HomeMy WebLinkAbout1 Land Use BERK 2025_1219 with PAO track changesJefferson County Comprehensive Plan 1–1
Public Hearing Draft March 2026
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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densities (limited areas of more intensive rural development
(LAMIRDs) and Master Planned Resorts (MPRs)).
▶ Resource: This section summarizes the this 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, chapter 18.25 .JCC.
▶ 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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Exhibit 1-1 General Land Use Categories (2025)
Note: This exhibit was updated since the April 2025 Public Draft to include tribal reservation boundaries2018
Comprehensive Plan.
Source: Jefferson County Community Development, 2025; BERK, 2025.
Commented [JH1]: Reservation boundaries added
to the
County Vicinity Map, General Land Use
Categories, Current Use, and Zoning Map per
comment 028 from Hoh Indian Tribe. See
comment on Exhibit A (County Vicinity) in the
Foundation Element as well..
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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 county is responsible under
the GMA for allocating population in consultation with the City of Port
Townsend.
In 2024, 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 UGA based on OFM’s
2022 Medium projections. The County county passed Jefferson County
Resolution #No. 68-1118-24R on November 18, 2024 adopting the
updated population forecast (see Appendix B). 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 (2025–2045)
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 13,831 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 2.93%
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.
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 #No. 68-1118-24R, 2024; OFM UGA
Small Area Estimates, 2024; Jefferson County, 2025; BERK, 2025.
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Similar to the County’s county’s and the City of Port Townsend’s prior
methodology, 80% of the projected countywide growth would be
planned for and accommodated within the urban growth area,
including 40% of growth allocated to the City of Port Townsend and
40% to the Irondale and Port Hadlock UGA. This would increase the
estimated observed population share in Port Townsend from 31% in
2025 to an effective share of 33% in 2045. The Irondale and Port Hadlock
UGA would increase its population share from 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)
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 #No. 68-1118-24R, 2024; OFM UGA
Small Area Estimates, 2024; Jefferson County, 2025; BERK, 2025.
Overall, with adopted plans, agreements, and expected growth trends,
the urban, MPR, and RVC share of population would increase from 52%
in 2025 to 59% in 2045 and the share in other rural areas would
decrease from 48% in 2025 to 41% in 2045. This is consistent with the
goals of this Comprehensive Plan to protect rural character and offer
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more housing and employment choices in UGAs, 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.1 The County’s
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.
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.
1 Commerce, HB 1220 Guidance for Evaluating Land Capacity to Meet All Housing
Needs.
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Employment shares within planning areas show another distribution
factor of population when considering planning policies. For
comprehensive plan periodic reviews, the Growth Management
Steering Committee (GMSC), through joint resolutions between the
County county and the City of Port Townsend, allocate the 20-year
projected population, but not employment.
Current employment covered by unemployment insurance is about
8,968 jobs as of 2023.2 This does not include sole proprietors, clergy,
chief executives, etc. Covered employment generally represents 85-90%
of total employment in communities.3 If adding 15% to the total covered
employment in 2023, there would be about 10,300 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.
Exhibit 1-4 Estimated Employment Share by Planning Area (2023 and 2045)
Location 2023 Employment Share 2045 Employment Share
Port Townsend (Incorporated.) 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.
2 ESD Covered Employment Estimates, 2023.
3 ESD and PSRC Covered Employment Estimates by Jurisdiction, 2017.
Refer to Exhibit 7-9 in the
Economic Development Element.
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Land Use, Environmental Justice, &
Surface Water Analysis
Current Land Use
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% 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
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Exhibit 1-5 Current Land Use Map (2025) Assessor Information
Note: This exhibit was updated since the April 2025 Public Draft to include tribal reservation boundaries2018
Comprehensive Plan.
Source: Jefferson County Assessor, 2025; BERK, 2025.
Commented [JH2]: Reservation boundaries added
to the
County Vicinity Map, General Land Use
Categories, Current Use, and Zoning Map per
comment 028 from Hoh Indian Tribe. See
comment on Exhibit A (County Vicinity) in the
Foundation Element as well..
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Exhibit 1-6 Current Land Use (2025) Assessor Information
Current Use
Category Parcel Count Parcel Acres Percentage
Agriculture 385 6,371 0.6%
Commercial 579 1,279 0.1%
Forestry 1,987 355,677 30.9%
Industrial 74 350 0.03%
Parks and Open Space 10,060 747,526 64.8%
Military1 3 2,573 0.2%
Public/Civic 350 8,127 0.7%
Residential 19,186 31,021 2.7%
Total 32,624 1,152,924 100%
1 Military lands are located on Indian Island and on the Thorndyke/Toandos Peninsula fronting Hood Canal.
Source: Jefferson County Assessor, 2025; BERK, 2025.
Land Use & Environmental Justice
The County 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 Some indicators of health risk in
Jefferson County include:6
▶ The percentage of 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
4 RCW 36.70.A(1).
5 UW Mov-Up Report, 2019.
6 See also the Land Capacity & Housing Technical Appendix (Appendix B) for
more information on population and household characteristics.
7 Washington State Healthy Youth Survey: Jefferson County, 2023.
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▶ 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
the City of 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 the City of Port Townsend or Quilcene.8
▶ As of 2021, 16% of adults 18 years or older in Jefferson County
reported participating in no physical activity outside of work and
31% of adults were obese, similar to 18% and 29% for the state as a
whole, respectively.9
▶ Rates of cancer (15%), heart disease (9%), and diabetes (12%) were
higher for adults in Jefferson County as of 2022 than the state as a
whole (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
▶ 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
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.
13 ACS 5-Year Estimates, 2018-2022.
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(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 Jefferson countyCounty.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—
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
14 Washington Health Disparities Map, Version 2.0, July 2022.
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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 Noise 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
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. WithoutEven with significant
reductions in state, nation, and worldwide greenhouse gas emissions,
Jefferson County is expected to see warmerincreasingly warm 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,
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.
Commented [JH3]: Revised per comment 021
from Cindy Jayne on 5/23
Commented [JP4]: PC Review
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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 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 Heats, 2023; EPA Heat Island Effect, 2023; EPA Heat Island
Impacts, 2023
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Exhibit 1-7 Median Summer Land Surface Temperature (2019–2023)
Source: BERK, 2025.
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Land Use & Public Health
In 2012, Jefferson County commissioned an evaluation of the
County’s county’s Comprehensive Plan regarding active living and
healthy food access under the Washington State Department of
Health’s Healthy Communities grant program.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 partnership
between Jefferson Healthcare and Jefferson County Public Health,
to identify health needs in the 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. 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
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
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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 1-9Exhibit 1-8.
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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 1–19
Public Hearing Draft March 2026
Exhibit 1-10 Recreation Trail Connections to Schools and Parks of the Irondale and Port
Hadlock UGA and Chimacum (2025)
Source: Jefferson County GIS, 2025.
LAND USE
Jefferson County Comprehensive Plan 1–20
Public Hearing Draft March 2026
Equitable access to affordable healthy food—a key concern identified in
the 2019 CHA—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 and can
help create a more resilient community by increasing the local food
supply during emergencies. 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), 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 1-8Exhibit 1-7). These are addressed in numerous goals
and policies in the this 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 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 current Department of Ecology
Stormwater Management Manual for Western Washington 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 [JH5]: Revised per comment 021
from Cindy Jayne on 5/23
Commented [JP6]: PC Review: Market is being
promoted as “Farmer Market”. (Joel: I think that
is funny! I’ve never been in the market for a
farmer. Today’s English, I guess.)
Commented [JH7R6]: Ok, carried edit throughout
Commented [JP8R6]: The “Farmers Market”
association does not use an apostrophe in their
name. This text is referring to farmer’s markets
in general, so an apostrophe is used here.
LAND USE
Jefferson County Comprehensive Plan 1–21
Public Hearing Draft March 2026
▶ 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 the GMA 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 UGA.
▶ 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 regulations 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 the Vision, land characteristics, and provisions of the GMA,
Jefferson County proposed limited redesignations from medium to
Refer to Overlay Districts,
Policy LU-P-1.10, and the
Action Plan in Section 1.5
LAND USE
Jefferson County Comprehensive Plan 1–22
Public Hearing Draft March 2026
high density residential in the UGA on the Land Use Map 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 (but exclusive of the Olympic National Forest and Park),
the predominant future land use designation / zoning district is
Commercial Forest (CF-80). Other extensive designations include Rural
Residential – 20 and Rural Residential – 5.
Commented [JH9]: Clarified per comment 021
from Cindy Jayne on 5/23
LAND USE
Jefferson County Comprehensive Plan 1–23
Public Hearing Draft March 2026
Exhibit 1-11 Land Use / Zoning Map (2025)
Note: This exhibit was updated since the April 2025 Public Draft to include tribal reservation boundaries2018 Comprehensive Plan.
Source: Jefferson County Community Development, 2025.
Commented [JH10]: Reservation boundaries
added to the
County Vicinity Map, General Land Use
Categories, Current Use, and Zoning Map per
comment 028 from Hoh Indian Tribe. See
comment on Exhibit A (County Vicinity) in the
Foundation Element as well..
LAND USE
Jefferson County Comprehensive Plan 1–24
Public Hearing Draft March 2026
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 at over
76% of zoned land. Rural Residential categories represent about 20% of
zoned land. Master Planned Resorts make up about 0.5% of zoned land.
The Uunincorporated areas with UGA land use designations / zoning is
at 0.3%.
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 86,068 20.0%
Rural Commercial RVC, GC, NC, CC 266 0.1%
Rural Industrial LI/M, LI/C, LI, HI, RI 564 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
2,351 0.5%
Resource Lands
Agriculture Resource Lands AP-20, AL-20 7,490 1.7%
Forest Resource Lands IF-20, RF-40, CF-80 328,200 76.4%
Mineral Resource Lands MRLO/CF-80 161 0.04%
Urban Growth Area
Urban Growth Area Residential UGA-LDR, UGA-MDR, UGA-HDR 734 0.2%
Urban Growth Area Commercial UGA-UC, UGA-VOC 235 0.1%
Urban Growth Area Industrial UGA-LI 24 0.01%
Urban Growth Area Public UGA-P 101 0.02%
Public
Public Parks, Preserves, and Recreation PPR 2,814 0.7%
Essential Public Facilities EPF-A, EPF-WM 532 0.1%
Total 429,540 100%
Source: Jefferson County. 2025; BERK, 2025.
LAND USE
Jefferson County Comprehensive Plan 1–25
Public Hearing Draft March 2026
The GMA indicates the land use elements shall include population
densities, building intensities, and estimates of future population
growth (RCW 36.70A.070(1)). 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; 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 4.00–8.00
UGA-MDR 8.00–18.00
UGA-HDR 18.00–24.00
UGA-UC 18.00–24.00 (discretionary
use)
UGA-VOC N/A
UGA-LI N/A
UGA-P N/A1
Notes: Allowed = some residential uses allowed; density not specified and subject to permit review. N/A Not
applicable.
1 Residential development is also encouraged in the UGA-P zone when the land will be owned and/or operated by
the Peninsula Housing Authority or other public or governmental agency providing affordable housing. Affordable
housing developments in the UGA-P zone would be subject to the same requirements as though it were developed
in the UHDR zone (e.g., at densities of 18-24 units per acre).
LAND USE
Jefferson County Comprehensive Plan 1–26
Public Hearing Draft March 2026
Source: Jefferson County Code, 2025; BERK, 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.
Development Rregulations 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 land use and zoning
designations, criteria used for such designation, and the principal land
uses. Greater detail regarding rural character and LAMIRDs 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 UGAs, 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 adjacent to UGAs 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
LAND USE
Jefferson County Comprehensive Plan 1–27
Public Hearing Draft March 2026
Land Use/Zoning
Designation Criteria for designation
Principal
Land Use
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
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, 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 (MPR-VC)
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 (RBI) 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, 2025.
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:
LAND USE
Jefferson County Comprehensive Plan 1–28
Public Hearing Draft March 2026
▶ The Remote Rural Overlay designation is applied in two locations in
the Countycounty: West Jefferson County and the Brinnon
Planning Area. In Remote Rural Overlay areas, greater flexibility is
provided in home-based business and cottage industry
development 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: Provides for future rural
economic development opportunities.
The Jefferson County International Airport Overlays also address 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 western
Jefferson County: home-
based businesses and
cottage industry uses.
Additionally, 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 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
Related to western
Jefferson County
LAND USE
Jefferson County Comprehensive Plan 1–29
Public Hearing Draft March 2026
Land Use/Zoning
Designation Intent
Principal
Land Use
Jefferson County International Airport
Overlay I
Purpose of the Airport Overlay 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 residents of Jefferson County.
Non-aviation-related
light industrial/
manufacturing in the
Airport Essential Public
Facility
Source: Jefferson County, 2025.
West Jefferson County Rural Residential
West Jefferson County includes land use and zoning designations of
RR1:10 and RR1:20. The County 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 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 1–30
Public Hearing Draft March 2026
Exhibit 1-16 summarizes 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) Protect 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)
Protect 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)
Encompasses 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)
Ensure 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)
Ensure 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)
Provides 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, 2025.
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 LAMIRDs and may constitute urban
densities and intensities of growth outside of UGAs.
▶ 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
LAND USE
Jefferson County Comprehensive Plan 1–31
Public Hearing Draft March 2026
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 development
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. Ordinance
No. 08-0722-19 amended the development agreement to modify the
phasing plan, consistent with the Kitsap County Superior Court’s March
28, 2019 decision in Brinnon Group v. Jefferson County and Pleasant
Harbor Marina and Golf Resort, LLP, No. 18-2-01758-18.
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.
LAND USE
Jefferson County Comprehensive Plan 1–32
Public Hearing Draft March 2026
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
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, 2025.
Urban Growth Area Designations
The Irondale and Port Hadlock UGA is planned for urban residential,
urban commercial, and urban industrial. Both rural and urban zones
apply per the Land Use and Zoning map. Rural zones apply until urban
wastewater services are available, and then urban 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 mid-2025, at which point urban zones will
apply within the Phase I sewer service area The PHUGA Sewer System
began operation on September 9, 2025. (generally the commercial core
along SR 116 and Rhody Drive). See Exhibit 1-18 and Section 1.4 for
additional discussion.
The unincorporated portions of the 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 portions of the Port Townsend UGA per the Land Use
and Zoning map. See Exhibit 1-19 and Section 1.4 for additional
discussion.
LAND USE
Jefferson County Comprehensive Plan 1–33
Public Hearing Draft March 2026
Exhibit 1-18 Irondale and Port Hadlock UGA 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 eight (8) dwelling
units per acre. Moderate Density Residential (UGA-MDR) zoning will allow housing at a density of 8–18 units per acre. The High Density Residential (UGA-HDR) zone will allow
housing at a density of 18–24 dwelling units per acre.
Residential dwellings detached
and attached including single family, middle housing, multifamily, and ADUs
Urban Commercial The Urban Commercial (UGA-UC) zone covers both the existing and planned future commercial development in the Irondale and Port Hadlock UGA core area where the PHUGA Sewer System has been available since September 9, 2025, 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 Irondale and Port Hadlock 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 Irondale and Port Hadlock 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, the Jefferson County Public Works Department Maintenance Yard, and the Public Utility District #1 of Jefferson County’s (JPUD’s) Sparling Well
facility along Rhody Drive and the Kivley Well in Port
Hadlock.
Public, and institutional, and
affordable housing
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, 2025.
Exhibit 1-19 Unincorporated Portions of the Port Townsend UGA 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:
LAND USE
Jefferson County Comprehensive Plan 1–34
Public Hearing Draft March 2026
▶ 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.
Jefferson County allows public uses in nearly every implementing zone.
The County 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 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 county and preserve significant natural
amenities of special or unique character.
Parks, recreation,
and open space
facilities and
activities
Jefferson 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, 2025.
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
See the Capital Facilities
&Utilities Element for
additional background
regarding the process of
siting essential public
facilities
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is a process within the GMA that allows for the siting of a major industrial
development (MID) outside of an urban growth area.20 Additionally, the
GMA allowed qualified counties to designate up to two Industrial Land
Banks (ILBs) before December 31, 2016 for specific purpose of siting MIDs.
MID 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 development or activity outside of urban growth
areas. No MIDs or ILBs are designated in Jefferson County as of the 2025
Periodic Update.
Legal Nonconforming Uses & Lots
A nonconforming use is a use which lawfully existed prior to the
enactment of a zoning ordinance, and which is maintained after the
effective date of the ordinance, although it does not comply with
applicable development regulation (including a zoning ordinance).
Rhod-A-Zalea v. Snohomish Cty., 136 Wn.2d 1, 6, 959 P.2d 1024, 1027
(1998). The right to continue a nonconforming use despite a
subsequently adopted development regulation which prohibits such a
use in the area is sometimes referred to as a “protected” or “vested”
right. Id.
To establish a legal nonconforming use, a landowner must show that:
(1) the use began before the applicable development regulation
(including zoning ordinances) was adopted, (2) the use was lawful
before the development regulation was adopted, (3) the landowner did
not abandon the use after the development regulation was adopted,
and (4) the use was continuous, not occasional or intermittent.
Jefferson Cty. v. Lakeside Indus., 106 Wn. App. 380, 385, 23 P.3d 542, 544
(2001).
Nonconforming uses are subject to subsequently enacted reasonable
police power regulations. Rhod-A-Zalea, 136 Wn.2d at 9. Local
governments have the authority to terminate nonconforming uses but
they are constitutionally required to provide a reasonable amortization
period. Id., 136 Wn.2d at 10.
In Jefferson County, Nnon-conforming uses of property that were
legally established prior to the 1998 Comprehensive Plan adoption of
zoning in 198 or prior to subsequent changes development regulations
addressing land use and zoning are considered grandfathered and may
continue to operate when new plans, policies, or development
regulations are adopted. The county’s development regulations for
nonconforming uses and structures are contained in JCC 18.20.260.
Under these development regulations, iIf a non-conforming use ceases
for a certain period, it may not continue if not allowed under current
20 RCW 36.70A.365.
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codedevelopment regulations. See the discussion of the policies
regarding related to Goal LU-G-13 below for additional
discussion.nonconforming uses later in this element.
Legal Lots of Record and Lot Size
Determinations
Development regulations in chapter 18.12 JCC (Legal Lot of Record and
Lot Size Determination) also may apply. Substandard lots properly
platted and approved by the county on or after August 11, 1969 may be
developed provided compliance with chapter 18.12. However,
substandard lots must satisfy current zoning requirements and
development regulation requirements, including those in JCC 18.12.070.
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 &
Development Regulations Within for
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 elements and the entirety of the this Comprehensive Plan reflects
our definition of rural character.
The This Comprehensive Plan establishes land designations,
harmonizes goals and policies, and implements them through County
development regulations and local actions. Our community defines
rural character not only in terms of visual character, but also in terms of
densities and intensities of use that protects our natural resources and
open spaces and preserves critical environments. Jefferson County
highly values meeting our housing, infrastructure, and economic
development needs in a way that appropriately balance each of the
GMA goals to ensure that our community’s priorities and needs are
addressed.
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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
sawmill 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 Development Regulations
for Land Uses, Development Patterns, & Nuisances
The 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 county’s policy to review
implementing development regulations that affect our rural character.
Development Rregulations, such as those in chapter 18.20
(Performance and Use-Specific Standards), the Critical Areas Ordinance
(chapter 18.22 JCC), the Shoreline Master Program (chapter 18.25 JCC),
Chapter 18.30 JCC (Development Standards) and, chapter 18.35 JCC
(Land Divisions) are tailored for specific land uses 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 usedevelopment 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 this Comprehensive
Plan through and implementing development standardsregulations,
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 regulations and typically approved only when they are
See JCC 18.40.530(1) for more
information about Jefferson
County’s Conditional Use
Permit Criteria.
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consistent with the this Comprehensive Plan, rural character, and
development regulations, including conditional use permit approval
criteria. 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 county’s planning areas are
shown in Exhibit 1-21.
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Exhibit 1-21 Community Planning Areas
Source: Jefferson County, 2018.
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Jefferson County adopted its first Comprehensive Plan in 1998. Prior to
that, the County 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 this Comprehensive Plan.
Refer to Policy 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 this 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 Subarea
plans are optional elements that must be consistent with the adopted
Comprehensive Plan and become part of the Comprehensive Plan.21
One Subarea Plans hasve 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.
Other Area-Specific Planning Work
▶ 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 planning:
21 RCW 36.70a.080(2).
Fishing on Lake Leland,
Jefferson County
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▶ Port Ludlow (1999)
▶ Pleasant Harbor Master Planned Resort (2018)
Countywide Planning Policies
The Countywide Planning PoliciesCPPs in Jefferson County Resolution
No. 67-1118-24R provide policies that address:
▶ Rural Areas: Includes both rural and resource lands.
▶ Urban Growth Areas: Proper sizing, provision of urban services, joint
Jefferson County and the City of Port Townsend planning,
The full text of the policies is provided in the Jefferson
ResolutionCounty Resolution No. 67-1118-24R. The policies are
summarized below for brevity.
Rural Areas Policies
The CPP’s describe rural areas 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 are considered a
positive tool in maintaining the character of rural areas. Level of service
standards are to fit rural areas and rural centers, including services such
as emergency services, transportation and roads, individual septic on-
site sewer systems, individual or community water systems, and storm
water and water quality systems.
Parcel sizes should 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 should recognize existing industry
outside of urban growth areas, with limitations on the potential for
conversion of adjacent land uses.
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Urban Growth Areas & Services
CPP policies on urban growth areas describe using the OFM to develop
a joint Jefferson County-City of Port Townsend population forecast 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.
Sizing of UGAs should be based primarily on adequate supply of
developable land to accommodate the joint population forecast, and
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.
Environmentally sensitive areas and topographic features should help
form boundaries. The Irondale and Port Hadlock UGA and Port Ludlow
are "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 should not 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 Jefferson County, the City
of Port Townsend, Public Utility District #1, and other public and
private water purveyors are to use updated population forecasts to
update the Coordinated Water System Plan.
The policies also promote reciprocal circulation of development
applications by the Jefferson County and the City of Port Townsend.
Port Ludlow, Port Ludlow
Village Council
Downtown Port
Townsend, BERK
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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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 vision.
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-1.2 Establish future land use and zoning designations,
densities, and intensities that minimize and mitigate potential land use
conflicts and displacement.
Policy LU-P-1.3 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-1.4 Maintain Jefferson County’s 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 the GMA in rural
counties.
Policy 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-1.6 If the County county adopts methods of paying that
shift the cost for new services and facilities resulting from additional
demand from new development to those who benefit, determine
through a public process how to apportion the fair share of funding for
required public facilities, services, and amenities.
Policy LU-P-1.7 Ensure appropriate services are provided as needed and
avoid duplication of services by promoting the coordination of local
governmental agencies, non-profits, cooperatives, educational
institutions, programs, and planning.
Policy LU-P-1.8 Ensure the annexation of unincorporated territory in
Jefferson County occurs in a manner consistent with State law.
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Policy LU-P-1.9 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.
Policy 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-1.12 Support Jefferson County communities by reviewing,
developing, or updating local community plans, subarea plans, and
implementing development 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
Jefferson 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.
Policy LU-P-1.16 Prioritize the involvement of tribal governments in
inter-jurisdictional efforts to cCoordinate with tribal governments in
planning for growth, especially when land use activities may impact
culturally significant sites or tribal treaty fishing, hunting, and gathering
grounds.
Policy LU-P-1.17 Support farmer’s markets and farm stands in urban,
rural residential, and commercial districts.
Policy LU-P-1.18 Ensure accessible and inclusive engagement
opportunities. Provide plain-language materials, offer multiple
feedback formats, and directly involve historically marginalized and
vulnerable populations and advocacy groups in decision-making
processes.
See also Policy LU-P-16.3 and
Goal OS-G-5 in the Open
Space, Parks & Recreation,
Historical & Cultural
Preservation Element.
Commented [JP11]: PC Review: PC finds the
language awkward and ask for a word-smithing
to bring out the meaning.
Commented [JH12R11]: Revised
Commented [JH13]: Added per EJC’s “People
First” feedback (comments 012 and 013)
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Public Hearing Draft March 2026
Policy LU-P-1.19 Foster meaningful, ongoing youth participation in local
planning and decision-making. Create structures for youth leadership—
such as advisory councils, paid internships, school partnerships, and
forums—with special outreach to LGBTQ+, disabled, BIPOC, and rural
youth. Ensure youth voice shapes policies, facilities, and investments
that impact their lives.
Policy LU-P-1.17Policy LU-P-1.20 Ensure revisions to the boundary of
UGAs, designated resource lands, LAMIRDs, fully contained
communities, or MPRs are thoroughly reviewed prior to their effective
date.
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
Commented [JH14]: EJC’s youth informed
discussions suggested adding this to the
Climate Element, but I think it’s better suited
here as it applies to more than just climate
planning (comments 009 and 010)
Commented [JH15]: Added to comply with SB
5042
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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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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 UGA.
Policy LU-P-3.2 Consider designating major industrial developments
(MIDs) outside of urban growth areas consistent with the Uniform
Development Code and the GMA.
Housing
Goal LU-G-4 Support opportunities to provide a variety of
housing types affordable for current and future residents
of all income groups, ages, abilities, and needs.
Policy LU-P-4.1 Encourage middle housing, special needs housing (e.g.,
seniors, disabled individuals, or veterans), farmworker housing, and
assisted living facilities in rural commercial/mixed-use areas within the
capacity of local infrastructure and site constraints.
Policy LU-P-4.2 Allow special needs housing, senior housing,
farmworker housing, and assisted living facilities in 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 Allow for a range of affordable housing types and
workforce housing options, including farmworker housing, to support
an adequate workforce and improve the local economy.
Policy LU-P-4.5 Implement appropriate zoning and development
regulations, and develop infrastructure to create opportunities for
housing in Jefferson County consistent with adopted growth targets.
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 Designate public purpose lands that provide a range of
services to the public to meet public needs and serve as sites for some
public facilities.
Refer also to the
Housing Element
Commented [JH16]: Revised per EJC’s “People
First” feedback with some changes. Full
recommendation was to revise to: “Support the
expansion of deeply affordable, designated
housing options for individuals with disabilities,
including those with IDD. Prioritize inclusive
housing models that offer supportive services
and ensure that individuals with disabilities are
integrated into diverse, multi-generational
communities.”
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Policy LU-P-5.2 Site essential public facilities in an equitable manner
with consideration for future climate-related hazards and with
appropriate mitigation that balances local and regional objectives..
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,
residents, tribes, and other interested parties in the process for
designating land to be used for essential public facilities.
Policy 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, universally accessible, 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 county’s Comprehensive Plan.
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-6.5 Support active transportation (e.g., walking and
bicycling) access to public facilities, parks and open space, employment
centers, and other key amenities and resources.
Policy LU-P-6.5Policy LU-P-6.6 Consider the full spectrum of
disabilities—including mobility, sensory, and cognitive—in planning for
universally accessible transportation options. For example, implement
plain-language communication, visual guides, and structured event
schedules to improve accessibility.
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.
Commented [JH17]: Revised per EJC’s “People
First” feedback
Commented [JH18]: Added per EJC’s “People
First” feedback
LAND USE
Jefferson County Comprehensive Plan 1–49
Public Hearing Draft March 2026
Environment
Goal LU-G-7 Preserve the functions, values, and resiliency
of ecologically sensitive areasCritical 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 Support cooperative ecosystem and habitat
management processes between stakeholders and local, state, federal
and tribal governments.
Policy LU-P-7.4 Ensure 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 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.
Policy 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-7.8 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.
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
Brinnon, Carolyn Gallaway
LAND USE
Jefferson County Comprehensive Plan 1–50
Public Hearing Draft March 2026
Water
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 Require 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 Develop 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 Minimize 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.
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 planning.
LAND USE
Jefferson County Comprehensive Plan 1–51
Public Hearing Draft March 2026
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-9.5 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.
Policy LU-P-9.5Policy LU-P-9.6 Improve public education on the
tsunami alarm system, create accessible evacuation plans, and ensure
that emergency information is available in plain language and visual
formats.
Goal LU-G-10 Ensure a sustainable and safe water supply
for residential, economic, and environmental needs that
relies 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.
Policy LU-P-10.2 Ensure future water supply needs consider impacts to
water supply from changing climate conditions.
Refer also to the
Environment Element
See also Policy CE-P-19.1 in
the Climate Element
Commented [JH19]: Added per EJC’s “People
First” feedback (split recommendation for LU-G-
9 into two policies, one here and one under CE-
G-15).
LAND USE
Jefferson County Comprehensive Plan 1–52
Public Hearing Draft March 2026
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 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-11.2 Discourage development and land use decisions that
significantly adversely impact the quality and quantity of groundwater
used for public water supplies.
Policy LU-P-11.3 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-11.4 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-11.5 Promote best management practices and voluntary
open space conservation to protect critical areas in land use
development regulations related to septic on-site sewer 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.
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.
LAND USE
Jefferson County Comprehensive Plan 1–53
Public Hearing Draft March 2026
Legal Nonconforming Uses
A legal nonconforming use or structure is one that conformed to all
applicable codes development regulations in effect on the date of its
creation, but no longer complies due to subsequent changes in the code
development regulationsor 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 legal commercial and industrial uses
that become became nonconforming prior to the county’s adoption of
zoning regulations in 1989 or prior to subsequent zoning changes or
development regulations 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 Jefferson
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 legal commercial and industrial uses that
became nonconforming prior to the county’s adoption of zoning
regulations in 1989 or prior to subsequent zoning changes or
development regulations 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 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 structures
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.
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.
Commented [JP20]: PAO: Without the proposed
changes, Policy LU-P-13.1 is not consistent with
the law on legal nonconfirming uses. See
Jefferson Cty. v. Lakeside Indus., 106 Wn. App.
380, 385, 23 P.3d 542, 544 (2001) and Rhod-A-
Zalea v. Snohomish Cty., 136 Wn.2d 1, 6, 959 P.2d
1024, 1027 (1998).
LAND USE
Jefferson County Comprehensive Plan 1–54
Public Hearing Draft March 2026
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 county’s adoption of
zoning regulations in 1989 or subsequent zoning changes or
development regulations that became nonconforming prior to the
county’s adoption of zoning regulations in 1989 or prior to subsequent
zoning changes or development regulations 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 development
regulations and internal policies that ensure that applications for
development applications permits 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.
LAND USE
Jefferson County Comprehensive Plan 1–55
Public Hearing Draft March 2026
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, 202517,
Jefferson County is a rural county.23 The GMA requires that the County
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, 202517, Jefferson County has a population density of 18.7517.39
persons per square mile (OFM, 202517).
24 RCW 36.70A.070(b).
25 RCW 36.70A.030(35)
LAND USE
Jefferson County Comprehensive Plan 1–56
Public Hearing Draft March 2026
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 county’s quality of life is preserved as it is
enhanced. (all)
▶ Protect and conserve the County’s 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 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
“living 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 this 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 amendmentin this comprehensive .plan.
LAND USE
Jefferson County Comprehensive Plan 1–57
Public Hearing Draft March 2026
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
LAMIRDs can be designated by local jurisdictions outside of
urban areas. The GMA includes LAMIRDs for three types of
development patterns in rural areas:26
▶ Type 1 LAMIRDs: Isolated areas of existing more
intenseive 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 or tourist
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.
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
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 2045 in Port Townsend
and the Irondale and Port Hadlock UGA.
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 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
LAND USE
Jefferson County Comprehensive Plan 1–58
Public Hearing Draft March 2026
of the types of rural commercial areas and master planned resorts, as
well as a description and map of each individual area, follows.
LAND USE
Jefferson County Comprehensive Plan 1–59
Public Hearing Draft March 2026
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, 2024; BERK, 2025.
LAND USE
Jefferson County Comprehensive Plan 1–60
Public Hearing Draft March 2026
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 This 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 1–61
Public Hearing Draft March 2026
BRINNON
Rural Village Center
Carolyn Galloway
Sources: Jefferson County Community Development, 2025; BERK, 2025.
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:
18.0 acres (27%)
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–62
Public Hearing Draft March 2026
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 1–63
Public Hearing Draft March 2026
QUILCENE
Rural Village Center
Joel Peterson
Source: Jefferson County Community Development, 2025; BERK, 2025.
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:
10.7 acres (21%)
Infill Opportunity
LAND USE
Jefferson County Comprehensive Plan 1–64
Public Hearing Draft March 2026
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 Jefferson
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
critical 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 1–65
Public Hearing Draft March 2026
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 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 This 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 1–66
Public Hearing Draft March 2026
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 This 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 This 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 1–67
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–68
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–69
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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:
1.9 acres (9%)
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 1–70
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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:
1.7 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 1–71
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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:
3.9 acres (10%)
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 Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–73
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–74
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–75
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–76
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–77
Public Hearing Draft March 2026
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 LAMIRDs 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 This 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 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 1–78
Public Hearing Draft March 2026
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 This
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 1–79
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 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 1–80
Public Hearing Draft March 2026
Source: Jefferson County, 2025; BERK, 2025.
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 Jefferson 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 1–81
Public Hearing Draft March 2026
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 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 Jefferson 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 1–82
Public Hearing Draft March 2026
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 Jefferson 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 gross acreage of land available for infill in undeveloped
parcels based on the Jefferson County Assessor’s land use codes. The
gross 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 1–83
Public Hearing Draft March 2026
Exhibit 1-23 Rural Commercial Area Total Acreage & Infill Acreage (2025)
Rural Village Centers Total Area Undeveloped*
Brinnon 66.1 acres 18.0 acres (27%)
Quilcene 50.6 acres 10.7 acres (21%)
Total Rural Village Centers 116.7 acres 28.7 acres (25%)
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 1.9 acres (9%)
Gardiner 5.3 acres 1.7 acres (31%)
Chimacum 40.0 acres 3.9 acres (10%)
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 17.5 acres (13%)
Total Rural Commercial Areas 249.5 acres 46.1 acres (18%)
* 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.
Source: Jefferson County Community Development, 2025; BERK, 2025.
The total designated rural village centers acreage of 116.7 acres contains
28.7 acres of undeveloped parcels available for infill, approximately 25%
of the total. The total designated rural crossroads acreage of 132.8 acres
contains 17.5 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 on-site sewer 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 1–84
Public Hearing Draft March 2026
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
the 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 the 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 2,000 square feet just to construct a septic
system and reserve area, not including additional required setbacks.
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%.
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
28 (The William D. Ruckelshaus Center, 2017).
LAND USE
Jefferson County Comprehensive Plan 1–85
Public Hearing Draft March 2026
commercial lands identified at Nesses’ Corner, Irondale Road, and the
Irondale and Port Hadlock RVC were re-designated Urban Commercial
with the Irondale and Port Hadlock UGA designation.
Periodic Review of LAMIRDs & the GMA Implementation
Challenges in Rural Counties
Overview
The GMA advises 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 LAMIRDs evaluating how we can better meet our rural
goals, maintain our rural character, and plan for economically and
environmentally sustainable growth.
The This Comprehensive Plan is our written record of local
circumstances, establishing patterns of rural densities and uses while
harmonizing the GMA planning goals. The This 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 this 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 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 county is
interested in exploring 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:
See also sidebars in this
Section 1.2—Rural
See also the Environment
Element, Challenges &
Opportunities—Balancing
Environmental Protection
With Community Needs.
See also sidebars in this
Section 1.2—Rural
See also the Environment
Element, Challenges &
Opportunities—Balancing
Environmental Protection
With Community Needs.
LAND USE
Jefferson County Comprehensive Plan 1–86
Public Hearing Draft March 2026
Update LAMIRD Provisions for Outcomes that Reflect Current Local
Circumstances, Rural Character, and Balancing of the GMA Goals
The GMA allows local jurisdictions to balance the 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
The GMA requires the County 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 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. The 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 county would likely benefit from legislative and rule
changes to the GMA better addressing flexibility for rural county
development, while limiting development. Jefferson County’s existing
development within its rural areas promotes the GMA planning goals,
such as reducing sprawl, protecting the environment, providing for
open space and recreation, and maintaining 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 define 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
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.
Refer to Exhibit 1-23, which shows that there is very little infill potential in our LAMIRDs
LAND USE
Jefferson County Comprehensive Plan 1–87
Public Hearing Draft March 2026
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
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 the 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 the 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
prescriptive residential densities.
Innovations to meet current housing crises is limited by the 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.
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 Jefferson County
LAND USE
Jefferson County Comprehensive Plan 1–88
Public Hearing Draft March 2026
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 the GMA while containing and controlling growth in rural areas, the
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.
Per WAC 365-196-425(4)(b), the GMA allows sanitary sewer
infrastructure in rural areas if it is necessary to protect basic public
health and safety and the 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 county is working to address
requirements of the GMA, while allowing limited service by the
Dosewallips State park’s system. Currently, Brinnon is served entirely by
septic on-site sewer systems. These septic on-site sewer 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 the necessary
infrastructure upgrades cannot take place.
In a 2002 amendment to the GMA, the Washington State Legislature
found that the 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;
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
LAND USE
Jefferson County Comprehensive Plan 1–89
Public Hearing Draft March 2026
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.”
As Jefferson County reviews rural commercial areas, we will explore
ways to meet the 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
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 the GMA include the conservation and wise use
of our lands, along with sharing economic development with
communities experiencing insufficient economic growth. The 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.
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:
An area or use of more intensive industrial development in
existence on July 1, 1990; and
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 the
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),
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Jefferson County Comprehensive Plan 1–90
Public Hearing Draft March 2026
▶ 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 This 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 1–91
Public Hearing Draft March 2026
Exhibit 1-24 Location of Rural Industrial Lands (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Community Development, 2024; BERK, 2025.
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Jefferson County Comprehensive Plan 1–92
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–93
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–94
Public Hearing Draft March 2026
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
county adopted the this 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 1–95
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–96
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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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Public Hearing Draft March 2026
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 1–98
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–99
Public Hearing Draft March 2026
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County Community Development, 2025; BERK, 2025.
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 1–100
Public Hearing Draft March 2026
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 to the GMA 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 Countycounty.
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 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 regulations 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-25.5).
Related to western
Jefferson County
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Jefferson County Comprehensive Plan 1–101
Public Hearing Draft March 2026
Source: Jefferson County Community Development, 2025; BERK, 2025.
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Jefferson County Comprehensive Plan 1–102
Public Hearing Draft March 2026
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:
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.
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.
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.
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).
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 1–103
Public Hearing Draft March 2026
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).
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. 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-26.4). 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).
Related to western
Jefferson County
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Jefferson County Comprehensive Plan 1–104
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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 Jefferson County
Conservation Futures Fund Program 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 Establish visual corridors and forest corridors along
suitable roadways in Jefferson County. Encourage 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 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 mMitigate 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 1–105
Public Hearing Draft March 2026
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 local
tribes 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 Ensure residential uses in the unincorporated portions
of the county are characterized by a variety of rural residential parcel
sizes and densities that support housing variety, choice, and
affordability for all income groups, without creating adverse impacts.
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, economies, and economic development
opportunities in the West End planning area to address local needs
within the requirements of the 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 1–106
Public Hearing Draft March 2026
Goal LU-G-18 Encourage residential land use,
development intensities, and housing options that
protect the character of rural areas, avoid interference
with resource land uses, and minimize impacts upon
environmentally sensitivecritical areas.
Policy LU-P-18.1 Encourage rural residential cluster subdivisions
throughout the rural areas and ensure the open space tracts in these
planned rural residential development subdivisions are 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-18.3 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 Permit resource-based uses that are compatible with
the conservation and sustainable use of the county’s resources.
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
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Jefferson County Comprehensive Plan 1–107
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Rural Centers, Crossroads, & MPRs
Rural Residential Land Use
Goal LU-G-20 Ensure that rural residential development
preserves rural character, 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 groups.
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
county’s rural population projections and adopted housing targets at
various income levels while maintaining rural character, 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
defineContinue to refine processes for legal lots of record certifications,
define valid plats in rural and urban areas, and identify opportunities for
middle housing in urban areas.
Policy LU-P-20.4 Encourage Prioritize 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 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.
Commented [JP21]: PC Review: we have a new
Legal Lot of Record Ordinance No. 09-1003-22
LAND USE
Jefferson County Comprehensive Plan 1–108
Public Hearing Draft March 2026
Policy 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 development regulations such as setbacks and parking
requirements, fire prevention measures, and community character.
Rural Commercial Land Use
Goal LU-G-21 Support 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 create 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 middle 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 Ensure visual compatibility of 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 standardsregulations.
Ensure uses within Rural Village Centers are scaled and sized consistent
with the urban form of the neighborhood.
Policy LU-P-21.4 Periodically review Rural Village Center infill and
middle housing development, logical outer boundaries, and
development 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-21.4-1 Encourage Explore affordable housing in Rural Village
Centers through the allowance of multifamily and middle
housing opportunities (as allowed in Jefferson County
Code) such as multifamily residential units, senior housing,
assisted living facilities, and manufactured home parks.
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Public Hearing Draft March 2026
LU-P-21.4-2 Allow for adequate economic development to support
economic sustainability, employment opportunities, small
business opportunities, family wage jobs, and services in
and for the rural areas.
LU-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 services in the County’s
coiunty’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
LAMIRDs.
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.
LU-P-22.1-2 Lands designated as Neighborhood/Visitor Crossroads
(NC) serve the nearby rural neighborhood and the
commuting or traveling public.
LU-P-22.1-3 Land designated as Convenience Crossroads (CC) consist
of a single commercial property at a historical crossroads.
Policy LU-P-22.2 Periodically review Rural Commercial Crossroad infill
development, outer boundaries, and development 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 by
allowing multifamily and middle housing opportunities
such as low- and mid-rise multifamily residential units,
stacked triplexes, senior housing, assisted living facilities,
and manufactured home parks.
Chimacum Market, Jefferson
County Public Health
See Chapter JCC 18.15.015(2)
and WAC 365-196-425(6) for
LAMIRD requirements.
LAND USE
Jefferson County Comprehensive Plan 1–110
Public Hearing Draft March 2026
LU-P-22.2-2 Allow for adequate economic development to support
economic sustainability, 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 commercial infill development in Rural Crossroads with
the surrounding rural area through the creation and implementation of
community-based "rural character" design and development
standardsregulations. Ensure uses within Rural Crossroads are scaled
and sized 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 an
economic, housing, and environmental perspective.
Policy LU-P-23.1 Ensure that development of MPRs comply with
Jefferson 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.
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, multifamily
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.
LAND USE
Jefferson County Comprehensive Plan 1–111
Public Hearing Draft March 2026
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.
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 form and—to the maximum extent
practical—screen the development and its impacts from the adjacent
rural areas outside of the designated MPR.
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.
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 law.
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).
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.
See Chapter JCC 18.15.015 and
RCW 36.70A.070(5)(d).
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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 law.
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-25.2 Encourage local businesses that sustainably harvest
wild foods in the county’s forests and marine waters.
Policy LU-P-25.3 Allow natural resource-based industries to locate near
the agricultural, forest, mineral, or aquaculture resource lands upon
which they are dependent.
Policy 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-25.5 Continue to recognize the Gardiner Resource-Based
Industrial Zone as an area of more intensive rural development and
allow the zone to accommodate conversions and/or an intensification
of these uses and activities under the provisions contained in State law .
Economic Activities Outside of Rural Commercial Areas
Small-Scale Recreational & Tourist Related Uses
Goal LU-G-26 Foster small-scale recreational or and
tourist-related uses and economic development that
relies on a rural location and setting.
Policy LU-P-26.1 As a rural economic development opportunity, provide
for small-scale recreational or tourist uses through a permitting process
appropriate to the type of proposed use and the land use district in
which it is proposed.
See RCW 36.70A.365.
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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Policy LU-P-26.2 Ensure the primary use of the site is for the small-scale
recreational or tourist use and that commercial facilities, as provided for
within an approved conditional use permit for small-scale recreational
or tourist uses, serve only those recreational and tourist uses.
Policy 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;
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-26.4 Allow 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,
distressed economic conditions, and at increased risk of displacement.
Policy 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.
Related to western
Jefferson County
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Policy LU-P-27.2 Regulate home-based businesses and cottage
industries in West Jefferson County and the Brinnon Planning Area
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, distant from commercial and urban growth
areas, and at increased risk of displacement.
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 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-27.5 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 GMA.
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
county require that a “fair share” of development costs be borne by the
developer.
Policy LU-P-28.4 Ensure land use decisions consider cost efficiency
regarding publicly-funded infrastructure.
Related to western
Jefferson County
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Policy LU-P-28.5 Ensure that where the County 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-28.6 Require the provision of an appropriate level of
facilities and services prior to or concurrent with development. 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-28.7 Ensure that Rural Village Centers are adequately
served by a rural level of public services.
Policy LU-P-28.8 Allow community water facilities and community
sewage facilities in rural lands 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
the GMA under RCW 36.70A.050 and as described more fully in 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 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 the 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 31,000
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. About 52%
of agricultural zoned lands in Jefferson County are less than 10 acres in
size and 95% 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.
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.
Jefferson County
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Policy 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-29.3 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 anddevelopment regulations.
Policy LU-P-29.4 Work with resource-based industries to achieve
compliance with all applicable development regulations to protect
environmental values and to protect surrounding land uses.
Policy 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 & UnincorporatedTwo Urban Growth Areas
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 UGA, with (Mmunicipal and unincorporated
portions and Unincorporated).
▶ Irondale and Port Hadlock Unincorporated UGA, located in
unincorporated Irondale and Port Hadlock.
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 portion of the Port Townsend
UGA that encompasses the City of Port Townsend. The unincorporated
portion of the Port Townsend UGA is subject to the Jefferson County
Comprehensive Plan and implementing Jefferson County’s
development regulations. Joint planning between the Jefferson County
and the City of Port Townsend is encouraged, particularly for those
areas of the Port Townsend UGA 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 in unincorporated Irondale and Port
Hadlock. This unincorporated urban growth area The Irondale and Port
Hadlock is subject to the this Jefferson County Comprehensive Plan
and implementing the development regulations.
An urban growth area defines where urban developments will be
directed and supported with typical urban public facilities and services,
such as water systems, 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
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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
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 CommissionersBoard
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 county
purchased the Mill Road site and several other contiguous parcels to
the south as a unit. OlyCAP leases a site from the Countycounty,
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 people experiencing housing insecurity. It will be a
continuum of care housing facility operated by OlyCAP on a long-term
lease with the Countycounty.
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 Port Townsend UGA
boundary (which began as coincident with the City of’s Port
Townsend’s municipal boundary but now expands beyond the
municipal boundary) in the years following the adoption of the GMA.
Most of Tthe 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
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36.70A.170. The parcels are 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.
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 limits of the City of Port Townsend city limits to accommodate
a similar facility. Incorporating CBV into the Port Townsend UGA
boundary addresses recent legislation that amended the 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 of Port Townsend’s 2025 periodic update.
JPUD is working to address power capacity and reliability issue in the
Port Townsend area. JPUD believes the solution to these issues is to
build another electrical sub-station that is adjacent to existing JPUD
power lines. In looking for a suitable location, JPUD identified two
county-owned parcels, which were purchased as a unit when
establishing CBV at its current location. The County county and JPUD
are currently working on documentation to effectuate the sale.
The 32.72-acre unincorporated portion of the 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 ensure that future
connections/ or expansions of these services are 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 land use
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and zoning designation in the unincorporated portion of the 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 Regional
Stormwater Facility, and a future electrical substation as proposed
by the JPUD.
The Irondale & Port
Hadlock Urban Growth
Area
History of Planning
Designation
Detailed planning for the designation of
athe 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 1998
Comprehensive Plan indicated the joint
City of Port Townsend cityand/ Jefferson
Countycounty 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 of Port Townsend
and /Jefferson 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
unincorporated 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. Additional planning and
review by the Growth Management Hearings Board resulted in a
finding that including Chimacum in the urban growth area would
bring in too much area that was not characterized by urban growth.
This resulted in the current UGA boundary to encompass Irondale and
Port Hadlock, as discussed below.
Inside the Puget Sound Iron Company, Jefferson County, from
the Collection of the Jefferson County Historical Society
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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 this
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, and the Port Hadlock UGA
Sewer Facility Plan Update, February 2021 .
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 DevelopmentDCD 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 Countycounty. 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 sensitivecritical areas that
may form natural boundaries such as bays, watersheds, rivers, or
ridge lines.
▶ Lands already characterized by urban development 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 level of service (LOS).
Commented [JP22]: Add sewer facility plan
update citation
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The CPPs also provide selected guidance for the phasing of urban
growth commensurate with the provision of adequate urban services
to UGAs:
▶ Land use plans, development 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
by RCW 36.70A.350. UGAs should encourage growth in these areas
through incentive programs. (CPP 1.5)
▶ Before adopting or modifying boundaries of UGAs, interim 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 LOS
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 LOS standards for the
UGA as a condition of project approval. For the Irondale and Port
Hadlock unincorporated UGAs, said standards will include
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 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)).
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The vast majority of the Irondale and Port Hadlock UGA is “already
characterized by urban growth.” In addition, the boundary for the
Irondale and Port Hadlock UGA was delineated based on the criteria in
CPPs with guidance from the Tri-Area Community Plan (1995) and
public input from local residents. Only limited areas “adjacent to
territory already characterized by urban growth” are were included in
the Irondale and Port Hadlock 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. . Furthermore, the current Irondale and
Port Hadlock UGA zoning that resulted from pealing back the
transitional rural zoning overlay as a result of the beginning of
operation of the PHUGA Sewer System on September 9, 2025, currently
is only part of the Irondale and Port Hadlock UGA. However, division I of
title 13 JCC allows for expansion of the PHUGA Sewer System. The
county may initiate formation of a LID for the purpose of funding sewer
extensions or expansions, or the county may secure grants or
appropriations for this purpose. The county currently has no plans to
fund sewer extensions or expansions. However, chapter 13.08 JCC
authorizes late comer agreements which allow developers to pay for
sewer expansion with recovery of expansion costs from owners of
parcels who later hook up to the PHUGA Sewer System.
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 This Comprehensive Plan population growth projections indicate a
20-year projected growth from 2025–2045 of 2,360 residents for the
UGA. The UGA buildout capacity analysis is summarized 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 ActGMA. The Irondale
and Port Hadlock UGA includes areas designated for medium and high
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densityhigh-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 zoning and the provision of urban
facilities and services will allows for development of higher density (and
more affordable) multi-family housing when construction of the
planned sanitary system is finishedin the current Irondale and Port
Hadlock UGA. Expansion of the PHUGA Sewer System by formation of a
LID, grant funding or latecomer agreements will allow for even more
urban facilities and services..
Each urban growth area shall permit urban densities and shall
include greenbelt and open space areas. (36.70A.110(2)).
Average urban density of residential development is above 4 dwelling
units per acre in the Irondale and Port Hadlock UGA. See Appendix E-1
Jefferson County Land Capacity Analysis and Housing Technical
Appendix.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 not provided within in200 feet of the adopted
Six-Year Capital Facilities PlanPHUGA Sewer System; 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 (chapter 8.15 JCCJCC 8.15) shall apply
under these circumstances. 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 Growth Management
Hearings Boards hasve also recognized that jurisdictions may apply
densities below that line in UGAs if there is a compelling GMA reason
under the GMA for doing so. Protection of critical areas, including
CARAs, has been recognized by the Growth Management Hearings
Boards as such a reason. In the Irondale and Port Hadlock UGA, the
CARA serves to protect the same groundwater aquifer that supplies the
public water supply for the Irondale and Port Hadlock 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
Commented [JH23]: Still a relevant reference? I
can’t find this online anywhere.
Commented [JP24R23]: Old appendix. Replace
with LCA.
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service areas that are in close proximity to existing commercial centers
and community facilities such as the Chimacum Creek Elementary
School and the Jefferson 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
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 ActGMA. 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 sensitivecritical 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 2025 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 a UGA inin the unincorporated areas of
eastern Jefferson County has been on-going since the initial GMA
Comprehensive Plan for the County county was adopted in 1998. The
Special Study was a collaborative joint planning process between the
City of Port Townsend and the County 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
Refer to the Transportation
Element, Non-Motorized Trail
& Standards
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impacts. It presented many choices about accommodating growth.
One of the key findings of the Special Study was that the County
county experienced a significant amount of “retail leakage” to urban
areas in adjacent counties due to an inadequate commercial land use
base in the Countycounty. The City of Port Townsend and the County
county also jointly chose through the Joint Growth Management
Steering Committee to accommodate new growth through formation
of a Tri-Area Unincorporated UGA in the Tri-Area rather than
accommodate the all unmet demand for commercial growth in the
existing Port Townsend UGA.
The This Comprehensive Plan and the CPPs both identify the Tri-Area
(now the unincorporated Irondale and Port Hadlock UGA) as the
primary regional commercial growth center for the unincorporated
county. However,until the PHUGA Sewer System began operation on
September 9, 2025, the lack of the full range of urban services, including
a sanitary sewer system, hads 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
Irondale and Port HadlockTri-Area UGA represents a significantly
smaller, more compact and more fiscally viable UGA than originally
proposed in the DSEIS/ and 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 in the unincorporated area of the county 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
Councilorscity councilors and three County Commissionersthe Board)
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decided on August 24, 1999 (by a vote of 5 to 1) to move forward with
UGA implementation for the Irondale and Port Hadlock UGA 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 sewer
services needed for immediate implementation of the Irondale and
Port Hadlock UGA implementation indicated in the CPPs. Therefore,
the this 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 Irondale and Port Hadlock
UGA boundary, land use map, and interim levels of service for urban
facilities as well as goals and policies guiding the development of the
Irondale and Port Hadlock 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
Irondale and Port Hadlock UGA. The next phase involved preparation and
adoption of the Irondale and Port Hadlock UGA development regulations
now codified in Chapter 18.18chapter 18.18 of the JCC, which now
incorporates by reference the definition of “available” from JCC 13.02.010.
This phase also included completion of the capital facility plans needed to
implement the full range of urban services required in the CPPs, including
the adoption of urban level of service standards for the Irondale and Port
Hadlock UGA transportation improvements, storm water management
facilities, and a new sanitary sewer system. These capital facility plans are
adopted herein by reference and are included as appendices to the this
Comprehensive Plan. The Irondale and Port Hadlock 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
▶ Port Hadlock UGA Sewer Facility Plan Update, February 2021.
Consistent with the CPPs, the adopted Irondale and Port Hadlock
Urban Growth Area General Sewer Plan identifies additional phased
development areas within the UGA based on sewer service availability.
Construction of the Phase IThe wastewater treatment plant and
collection system in the PHUGA Sewer System began operation for
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residents and businesses in the Port Hadlock area is currently underway
and anticipated to be ready in mid-2025,on September 9, 2025, at which
point the transitional rural zoning was lifted for properties within urban
zoning will apply within the sewer service area (generally the commercial
core along SR 116 and Rhody Drive)200 feet of an existing sewer
collection line via public rights-of-way, utility easements or some other
route at the discretion of the Public Works director. 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 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 Citizen Advisory
Committee 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 development
regulations and capital facilityies plan (CFP) development standards
for the Irondale and Port Hadlock UGA... Policy LU-P-30.4 allows for
alternative technologies and phasing to advance development in the
UGA and meet community needs like housing variety and affordability.
Alternative Phasing Sewer Policy
Within the UGA, the principal barrier to greater density 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 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.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. Policy LU-P-30.4 allows for
29 KCRP VI v. Kitsap County; Case 06-3-0007.
Commented [JP25]: PAO: This is unnecessary and
may be deleted now that the PHUGA Sewer
System is operating.
Field Code Changed
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alternative technologies and phasing to advance development in the
UGA and meet community needs 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 eight (8) dwelling units per acre.
Moderate Density Residential (UGA-MDR) zoning will allow housing
at a density of 8–18 units per acre. The High Density Residential
(UGA-HDR) zone will allow housing at a density of 18–24 dwelling
units per acre.
▶ The Urban Commercial (UGA-UC) zone covers both the existing and
planned future commercial development in the Irondale and Port
Hadlock core area, where PHUGA Sewer System has been
operating since September 9, 2025 and along Rhody Drive from
Ness” Corner along the commercial strip fronting SR 19. The County
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.
▶ The Urban Light Industrial (UGA-LI) zone in the Irondale and Port
Hadlock 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 Irondale and Port Hadlock 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.
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Rural zones apply until urban wastewater services are available, and
then Urban zones apply. See Exhibit 1-25 and Exhibit 1-26.
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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 1-26).
Source: Jefferson County GIS, 2025; BERK, 2025.
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Exhibit 1-26 Irondale and Port Hadlock UGA Urban Zoning (2025)
Note: This exhibit was updated since the 2018 Comprehensive Plan.
Source: Jefferson County GIS, 2025; BERK, 2025.
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Dwelling Unit & Population Holding Capacity Analysis
Planning analysis of the UGA’s capacity was conducted by the
Department of Community Development staff and the consultant
team for the 2025 Comprehensive Plan using the current population
allocation from Jefferson County Resolution #No. 68-1118-24R and the
methodology detailed in Appendix E.
The Comprehensive Plan population growth projections for 2025–2045
prepared for the 2025 update to this Comprehensive Plan indicate a 20-
year projected growth of 2,360 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 2025 Periodic Updateupdate to
this Comprehensive Plan illustrates there is a capacity for up 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.
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.
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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 unincorporated areas of the Port
Townsend Unincorporated UGA and Jefferson County’s
unincorporated Irondale and Port Hadlock UGA. They outline specific
criteria for urban development, incorporating issues and opportunities
identified by Jefferson 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. Scale urban levels of services (capital
facilities and infrastructure) 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
UGA commensurate with the appropriate level of urban public facility
and service capacities 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.
Policy LU-P-30.4 Ensure future urban development is not precluded by
considering urban growth area development plans that allow urban
development on septic on-site sewer systems or other approved means
of wastewater treatment in a site design process, such as a binding site
plan, subdivision, or shadow-plat.
Policy LU-P-30.5 Develop regulations that facilitate urban infill—
including multiple accessory dwelling units—in areas previously
developed or platted at sub urban densities.
Policy LU-P-30.6 Provide incentives for affordable housing through
planned urban densities initially on septic on-site sewer systems.
Policy LU-P-30.7 Provide incentives for efficient development patterns
such as lot consolidation.
See the Capital Facilities and
Utilities Element for a list of
urban public facilities and
their adopted levels of
service.
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Policy LU-P-30.8 Provide for on-going review and evaluation of the
unincorporated Irondale and Port Hadlock UGA to monitor the rate of
development, land supply and availability, market conditions,
infrastructure implementation and costs in order to identify barriers to
urban development 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.
Policy LU-P-31.1 Encourage and facilitate regional-scale urban
economic activities in unincorporated UGAsurban growth areas which
provide for countywide goods, services, and employment opportunities.
Policy LU-P-31.2 Recognizing that the Irondale and Port Hadlock UGA
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 Urban development design promotes
healthy communities through policies that promote
healthy lifestyles and equitable access to opportunity.
Policy LU-P-32.1 Use Health Impact Assessments in the decision-
making process of prioritizing capital projects to make progress on
healthy community goals.
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-32.3 Adopt a walkability standard (for example, a half mile)
for residential access to daily retail and transit stops in urban areas that
can be applied to urban or rural village centers throughout the county.
Policy 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-32.5 Incorporate traffic calming measures where needed to
increase pedestrian and bicycle safety.
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Policy 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 UGA.
Policy LU-P-32.7 Encourage small-scale urban community farming and
gardening, consistent with urban plans.
Policy 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-32.9 Consider 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 prioritize
the development of new urban agriculture sites in low-income and
underserved neighborhoods.
Policy LU-P-32.10 Support and expand access to school gardens and
safe multi-modal non-motorized transportation facilities around
schools.
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-32.12 Incentivize mixed-use developments in the UGA to
provide affordable housing.
Policy LU-P-32.13 Identify non-motorized transportation connections,
such as sidewalks and bicycle lanes, that provide opportunities for
physical activity as key elements to mixed use center planning.
Policy LU-P-32.14 Prioritize the placement of community services in
neighborhood centers (e.g., health clinics, childcare centers, senior
centers, libraries, educational facilities, etc.).
Refer to the Transportation
Element, Non-motorized Trail
& Standards, and Goal TR-G-4
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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 Countycounty. The level of urban
infrastructure must serve the needs of the public, protect the
environment and be affordable.
Policy 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
this Comprehensive Plan.
Policy LU-P-33.3 Ensure that where the County 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-33.4 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-33.5 Ensure the planning and implementation of
transportation and stormwater management facilities in the
unincorporated urban growth areaportions of UGAs 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-33.6 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 UGA, 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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Policy 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 urban LOS standards for the following capital facilities and public
services in the unincorporated Irondale and Port Hadlock and the
unincorporated portions of the Port Townsend UGAs:
a. On-Site Septic Sewage Treatment and Disposal: Per Jefferson
County Code Chapter 8.15 (On-Site Sewage Code)
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, 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 growth and
development are timed, phased, and consistent with the provision of
adequate urban level facilities and services.
Policy LU-P-33.9 Where the County county is not the urban public
facility or service provider for the unincorporated areas of UGAs,
consider adopting an Interlocal Agreement with the appropriate
service provider. Such agreements, when utilized, shall include the level
of urban public facilities and services.
Waterspout, Jefferson County
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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 UGA.
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 UGA.
Policy LU-P-34.3 Develop and implement an Irondale and Port Hadlock
UGA 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 UGA 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 an the Irondale and Port Hadlock UGA Stormwater Management
Program.
Policy LU-P-34.8 Maintain an inventory of public and private
stormwater management facilities within the unincorporated Irondale
and Port Hadlock UGA and the unincorporated areas of the Port
Townsend UGA..
Policy LU-P-34.9 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.
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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 based on
regional priorities and coordinated with county and city
comprehensive plans 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.
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-35.4 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 lands and corridors and urban
separators within urban growth areas, including 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.
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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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 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 1–144
Public Hearing Draft March 2026
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 1-27Exhibit 1-26 highlights key activities the County county can
use to implement the Land Use Element over the next ten years (prior
to the next periodic update), several in partnership with other entities:
Exhibit 1-2726 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 the UGA, Non-Motorized
Transportation & Recreation Plan, the PROS Plan, and into the Unified Development Code.
Encourage urban densities in
UGAs
Address approved means of wastewater treatment 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 Irondale and Port Hadlock UGA,
particularly in the commercial core within the service area of the PHUGA
Sewer System where existing and planned services are concentrated.
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 the GMA
requirements. Seek legislative amendments to the 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, 2025.
Refer to the Economic
Development Element for additional information
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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
Centers for Disease Control and Prevention (CDC). (2024). PLACES: Local Data for Better Health.
Retrieved from https://www.cdc.gov/places/
County Health Rankings & Roadmap. (2024). County Health Rankings: Jefferson County. Retrieved from
https://www.countyhealthrankings.org/health-data/washington/jefferson?year=2024
Jefferson County. (2016). Jefferson County Community Health Improvement Plan. Retrieved from
https://www.jeffersoncountypublichealth.org/1749/Data-and-Assessment
Jefferson County. (2019). Community Health Assessment Quantitative Report. Retrieved from
https://www.jeffersoncountypublichealth.org/1749/Data-and-Assessment
Jefferson County. (2019). Community Health Assessment Report: Summary Findings. Retrieved from
https://www.jeffersoncountypublichealth.org/1749/Data-and-Assessment
Jefferson County. (2024, November 18). Countywide Planning Policies, Jefferson County Resolution No.
67-1118-24R.
Jefferson County. (2024, November 18). Population and Housing Growth Allocations Resolution #No.
68-1118-24R.
Jefferson County GIS Department. (2025). GIS Data. Retrieved from
http://www.co.jefferson.wa.us/293/GIS
Jefferson County Public Health. (2025). Environmental and Climate Health Threats and Adaptation
Report. Retrieved from
https://jeffersoncountypublichealth.org/DocumentCenter/View/20734/East-Jefferson-County-
Environmental-and-Climate-Health-Threats-and-Adaptation-Opportunities---January-2025-
PSRC. (2011). Airport Compatible Land Use Plan. Retrieved from
https://www.psrc.org/sites/default/files/airportcompatiblelanduse.pdf
Public Health Seattle & King County (PHSKC). (2020). Community Health and Airport Operations
Related Noise and Air Pollution. Retrieved from
https://apps.leg.wa.gov/ReportsToTheLegislature/Home/GetPDF?fileName=Community%20Hea
lth%20and%20Airport%20Operations%20Related%20Pollution%20Report_c7389ae6-f956-40ef-
98a7-f85a4fab1c59.pdf
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. (2020). 2020 Census. Retrieved from
https://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml
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Jefferson County Comprehensive Plan 1–147
Public Hearing Draft March 2026
U.S. Census Bureau. (2022). American Community Survey 2018-2022 5-Year Estimates. Retrieved from
https://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml
U.S. Census Bureau. (2022). OnTheMap. Retrieved from LEHD Origin-Destination Employment Statistics:
https://onthemap.ces.census.gov/
U.S. Census Bureau. (2023). American Community Survey 2019-2023 5-Year Estimates. Retrieved from
https://factfinder.census.gov/faces/nav/jsf/pages/index.xhtml
U.S. Department of Transportation (DOT). (2020). National Transportation Noise Map. Retrieved from
https://maps.dot.gov/BTS/NationalTransportationNoiseMap/
U.S. Environmental Protection Agency (EPA). (2023). Heat Island Effect. Retrieved from
https://www.epa.gov/heatislands
U.S. Environmental Protection Agency (EPA). (2023). Heat Island Impacts. Retrieved from
https://www.epa.gov/heatislands/heat-island-impacts
U.S. Environmental Protection Agency (EPA). (2023). Reduce Heat Islands. Retrieved from
https://www.epa.gov/green-infrastructure/reduce-urban-heat-island-
effect#:~:text=%22Urban%20heat%20islands%22%20occur%20when,heat%2Drelated%20illness%
20and%20mortality.
U.S. Housing and Urban Development (HUD). (2020). CHAS (Comprehensive Housing Affordability
Strategy) Data 2016-2020. Retrieved from https://www.huduser.gov/portal/datasets/cp.html
University of Washington. (2019). Mov-Up Report. Retrieved from
https://deohs.washington.edu/sites/default/files/Mov-Up Report.pdf
Washington State Department of Commerce (Commerce). (2022). Guidance for Evaluating Land
Capacity to Meet All Housing Needs. Retrieved from
https://deptofcommerce.app.box.com/s/k14gbqe7z8d7ek6z8ibui79zb7bo9vpa
Washington State Employment Security Department (ESD). (2021-2023). Covered Employment
Estimates (QCEW). Retrieved from https://esd.wa.gov/labormarketinfo/covered-employment
Washington State Employment Security Department (ESD) and PSRC. (2017, October). 2016 Covered
Employment Estimates by Jurisdiction. Seattle, WA. Retrieved from https://psrc-
psregcncl.hub.arcgis.com/datasets/PSREGCNCL::covered-employment-by-city-major-
sector/about
Washington State Healthy Youth Survey. (2023). Washington State Healthy Youth Survey: Jefferson
County. Retrieved from https://www.askhys.net/SurveyResults/DataByLocation
Washington State Legislature. (2025). Revised Code of Washington (RCW). Retrieved from
http://apps.leg.wa.gov/rcw/
Washington State Office of Financial Management (OFM). (2022). Growth Management Act Population
Projections for Counties: 2020 to 2050. 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-2020-2050
Washington State Office of Financial Management (OFM). (2022). Population by Age, Mapped by
County. Retrieved from https://ofm.wa.gov/washington-data-research/statewide-
data/washington-trends/population-changes/population-age-mapped-county
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Washington State Office of Financial Management (OFM). (2024). April 1 Official Population Estimates.
Retrieved from https://ofm.wa.gov/washington-data-research/population-
demographics/population-estimates/april-1-official-population-estimates
Washington State Office of Financial Management (OFM). (2024). Small Area Estimates. Retrieved from
https://ofm.wa.gov/washington-data-research/population-demographics/population-
estimates/small-area-estimates-program
Washington State Office of Financial Management (OFM). (2025). 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
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 1–8
Current Land Use 1–8
Land Use & Environmental Justice 1–10
Review of Surface Water Conditions & Existing
Polluted Discharges 1–20
Land Use Strategy 1–21
Land Use & Zoning Designations 1–21
Rural Designations 1–26
Resource Land Designations 1–29
Master Planned Resort Designations 1–30
Urban Growth Area Designations 1–32
Public Designations 1–33
Major Industrial Development & Industrial Land
Banks 1–34
Legal Nonconforming Uses & Lots 1–351–34
Establishing Allowed Uses & Regulations Within Land
Designations 1–361–35
From Rural Character to Development Regulations 1–361–
35
Rural Character & Review of Regulations for Land
Uses, Development Patterns, & Nuisances 1–371–35
Community Planning Efforts 1–381–36
Countywide Planning Policies 1–411–39
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Rural Areas Policies 1–411–39
Urban Growth Areas & Services 1–421–39
Overarching Land Use Goals & Policies 1–431–40
General Land Use 1–431–40
Land Use Consistency with Naval Base Kitsap 1–451–42
Industrial Development 1–471–45
Housing 1–471–45
Public Purpose Lands 1–471–45
Transportation 1–481–46
Environment 1–491–47
Water 1–501–48
Legal Nonconforming Uses 1–531–50
Permit Processing 1–541–51
1.2 Rural 1–551–52
Rural Character 1–551–52
Limited Areas of More Intensive Rural Development 1–571–54
Rural Centers, Crossroads, & MPRs 1–571–54
Rural Commercial Areas: Centers & Crossroads 1–601–56
Master Planned Resorts 1–771–73
Evaluation of Rural Commercial Boundaries 1–811–77
Periodic Review of LAMIRDs & the GMA
Implementation Challenges in Rural Counties 1–851–81
Rural Industrial Lands 1–891–85
Forest Resource-Based Industrial Zones 1–1001–95
Economic Activities Outside of Rural Commercial Areas 1–1021–
97
West Jefferson County 1–1031–98
Rural Goals & Policies 1–1041–99
Rural Character 1–1041–99
Rural Centers, Crossroads, & MPRs 1–1071–102
Rural Industrial Lands 1–1111–106
Economic Activities Outside of Rural Commercial
Areas 1–1121–107
Capital Facilities in Rural Areas 1–1141–109
1.3 Resource 1–1161–111
Resource Lands of Long-Term Commercial Significance
under the GMA 1–1161–111
Forest 1–1161–111
Mineral 1–1161–111
Agriculture 1–1171–112
Resource Conservation 1–1171–112
Resource Lands Goals & Policies 1–1171–112
1.4 Urban 1–1191–114
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Urban Growth Areas 1–1191–114
Municipal & Unincorporated 1–1191–114
Port Townsend Urban Growth Area 1–1201–115
Background 1–1201–115
Irondale & Port Hadlock Urban Growth Area 1–1221–117
History of Planning 1–1221–117
Phased Implementation 1–1291–123
Alternative Phasing Sewer Policy 1–1301–124
Land Use Map & Zoning Designations 1–1311–124
Dwelling Unit & Population Holding Capacity
Analysis 1–1351–128
Housing Variety & Affordability 1–1351–128
Urban Growth Area Goals & Policies 1–1361–129
Urban Development 1–1361–129
Urban Level Public & Capital Facilities 1–1391–132
Stormwater Management 1–1411–134
Transportation 1–1421–135
Green Space Planning in Urban Growth Area 1–1421–135
1.5 Action Plan 1–1441–137
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) 1–5
Exhibit 1-4 Estimated Employment Share by Planning
Area (2023 and 2045) 1–7
Exhibit 1-5 Current Land Use Map (2025) Assessor
Information 1–9
Exhibit 1-6 Current Land Use (2025) Assessor
Information 1–10
Exhibit 1-7 Median Summer Land Surface Temperature
(2019–2023) 1–15
Exhibit 1-8 Key Findings from the 2019 Community
Health Assessment 1–17
Exhibit 1-9 Key Environmental Threats and
Opportunities in East Jefferson County 1–18
Exhibit 1-10 Recreation Trail Connections to Schools and
Parks of the Irondale and Port Hadlock UGA
and Chimacum (2025) 1–19
Exhibit 1-11 Land Use / Zoning Map (2025) 1–23
Exhibit 1-12 Land Use Designations / Zoning Districts and
Acreage (2025) 1–24
Exhibit 1-13 Planned Residential Densities 1–25
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Exhibit 1-14 Summary of Rural Land Use and Zoning
Designations 1–26
Exhibit 1-15 Summary of Overlay Land Use and Zoning
Designations 1–28
Exhibit 1-16 Summary of Resource Land Use and Zoning
Designations 1–30
Exhibit 1-17 Summary of Master Planned Resort Land
Use and Zoning Designations 1–321–31
Exhibit 1-18 Irondale and Port Hadlock UGA Land Use
and Zoning Designations 1–331–32
Exhibit 1-19 Unincorporated Areas of the Port Townsend
UGA Land Use and Zoning Designations 1–33
Exhibit 1-20 Public Land Use Designations and Zoning 1–341–33
Exhibit 1-21 Community Planning Areas 1–391–37
Exhibit 1-22 Location of Rural Commercial Areas and
Master Planned Resorts (2025) 1–591–55
Exhibit 1-23 Rural Commercial Area Total Acreage & Infill
Acreage (2025) 1–831–79
Exhibit 1-24 Location of Rural Industrial Lands (2025) 1–911–86
Exhibit 1-25 Irondale and Port Hadlock UGA Transitional
Rural Zoning 1–1331–126
Exhibit 1-26 Irondale and Port Hadlock UGA Urban
Zoning (2025) 1–1341–127
Exhibit 1-26 Land Use Action Plan 1–1441–137