
(RVCs) would remain relatively stable between 2025 and 2045 at 2% and
1% respectively.
Exhibit 1-3 Population Shares (2025 and 2045)2010 & 2038
Note: This exhibit was updated since the 2018 Comprehensive Plan to show 2025 and 2045 population shares. Source: ACS 5-year Estimates, 2019-2023 (Table S0101); Jefferson County Resolution #38-15, #68-1118-24R, 2024; OFM UGA Small Area Estimates, 2024; Jefferson County, 2025; BERK, 202518.
Overall, with adopted plans, and agreements, and expected growth
trends, the urban, and MPR, and RVC share of population would
increase from 51% in 2010 to 70% in 2038. The rural 52% in 2025 to 59% in
2045 and the share in other rural areas would decrease from 48% in
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Jefferson County Comprehensive Plan 1–7 Public Review Draft June 2025
2025 to 41% in 204549% in 2010 to 44% in 2038 by allocating 30% of
growth to rural areas. This is consistent with the goals of this
Comprehensive Plan to protect rural character and offer more housing
and employment choices in UGAsrban Growth Areas, in MPR areas
where urban services are available, and in existing rural residential
communities classified as LAMIRDs.
In 2021, the WA State Legislature passed House Bill 1220 (HB 1220),
which amends the GMA to require the housing element of
comprehensive plans to include explicit consideration of capacity to
meet housing needs for extremely-low to moderately low-income
households, permanent supportive housing (PSH), emergency housing
and shelters, and duplexes, triplexes, and townhomes.2 The County’s
housing growth targets overall, by income band, and for emergency
housing beds as well as estimated capacity are discussed in the
Housing Element and Appendix E. Specific housing targets are set for
the City of Port Townsend, the Irondale and Port Hadlock UGA, the Port
Ludlow and Pleasant Harbor MPRs, Brinnon, Quilcene, and all other
rural areas. The greatest need for new units countywide is at the lowest
end of the affordability spectrum (less than or equal to 80% AMI). About
1,862 units countywide are needed for households with 30% AMI or less,
including 1,614 units of permanent supportive housing that include
wrap-around services for people who need support to maintain
residency.Resolution 038-15 provided assumptions regarding housing
units in relation to the population allocation, as summarized below:
Port Townsend UGA: Assuming a population increase of 2,711 at 1.98
persons/household, approximately 1,369 additional units will be needed
by the end of the City of Port Townsend’s 20-year planning period at
2036.
Irondale and Port Hadlock UGA: The population projections for this
area assume development at urban densities with sewer service
available. Assuming 2.1 persons per household in the UGA, to
accommodate the projected population increase of 1,516, approximately
758 additional units will be required by the end of the County’s 20-year
planning period at 2038.
Port Ludlow Master Planned Resort: The development agreement
adopted in 2000 provides for approximately 2,250 residential
“Measurement Equivalent Residential Units” (MERU’s); the
development agreement addresses both commercial and dwelling
units. In 2015, 1,544 residential dwelling units had been constructed. A
population of 789 per the allocation, together with a household size of
about 1.49 persons, results in approximately 529 units during the 2018-
2038 period. Growth would occur consistent with the CWPPs, this
2 Commerce, HB 1220 Guidance for Evaluating Land Capacity to Meet All Housing
Needs.
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Jefferson County Comprehensive Plan 1–8 Public Review Draft June 2025
Comprehensive Plan, and the development agreement that expires in
2025.
Pleasant Harbor Master Planned Resort: The land use designation was
established in 2008, and a final Supplemental Environmental Impact
Statement capped the maximum number of development units at 890
with 52 units designated for staff housing and no more than 65%
dedicated to time-share and short-term rental units, leaving
approximately 293 units for permanent housing. Approval of the
Pleasant Harbor Master Planned Resort development regulations was
made by the Board of County Commissioners in 2018 through
Ordinance No. 03-0604-18, and a development agreement approved
through Ordinance No. 04-0604-18.
LAMIRDs and Rural Communities: As a predominantly rural county,
Jefferson County has many small, existing rural communities
characterized by more intense, yet not fully urban, levels of
development. These include rural villages and commercial crossroads
of Quilcene, Brinnon, Gardiner, Chimacum, Nordland, and Discovery
Bay, as well as a number of smaller rural commercial areas. These
Limited Areas of More Intensive Rural Developments (LAMIRDs) serve
the housing and day-to-day commercial needs of local residents and
the travelling public, and provide opportunities for rural economic
development.
Rural population is allocated to unincorporated Rural and Resource
Areas and to Master Planned Resorts. It is expected that additional rural
housing would occur in and around the existing rural communities
and, in a more dispersed pattern, in rural residential and resource
zones. It is anticipated that the rural housing allocation would consist
primarily of low density detached units which likely would serve
households greater than moderate income. Some rural areas include
housing growth targets at lower income levels consistent with the MPR
development agreements and community priorities.
An overview of Jefferson County’s rural community classification
system and detailed descriptions of each village or center are provided
in Section 1.2 of this Land Use Element.
Employment shares within planning areas show another distribution
factor of population when considering planning policies. For
comprehensive plan periodic reviews, the Joint Growth Management
Steering Committee (JGMSC), through joint resolutions between
County and City, allocate the 20-year projected population, but not
employment.
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Jefferson County Comprehensive Plan 1–9 Public Review Draft June 2025
Current employment covered by unemployment insurance is about
8,356 jobs as of 2016 (ESD, 2017)8,968 jobs as of 2023.3 This does not
include sole proprietors, clergy, chief executives, etc. Covered
employment generally represents 85-90% of total employment in
communities (Employment Security Department and PSRC, 2017). If
adding 15% to the total covered employment in 2023,16 there would be
about 9,60010,300 jobs. Based on existing jobs to housing ratios and
estimated housing growth, total employment is estimated to rise to
about 14,000 jobs by 2045. This includes a slight increase in the
estimated share of jobs within unincorporated Jefferson County (from
51% in 2023 to 54% in 2045), particularly within the Irondale and Port
Hadlock UGA (from 15% in 2023 to 24% in 2045). See Exhibit 1-4.
Employment figures prepared for the Quimper Peninsula Travel
Demand model in 2018 estimates about 11,907 jobs in 2018, rising to
about 18,893 in 2038 (see Appendix C). As shown in Exhibit 1-4, it is
estimated that over 50% of the jobs in 2018 and in 2038 would be found
in the City of Port Townsend, and over 10% would be in Irondale and
Port Hadlock UGA.
Exhibit 1-4 Estimated Employment Share by Planning Area (2023 and 2045)Employment: Quimper Peninsula Travel Demand Model Updated 2018
Location 2023 Employment Share 2045 Employment Share
Port Townsend (Inc.) 49% 46%
Unincorporated 51% 54%
Unincorporated UGA 15% 24%
Unincorporated Rural 36% 30%
Port Ludlow MPR 3% 3%
Pleasant Harbor MPR 0% 1%
Brinnon RVC 1% 1%
Quilcene RVC 3% 2%
Other Rural Areas 29% 23%
Total 10,313 14,002
Note: See Exhibit 7-9 in the Economic Development Element for more detail about estimated job growth by subarea.
Sources: LEHD, Origin-Destination Employment Statistics, 2022; ESD Covered Employment Estimates, 2023; ESD and
PSRC, 2017; Jefferson County, 2025; BERK, 2025.
Area 2007 Employment
Share
2018 Employment
Share
2038 Employment
Share
Port Townsend 51% 52% 54%
3 ESD Covered Employment Estimates, 2023.
Refer to Exhibit 7-9 in the Economic Development Element.Appendix C—
Transportation Plan
Technical Document
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Jefferson County Comprehensive Plan 1–10 Public Review Draft June 2025
Area 2007 Employment
Share
2018 Employment
Share
2038 Employment
Share
North Peninsula 6% 6% 7%
Mid-Peninsula 9% 8% 9%
Irondale & Port Hadlock UGA 9% 10% 13%
South Peninsula 2% 2% 2%
Port Ludlow MPR 3% 3% 3%
Rural Jefferson County 19% 18% 13%
Total 10,611 11,907 18,893
Source: Transpo Group, 2018.
Land Use, HealthEnvironmental Justice,
& Surface Water Analysis
Current Land Use Inventory & Analysis
Based on parcel records maintained by the Jefferson County
Assessor, about 65% of the current land use in the County consists of
parks and open space due to the Olympic National Park. About 31%
consists of forestry. Relatively small areas are residential, agriculture,
public/civic and industrial. See Exhibit 1-5 and Exhibit 1-6. Refer to
the Natural Resources Element for detailed information regarding
forestry, mineral resources, and agriculture lands.
Of the total acreage zoned forest lands by Jefferson County (CF-80, RF-40, IF),
approximately 40% is
privately held forest land and approximately 60% is in public ownership. Of the
public ownership category,
approximately 93%99% is owned by Washington Department of Natural
Resources. A majority of the
forest lands in East Jefferson County are privately owned (about
69%), while a majority of the
forest lands in West Jefferson County are publicly owned (about 71%).
Forest Lands
Commented [JH1]: Transportation Appendix did not update these estimates. Added new estimates based on jobs to housing ratios and projected growth. See also new Exhibit 7-9 in the
Economic Development Element.
Commented [JH2R1]: Confirmed approach with Joel 4/3. New revisions since prior draft
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Jefferson County Comprehensive Plan 1–11 Public Review Draft June 2025
Exhibit 1-5 Current Land Use Map (202518) Assessor Information
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Assessor, 2025; BERK, 202518.
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Jefferson County Comprehensive Plan 1–12 Public Review Draft June 2025
Exhibit 1-6 Current Land Use (202518) Assessor Information
Current Use
Category Parcel Count Parcel Acres Percentage
Agriculture 385357 6,3716,749 0.6%1%
Commercial 579540 1,2791,405 0.1%0.1%
Forestry 1,9871,931 355,677358,557 30.9%31%
Industrial 7455 350238 0.03%0.02%
Parks and Open Space 10,06011,581 747,526746,858 64.8%65%
Military1 31 2,5732,573 0.2%0.2%
Public/Civic 350322 8,1277,407 0.7%1%
Residential 19,18617,317 31,02128,176 2.7%2%
Total 32,62432,104 1,152,9241,151,964 100%100%
1 Military lands are located on Indian Island and on the Thorndyke/Toandos Peninsula fronting Hood Canal.
Source: Jefferson County Assessor, 2025; BERK, 202518.
Land Use & Environmental JusticePublic Health
The County is required by the GMA to give special consideration to
achieving environmental justice in goals and policies of the Land Use
Element, including efforts to avoid creating or worsening
environmental health disparities, and to consider utilizing urban
planning approaches that promote physical activity.4 Environmental
justice is concerned with the right of all people to enjoy a safe, clean,
and healthy environment, and with fairness across racial, social, and
economic groups in the siting and operation of infrastructure, facilities,
or other large land uses. Placing additional growth near high-volume
roadways could expose future residents or workers to diminished air
quality and heightened noise affecting quality of life and land use
compatibility. It is particularly important to understand the health-
related impacts of various land use patterns on spaces used by
vulnerable populations, such as schools, childcare centers, elder care
facilities, and medical centers.5 The GMA suggests that counties and
cities “consider utilizing urban planning approaches that promote
physical activity” in their Land Use Elements.
Some indicators of health risk in Jefferson County a 2016 State of
Washington Department of Health profile of chronic disease included:6
▶ 79% of 10th graders in Jefferson County had insufficient physical
activity, similar to 80% for the State as a whole.The percentage of
4 RCW 36.70.A(1).
5 UW Mov-Up Report, 2019.
6 See also the Land Capacity & Housing Technical Appendix for more
information on population and household characteristics.
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Jefferson County Comprehensive Plan 1–13 Public Review Draft June 2025
students not meeting recommendations for physical activity (at
least 60 minutes of physical activity daily and muscle
strengthening exercises 3 days a week) ranged from 65% for 6th
graders up to 76% for 12th graders as of 2023, slightly lower than but
similar to levels for the state overall.7
▶ As of 2018, a higher percentage of students in Jefferson County
report currently using alcohol or marijuana than the state overall. A
higher percentage of students reported currently using alcohol in
Port Townsend than in Quilcene, and there was an even higher
percentage in Chimacum. A higher percentage of Chimacum
students in grades 6-12 also report currently using marijuana than
in Port Townsend or Quilcene.8
▶ As of 2021, 316% of adults 18 years or older in Jefferson County
reported participating in nohad insufficient physical activity outside
of work and 31% of adults were obese, similar to 318% and 29% for
the state as a whole, respectively.9
▶ About 29% of adults were obese in Jefferson County compared to
27% of adults in the state as a whole.
▶ Rates of cancer (1615%), heart disease (129%), and diabetes (1112%)
were higher for adults in Jefferson County as of 2022 than the state
as a whole (cancer-12%, heart disease 6%, diabetes 9%8%, 6%, and
10%, respectively).10
▶ Jefferson County has the oldest median age of county populations in
the state as of 2022 (60.7 years) and nearly two-thirds of the
population is age 50 or older in the unincorporated areas. The
proportion of Jefferson County’s population over the age of 65 is
more than double the state average, which results in an increased
incidence of chronic disease and creates increased demand for
ongoing health services. For example, approximately 84% of
Jefferson County residents 65+ years are living with a chronic
disease. The percentage of the population over age 65 is highest in
parts of the Port Ludlow Master Planned Resort and along most of
the county’s eastern shorelines.11
▶ Areas with the lowest median household income are in the
southeast corner of the county (including Wawa Point and
Brinnon) and surrounding most of Discovery Bay.12
7 Washington State Healthy Youth Survey, Jefferson County, 2023.
8 Jefferson County Community Health Assessment Quantitative Report, 2019.
9 County Health Rankings, 2024.
10 CDC Places, 2024.
11 ACS 5-Year Estimates, 2018-2022; OFM Median Age, 2022.
12 ACS 5-Year Estimates, 2018-2022.
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Jefferson County Comprehensive Plan 1–14 Public Review Draft June 2025
▶ Approximately 19% of unincorporated Jefferson County residents
live with one or more disabilities.13
Land Use, Air Quality, & Health Disparities
Roadway users and adjacent neighborhoods experience air pollution
from vehicle exhaust and brake/tire/road wear. Pollutant particle size,
topography, and wind patterns affect the geographic extent of
concern, with the greatest impacts immediately adjacent to and
downwind of major freeways. Roadway traffic, especially larger vehicles
(i.e., trucks and buses) also produce noise, and urban heat is generally
of greatest concern where there are dense concentrations of
pavement, buildings, and other surfaces that absorb and retain heat.
Over time, shifts to electric vehicles may alleviate some, though not all,
air pollution and noise impacts.
Air quality is affected by pollutants from both natural and manmade
sources. Vehicles and equipment that burn fossil fuels are typically
among the largest contributors to transportation-related emissions and
can contribute to regional and localized concentrations of state and
federally regulated pollutants. Other major contributors in the county
include wildfire smoke and residential burning (primarily from
woodstoves used for home heating). Air quality and greenhouse gas
(GHG) emissions are areawide issues that are often discussed at a
regional or even state level but there can be distinct differences
between urbanized, populated areas and rural and undeveloped areas.
The Washington State Department of Health (DOH) produces an
Environmental Health Disparities Map to evaluate environmental
health risk factors in communities across Washington at the Census
tract level. The Environmental Health Disparities Map provides an index
of environmental exposures (e.g., diesel emissions and proximity to
traffic and hazardous waste sites) and socioeconomic and health
factors (e.g., poverty and cardiovascular disease). Health disparities
throughout Jefferson County at the Census tract level are low
compared to other more urban counties in the state, consistent with
lower levels of population, traffic, and other activities in many rural
areas. Health disparities are slightly higher in the Irondale and Port
Hadlock UGA and on Marrowstone Island than other parts of the
unincorporated county.14 However, Census tracts in the county are
relatively large and there is likely variability within each tract.
A higher health disparity ranking represents a higher “risk” or potential
for harm from a combination of environmental and vulnerability
factors. Prevailing socioeconomic characteristics and health factors—
13 ACS 5-Year Estimates, 2018-2022.
14 Washington Health Disparities Map, Version 2.0, July 2022.
Commented [LGT3]: Two of the biggest air quality concerns in Jefferson County are wildfire smoke (that is increasing) and residential burning primarily from woodstoves used for home heating. The mill is another important source.
Commented [JH4R3]: Thanks - added the
highlighted yellow sentence “Other major
contributors in the county include wildfire
smoke and residential burning (primarily from
woodstoves used for home heating).”
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Jefferson County Comprehensive Plan 1–15 Public Review Draft June 2025
such as rates of poverty, chronic disease (like asthma) or low
birthweight, race/ethnicity, or transportation expenses—can lead to
worse health outcomes in some parts of the county than others despite
relatively low environmental exposures throughout the county.
Environmental exposures include the levels of certain pollutants that
populations come into contact with, including airborne pollutants (e.g.,
diesel emissions, O3, and PM2.5) and proximity to traffic density or
hazardous waste sites. Engagement with environmental exposure
occurs when pollution sources get into the environment and affect
individuals or populations. Direct contact or prolonged contact with
environmental exposures may lead to poor health outcomes. Greater
concentrations of sensitive or vulnerable populations—including older
adults, households living in poverty, disabled individuals, those without
health insurance, households without access to a vehicle or other
transportation options, and those experiencing homelessness—are also
at increased risk.
Land Use & Noise
Noise levels in unincorporated Jefferson County are generally low but
highest along highways and major arterials (US 101, SR 19, SR 20, SR 104,
and SR 106) per the U.S. Department of Transportation Nosie Map. Most
other areas in the county are below the 45 dBA threshold measured by
the Noise Map.15
Health impacts from noise include hypertension, heart disease, and
likely poor school performance among children. Additionally, noise can
affect quality of life and cause vibrations that impact hospitals and
health care facilities. Direct effects of noise that indirectly affect health
include:16
▶ Speech interference
▶ Sleep disturbance
▶ Task interference
▶ Impairment of classroom learning
▶ Non-auditory health effects
▶ Aversive effects on emotion and tranquility
15 dBA = A-weighted decibel, a unit of sound measurement corrected for how
humans hear sounds; USDOT National Transportation Noise Map, 2020. See
also Chapter 5 the National Transportation Noise Map Documentation for additional details about road noise modeling inputs and assumptions.
16 PHSKC, Community Health and Airport Operations Related Noise and Air Pollution: Report to the Legislature, 2020; PSRC Airport Compatible Land Use
Plan, 2011, p 29; DOH, July 2023; Wyle, 2011, p 4.
LAND USE
Jefferson County Comprehensive Plan 1–16 Public Review Draft June 2025
Land Use & Urban Heat
Extreme heat is among the most pervasive weather-related hazards in
the United States, and Washington’s summers are becoming
increasingly hotter and longer. Without significant reductions in
greenhouse gas emissions, Jefferson County is expected to see warmer
year-round temperatures, including higher maximum summer
temperatures and more frequent and severe heat waves. Median
summer land surface temperatures are currently highest in the UGA
where there is more impervious surface coverage and in inland areas,
particularly in eastern Jefferson County (Exhibit 1-7). "Urban heat
islands" occur when communities replace natural land cover with
dense concentrations of pavement, buildings, and other surfaces that
absorb and retain heat. Structures such as buildings, roads, and other
infrastructure absorb and re-emit the sun’s heat more than natural
landscapes such as forests and water bodies. Urban areas, where these
structures are highly concentrated and greenery is limited, become
“islands” of higher temperatures relative to outlying areas. Daytime
temperatures in urban areas are about 1–7°F higher than temperatures
in outlying areas and nighttime temperatures are about 2-5°F higher.
This effect increases energy costs (e.g., for air conditioning), air pollution
levels, and heat-related illness and mortality and can further exacerbate
heat exposure from climate change and the impacts of naturally
occurring heat waves. Heat islands are also riskier for sensitive
populations, including older adults, young children, populations with
low-income, outdoor workers, and people in poor health. High
pavement and rooftop surface temperatures can also heat up
stormwater runoff, which drains into storm sewers and raises water
temperatures as it is released into streams, rivers, ponds, and lakes.17 In
addition to urban areas, regions of the County with higher proportions
of vulnerable populations are especially at risk to high heat due to
access to cooling and having pre-existing health conditions. Farmland
is also vulnerable to drought and heatwaves as are farm and outdoor
workers.
17 EPA Reduce Urban Heat Island Effect, 2023; EPA Heat Island Effect, 2023; EPA
Heat Island Impacts, 2023
Commented [LGT5]: Note- Heat is the deadliest
weather event and temperate regions are
disproportionately impacted by increases in heat due to low acclimatization.
Commented [JH6R5]: Thanks - see new text
added at the start of this paragraph (highlighted yellow) per the Climate Vulnerability Assessment
LAND USE
Jefferson County Comprehensive Plan 1–17 Public Review Draft June 2025
Exhibit 1-7 Median Summer Land Surface Temperature (2019–2023)
Source: BERK, 2025.
LAND USE
Jefferson County Comprehensive Plan 1–18 Public Review Draft June 2025
Land Use & Public Health
In 2012, Jefferson County commissioned an evaluation of the
County’s Comprehensive Plan regarding active living and healthy
food access under the Washington State Department of Health’s
Healthy Communities grant program (Alta Planning + Design,
ChangeLab Solutions, September 2017).18
The 2012 evaluation cited the National Centers for Disease Control
and Prevention (CDC) recommendations that identified that healthy
community design can improve people’s health by increasing
physical activity, increasing access to healthy food, improve air and
water quality, decrease mental health stress, reduce the effects of
climate change, strengthen social ties, provide access to livelihood,
education, and resources. The analysis also made several
recommendations to integrate active living and healthy food access
into policies (see text box). The 2012 evaluation led to the 2013
Jefferson County Community Health Improvement Plan (CHIP), a
2013 partnership between Jefferson Healthcare and Jefferson
County Public Health, to identify the health needs in the
countyJefferson County. Additional partners such as Discovery
Behavioral Healthcare, Jefferson County, and the City of Port
Townsend, joined the initiative and developed the 2016 CHIP and
companion Strategic Results Framework strategic plan document.
18 Alta Planning + Design, ChangeLab Solutions, September 2017.
Active Living
Accessibility:
▶Mixed Use zoning
▶Connectivity
▶Multimodal options/ standards
▶Active Recreation
Facility design:
▶Safety
▶Complete Streets
Active Living & Healthy Food Access Recommendations
Healthy Food Access
Linking residents to local food:
▶Rural and regional agriculture
▶Urban agriculture: community and school gardens
▶Local processing and value-added production
▶Farmers’ markets and farm stands
Improving access to healthy food and limiting unhealthy
food:
▶Grocery stores and healthy food retailers
▶Fast food and convenience stores
▶Nutrition education and support for healthy eating
The Community Health Improvement Plan (CHIP) is
addressed in the following
Elements:
Land Use Land Use & Public Health
Natural Resources,
Agriculture
Open Space, Parks & Rec.
Challenges & Opportunities
Environment Environmentally Friendly Development Techniques
Transportation
Active Living
Community Health
Improvement Plan
LAND USE
Jefferson County Comprehensive Plan 1–19 Public Review Draft June 2025
Jefferson Healthcare and Jefferson County Public Health (JCPH)
conducted an updated Community Health Assessment (CHA) in 2019 to
inform development of the next Jefferson County CHIP, which is
currently ongoing. Key findings of the 2019 CHA by topic area are
summarized in Exhibit 1-8.
Exhibit 1-8 Key Findings from the 2019 Community Health Assessment
Source: Jefferson County Community Health Assessment Report: Summary Findings, 2019.
As part of the ongoing CHA and CHIP work, JCPH recently assessed
environmental and climate health threats and adaptation opportunities
in east Jefferson County to understand how the health department can
best support community resilience and adaptation to current and
future health risks related to environmental threats. Key threats
identified in the Environmental and Climate Health Threats and
Adaptation report, released in January 2025, include poor air quality
and wildfires, extreme health and cold, disrupted food systems, less
snowpack, heavy rain and river flooding, rising sea levels and coastal
flooding, and degraded water quality. See Exhibit 1-8.
Commented [LH7]: It might be worth considering
adding some information on the recent 2025
‘Environmental and Climate Health Threats and Adaptation Opportunities’ report that was completed as a part of the upcoming Community Health Assessment. Specifically,
‘Jefferson County Public Health (JCPH) conducted this Environmental and Climate Health Assessment to understand how the health department can best support community resilience and adaptation to current and future health risks related to environmental threats. This work was conducted as an issue spotlight
within JCPH’s Community Health Assessment (CHA). This project marks the first time JCPH has integrated a climate health component into the CHA’. Page 7 of the report contains a table ‘Key environmental threats and opportunities in East Jefferson County’ that might fit in well in
addition to the information found here on previous iterations of the CHA/CHIP. The report can be found here: Final_JCPH Environmental Threats Assessment (11 x 8.5 in)
Commented [JH8R7]: Thanks! See new text and
exhibit added below.
LAND USE
Jefferson County Comprehensive Plan 1–20 Public Review Draft June 2025
Exhibit 1-9 Key Environmental Threats and Opportunities in East Jefferson County
Source: Jefferson County Public Health, Environmental and Climate Health Threats and Adaptation Report, 2025.
The Land Use Element supports active living recommendations and
addresses key findings from the 2019 CHA and 2025 Environmental and
Climate Health Threats and Adaptation report by including mixed use
zoning in urban areas, master planned resorts, and rural centers and by
directing growth to urban areas where there is access to transit or
other modes of non-motor vehicle transportation opportunities.
Promoting parks and other destinations connected by regional trails
also supports active living and is supported by this Land Use Element.
Exhibit 1-10 shows existing and proposed trail connections in the
vicinity of Chimacum Crossroads and the Irondale and Port Hadlock
UGA. It illustrates connectivity between rural and urban communities,
and linking destinations such as schools, parks, and other amenities.
Non-motorized transportation connections and supporting non-
motorized and park system plans are discussed in greater detail in the
Transportation Element.
LAND USE
Jefferson County Comprehensive Plan 1–21 Public Review Draft June 2025
Exhibit 1-10 Recreation Trail Connections to Schools and Parks of the Irondale and Port Hadlock UGA and Chimacum (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County GIS, 2025Assessor, 2018; BERK, 2018.
Commented [JH9]: Expand to include open space
corridors and green spaces to address the new
requirements in RCW 36.70A.070(1).
Commented [JH10R9]: I think we can replace the
previous map with the Tri-Area Active
Transportation Network map from the 2022
PROS Plan as shown here. Ideally, we could amend to also show the Irondale Community Park and Irondale Beach Park further north. Is this something County GIS staff can help with
(assuming you made this map from the PROS
Plan)?
RCW language requires the land use element to include the general location and extent of rec, open and green spaces, and urban and community forests within the UGA. I think if we
add the two parks to the 2022 PROS Plan map
we’re covered.
Commented [JH11R9]: Replaced with revised map
from Kevin Hitchcock received 4/11. Updated version of the Tri-Area Active Transportation Network map from the 2022 PROS Plan that shows the Irondale Community Park and
Irondale Beach Park.
LAND USE
Jefferson County Comprehensive Plan 1–22 Public Review Draft June 2025
Equitable access to affordable hHealthy food—a key concern identified
in the 2019 CHA— access is well supported by the land use strategy in
this plan. A healthy food system supports the livelihoods of local
farmers and ranchers and the economic viability of farmland and other
working landscapes, both of which are necessary to protect open
spaces from sprawl. Local food systems can also reduce the
environmental impacts associated with shipping agricultural products
long distances. Local food supports healthy eating, food literacy, and a
healthy local economy. This Land Use Element supports commercial
agriculture and allows agriculture in rural areas including farm-related
accessory uses such as food processing and farm stands. Land Use and
Economic Development Element policies support local food processing
in industrial areas. The Land Use Element also supports urban
agriculture (with additional emphasis on prioritizing sites in low-
income and underserved neighborhoods), and farmer’s markets, and
school gardens in urban and rural centers.
The 2019 CHA also identified equitable access to other community
amenities—including health clinics and behavioral health service
options, senior centers, childcare facilities, and affordable and
accessible activities for families with young children—as well as
affordable housing throughout the county as key concerns in the
county (Exhibit 1-7). These are addressed in numerous goals and
policies in the Comprehensive Plan (see Policy LU-P-32.14 for example).
Considering health while planning our communities is a critical step
toward a framework for future growth and design that maximizes a
community’s ability to lead active, healthy lifestyles.
Review of Surface Water Conditions & Existing Polluted
Discharges
The GMA requires that the land use element of each comprehensive
plan include a review of drainage, flooding and stormwater runoff in
the area and nearby jurisdictions.19 (RCW 36.70A.070(1)). The GMA
recognizes that drainage, flooding, and stormwater runoff issues are
watershed basin concerns not confined by political or planning
boundaries.
The County has adopted the Department of Ecology Stormwater
Management Manual for Western Washington (201901) as a technical
guide and set of standards for stormwater management. A
comprehensive stormwater program includes:
▶ Adoption of a comprehensive surface/stormwater management
plan.
19 RCW 36.70A.070(1).
Commented [JH12]: Ecology has a new 2024
manual for Western WA. Has the County
adopted this yet? See https://ecology.wa.gov/regulations-permits/guidance-technical-
assistance/stormwater-permittee-guidance-
resources/stormwater-manuals.
LAND USE
Jefferson County Comprehensive Plan 1–23 Public Review Draft June 2025
▶ Implementation of an operation and maintenance ordinance for
stormwater facilities.
▶ Implementation of additional public education efforts regarding
nonpoint source pollution and stormwater management.
▶ Completion of a more thorough inventory of county owned and
operated facilities (i.e., cross-culverts and approach culverts).
▶ Implementation of a clearing and grading ordinance to provide a
permit trigger for compliance with stormwater standards at the
time of lot clearing.
In addition to the goals and policies of the Land Use Element, the
Environment Element addresses surface water and stormwater.
Land Use Strategy
This Land Use Element is designed according to GMArowth
Management Act G goals, as balanced by Jefferson County’s Vision,
Framework Goals, and this Element by:
▶ Directing growth to urban areas including the Irondale and Port
Hadlock UGArban Growth Area.;
▶ Offering a variety of residential housing types at low, medium, and
high densities in designated urban and rural village centers and
crossroads.;
▶ Ensuring areas designated as Master Planned Resorts follow their
adopted development standards and development agreements.;
▶ Conserving resource lands—agriculture, forestry, and mineral—of
long-term commercial significance.;
▶ Accommodating projected rural residential population and
employment growth through flexible and innovative approaches to
growth in LAMIRDs and other rural communities, including
fostering their role as rural employment centers, and offering
opportunities to create a vibrant economy while sustaining rural
character in a rural county.;
▶ Working cooperatively with other groups and individuals to
develop long-term future opportunities to improve rural economic
development and visitor facilities along established highway/tourist
corridors.
Land Use & Zoning Designations
Based on its the Vision, land characteristics, and the provisions of the
GMA, Jefferson County proposed limited redesignations from medium
to high density residential in the UGA on the does not propose to
Refer to Overlay Districts,
Policy LU-P-1.10Policy LU-P-
1.9, and the Action Plan in Section 1.5
LAND USE
Jefferson County Comprehensive Plan 1–24 Public Review Draft June 2025
change its Land Use Map for the next 20-year planning horizon in this
periodic update. See Exhibit 1-11. Other updates related to allowed
densities and uses, dimensional standards, and process in the
development regulations were proposed concurrent with the periodic
updated to support anticipated growth.
Countywide, tThe predominant future land use designation / zoning
district is Commercial Forest (CF-80). Other extensive designations
include Rural Residential – 20 and Rural Residential – 5.
Commented [JH13]: Updated slightly to reflect no mixed use overlay per 4/3 conversation with Joel.
LAND USE
Jefferson County Comprehensive Plan 1–25 Public Review Draft June 2025
Exhibit 1-11 Land Use / Zoning Map (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan. Source: Jefferson County Community Development, 202518.
LAND USE
Jefferson County Comprehensive Plan 1–26 Public Review Draft June 2025
Categories of rural land use, including rural commercial and industrial,
residential, resort, resource, public and urban land use designations
and zoning districts are listed in Exhibit 1-12. Acreage statistics illustrate
the great predominance of forest resource land designations / zoning
at over 76% of zoned land. Rural Residential categories represent about
20% of zoned land. Master Planned Resorts make up about 0.56% of
zoned land. Unincorporated UGA land use designations / zoning is at
0.32%.
Exhibit 1-12 Land Use Designations / Zoning Districts and Acreage (2025)
General Category
Future Land Use
Designation / Zoning District Acres Percent
Rural
Rural Residential RR-5, RR-10, RR-20 86,068341 20.01%
Rural Commercial RVC, GC, NC, CC 26649 0.1%
Rural Industrial LI/M, LI/C, LI, HI, RI 56419 0.1%
Resort
Master Planned Resorts MPR-PH, MPR-SF-4, MPR-SFT, MPR-MF-
10, MPR-RC/CF, MPR-VC, MPR-RA, MPR-
OSR
2,35166 0.56%
Resource Lands
Agriculture Resource Lands AP-20, AL-20 7,490281 1.7%
Forest Resource Lands IF-20, RF-40, CF-80 328,200785 76.4%
Mineral Resource Lands MRLO/CF-80 161 0.04%
Urban Growth Area
Urban Growth Area Residential UGA-LDR, UGA-MDR, UGA-HDR 7346 0.2%
Urban Growth Area Commercial UGA-UC, UGA-VOC 2354 0.1%
Urban Growth Area Industrial UGA-LI 245 0.01%
Urban Growth Area Public UGA-P 10168 0.02%
Public
Public Parks, Preserves, and
Recreation
PPR 2,8142 0.7%
Essential Public Facilities EPF-A, EPF-WM 5324 0.1%
Total 429,54030,110 100%
Source: Jefferson County GIS 2018. 2025; BERK, 202518.
LAND USE
Jefferson County Comprehensive Plan 1–27 Public Review Draft June 2025
The GMA indicates the land use elements shall include population
densities, building intensities, and estimates of future population
growth (RCW 36.70A.070(1)). Planned Allowed residential densities are
listed by zone in Exhibit 1-13. In Jefferson County Code, some zones
include standards for conditional uses that may have alternative
allowed densities, requiring additional review; when consistent with the
zone intent the alternative densities may be allowed when consistent
with the zone intent.
Exhibit 1-13 Planned Residential Densities
Land Use / Zone Acronym Residential Density
(DU/AC)
Rural
Rural Residential
RR- 1:5 0.20
RR- 1:10 0.10
RR- 1:20 0.05
Rural Commercial
RVC Allowed
GC Allowed
NC Allowed
CC N/A
Rural Industrial
LI/M N/A
LI/C Allowed
LI Allowed
HI N/A
RI N/A
Resource
AP-20 0.05
AL-20 0.05
CF-80 0.01
RF-40 0.03
IF-20 0.05
CF-80/MRLO N/A
Land Use / Zone Acronym Residential Density
(DU/AC)
Master Planned Resort
MPR-PH MPR-GR, MPR—OSR, MPR-MV, Density per Title 17, Division II.
Port Ludlow
MPR-SF-4 4.00
MPR-SFT 0.40
MPR-MF-10 10.00
MPR-RC/CF Allowed
MPR-VC Allowed
MPR-OSR N/A
MPR-RA N/A
Public
PPR N/A
EPF-WM N/A
EPF-A N/A
Urban Growth Area
UGA-LDR 4.00–8.006.00
UGA-MDR 8.00–18.0012.00
UGA-HDR 18.00–24.00
UGA-UC 18.00–24.00 (discretionary
use)N/A
UGA-VOC N/A
UGA-LI N/A
UGA-P N/A
Source: Jefferson County Code, 202518; BERK, 202518.
Notes: Allowed = some residential uses allowed; density not specified and subject to permit review. N/A Not applicable.
Commented [JH14]: Updated slightly to reflect no mixed use overlay per 4/3 conversation with Joel.
LAND USE
Jefferson County Comprehensive Plan 1–28 Public Review Draft June 2025
Rural Designations
Rural Land Use Designations & Zones
Jefferson County uses three rural residential land use densities ranging
from five (5) acres to ten (10) acres, to twenty (20) acres in size.
Regulations are included in the development code to encourage
residential “clustering” in the rural areas of Jefferson County (see Goal
LU-G-18). Subdivision of large parcels for residential purposes in
designated commercial forest lands is not permitted.
The criteria for designation of rural densities are provided in Exhibit 1-14
below. Exhibit 1-14 summarizes the rural includes various land use and
zoning designations, criteria used for such designation, and the
principal land uses. Greater detail regarding rural character, and
LAMIRDslimited areas of more intensive rural development, is provided
in Section 1.2.
Exhibit 1-14 Summary of Rural Land Use and Zoning Designations
Land Use/Zoning
Designation Criteria for designation
Principal
Land Use
Residential
Rural Residential 1 unit/5 acres
(RR 1:5)
Located in areas of similar development; areas with smaller existing lots of record; along the coastal area; adjacent to
Rural Village Center and Rural Crossroad designations;
overlay designation for pre-existing platted subdivisions.
Single family residential
Rural Residential
1 unit/10 acres
(RR 1:10)
Located in an area with similar development patterns;
adjacent to UGAsrban Growth Area, transition density
between RR 1:5 and RR 1:20; parcels in coastal areas of similar size; includes land affected by critical areas.
Single family residential
Rural Residential
1 unit/20 acres
(RR 1:20)
Located in an area with similar development patterns;
provides a buffer in areas aAdjacent to UGAsrban Growth
Area, and designated Resource Production Land, or
State/National Forest Land; parcels in coastal areas of similar size; includes land affected by critical areas; includes private timberlands; includes agricultural lands.
Single family residential
Commercial
Rural Village Centers (RVC) Existing rural commercial uses that provide for many of the basic daily needs of the rural population; typically supplies
goods and day-to-day services; provides limited public and
social services. Residential uses include single family, duplexes, triplexes, multifamily, ADUs, and assisted living facilities.
Rural community-based commercial and
residential
Convenience
Crossroads (CC)
Existing rural commercial uses which provide a limited
range of basic goods and services (basic foodstuffs, gas, basic hardware, and basic medicinal needs); generally located at the intersection of local arterials or collectors; usually contain a convenience/general store associated with gas pumps; may also serve the traveling public.
Rural commercial
LAND USE
Jefferson County Comprehensive Plan 1–29 Public Review Draft June 2025
Land Use/Zoning
Designation Criteria for designation Principal
Land Use
Neighborhood/Visitor Crossroads (NC) Existing rural commercial uses which provide an expanded
range of basic goods and services for the rural population and traveling public (grocery, hardware, bakery, restaurant, tavern, auto repair, small professional offices, public services, and medical offices, and hotels/motels).
Rural commercial
General Crossroads (GC) Existing commercial uses that provide a mixture of local,
traveling public, and community uses, and may include limited regional uses due to proximity to population centers in the Tri-Area.
Rural commercial
Village Commercial
Center (VCC)
Commercial area identified in the 1993 EIS for Port Ludlow
Master Planned Resort. Commercial uses will provide many
essential day-to-day goods and services to residents and
resort visitors.
Rural community-
based commercial
Industrial
Heavy Industrial (HI) Facilitate economic development and regulate development of more intensive heavy industrial and manufacturing activities, including and associated with the
Port Townsend Paper Mill.
Heavy industrial Paper Mill and ancillary activities
Light Industrial (LI) Facilitate economic development and provide for a broad
range of light industrial uses and activities compatible with
the Glen Cove area and
Center Valley.
Light industrial
Light Industrial/
Manufacturing (LI/M)
▶ Provide for rural economic development by regulating
light industrial and manufacturing uses in the Quilcene Industrial Area,
Eastview Industrial Plat, and
JCIA LI/M Overlay III.
Light industrial
Light Industrial/ Commercial (LI/C) Facilitate economic development and provide for a broader range of light industrial and associated commercial activities in the Glen Cove Industrial Area
Light industrial and retail uses associated with an industrial use
Forest Resource-Based Industrial Zones (RBIZ) Intended to facilitate the continued operation of existing
functional sawmills and related resource-based industrial activities in Gardiner and
West Jefferson County.
Forest resource-based
industrial
Source: Jefferson County, 202518.
Overlay Districts
Jefferson County has established several overlay designations:
The following overlay designations allow for additional commercial
opportunities in more remote areas of the county in addition to those
of the underlying zoning district:
▶ The Remote Rural Overlay designation is applied in two locations in
the County: West Jefferson County and the Brinnon Planning Area.
In Remote Rural Overlay areas, greater flexibility is provided in
Related to western Jefferson County
Commented [JH15]: Does this still exist? I don’t see it in the code anywhere and think we can delete?
Commented [JH16]: Note your code still includes
Center Valley in the description of RBI in
18.15.015(3)(e), although we know this was switched to LI when the sawmill closed in 2008.
LAND USE
Jefferson County Comprehensive Plan 1–30 Public Review Draft June 2025
home-based business and cottage industry regulations. In West
Jefferson County, additional small-scale tourist uses are allowed.
▶ The Small-scale Recreation and Tourist (SRT) Overlay is allowed in
the Wawa Point Area in the Brinnon Planning Area to encourage
small-scale recreation and tourist development.
Another overlay district establishes a view corridor along Highway 20
and other major routes:
▶ Highway 20 View Corridor: Maintains a forest buffer between the
roadway and other development.
▶ Highway/Commuter Corridor Overlay: This overlay pProvides for
future rural economic development opportunities.
The County has established several Jefferson County International
Airport Overlays also addressing noise, airport safety, and rural scale
non-aviation-related industrial uses.
See Exhibit 1-15 for a summary of the County’s overlay designations.
Exhibit 1-15 Summary of Overlay Land Use and Zoning Designations
Land Use/Zoning
Designation Intent Principal
Land Use
Remote Rural Overlay
District
The intent of this designation is to allow for expanded rural-
compatible employment opportunities in sparsely
populated rural areas that are isolated and remotely located from commercial and urban growth areas. These areas are characterized by high unemployment, distressed traditional
resource-based economies, low residential densities, and
very limited projected 20-year population growth.
In Brinnon and Wwestern
Jefferson County: home-
based businesses and cottage industry uses.
Additionally, in western
Jefferson County some recreation and tourist uses in western Jefferson County.
Small-scale Recreation
and Tourist (SRT) Overlay
The intent of this section is to encourage small-scale
recreation and tourist development consistent with the
needs, scale, and rural character of the Brinnon Planning Area.
Recreation and tourist
Highway 20 View Corridor (HVC) Along SR 20 and other suitable roadways, preserve and protect the forest corridor, and to provide a visual buffer
between the roadway and new commercial and
manufacturing development.
Forest corridor
Highway/Commuter Corridor Overlay This overlay may be applied through an area wide evaluation of future rural economic development
opportunities in heavily traveled existing highway corridors
such as State Highway 104 or State Highway 19.
Commercial and Tourist Uses in a rural setting
Commented [JH17]: Does this still exist? I don’t see it in the code anywhere and think we can
delete (here and in the table below), or is this zoning you intend to apply in the future still?
Commented [JH18R17]: Believe this is meant to be applied in the future per action table. Left as
is.
LAND USE
Jefferson County Comprehensive Plan 1–31 Public Review Draft June 2025
Land Use/Zoning
Designation Intent Principal
Land Use
Jefferson County International Airport Overlay I
Purpose of the Airport Overlay I is to disclose to permit
applicants and prospective property owners their proximity to airport operations, and to identify an airport safety zone within which certain uses will be prohibited for public safety and compatibility reasons. The overlay is a fixed boundary
reflecting the projected 55 DNL contour mapping in the year 2022, as set forth in Exhibit 6.4 of the adopted Jefferson County Airport Master Plan. Airport noise exposure is measured in a Day-Night Average Sound Level (DNL) and is
used to analyze and characterize multiple aircraft noise
events, and for determining the cumulative exposure of such noise to individuals around airports.
Aviation facilities and
activities
Jefferson County
International Airport
Overlay II
Airport Overlay II is an airport operations awareness area
delineated by the WSDOT Aviation Division, Aircraft
Accident Safety Zone #6 recommendations contained in
the “Airports and Compatible Land Use” publication. The safety zone correlates with the FAA mandated airport traffic
pattern for JCIA, and is to apprise the public, property
owners and developers of the existence of the airport traffic
pattern and impacts from routine aircraft over-flights; and
to identify an airport safety zone within which certain uses
that involve higher concentration of people will be prohibited for safety and compatibility reasons.
Aviation facilities and
activities
Jefferson County
International Airport
Overlay III
The purpose of the Airport Overlay III is to provide a limited
opportunity for rural scale non-aviation-related industrial
uses that contribute to the long-term financial viability of
the AEPF and to enhance the economic vitality and quality of life for the citizens residents of Jefferson County.
Non-aviation-related
light industrial/
manufacturing in the
Airport Essential Public Facility
Source: Jefferson County, 202518.
West Jefferson County Rural Residential
West Jefferson County includes land use and zoning designations of
RR1:10 and RR1:20. Where consistent with rural character and goals of
affordable housing and economic development, tThe County may
conduct a comprehensive analysis of potential locations for RR1:5
designations and zoning where consistent with rural character and
goals of affordable housing and economic development.
West Jefferson County also contains some private inholding parcels
within the Quinault Indian Nation Reservation. The County may consult
the Quinault Nation about common concerns regarding planning
issues.
Resource Land Designations
Agricultural Resource lands have a designated twenty (20) acre
minimum density. Forest Resource lands have a forty (40) acre and
eighty (80) acre minimum parcel size (see the Natural Resources
Element).
Related to western Jefferson County
LAND USE
Jefferson County Comprehensive Plan 1–32 Public Review Draft June 2025
Exhibit 1-16 includessummarizes resource land designations, intents,
and the principal land uses. See Section 1.3 for additional discussion.
Exhibit 1-16 Summary of Resource Land Use and Zoning Designations
Land Use/Zoning
Designation Intent
Principal
Land Use
Prime Agricultural Lands (AP-20) The purpose of the prime agricultural lands district is to pProtect and preserve areas of prime agricultural soils for the continued production of commercial crops, livestock, or other
agricultural products requiring relatively large tracts of
agricultural land. It is intended to preserve and protect the land environment, economy, and lifestyle of agriculture in Jefferson County. These lands must be protected as “agricultural lands of
long-term commercial significance.”
Agriculture
Agricultural Lands of
Local Importance (AL-20)
The purpose of the agricultural lands of local importance
district is to pProtect and preserve parcels of land which, while not necessarily consisting of prime agriculture soil or relatively large acreage, are still considered important to the local
agricultural economy, lifestyle, and environment. As such they
deserve protection as “agricultural lands of long-term
commercial significance.”
Agriculture
Inholding Forest (IF-20) This district eEncompasses parcels at least 20 acres in size that are entirely surrounded by designated forest resource lands
and that are not vested for development under Washington
State law.
Forestry
Rural Forest
(RF-40)
The purpose of the rural forest district is to eEnsure forest lands
of long-term significance are protected from incompatible uses
thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity,
while allowing for diversity in the size of forest tracts.
Forestry
Commercial Forest (CF-
80)
The purpose of the commercial forest district is to eEnsure
large tracts of forest lands of long-term significance are
protected from incompatible uses thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity.
Forestry
Mineral Resource
Lands Overlay District (MRL)
The mineral resource land district is to pProvides for the
conservation of mineral lands of long-term commercial significance. The intent of this district is to aid in sustaining and enhancing mineral extraction and processing activities of long-term commercial significance by protecting designated lands
from incompatible development and to allow for the continued contribution of mineral lands to the Jefferson County economy.
Mineral Extraction
Source: Jefferson County, 202518.
Master Planned Resort Designations
Master planned resorts (MPRs) are large-scale, self-contained
developments that are based on an integrated, conceptual master
plan, yet are typically developed in stages depending on market
demand or other factors. They are LAMIRDsLimited Areas of More
Intensive Rural Development and may constitute urban densities and
intensities of growth outside of UGAsrban Growth Areas.
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Jefferson County Comprehensive Plan 1–33 Public Review Draft June 2025
▶ Master planned resorts in existence as of July 1, 1990 and developed,
in whole or in part, as a significantly self-contained and integrated
development that includes short-term visitor accommodations
associated with a range of indoor and outdoor recreational facilities
within the property boundaries in a setting of significant natural
amenities may constitute urban growth outside of urban growth
areas as limited by RCW 36.70A.362.
▶ Master planned resorts not in existence as of July 1, 1990 are allowed
if they meet the requirements of RCW 36.70A.360.
The Port Ludlow Master Planned Resort was developed consistent with
RCW 36.70A.360 per Jefferson County Ordinance 8-99.
The Brinnon Subarea Plan (adopted 2002 and amended 2004)
identified the Black Point area an appropriate location for a possible
future Master Planned Resort. The Brinnon Master Plan Resort land use
designation was established in 2008, and a final Supplemental
Environmental Impact Statement capped the maximum number of
development units at 890 with 52 units designated for staff housing
and no more than 65% dedicated to time-share and short-term rental
units, leaving approximately 293 units for permanent housing. Approval
by the Board of County Commissioners of zoning regulations and a
development agreement is required prior final establishment of the
Master Planned Resort and project construction. In 2018, a Master Plan,
development regulations, and a development agreement were
approved by Ordinance No. 03-0604-18 and Ordinance 04-0604-18 to
establish the interior zoning and provide for a phased development
plan for the Pleasant Harbor Master Planned Resort, formerly called the
Brinnon Master Planned Resort.
The Master Plan Resort land use designations are shown in Exhibit 1-17.
More discussion of the master planned resorts is found in Section 1.2.
Exhibit 1-17 Summary of Master Planned Resort Land Use and Zoning Designations
Land Use/Zoning
Designation Intent Principal
Land Use
Port Ludlow Master
Planned Resort
with the following zoning designations:
▶ MPR-SF-4
▶ MPR-SFT
▶ MPR-MF-10
▶ MPR-RC/CF
▶ MPR-VC
▶ MPR-OSR
▶ MPR-RA
The master planned resort of Port Ludlow is characterized
by both single-family and multifamily residential units with
attendant recreational facilities including a marina, resort and convention center. The master planned resort of Port
Ludlow also includes a large residential community. The
entire MPR is served by a village commercial center, which
accommodates uses limited to serving the MPR and local population.
Resort with mix of
uses
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Jefferson County Comprehensive Plan 1–34 Public Review Draft June 2025
Land Use/Zoning
Designation Intent Principal
Land Use
Pleasant Harbor Master Planned Resort
with the following zoning designations:
▶ MPR-GR
▶ MPR-OSR
▶ MPR-MV
Provides a mixture of visitor-oriented transient
accommodations, secondary homes, recreational facilities, and supporting commercial facilities
Resort with mix of
uses
Source: Jefferson County, 202518.
Urban Growth Area Designations
The Irondale and Port Hadlock UGArban Growth Area is planned for
urban residential, urban commercial, and urban industrial, Both Rrural
and Uurban Zzones apply per the Land Use and Zoning map. Rural
zones apply until urban wastewater services are available, and then
Uurban zones apply. Construction of the Phase I wastewater treatment
plant and collection system in the Irondale and Port Hadlock UGA is
currently underway and anticipated to be ready in 2025, at which point
urban zones will apply within the Phase I sewer service area (generally
the commercial core along SR-116 and Rhody Drive). See Exhibit 1-18 and
Section 1.4 for additional discussion.
The unincorporated Port Townsend UGA is planned for public purpose
facilities, such as emergency shelters, transitional housing, emergency
housing, and permanent supportive housing. Urban Growth Area –
Public Facilities district applies to the unincorporated Port Townsend
UGA per the Land Use and Zoning map. See Exhibit 1-19 and Section
1.4 for additional discussion.
Exhibit 1-18 Irondale and Port Hadlock UGArban Growth Area Land Use and Zoning Designations
Land Use Designation Description of Zoning Districts & Location Principal Land Use
Urban Residential The Urban Low Density Residential (UGA-LDR) zone will allow housing density from four (4) to six eight (86) dwelling
units per acre. Moderate Density Residential (UGA-MDR)
zoning will allow housing at a density of 7-128–18 units per acre. The High Density Residential (UGA-HDR) zone will allow housing at a density of 13-18–24 dwelling units per acre.
Residential dwellings detached
and attached
including single family, middle housing, multifamily, and
ADUs.
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Jefferson County Comprehensive Plan 1–35 Public Review Draft June 2025
Land Use Designation Description of Zoning Districts & Location Principal Land Use
Urban Commercial The Urban Commercial (UGA-UC) zone covers both the existing and planned future commercial development in
the Port Hadlock core area and along Rhody Drive from Ness” Corner following the commercial strip along SR 19. The Visitor-Oriented Commercial (UGA-VOC) zone is applied to the tourism-oriented potential development area around the Old Alcohol Plant and marina. Multifamily with 3+ units is allowed as a discretionary use.
Commercial retail, services, tourism,
and other similar uses with multifamily residential allowed as a discretionary use
Urban Industrial The Urban Light Industrial (UGA-LI) zone in the UGA applies to a largely developed industrial area: all but 5 acres are already in light industrial use. These uses are in the
southwest corner of the UGA well buffered from the bulk of the residential neighborhoods in the community.
Light industrial
Public Facilities Public facilities (UGA-P) comprise 80 acres, including public park and open space areas, the Library and Chimacum
Creek Elementary School, the Jefferson County Sheriff’s
Office and Jail, Jefferson County Public Works Department Maintenance Yard, and the Public Utility District #1 of Jefferson County’s (JPUD) Sparling Well facility along Rhody
Drive and the Kivley Well in Port Hadlock.
Public and institutional
Note: The UGA-P designation includes parks and open spaces as well as other public uses. See Exhibit 1-10 for a map of recreation trail connections in the Irondale and Port Hadlock UGA and Chimacum. Source: Jefferson County, 202518.
Exhibit 1-19 Unincorporated Port Townsend UGArban Growth Area Land Use and Zoning
Designations
Land Use Designation Description of Zoning Districts & Location Principal Land Use
Public Facilities Public facilities (UGA-P) comprise 32.72 acres, including open space areas, the Caswell-Brown Village, the Port
Townsend Regional Stormwater Facility, and a future electrical substation as proposed by the Public Utility District No. 1 of Jefferson County.
Public and institutional
Source: Jefferson County, 2025.
Public Designations
This section addresses public designations of two types:
▶ Public: Lands needed to provide the full range of services to the
public provided by government, substantially funded by
government, contracted for by government, or provided by private
entities to public service obligations.
▶ Essential Public Facilities: Facilities needed to provide public
services and functions that are typically difficult to site. Those public
facilities that are usually unwanted by neighborhoods, have
unusual site requirements, or other features that complicate the
siting process.
See the Capital Facilities &/ Essential Public Facilities / Utilities Element for
additional background regarding the process of siting essential public facilities
Commented [JH19]: Updated slightly to reflect no
mixed use overlay per 4/3 conversation with Joel.
Commented [JH20]: Note the urban Public Facilities designation doesn’t differentiate between parks/opens space and other public
uses (new legislation requires identification of
open space corridors and green spaces within
the UGA)—suggest clarifying these areas or
adding a note to where they are mapped
(updated Exhibit 1-10).
Commented [JH21R20]: Added note to this table
with cross reference
Commented [JH22]: I think the wastewater facility
is still zoned ULDR? If revised to UGA-P, add
wastewater acreage.
Commented [JH23R22]: Should follow up on this after the public drafts. I don’t think it was rezoned but maybe it should be concurrent with the periodic update?
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Jefferson County Comprehensive Plan 1–36 Public Review Draft June 2025
Jefferson County allows public uses in nearly every implementing zone.
The County has created a specific zone for the public use of parks due
to their unique facilities and needs with some being linear, outdoor,
and indoor spaces.
Jefferson County has developed zones for two essential public facilities
regarding waste management and airports.
Each designation and zone are described in Exhibit 1-20. More detailed
policies regarding these uses are included in the Capital Facilities,
Essential Public Facilities, and Utilities Element.
Exhibit 1-20 Public Land Use Designations and Zoning
Land Use/Zoning Designation Intent
Principal Land Use
Parks, Preserves and
Recreation (PPR)
This land use district consists of state and county parks,
preserves and recreational sites. It is intended to provide for
public recreational opportunities consistent with the rural character of the County and preserve significant natural amenities of special or unique character.
Parks, recreation,
and open space
facilities and activities
County Waste Management Essential
Public Facility (CWMEPF)
This district addresses facilities needed to provide waste management public services and functions. Solid waste and waste
management
Airport Essential Public Facility (AEPF) This land use district consists of land owned by the Port of Port Townsend that directly and indirectly supports operations of the Jefferson County International Airport as an essential public facility. It is intended to promote compatible land uses and the
long-term economic viability of the JCIA consistent with county goals regarding essential public facilities, the preservation of rural character, and economic development. Additional AEPF information is found in the Transportation and Capital Facilities & Utilities Elements.
Aviation facilities and activities
Source: Jefferson County, 202518.
Major Industrial Development & Industrial Land Banks
If there is insufficient industrial land available within an urban growth
area for a large industrial operation or if a natural resource-based
industrial operation needs to be sited adjacent to natural resources, there
is a process within the GMA that allows for the siting of a major industrial
development (MID) outside of an urban growth area.20 (RCW 36.70A.365)
Additionally, the GMAAct allowed qualified counties to designate up to
two Industrial Land Banks (ILBs) before December 31, 2016 for specific
purpose of siting MIDs; the date has changed from 2007 to 2016 and may
be changed again at the will of the legislature. MIDs sites in rural lands
either through a permitting process (RCW 36.70A.365) or within a
designated ILB (RCW 36.70A.367) would be considered industrial
20 RCW 36.70A.365.
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Jefferson County Comprehensive Plan 1–37 Public Review Draft June 2025
development or activity outside of urban growth areas. No MIDs or ILBs
are designated in Jefferson County as of the 202518 Periodic Update.
Legal Nonconforming Uses & Lots
While the 2018 Periodic Update has not proposed Future Land Use Map
changes, there may be pre-existing uses of property prior to the 1998
Comprehensive Plan adoption or subsequent changes addressing land
use and zoning. Non-conforming uses of property that were legally
established prior to the 1998 Comprehensive Plan adoption or
subsequent changes addressing land use and zoning are considered
grandfathered and may continue to operate when new plans, policies,
or regulations are adopted. If a non-conforming use ceases for a certain
period, it may not continue if not allowed under current code. See
policies regarding nonconforming uses later in this element.
Some areas zoned for residential uses also have smaller lots platted
prior to 1998 than would be allowed with new plats. Residential uses
may be permitted on existing lots of record as legal lots. However, in
terms of development, some of the smaller lot sizes could require
consolidation with other lots to meet current Health Department
standards for wells or septic areas, or to meet other regulations, such as
critical areas.
Establishing Allowed Uses &
Regulations Within Land Designations
From Rural Character to Development Regulations
The Jefferson County Comprehensive Plan discusses our vision, rural
character, rural lifestyle, working landscapes, rural aesthetics, and rural
economy. These sentiments and definitions are provided throughout
the Eelements, and the entirety of the Comprehensive Plan reflects our
definition of rural character.
The Comprehensive Plan establishes land designations, harmonizes
goals and policies, and implements them through County regulations
and local actions. Jefferson CountyOur community defines rural
character not only in terms of visual character, but also in terms of
densities and intensities of use that. Jefferson County protects our
natural resources and, open spaces, and preserves critical
environments. Jefferson County places highly values regard to meeting
our housing, infrastructure, and economic development needs in a way
that , as we appropriately balance each of the GMA goals to ensureing
that our community’sCounty’s priorities and needs are addressed.
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Jefferson County Comprehensive Plan 1–38 Public Review Draft June 2025
Within the aesthetics of our rural character, there is an expectation of
an ambient background of rural life affecting our senses: sounds,
smells, views, perhaps even tastes of working rural communities and
local neighborhoods. Along with the variety of these experiences is an
understanding that a rural area is distinctly set apart from a largely
urbanized landscape, and there is an expectation of comfort and quiet
that is often sought in a rural residential neighborhood.
Living in a rural area does not necessarily ensure a continuous bucolic
experience. Chainsaws, recreational shooting, or an occasional portable
saw mill operating nearby are not out of character in our rural setting.
But there is an expectation that one property owner’s use of a property
will not interfere with another’s reasonable use and enjoyment of theirs.
Our land use goals and policies give direction to protect rural character in
ways that meet the broader set of community needs, and our definition
of rural character guides the development of implementing regulations.
Rural Character & Review of Regulations for Land Uses,
Development Patterns, & Nuisances
GMA encourages local jurisdictions to perform a periodic analysis of
rural development, to determine if patterns of rural development are
protecting rural character. It is the County’s policy to review
implementing regulations that affect our rural character.
Regulations are tailored for specific land uses. Also, regulations and can
be tailored to specific communities or sub-areas, such as in the special
small-scale recreation and tourism overlays and expanded cottage
industry standards for Brinnon and the West End. Many uses that have
the potential to create nuisances or other impacts are reviewed under a
conditional use permit process.
The conditional use permit process provides flexibility in the application
of land use regulations accommodating uses that may be appropriate
under certain circumstances, but inappropriate under others. Approval of
a conditional use permit application includes compliance with the
Comprehensive Plan and implementing development standards, such as
cottage industry requirements, the Critical Areas Ordinance, the
Shoreline Master Program, and the small-scale recreation and tourist
overlay.
Impacts from small-scale commercial activity in rural residential zones
associated with home business or cottage industries are inevitable.
However, these impacts are analyzed under our development
standards and typically approved only when they are consistent with
the Comprehensive Plan, rural character, and development regulations,
including conditional use permit approval criteria.
See JCC 18.40.530(1) for more
information about Jefferson County’s Conditional Use
Permit Criteria.
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Jefferson County Comprehensive Plan 1–39 Public Review Draft June 2025
The conditional use criteria weigh public interest, potential cumulative
effects, assure the use is harmonious and appropriate to the property
and to the vicinity, and that the use is not materially detrimental to
uses of other’s property in the vicinity, including residential use.
Community Planning Efforts
Jefferson County has worked with interested communities on area-
specific plans over time. The County’s planning areas are shown in
Exhibit 1-21.
(a) The conditional use is harmonious and appropriate in design, character and appearance with the existing
or intended character and quality of development in the vicinity of the subject property and with the physical characteristics of the subject property;
(b) The conditional use will be served by adequate infrastructure including roads, fire protection, water,
wastewater disposal, and stormwater control;
(c) The conditional use will not be materially detrimental to uses or property in the vicinity of the subject
parcel;
(d) The conditional use will not introduce noise, smoke, dust, fumes, vibrations, odors, or other conditions or which unreasonably impact existing uses in the vicinity of the subject parcel;
(e) The location, size, and height of buildings, structures, walls and fences, and screening vegetation for the conditional use will not unreasonably interfere with allowable development or use of neighboring
properties;
(f) The pedestrian and vehicular traffic associated with the conditional use will not be hazardous to existing
and anticipated traffic in the vicinity of the subject parcel;
(g) The conditional use complies with all other applicable criteria and standards of this code and any other applicable local, state or federal law; and more specifically, conforms to the standards contained in
Chapters 18.20 and 18.30 JCC;
(h) The proposed conditional use will not result in the siting of an incompatible use adjacent to an airport or airfield;
(i) The conditional use will not cause significant adverse impacts on the human or natural environments that cannot be mitigated through conditions of approval;
(j) The conditional use has merit and value for the community as a whole;
(k) The conditional use is consistent with all relevant goals and policies of the Jefferson County Comprehensive
Plan; and
(l) The public interest suffers no substantial detrimental effect. Consideration shall be given to the cumulative
effect of similar actions in the area.a
Jefferson County’s Conditional Use
Permit Criteria (JCC 18.40.530(1))
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Jefferson County Comprehensive Plan 1–40 Public Review Draft June 2025
Exhibit 1-21 Community Planning Areas
Source: Jefferson County, 2018.
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Jefferson County Comprehensive Plan 1–41 Public Review Draft June 2025
Jefferson County adopted its first Comprehensive Plan in 1998. Prior to
that, the County participated in the following community planning
efforts spanning 1977 to 1998:
▶ Brinnon Community Development Plan (original 1982)
▶ Coyle Community Development Plan (1977)
▶ Gardiner Community Development Plan (1989)
▶ Marrowstone Community Development Plan (1978)
▶ Tri-Area Community Development Plan (1982)
Additional communities which requested permission to develop
community plans prior to 1998 include North Port Ludlow and Lake
Leland, but these planning efforts were not completed due to
resource constraints. The general content and direction of these
community plans provided information for development of the 1998
Comprehensive Plan. The community plans were entirely
incorporated into the goals and policies of the 1998 Comprehensive
Plan. The community plans have no further standing as individual
community plans. As briefly discussed below, additional
community-specific planning would be conducted through a more
rigorous process of developing a sub-area plan, which would be
implemented as a distinct part of the Comprehensive Plan. Refer to
Policy LU-P-1.11Policy LU-P-1.12. Historical planning documents may
be found at the Department of Community Development. After the
completion of the initial Comprehensive Plan in 1998, Jefferson
County has engaged in planning through the policy direction of the
Comprehensive Plan for rural and urban areas as allowed under the
GMA. Detailed plans developed for a specific area in a comprehensive
plan is called a Subarea Plan. These plans are optional elements that
must be consistent with the Comprehensive Plan, and become part of
the Comprehensive Plan.21
Subarea Plans have been completed as follows:
▶ Brinnon Subarea Plan (2002, Amended 2004)
The Brinnon Subarea Plan (BSAP) was adopted as a supplement to, and
part of the Comprehensive Plan in 2002 (Ord.#13-1213-02) and was
modified by subsequent ordinances in 2004.. The BSAP appends this
Land Use Element and is a referenced component of the Land Use
Element and Comprehensive Plan. Provisions of the BSAP are
implemented in the Unified Development Code.
▶ Irondale and Port Hadlock UGA Element (2009)
In addition, Master Plans have been prepared for master planned
resorts and can be considered a type of subarea plan:
▶ Port Ludlow (1999)
▶ Pleasant Harbor Master Planned Resort (pending 2018)
21 RCW 36.70a.080(2).
Fishing on Lake Leland, Jefferson County
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Jefferson County Comprehensive Plan 1–42 Public Review Draft June 2025
Countywide Planning Policies
The Countywide Planning Policiesy in Resolution 67-1118-24R128-92
provides policies that address:
▶ Rural Areas: Includes both rural and resource lands.
▶ Urban Growth Areas: Proper sizing, provision of urban services, joint
County and the City of Port Townsend planning,
The full text of the policies is provided in the Resolution. The policies are
summarized below for brevity.
Rural Areas Policies
The CPP’s describe rRural areas are described as “characterized by low
density development, open spaces, minimal public services, resource
dependent activities, and industries; and outdoor recreational facilities.”
Innovative tools such as “clustering or density transfer areis considered
a positive tool” to in maintaining the character of rural areascharacter.
Level of service standards are to fit rural areas and rural centers,
including services such as: “ emergency services, transportation and
roads, individual septic systems, individual or community water
systems, and storm water and water quality” systems.
Parcel sizes should are to be “commensurate with the character of
existing rural communities,” and rural areas are to have a “variety of
acreage parcels.”
Rural centers serve commercial and service needs of the local area and
may have commercial, residential, and community facilities and
services. The County’s rural element is toshould recognize existing
industry outside of urban growth areas, with limitations on the
potential for conversion of adjacent land uses.
Urban Growth Areas & Services
CPP pPolicies on urban growth areas describe using the OFM to
develop a joint County-City of Port Townsend population forecast that
would to be used in capital facility and service plans. Additionally, the
policies direct each UGA to accommodate its fair share of housing
affordable to all income levels and aim to focus affordable housing
primarily within UGAs with easy access to existing or planned
transportation and transit, infrastructure, and employment and
services.describe sizing the urban growth area based at least on the low
forecast or if capital facilities are sufficient based on a medium or high
projection.
Sizing of UGAs should be based primarily on adequate supply of
developable land to accommodate the joint population forecast, and
Port Townsend is currently
the only incorporated UGA in Jefferson County. However,
the CPPs are intended to
guide the development of
comprehensive plans now and in the future and thus
anticipate that additional
areas may incorporate, or
there may be future unincorporated areas associated with the City of
Port Townsend UGA.
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Jefferson County Comprehensive Plan 1–43 Public Review Draft June 2025
including land for residential, commercial, and industrial uses. The
UGA boundaries may be revised to accommodate special purpose
housing, provided an assessment of available land indicates that
revision is necessary to accommodate housing to all economic
segments of the population, reduce displacement risk, and undo
identified racially disparate impacts. UGAs are to include lands in city
limits and lands already characterized by urban development and
served or capable of being served by urban services at defined levels
of service. UGAs should include greenbelt and open space corridors.
Critical Environmentally sensitive areas and topographic features are
toshould help form boundaries. The Irondale and Port Hadlock UGA
and Port Ludlow are considered being "characterized by urban growth"
and community plans are to be used as a guide to urban boundaries.
UGA boundaries may be changed by reviewing sizing criteria and if
there are appropriate capital facility plans. Urban areas are to be
separated by rural, resource, or open space lands, or unique
topographic features.
Within the UGA, the full range governmental urban services are to be
planned for and provided at adopted urban levels of service, including
for: community water, sanitary sewer, piped fire flow, and storm water
systems. Urban services and facilities are should not to be extended
beyond the urban growth area except if there’s a threat to public
health or welfare or to protect an area of environmental sensitivity,
with a focus on threats from existing development. The County, City
of Port Townsend, and Public Utility District, and other public and
private water purveyors are to use updated population forecasts to
update the Coordinated Water System Plan.
Capital plans may have tiers with the existing developed areas having
six-year plans as the first tier, and the second tier being areas included
within the capital facilities plan to receive the full range of urban
services within twenty (20) years. Improvements in the second tier may
be provided by a developer concurrent with development of by public
entities.
The policies also promote rReciprocal circulation of development
applications by the County and the City of Port Townsend is promoted
in the policies.
Port Ludlow, Port Ludlow
Village Council
Downtown Port
Townsend, BERK
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Jefferson County Comprehensive Plan 1–44 Public Review Draft June 2025
Overarching Land Use Goals & Policies
General Land Use
Goal LU-G-1 Ensure Jefferson County grows in a
responsible way that maintains or improves the quality of
life for all residents, workers, and visitors and upholds the
community’s visiona community-based Comprehensive Plan that is consistent with the Growth Management Act
and the County-wide Planning Policy, and provide for a well-implemented Comprehensive Plan through the
preparation of supporting development regulations,
system plans, and programs.
Policy LU-P-1.1 Incorporate opportunities for continuous and ongoing
public participation into both the comprehensive planning process and
the implementation of the resulting Comprehensive Plan.
Policy LU-P-1.1Policy LU-P-1.2 Establish future land use and zoning
designations, densities, and intensities that minimize and mitigate
potential land use conflicts and displacement.
Policy LU-P-1.2Policy LU-P-1.3 Acknowledge and protect the rights of
private property owners in preparing land use, development, and
environmental regulations, prohibit arbitrary and discriminatory
actions, and preserve reasonable uses for regulated properties.
Policy LU-P-1.3Policy LU-P-1.4 Maintain Jefferson County’s character of
rural working landscapes, with planning efforts to meet community
needs of housing, infrastructure, and economic development. Meet
these needs through county leadership and collaborative work with the
State for legislative and local solutions to the challenges met with GMA
in rural counties.
Policy LU-P-1.4Policy LU-P-1.5 Encourage the use of innovative site
planning and design techniques as a way to preserve rural character,
open lands, and natural resources, including lot consolidation
opportunities, development regulations, and other innovative tools
such as farm conservation plans.
Policy LU-P-1.5Policy LU-P-1.6 If the County chooses to adopts methods
of paying that shift the cost for new services and facilities related to
resulting from new development that causes additional demand from
new development for new public facilities or services, by shifting the
cost from the community at large to those who benefit, determine
through a public process how to apportion the fair share of funding for
required public facilities, services, and amenities.
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Jefferson County Comprehensive Plan 1–45 Public Review Draft June 2025
Policy LU-P-1.6Policy LU-P-1.7 Ensure appropriate services are provided
as needed and avoid that the duplication of services is avoided by
promoting the coordination of local governmental agencies, non-
profits, cooperatives, educational institutions, programs, and planning.
Policy LU-P-1.7Policy LU-P-1.8 Ensure the annexation of
unincorporated territory in Jefferson County occurs in a manner
consistent with State law.
Policy LU-P-1.8Policy LU-P-1.9 Establish land use goals and policies in
the Land Use Element of this plan that are internally consistent with
and reflective of the goals and policies of all other elements of the
Plan.Coordinate with surrounding jurisdictions to ensure consistency
among land use designations near jurisdictional planning boundaries.
Policy LU-P-1.10 Cooperatively examine new potential development
opportunities along selected regions of existing highway/commuter
corridors for trails, multi-use trails, affordable housing, and economic
development, consistent with GMA.
Policy LU-P-1.9Policy LU-P-1.11 Incorporate physical health and well-
being for all community members, particularly vulnerable
communities, into local decision making, land use policies, and siting of
community and public facilities.
Policy LU-P-1.10 Explore opportunities to incentivize standards such as
Built Green Washington, Low Impact Development, and /or LEED
(Leadership in Energy and Environmental Design), dependent upon the
availability of funding.
Policy LU-P-1.12 Support Jefferson County communities by reviewing,
developing, or updating local community plans, subarea plans, and
implementing regulations in sync with the needs of the community,
environment, Comprehensive Plan, and Growth Management Act, as
staffing capacity and funding allows.
Policy LU-P-1.13 Consider whether County land use actions would
disproportionally impact historically marginalized communities or
vulnerable populations.
Policy LU-P-1.14 Ensure those most disproportionately impacted by
County-decisions have equitable access to participate in planning
discussions (e.g., evening meetings, translation services, food, and
childcare or travel stipends).
Policy LU-P-1.15 Establish clear decision-making structures that ensure
disproportionately impacted populations’ needs and solutions are
prioritized and community members and leaders, organizations, and
institutions share power, voice, and resources.
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Jefferson County Comprehensive Plan 1–46 Public Review Draft June 2025
Policy LU-P-1.16 Prioritize the involvement of tribal governments in
inter-jurisdictional efforts to coordinate planning for growth, especially
when land use activities may impact culturally significant sites or tribal
treaty fishing, hunting, and gathering grounds.
Policy LU-P-1.11Policy LU-P-1.17 Support farmer’s markets and farm
stands in urban, rural residential, and commercial districts.
Land Use Consistency with Naval Base Kitsap
Goal LU-G-2 Continue to partner with the Department
of Defense for land use planning that benefits national
security, conservation, and economic prosperity in
Jefferson County.
Policy LU-P-2.1 Support additional Joint Land Use Study (JLUS)
planning work with military and other partners, provided funding is
made available.
Policy LU-P-2.2 Upon the conclusion of the JLUS Implementation
Phase, identify those tools recommended by the JLUS Implementation
Committee, which are applicable and appropriate in Jefferson County,
and undertake reasonable efforts to implement those tools in a timely
manner.
Policy LU-P-2.3 Continue to partner with Navy Region Northwest and
other applicable military partners on evolving missions, installation
planning, transportation planning, military construction projects, land
use compatibility programs, such as Readiness and Environmental
Protection Integration, and other issues affecting Jefferson County.
Marrowstone Island, Carolyn Gallaway
See also Policy LU-P-16.3 and Goal OS-G-5 in the Open
Space, Parks & Recreation, Historical & Cultural Preservation Element.
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Jefferson County Comprehensive Plan 1–47 Public Review Draft June 2025
Naval Base Kitsap (NBK), as the third largest naval base in the United States has direct and indirect impacts on Jefferson County. NBK missions include: homeporting and maintenance and repair of submarines, aircraft
carriers, and surface ships. Additional missions include weapons handling and research, development, testing,
and evaluation. NBK is home to approximately 34,000 active-duty, reserves, and US Department of Defense civilian employees. NBK includes the three flag commands (Admiral-directed) of Navy Region Northwest, Carrier Strike Group Three, and Submarine Group Nine. While the vast majority of NBK’s operations are located
outside of Jefferson County, Naval Magazine Indian Island, a strategic loading point for the Pacific Fleet, is
located in Jefferson County. Naval Magazine Indian Island, located on a 2,700-acre island within Jefferson County, is a strategic loading point for ships in the Pacific Fleet preparing for or returning from deployment. It is also a strategic port for transshipment of joint service ordnance. The pristine and undeveloped deep water
nature of Dabob Bay and Hood Canal allows the Navy to perform sensitive acoustical testing.
NBK’s evolving mission requires close coordination with Jefferson County to ensure compatible land uses
between NBK and Jefferson County.
Jefferson County was a participant in the Joint Land Use Study (JLUS), a multi-county and city effort to jointly plan land uses around NBK facilities. The JLUS describes the importance of the military installation in Jefferson
County, identifying four areas of interest:
1. Marrowstone Island shares access via the Portage Canal Bridge and utilities with Naval Magazine Indian
Island.
2. The Port Hadlock-Irondale UGA is a location of the freight route also used by Naval Magazine Indian Island.
3. Development along the western shores of Hood Canal and Dabob Bay could increase water traffic, which could impact the viability of the Navy’s in-water operating areas and testing ranges. The Navy has been
partnering with state agencies and land trusts to secure land and easements, including easements on
working forests to buffer noise-sensitive areas, reduce electromagnetic interference, and protect habitat.
4. Communication and coordination.
Implementing JLUS recommendations can improve land use compatibility and natural area conservation but may also affect the rural economy and rural housing options. For example, the US Navy is interested in
additional Readiness and Environmental Protection Integration (REPI) funding to purchase development
rights in Jefferson County. The REPI program seeks to purchase development rights from targeted property owners, in most cases extinguishing property owner’s ability to develop their property. The REPI program is designed to protect the Navy from existing and future encroachment of military missions, mitigate security
risks to the existing and future missions, and improve natural area conservation. However, these REPI
acquisitions permanently extinguish current and future development rights. Therefore, it is crucial that Jefferson County and NBK partner in implementing compatibility programs, such as REPI.
The County seeks to implement JLUS recommendations that are appropriate to the County’s Comprehensive Plan Vision and this Land Use Element while recognizing the military’s long-standing mission and partnership
in the county.
Naval Base Kitsap
Joint Land Use Study
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Jefferson County Comprehensive Plan 1–48 Public Review Draft June 2025
Industrial Development
Goal LU-G-3 Identify and designate sufficient land area
within the county for industrial uses and economic
development.
Policy LU-P-3.1 Designate sufficient land for light industrial uses within
the Irondale and Port Hadlock UGArban Growth Area.
Policy LU-P-3.2 Consider designating major industrial developments
(MIDs) outside of urban growth areas consistent with the Uniform
Development Code and all the criteria in GMA.
Housing
Goal LU-G-4 Support opportunities to provide a variety of
affordable housing types affordable for county current
and future residents of all income groups and needs.
Policy LU-P-4.1 Encourage duplexes, triplexes, senior middle housing,
special needs housing (e.g., seniors, disabled individuals, or veterans),
farmworker housing, and assisted living facilities—limited in size and
scale—to be permitted in rural commercial/mixed-use areas within the
capacity of local infrastructure and site constraints.
Policy LU-P-4.2 Encourage Allow special needs housing, senior
housing, farmworker housing, and assisted living facilities to be
permitted conditionally in rural residential areas.
Policy LU-P-4.3 Consider existing platted developments for designation
as Residential Limited Areas of More Intensive Rural Development
(Residential LAMIRDs).
Policy LU-P-4.4 Evaluate and support land use that supports and
promotesAllow for a range of affordable housing types and supplies
workforce housing options, including farmworker housing, to gain and
maintainsupport an adequate workforce and improves local the local
economy.
Policy LU-P-4.4Policy LU-P-4.5 Implement appropriate zoning
regulations and develop infrastructure to create opportunities for
housing in Jefferson County consistent with adopted growth targets.
Refer also to the Housing Element
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Jefferson County Comprehensive Plan 1–49 Public Review Draft June 2025
Public Purpose Lands
Goal LU-G-5 Identify and designate lands for both public
purposes, public facilities, and essential public facilities.
Policy LU-P-5.1 Assess for dDesignateion public purpose lands to that
provide a range of services to the public to meet public needs and
serve as sites for some public facilities.
Policy LU-P-5.2 Wherever practical, sSite essential public facilities in an
equitable manner with consideration for future climate-related hazards
and with appropriate mitigation that balances local and regional
objectives., such as airports, large-scale transportation facilities, state
educational facilities, correctional facilities, solid waste treatment
facilities, substance abuse facilities, mental health facilities and group
homes, so as to avoid potential adverse impacts to surrounding land
uses and critical areas, to meet public need, and be compatible with
the surrounding community.
Policy LU-P-5.3 Ensure that designated public purpose lands are
appropriate to the level of service standards for the designated land use
density.
Policy LU-P-5.4 Provide for broad-based participation by agencies,
citizensresidents, tribes, and other interested parties in the process for
designating land to be used for essential public facilities.
Policy LU-P-5.4Policy LU-P-5.5 Support community activities and
public lands which promote physical and mental health for all
community members.
Transportation
Goal LU-G-6 Ensure that transportation is safe, efficient, multi-modal, and based on levels of service that
correspond to the land use densities in the
Comprehensive Plan to connect people to where they
live, work, learn, and play.
Policy LU-P-6.1 Encourage innovative development and land use
proposals that utilize existing transportation systems and provide
interconnected, multi-modal, pedestrian-friendly, non-motorized
transportation opportunities that address environment, housing, and
economic development goals.
Policy LU-P-6.2 Coordinate with state and federal transportation
agencies to ensure that their plans meet the land use expectations of
the County’s Comprehensive Plan.
Refer also to the Transportation Element
Refer to related elements and follow multi-modal wayfinding references
between goals and policies of the Economic Development, Transportation, Environment, and Land Use Elements
Essential public facilities are
defined as public facilities that
are typically difficult to site
and include, but are not limited to, airports, large-scale
transportation and transit
facilities, state educational
facilities, correctional facilities, solid waste treatment
facilities, inpatient and mental
health facilities, substance
abuse facilities, secure
community transition
facilities, and group homes. See WAC 365-196-550.
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Jefferson County Comprehensive Plan 1–50 Public Review Draft June 2025
Policy LU-P-6.3 Site transportation facilities in locations which
minimize the disruption of natural habitat, floodplains, wetlands,
geologically sensitive areas, resource lands, and other priority systems.
Policy LU-P-6.4 Prioritize non-motorized improvements and
connectivity in communities, especially around schools.
Policy LU-P-6.4Policy LU-P-6.5 Support active transportation (e.g.,
walking and bicycling) access to public facilities, parks and open space,
employment centers, and other key amenities and resources.
Environment
Goal LU-G-7 Preserve the functions, and values, and resiliency of critical environmentalecologically sensitive areas and protect development from the risks of
environmental hazards.
Policy LU-P-7.1 Ensure that land use decisions consider climate change
and promote climate resiliency and are based on land use ordinances
which are in compliance with the Critical Areas Ordinance and all
applicable state environmental laws.
Policy LU-P-7.2 Allow residential, commercial, and industrial
development in a manner that minimizes risk from flooding, earth
movement, shoreline erosion, sea level rise, and other natural hazards
now and in the future under changing climate conditions.
Policy LU-P-7.3 Develop information and action plans regarding
impacts to land use from climate change, including protecting or
moving infrastructure from inundation areas; review of hydrologic
budgets and water impoundment and conservation measures for
changing precipitation patterns; and protection of water quality from
seawater intrusion or other pollutants to drinking water quality.
Policy LU-P-7.4Policy LU-P-7.3 Support cooperative ecosystem and
habitat management processes between stakeholders and local, state,
federal and tribal governments.
Policy LU-P-7.5Policy LU-P-7.4 Ensure that land use decisions along
Jefferson County shorelines protect the shoreline environment,
facilitate public access, recognize the needs of water-oriented activities,
and cooperate with regional plans for protection and management of
shorelines. In areas of the County under the jurisdiction of the Shoreline
Management Act (Chapter 90.58 RCW), activities which are water-
oriented will be preferred over those activities which are not, all other
factors being equal, consistent with the Shoreline Management Act
and the land use designations, goals, and policies of this
Comprehensive Plan.
Refer to the Environment
Element for primary information on environmental protection
and hazard issues
Refer to the Environment
Element for primary
information on shorelines and Shoreline Master Program Goals—see the
“SMP Purpose & Goals”
information box at EN-G-4 Also refer to the Natural
Resource Element—
Aquaculture
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Jefferson County Comprehensive Plan 1–51 Public Review Draft June 2025
Policy LU-P-7.6Policy LU-P-7.5 Encourage small-scale marine trades
activities, in Port Hadlock, Port Ludlow, Nordland, Brinnon, and
Quilcene.
Policy LU-P-7.6 Develop land use ordinances that promote climate
resiliency based on comprehensive watershed and salmon recovery
plans for the conservation, protection, and management of surface
and ground waters, floodplains and estuaries, in order to maintain
water quality and quantity, provide potable water, and to restore and
protect fish habitat.
Policy LU-P-7.7 Proactively steward natural systems and discourage
development and land use decisions that significantly adversely impact
the natural environment and natural resources.
Policy LU-P-7.7Policy LU-P-7.8 Manage built and natural environments
in the county for resiliency to reduce wildfire risk and impacts of
climate change, such as increased flooding, extreme heat, and
droughts, to infrastructure, the economy, natural resources, and human
health. Lead regional climate change and greenhouse gas emission
reduction efforts.
Brinnon, Carolyn Gallaway
Commented [LGT24]: Can this be more than
participate? We are in the position to lead
greenhouse gas emission reduction efforts.
Commented [JH25R24]: Yes! Revised to lead.
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Jefferson County Comprehensive Plan 1–52 Public Review Draft June 2025
Policy LU-P-7.8 Continue to implement, periodically review, and update
critical area regulations under the Jefferson County Critical Areas
Ordinance (CAO) consistent with GMA requirements, including best
available science.
Policy LU-P-7.9 Continue to protect aquifer recharge areas from
depletion of aquifer quantity or degradation of aquifer quality under
the Critical Area Ordinance (CAO). Continue to periodically review and
update CAO regulations relating to aquifer recharge, including best
available science.
Policy LU-P-7.10 Continue to protect flood hazard areas from
development and uses that compromise the flow, storage, and
buffering of flood water, normal channel functions, and fish and wildlife
habitat, and minimize flood and river process risk to life and property
under the Critical Area Ordinance (CAO). Continue to periodically
review and update CAO regulations relating to flood hazards, including
best available science.
Policy LU-P-7.11 Continue to ensure that landslide, erosion, and seismic
hazard areas are appropriately designated and that measures
protecting public health and safety are implemented for hazardous
areas under the Critical Areas Ordinance. Continue to periodically
review and update CAO regulations relating to geologic hazard areas,
including best available science.
Policy LU-P-7.12 Continue to protect and enhance fish and wildlife
habitat under the Critical Areas Ordinance (CAO). Continue to
periodically review and update CAO regulations relating to fish and
wildlife habitat, including best available science.
Policy LU-P-7.13 Continue to protect existing wetland area and
functions, while encouraging wetland enhancement and restoration
under the Critical Areas Ordinance (CAO). Continue to periodically
review and update CAO regulations relating to wetlands, including best
available science.
Refer also to the Environment Element
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Jefferson County Comprehensive Plan 1–53 Public Review Draft June 2025
WaterDrainage, Flooding, Stormwater Management, &
Polluted Discharges
Goal LU-G-8 Continue to address stormwater
management and drainage issues with private property
owners and resource agencies to protect shellfish beds,
fish habitat, and other natural resources and to reduce
nonpoint sources of pollution.
Policy LU-P-8.1 Encourage increased coordination between stormwater
requirements of Forest Practices and Jefferson County stormwater
requirements to reduce potential impacts to off-site residential
development, and encourage the preservation of natural drainage
systems to improve climate resiliency.
Policy LU-P-8.2 As a condition of project approval, rRequire operation
and maintenance agreements as a condition of project approval for all
stormwater management facilities as a means of ensuring long-term
compliance with the stormwater management standards of the
Jefferson County Unified Development Code.
Policy LU-P-8.3 As appropriate funds, funding sources and staff
resources become available, dDevelop and implement an operation
and maintenance program for public and private stormwater control
facilities as funds, funding sources, and staff resources become
available. Ensure that the program includes provisions for ongoing
monitoring and inspection of stormwater facilities, as well as effective
compliance and enforcement measures.
Policy LU-P-8.4 Consider adopting stormwater control facility charges
(as authorized by RCW 36.89.080) in order to provide an adequate
funding source for stormwater facility development, operation and
maintenance, and for public education, water quality monitoring,
stream gauges and enforcement.
Policy LU-P-8.5 Storm water management plans should mMinimize
adverse effects of floods on existing and future development and
protect the natural conditions and functions of the flood plain by
considering current and future climate conditions.
Commented [LGT26]:
The county water quality team has seen significant changes in water quality downstream of logging sites. In addition there have been reports of septic systems failing downstream
after a logging event. So emphasizing this is very
important.
Commented [JH27R26]: Noted
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Jefferson County Comprehensive Plan 1–54 Public Review Draft June 2025
Flood Hazards
Goal LU-G-9 Protect life and property from flood hazards
and retain the flood storage capacity of rivers and
streams.
Policy LU-P-9.1 Periodically review and, if necessary, update the
Jefferson County Flood Damage Prevention Ordinance to reflect such
things as climate change, and changes in federal, state and local
legislation, and hazard mitigation planningincluding Jefferson County-
City of Port Townsend Natural Hazards Mitigation Plan adopted in
2004.
Policy LU-P-9.2 Encourage community-based flood hazard
management planning through participation in the National Flood
Insurance Program’s “Community Rating System” (CRS).
Policy LU-P-9.3 Collaborate with the Federal Emergency Management
Agency (FEMA) as a Cooperating Technical Community and enter into
Mapping Activity Agreements in order to update and maintain
accurate flood hazard area data and maps that reflect current and
future climate conditions.
Policy LU-P-9.4 Adopt land use policies and best management
practices that increase the ability of natural systems, such as
floodplains, to respond to droughts, changes in streamflow, and
flooding.
Policy LU-P-9.3Policy LU-P-9.5 Strengthen development regulations
that promote compatible uses and protection of health and safety in
critical areas more prone to risks of extreme precipitation and flooding.
Groundwater
Goal LU-G-10 Ensure a sustainable and safe water supply
for residential, economic, and environmental needs that
reliesy on conservation and other current technologies,
while incorporating the most current climate projections
into supply planning.
Policy LU-P-10.1 Work cooperatively with water supply purveyors, public
utility districts, and other experts at federal, state, local, tribal
governments—, including private non-profit organizations— to
preserve and protect existing water supplies while addressing future
water supply needs. Such measures may utilize alternative water
sources that are compatible with environmental protection.
Refer also to the
Environment Element
See also Policy CE-P-19.1 in
the Climate Element
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Jefferson County Comprehensive Plan 1–55 Public Review Draft June 2025
Policy LU-P-10.1Policy LU-P-10.2 Ensure future water supply needs
consider impacts to water supply from changing climate conditions.
Goal LU-G-11 Protect the quality and quantity of surface,
ground, and marine water resources through locally
implemented shoreline, critical areas, and other related environmental programs.
Policy LU-P-11.1 Ensure that County water quality programs are
designed to complement related programs developed and
implemented by other local as well as state and federal agencies. For
ease of administration and enforcement, reference related programs
implemented by other agencies within relevant county plans and
regulations.
Policy LU-P-11.1Policy LU-P-11.2 Discourage development and land use
decisions that significantly adversely impact the quality and quantity of
groundwater used for public water supplies.
Policy LU-P-11.2Policy LU-P-11.3 Preserve the environmental functions
of surface and ground water resources by retaining native vegetation
and open spaces where feasible and by requiring mitigation measures,
including low impact development techniques, for land use activities
that may adversely impact surface and ground water.
Policy LU-P-11.3Policy LU-P-11.4 Work with the Department of Ecology
and other agencies to minimize saltwater intrusion, to evaluate ground
water resources that have been damaged either by saltwater intrusion
or other contamination, and to identify technically and financially
feasible measures for remediation of adverse impacts. Ensure efforts
consider increased risk of saltwater intrusion as a result of climate
change.
Policy LU-P-11.4Policy LU-P-11.5 Promote best management practices
and voluntary open space conservation to protect critical areas in land
use regulations related to septic systems, forest management,
agricultural practices, industry, and other development.
Goal LU-G-12 Cooperatively manage, protect, enhance,
and conserve water resources through a comprehensive
watershed management program that is integrated with
recovery plans for listed species.
Policy LU-P-12.1 Take an active role in implementing watershed plans
for Water Resource Inventory Area (WRIA) 16, 17, and 20, as funding
allows.
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Jefferson County Comprehensive Plan 1–56 Public Review Draft June 2025
Policy LU-P-12.2 Participate in collaborative watershed, shoreline, and
salmon habitat conservation planning processes with state, federal, and
tribal governments, including local stakeholders.
Legal Nonconforming Uses
A legal nonconforming use or structure is one that conformed to all
applicable codes in effect on the date of its creation, but no longer
complies due to subsequent changes in the code or comprehensive
plan.
Goal LU-G-13 Allow the continued existence and economic viability of legally established land uses which
have now become nonconforming.
Policy LU-P-13.1 Allow existing commercial and industrial uses that
become nonconforming to continue and to expand within limits as
defined in JCC 18.20.260, including the right to continue and not be
subject to nuisance claims if operating in compliance with all County
regulations, to be able to change to a different non-conforming use of
equal or lesser intensity, and be able to be sold within a reasonable
amount of time without jeopardizing the continuation of the use or
activity.
Policy LU-P-13.2 Allow existing commercial and industrial uses to
expand or be replaced in Rural Residential areas provided that they do
not require additional urban levels of government service and they do
not impose uncompensated additional costs to the taxpayers of
Jefferson County for the provision of infrastructure, its replacement or
improvement. Allow expansion or replacement, provided they do not
conflict with natural resource industries or surrounding rural uses. Also
allow expansion or replacement provided it and results in no further
adverse environmental or neighborhood impacts, unless mitigated.
Policy LU-P-13.3 Prohibit businesses that do not meet the above criteria
from expanding or rebuilding if destroyed.
Policy LU-P-13.4 Allow a legal existing nonconforming structure
damaged or destroyed by fire, earthquake, explosion, wind, flood, or
other calamity to be completely restored or reconstructed if all the
applicable criteria and code provisions are met and if provisions of
Jefferson County Code are met.
Policy LU-P-13.5 Allow a legal existing nonconforming use to change to
a conforming use allowed within the zone classification in which the
use is located.
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Jefferson County Comprehensive Plan 1–57 Public Review Draft June 2025
Policy LU-P-13.6 Process all proposals to change the use of a legal
existing nonconforming use to a different non-conforming use in
accordance with a public hearing process to ensure notification of
adjacent property owners.
Policy LU-P-13.7 Apply legal existing nonconforming use status only to
businesses which were established prior to the adoption of the
Comprehensive Plan as legal commercial establishments. This policy
does not apply to Home Businesses and Cottage Industries.
Permit Processing
Goal LU-G-14 Ensure responsive, fair, and efficient permit
processing.
Policy LU-P-14.1 Develop and maintain implementing regulations and
internal policies that ensure that development applications are
processed in a timely, fair, and predictable manner.
Policy LU-P-14.2 Ensure that permit review and requests for additional
information are fair, consistent, and balanced with the needs of the
applicant and the public interest at large.
Policy LU-P-14.3 Implement and maintain a land use and building
permit enforcement program that encourages voluntary compliance as
the first course of action, but is protective of the community’s life,
safety, and environmental health. Support property owners with code
compliance.
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Jefferson County Comprehensive Plan 1–58 Public Review Draft June 2025
1.2 RURAL
Rural Character
Rural counties, as defined by the State of Washington, are “…a county
with a population density of less than 100 persons per square mile or a
county smaller than two hundred twenty-five square miles.”22 Based on
this definition and OFM population estimates from April 1, 2017,
Jefferson County is a rural county.23 The GMA requires that the County
“include measures that apply to rural development and protect the
rural character of the area as established by the county.” These
measures must be used to control rural development, assure visual
compatibility of rural development with surrounding areas, reduce
sprawl, protect critical areas and surface and groundwater water
resources, and protect against conflict with the use of agricultural,
forest, and mineral resource lands.24
The GMA defines rural character as follows:25
"Rural character" refers to the patterns of land use and
development established by a county in the rural element of
its comprehensive plan:
(a) In which open space, the natural landscape, and
vegetation predominate over the built environment;
(b) That foster traditional rural lifestyles, rural-based
economies, and opportunities to both live and work in rural
areas;
(c) That provide visual landscapes that are traditionally found
in rural areas and communities;
(d) That are compatible with the use of the land by wildlife and
for fish and wildlife habitat;
(e) That reduce the inappropriate conversion of undeveloped
land into sprawling, low-density development;
(f) That generally do not require the extension of urban
governmental services; and
(g) That are consistent with the protection of natural surface
water flows and groundwater and surface water recharge and
discharge areas.
22 RCW 82.14.370(5).
23 As of April 1, 2017, Jefferson County has a population density of 17.39 persons per square mile (OFM, 2017).
24 RCW 36.70A.070(b).
25 RCW 36.70A.030(35)
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Jefferson County Comprehensive Plan 1–59 Public Review Draft June 2025
Additional principles that define Jefferson County’s rural character
include the following (elements of the GMA definition for rural
character supported by each principle are shown in parenthesis):
▶ Ensure that the County’s quality of life is preserved as it is
enhanced. (all)
▶ Protect and conserve the County’s agricultural and forest working
lands, shoreline and mountain vistas, visual and forest corridors,
night sky, and natural ecosystems. (a, c, d)
▶ Encourage development that blends with the County’s natural
setting. (a, c)
▶ Promote low-density residential development that is consistent
with the historical pattern of growth, prevents a new pattern of
sprawling development, and offers a variety of residential densities.
(e)
▶ Promote economic development that supports place-based jobs,
supports renewable resources, supports local healthy food and local
job and housing choices for residents and the local workforce. (b, d)
▶ Encourage and provide incentives for businesses to create local
“livingfamily wage” employment opportunities, and for modern
economic opportunities—including home-based business and
cottage industries—compatible with surrounding uses. (b)
▶ Provide efficient delivery of rural public services which minimize
the need for additional infrastructure. (f)
▶ Protect and conserve the environment, ecologically sensitive areas,
natural surface water and recharge areas, and preclude
development and land uses which are incompatible with critical
areas. (d, g)
The land use designations and the goals and policies of this element
have been developed to meet these criteria. Goals and policies of other
elements of the Comprehensive Plan have been evaluated for
consistency with the protection of rural character as defined above, and
by the other factors contributing to local “rural character” as provided
under the full text of the amendment.
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Jefferson County Comprehensive Plan 1–60 Public Review Draft June 2025
Limited Areas of More Intensive
Rural Development
Rural commercial and industrial lands in Jefferson County
are designated using criteria in the GMA at RCW
36.70A.070(5)(d), which establishes the criteria by which
limited areas of more intensive rural development
(LAMIRDs) can be designated by local jurisdictions outside
of urban areas. GMA includes LAMIRDs for three types of
development patterns in rural areas:26
▶ Type 1 LAMIRDs: Isolated areas of existing more
intense development. Within these areas, rural
development consists of infill, development, or
redevelopment of existing areas. These areas may
include a variety of uses including commercial,
industrial, residential, or mixed-use areas. These may be
also characterized as shoreline development, villages,
hamlets, rural activity centers, or crossroads
developments.
▶ Type 2 LAMIRDs: Small-scale recreational uses.
Counties may allow small-scale tourist or recreational
uses in rural areas. Small-scale recreational or tourist
uses rely on a rural location and setting and need not be
principally designed to serve the existing and projected
rural population.
▶ Type 3 LAMIRDs: Small-scale businesses and cottage
industries. Counties may allow isolated small-scale
businesses and cottage industries that are not
principally designed to serve the existing and projected
rural population and nonresidential uses, but do provide
job opportunities for rural residents, through the
intensification of development on existing lots or on
undeveloped sites.
Counties making such designations must adopt measures
to minimize and contain the existing areas or uses of more
intensive rural development. In Jefferson County, rural
commercial areas include Rural Village Centers, three types
of Rural Commercial Crossroads, and Rural industrial areas.
26 WAC 365-196-425(6).
As shown in Exhibit 1-1, Jefferson County predominantly consists of resource lands, with sparsely
distributed communities settled many
decades ago and serving as focal points including Chimacum, Quilcene, Brinnon, Gardiner, and others. These
communities are distant from urban
services and limited in their ability to grow or change due to limitations on infrastructure such as wastewater
treatment and some limitations on
growth under GMA’s rural policy framework.
As described in the Housing and
Economic Development Elements, Jefferson County has a critical need for safe and affordable housing, accessible health and human services, supportive
infrastructure, and local jobs.
Urban densities and job growth are
planned for a majority of the County’s growth through 204538 in Port
Townsend and the Irondale and Port
Hadlock/Irondale UGAs. Urban housing
and job options in these locations cannot solely meet the needs for
housing options and services in other
corners of the county that are
experiencing housing cost burdens,
lack of job opportunities, and in some
cases failing septic systems,
endangered water supplies and low
health outcomes.
Jefferson County seeks legislative and
rule adjustments to GMA Rural Element provisions for Limited Areas of More Intensive Rural Development (LAMIRDs) to more fully realize the
potential for its historic communities to serve as complete compact communities and rural employment centers (small-scale services, small
businesses that support resource-based industries, etc.).
Jefferson County LAMIRDs
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Jefferson County Comprehensive Plan 1–61 Public Review Draft June 2025
Rural Centers, Crossroads, & MPRs
Exhibit 1-22 shows the location of all designated rural commercial areas
and master planned resorts in Jefferson County. A detailed discussion
of the types of rural commercial areas and master planned resorts, as
well as a description and map of each individual area, follows.
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Jefferson County Comprehensive Plan 1–62 Public Review Draft June 2025
Exhibit 1-22 Location of Rural Commercial Areas and Master Planned Resorts (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Community Development, 202418; BERK, 202518.
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Jefferson County Comprehensive Plan 1–63 Public Review Draft June 2025
Rural Commercial Areas: Centers & Crossroads
Rural Village Centers
Rural Village Centers are established, historically settled areas with
commercial uses that address most of the essential needs of the rural
population, supply a large variety of goods and day-to-day services, and
provide a broad range of professional and social services. The
designated Rural Village Centers contain mixed residential and
commercial uses and are designated for residential as well as
commercial uses according to historic patterns of mixed development.
Rural Village Centers are intended to provide for a mixture of
commercial, residential, and community/public services uses. Infill
allowed in Rural Village Centers considers affordable housing goals
through limited multifamily (duplexes, triplexes), ADUs, and assisted
living/special needs housing, as well as by preserving the existing
housing supply (see the Housing Element). In addition to residential
and commercial uses, land for community clubs, churches, public
facilities, and social services are necessary to meet projected population
growth and to preserve community identity.
There are two designated Rural Village Centers in Jefferson County:
Brinnon and Quilcene. The Comprehensive Plan identifies policies in
Goal LU-G-21 that help guide development of any new Rural Village
Center designation.
LAND USE
Jefferson County Comprehensive Plan 1–64 Public Review Draft June 2025
BRINNON
Rural Village Center
Carolyn Galloway
Sources: Jefferson County Community Development, 2018; BERK, 2018. Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database.
Total Area:
66.1 acres
Undeveloped:
18.08 acres
(279%)
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–65 Public Review Draft June 2025
Carolyn Galloway
The historic community of Brinnon is located on U.S.
Highway 101 at the mouth of the Dosewallips River. The
traditional community boundaries are the river on the
south, the steep valley wall to the north, and Hood Canal on
the east. The designated core area consists of mixed
commercial and residential uses. Existing uses—such as a
nursery and a mixed commercial/residential short plat with
an existing mini-storage and a new post office—have been
included in the RVC, which was modified through adoption
of the Brinnon Subarea Plan in 2002.
The boundary allows for areas of infill in Brinnon based on
the distressed economy of the area because of decreased
employment in logging and fishing. The seasonal increase in
the visitor population is expected to increase in the future
because of ongoing regional growth in Puget Sound.
Limited areas of infill in the Brinnon Rural Village Center will
provide employment opportunities for local residents in the
transition to a more diversified economy as Brinnon
attempts to promote small-scale tourist and recreation-
oriented businesses based on a location on Highway 101
adjacent to the Olympic National Park.
A high priority for the community is a facility
that allows elderly
residents to stay in the community rather than moving away from family and friends to facilities
elsewhere. Areas of limited
infill are also provided in
support of the community
goal of an extended care or assisted living facility. Although such facilities would be permitted
conditionally in residential
areas, the community
prefers they would be
located in the Rural Village Center.
Community Priorities
LAND USE
Jefferson County Comprehensive Plan 1–66 Public Review Draft June 2025
QUILCENE
Rural Village Center
Joel Peterson
Source: Jefferson County Community Development, 2018; BERK, 2018. Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database.
Total Area:
50.6 acres
Undeveloped:
10.712.4 acres
(214%)
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–67 Public Review Draft June 2025
Quilcene Fair & Parade, North Hood Canal Chamber of Commerce
Similar to Brinnon, the historic community of Quilcene is
distinct from the Port Hadlock and Port Ludlow communities.
Quilcene’s location at the gateway to Olympic National Park
on Hood Canal and Highway 101 provides a unique
opportunity to serve visitors and seasonal residents building a
diversified economic base.
Areas of commercial infill in Quilcene are intended to provide
new living-wage employment opportunities. Commercial
development can take advantage of a high volume of visitors
because of the community’s location on both Highway 101
and Center Valley Road. The amount of potential commercial
infill development depends on the availability of public
services, such as the water system and fire flow. Quilcene has
a public water system with the assistance of the County
Health Department and the JPUD. The Washington State
Department of Ecology approved a water rights transfer in
2004 from the National Forest Service to the JPUD with the
effect of providing public water for Quilcene.
Jefferson County and its partners have taken efforts to
prevent sprawl, restore habitat, and preserve environmentally
sensitive areas and farmlands in Quilcene. This has been
accomplished through restoration efforts, land acquisition,
and habitat restoration projects. These efforts along with
Quilcene’s natural growth barriers, such as Dabob Bay and
the Olympic National Park, work to prevent sprawl in this
area.
Community concerns in Quilcene indicate a
priority need for areas of
infill in the commercial core that could allow for enhanced existing and new economic
development and
residential opportunities.
Such development is
currently, constrained by the cost of utility and infrastructure upgrades as well as existing LAMIRD
boundaries.
For example, modern wastewater treatment
options, such as modular
plants or connections with
existing plants are
considered an urban level
of service and thus prohibited in LAMIRDs. This limits wastewater
improvements that would
support job growth,
existing commercial
development, and
improve existing housing stock.
Community Priorities
LAND USE
Jefferson County Comprehensive Plan 1–68 Public Review Draft June 2025
Rural Commercial Crossroads
Rural commercial crossroads are distinct from rural village centers in
that they provide access to a limited range of services for residential
and non-residential uses. Three types of rural commercial designations
are further defined based on scale and intensity of use. Individual
commercial areas are discussed regarding the GMA criteria and local
circumstances in the sections that follow. Maps of commercial lands
and boundaries are provided in this element and in digital format on
the County’s website.
This Comprehensive Plan identifies policies in Goal LU-G-22 that help
guide development of any new rural commercial crossroads
designation, including policies specific to general crossroads,
neighborhood/visitor crossroads, and convenience crossroads.
General Crossroads
General crossroads (GC) are existing commercial areas that provide a
broad range of commercial goods and services for a higher population
base in the northeastern part of Jefferson County. These areas provide
several regional uses, as well as multiple uses at community levels of
service. Permitted uses in these areas include all those allowed in
convenience and neighborhood/visitor crossroads (see below), as well
as building materials, hardware and farm equipment, auto repair with
subordinate auto sales, appliance sales and repair, clothing and
accessories, mini-storage, Recreational Vehicle (RV) repair and sales,
and an expanded range of specialty stores, professional services, and
public and social service offices.
Performance standards for general commercial uses shall allow for
sizes and scales of new development larger than those for
neighborhood/visitor crossroads but be more limiting than those for
rural village centers.
There is one general crossroad designation in Jefferson County: SR
19/20. The Comprehensive Plan identifies policies in Goal LU-G-22 that
help guide development of any new general crossroads designation.
Neighborhood/Visitor Crossroads
Neighborhood/visitor crossroads (NC) are designated based on multiple
commercial uses that serve the nearby rural neighborhood and the
commuting or traveling public with a limited range of basic goods and
services. Permitted uses include all those allowed in convenience
crossroads (see below), as well as restaurant, tavern/bar, auto parts and
repair, farm supply and equipment, and a limited range of specialty
stores and professional services.
LAND USE
Jefferson County Comprehensive Plan 1–69 Public Review Draft June 2025
Performance standards for new development shall be consistent with
the rural character, size, and scale of the existing commercial area and
the surrounding neighborhood.
There are five neighborhood/visitor crossroad designations in Jefferson
County: Mats Mats, Discovery Bay, Gardiner, Chimacum, and Four
Corners. The Comprehensive Plan identifies policies in Goal LU-G-22
that help guide development of any new general neighborhood/visitor
crossroads designation.
Convenience Crossroads
Convenience crossroads (CC) typically consist of a single commercial
property at a historical crossroads which provides basic goods and
commodities for the local population and the commuting or traveling
public.
There are four convenience crossroad designations in Jefferson County:
Wawa Point, Beaver Valley, and Nordland, are existing commercial
properties that include a convenience general store with associated
uses such as gas station, espresso, or café/deli. SR 104/Shine Road has a
single commercial building and accessory structures,
The Comprehensive Plan identifies policies in Goal LU-G-22 that help
guide development of any new convenience crossroads designation.
LAND USE
Jefferson County Comprehensive Plan 1–70 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
SR 19/20
General Crossroad
Under the criteria for commercial crossroads boundaries, this area has
been downsized considerably from 1994 zoning designations. Existing
development on one side of State Route 19 was recognized and
contained, consisting of a nursery/garden supply store, a former auto
dealership—currently commercial self-moving rentals and supplies—
under a Binding Commercial Site Plan. Commercial uses excluded from
the crossroad include an auto repair business adjacent to residential
uses and a drive-in movie theater. These uses have been excluded to
limit access near an intersection with high traffic volumes and, prior to
the installation of a traffic light, a relatively high incidence of accidents.
Total Area:
26.5 acres
Undeveloped:
8.8 acres (33%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–71 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
MATS MATS
Neighborhood/Visitor Crossroad
The Mats Mats General Store serves local neighborhood residents as
well as visitors to the Oak Bay and Mats Mats Bay shoreline areas. The
logical boundary takes in additional uses including a photography
studio, a vacant former medical clinic, and a chiropractor’s office. The
southern boundary is located along a stream drainage.
Total Area:
5.7 acres
Undeveloped:
1.2 acres (21%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–72 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
DISCOVERY BAY
Neighborhood/Visitor Crossroad
The Discovery Bay community was historically a thriving economic area
on the railroad line, with a sawmill and a cannery. The historic
community declined in population as these uses ended, but the
commercial area has continued due to its location at the junction of
State Route 20 and U.S. Highway 101. It serves nearby residents as well
as visitors and commuters. Criteria for logical boundaries have been
applied with special consideration of critical areas and traffic issues.
The logical boundary to contain this commercial area allows for limited
infill but protects critical fish and wildlife habitat in the Salmon and
Snow Creek estuaries. Areas of infill are also limited over estuarine lands
based on seismic, frequently flooded, and wetlands critical areas.
Existing uses have been recognized, and limited areas of infill have
been allowed farther from critical areas. Several uses on the western
boundary were excluded to address traffic concerns on Highway 101
and to prevent linear commercial sprawl, as development is
constrained by the estuary on one side and steep slopes on the other.
Total Area:
19.9 acres
Undeveloped:
1.96 acres (89%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–73 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
GARDINER
Neighborhood/Visitor Crossroad
The Gardiner commercial area is located on U.S. Highway 101, and
historically served the community with a grocery and gas station that
closed during the 1980s. Current uses include a bird feeding supplies
store, U-fish pond, an antique store, espresso, and a fishing tackle store.
The logical boundary around the triangular commercial area has been
drawn using Highway 101, the Old Gardiner Road, and the Gardiner
Beach Road. A limited amount of infill is allowed to accommodate the
community’s desire for future development of uses, such as a
convenience store.
Total Area:
5.3 acres
Undeveloped:
1.70.2 acres (31%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–74 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
CHIMACUM
Neighborhood/Visitor Crossroad
Chimacum is a historic commercial area that includes a post office and
is located adjacent to the public school, therefore serving as a focal
point for the local community. Existing uses—such as a farm
equipment and supply store—serve nearby agricultural activities in the
Chimacum Valley, while other uses—such as mini-storage—provide a
community level of service. The logical boundary recognizes and
contains existing commercial uses and provides for limited infill on a
parcel along Chimacum Road.
Total Area:
40.0 acres
Undeveloped:
3.95.5 acres
(1410%)
Undeveloped parcels are those with a land
use code of 9100 (undeveloped and unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–75 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
FOUR CORNERS
Neighborhood/Visitor Crossroad
The Four Corners community, which historically served the nearby area
with a sawmill, contains a convenience store and gas pump, a
construction yard, an auto recycling yard, an UPS distribution office,
and a mini-storage rental. The boundary of this commercial area
recognizes and contains the existing uses and allows for limited infill
development only through subdivision or redevelopment of existing
parcels, all of which are developed.
Total Area:
26.5 acres
Undeveloped:
0 acres (0%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–76 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
WAWA POINT
Convenience Crossroad
The hardware/general store and accessory building at Wawa Point is a
designated convenience crossroad. The logical boundary includes
limited additional area for possible expansion and area to meet parking
requirements. The commercial area designated within the large parcel
of 24.3 acres on which the store is located is limited to 4.3 acres. Safe
access from Highway 101 is provided by a frontage road.
During the Brinnon subarea planning process a Small-Scale Recreation
and Tourist Overlay District (see Overlay Districts above) was created
at Wawa Point for four lots comprising 18.7 acres. The SRT Overlay
recognizes the historic use of the area for recreation and allows low-
intensity commercial activities, such as campgrounds, RV parks,
nursery or public gardens, Scuba diving facilities, and a farmer’s market.
Total Area:
4.3 acres
Undeveloped:
0 acres (0%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–77 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
BEAVER VALLEY
Convenience Crossroad
The historic Beaver Valley Store functions as a community center and
“bulletin board” for nearby residents in the Beaver Valley area. The store
is home to the retail operation for Sugar Hill Farms and sells locally-
produced candies and desserts. Located on State Route 19 between the
Hood Canal Bridge and northeastern Jefferson County, the store also
serves commuters and visitors.
Total Area:
3.1 acres
Undeveloped:
0 acres (0%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–78 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
NORDLAND
Convenience Crossroad
The Nordland store is located on State Route 116 on Marrowstone Island.
The general store has a post office and kayak rental and provides the
only basic goods and services available for the island community. It is a
historic enterprise which serves as a social and community center.
Total Area:
1.0 acres
Undeveloped:
0 acres (0%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–79 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
SR 104/SHINE ROAD
Convenience Crossroad
The SR 104/Shine Road location was approved as a Limited Area of
More Intensive Rural Development (LAMIRD) through the 2008
Comprehensive Plan Amendment process. The half-acre property has
been developed for commercial use since approximately 1977.
Total Area:
0.4 acres
Undeveloped:
0 acres (0%)
Undeveloped parcels are those with a land
use code of 9100
(undeveloped and
unused land area) in the Jefferson County
Assessor’s database.
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–80 Public Review Draft June 2025
Master Planned Resorts
Master planned resorts (MPRs) are large-scale, self-contained
developments that are based on an integrated, conceptual master
plan, yet are typically developed in stages depending on market
demand or other factors. Recent amendments to the GMA allow
jurisdictions to plan master planned resorts as LAMIRDsLimited Areas
of More Intensive Rural Development which may constitute urban
levels of growth outside of urban growth areas as limited by RCW
36.70A.360.
Jefferson County currently contains two master planned resorts, Port
Ludlow and Pleasant Harbor.
The Comprehensive Plan contains policies in Goal LU-G-23 that help
guide development at Port Ludlow. Many of Port Ludlow’s goals and
policies were drafted from issues identified by community residents
who, through the establishment of community planning groups,
articulated their desired plan for Port Ludlow’s future development. The
goals and policies identified by the community and included in
Jefferson County’s Comprehensive Plan focus on maintaining and
enhancing Port Ludlow’s recreational and community amenities and
preserving the community’s lifestyle.
Siting of New Master Planned Resorts
The GMA also authorizes counties to allow for the development of new
MPRs in accordance with RCW 36.70A.360. According to the statute,
counties may permit new master planned resorts “in a setting of
significant natural amenities, with primary focus on destination resort
facilities consisting of short-term visitor accommodations associated
with a range of developed on-site indoor or outdoor recreational
facilities”. The MPR designation provides an opportunity to encourage
economic development that takes advantage of the significant rural
recreational resources and scenic amenities of Jefferson County,
particularly in the more remote areas of the County where the local
economy’s dependence on natural resource-based industries has been
negatively impacted, or where other economic opportunities are more
limited. For example, in the southern and western portions of Jefferson
County, many of the existing communities and rural residential areas
have experienced a downturn in resource-based economic activities.
These areas are gradually transitioning from primarily a natural
resource-based local economy to one that is also dependent on actively
engaged in the tourism industry.
LAND USE
Jefferson County Comprehensive Plan 1–81 Public Review Draft June 2025
The economic reasons for siting of a MPR, however, must also be
carefully balanced against the potential for significant adverse
environmental effects from such a development. Any proposal must be
carefully planned and regulated to prevent sprawl development
outside of the master planned development that would negatively
impact the scenic and often environmentally sensitive setting. The
Comprehensive Plan identifies policies in Goal LU-G-23 that help guide
development of any new MPR designation. The goal and policies focus
on protecting the rural character and natural environment of areas
potentially impacted by development of an MPR, ensuring adequate
provision of public facilities and services, and preventing the spread of
low density sprawl.
LAND USE
Jefferson County Comprehensive Plan 1–82 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
PORT LUDLOW
Master Planned Resort
The Master Planned Resort of Port Ludlow has a large residential
community that is served by a Village Commercial Center. The
designated commercial area is consistent with the 1993
programmatic EIS and has been agreed to by community
planning groups. Land use activities and performance standards
will be regulated by the County but may be limited to a
somewhat greater degree by the Master Planned Resort’s
internal community codes, covenants, and restrictions.
Port Ludlow Resort Source: The Chamber of Jefferson County
LAND USE
Jefferson County Comprehensive Plan 1–83 Public Review Draft June 2025
Source: Jefferson County, BERK, 2018.
PLEASANT HARBOR
Master Planned Resort
The remote rural areas of south Jefferson County offer significant
recreational opportunities and scenic amenities including access
to the Olympic National Park, the Olympic National Forest, and
the Hood Canal. Popular recreational activities in the area include
boating, fishing, shellfish gathering, hiking, camping,
birdwatching, and historical sites.
In the peak summer months, it is estimated that as many as
500,000 tourist visitors travel through the North Olympic
Peninsula. However, the lack of private tourist accommodations
and services in the south County area often means that potential
economic benefit from tourism spending is lost to other, more
developed, areas of the Peninsula.
Pleasant Harbor Marina
Source: Pleasant Harbor Marina
LAND USE
Jefferson County Comprehensive Plan 1–84 Public Review Draft June 2025
Evaluation of Rural Commercial Boundaries
Criteria for Determining Logical Boundaries of Rural Commercial
Areas
The designation of Jefferson County’s rural commercial areas was guided
by the GMA criteria as applied to local circumstances. Pursuant to RCW
36.70A.070(5), measures used by Jefferson County to protect the rural
character of the County must be used to control rural development,
assure visual compatibility of rural development with surrounding areas,
reduce sprawl, protect critical areas and water resources, and protect
against conflict with the use of agricultural, forest, and mineral resource
lands.
To be consistent with the requirements of the GMA, designated
LAMIRDs must also have clearly identifiable and logical outer
boundaries delineated predominately by the built environment and/or
physical boundaries, such as bodies of water, streets and highways, and
landforms and contours. Although new development and
redevelopment is allowed, development cannot extend beyond the
established boundary and contribute to a new pattern of low-density
sprawl. Public facilities and services provided to LAMIRDs must not
permit low density sprawl.
In addition, the boundaries were evaluated based on local
considerations that could affect location or require the application of
special conditions. The following local considerations were determined
in response to extensive public comment heard by County decision-
makers during the planning and review process:
▶ Regional transportation concerns, traffic volumes, access, and
safety.
▶ Proximity to incompatible uses.
▶ Partial designation of large parcels that are not fully developed for
existing uses, to prevent sprawl.
▶ Home businesses/cottage industries should not be used to
determine boundaries.
▶ Provide employment opportunities for local residents, in particular
in areas of insufficient economic growth or economic decline.
▶ Support community planning goals and rural community cohesion.
▶ Provide for multi-family and special needs housing opportunities.
▶ Avoid creating new non-conforming uses.
LAND USE
Jefferson County Comprehensive Plan 1–85 Public Review Draft June 2025
Application of Criteria to Designation of Rural Commercial Boundaries
The process for determining rural commercial boundaries in Jefferson
County included public comment and an internal County review to
ensure consistency with the GMA criteria, Comprehensive Plan goals and
policies, and local considerations discussed above. Historical commercial
areas that serve as a focal point for community economic and social
activities were recognized for the multiple functions they provide to
residents. A number of these areas also serve the visiting public, a
seasonal population influx that is increasing during other times of the
year.
Final Comprehensive Plan boundaries for rural commercial areas
resulted in a substantial reduction in the amount of commercial land
available for development in rural Jefferson County from 1994 zoning.
This reduction in commercial land resulted from the application of the
GMA criteria for rural lands, including those established in 1997
legislative amendments.27 Logical boundaries were drawn around
existing commercial uses to contain and limit new development to
existing areas of more intensive development.
Current Trends & Opportunity to Serve Community Needs
Exhibit 1-23 provides total acreage within each rural commercial area,
as well as grossnet acreage of land available for infill in undeveloped
parcels based on the County Assessor’s land use codes. The grossnet
undeveloped acreage—without factoring in roads, water, and right of
ways—is followed by the percent that the total undeveloped land
comprises of total land for each commercial area.
27 RCW 36.70A.070(5)(d).
LAND USE
Jefferson County Comprehensive Plan 1–86 Public Review Draft June 2025
Exhibit 1-23 Rural Commercial Area Total Acreage & Infill Acreage (2025)
Rural Village Centers Total Area Undeveloped*
Brinnon 66.1 acres 18.08 acres (279%)
Quilcene 50.6 acres 10.712.4 acres (214%)
Total Rural Village Centers 116.7 acres 28.731.2 acres
(257%)
Rural Crossroads Total Area Undeveloped*
General Crossroads
SR 19/20 26.5 acres 8.8 acres (33%)
Neighborhood/Visitor Crossroads
Mats Mats 5.7 acres 1.2 acres (21%)
Discovery Bay 19.9 acres 1.96 acres (89%)
Gardiner 5.3 acres 1.70.2 acres (31%)
Chimacum 40.0 acres 3.95.5 acres (1410%)
Four Corners 26.5 acres 0.0 acres (0%)
Convenience Crossroads
Wawa Point 4.3 acres 0.0 acres (0%)
Beaver Valley 3.1 acres 0.0 acres (0%)
Nordland 1.0 acres 0.0 acres (0%)
SR 104/Shine Road 0.4 acres 0.0 acres (0%)
Total Rural Crossroads 132.8 acres 17.53 acres (13%)
Total Rural Commercial Areas 249.5 acres 46.18.5 acres (189%)
Source: Jefferson County Community Development, 202518; BERK, 202518. * Undeveloped parcels are defined as parcels that have a land use code of 9100 (undeveloped and unused land area)
in the Jefferson County Assessor’s database.
The total designated rural village centers acreage of 116.7 acres contains
28.731.2 acres of undeveloped parcels available for infill, approximately
257% of the total. The total designated rural crossroads acreage of 132.8
acres contains 17.53 acres in undeveloped parcels available for infill,
approximately 13% of the total. The number of uses that may develop in
these infill areas varies with the size and lot coverage of the use, as well
as the requirement for septic systems, critical areas protection,
buffering, access roads, and wells or water supply lines.
In addition, the convenience/general stores at Wawa Point, Beaver
Valley, and Nordland can expand the existing business under the
LAND USE
Jefferson County Comprehensive Plan 1–87 Public Review Draft June 2025
criteria for a Convenience Crossroad but cannot subdivide for an
additional commercial use.
Of the above rural commercial crossroads, many are limited in infill
opportunity. According to the William D. Ruckelshaus Center,
regulatory limitations related to LAMIRDs stifle reasonable
development and vitality in rural counties, and this topic may be further
developed through the Road Map initiative.28 Brinnon and Quilcene, for
example, are distant from urban services yet limited in their ability to
become robust, thriving, and self-sufficient communities because of
GMA restrictions concerning infrastructure improvements. Modern
wastewater treatments options, such as modular plants or connections
with existing plants, are considered an urban level of service and are
thus prohibited in LAMIRDs. Improvements to existing commercial
development and housing stock are unlikely to occur if necessary
infrastructure upgrades cannot take place. A lack of broadband
internet capacity in rural areas further limits the reach and
effectiveness of emergency response efforts and opportunities for job
training, education, public health, and economic vitality; the Jefferson
Public Utility District has a broadband initiative.
Septic system, water supply, and critical areas issues can substantially
reduce the amount of land area available for development on a
property by 30-50%, depending on the size of the parcel. For example, a
property may require a minimum of 12,5002,000 square feet are
necessary just to meet construct a septic drainfield system and reserve
area, not including additional required setbacks.requirements. This
results in approximately 15.6-21.8 acres of undeveloped land available
for commercial development in rural village centers (50-70% of the 31.2
undeveloped acres), and 8.7-12.1 acres of undeveloped land available for
commercial use in rural commercial crossroads (50-70% of the 17.3
undeveloped acres). The designated logical boundaries thus limit the
land available for infill development in existing rural village centers and
rural commercial crossroads.
The logical boundaries of commercial areas prevent development from
expanding beyond existing developed areas. While areas of limited infill
are provided within the designated built environment, a significant
amount of undeveloped land was removed from commercial zoning
status through implementation of the GMA in Jefferson County. There
were 967 net acres zoned commercial in unincorporated Jefferson
County in 1994. With adoption of the GMA-compliant Comprehensive
Plan in 1998, that number was reduced 62% to 368 net acres zoned rural
commercial. With adoption of a zoning map for the Irondale and Port
Hadlock UGA in 2004, the effective percent reduction of commercial
area from the 1994 zoning was reduced to 39%.
28 (The William D. Ruckelshaus Center, 2017).
Commented [JH28]: Confirm per GIS
Commented [JH29R28]: Can County GIS staff help
with this? I think we can calculate this by
determining total acreage of the undeveloped
parcels in RVC (Brinnon and Quilcene) and in
rural commercial crossroads that are 12,500 sqft
or more (e.g., removing anything smaller than 12,500 from the total undeveloped acreage)? Would need separate totals for RVC and for rural
commercial crossroads.
Commented [CE30R28]: This section is using 12500 improperly.12500 comes from the minimum land area needed for a septic permit, not the
amount of area the actual septic system uses on a lot. Minimum land area for septic systems is about controlling density.
There is a new state septic code requirement called “minimum useable land area”. This is the land area needed on any given lot for a septic system. It needs to be free of encumbrances that
would prohibit a septic from being installed. AND it is not a set amount of area. It is dependent on the type of soil present Generally speaking, the finer your soils gets, the more land area you need. This ranges from 2000 sqft to 10000 sqft. All of this is to say, you can’t just use 12500 sqft to
do your calculation (13000 is actually the new 12500 in the recent sewage code updates). It may be better to leave the language broader, without speculative data.
Commented [JH31R28]: Thanks. That makes sense and I agree with your suggestion to keep this language broader. Removed the speculative
calculations.
LAND USE
Jefferson County Comprehensive Plan 1–88 Public Review Draft June 2025
It should be noted that while rural commercial crossroads are
designated commercial lands, land within the boundaries of Rural
Village Centers (RVCs) is designated as both commercial and
residential land, as the existing uses are mixed to a degree that
precludes separate designations within the boundaries. The
commercial lands identified at Nesses’ Corner, Irondale Road, and the
Irondale and Port Hadlock RVC were re-designated Urban Commercial
withas a result of the Irondale and Port Hadlock UGA designation.
Periodic Review of LAMIRDs & GMA Implementation
Challenges in Rural Counties
Overview
The Growth Management Act (GMA) advises that counties should
perform a periodic analysis of development occurring in rural areas to
determine if patterns of rural development are protecting rural
character and encouraging development in urban areas. Jefferson
County is investigating potential revisions to our limited area of more
intensive rural development (LAMIRDs) evaluating how we can better
meet our rural goals, maintain our rural character, and plan for
economically and environmentally sustainable growth.
The Comprehensive Plan is our written record of local circumstances,
establishing patterns of rural densities and uses while harmonizing
GMA planning goals. The Comprehensive Plan establishes a definition
of our rural character to guide development of rural policies and
implement development regulations. Jefferson County’s definition of
rural character is inclusive of our working landscapes, rural economy,
and protection of our natural resources, while balancing the need for
housing, jobs, and services to care for and support our communities.
Recognizing our past and planning for our future, Jefferson County has
articulated our rural character throughout the Comprehensive Plan.
Jefferson County’s past includes development intensities from World
Wars I & II-era industries that were intensive in use and distribution.
These uses were significantly more intensive than we experience today.
Our communities are not remnants of a greater past, nor are they in a
static development pattern as established July 1, 1990, but are
communities adapting to local conditions and moving forward.
Jefferson County is rich with natural and scenic areas. A part of the
richness of our natural areas comes from providing our community—
and the larger region—with ecosystem services such as clean air, clean
water, and a high quality of life. This is a significant part of our rural
economy. The County makes environmental protection a high priority
in our planning and development. Seen as a resource to protect and a
resource that has economic value, the County is interested to in
See also sidebars in this Section 1.2—Rural
See also the Environment Element, Challenges &
Opportunities—Balancing
Environmental Protection
With Community Needs.
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Jefferson County Comprehensive Plan 1–89 Public Review Draft June 2025
exploringe innovative concepts using our investments in conservation
as an alternate way of delineating and containing development.
Jefferson County proposes to investigate new opportunities in the
following areas:
Update LAMIRD Provisions for Outcomes that Reflect Current Local
Circumstances, Rural Character, and Balancing of GMA Goals
The GMA allows local jurisdictions to balance GMA goals while taking
into consideration the jurisdiction’s local circumstances. Because local
circumstances vary from county to county, in establishing patterns of
rural densities and uses, a county may consider local circumstances
when harmonizing the GMA planning goals. This process considers the
uniqueness of a place’s geography, such as landscapes, transportation
networks, economics, and distribution of resources. To address the
uniqueness of our local circumstances and places, Jefferson County
seeks flexibility to provide community services in our LAMIRDs and
other local places.
Review the Tightlined Logical Outer Boundaries of Our LAMIRDs
GMA requires the County to adopt measures that contain or control
development so that we do not experience inappropriate conversion of
undeveloped land into sprawling, low-density development patterns.
As a result of challenges to the County after the initial delineation of
LAMIRDs, Logical Outer Boundaries (LOB) were tightlined to existing
infrastructure, even to the point of crossing parcels and creating split-
zoning. GMA limits LAMIRD development to infill and intensification
within the outer boundary. An analysis needs to be undertaken to
determine if the outer boundaries are too tightly drawn, or if a market
factor for vacant land needs to be applied. In fact, ordinances
implementing Jefferson County LAMIRDs include the finding that the
planning work establishing the boundaries needs to continue, and
boundaries need to be reviewed when resources allow.
The County would likely benefit from legislative and rules changes to
GMA better addressing flexibility for rural county development, while
limiting development. Jefferson County’s existing development within
its rural areas promotes GMA planning goals, such as reducing sprawl,
protecting the environment, providing for open space and recreation,
and maintaininged and enhancing natural resource-based industries.
Explore Alternate Criteria for Establishing Logical Outer Boundaries
To contain or control development, the GMA requires LOBs to be based
on criteria that defines an existing area or existing use that was in
existence on July 1, 1990 and includes a criterion limiting the boundary
to infrastructure that existed on that date. Once a LOB has been
Refer to Exhibit 1-23, which shows that there is very little infill potential in our LAMIRDs
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Jefferson County Comprehensive Plan 1–90 Public Review Draft June 2025
adopted, counties may consider changes to the boundary in
subsequent amendments but must use the same criteria used when
originally designating the boundary. The current LOB delineation
process freezes LAMIRD boundaries as of July 1, 1990.
Rural counties characteristically have minimal infrastructure—because
of low population density and a correspondingly reduced need, as well
as a generally lower financial base to fund and finance infrastructure.
Using infrastructure as the method to define LOB constrains the
County’s ability to meet community needs in rural areas. Rural areas are
resource rich. Jefferson County proposes to investigate alternative
LAMIRD delineation, consistent with GMA, focusing on our rural and
ecosystems investments, capacity for future investments, and limiting
factors on growth. The Washington State Legislature recognizes the
economic benefit of the natural resources, open space, and rural
resources to the entire state of Washington. Jefferson County proposes
investigating alternate ways of containing and controlling growth of
LAMIRDs through LOBs bounded by land conservation easements,
extinguishment of development rights, natural resources boundaries,
and natural barriers to growth.
Since GMA’s inception, the State of Washington Growth Management
Hearings Board (Hearings Board) has interpreted the GMA and its rules
to local jurisdictions’ comprehensive plans. Over the years, a body of law
has developed, which appears to force counties to curtail innovation in
rural area development, such as prescriptively establishing rural and
urban densities and requiring tightlined LOBs in LAMIRDs. This
imposes a difficult challenge when trying to meet affordable housing
needs outside of designated urban growth areas. Some LAMIRDs, such
as Chimacum, do not fit neatly within this urban rural dichotomy. This
provides only two boxes, urban or rural for solutions to complex land
use issues. Solutions may require more in-between areas to meet
requirements, such as a greater focus on performance standards for
some housing developments over a prescriptive residential densitiesy.
Innovations to meet current housing crises is limited by GMA. If a
county allows bonus densities in a rural cluster the resulting density
after applying the bonus must be a rural density, which doesn’t yield
enough bonus density to enable the types of housing developments
that can meet the challenges of providing density for affordable
housing, even within a rural context. Jefferson County proposes to
investigate provisions for planned residential developments and
investigate the feasibility of alternative performance standards that
could potentially increase rural residential density above the current
maximum rural density. Jefferson County is aware that these options
require a legislative amendment to the GMA.
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Jefferson County Comprehensive Plan 1–91 Public Review Draft June 2025
Rural Economy
Jefferson County’s rural economy has responded to economic
conditions and market forces pivoting towards tourism, agricultural
businesses, and small businesses. Our economy is similar to other
rural economies, transitioning away from natural resource industries.
Our rural economy needs infrastructure to support its economic
activities and changes in modern infrastructure, such as the ability to
scale wastewater management solutions to meet small community
needs is evolving.
Even though developments in infrastructure, such as small and
innovative sanitary sewer systems, may be able to support the
overarching planning goals of GMA, while containing and controlling
growth in rural areas, GMA generally precludes small and innovative
sanitary sewer systems in rural areas as they are defined as urban
levels of service. This ignores potential opportunities to provide
modern, scaled treatment facilities to support a variety of community
needs such as housing and economic development. Jefferson County
is aware these rural infrastructure systems would require a
legislative amendment to the GMA.
GMA allows sanitary sewer infrastructure in rural areas if abates an
environmental problem, does not induce sprawling development, and
is affordable by the community that it serves. The application of this
allowance is being investigated in the Brinnon Rural Village Center,
adjacent to Dosewallips State park’s wastewater treatment facility. The
County is working to address requirements of GMA, while allowing
limited service by the Dosewallips State park’s system. Currently,
Brinnon is served entirely by septic systems. These septic systems have
current and potential problems, and some systems are located within
flood zones. Other infrastructure improvements consistent with rural
levels of service, such as improvements to fire flow, could support
additional development, but improvements to existing commercial
development and housing stock are unlikely to occur if necessary
infrastructure upgrades cannot take place.
In a 2002 amendment to the GMA, the Washington State Legislature
found that GMA is intended to recognize the importance of rural lands
and rural character to Washington's economy, and find that rural lands
and rural-based economies enhance the economic desirability of the
State of Washington. To retain and enhance the job base in rural areas,
rural counties must have flexibility to create opportunities for business
development and to retain existing businesses and allow them to
expand. The legislature’s findings close with:
“[T]he legislature finds that in defining its rural element under
RCW 36.70A.070(5), a county should foster land use patterns
and develop a local vision of rural character that will: [h]elp
preserve rural-based economies and traditional rural lifestyles;
Jefferson County
Commented [JH32]: Revised slightly per
conversation with Joel 4/3
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Jefferson County Comprehensive Plan 1–92 Public Review Draft June 2025
encourage the economic prosperity of rural residents; foster
opportunities for small-scale, rural-based employment and
self-employment; permit the operation of rural-based
agricultural, commercial, recreational, and tourist businesses
that are consistent with existing and planned land use
patterns; be compatible with the use of the land by wildlife
and for fish and wildlife habitat; foster the private stewardship
of the land and preservation of open space; and enhance the
rural sense of community and quality of life.”
In summary, aAs Jefferson County reviews rural commercial areas, we
will explore ways to meet GMA’s fundamental purposes in flexible and
meaningful manners. For example, flexibility in designating LAMIRDs,
while meeting the purpose and intent of GMA would assist the County
with contained and controlled development, enhanced rural
economies, additional housing, preservation of natural resources,
enhanced open space and parks, and enhanced rural character. The
legislative findings for GMA include the conservation and wise use of
our lands, along with sharing economic development with
communities experiencing insufficient economic growth. GMA should
not be a barrier for rural counties, but a platform to encourage
sustainable, coordinated, and controlled growth and economic
development in accordance with the public’s interest.
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Jefferson County Comprehensive Plan 1–93 Public Review Draft June 2025
Rural Industrial Lands
Rural land designated as rural industrial land in this Plan is based on
existing industrial uses in areas previously zoned as industrial. Pursuant
to RCW 36.70A.070(5)(d), counties may recognize areas of more
intensive industrial development and contain them within logical
boundaries to limit to infill development. All areas meet the following
minimum criteria for designation of rural industrial land, as defined in
WAC 365-196-425:
1. An area or use of more intensive industrial development in
existence on July 1, 1990; and
2. An area that is not located on designated natural resource lands.
The industrial areas designated in 1998 resulted in a reduction in
industrial acreage of 1994 zoning designations from a total of 928.3
acres to 616.9 acres, an overall reduction of 34%. The application of GMA
criteria protected the economic viability of existing uses while it
restricted industrial activities to existing areas. Rural industrial lands
provide job opportunities for rural residents through redevelopment of
existing rural industrial areas (see Limited Areas of More Intensive
Rural Development above). Designated under this Plan are the
following industrial zones:
▶ Port Townsend Paper Mill as Heavy Industrial (HI),
▶ Glen Cove as Light Industrial (LI) and Light Industrial/Commercial
(LI/C),
▶ Center Valley as Light Industrial (LI),
▶ Eastview Industrial Plat and Quilcene Industrial Area as Light
Industrial/Manufacturing (LI/M),
▶ Forest Resource-Based Industrial zones (RBI) at Gardiner and
Western Jefferson County, and
▶ Jefferson County International Airport Non-Aviation-Related Light
Industrial/Manufacturing (LI/M) Overlay.
Exhibit 1-24 shows the location of all designated rural industrial areas in
Jefferson County. A discussion and map of each rural industrial area
follows.
The Comprehensive Plan contains policies in Goal LU-G-24 and Goal
LU-G-25 that help guide development of rural industrial land.
Related to western
Jefferson County
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Jefferson County Comprehensive Plan 1–94 Public Review Draft June 2025
Exhibit 1-24 Location of Rural Industrial Lands (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Community Development, 202418; BERK, 202518.
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Jefferson County Comprehensive Plan 1–95 Public Review Draft June 2025
Source: Jefferson County Community Development, 2018; BERK, 2018.
PORT TOWNSEND PAPER MILL HEAVY
INDUSTRIAL AREA
Rural Industrial Area
The Port Townsend Paper Mill has provided employment for several
generations of Jefferson County residents. The mill property has been
designated as heavy industrial (HI) for the mill and for activities ancillary
to the mill. The property includes a water treatment lagoon and a port
facility on Port Townsend Bay that are directly related to activities at
the mill. The mill is recognized as a heavy industrial activity because it is
a large-scale and intensive industrial activity that must meet extensive
environmental permitting requirements under industrial standards for
air quality, water quality, and wastewater treatment.
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Jefferson County Comprehensive Plan 1–96 Public Review Draft June 2025
Source: Jefferson County Community Development, 2018; BERK, 2018.
GLEN COVE INDUSTRIAL AREA
Rural Industrial Area
Uses for the Light Industrial (LI) and Light Industrial/Commercial (LI/C)
designations at Glen Cove include commercial and retail uses that are
directly associated with the light industrial uses. Associated commercial
and retail uses may include commodities and products, mechanical or
electrical supplies, warehousing, and storage, or may provide support
services to those who work in the industries, such as a small café or
fitness facility. Allowing broader commercial uses at Glen Cove would
require addressing concerns regarding pedestrian and traffic safety,
infrastructure, and incompatible uses both visually and in terms of
hazardous materials storage and use. Thus, the commercial
designation for Glen Cove is restricted to uses which differ considerably
from those in Rural Crossroads (NC, GC, & CC) and Rural Village Centers
(RVC).
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Jefferson County Comprehensive Plan 1–97 Public Review Draft June 2025
Left: Glen Cove Industrial Park, Jefferson County, 2018. Right: Oblique aerial view of Glen Cove Industrial Park, Google Earth, 2018.
Light industrial/commercial uses allowed at Glen Cove include but are
not limited to: industrial parks, light manufacturing, construction yards,
engine repair, metal fabrication or machining, plumbing shops and
yards, printing and binding facilities (non-retail), research laboratories,
excavating contractors, furniture manufacturing, software
development, lumber yards, vehicle repair and restoration,
warehousing and storage, boat building and repair, boat storage, craft
goods, blacksmith or forge, commercial relay and transfer stations, and
associated commercial uses as discussed above. Also permitted as
conditional uses are those such as: amateur radio towers greater than
65 feet in height, café, car wash, electronic goods repair, fitness center,
kennels, mini-storage, and nursery/landscape materials.
The Glen Cove industrial boundary for light industrial/commercial uses
recognizes a contained cluster of existing uses. When the County
adopted the Comprehensive Plan in 1998 and established the interim
LI/C zone at Glen Cove, the GMA was still in its formative years and the
case law was not available for guidance. Jefferson County was among
the first counties to establish LAMIRDs allowed under the GMA as
amended in 1997 by ESB 6094. There was intent to revisit the boundary
after thorough analysis was completed (Tri-Area/Glen Cove Special
Study Final Supplemental Environmental Impact Statement with
Addendums, August 1999). An expanded Light Industrial (LI) zone was
established at Glen Cove in December 2002. The Light Industrial district
does not allow for the commercial uses that are allowed in the LI/C
zone.
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Jefferson County Comprehensive Plan 1–98 Public Review Draft June 2025
Source: Jefferson County Community Development, BERK, 2018.
CENTER VALLEY INDUSTRIAL AREA
Rural Industrial Area
The Center Valley Light Industrial area was previously designated a
Resource Based Industrial Zone due to the presence of a small sawmill
operation. The sawmill closed and was inactive for several years before
the area was rezoned as Light Industrial (LI) in 2008 to accommodate
an expanded opportunity of uses at the site.
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Jefferson County Comprehensive Plan 1–99 Public Review Draft June 2025
Source: Jefferson County Community Development, 2018; BERK, 2018.
QUILCENE INDUSTRIAL AREA
Rural Industrial Area
The Light Industrial/Manufacturing (LI/M) area at Quilcene was
recognized in the 1998 Comprehensive Plan based on criteria in 1997
amendments to the GMA allowing Counties to recognize and contain
existing areas and uses of more intensive industrial development (RCW
36.70A.070(5)(d)). The industries need not be limited to those serving
the local population. Other criteria and considerations used for this
designation include the need to provide local employment in an area of
distressed economic conditions located at a distance from the urban
growth area, and the desire to reduce commuter-related traffic
pressures on county roadways.
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Jefferson County Comprehensive Plan 1–100 Public Review Draft June 2025
Quilcene Industrial Area, Google Street View, 2015.
The existing industrial uses include a sawmill, machine shop, and
industrial storage. A vested project for additional industrial storage is
the basis for recognition of an adjacent parcel. Light industrial uses
allowed in the Quilcene Industrial Area include but are not limited to
those described above for Glen Cove, except for the associated
commercial and retail uses.
Transportation access is adequate, as the area is on Highway 101. New
development will be restricted until water supply issues related to
adequate fire flow are addressed following the community election for
a Local Utility District in late 1998.
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Jefferson County Comprehensive Plan 1–101 Public Review Draft June 2025
Source: Jefferson County Community Development, 2018; BERK, 2018.
EASTVIEW LIGHT INDUSTRIAL/
MANUFACTURING AREA
Rural Industrial Area
The Eastview Industrial Plat (LI/M) borders the Paper Mill Heavy
Industrial Zone on the north. Eastview consists of six lots comprising
about 8 acres that was platted in 1978. The current uses include
storage, boat yard, and repair services and a car/van camping outfitter
and conversion shop.
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Jefferson County Comprehensive Plan 1–102 Public Review Draft June 2025
Note: This exhibit was updated since the 2018 Comprehensive Plan. Source: Jefferson County Community Development, 202418; BERK, 202518.
JEFFERSON COUNTY INTERNATIONAL
AIRPORT NON-AVIATION-RELATED
LIGHT INDUSTRIAL/MANUFACTURING
Rural Industrial Area
Jefferson County has established an overlay zone in association with
the Airport Essential Public Facility (AEPF) in order to provide a limited
opportunity for rural scale non-aviation-related industrial uses that
contribute to the long-term financial viability of the AEPF, as well as to
support rural economic vitality benefiting the Jefferson County
community.
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Jefferson County Comprehensive Plan 1–103 Public Review Draft June 2025
Forest Resource-Based Industrial Zones
Rural Industrial Area
Forest resource-based industries at Gardiner and West Jefferson
County have been designated as Resource-Based Industrial Zones (RI)
to recognize active sawmills and related activities at those sites, based
on 1997 GMA amendments codified as RCW 36.70A.070(5)(d)(i)
recognizing existing industrial uses and allowing for their
intensification. The Resource-Based Industrial Zones are limited to
forest resource-based industrial uses to prevent the establishment of a
wider range of industrial uses. It is also intended to support
employment in a distressed economic sector that, despite a decline in
employment, will continue to have long-term economic importance for
the County.
Forest resource-based industrial zone boundaries were determined
based on criteria in RCW 36.70A.070(5)(d) for determining logical
boundaries. The reduction in acreage allows for limited infill and
contains the industrial activity and associated uses to an area based on
the developed area on July 1, 1990.
Jefferson County recognizes that the cyclical nature of the forest
industry will continue to result in economic upturns and downturns as
reforested areas become available for harvest. To maintain facilities that
continue to operate, the County recognizes that conversion of
machinery and facilities into forest-related production activities would
help to support this industry from one cycle to the next. The
development code will includes criteria for the permitting and
regulation of conversion and/or intensification of these areas for related
uses that may involve adapting existing equipment and facilities,
recycling, or adding limited value to the forest resource products and
byproducts (see Policy LU-P-25.4Policy LU-P-25.5).
Related to western
Jefferson County
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Jefferson County Comprehensive Plan 1–104 Public Review Draft June 2025
Source: Jefferson County Community Development, 2018; BERK, 2018.
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Jefferson County Comprehensive Plan 1–105 Public Review Draft June 2025
Economic Activities Outside of Rural
Commercial Areas
Jefferson County will allow the following types of economic activities to
provide employment opportunities outside of designated Rural Village
Centers and Rural Commercial Crossroads:
1. New industrial uses may be allowed in rural areas when they are
resource-based pursuant to RCW 36.70A.365—Major Industrial
Developments, in that they are dependent on a location near the
forest, mining, agricultural, or aquaculture resource (see Section
1.3). Goals and policies in the Natural Resources Element provide for
protection of the resource activity as well as of surrounding land
uses. Resource-based industries must be in compliance with
environmental and other regulations.
2. A major industrial development may be allowed outside of a UGA if
the activity requires a parcel of land so large that no suitable
parcels are available within the UGA, or if the nature of the activity
is incompatible with urban development due to its potential threat
to the public health, safety, and welfare. Such development is
defined in an amendment to the GMA enacted in Engrossed
Senate Bill 5019 and codified as RCW 36.70A.365 as a master
planned location for a specific manufacturing, industrial, or
commercial business, but it cannot be for commercial shopping
development or multi-tenant office parks.
3. Small-scale recreational or tourist-related uses will be reviewed
through the conditional use permitting process according to
criteria provided in the goals and policies of this element. The
activity must rely on a rural setting and nearby natural features for
its location. Conditionally permitted uses such as RV parks, boat
rentals, marinas, horse arenas and stables, and campgrounds are
typical of this type of use. Goal LU-G-26 provides policies for these
economic activities.
4. Home-based businesses may be permitted to provide
opportunities to supplement a family income, start up a business,
or establish a work-place at home. Home-based businesses must
be clearly incidental and secondary to the primary use of the
premises as a residence. The goals and policies of this element
provide limits on home-based businesses designed to prevent
adverse impacts from such activity on the preservation of rural
character (see Goal LU-G-27).
5. Cottage industries will be reviewed through the conditional use
permitting process and must be clearly incidental and subordinate
to the residential use of the property. A cottage industry is defined
as limited small-scale commercial or industrial activities and shall
not grow beyond the scale permitted unless it is moved to a
Related to western
Jefferson County
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Jefferson County Comprehensive Plan 1–106 Public Review Draft June 2025
location designated for commercial or industrial uses. The
limitations provided in land use policies are intended to prevent the
activity from detracting from adjacent land uses and the rural
character of the area (see Goal LU-G-27).
6. Potential new planning for future zoning designations on existing
highway/commuter corridors and tourist routes.
West Jefferson County
The western portion of Jefferson County is geographically isolated from
eastern Jefferson County by Olympic National Park. No existing
Commercial-zoned lands currently exist in the West County, and
therefore no commercial land for that area was designated in this Plan.
Convenience services are available on Upper Hoh Road, at the Kalaloch
Lodge store on Olympic National Park land and at a Quinault Nation
convenience store at Queets. A regional decline in forestry and fishing
has resulted in distressed economic conditions in the area. New
employment opportunities in available economic sectors must be
developed to respond to this decline of natural resource-based
industries, allowing West Jefferson County to transition to a more
diversified economy.
West Jefferson County is not projected to experience significant growth
during the 20-year planning period, with a total 20-year population
projection of 43 additional people. Although the population of West
Jefferson County is low, a significant number of people visit the tourist
and recreation attractions of the area year-round. During the tourist
season, the area experiences a large influx of visitors. Situated on U.S.
Highway 101 between the mountain/rainforest and the ocean beach
portions of the Olympic National Park, West Jefferson County receives
visitors from Puget Sound regional metropolitan areas, as well as
national and international visitors. The Hoh and Quinault Indian
Reservation communities are concentrated population centers that
both contribute to and rely upon the economy in West Jefferson
County.
To encourage employment opportunities in this economically
distressed area, policies in this Plan allow additional small-scale
recreation and tourism commercial activities serving tourist-related
uses so that a broader range of goods and services can be provided,
increasing economic development opportunities for the local
population (see Policy LU-P-26.5Policy LU-P-26.4). In addition, policies
for home-based businesses and cottage industries allow for greater
flexibility under criteria specific to West Jefferson County (see Policy
LU-P-27.2 and Policy LU-P-27.4).
Related to western Jefferson County
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Jefferson County Comprehensive Plan 1–107 Public Review Draft June 2025
Rural Goals & Policies
Rural Character
Goal LU-G-15 Preserve rural character and protect and
promote rural lifestyle, as defined in this element.
Policy LU-P-15.1 Identify and implement rural land uses, densities, and
environmental standards which preserve and protect rural character.
Evaluate environmental quality and affordable housing as critical to
the preservation of rural character when reviewing development
applications in rural areas
Policy LU-P-15.2 Protect open space consistent with the goals and
policies of this plan and in cooperation with County Conservation
Futures and other land conservation programs.
Policy LU-P-15.3 Locate designated open space areas so as to provide
connections with adjoining open space areas, offer visual relief for
both on and off-site residents, enhance habitat values, and, where
appropriate, allow for recreational opportunities.
Policy LU-P-15.4 Endorse the eEstablishment of visual corridors and
forest corridors along suitable roadways in Jefferson County.
Encouragedorse the extension of the forest corridor concept from
Port Townsend’s City limits south along SR 20 to Old Fort Townsend
Road to preserve and protect the forest corridor, and to provide a visual
buffer between the roadway and new commercial and manufacturing
development.
Goal LU-G-16 Ensure that development is accomplished in a manner which protects the long-term habitability, significant historical and cultural areas, and natural
beauty of Jefferson County.
Policy LU-P-16.1 Encourage the preservation and conservation of
Jefferson County’s unique history, scenic resources, and rural
community identities; support the contributions that each community
has made to the fabric of the County’s rural and cultural character, and
encourage the preservation of community cohesiveness through
designated land uses in this Plan.
Policy LU-P-16.2 Encourage project proponents to mitigate potential
adverse impacts to the public health, safety, and welfare now and in
changing climate conditions due to climate change as a result of a
proposed project, action, or use concurrent with project development.
Related to western
Jefferson County
Fall in Quilcene, Carolyn Gallaway
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Jefferson County Comprehensive Plan 1–108 Public Review Draft June 2025
Policy LU-P-16.3 Preserve, protect, and enhance cultural amenities by
protecting tribal cultural artifacts, historic structures, farms and other
historical settlements throughout the rural landscape, through cultural
and historical preservation planning efforts. Consult and include lLocal
tribes should be consulted and included early and often in the planning
process to ensure that tribal recommendations are thoughtfully
considered.
Policy LU-P-16.4 Consider elements of a Night Sky ordinance and
lighting provisions in the Jefferson County Code.
Goal LU-G-17 Preserve and protect the rural character of
the land and the identities of existing rural communities
through examination of rural land uses, development
densities, rural economies, housing options, and
economic development opportunities.
Policy LU-P-17.1 REnsure residential uses in the unincorporated
portions of the Ccounty shall beare characterized by a variety of rural
residential parcel sizes and densities that support housing variety,
choice, and affordability for all income groups.
Policy LU-P-17.2 Encourage innovation and creativity in lot and site
design and in re-platting of existing lots to create efficient land
developments, add flexibility in design, support housing variety, choice,
and affordability for all income groups, and encourage multi-modal
transportation to reduce VMT and GHG emissions while meeting
underlying density and site requirements.
Policy LU-P-17.3 Carefully plan rural commercial development in a way
that supports and is compatible with rural community character and
that can be supported by rural levels of service.
Policy LU-P-17.4 Review rural land use, development densities, housing
options and affordability, rural economies, and economic development
opportunities in the West End planning area to address local needs
within the requirements of GMA.
Related to western Jefferson County
Related to western Jefferson County
See also Policy LU-P-1.16 and Goal OS-G-5 in the Open
Space, Parks & Recreation, Historical & Cultural Preservation Element.
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Jefferson County Comprehensive Plan 1–109 Public Review Draft June 2025
Goal LU-G-18 Encourage residential land use, and development intensities, and housing options that
protect the character of rural areas, avoid interference
with resource land uses, and minimize impacts upon
environmentally sensitive areas.
Policy LU-P-18.1 REncourage rural residential cluster subdivisions
shall be encouraged, consistent with development regulations,
throughout the rural areas and ensure t. The open space tracts in
these planned rural residential development subdivisions should
beare permanently preserved.
Policy LU-P-18.2 Integrate open space planning and affordable
housing with innovative programs such as the purchase or transfer of
development rights, cluster development with density bonuses, open
space tax assessment, and acquisition of easements.
Policy LU-P-18.2Policy LU-P-18.3 Preserve open space corridors to
provide for the aesthetic needs of the community, to protect critical
areas including flood prone lands, and to conserve fish and wildlife
habitat. Prioritize preserving open space corridors in areas with
vulnerable populations.
Goal LU-G-19 Foster sustainable natural resource-based
industry in rural areas through the conservation of lands
that support forestry, agriculture, mineral extraction, and
aquaculture industries and local employment
opportunities.
Policy LU-P-19.1 The County has identified resource lands as an integral
part of rural character. Permit rResource-based uses that are
compatible with the conservation and sustainable use of the county’s
resources shall be permitted.
Policy LU-P-19.2 Use farm and forest preservation programs, such as
Forest Stewardship Program, and other tools to preserve historic
working lands and improve carbon sequestration.
Policy LU-P-19.3 Encourage responsible stewardship of upland areas in
support of programs that enable sustainable aquaculture.
Irondale Park, Carolyn Gallaway
The County has identified resource lands as an integral
part of rural character.
See also Policy CE-P-19.3 in the Climate Element
Commented [JH33]: CE policy review recommended moving to CE. Suggest retaining here but adding a similar policy in CE that reads: Use farm and forest preservation programs, such as Forest Stewardship Program, and other tools to improve carbon sequestration.
Commented [JH34R33]: Note this is identical to Policy CE-P-9.3. See my suggestion above to retain here and distinguish the two.
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Jefferson County Comprehensive Plan 1–110 Public Review Draft June 2025
Rural Centers, Crossroads, & MPRs
Rural Residential Land Use
Goal LU-G-20 Ensure that rural residential development
preserves rural character, protects rural community identity, is compatible with surrounding land uses,
supports housing choice, and minimizes infrastructure needs.
Policy LU-P-20.1 Identify and encourage diverse rural land uses and
densities which preserve rural character and support housing variety,
choice, and affordability for all income groupsrural community identity.
Policy LU-P-20.2 Establish rural residential land use densities for all
lands located outside of designated urban growth areas. Proposed rural
residential densities and site-specific re-zones shall allow for an
adequate supply of appropriately zoned land based upon the County’s
rural population projections and adopted housing targets at various
income levelsand needs while maintaining rural character and rural
community identity, preserving rural resource-based uses, and avoiding
sprawl. Proposed changes to residential land use designations shall
take into consideration the vacant lot supply of the local area before
allowing site-specific changes to residential zoning.
Policy LU-P-20.3 Analyze historical subdivisions in Jefferson County to
define processes for legal lots of record certifications, and define valid
plats in rural and urban areas, and identify opportunities for middle
housing in urban areas.
Policy LU-P-20.4 Encourage the development and adoption of new
technologies such as alternative wastewater and energy systems that
minimize infrastructure cost, reduce environmental impacts, and
maintain rural character.
Policy LU-P-20.5 Rural residential densities shown on the Land Use
Map shall be designated by three (3) residential land use densities—one
dwelling unit per five (5) acres, one dwelling unit per ten (10) acres, and
one dwelling unit per twenty (20) acres in size—and subject to the
criteria in Chapter JCC 18.15.040.
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Jefferson County Comprehensive Plan 1–111 Public Review Draft June 2025
Policy LU-P-20.6Policy LU-P-20.5 Within limited areas of more
intensive rural development (LAMIRDs), allow infill and middle housing
development at densities comparable to the surrounding area to
support adopted housing targets at all income levels. Measures shall be
considered to limit and contain these areas to the logical outer
boundary of the existing area or use once identified and designated.
Pursue planning analyses that evaluate the LAMIRDs’ ability to achieve
housing goals such as with appropriate and innovative wastewater
management techniques.
Policy LU-P-20.7Policy LU-P-20.6 Allow minimum lot sizes within the
designated boundaries of Rural Village Centers (RVC) which are flexible
and determined by such considerations as: septic or sewer availability,
potable water availability, zoning and adopted housing targets, and
building regulations such as setbacks and parking requirements, fire
prevention measures, and community character.
Rural Commercial Land Use
Goal LU-G-21 Support existing and explore opportunities
for new appropriately-sized Rural Village Centers (RVC)
and provide for the development of appropriately scaled
commercial and residential uses, with consideration of
innovative planning techniques, such as mixed commercial and residential use, to createing vibrant
communities with access to local services.
Policy LU-P-21.1 Encourage a variety of commercial, retail, professional,
tourist-related, community service, cottage industry, and residential
uses—through new infill development—including duplexes,
triplexesmiddle housing and assisted living facilities, within the
designated boundaries of RVCs at a scale appropriate to protect the
rural character of the natural neighborhood.
Policy LU-P-21.2 Concentrate and contain the existing built
environment through development regulations allowing for infill
development within Rural Village Center boundaries.
Policy LU-P-21.3
Policy LU-P-21.4Policy LU-P-21.3 Ensure visual compatibility of Rural
Village Center commercial and mixed-use infill development in Rural
Village Centers with the surrounding rural area, through the creation
and implementation of community based “rural character” design and
development standards. UEnsure uses within Rural Village Centers
shall beare scaled and sized to preserve the natural character
consistent with the urban form of the neighborhood.
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Policy LU-P-21.5Policy LU-P-21.4 Periodically review Rural Village
Center infill and middle housing development, logical outer
boundaries, and regulations to ensure the success of Rural Village
Centers. Integrate infrastructure plans with economic development
and housing plans for the Rural Village Centers.
LU-P-21.5-1LU-P-21.4-1 Encourage affordable housing in Rural Village
Centers through the allowance of multifamily and middle
housing opportunities such as multifamily residential units,
senior housing, assisted living facilities, and
manufactured/mobile home parks.
LU-P-21.5-2LU-P-21.4-2 Allow for adequate economic development to
provide support economic sustainability, adequate
employment opportunities, small business opportunities,
family wage jobs, and services in and for the rural areas.
LU-P-21.5-3LU-P-21.4-3 Promote opportunities for non-motorized and
multimodal transportation options within and to Rural
Village Centers.
Policy LU-P-21.5 Ensure logical outer boundaries minimize and contain
areas of more intensive development and are delineated
predominantly by the built environment.
Policy LU-P-21.6 Explore opportunities for new appropriately sized
Rural Village Centers.
Goal LU-G-22 Provide access to a limited range of services in the County’s Rural Commercial Crossroads for residential and non-residential users and other
compatible uses.
Policy LU-P-22.1 Designate General Commercial Crossroads (GC),
Neighborhood/Visitor Crossroads (NC), and Convenience Crossroads
(CC) pursuant with Jefferson County Code and State requirements for
LAMIRDsChapter JCC 18.15.015(2).
LU-P-22.1-1 Lands designated as General Crossroads (GC) are existing
historic commercial areas that provide a broad range of
commercial goods and services, and shall meet the
requirements of LAMIRDs in WAC 365-196-425(6)ii.
LU-P-22.1-2 Lands designated as Neighborhood/Visitor Crossroads
(NC) serve the nearby rural neighborhood and the
commuting or traveling public, and shall meet the
requirements of LAMIRDs in WAC 365-196-425(6)ii.
Chimacum Market, Jefferson County Public Health
See Chapter JCC 18.15.015(2) and WAC 365-196-425(6) for LAMIRD requirements.
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LU-P-22.1-3 Land designated as Convenience Crossroads (CC) consist
of a single commercial property at a historical crossroads,
and shall meet the requirements of LAMIRDs in WAC 365-
196-425(6)iii.
Policy LU-P-22.2 Periodically review Rural Commercial Crossroad infill
development, outer boundaries, and regulations to ensure the success
of Rural Commercial Centers, including access to affordable housing,
family wage jobs, small business opportunities, non-motorized and
multimodal transportation options, and services in and for the rural
areas.
LU-P-22.2-1 Encourage affordable housing in General Commercial
Crossroads and Neighborhood/Visitor Crossroads through
the allowance ofby allowing multifamily and middle
housing opportunities such as low- and mid-rise
multifamily residential units, stacked triplexes, senior
housing, assisted living facilities, and manufactured/mobile
home parks.
LU-P-22.2-2 Allow for adequate economic development to provide
support economic sustainability, adequate employment
opportunities, small business opportunities, family wage
jobs, and services in and for the rural areas.
LU-P-22.2-3 Promote opportunities for non-motorized and multimodal
transportation options within and to Rural Commercial
Crossroads.
Policy LU-P-22.3 Ensure visual compatibility and traditional design
elements for Rural Crossroads commercial infill development in Rural
Crossroads with the surrounding rural area through the creation and
implementation of community-based "rural character" design and
development standards. Ensure uUses within Rural Crossroads shall
beare scaled and sized to protect the natural character consistent with
the urban form of the neighborhood.
Master Planned Resorts
Goal LU-G-23 Provide for the siting of, and maintain the viability of, Jefferson County’s Master Planned Resorts
(MPR) in locations that are appropriate from both an economic, housing, and environmental perspective.
Policy LU-P-23.1 Ensure that development of MPRs comply with County
development regulations established for critical areas, that on-site and
off-site infrastructure impacts are fully considered and mitigated, and
that development is consistent with lawfully established vested rights
and approved development permits.
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Policy LU-P-23.2 Allow the provision of urban-style services to support
the anticipated growth and MPR development only within the
designated MPR boundaries.
Policy LU-P-23.3 Discourage any new urban or suburban land uses
within the immediate vicinity of MPRs outside of the designated MPR
boundaries.
Policy LU-P-23.4 Accommodate a variety of housing types in MPRs,
including affordable housing, single family, middle housing, and multi-
family housing, and assisted living care facilities.
Policy LU-P-23.5 Include designated greenbelts, non-clearing open
spaces, and wildlife corridors within the boundary of MPRs as
appropriate.
Policy LU-P-23.6 Open Space zones created within the boundaries of
MPRs should address non-clearing, permanently vegetated areas and
include forest management plans to ensure long-term viability, forest
ecosystem health, and fire safety that help mitigate impacts of climate
change.
Policy LU-P-23.7 Ensure that MPRs, which constitute urban growth
outside of urban growth areas, are limited by, and consistent with RCW
36.70A.360. Master planned resorts are generally larger in scale, and
involve greater potential impacts on the surrounding area, than uses
permitted under the Small-Scale Recreation and Tourist Uses
standards.
Policy LU-P-23.8 Require that MPRs contain sufficient portions of the
site in undeveloped open space for buffering and recreational
amenities to help preserve the natural and rural character of the area.
Where located in a rural area, the master planned resort should also be
designed to blend with the urban formnatural setting and—to the
maximum extent practical—screen the development and its impacts
from the adjacent rural areas outside of the designated MPR
designation.
Policy LU-P-23.9 Develop and maintain site-specific development
regulations to guide the review and development of master planned
resorts that include, at a minimum, compliance with these policies and
the Jefferson County Code.
Policy LU-P-23.10 Ensure new or expanded existing master planned
resorts located in areas of existing shoreline development—, such as
marinas and shoreline lodges, which promote public access to
developed shorelines, and/or locations which promote public access
and use of National Parks and National Forests—, provide and commit
to continued public access.
Master planned resorts are
generally larger in scale, and
involve greater potential
impacts on the surrounding
area, than uses permitted under the Small-Scale
Recreation and Tourist Uses
standards.
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Jefferson County Comprehensive Plan 1–115 Public Review Draft June 2025
Rural Industrial Lands
Goal LU-G-24 Recognize and contain areas and uses of
more intensive industrial development within boundaries
that may allow for limited areas of infill development.
Policy LU-P-24.1 Maintain the Port Townsend Paper Mill property as
Heavy Industrial, the Glen Cove industrial area as Light
Industrial/Commercial, Center Valley industrial area as Light Industrial,
Quilcene industrial area as Light Industrial/Manufacturing, and
Eastview Industrial Plat as Light Industrial/Manufacturing (LI/M),
consistent with Jefferson County Code and State lawthe provisions of
RCW 36.70A.070(5)(d) and in Chapter JCC 18.15.015.
Policy LU-P-24.2 Continue the ongoing planning discussions with the
City of Port Townsend regarding infrastructure and boundaries of the
Glen Cove Light Industrial/Commercial District and examine alternative
solutions such as Large On-Site Sewage Systems (LOSS).
Policy LU-P-24.3 Encourage establishment of renewable energy power
systems in rural areas to foster local economic prosperity, living wage
jobs, local energy resiliency, and additional revenue opportunities for
rural land owner/operators.
Policy LU-P-24.4 Protect future opportunities for planning Industrial
Land Banks and Major Industrial Developments by keeping
development regulations current and effective for these land uses.
Goal LU-G-25 Locate new natural resource-based industries in rural lands and near the resource upon
which they are dependent in accordance with State
lawRCW 36.70A.365.
Policy LU-P-25.1 Encourage the establishment of sustainable natural
resource-based industrial uses in rural areas to provide employment
opportunities, such as food processing near areas of agricultural
production and milling infrastructure near designated commercial
forests.
Policy LU-P-25.1Policy LU-P-25.2 Encourage local businesses that
sustainably harvest wild foods in the county’s forests and marine
waters.
Policy LU-P-25.2Policy LU-P-25.3 Allow nNatural resource-based
industries may be to located near the agricultural, forest, mineral, or
aquaculture resource lands upon which they are dependent.
See Chapter JCC 18.15.015 and RCW 36.70A.070(5)(d).
See RCW 36.70A.365.
Commented [JH35]: Addee per CAC recommendations
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Policy LU-P-25.3Policy LU-P-25.4 Maintain existing pre-1990 forest
resource-based industrial uses and activities at Gardiner as a Resource-
Based Industrial Zone (RBI).
Policy LU-P-25.4Policy LU-P-25.5 Continue to recognize the Gardiner
Resource-Based Industrial Zone as an area of more intensive rural
development under RCW 36.70A.070(5)(d)(i), and allow the Zzone to
accommodate conversions and/or an intensification of these uses and
activities under the provisions contained in State lawRCW 36.7
0A.070(5)(d)(iii).
Economic Activities Outside of Rural Commercial Areas
Small-Scale Recreational & Tourist Related Uses
Goal LU-G-26 Foster small-scale recreational or tourist-
related economic development that relies on a rural
location and setting, and that is small scaled recreational
or tourist-related.
Policy LU-P-26.1 Small-scale recreational or tourist uses shall be defined
as those uses reliant upon the rural setting, incorporating the scenic
and natural features of the land. Under no circumstances should this
policy be interpreted to permit new residential development, except
that allowed by underlying zoning, and that necessary for on-site
management.
Policy LU-P-26.2Policy LU-P-26.1 As a rural economic development
opportunity, provide for sSmall-scale recreational or tourist uses shall
be provided for through a permitting process appropriate to the type of
proposed use and the land use district in which it is proposed.
Policy LU-P-26.3Policy LU-P-26.2 Ensure tThe primary use of the site
shall be is for the small-scale recreational or tourist use and that c.
Commercial facilities, as provided for within an approved conditional
use permit for small-scale recreational or tourist uses, shall serve only
those recreational and tourist uses.
Policy LU-P-26.4Policy LU-P-26.3 Upon application for
intensification/expansion of existing small-scale recreational or tourist
areas and uses, the ultimate size and configuration of the site should be
established and maintained by logical outer boundaries. Existing areas
and uses are those that are clearly identifiable and contained, and
where there is a logical boundary delineated predominately by the built
environment on July 1, 1990, but may also include undeveloped lands if
the overall goals of the Rural Element are maintained, by:
a. preserving the character of the existing natural neighborhood;
See 36.70A.070(5)(d)(i) and
RCW 36.70A.070(5)(d)(iii).
Small-scale recreational or tourist uses are reliant upon
the rural setting and
incorporate the scenic and natural features of the land.
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Jefferson County Comprehensive Plan 1–117 Public Review Draft June 2025
b. physical boundaries such as bodies of water, roadways, and
land forms and contours are used to assist in delineation of the
site;
c. abnormally irregular site boundaries are prevented;
d. public facilities and services are provided in a manner that does
not permit low-density sprawl; and
e. protecting critical areas and surface and groundwater
resources.
Policy LU-P-26.5Policy LU-P-26.4 Within isolated West Jefferson
County, aAllow small-scale recreation and tourist uses within isolated
West Jefferson County to provide basic goods and services to meet the
needs of a local population living at a distance from commercial areas.
This limited expansion of uses is also intended to allow for the creation
of local jobs in an area of high unemployment, and distressed
economic conditions, and at increased risk of displacement.
Policy LU-P-26.6Policy LU-P-26.5 When a specific area is identified
through community planning as appropriate for the expansion of
existing small-scale recreation and tourist uses and for new small-scale
recreation and tourist uses, a Small-scale Recreation and Tourist (SRT)
overlay district for the identified area may establish variations from the
conditional use permitting process and the criteria in this section, so
long as the overall goals of the Rural Element are maintained.
Home-based Businesses & Cottage Industries
Goal LU-G-27 Foster home-based businesses or cottage industries in order to provide economic and employment
opportunities outside of Rural Commercial zones.
Policy LU-P-27.1 Permit home-based businesses and cottage industries
that are accessory to the residential use of the property throughout the
unincorporated portions of the county, subject to permit review
procedures.
Policy LU-P-27.2 Regulate hHome-based businesses and cottage
industries in West Jefferson County and the Brinnon Planning Area
shall be regulated according to Chapter JCC 18.15 Article VI-L in order to
encourage new economic development and employment
opportunities in unique areas that are isolated, and distant from
commercial and urban growth areas, and at increased risk of
displacement.
Related to western Jefferson County
Related to western Jefferson County
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Policy LU-P-27.3 Cottage industries are an accessory use to the primary
residential use and shall be operated by the owner or lessee of the
property, who shall reside either within a single family dwelling or an
accessory dwelling unit, subject to conditional use permit review
procedures.
Policy LU-P-27.4 Cottage industries in West Jefferson County and the
Brinnon Planning Area shall be regulated according to Chapter JCC
18.15 Article VI-L in order to provide employment opportunities in
unique areas that are isolated and distant from commercial and urban
growth areas.
Policy LU-P-27.5Policy LU-P-27.4 Codify provisions which will ensure
that home-based businesses and cottage industries will not create de-
facto Commercial Zoning in residential districts.
Policy LU-P-27.6Policy LU-P-27.5 Periodically evaluate the use and
success of home-based business and cottage industry provisions and
make modifications as appropriate.
Capital Facilities in Rural Areas
Goal LU-G-28 Provide Rural Village Centers with the level
of infrastructure support that will allow the community to
be served with appropriately scaled housing, commercial
services, and/or mixed-use development patterns to
provide for community needs through infill and
development of the LAMIRD. Limit the establishment or
expansion of urban development and infrastructure to those areas designated for urban growth.
Policy LU-P-28.1 Ensure that expansion of urban infrastructure occurs
only in coordination with designated land uses based on projected
growth estimates and in compliance with provisions of the GMAstate
Growth Management Act.
Policy LU-P-28.2 Periodically review and update the Coordinated Water
System Plan (CWSP) to ensure consistency with the joint population
projection and all land use designations.
Policy LU-P-28.3 Ensure that any impact fees adopted by the County
require that a “fair share” of development costs be borne by the
developer.
Policy LU-P-28.3Policy LU-P-28.4 Ensure Lland use decisions should
consider cost efficiency regarding publicly-funded infrastructure.
Related to western
Jefferson County
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Policy LU-P-28.4Policy LU-P-28.5 Ensure that where the County
assumes maintenance responsibilities for infrastructure, the
infrastructure is adequately designed to meet the area growth
projections and to fulfill the functions the infrastructure is intended to
perform.
Policy LU-P-28.5Policy LU-P-28.6 Require the provision of an
appropriate level of facilities and services prior to, or concurrent with,
development as identified in Chapter JCC 18.30. These services shall
include, but are not limited to, potable water supply, commercial fire
flow, adequate sewage disposal and roads, including sidewalks and
pathways if safety is an issue.
Policy LU-P-28.6Policy LU-P-28.7 Ensure that Rural Village Centersrural
areas are adequately served by a rural level of public services.
Encourage the development and adoption of new technologies such as
alternative wastewater and energy systems that minimize
infrastructure costs, reduce environmental impacts, and maintain rural
character.
Policy LU-P-28.7Policy LU-P-28.8 Allow community water facilities and
community sewage facilities in rural lands in order to support projected
growth or, where necessary, to protect public health and safety.
See Chapter JCC 18.30.
See also Policy LU-P-20.4
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1.3 RESOURCE
Resource Lands of Long-Term
Commercial Significance under the
GMA
One of the goals of the GMA is the conservation of productive natural
resources lands of long-term commercial significance, including
forestlands, agricultural lands, and mineral resources. All counties and
cities planning under the GMA are required to identify and designate
such natural resource lands for conservation to avoid conflicts with
other incompatible uses and ensure these lands are available to
support economic productivity and healthy ecological systems.
Identification and classification of natural resource lands is required by
GMA under RCW 36.70A.050 and as described more fully in Element 2
the Natural Resources Element.
Forest
Forestry has a long history in Jefferson County, and large areas of the
unincorporated county are devoted to timber production. Forest lands
provide both economic and ecological benefits to local residents,
making their conservation a high priority under the GMA. Over three-
quarters of the non-federal land in the County is zoned for forestry
purposes.
Mineral
Mineral resource extraction provides nonrenewable raw materials for a
wide variety of uses, including construction of essential public
infrastructure. The GMA also requires that counties evaluate future
needs for mineral resources and ensure that access to mineral
resources of long-term commercial significance is not knowingly
precluded by other types of land development. To meet the
requirements of GMA, mineral extraction should be a priority land use
for all designated mineral resource lands. Many of Jefferson County’s
designated mineral resource lands are also designated forest land.
Without definitive surveys and mapping of mineral resources of
Jefferson County, the broad forest land zones covering the largely
overlapping resource areas, provide a stand-in protective designation
that helps to protect mineral lands until additional surveys and
mapping can be done.
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Agriculture
Agriculture plays a vital role in economies of both Washington and
Jefferson County, and it is central to the culture and history of many
communities across the state. As described in the Framework section
of this Element, two agricultural land zones are part of the land use
and zoning districts and are supported by strong policies that
address both agricultural land protection, and the importance of the
food processing industry, as well as healthy food access for the
community.
Aquaculture: Refer to Natural Resources Element for the primary
information on upland aquaculture activities and aquaculture
resources regulated by the Shoreline Master Program (SMP). Primary
information about the SMP can be found in the Environment
Element.
Resource Conservation
While natural resource lands often consist of large properties under
intensive commercial production, valuable natural resource lands also
occur on smaller, family-owned parcels. For example, about
31,000nearly 30,000 acres of land in Jefferson County is designated as
forest land for property taxation purposes but is zoned for rural land use
other than commercial forestry, primarily rural residential development.
Nearly one-quarterAbout 52% of agricultural zoned lands farms in
Jefferson County are less than 10 acres in size, and 95%more than half
are less than 50 acres.
While the long-term commercial significance of properties such as
these may not be equal to that of larger commercial operations, they
represent resource lands capable of providing economic and ecological
benefits to local residents and should be conserved in keeping with the
goals of the GMA.
Jefferson County
Commented [JH36]: County is this information available in the assessor data and, if so, can your
GIS staff confirm?
Commented [JH37R36]: Updated per info from Kevin Hitchcock
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Resource Lands Goals & Policies
Goal LU-G-29 Conserve and manage the forest, agriculture, aquaculture, and mineral resources of Jefferson County for sustainable natural resource-based
economic activities that are compatible with surrounding land uses.
Policy LU-P-29.1 Conserve natural resource lands through land use
designations and encourage resource-based industries that provide
rural employment opportunities.
Policy LU-P-29.1Policy LU-P-29.2 Emphasize the development of
agricultural systems, including processing, storage, and distribution,
and identify where these facilities will be allowed.
Policy LU-P-29.2Policy LU-P-29.3 Support cooperative resource and
habitat management processes between stakeholders and local, state,
federal, and tribal governments by integrating cooperative agreements
and plans into land use ordinances and regulations.
Policy LU-P-29.3Policy LU-P-29.4 Work with resource-based industries
to achieve compliance with all applicable regulations to protect
environmental values and to protect surrounding land uses.
Policy LU-P-29.4Policy LU-P-29.5 Allow green burials in designated or
accepting cemeteries and consider allowing green burial cemeteries
consistent with Title 68 RCW, on forest zoned land greater than 20
acres in size with a conditional use permit.
See also the Natural Resources Element for goals and policies
addressing resource lands of long-term commercial significance.
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1.4 URBAN
Urban Growth Areas
Municipal & Unincorporated
The GMA authorizes the designation of urban growth areas in RCW
36.70A.110 to include cities and other areas characterized by urban
growth or adjacent to such areas. Urban growth areas are intended to
accommodate a projected population growth for the next twenty years.
The GMA specifies that future growth should, first, be located in areas
that already have public facilities and service capacity and, second, in
areas where such services, if not already available, are planned.
In Jefferson County, there are two urban growth areas:
▶ Port Townsend UGArban Growth Area (Municipal and
Unincorporated); and.
▶ Irondale and Port Hadlock Unincorporated UGArban Growth Area.
The City of Port Townsend is subject to its own Comprehensive Plan
and development regulations affecting urban growth and the provision
of public facilities and services within the City of Port Townsend. The
unincorporated portion of the Port Townsend UGA is subject to the
Jefferson County Comprehensive Plan and implementing regulations.
Joint planning between the County and City is encouraged, particularly
for those areas that may be annexed into the City of Port Townsend at
some point in the future.
The Irondale and Port Hadlock UGA is an unincorporated urban growth
area, located approximately 5 miles south of the City of Port Townsend,
adjacent to Port Townsend Bay. This unincorporated urban growth area
is subject to the Jefferson County Comprehensive Plan and
implementing regulations.
An urban growth area defines where urban developments will be
directed and supported with typical urban public facilities and services,
such as storm and sanitary sewer systems, domestic water systems, fire
and police protection services, and public transit services. Urban growth
areas enable new development to locate close to vital capital facilities
and urban services or "infill" in existing urbanizing areas. Urban growth
areas enable fiscal resources associated with capital facilities and urban
services to be operated more cost-effectively.
The urban growth area is an area where urban public facilities and
services are available or are planned. Provision of urban public facilities
and services may be available through several service providers, such as
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Jefferson County, the JPUD, or some other entity such as a sewer and
water district.
Port Townsend Urban Growth Area
Background
The construction of an emergency shelter and permanent support
housing is a verified community need. It remains one of the biggest
issues facing our community. The COVID-19 pandemic exacerbated the
housing emergency issues, and the County Commissioners began crisis
planning by identifying locations within the county and near services to
house those individuals who were experiencing homelessness. With
American Rescue Plan funding, the County purchased the Mill Road
site and several other contiguous parcels to the south as a unit. OlyCAP
leases a site from the County, offering the local unhoused population a
temporary place to stay while working to find permanent housing.
OlyCAP named the new location the Caswell-Brown Village, in
remembrance of two people who died while experiencing lack of
shelter or supportive services. The Caswell-Brown Village (“CBV”) on Mill
Road refers to the combined 50-bed emergency shelter with
permanent supportive housing and a 40-lot park consisting primarily of
recreational vehicles and tiny shelters to provide housing for
personspeople experiencing housing insecurity. It will be a continuum
of care housing facility operated by OlyCAP on a long-term lease with
the County.
Jefferson County has collaborated with the City of Port Townsend on a
modification to the Port Townsend UGA, something that has not
happened since the original establishment of the UGA boundary
(coincident with the City’s municipal boundary) in the years following
the adoption of GMA. The area proposed to be included within the Port
Townsend UGA is characterized by urban growth. Either the subject
parcels themselves already contain urban-style development or they
are located in close proximity to urban development, and by either
measure, the subject area is appropriate for urban growth. The growth
pattern on or near these lands makes the parcels incompatible with the
primary use of land for the production of food, other agricultural
products, or fiber, or the extraction of mineral resources, rural uses, rural
development, and natural resource lands designated pursuant to RCW
36.70A.170. The parcels are located in close proximity to urban services,
including but not limited to the City’s regional stormwater system,
sanitary sewer system, domestic water system, street cleaning services,
fire and police protection services, public transit services, healthcare
and medical services, and other public utilities associated with urban
areas and normally not associated with rural areas.
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Jefferson County Comprehensive Plan 1–125 Public Review Draft June 2025
In 2024, Jefferson County and the City of Port Townsend completed a
joint housing allocation using Method C of the model provided by the
State Department of Commerce, called the Housing for All Planning
Tool (“HAPT”). There are no other suitable alternative sites within the
existing Port Townsend city limits to accommodate a similar facility.
Incorporating CBV into the Port Townsend UGA boundary addresses
recent legislation that amended GMA to require local governments,
when completing the periodic update of comprehensive plans, to
accommodate housing affordable to all economic segments of the
population, reduce displacement risk, and undo identified racially
disparate impacts.
The City of Port Townsend is progressing to complete the City’s General
Sewer Plan (“GSP”) update in 2025. The plan update provides planning
level analysis of the City’s Wastewater Treatment Plant, Biosolids
Facility, and sewer collection system. The updated GSP includes a
projected capital investments analysis and operational projection
necessary for the next 20 years. An updated rate study was developed
to pay for the infrastructure investment identified in the capital analysis
to ensure adequate funds to operate the sewer system. The GSP is
under review by the Washington State Department of Ecology.
Following Ecology’s review and approval, the final adoption will be
incorporated into the City’s 2025 periodic update.
JPUDefferson County Public Utility District No. 1 (“PUD”) is working to
address power capacity and reliability issue in the Port Townsend area.
PUD believes the solution to these issues is to build another electrical
sub-station that areis adjacent to existing PUD power lines. In looking
for a suitable location, the PUD identified two county-owned parcels,
which were purchased as a unit when establishing CBV at its current
location. The County and the JPUD are currently working on
documentation to effectuate the sale.
The 32.72-acre unincorporated Port Townsend UGA comprises all
publicly-owned parcels. The re-designation of the land use and zoning
maps would eliminate the potential segmentation of the required
urban services and facilities and, but also ensure that future
connections/expansions of these services arewere possible.
Land Use Map & Zoning Designations
The Land Use and Zoning Map, adopted as a part of this element, is the
graphic representation of the densities and intensities of use and the
goals, policies, and strategies contained within this plan.
The lLand use and zoning designation in the unincorporated Port
Townsend UGA is as follows:
▶ Public facilities (“UGA-P”) comprise 32.72 acres, including open
space areas, the Caswell-Brown Village, the Port Townsend
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Jefferson County Comprehensive Plan 1–126 Public Review Draft June 2025
Regional Stormwater Facility, and a future electrical substation as
proposed by the JPUDPublic Utility District No. 1 of Jefferson
County.
Irondale & Port Hadlock
Urban Growth Area
History of Planning
Designation
Detailed planning for the designation of a
Irondale and Port Hadlock UGA in
compliance with the requirements of the
GMA has been on-going since the
Jefferson County Comprehensive Plan
was originally adopted in 1998. Specific
policy language in the Comprehensive
Plan indicated the joint city/county intent
to pursue future urban growth area
planning for the “Tri-Area” (including
Irondale, Port Hadlock and Chimacum).
As part of the on-going joint City/County
urban growth area planning, the Tri-Area Provisional Urban Growth
Area (Interim Urban Growth Area) was designated by Jefferson County
on October 5, 1999 as an interim step in the urban growth area
planning process. In 2000, the boundary of the Interim Urban Growth
Area was established and included the Irondale and Port Hadlock
communities. In-depth analysis and environmental impact review of
the land use, population, capital facilities and public services, natural
systems and critical area constraints, open space, housing, and non-
residential land use needs for a Tri-Area Urban Growth Area are
incorporated in the Tri Area/Glen Cove Special Study conducted from
1998-2002.
Public Facilities & Services
Specific planning for public facilities and services in the Irondale and
Port Hadlock UGA is referenced in this section and in the Capital
Facilities Element, as well as supporting appendices of the
Comprehensive Plan, the Tri Area/Glen Cove Special Study, the
Jefferson County Port Hadlock Urban Growth Area Sewer Facility Plan
of September 2008, and the Port Hadlock Urban Growth Area Sewer
System/Water Reclamation Facility and Influent Pipeline Design Plans
& Specifications dated December 2013.
Inside the Puget Sound Iron Company, Jefferson County, from the Collection of the Jefferson County Historical Society
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Urban Growth Area Sizing & Capacity
Further planning analysis of the size and capacity of the urban growth
area was conducted in the Proposed Irondale and Port Hadlock Urban
Growth Area: Dwelling Unit & Population Holding Capacity Analysis,
Cascadia Community Planning Services, January 21, 2009, and updated
by Community Development in 2017 and 2024 for the periodic review.
CPPs provide a broad framework for UGA planning that were
developed in a collaborative process between the City of Port
Townsend and the County. Countywide Planning Policy #1.3 provides
specific guidance on criteria for the sizing and delineation of UGA
boundaries outside of cities:
▶ Received population allocation for UGAs.
▶ Adequate amount of developable land to accommodate forecasted
growth for the next 20 years.
▶ Sufficient developable land for residential, commercial, and
industrial uses to sustain a healthy local and regional economy.
▶ Sufficient area for the designation of greenbelts and open space
corridors.
▶ Topographical features or environmentally sensitive areas that may
form natural boundaries such as bays, watersheds, rivers, or ridge
lines.
▶ Lands already characterized by urban development that is
currently served or are planned to be served by roads, water,
sanitary sewer, and storm drainage, schools, and other urban
services within the next 20 years; provided that such urban services
that are not yet in place are included in a capital facilities plan.
▶ The type and degree of existing urban services necessary to
support urban development at the adopted interim level of service
(LOS).
The CPPsountywide Planning Policies also provide selected guidance
for the phasing of urban growth commensurate with the provision of
adequate urban services to UGAs:
▶ Land use plans, regulations and capital facility plans for each UGA
will be designed to accommodate the projected population. Urban
growth should be located first in areas already characterized by
urban growth that have adequate existing public facility and
service capacities to serve such development, second in areas
already characterized by urban growth that will be served
adequately by a combination of both existing public facilities and
services and any additional needed public facilities and services
that are provided by either public or private sources, and third in
the remaining portions of the UGAs. Urban growth may also be
located in designated new fully contained communities as defined
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Jefferson County Comprehensive Plan 1–128 Public Review Draft June 2025
by RCW 36.70A.350. UGAs should encourage growth in these areas
through incentive programs.Growth should first be directed into
two tiers: Tier 1—existing commercial centers and urbanized areas
where the six (6) year capital facilities plan is prepared to provide
urban infrastructure; Tier 2—areas included within the capital
facilities plan to receive the full range of urban services within
twenty (20) years. Infrastructure improvements necessary to
support development in the second tier will be provided by the
developer concurrent with development, or by public entities
because of implementing all or a portion of the capital facilities
plan. (CPP 1.5)
▶ Before adopting or modifying boundaries of UGAs, interim Level of
Service Standards (LOS) for public services and facilities located
inside and outside of UGAs must be adopted. (CPP 1.7)
▶ The full range of governmental urban services at the adopted
LOSlevel of service standards will be planned for and provided within
UGAs, as defined in the capital facilities plan, including community
water, sanitary sewer, piped fire flow, and storm water systems (CPP
2.1)
▶ New development will meet the adopted LOSlevel of service
standards for the UGA as a condition of project approval. SFor
unincorporated UGAs, said standards will include interim
transitional provisions for those urban facilities identified in the
capital facilities plan but not yet developed. New development will
contribute its proportionate share towards provision of urban
facilities identified in the capital facilities plan. (CPP 2.3)
▶ Local public involvement and citizen community advice into the
formation and development of UGA land uses and supporting
urban public facilities and services are also an important
component of planning and implementation for UGAs. (CPP 2.2)
Urban Growth Area Designation Criteria
The GMA specifies certain minimum requirements for UGA formation.
These include the following provisions of RCW 36.70A.110:
An urban growth area may include territory that is located
outside of a city only if such territory already is characterized
by urban growth whether or not the urban growth area
includes a city, or is adjacent to territory already characterized
by urban growth, or is a designated new fully contained
community as defined by RCW 36.70A.350. (RCW 36.70A.110(1)).
The vast majority of the Irondale and Port Hadlock UGA is “already
characterized by urban growth.” In addition, the boundary for the UGA
was delineated based on the criteria in CPPs with guidance from the
Tri-Area Community Plan (1995) and public input from local residents.
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Jefferson County Comprehensive Plan 1–129 Public Review Draft June 2025
Only limited areas “adjacent to territory already characterized by
urban growth” are included in the UGA to: 1) interconnect areas
characterized by existing urban growth; 2) incorporate sufficient
developable land to sustain the urban growth projected to occur
during the 20-year planning period; or 3) provide for a reasonable land
market supply factor to discourage adverse land and housing price
increases. The Irondale and Port Hadlock UGA is significantly smaller
and more compact than the “Tri-Area Urban Growth Area” originally
proposed in the Special Study.
Based upon the growth management population projection
made for the county by the office of financial management,
the county and each city within the county shall include areas
and densities sufficient to permit the urban growth that is
projected to occur in the county or city for the succeeding
twenty-year period. (36.70A.110(2)).
Adequate land area for the expected growth during the planning
period has been designated based on both the projected 20-year
residential population growth for Irondale and Port Hadlock UGA
identified in the Comprehensive Plan as well as the need for
commercial/industrial lands identified as a part of the Special Study.
The Comprehensive Plan population growth projections indicate a 20-
year projected growth from 2025–2045 of 2,3602018-2038 of 1,516
residents for the UGA. The UGA buildout capacity analysis is
summarizedpresented later in this element and detailed in Appendix
E.
The boundary (i.e., sizing) of the UGA included only those areas
“characterized by urban growth...or…adjacent to territory already
characterized by urban growth” necessary to accommodate the urban
growth projected to occur consistent with the Act. The Irondale and
Port Hadlock UGA includes areas designated for medium and high
density multi-family developments that are “adjacent to territory
already characterized by urban growth” as one means to
accommodate the projected population increase.
Although the Irondale and Port Hadlock UGA contains a significant
amount of existing single-family urban residential development—from
a future urban growth perspective—its major intent is to provide more
economic development opportunity to serve the unmet regional
commercial needs of eastern Jefferson County identified in the Special
Study. Secondarily, UGA designation and the provision of urban
facilities and services will allow for development of higher density (and
more affordable) multi-family housing when construction of the
planneda sanitary system is finishedbecomes available.
Each urban growth area shall permit urban densities and shall
include greenbelt and open space areas. (36.70A.110(2)).
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Jefferson County Comprehensive Plan 1–130 Public Review Draft June 2025
Average urban density of residential development is above 4 dwelling
units per acre in the UGA. See the Proposed Irondale and Port Hadlock
Urban Growth Area: Dwelling Unit & Population Holding Capacity
Analysis, Cascadia Community Planning Services, January 21, 2009. The
Urban Low Density Residential (ULDR) designation on the Irondale and
Port Hadlock UGA Zoning Map requires a minimum density of 4
dwellings units per acre, except where the following criteria are met: 1)
in areas where no sanitary sewer service is provided in the adopted Six-
Year Capital Facilities Plan; and 2) in such areas within an adopted
Critical Aquifer Recharge Area (CARA). The provisions of the Jefferson
County Health Department On-Site Sewage Disposal Systems
regulations (JCC 8.15) and Unified Development Code (UDC) Section
(Best Management Practices for On-Site Sewage Disposal in CARAs)
shall apply under these circumstances which effectively limit maximum
density to approximately 3.5 units per acre. The so-called “bright line”
rule adopted by the Growth Management Hearings Boards suggests
that four units per acre is a minimum urban density. However, the
Boards have also recognized that jurisdictions may apply densities
below that line in UGA if there is a compelling GMA reason for doing so.
Protection of critical areas, including CARAs, has been recognized by
the Hearings Boards as such a reason. In the UGA, the CARA serves to
protect the same groundwater aquifer that supplies the public water
supply for the UGA—the Public Utility District’s Sparling Well located
within the UGA at the corner of Kennedy Road and Rhody Drive (SR 19).
The zoning map indicates several additional areas designated for
moderate- and high-density residential development within sewer
service areas that are in close proximity to existing commercial centers
and community facilities such as the Chimacum Creek Elementary
School and the County Library.
Open space and greenbelt areas have also been identified for the UGA,
especially along the Chimacum Creek corridor, in associated wetland
areas and along the Port Townsend Bay marine shoreline at the mouth
of Chimacum Creek where substantial shoreline restoration has been
completed at the site of a former log dump and at the Irondale smelter
site. Concurrently with development and re-development of the UGA, a
primary urban design consideration is to create better connections
between residential and commercial uses, non-motorized access to
transit services, sidewalks, bicycle lanes, and overall attention to non-
motorized transportation connectivity.
An urban growth area determination may include a
reasonable land market supply factor and shall permit a
range of urban densities and uses. (36.70A.110(2)).
Single-family, middle housing, and multi-family residential, urban
commercial, light industrial, lands for public purposes, and open space
and greenbelt land needs are incorporated in the Port Irondale and
Refer to the Transportation
Element, Non-Motorized Trail
& Standards
Commented [JH38]: Still a relevant reference? I
can’t find this online anywhere.
Commented [CE39]: This standard will be
superseded by the new JCC 8.15 which goes into
effect April 1st 2025. The struck language is no
longer valid.
Commented [JH40R39]: Thanks!
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Jefferson County Comprehensive Plan 1–131 Public Review Draft June 2025
Port Hadlock UGA. Sizing of the UGA was intended to include only
those areas “characterized by urban growth...or…adjacent to territory
already characterized by urban growth” consistent with the Act. A
reasonable land market supply factor was applied to discourage
adverse increases to land and housing values in the UGA. Reduction
factors to account for lands needed for roads and utilities and
preservation of environmentally sensitive areas were also applied.
Documentation of supporting population and land area analysis are
found in the Special Study and in the Irondale and Port Hadlock Urban
Growth Area Buildout Analysis, dated March 4, 2004, and the Proposed
Irondale and Port Hadlock Urban Growth Area: Dwelling Unit &
Population Holding Capacity Analysis, Cascadia Community Planning
Services, January 21, 2009, and updated in the 202518 Periodic Review;
(see Appendix E for the Land Capacity & Housing Technical Appendix).
Cities and counties have discretion in their comprehensive
plans to make many choices about accommodating growth.
(36.70A.110(2).)
Planning for an unincorporated UGA in eastern Jefferson County has
been on-going since the initial GMA Comprehensive Plan for the
County was adopted in 1998. The Special Study was a collaborative joint
planning process between the City of Port Townsend and the County
that entailed a broad analysis of population and employment growth
and land use needs as well as alternative UGA boundary configurations
and their associated impacts. It presented many choices about
accommodating growth. One of the key findings of the Special Study
was that the County experienced a significant amount of “retail
leakage” to urban areas in adjacent counties due to an inadequate
commercial land use base in the County. The City of Port Townsend
and the County also jointly chose through the Joint Growth
Management Steering Committee to accommodate new growth
through formation of a Tri-Area Unincorporated UGA rather than
accommodate the unmet demand for commercial growth in the
existing Port Townsend UGA.
The Comprehensive Plan and the CPPs both identify the Tri-Area (now
the unincorporated Irondale and Port Hadlock UGAnincorporated
Urban Growth Area) as the primary regional commercial growth center
for the unincorporated county. However, the lack of the full range of
urban services, including a sanitary sewer system, has historically been
an impediment to significant commercial development and job
creation. The UGA planning process involved an extensive amount of
public involvement. The Implementation Plan for the Special Study
identified and analyzed more specific UGA land use alternatives for the
area. Because of the extensive public involvement process and capital
facilities impact analysis conducted throughout the life of the Special
Study, the Tri-Area UGA represents a significantly smaller, more
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Jefferson County Comprehensive Plan 1–132 Public Review Draft June 2025
compact and more fiscally viable UGA than originally proposed in the
DSEIS/FSEIS prepared as a part of the Special Study.
Urban growth should be located first in areas already
characterized by urban growth that have adequate existing
public facility and service capacities to serve such
development, second in areas already characterized by urban
growth that will be served adequately by a combination of
both existing public facilities and services and any additional
needed public facilities and services that are provided by either
public or private sources, and third in the remaining portions of
the urban growth areas. (36.70A.110(3)).
The Special Study included several alternative UGA boundaries and
permitted land use alternatives for UGAs in Jefferson County. One of
these alternatives (Alternative 1) was not to adopt a new
unincorporated UGA but rather accommodate the unmet need for
regional commercial growth identified in the Special Study through
intensification of the existing Port Townsend UGA. Following issuance
of the Final Supplemental Environmental Impact Statement for
Jefferson County Comprehensive Plan Amendments, dated August
1999 (FSEIS) the Joint Growth Management Steering Committee
(comprised of three City Councilors and three County Commissioners)
decided on August 24, 1999 (by a vote of 5 to 1) to move forward with
UGA implementation for Irondale and Port Hadlock and to reject
implementation of Alternative 1—effectively precluding allocation of the
unmet employment and commercial growth needs identified in the
Special Study to the existing Port Townsend UGA.
Phased Implementation
In 2002, Irondale and Port Hadlock lacked the full range of urban
services needed for immediate UGA implementation indicated in the
CPPs 2.1, above. Therefore, the Comprehensive Plan had to plan for the
provision of those services as required by RCW 36.70A.110(3). The
Irondale and Port Hadlock UGA was programmatically defined in
several phases. The initial phase involved amendments to the Jefferson
County Comprehensive Plan in 2002 to adopt the final UGA boundary,
land use map, and interim levels of service for urban facilities as well as
goals and policies guiding the development of the UGA. This included
identification of additional plans and capital facilities (including costs and
funding sources) needed to implement the full range of urban services
and facilities within the UGA. The next phase involved preparation and
adoption of UGA development regulations now codified in Chapter 18.18
of the JCC. This phase also included completion of the capital facility plans
needed to implement the full range of urban services required in the
CPPs 2.1, including the adoption of urban level of service standards for
UGA transportation improvements, storm water management facilities,
and a new sanitary sewer system. These capital facility plans are adopted
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Jefferson County Comprehensive Plan 1–133 Public Review Draft June 2025
herein by reference and are included as appendices to the
Comprehensive Plan. The UGA functional capital facility plans as adopted
herein are available under separate cover and include:
▶ Port Hadlock Urban Growth Area Sewer Facility Plan, September
2008
▶ Irondale and Port Hadlock Urban Growth Area Stormwater
Management Plan, May 2004
▶ Irondale and Port Hadlock Urban Growth Area Transportation Plan,
May 2004 as updated in Appendix C
Consistent with the CPPs 1.5, the adopted Irondale and Port Hadlock
Urban Growth Area General Sewer Plan identifies phased development
areas within the UGA based on where the six (6) year capital facilities
plan is prepared to provide urban sanitary sewer service in the Urban
Growth Area core, followed by expansion of sewer service availability
throughout the Urban Growth Area in the 20 year planning period.
Construction of the Phase I wastewater treatment plant and collection
system for residents and businesses in the Port Hadlock area is currently
underway and anticipated to be ready in 2025, at which point urban
zoning will apply within the sewer service area (generally the commercial
core along SR-116 and Rhody Drive). When construction of the sewer
system is completed, the Irondale and Port Hadlock UGA will be able to
support additional affordable housing, medical facilities, higher density
multifamily residences, and senior housing as well as commercial and
industrial development. More complete discussion and analysis of these
areas are found in the “Capital Facilities” section of this element and in
the adopted Urban Growth Area General Sewer Plan.
Public involvement was a key component of all phases of UGA
planning. The County appointed an Urban Growth Area Citizen Advisory
Committee during the initial Irondale and Port Hadlock UGA boundary
and land use planning phase in 2001. The CAC was comprised of local
UGA residents and business owners and participated in developing the
initial recommendations for the Irondale and Port Hadlock UGA
boundary and land use designations adopted in 2002. An Urban
Growth Area Citizens Task Force was appointed in 2004, again
comprised of local business owners and residents, to help the Planning
Commission Urban Growth Area Subcommittee develop specific
implementing regulations and capital facility development standards
for the UGA.
Alternative Phasing Sewer Policy
Within the UGA, the principal barrier to greater density is has
historically been the lack of a sanitary sewer. Some communities in
Washington State allow development activity on approved alternative
wastewater treatment systems that do not preclude future hook-up to Commented [JH41]: Revised per comment from Carter Erickson on LU-P-30.4 below.
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Jefferson County Comprehensive Plan 1–134 Public Review Draft June 2025
traditional sewer. For example, Kitsap County explored pocket plants,
membrane bioreactor treatment systems, and community drain fields,
and the Growth Management Hearings Board found these types of
systems provided an urban level of service for new development (KCRP
VI v. Kitsap County; Case 06-3-0007).29 Pierce County allows dry sewer
lines to be installed; residential development up to the maximum
density may be allowed, if lots in excess of the density permitted with
on-site septic cannot be developed until the sewer line is extended and
connected to all the lots. The City of Yakima allows urban development
if there are either public sewer systems or approved community sewer
systems. A policy is includedPolicy LU-P-30.4 allowsing for alternative
technologies and phasing to advance development in the UGA and
meet community needs such as for like housing variety and
affordability.
Land Use Map & Zoning Designations
The Future Land Use and Zoning Map, adopted as a part of this
element, is the graphic representation of the densities and intensities
of use and the goals, policies and strategies contained within this plan.
The Land Use and Zoning Maps were developed based on consistency
with the GMA, community involvement, consideration of the 1995 Tri-
Area Community Development Plan, the results of the Special Study,
the Proposed Irondale and Port Hadlock Urban Growth Area: Dwelling
Unit & Population Holding Capacity Analysis, Cascadia Community
Planning Services, January 21, 2009, and the specific criteria contained
within this element.
Land use and zoning designations are as follows:
▶ The Urban Low Density Residential (UGA-LDR) zone will allow
housing density from four (4) to eightsix (68) dwelling units per
acre. Moderate Density Residential (UGA-MDR) zoning will allow
housing at a density of 8–187-12 units per acre. The High Density
Residential (UGA-HDR) zone will allow housing at a density of 13-18–
24 dwelling units per acre.
▶ The Urban Commercial (UGA-UC) zone covers both the existing and
planned future commercial development in the Port Hadlock core
area and along Rhody Drive from Ness” Corner along the
commercial strip fronting SR 19. The County adopted code revisions
in December 2024 that also allow multifamily residential
development in the Urban Commercial zone. The Visitor-Oriented
Commercial (UGA-VOC) zone is applied to the tourism-oriented
potential development area around the Old Alcohol Plant.
29 KCRP VI v. Kitsap County; Case 06-3-0007.
Commented [JH42]: Updated slightly to reflect no mixed use overlay per 4/3 conversation with Joel.
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Jefferson County Comprehensive Plan 1–135 Public Review Draft June 2025
▶ The Urban Light Industrial (UGA-LI) zone in the UGA applies to a
largely developed industrial area: all but 5 acres are already in light
industrial use. These uses are in the southwest corner of the UGA well
buffered from the bulk of the residential neighborhoods in the
community.
▶ Public facilities (UGA-P) comprise 80 acres, including public park and
open space areas, the Library and Chimacum Creek Elementary
School, the Jefferson County Sheriff’s Office and Jail, Jefferson County
Public Works Department Maintenance Yard, and the JPUD’s
Sparling Well facility along Rhody Drive and the Kivley Well in Port
Hadlock.
Rural zones apply until urban wastewater services are available, and
then Urban zones apply. See Exhibit 1-25 and Exhibit 1-26.
Commented [JH43]: I think the wastewater facility is still zoned ULDR? If revised to UGA-P, add wastewater acreage.
Commented [JH44R43]: Wastewater facility still ULDR
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Jefferson County Comprehensive Plan 1–136 Public Review Draft June 2025
Exhibit 1-25 Irondale and Port Hadlock UGA Transitional Rural Zoning
Note: This exhibit was updated since the 2018 Comprehensive Plan. Rural zones apply until urban wastewater
services are available, and then Urban zones apply (see Exhibit 1-25).
Source: Jefferson County, 202509.
Commented [JH45]: I think this is an old map that was created by the County. Can County GIS staff update to add the Phase I sewer service area boundary? Suggest this map also show only the
transitional zoning, which means zoning in the
sewer service area would not be shown on here
even though it’s in the UGA, but I’m open to
other suggestions.
Commented [JH46R45]: Replaced with revised
map from Kevin Hitchcock received 4/11.
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Jefferson County Comprehensive Plan 1–137 Public Review Draft June 2025
Exhibit 1-26 Irondale and Port Hadlock UGA Urban Zoning (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan. Source: Jefferson County, 2009.
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Dwelling Unit & Population Holding Capacity Analysis
Planning analysis of the UGA’s capacity was conducted in by
Community Development staff and the consultant team for the 202518
Comprehensive Plan using the current population allocation from
Resolution #68-1118-24RNo. 38-15, and the methodology outlined
detailed in Appendix E the 2009 Cascadia Community Planning
Services analysis.
The Comprehensive Plan population growth projections for 2025–
20452018-2038 indicate a 20-year projected growth of 1,5162,360
residents for the Irondale and Port Hadlock UGA with a need for 2,471
housing units affordable to households at various income levels and an
additional 280 emergency housing beds.
The capacity analysis prepared for the 202518 Periodic Update
illustrates there is a capacity for new population of 1,518-2,413up to 3,152
housing units and 4,507 additional people in the Irondale and Port
Hadlock UGA30 with the proposed zoning revisions, including sufficient
capacity for new housing affordable to households across all income
levels (see Appendix E for more detail). Thus, there is capacity to meet
the 20-year growth projection.
Exhibit Estimated Total Dwelling Unit & Population Holding Capacity
Dwellings Population
Estimated Net Additional Capacity of Vacant &
Underdeveloped Lands 723– 1,149 1,518– 2,413
Estimated Existing Dwelling Units & Population on Vacant & Underdeveloped Lands 1,380* 2,898
Estimated Holding Capacity Range at Build-Out 2,103–2,529 4,416–5,311
Source: Jefferson County, 2018.
* 1,352 in 2016 x 1.06% growth rate from 2010 to 2016 = 1,380 (1261 in “developed areas; 119 in “underdeveloped” areas).
Projected population 2038 = 5,394 5,311-5,394 = (83)
Housing Variety & Affordability
Aside from the further extension of sewer, other obstacles to urban
development include the size of older semi-rural lots and ownership
that make redevelopment difficult.
Some solutions could be to offer incentives such as fee reductions or
permit fast-tracking for infill housing such as accessory dwelling units.
Lot consolidation incentives could include: density bonuses, reduced
yards, reduced parking, fee waivers and permit fast-tracking in
exchange for implementing lot consolidation.
30 The unincorporated Port Townsend UGA is zoned entirely UGA-P and thus
does not have any capacity to support new population or housing growth.
Commented [JH47]: Updated per capacity analysis revisions to the UC zone in approach discussed with Joel 4/3.
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Urban Growth Area Goals & Policies
The goals and policies of the urban growth area element provide
direction for the development of the Port Townsend Unincorporated
UGA Jefferson County’s unincorporated Irondale and Port Hadlock
Unincorporated UGA. They outline specific criteria for urban
development, incorporating issues and opportunities identified by
County residents in the public urban growth area planning process.
Urban Development
Goal LU-G-30 Provide for the orderly development of
urban land uses in urban growth areas consistent with
the provision of adequate and feasible urban levels of public facilities and services.
Policy LU-P-30.1 Direct new urban growth into areas that are already
characterized by existing urban growth or adjacent to areas
characterized by urban growth. Within the confines of the GMA, Scale
urban levels of services (capital facilities and infrastructure) should be
scaled to the needs of urban growth areas and the ability of businesses,
homeowners, workers, and the public to finance them.
Policy LU-P-30.2 Encourage growth in the Irondale and Port Hadlock
UGArban Growth Area commensurate with the appropriate level of
urban public facility and service capacities consistent with in adopted
plans, projections, and interlocal agreements.
Policy LU-P-30.3 Plan urban governmental services at urban levels of
services prior to or concurrent with development. (See Capital Facilities
and Utilities Element for a list of urban public facilities and their
adopted levels of service).
Policy LU-P-30.4 Ensure future urban development is not precluded by
considering Consider urban growth area development plans that allow
urban development on septic systems or alternativeother approved
means of wastewater treatment systems in a site design process, such
as a binding site plan, subdivision, or shadow-plat., that ensures future
urban development will not be precluded
Policy LU-P-30.5 , and dDevelop regulations that facilitate urban infill—
including multiple accessory dwelling units— in areas previously
developed or platted at sub urban densities, including multiple
accessory dwelling units.
Policy LU-P-30.6 Provide incentives for affordable housing through
planned urban densities initially on septic systems.
See the Capital Facilities and Utilities Element for a list of urban public facilities and
their adopted levels of
service.
Commented [CE48]: There really aren’t other “alternative wastewater treatment” options that Environmental Health can approve other than individual/community septic systems, large septic systems (regulated by the state), or public sewer. See proposed alternative language.
Commented [JH49R48]: This looks good to me. Thanks.
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Jefferson County Comprehensive Plan 1–140 Public Review Draft June 2025
Policy LU-P-30.7 Provide incentives for efficient development
patterns such as lot consolidation.
Policy LU-P-30.8 Provide for on-going review and evaluation of the
unincorporated Irondale and Port Hadlock Unincorporated UGArban
Growth Area to monitor the rate of development, land supply and
availability, market conditions, infrastructure implementation and
costs in order to identify barriers to urban developmentconstraints to
growth in the Urban Growth Area and recommend corrective actions,
where appropriate.
Policy LU-P-30.9 Collaborate with the City of Port Townsend to
delineate urban growth areas able to accommodate projected growth
in the county with a preference for limiting UGA expansion. Prohibit
expansion of the urban growth area within the 100-year floodplain
except as allowed for in RCW 36.70A.110.
Goal LU-G-31 Encourage a balance of commercial and industrial uses for urban-scale and regional-scale
economic activities within urban growth areas (Urban
Growth Areas).
Policy LU-P-31.1 Encourage and facilitate urban regional-scale urban
economic activities in unincorporated urban growth areas which
provide for county-wide goods, services, and employment
opportunities.
Policy LU-P-31.2 Recognizing that the Irondale and Port Hadlock
UGArban Growth Area has a limited amount of undeveloped
commercial parcels suitable for attracting and accommodating
regional commercial development, conduct periodic evaluation of
commercial land needs to ensure the adequacy of commercial zones to
provide community goods and services and to promote economic
development.
Goal LU-G-32 Provide uUrban development design that
promotes healthy communities through policies that promote healthy lifestyles and equitable access to opportunity.
Policy LU-P-32.1Policy LU-P-1.1 Encourage and facilitate urban regional-
scale economic activities in unincorporated Urban Growth Areas which
provide for County-wide goods, services, and employment
opportunities.
Examples of urban development design that
promotes healthy lifestyles include:
▶Complete Streets
planning;
▶Pedestrian friendly
developments; and
▶Access to healthy
foods, healthcare, and
senior care services.
Healthy
Communities
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Jefferson County Comprehensive Plan 1–141 Public Review Draft June 2025
Policy LU-P-32.2Policy LU-P-1.1 Direct new urban growth into areas
that are already characterized by existing urban growth or adjacent to
areas characterized by urban growth. Within the confines of the GMA,
urban levels of services (capital facilities and infrastructure) should be
scaled to the needs of urban growth areas and the ability of businesses,
homeowners, workers, and the public to finance them.
Policy LU-P-32.3Policy LU-P-32.1 Ensure future infrastructure
improvements are appropriately sized and scaled to the planned
population projections and development densities in the County. The
level of urban infrastructure must serve the needs of the public, protect
the environment and be affordable. Use Health Impact Assessments in
the decision-making process of prioritizing capital projects, in order to
make progress on healthy community goals.
Policy LU-P-32.4Policy LU-P-1.1 Encourage growth in the Port Hadlock /
Irondale Urban Growth Area commensurate with the appropriate level
of urban public facility and service capacities consistent with adopted
plans, projections and interlocal agreements.
Policy LU-P-32.5Policy LU-P-1.1 Plan urban governmental services at
urban levels of services prior to or concurrent with development. (See
Capital Facilities and Utilities Element for a list of urban public facilities
and their adopted levels of service).
Policy LU-P-32.6Policy LU-P-1.1 Consider Urban Growth Area
development plans that allow urban development on septic systems or
alternative wastewater treatment systems in a site design process, such
as a binding site plan, subdivision or shadow-plat, that ensures future
urban development will not be precluded, and develop regulations that
facilitate urban infill in areas previously developed or platted at sub
urban densities, including multiple accessory dwelling units.
Policy LU-P-32.7Policy LU-P-1.1 Provide incentives for affordable
housing through planned urban densities initially on septic systems.
Policy LU-P-32.8Policy LU-P-1.1 Provide incentives for efficient
development patterns such as lot consolidation.
Policy LU-P-32.2 Diversify and expand housing types and choices in
urban growth areas to meet the changing needs of the community.
Policy LU-P-32.9 Consider developing an affordable housing incentives
program for the Port Hadlock/Irondale Urban Growth Area per RCW
36.70a.540, as funding allows.
Policy LU-P-32.10 Support legislative efforts to allow tax exemptions for
housing in unincorporated Urban Growth Areas for rural counties like
Jefferson County. Include support for multifamily tax credits such as
federal low income housing tax credits (LIHTC) and project-based
vouchers (Section 8).
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Jefferson County Comprehensive Plan 1–142 Public Review Draft June 2025
Policy LU-P-32.11 Periodically review development regulations for
potential affordable housing barriers with for-profit and non-profit
housing providers and community members.
Policy LU-P-32.12 Consider allowing tiny homes as accessory dwelling
units or where mobile home parks are allowed. Adopt tiny home
building standards such as Appendix Q, International Residential Code.
Policy LU-P-32.13Policy LU-P-32.3 AdoptSet a walkability standard (for
example, a halfquarter mile) for residential access to daily retail and
transit stops in urban areas. Adopt a service standard that can be
applied to urban or rural village centers throughout the county.
Policy LU-P-32.14Policy LU-P-32.4 Incorporate physical activity
measures into the design of project evaluation studies, such as
multimodal transportation planning, community design, or community
health studies.
Policy LU-P-32.15Policy LU-P-32.5 Incorporate traffic calming measures
where needed to increase pedestrian and bicycle safety.
Policy LU-P-32.16Policy LU-P-32.6 Facilitate non-motorized
transportation and reduce the need for automobile parking in
pedestrian use areas through development regulations in the Irondale
and Port Hadlock UGArban Growth Area.
Policy LU-P-32.17 Support farmer’s markets and farm stands in urban,
rural residential, and commercial districts.
Policy LU-P-32.18Policy LU-P-32.7 Encourage small-scale urban
community farming and gardening, consistent with urban plans.
Policy LU-P-32.19Policy LU-P-32.8 Maximize opportunities to
incorporate urban home and community gardens in new development.
Allow community gardens to count toward park and open space
requirements.
Policy LU-P-32.20Policy LU-P-32.9 PConsider funding for and promote
equitable access to food growing opportunities. Identify neighborhoods
that are underserved by open space and healthy-eating opportunities,
including access to existing urban agriculture resources, and p.
Prioritize the development of new urban agriculture sites in low-
income and underserved neighborhoods.
Policy LU-P-32.21Policy LU-P-32.10 Support and expand access to
school gardens and safe multi-modal non-motorized transportation
facilities around schools.
Refer to the Housing
Element,
Policy HS-P-2.2, and the Housing Action Plan
Commented [JH50]: Edited per CAC recommendations (revised to consider instead of support per conversation with Donna & George 4/16)
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Jefferson County Comprehensive Plan 1–143 Public Review Draft June 2025
Policy LU-P-32.11 Provide mixed-use development strategies in the
commercial centers of the urban growth area to provide housing
within walkable distance to services, food, transit, and parks; and to
promote neighborhoods that foster interaction.
Policy LU-P-32.22Policy LU-P-32.12 Incentivize mixed-use
developments in the UGA to provide affordable housing.
Policy LU-P-32.23Policy LU-P-32.13 Identify non-motorized
transportation connections that provide opportunities, such as
sidewalks and bicycle lanes, that provide opportunities for physical
activity as key elements to mixed use center planning.
Policy LU-P-32.24Policy LU-P-32.14 Prioritize the placement of
community services in neighborhood centers (i.e.e.g., health clinics,
childcare centers, senior centers, libraries, educational facilities, etc.).
Policy LU-P-32.25Policy LU-P-1.1 Coordinate with the respective
purveyor, special district, agency, or other entities delivering, or who are
anticipated to deliver, urban public facilities and services to ensure that
growth and development are timed, phased, and consistent with the
provision of adequate urban level facilities and services. The County
shall conduct the coordination with other providers during
Comprehensive Plan periodic updates when growth allocations or
levels of service are revisited, or during the development review
process.
Policy LU-P-32.26Policy LU-P-1.1 Ensure the provision of adequate
levels of service for urban public facilities and services. Where the
County is not the urban public facility or service provider for the
unincorporated Urban Growth Area, the County may adopt an
Interlocal Agreement with the appropriate service provider. Such
agreements, when utilized, shall include the level of urban public
facilities and services.
Policy LU-P-32.27Policy LU-P-1.1 Recognizing that the Port Hadlock /
Irondale Urban Growth Area has a limited amount of undeveloped
commercial parcels suitable for attracting and accommodating
regional commercial development, conduct periodic evaluation of
commercial land needs to ensure the adequacy of commercial zones to
provide community goods and services and to promote economic
development.
Policy LU-P-32.28Policy LU-P-1.1 Provide for on-going review and
evaluation of the Port Hadlock / Irondale Unincorporated Urban Growth
Area to monitor the rate of development, land supply and availability,
market conditions, infrastructure implementation and costs in order to
identify constraints to growth in the Urban Growth Area and
recommend corrective actions, where appropriate.
Refer to the Transportation Element, Non-motorized Trail
& Standards, and Goal TR-G-4
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Jefferson County Comprehensive Plan 1–144 Public Review Draft June 2025
Urban Level Public & Capital Facilities
Goal LU-G-33 Provide infrastructure for the needs of
Urban Growth Areas, Master Planned Resorts, and Rural
Village Centers, but limit the establishment or expansion
of urban-level development and infrastructure to rural
residential and small rural commercial crossroads.
Policy LU-P-33.1 Ensure future urban infrastructure improvements are
appropriately sized and scaled to the planned population projections
and development densities in the County. The level of urban
infrastructure must serve the needs of the public, protect the
environment and be affordable.
Policy LU-P-33.1Policy LU-P-33.2 Ensure that expansion of urban
infrastructure occurs in coordination with designated land uses based
on projected growth or land supply needs and will be concurrent with
amendments to the Comprehensive Plan.
Policy LU-P-33.2Policy LU-P-33.3 Ensure that where the County
assumes maintenance responsibilities for infrastructure, the
infrastructure is adequately designed to meet the area growth needs
and to fulfill the functions the infrastructure is intended to perform.
Policy LU-P-33.3Policy LU-P-33.4 Require that development provide,
plan, or mitigate for, an appropriate level of service for capital facilities
including, but not limited to, potable water supply, fire flow, adequate
sanitary sewerage treatment and disposal, stormwater management,
and roads, including sidewalks where required by adopted urban road
standards.
Policy LU-P-33.4Policy LU-P-33.5 Ensure the planning and
implementation of transportation and stormwater management
facilities in the unincorporated urban growth area reflects consistency
with the goals and policies in the Urban Growth Area Stormwater
Management Plan and the Urban Growth Area Transportation Plan
adopted as components of this Comprehensive Plan.
Policy LU-P-33.5Policy LU-P-33.6 Maintain consistency with the Capital
Facilities and Utilities Element, as amended. All adopted Level of
Service Standards (LOS) for Category A, B and C Public Facilities
identified in the Element shall apply to the Irondale and Port Hadlock
UGArban Growth Area, except as may be modified by or provided for
separately in an adopted urban growth area-specific Capital Facility
Plan, including the Port Hadlock Urban Growth Area Sewer Facilities
Plan, Transportation Plan, and Stormwater Management Plan.
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Jefferson County Comprehensive Plan 1–145 Public Review Draft June 2025
Policy LU-P-33.6Policy LU-P-33.7 In addition to the LOS adopted for
public facilities in the Capital Facilities and Utilities Element of this
Comprehensive Plan, adopt Uurban LOS standards for the following
capital facilities and public services in the unincorporated Irondale and
Port Hadlock and Port Townsend UGAsnincorporated Urban Growth
Area:
a. On-Site Septic Sewage Treatment and Disposal: Per Jefferson
County Code Chapter 8.15 (On-Site Sewage Disposal
SystemsCode)
b. Sanitary Sewer: Per the adopted City of Port Townsend
General Sewer Plan and the Irondale and Port Hadlock UGA
Sewer Facility Plan, as amended, rban Growth Area General
Sewer Plan and the Port Hadlock Wastewater Facility Final
Design.
c. Stormwater Management: Per the Washington Department
of Ecology Stormwater Management Manual for Western
Washington (DOE Manual), as amended.
d. Transportation: Maintain Level of Service standard “D” or
better on all road facilities within Urban Areas (Urban Growth
Areas) as established by the Peninsula Regional
Transportation Planning Organization (PRTPO), based upon
Average Annual Daily Trips.
e. Jefferson County Public Utility District Urban Growth Area
Public Water System Design Criteria
Demand Average Daily Demand (466 GPD/ERU)
Maximum Daily Demand (933 GPD/ERU)
Fire Flow: The adopted Coordinated Water System Plan
(CWSP) for Jefferson County establishes the Fire
Flow level of service requirements for the Urban
Growth Area Water System. The requirements are
identified in Table 4-1 of the CWSP, as may be
amended.
Policy LU-P-33.8 Coordinate with the respective purveyor, special
district, agency, or other entities delivering, or who are anticipated to
deliver, urban public facilities and services to ensure that growth and
development are timed, phased, and consistent with the provision of
adequate urban level facilities and services. The County shall conduct
the coordination with other providers during Comprehensive Plan
periodic updates when growth allocations or levels of service are
revisited, or during the development review process.
Waterspout, Jefferson County
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Jefferson County Comprehensive Plan 1–146 Public Review Draft June 2025
Policy LU-P-33.7Policy LU-P-33.9 Ensure the provision of adequate
levels of service for urban public facilities and services. Where the
County is not the urban public facility or service provider for the
unincorporated UGArban Growth Area, the County may consider
adopting an Interlocal Agreement with the appropriate service
provider. Such agreements, when utilized, shall include the level of
urban public facilities and services.
Stormwater Management
Goal LU-G-34 Minimize the adverse effects on ground
and surface water quality and quantity and protect
aquatic resources and habitats from stormwater runoff
generated within the Irondale and Port Hadlock UGArban
Growth Area.
Policy LU-P-34.1 Manage stormwater runoff in the urban growth area
in compliance with the Jefferson County Comprehensive Plan and
Unified Development Code.
Policy LU-P-34.2 Use the technical standards from the Washington
Department of Ecology Stormwater Management Manual for Western
Washington to manage stormwater within the Irondale and Port
Hadlock UGArban Growth Area.
Policy LU-P-34.3 Develop and implement an Irondale and Port Hadlock
UGArban Growth Area Stormwater Management Program.
Policy LU-P-34.4 Increase the public’s knowledge of stormwater runoff
issues now and in future climate conditions and support public
involvement in stormwater management by developing and
implementing a Stormwater Management Public Education
component of the Irondale and Port Hadlock Stormwater Management
Program.
Policy LU-P-34.5 Ensure the continued operation of stormwater
management facilities by developing and implementing a Stormwater
Management Facility Operation and Maintenance component of the
Irondale and Port Hadlock Stormwater Management Program.
Policy LU-P-34.6 Ensure that stormwater management activities are
effective by developing and implementing a Water Quality Monitoring
and Stream Gauging component of the Irondale and Port Hadlock
Stormwater Management Program.
Policy LU-P-34.7 Develop a stable and equitable revenue source to
fund a Irondale and Port Hadlock UGArban Growth Area Stormwater
Management Program.
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Jefferson County Comprehensive Plan 1–147 Public Review Draft June 2025
Policy LU-P-34.8 Maintain an inventory of public and private
stormwater management facilities within the unincorporated UGArban
Growth Area.
Policy LU-P-34.9 Join Coordinate with State and local agencies and
private landowners to plan, finance, and construct regional stormwater
management facilities and to remediate existing stormwater
management deficiencies.
Policy LU-P-34.10 Minimize adverse stormwater impacts due to climate
change and preserve aquifer recharge by encouraging Low Impact
Development design strategies.
Transportation
Goal LU-G-35 Encourage efficient multimodal
transportation systems in the urban growth area that are
based on regional priorities and coordinated with county
and city comprehensive plans, in order to connect people
from where they live to where they work, learn, and play.
Policy LU-P-35.1 Encourage the use of roadway features that enhance
urban qualities by applying urban standards as deemed appropriate in
the urban growth area. Make these facilities safe and accessible for all
modes of transport, including pedestrians and cyclists.
Policy LU-P-35.2 Require that subdivision and commercial project
designs address multimodal mobility concerns and opportunities for a
variety of transportation needs.the following issues:
a. Cost effective transit and delivery of emergency services;
b. Provisions for all transportation modes, including electric
vehicle infrastructure;
c. Dedication of rights of way for existing and future
transportation needs;
d. Motorized and nonmotorized access;
e. Sidewalks and bicycle pathways;
f. Compatibility between motorized vehicles, pedestrians,
bicyclists, and transit users
g. Inclusion of transit and bicycle friendly design elements
h. Adequate parking for non-peak period; and
i. Frontage improvements and roadway features to meet urban
design standards within the Port Hadlock/Irondale UGA.
j. Freight access and mobility
Refer to the Transportation
Element, Goals TR-G-4 and
TR-G-5. and Appendix C—
Transportation Technical
Appendix
Refer to the Transportation Element, Policy TR-P-4.6.
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Jefferson County Comprehensive Plan 1–148 Public Review Draft June 2025
Policy LU-P-35.3 Develop a Complete Streets model to all new
construction and redevelopment of roadways in the urban growth area
to make roadways accessible for all users, including vehicles, bicyclists,
public transportation vehicles and riders, and pedestrians of all ages
and abilities.
Policy LU-P-35.3Policy LU-P-35.4 Expand regional multimodal travel
options to connect with employment centers and essential services in
the urban growth area.
Green Space Planning in Urban Growth Area
Goal LU-G-36 Identify and protect open space corridors
within and abutting the urban growth area.
Policy LU-P-36.1 Tie non-motorized transportation planning to urban
open space planning, and consider connectivity of urban/rural
greenways. Identify open space corridors and urban separators. Identify
open space lands and corridors and urban separators within urban
growth areas, including . Consider lands useful for recreation, wildlife
habitat, trails, and connection of critical areas per RCW 36.70A.160.
Policy LU-P-36.2 Identify implementation strategies and regulatory
and non-regulatory techniques to protect the corridors.
Policy LU-P-36.3 Develop innovative ways to apply gross residential
density in areas that have planned greenspace or critical area
protection areas to minimize environmental impacts and preserve
open space.
Policy LU-P-36.4 Develop Transfer of Development Rights programs
such as Transfer of Development Rights to create a market solution
using urban growth area density to protect rural lands and resource
areas from conversion.
Policy LU-P-36.5 Explore the potential to conserve an open-space
corridor along Chimacum Creek, such as through transfer of
development rights and on-site density transfer for properties along
the creek. Coordinate efforts with Jefferson Land Trust, Jefferson
Conservation District preservation and restoration efforts, and Public
Works wastewater treatment facility access planning efforts.
See also Policy CE-P-2.5 in the
Climate Element
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Jefferson County Comprehensive Plan 1–149 Public Review Draft June 2025
1.5 ACTION PLAN
[Limited draft revisions to the action plan are shown below based on early public input and discussion
with County staff. The action plan will continue to be refined following the release of the public draft
and additional input from the public and Planning Commission on community priorities.]
Exhibit 1-26 highlights key activities the County can use to implement
the Land Use Element over the next eight ten years (prior to the next
periodic update), several in partnership with other entities:
Exhibit 1-27 Land Use Action Plan
Action Description
Implement Overlays ▶ Address Highway 20 View Corridor Overlay on Zoning Maps and UDC as
appropriate.
▶ Work with economic development entities on a study and potential location for Highway/Commuter Corridor Overlay.
Integrate healthy and active living into system plans and
codes
▶ Implement goals and policies supporting active living and access to healthy foods, into development plans for UGA, Non-Motorized
Transportation & Recreation Plan, PROS Plan, and into the Unified
Development Code.
Encourage urban densities in UGAs ▶ Address innovative approved means of wastewater treatment facilities that do not preclude future urban services.
▶ Consider adopting a mixed-use zone or mixed-use overlay to encourage vertical and horizontal mixed-use in the UGA, particularly in the commercial core where existing and planned services are concentrated.Seek funding for Irondale and Port Hadlock Wastewater
Facility
Encourage legislative solutions
to address needs of rural counties
▶ Support the Road Map initiative by the Ruckelshaus Center and other
legislative initiatives that address needs of rural counties, particularly affordable housing and living wage jobs.
▶ Review LAMIRDS and add additional flexibility to boundaries and uses
(particularly within the Rural Village Centers), meeting GMA requirements. Seek legislative amendments to GMA where appropriate.
▶ Pursue infrastructure investments in the Rural Village Centers that support development but do not constitute urban levels of service.
Economic Development ▶ Seek opportunities for additional economic
development in Glen Cove.
▶ Prioritize Glen Cove and Irondale and Port Hadlock UGA as priority economic
development areas.
Source: Jefferson County, 202518.
Refer to the Economic Development Element for additional information
Commented [JH51]: Revised per suggested policy revision above
Commented [JH52]: Added to reflect no mixed
use overlay now per 4/3 conversation with Joel. Consider studying mixed use in the future.
Commented [JH53]: New addition
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Jefferson County Comprehensive Plan 1–150 Public Review Draft June 2025
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Jefferson County Comprehensive Plan 1–151 Public Review Draft June 2025
Remove prior intentionally blank page from PDF if needed—formatted
as a placeholder to ensure each element starts on a right hand spread.
Do not publish from this point forward. Remove pages from
consolidated PDF. These sections should be updated and copied into
their appropriate chapters (TOC, References) as needed.
References [to be updated]
Employment Security Department and PSRC. (2017, October). 2016
Covered Employment Estimates by Jurisdiction. Seattle, WA.
Jefferson County. (1992). County-wide Planning Policies Resolution 128-
92.
Jefferson County. (2015, October 26). Resolution #38-15.
Jefferson County GIS Department. (2018). Retrieved from
http://www.co.jefferson.wa.us/293/GIS
Municipal Research & Services Center of Washington. (2000, March).
Nuisance Regulation for Washington Cities and Counties.
(MRSC Report No. 49).
OFM. (2017). Population Density and Land Area Criteria Used for Rural
Area Assistance and Other Programs. Retrieved from
https://www.ofm.wa.gov/washington-data-
research/population-demographics/population-
estimates/population-density/population-density-and-land-
area-criteria-used-rural-area-assistance-and-other-programs
OFM. (2018). Growth Management Act Population Projections for
Counties: 2010 to 2040. Retrieved from
https://ofm.wa.gov/washington-data-research/population-
demographics/population-forecasts-and-projections/growth-
management-act-county-projections/growth-management-
act-population-projections-counties-2010-2040-0
The William D. Ruckelshaus Center. (2017). Road Map to Washington's
Future: Phase I Pre-Assessment Report. Retrieved April 2018,
from http://ruckelshauscenter.wsu.edu/a-roadmap-to-
washingtons-future/
U.S. Census Bureau. (2010). 2010 Census. Retrieved from
https://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml
U.S. Census Bureau. (2016). American Community Survey 2012-2016 5-
Year Estimates. Retrieved from
https://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml
LAND USE
Jefferson County Comprehensive Plan 1–152 Public Review Draft June 2025
Washington State Legislature. (2018). Revised Code of Washington
(RCW). Retrieved from http://apps.leg.wa.gov/rcw/
Contents
1 LAND USE 1–1
1.1 Framework 1–1
Land Use Typologies 1–2
Growth Projections 1–4
Land Use, Environmental Justice, & Surface Water
Analysis 1–10
Current Land Use 1–10
Land Use & Environmental Justice 1–12
Review of Surface Water Conditions & Existing
Polluted Discharges 1–22
Land Use Strategy 1–23
Land Use & Zoning Designations 1–23
Rural Designations 1–28
Resource Land Designations 1–31
Master Planned Resort Designations 1–32
Urban Growth Area Designations 1–34
Public Designations 1–35
Major Industrial Development & Industrial Land Banks 1–36
Legal Nonconforming Uses & Lots 1–37
Establishing Allowed Uses & Regulations Within Land Designations 1–37
From Rural Character to Development Regulations 1–37
Rural Character & Review of Regulations for Land Uses, Development Patterns, & Nuisances 1–38
Community Planning Efforts 1–39
Countywide Planning Policies 1–42
Rural Areas Policies 1–42
Urban Growth Areas & Services 1–42
Overarching Land Use Goals & Policies 1–44
General Land Use 1–44
Land Use Consistency with Naval Base Kitsap 1–46
Industrial Development 1–48
Housing 1–48
Public Purpose Lands 1–49
Transportation 1–49
Environment 1–50
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Jefferson County Comprehensive Plan 1–153 Public Review Draft June 2025
Water 1–53
Legal Nonconforming Uses 1–56
Permit Processing 1–57
1.2 Rural 1–58
Rural Character 1–58
Limited Areas of More Intensive Rural Development 1–60
Rural Centers, Crossroads, & MPRs 1–61
Rural Commercial Areas: Centers & Crossroads 1–63
Master Planned Resorts 1–80
Evaluation of Rural Commercial Boundaries 1–84
Periodic Review of LAMIRDs & GMA Implementation Challenges in Rural Counties 1–88
Rural Industrial Lands 1–93
Forest Resource-Based Industrial Zones 1–103
Economic Activities Outside of Rural Commercial Areas 1–105
West Jefferson County 1–106
Rural Goals & Policies 1–107
Rural Character 1–107
Rural Centers, Crossroads, & MPRs 1–110
Rural Industrial Lands 1–115
Economic Activities Outside of Rural Commercial
Areas 1–116
Capital Facilities in Rural Areas 1–118
1.3 Resource 1–120
Resource Lands of Long-Term Commercial Significance under the GMA 1–120
Forest 1–120
Mineral 1–120
Agriculture 1–121
Resource Conservation 1–121
Resource Lands Goals & Policies 1–122
Goal LU-G-29 Conserve and manage the forest, agriculture, aquaculture, and mineral resources of Jefferson County for sustainable natural resource-based economic activities that are compatible with surrounding land uses. 1–122
1.4 Urban 1–123
Urban Growth Areas 1–123
Municipal & Unincorporated 1–123
Port Townsend Urban Growth Area 1–124
Background 1–124
Irondale & Port Hadlock Urban Growth Area 1–126
History of Planning 1–126
Phased Implementation 1–132
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Jefferson County Comprehensive Plan 1–154 Public Review Draft June 2025
Alternative Phasing Sewer Policy 1–133
Land Use Map & Zoning Designations 1–134
Dwelling Unit & Population Holding Capacity Analysis 1–138
Housing Variety & Affordability 1–138
Urban Growth Area Goals & Policies 1–139
Urban Development 1–139
Urban Level Public & Capital Facilities 1–144
Stormwater Management 1–146
Transportation 1–147
Green Space Planning in Urban Growth Area 1–148
1.5 Action Plan 1–149
Exhibit 1-1 General Land Use Categories (2025) 1–3
Exhibit 1-2 Jefferson County and City of Port Townsend 20-year Population Projection and Distribution (2025–2045) 1–4
Exhibit 1-3 Population Shares (2025 and 2045) 1–6
Exhibit 1-4 Estimated Employment Share by Planning Area (2023 and 2045) 1–9
Exhibit 1-5 Current Land Use Map (2025) Assessor
Information 1–11
Exhibit 1-6 Current Land Use (2025) Assessor Information 1–12
Exhibit 1-7 Median Summer Land Surface Temperature
(2019–2023) 1–17
Exhibit 1-8 Key Findings from the 2019 Community Health Assessment 1–19
Exhibit 1-9 Key Environmental Threats and
Opportunities in East Jefferson County 1–20
Exhibit 1-10 Recreation Trail Connections to Schools and
Parks of the Irondale and Port Hadlock UGA and Chimacum (2025) 1–21
Exhibit 1-11 Land Use / Zoning Map (2025) 1–25
Exhibit 1-12 Land Use Designations / Zoning Districts and
Acreage (2025) 1–26
Exhibit 1-13 Planned Residential Densities 1–27
Exhibit 1-14 Summary of Rural Land Use and Zoning
Designations 1–28
Exhibit 1-15 Summary of Overlay Land Use and Zoning Designations 1–30
Exhibit 1-16 Summary of Resource Land Use and Zoning
Designations 1–32
LAND USE
Jefferson County Comprehensive Plan 1–155 Public Review Draft June 2025
Exhibit 1-17 Summary of Master Planned Resort Land Use and Zoning Designations 1–33
Exhibit 1-18 Irondale and Port Hadlock UGA Land Use
and Zoning Designations 1–34
Exhibit 1-19 Unincorporated Port Townsend UGA Land Use and Zoning Designations 1–35
Exhibit 1-20 Public Land Use Designations and Zoning 1–36
Exhibit 1-21 Community Planning Areas 1–40
Exhibit 1-22 Location of Rural Commercial Areas and
Master Planned Resorts (2025) 1–62
Exhibit 1-23 Rural Commercial Area Total Acreage & Infill
Acreage (2025) 1–86
Exhibit 1-24 Location of Rural Industrial Lands (2025) 1–94
Exhibit 1-25 Irondale and Port Hadlock UGA Transitional
Rural Zoning 1–136
Exhibit 1-26 Irondale and Port Hadlock UGA Urban
Zoning (2025) 1–137
Exhibit 1-26 Land Use Action Plan 1–149