HomeMy WebLinkAbout8 CF, EPF, & Utilities 2025_1219Jefferson County Comprehensive Plan 8–1
Public Hearing Draft March 2026
8 Capital Facilities
& Utilities
8.1 PURPOSE
This Element addresses three essential components of the
Comprehensive Plan that supports the community today and the
future growth expected by 2045:
▶ Capital Facilities. This element and the Capital Facilities
Technical Appendix D address requirements in RCW
36.70A.070(3) and WAC 365-196-415 to provide an inventory,
forecast of needs, and plan addressing: water systems, sanitary
sewer systems, stormwater facilities, reclaimed water facilities,
schools, parks, and recreational facilities, police, and fire
protection facilities.
▶ Essential Public Facilities. Essential public facilities are
typically those difficult to site, such as airports, state education
facilities, state or regional transportation facilities, state and
local correctional facilities, solid waste handling facilities, and
others identified in RCW 36.70A.200.
Jefferson County
This element supports the
Vision Statement by ensuring
services and infrastructure
are available to advance the
quality of life for residents,
including encouraging
innovation in green
infrastructure such as low
impact development, access
to education, adequate public
safety services, and advanced
utility networks for residents
and businesses. Priorities also
support mobility and access
to community services for
active and healthy living.
Connection to the
Vision Statement
Commented [JH1]: NOTE FOR STAFF REVIEW:
This is a working draft of the Capital Facilities &
Utilities Element and most of the updates at this
time focus on the changes to goals and policies
in Section 8.6. Staff review should be limited to
goals and policies at this time.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–2
Public Hearing Draft March 2026
▶ Utilities. The Utilities component addresses the location, capacity,
and proposals for utilities, including, but not limited to, electrical
lines and telecommunication lines per RCW 36.70A.070(4) and
WAC 365-196-420. There is no natural gas service into the county.
The Technical Appendices portion of the Comprehensive Plan provides
additional supporting details to this element, especially Appendix D,
Capital Facility Plan Technical Document.
8.2 CAPITAL FACILITIES
Overview
The Capital Facilities section ensures that adequate facilities are
available to serve existing residents and businesses and future growth
as outlined in the Land Use Element.
According to WAC 365-196-415(2)(a)(ii), the inventory and analysis of
capital facilities must include, at a minimum, water systems, sewer
systems, stormwater systems, schools, parks and recreation facilities,
police facilities, and fire facilities. Note that utilities (electricity and
telecommunications) are addressed in Section 8.4.
This Element and the Capital Facility Plan Technical Appendix D
addresses the capital facilities and services listed in Exhibit 8-1. The
Guiding Plans of service providers, as amended, support this Element.
Exhibit 8-1 Capital Facilities and Public Services Provided
Services
Providers Serving Unincorporated
Areas Guiding Plans
Law
Enforcement
Jefferson County Sheriff Jefferson County Sheriff’s Office Strategic Plan,
Comprehensive Version, 2018
Parks and
Recreation
Jefferson County Jefferson County Parks, Recreation & Open Space
Plan Update, 2022; Jefferson County Parks and
Recreation, Department of Public Works
Public
Administration
Jefferson County Jefferson County Strategic Plan 2024-2028, County
Administrator’s Office
Individual operations plans for community centers,
maintenance facilities, and animal control facilities
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–3
Public Hearing Draft March 2026
Services
Providers Serving Unincorporated
Areas Guiding Plans
Sewer Irondale and Port Hadlock UGA – Jefferson County
Port Ludlow – Olympic Water and
Sewer
Unincorporated Port Townsend UGA
Port Hadlock UGA Sewer Facility Plan Update, 2021
Olympic Water and Sewer Customer Confidence
Reports 2023; Washington Department of Health
Water Use, Efficiency 2023
City of Port Townsend General Sewer Plan, May
2024 (pending final adoption in 2025)
Solid Waste Jefferson County Jefferson County, Solid Waste Management Plan,
September 2016
Stormwater Jefferson County Irondale and Port Hadlock Urban Growth Area
Stormwater Management Plan, May 2004
Jefferson County Surface Water Management
Plan, November 2006
Stormwater Management Manual for Western
Washington
Transportation Jefferson County
Peninsula Regional Transportation
Planning Organization
Jefferson Transit Authority
Irondale and Port Hadlock Urban Growth Area
Transportation Plan, May 2004
Quimper Peninsula Travel Demand Model,
October 2008
Non-Motorized and Recreational Trails Plan, 2010
Quimper Peninsula Transportation Study, January
2012
Peninsula RTPO Regional Transportation Plan
2040
Jefferson County Public Works Transportation
Improvement Plan, 2025-2030
Jefferson Transit Authority, 2022 Long Range Plan and Transit Development Plan 2024-2029
Education Brinnon School District No. 46
Chimacum School District No. 49
Port Townsend School District No. 50
Queets-Clearwater School District No.
20
Quilcene School District No. 48
Quilayute Valley School District No. 402
Sequim School District No. 323
Jefferson County Rural Library District
Individual operational plans
Commented [JP2]: For consistency in Jefferson
County, a standard reference has been
established as “Irondale and Port Hadlock Urban
Growth Area (PHUGA), or as appropriate for the
context.
Commented [JH3]: Added per Ordinance 09-1209-
24 adopted December 2024
Commented [JH4]: Added per Ordinance 09-1209-
24 adopted December 2024
Commented [ME5]: JES - FYI from Al - he
recommends deleting this date so CP stays
current no matter when SWMP is updated.
Is there verbiage we can use? We could say “or
most recent plan, as amended” and there is “as
amended” verbiage highlighted above.
Commented [JH6R5]: I get what he’s saying but
we should leave this in for consistency with all
the other plans. I added “as amended” above the
table to account for this.
Commented [JH7]: @Michelle Ellsworth I think we
should keep these listed but still add the
manual?
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–4
Public Hearing Draft March 2026
Services
Providers Serving Unincorporated
Areas Guiding Plans
Fire Protection & Emergency Medical
Jefferson County Fire Protect District
No. 1 – East Jefferson Fire & Rescue
Jefferson County Fire Protection District
No. 2 – Quilcene
Jefferson County Fire Protection District
No. 4 – Brinnon
Jefferson County Fire Protection District
No. 5 – Discovery Bay - Gardiner
Jefferson County Fire District No. 7 –
Clearwater-Queets
Jefferson County Public Hospital
District No. 2
Individual operational plans
Water Port Townsend
Jefferson County Water District No. 1 –
Paradise Bay
Jefferson County Water District No. 2 –
Brinnon
Jefferson County Water District No. 3 –
Coyle
Port Ludlow Drainage District
Port of Port Townsend
Public Utility District No. 1 of Jefferson
County
Jefferson County Coordinated Water System Plan,
June 1997 [update in progress]
Jefferson County Public Utility District No. 1 Water
System Plan, 2021
City of Port Townsend Water System Plan, 2019
Source: Jefferson County, 2025; BERK, 2025.
For each service, a summary of the conditions, level of service and
demand, planning level revenue sources, and planned facilities are
provided in the Capital Facilities Technical Appendix D. Levels of service
are policy commitments to provide facilities and services within available
revenue resources and are also included in the Capital Facilities policies
in Section 8.6.
In conjunction with its budget, the County may revise this Element, as
needed, to add new projects needed to accommodate changing
development circumstances, remove projects that have been built, and
to reevaluate projects remaining in the inventory.
Countywide Planning Policies
The Countywide Planning Policies (CPPs) include many provisions that
link the Capital Facility Plan to support for the land use plan and
particularly the role of such facilities in supporting the growth in urban
growth areas (UGAs).
Commented [ME8]: Check the CPPs
Commented [ME9R8]: CPPs checked. There are
CPPs related to the provision of affordable
housing, tribal cultural resources and
coordination, and a policy on use, monitoring,
review, and amendment. But I did not include
based on limited to no relationship to CFP
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–5
Public Hearing Draft March 2026
Exhibit 8-2 Relationship of Capital Facilities Plan to Countywide Planning Policies
Countywide Planning Policy Summary & Relationship to Capital Facility Plan
Implement RCW 36.70A.110 Urban
Growth Areas (UGAs)
Use County-City of Port Townsend population forecasts to
prepare capital facilities plans.
Base designation and expansion of UGAs on the capacity to
provide public capital facilities at adopted levels of service.
Promotion of contiguous and orderly
development and provision of urban
services
Condition urban development to meet adopted levels of service
and contribute its proportionate share towards provision of those
facilities.
Do not extend urban public facilities beyond UGA boundaries (a
requirement of GMA).
Joint County and City of Port Townsend
planning within UGAs
Coordinate County and City of Port Townsend plans for provision
of Countywide capital facilities for public safety, transportation,
solid waste, storm water management, and utilities.
Siting public facilities and transportation
facilities of County or Statewide
significance
Do not extend urban public facilities to essential public facilities
sited outside of UGAs.
Countywide transportation facilities and
strategies
Guides development of the County’s Six-Year Transportation
Improvement Plan.
Requires development of Levels of Service.
Countywide economic development and
employment
Coordinate Economic Development Plan with the Capital
Facilities Element.
Rural Areas Include public facilities necessary to support the land use within
rural centers.
Fiscal impact analysis Conduct a fiscal impact analysis to ensure that the projected cost
of public capital facilities can be reasonably supported.
Summary of Trends & Opportunities
Please see the Capital Facility Plan Technical Appendix D. Generally,
County-owned capital facilities can be maintained at a level of service
that requires limited additional facilities as the county grows,
Exceptions are law and justice courtroom facilities, parks and
recreation, solid waste, and transportation, where growth would require
some additional capacity projects over time.
See also the Climate Element for policies regarding placement of
facilities with consideration of existing climate change mapping and
data.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–6
Public Hearing Draft March 2026
8.3 ESSENTIAL PUBLIC
FACILITIES
Overview
Essential public facilities include those facilities considered difficult to site
because of potential adverse impacts related to size, bulk, hazardous
characteristics, noise, or public health and safety. CPP#4 stipulates that
the County and its UGAs must identify appropriate land for public
facilities that meets the needs of the community such as airports, state
education facilities and state or regional transportation facilities, regional
transit authority facilities, state and local correctional facilities, solid waste
handling facilities, opioid treatment programs including both mobile and
fixed-site medication units, recovery residences, harm reduction
programs excluding safe injection sites, and inpatient facilities (including
substance use disorder treatment facilities, mental health facilities, and
group homes), community facilities, and secure community transition
facilities. These facilities are difficult to site, serve regional or state
requirements, or are part of a countywide service system.
RCW 36.70A.200(1) provides clarification as to what constitutes an
essential public facility:
The comprehensive plan of each county and city that is
planning under RCW 36.70A.040 shall include a process for
identifying and siting essential public facilities. Essential public
facilities include those facilities that are typically difficult to
site, such as airports, state education facilities and state or
regional transportation facilities as defined in RCW 47.06.140,
regional transit authority facilities as defined in RCW 81.112.020,
state and local correctional facilities, solid waste handling
facilities, opioid treatment programs including both mobile
and fixed-site medication units, recovery residences, harm
reduction programs excluding safe injection sites, and
inpatient facilities including substance abuse facilities, mental
health facilities, group homes, and secure community
transition facilities as defined in RCW 71.09.020.
Implementing rules by the Washington State Department of
Commerce at WAC 365-196-550(4)(b)(i) suggest a broad view of what is
considered an essential public facility:
When identifying essential public facilities, counties and cities
should take a broad view of what constitutes a public facility,
involving the full range of services to the public provided by the
government, substantially funded by the government,
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–7
Public Hearing Draft March 2026
contracted for by the government, or provided by private
entities subject to public service obligations.
The Office of Financial Management (OFM) shall maintains a list of
those essential state public facilities that are required or likely to be
built within the next six years. The OFM may at any time add facilities to
the list. (RCW 36.70a.200(4)).
In addition to the list maintained by OFM, Jefferson County may
identify other additional public facilities that are essential to providing
services to residents and without which development cannot occur.
Per the GMA, “[n]o local comprehensive plan or development regulation
may preclude the siting of essential public facilities (RCW 36.70a.200(5)).”
Essential Public Facilities & Public Purpose Lands
Confusion often arises as to the distinction between lands identified for
public purposes and those identified for essential public facilities.
Essential public facilities can be thought of as a subset of public
purpose lands. The table below illustrates this distinction.
Exhibit 8-3 Distinguishing Public Purpose Lands from Essential Public Facilities
Public Purpose Lands Essential Public Facilities
FOCUS: Lands needed to accommodate public
facilities.
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.
Examples:
Utility Corridors
Transportation Corridors
Sewage Treatment Facilities
Stormwater Management Facilities
Recreation Facilities
Schools
Other Public Uses
FOCUS: 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.
Examples:
Airports
Large-scale Transportation Facilities
State Educational Facilities
Correctional Facilities
Solid Waste Handling Facilities & Landfills
Opioid Treatment Programs (both mobile and fixed-site medication units), Recovery Residences, and
Harm Reduction Programs
Inpatient Facilities (Substance Abuse Facilities,
Mental Health Facilities & Group Homes).
Source: Jefferson County, 2025.
Many of the facilities identified in the table above as being “public
facilities” located on public purpose lands are dealt with in other sections
of this Comprehensive Plan. The facilities in the column on the right of
Commented [ME10]: Add the wastewater in the
PHUGA
Commented [ME11R10]: Under this definition of a
EPF, I think sewer/wastewater falls under a
capital facility and not a EPF.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–8
Public Hearing Draft March 2026
the table are typical essential public facilities and are addressed in this
section.
Essential Public Facility Designations in Jefferson County
Three Two facilities are designated as essential public facilities in
Jefferson County, with the County Waste Management and Airport
having unique zoning districts:
▶ County Waste Management Essential Public Facility (CWMEPF):
This district addresses facilities needed to provide waste
management public services and functions. This district currently
applies to the County’s Jacob Miller Solid Waste Facilities at 325
County Landfill Road in Port Townsend and it is likely that a new
location will be determined to better meet long-range service
demand on the facility. Policy CF-P-7.8 addresses long-range
planning for the contingency that Jefferson County may need to
plan for a local landfill to respond to global, national, or regional
waste management changes. Refer to Jefferson County’s Solid
Waste Management Plan as the source for current details.
▶ 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 (JCIA) as an essential public facility. See
additional information regarding Light Industrial/Manufacturing
Overlay in the Land Use Element. 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.
For each facility, there is a management plan:
▶ Jefferson County Solid Waste Management Plan, September 2016
▶ Jefferson County International Airport Master Plan Update, Reid
Middleton and Barnard Dunkelberg Company, Final Report, July
2014 (update is in progress with completion anticipated in 2026)
These plans address conditions, operations, facilities, future
improvements, and measures to improve compatibility with other uses.
As a system plan, the Solid Waste Management Plan also includes a
reference to a Master Plan (under development; see page 7-8
Alternative B) and siting criteria for new facilities.
Countywide Planning Policies
The adopted CPPs require the County and UGAs to develop a
cooperative and structured process, including public involvement at an
Commented [JP12]: Changed from “two” to
“three”? What is the third EPF? Compare with p.
8-22 “two essential public facilities”
Commented [JH13R12]: This was an error from
when we thought the new wastewater
treatment plant might be a designated EPF.
Switched back.
Commented [JH14]: Edited per comments from
Al Cairns, Solid Waste Manager
Commented [ME15]: Update
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–9
Public Hearing Draft March 2026
early stage, to consider the siting of public facilities of a regional, state-
wide, or federal nature. Solid waste disposal, correctional,
transportation, education, or human service facilities, or any other
locally unpopular land uses are examples of those facilities. Any new
facilities or major expansions of existing facilities must conform to
these locally defined siting procedures described in the strategies
section. A legislative (Type V) special use permit process for siting
essential public facilities is outlined in Chapter 18.40 JCC.
Countywide Planning Policy #4 outlines the County’s approach to the
siting of public capital and transportation facilities, including policies on
essential public facilities:
▶ The County and incorporated UGAs will jointly develop specific
criteria for identifying and siting essential public facilities. The
proposed criteria will be considered in the drafting of
comprehensive plan policy addressing this issue. Elements of siting
criteria should include, but not be limited to the following:
— proximity to major transportation routes and essential
infrastructure.
— land use compatibility with surrounding area.
— potential environmental impacts.
— effects on resource and critical areas.
— proximity to UGA.
— public costs and benefits including operation and
maintenance.
— current capacity and location of equivalent facilities.
— the existence, within the community, of reasonable alternatives
to the proposed activity.
▶ Comprehensive plans and development regulations will not
preclude the siting of essential public facilities; however, standards
may be generated to ensure that reasonable compatibility with
other land uses can be achieved.
▶ Essential public facilities sited outside of UGAs should be self-
supporting and not require the extension, construction, or
maintenance of urban services and facilities unless no practicable
alternative exists. Criteria will be established that address the
provision of services when siting an essential public facility.
Essential public facilities shall not be located in resource lands or
critical areas if incompatible.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–10
Public Hearing Draft March 2026
Summary of Trends & Opportunities
The County’s Solid Waste Management Plan1 (2016) proposes
approaches to reducing waste and promoting reuse and composting
to benefit the environment and local economy by creating local jobs
and allowing residents to stretch budgets, as well as the long-term
management of the solid waste system.
The JCIA has developed a Master Plan as of 2014 and together with the
County can help implement preferred aviation and allowable non-
aviation uses to advance the county’s economy. The plan also includes
recommendations regarding land use restrictions in general aviation
areas and other land use matters.
8.4 UTILITIES
Electric Utilities
Providers
Public Utility District #1 of Jefferson County (JPUD) provides
electricity to over 90% of the residents of unincorporated Jefferson
County. JPUD acquired the assets from Puget Sound Energy on the
1st of April 2013. Their electrical services territory includes about 21,000
active electrical connections throughout Eastern Jefferson County,
except for the Brinnon area, as of 2024.2 The JPUD serves the majority
of residents in the county so is the focus of this electrical utility
analysis.
Mason County PUD is a public utility district that provides electricity
to 1,700 residents [pending confirmation] of the southeastern portion
of Jefferson County in the Brinnon area.
The Grays Harbor County PUD is a public utility district that provides
electricity to 200 residents of the southwestern portion of Jefferson
County in the Queets/Clearwater and Quinault areas.3
1 Jefferson County Public Works, 2016.
2 As of 2024, JPUD had 23,822 total services in place, including 2,716 idle
services. JPUD 2024 Rural Utilities Service Form 7 (Financial and Operating
Report Electric Distribution report to USDA), 2024; JPUD Customer Count
Tracking Dashboard, accessed April 2025.
3 Personal Communication, M.Warner, Grays Harbor PUD, 2025.
Jefferson County
Commented [ME16]: Confirm / update
Commented [ME17R16]: No change - these
documents have not been updated.
Commented [ME18]: Includes about 21,000
Commented [JH19R18]: Updated per JPUD’s RUS
Form 7 - in 2024, there were 23,822 total services
in place with 2,716 idle (or 21,106 active). Looking
at 2023 RUS Form 7, 23,656 total - 2,663 idle =
20,993, which is very close to the 20,713 active per
the dashboard. Using the RUS form as the
primary source here but the dashboard gives us
other customer info too.
Commented [ME20]: Email PUD. How many
residents do you serve in Jefferson County?
Commented [ME21R20]: K.Talevich (Records
Specialist w GH PUD) confirmed there are 168
customers with active service.
Commented [ME22R20]: Confirmed on 4/2 by
Megan Warner (Customer Service Supervisor)
with Grays Harbor PUD. 200 customers
Commented [ME23]: Verified via
https://www.ghpud.org/about-us/service-area/
Commented [ME24R23]: FUP’d on 2/24
Commented [ME25R23]: Confirmed via personal
communication with Kaila Talevich (Records
Specialist) - 2/24
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–11
Public Hearing Draft March 2026
The Clallam County PUD is a public utility district that provides
electricity to 200 residents of the northwestern portion of Jefferson
County in the Hoh River area.4
Duty to Serve
The State's mandated "duty of service" requires electrical utilities to
furnish and supply service and facilities that are safe, adequate,
efficient, and in all respects, just and reasonable. The JPUD Board of
Commissioners applies this standard by reviewing and approving the
terms and conditions under which electrical service is provided. These
terms and conditions relate to both the cost and levels of service.
A key principle underlying this regulatory structure is that utility facilities
must be provided on a uniform basis to all customers and equitably
recovered through uniform rates. Regulatory law therefore prohibits
JPUD from differentiating among jurisdictions as to the cost or levels of
service.
JPUD Inventory
Service Area and Communities: The JPUD electrical system serving
eastern Jefferson County is geographically bounded in general by the
Admiralty Inlet to the north, Puget Sound to the east, Hood Canal to
the south, and the Olympic National Forest to the west.
The JPUD planning subarea for Jefferson County contains
approximately 250 square miles [to confirm] and includes the
communities (from south to north) of Quilcene, Port Ludlow,
Chimacum, Port Hadlock, Gardiner, Nordland, and Port Townsend. It
also extends from the tip of Coyle Peninsula to the end of Sequim Bay.
There is a wide range of service demand intensities, from undeveloped
areas with no demand to areas of high demand commercial customers.
Equipment and Facilities: The JPUD owns and operates 9 substations
and 34 miles of transmission lines. As of February 2025, there are 1,315
total miles of distribution line, 785 total miles of underground line, 530
total miles of overhead line, 1,000 streetlights, more than 10,000
distribution poles, and nearly 8,000 transformers.5
In addition, JPUD facilities include its headquarters at 310 Four Corners
Road in Port Townsend. In 2022 and 2024, JPUD purchased two
collocated buildings at 191 Otto Street and 193 Otto Street to provide
4 Personal Communication, N.Hartman and S. Shere, Clallam County PUD, 2025.
5 JPUD 2024 Rural Utilities Service Form 7 (Financial and Operating Report
Electric Distribution report to USDA), 2024; JPUD February 2025 Newsletter,
2025.
Commented [ME26]: Verified via this surface map:
https://www.clallampud.net/wp-
content/uploads/Service-Area-Clallam.pdf
Commented [ME27R26]: FUP’d on 2/24
Commented [ME28R26]: Confirmed via personal
communication with Nicole Hartman and
Shailesh Shere.
Commented [JH29]: Updated from 24 to 34 per
JPUD’s RUS Form 7.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–12
Public Hearing Draft March 2026
office space for its 76 employees. Its employee count is expected to
grow to 100 employees before 2030.6
In 2022, JPUD commenced a service area meter replacement to an
advanced meter infrastructure type, exchanging approximately 20,000
meters. As of January 2025, this project is nearly complete with 300
meters remaining to be upgraded.7
Generation: There are no JPUD generation facilities within Jefferson
County other than small capacity generation at the Port of Port
Townsend. Only the utility transmission network and distribution
substations support the JPUD service area.
Transmission Network: JPUD purchases and uses Bonneville Power
Administration (BPA) for its generation and transmission requirements.
The BPA network transports electricity from generation resources to
transmission substations, and from transmission substations and
switching stations, to distribution substations.
Electrical utility service is supplied to Jefferson County by JPUD
through the larger regional transmission grid (interconnected system
of electric lines and associated equipment) at 500 kV (500,000 volts)
and 230 kV (230,000 volts) voltages from distant generating plants
along the mid-Columbia River. The region's transmission grid lines
carry this power from the generation facilities westerly to the
Bonneville Power Administration (BPA) Olympia Transmission
Substation.
From this point, a majority of the Olympic Peninsula, including JPUD's
Jefferson County regional loads, are served to the north via the BPA
Shelton Transmission Substation to the BPA Fairmount transmission
substations. At the Fairmount transmission substation, the power is
transformed down from 230 kV to 115 kV and 66kV for delivery to
neighborhood distribution substations within the county.
Power transformed from 230 kV to 115 kV is provided by two
transformers at the BPA Fairmount Transmission Substation. These
voltages are used to serve specific Jefferson County distribution
substations. BPA Power is also transformed from 230 kV to 115 kV at the
JPUD’s Quilcene substation.
Distribution Substations: Distribution substations within Jefferson
County serve distribution feeder lines (circuits from a distribution
substation to the customer, usually energized at 4, 12 or 34 kV).
Distribution substations are located at Discovery Bay, Hastings Rd.,
Irondale, Kearney Street, Port Ludlow, and Quilcene.
6 JPUD 2024 Combined Newsletters (June 2024 Newsletter), 2024.
7 JPUD February 2025 Newsletter, 2025.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–13
Public Hearing Draft March 2026
Current Usage: As of 2024, there were 21,106 active customer accounts
including approximately 18,419 residential customers;8 average use is
12,000 kWh per customer per year, or 1,000 kWh per month. Per 0, most
of JPUD’s electrical income comes from residential customers.9
Exhibit 8-4 JPUD Electrical Energy Usage by Customer Class (2021)
Note: This exhibit was updated since the 2018 Comprehensive Plan with more recent data.
Note: “Int. Schools” refers to “Interruptible Rate for Schools,” a term originating with Puget Sound Energy.
Source: JPUD (FCS Group), Water, Sewer, and Electric Rate Study & Pole Attachment Fee Update (Exhibit 3.19), 2021.
Electricity: Future Capacity Needs & Requirements
Siting of New Facilities: As development occurs within Jefferson
County, a proportionate increase in area electrical service demand and
resulting service load is anticipated. Due to the service on demand
requirements of this utility, it is important that the County and utility
providers maintain open lines of communication regarding siting of
new facilities. The timing of construction of new and/or expanded
facilities will be driven by the rate of growth and the need to improve
reliability in an area.
8 Residential customers account for approximately 87% of all customer
accounts at JPUD per the 2021 Water, Sewer, and Electric Rate Study (Exhibit
3.19). JPUD 2024 Rural Utilities Service Form 7 (Financial and Operating
Report Electric Distribution report to USDA), 2024
9 JPUD (FCS Group), 2021 Water, Sewer, and Electric Rate Study & Pole
Attachment Fee Update.
Commented [ME30]: The 2023 PUD audit report
mentions 20,500 electrical connections. But the
online dashboard says 21,812.
Commented [JH31R30]: Updated per JPUD’s RUS
Form 7, 23,822 total services in place with 2,716
idle (or 21,106 active) in 2024.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–14
Public Hearing Draft March 2026
Capacity of Electrical Utility Facilities: As the local transmission
system is designed as an integral component of a regional power
system, development occurring outside the county may have local
impacts on system capacity. At the same time, growth in the county
will contribute to the electrical service load of the regional power
system and the potential need for systems facilities outside the county.
Building codes and utility facility siting policies affect the service loads
and the capacity to upgrade existing facilities.
Future Capacity Needs: Per the Land Use Element, a population
increase of 5,900 persons is expected countywide by 2045, with 5,675 in
JPUD’s service area (excludes the projected increase of 43 people in the
Brinnon RVC and 182 people in the future Pleasant Harbor MPR in
Brinnon; see the Land Use Element). Those customers would increase
demand for electricity by about 24% [pending confirmation with JPUD].
These population capacity needs are aligned with JPUD’s growth
assumptions. The 2021 JPUD Rate Study assumes an annual residential
customer growth of 0.98% per year, which would assume 22,605 total
residential customers by 2045. This is slightly lower than the total
residential customers identified in Exhibit 8-5. However, this growth
would occur incrementally over the 20-year planning horizon and it is
assumed that JPUD will account for growth in future rate and planning
studies as it occurs [pending confirmation with JPUD].
Exhibit 8-5 Estimated Residential Population Electricity Demand (2045)
Customers kWh/year Annual kWh Share
Current Residential Customers (Population) 18,419 12,000 221,030,474 76.5%
Future Growth in JPUD Service Area (excluding
Brinnon)
5,675 12,000 68,100,000 23.6%
Total 24,094
289,130,474 100%
Source: JPUD (FCS Group), Water, Sewer, and Electric Rate Study & Pole Attachment Fee Update 2021; BERK, 2025.
In addition, there will be demand from commercial and industrial users.
Energy Efficiency Program: JPUD has an energy efficiency program
that includes incentives for conservation projects. Every two years, the
Bonneville Power Administration provides JPUD with $900,000 in
funding to distribute as rebates for energy efficiency upgrades for
customers. This funding has helped 405 projects per year since 2019. 10
Energy efficiency programs and trends towards renewable energy can
further reduce demand.
10 JPUD, The Energy Efficiency Puzzle, 2024.
Commented [ME32]: Internal Reference: LOS
Calculations.xlsx
For these counts, I am assuming that the growth
in the JPUD service area would be all growth in
JeffCo with the exception of Brinnon and the
growth in other rural areas.
To calculate additional customers, I based it on
housing growth numbers. My charts are within
the LOS Calculations.
For current residential customers, I took the total
amount of customer accounts listed on their
website, and I multiplied it by the percentage of
customer accounts that are residential accounts.
This number will be confirmed with JPUD.
Commented [JH33R32]: Updated to remove
Brinnon and the Pleasant Harbor MPR (which is
also near Brinnon). Included all “other rural” as
those are still mostly eastern JC, likely served by
JPUD. Adjusted to use population growth since
the usage is per customer (not HU), to be
confirmed with JPUD.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–15
Public Hearing Draft March 2026
Future Facilities Requirements: JPUD identified long-range capital
projects in its 2023 budget cycle. These long-range capital projects look
over a timeframe of 5-10 years and are reviewed every 2 years. The
capital projects include two substation transformers and upgrades to
substations in Chimacum, Port Ludlow and Quilcene. As development
occurs, other investments in the distribution system may occur.
Telecommunication Utilities
Telecommunications Systems Types & Regulations
Telecommunications include a wide range of rapidly expanding services,
including conventional telephone service, personal wireless services, and
video delivery systems. Due to the rapid advances in
telecommunications technologies, the subsequent changes in
transmission equipment and capabilities, and federal legislation
encouraging future development, it is important that the County and
telecommunications services providers maintain open lines of
communication.
The Washington Utilities and Transportation Commission (WUTC)
regulates telecommunications utilities. Because of the Federal
Telecommunications Act of 1996, it is anticipated that telecommunications
services regulations will continue to be developed and refined.
The Federal Communications Commission (FCC) regulates the
telecommunications airwaves including radio frequency emissions
standards, all antenna and dish structures used for
telecommunications services, and is responsible for issuing licenses to
operate wireless common carrier services (cellular telephone, personal
communication services, mobile radio services, and other wireless
common carriers).
Local government involvement in regulation of the development of
telecommunications services, particularly wireless common carriers,
includes identifying systems facilities siting criteria and a permit review
process on applications for the placement, construction, or
modification of a wireless common carrier facility site.
Local governments have been preempted by federal case law from
regulating Federal Aviation Administration (FAA) covered facilities. The
FAA reviews location and height of proposed towers to prevent
interference with operations of airports and flight paths. The FAA
regulates proposed towers that exceed 200 feet and smaller towers
located within 20,000 feet of a major airport and 10,000 feet of general
aviation airports. The FAA does not have the authority to deny a FCC
construction permit, but it can cite a proposed tower as a hazard to
navigation.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–16
Public Hearing Draft March 2026
Conventional Telephone
CenturyLink (formerly QWest Communications International) provides
the majority of conventional telephone service in the county.
CenturyLink offers telecommunications services to 25 million customers
in 14 western states. Telecommunications regulations require
CenturyLink to provide adequate telecommunications services on
demand.
Cellular Service
Cellular service is offered by several providers in the county. Cell towers
are located throughout eastern Jefferson County. Facilities identified
with potential leases include T-Mobile, Verizon, Cingular, and Monarch.
Broadband
Eastern Jefferson County
JPUD has been operating a fiber network since 2013. In 2013, JPUD and
Northwest Open Access Network (NoaNet) installed a fiber optic and
wireless network, and the PUD now has approximately 50 miles of fiber
built out across the county. However, due to limitations on PUDs
providing wholesale access to their fiber network, few businesses and
residents have access to JPUD’s fiber.
From 2018-2021, JPUD completed a strategic plan focused on
identifying locations for broadband infrastructure expansion in the
county. Exhibit 8-6 lists a set of projects that JPUD identified for fiber
optic expansion throughout Eastern Jefferson County. These projects
will provide broadband to approximately 4,000 homes across Eastern
Jefferson County. Funding sources for these projects include grants
from the National Telecommunications and Information Administration
(NTIA), USDA Rural Utilities Services, Washington State Broadband
Office (WSBO), Jefferson County, the Public Works Board, loans, and
customers. In funded project areas, JPUD is installing fiber optic cables
to eligible residents and businesses.
Exhibit 8-6 JPUD Broadband Expansion Projects (2025)
Project Name Areas
Funding
Sources
Est.
Customers
Fiber
Miles
Est.
Completion
Olympic Fiber
Corridor
Quilcene-Gardiner area, including
Quilcene, Discovery Bay, Gardiner
and parts of Chimacum and
Central Valley.
WSBO
NTIA
856 240 May 2025
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–17
Public Hearing Draft March 2026
Project Name Areas
Funding
Sources
Est.
Customers
Fiber
Miles
Est.
Completion
Inbetweens
Fiber Project
Parts of Quilcene, Discovery Bay,
Gardiner, Chimacum
WSBO 431 48 May 2025
Discovery Bay
East Fiber
Project
Highway 20 corridor from
Anderson Lake Road to Four
Corners Road
WSBO
Jefferson County.
Public Works
Board
646 8.3 Nov 2025
Jefferson North
Fiber Project
Cape George, Middlepoint,
Woodland Hills, and parts of
Marrowstone Island
WSBO
Jefferson
County
646 100 Feb 2026
Port Townsend
Business Project
Port Townsend, Fort Worden, Glen
Cove
Loan
Public Works
Board
163 businesses 47 Feb 2026
Southeast
Jefferson Fiber
Project
Chimacum-Coyle rea, including
Chimacum, Egg & I, Port Ludlow,
and Coyle
WSBO
USDA RUS
653 100 April 2027
Adjacent Areas Limited homes and businesses
near a funded project area. Areas
just outside grant area
— — — —
Notes: NTIA is Telecommunications and Information Administration.
USDA RUS is United States Agricultural Department Rural Utilities Services
WSBO is Washington State Broadband Office.
Source: JPUD - Broadband Services Area, 2025.
JPUD provides broadband services and facilities in accordance with the
provisions of RCW 54.16.330, which enables JPUD to provide internet
service directly to eligible customers. Customers with PUD Fiber can
receive monthly services either through JPUD or a qualified internet
service provider, which includes Advanced Stream, Jamestown
Networks, and North Olympic Data Centers.
Southern Jefferson County (Brinnon Area)
Broadband services are provided in the Brinnon area through Hood
Canal Communications. The Northern Hood Canal Fiber Extension
Project, completed in 2023, provided increased broadband connectivity
to 862 homes in underserved areas, including rural Jefferson County
and the Brinnon area.11 Hood Canal Communications is continuing to
roll out its broadband network throughout southern Jefferson County.12
11 Hood Canal Communications, Ribbon Cutting for Brinnon Broadband, 2023.
12 Hood Canal Communications, Service Areas, n.d.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–18
Public Hearing Draft March 2026
Western Jefferson County
Residents in Western Jefferson County in the Queets/Clearwater and
Quinault area receive broadband services through Starlink, Viasat,
HughesNet, and CenturyLink in select instances.
Telephone: Future Capacity Needs & Requirements
Conventional Telephone: State law requires CenturyLink to provide
adequate telecommunications services on demand. WAC 480-120-
071(3) requires establishment of a line extension policy, which is
contained in CenturyLink’s tariff WNU-24 Schedule 9, filed with the
State of Washington Utilities and Transportation Commission (WUTC).
Chapter 480-120 also contains performance standards.
The needs of its Jefferson County customers drive CenturyLink’s
construction planning. As the county grows and telecommunications
services evolve, facilities are upgraded to ensure adequate service levels.
CenturyLink’s goal is to maintain routes at 85% capacity. When usage
exceeds 85%, additional facilities will be planned, budgeted, and installed.
Wireless Common Carriers (Including Cellular Phone Service): Unlike
other utilities, the cellular phone industry does not necessarily conduct
long-range strategic facilities planning. Market demand is analyzed to
determine expansions into new service areas. Cellular phone service
can be expanded in a given area to provide better service to cellular
customers in two ways:
▶ Extending the coverage to new areas, or
▶ Increasing the capacity of the system within the current service
area.
A decision to expand the system depends on several factors. First, the
number of current customers within the area and the capacity of the
current system are analyzed to identify the need to expand. Second, the
quality of service within the area is continually evaluated, both
electronically, at the switching equipment, and through feedback from
customers. If there are a significant number of service failures reported,
including dropped calls, continuous busy signals, or an "all circuits are
busy" message, the capacity of the system must be evaluated and
usually improved to maintain consumer market share. Third, the FCC
license granted to the cellular carrier requires that service be provided
to 75% of its Cellular Geographical Service Area (CGSA) within five years
from the date the license is granted. Maintaining a high quality,
interference-free service is essential to comply with these FCC
requirements.
In general, it is anticipated that additional sites within the Jefferson County
service area will be located responsive to customer service needs, generally
following increases in population densities and high-volume traffic corridors.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–19
Public Hearing Draft March 2026
Countywide Planning Policies
The CPPs address adequate utilities within UGAs (#3), and the
coordination of the Economic Development Element with the Utility
Element (#7).
Summary of Trends & Opportunities
Since 1998 with the founding of the Comprehensive Plan, service
providers have changed and advanced with the JPUD purchasing the
electrical power system from Puget Sound Energy, offering lower rates,
and upgraded infrastructure. An ongoing and expanding opportunity
in power service is conservation through energy efficiency and use of
natural energy sources through solar, wind, and waves.
Telecommunication services have expanded with the installation of
broadband fiber optic cables, also under the heading of JPUD, with
broadband expansion occurring throughout Eastern Jefferson County.
These changes offer opportunities to improve the quality of life of
Jefferson County residents and to attract businesses as identified in the
Economic Development Element.
As noted in the Climate Element and the State of Washington’s
Integrated Climate Response Strategy “Preparing for a Changing
Climate,” climate change will affect infrastructure including “increased
damage costs and disruptions from more frequent and severe flooding,
wildfires, changes in energy supply and demand, and other climate
impacts.” The strategy also notes that there could be increased
maintenance and operations, travel delays and disruptions, as well as
effects on emergency evacuation routes.13
Some adaptation measures have been identified by state and local
planners, including:14
▶ Protecting infrastructure by strengthening dikes and levees and by
using other hard or soft structural approaches.
▶ Strengthening infrastructure to better withstand climate impacts
(such as flooding or extreme heat) through improved materials,
design, and construction techniques.
▶ Raising or elevating infrastructure to protect it from flooding.
13 Ecology, Preparing for a Changing Climate: Washington State’s Integrated
Climate Response Strategy (Publication No. 12-01-004), 2012.
14 Ecology, Preparing for a Changing Climate: Washington State’s Integrated
Climate Response Strategy (Publication No. 12-01-004), 2012; American
Planning Association Washington Chapter, Address Climate Change:
Planning for Climate Change Adaptation, 2015.
Commented [ME34]: Check/Update
Commented [ME35]: Can we link this to some of
the Climate element work? Are there new
reports to reference?
Commented [ME36]: Can we link this to some of
the Climate element work? Are there new
reports to reference?
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–20
Public Hearing Draft March 2026
▶ Relocating, decommissioning or abandoning selected infrastructure
where the costs of protection and maintenance outweighs the benefit.
▶ Adjusting Benefit-Cost Analysis to account for additional impacts of
climate change to life cycle of infrastructure.
▶ Updating zoning to prohibit critical infrastructures in vulnerable
coastal zones; relocate or protect critical assets such as railroads,
major arterials, water treatment plants and power stations;
consider recreational uses and habitat restoration for storm surge
buffers.
8.5 CAPITAL FACILITIES &
UTILITIES PLAN
Capital Facilities
The Capital Facilities Plan Technical Appendix D provides a plan for
future facilities and anticipated revenue to support new growth
projected in the Land Use Element.
Essential Public Facilities
The policies of this element and the Unified Development Code provide
the framework for the process for designating and siting Essential
Public Facilities. Two facilities have been designated to date, and have
plans that guide their long-term uses, activities, investments, and
operations, including compatibility with surrounding uses:
▶ Jefferson County Solid Waste Management Plan, September 2016
▶ Jefferson County International Airport Master Plan Update, Reid
Middleton and Barnard Dunkelberg Company, Final Report, July
2014 (update is in progress with completion anticipated in 2026)
Utilities
Power and telecommunication service providers maintain plans for
service, particularly JPUD, who is advancing a strategic facilities plan for
its operational headquarters, new advanced electrical meters county-
wide. JPUD is helping to manage electrical demand by offering
incentives for increased efficiencies such as through rebates on
documented expenses for approved home or commercial energy
improvements.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–21
Public Hearing Draft March 2026
From 2018–2021, JPUD completed a strategic plan that evaluated
expansion of its high-speed open-access broadband network to
residences in Jefferson County, to where there is demand to build
broadband infrastructure. JPUD identified projects for broadband
expansion throughout Eastern Jefferson County
The County can support JPUD energy conservation and broadband
implementation with appropriate permit procedures, and potential
development incentives (e.g., energy conservation above and beyond
State Energy Code may receive some development incentives in UGAs).
These efforts dovetail with Economic Development Element strategies
to retain and attract a workforce and businesses.
8.6 GOALS & POLICIES
Capital Facilities
The Capital Facility Plan unites all the elements of this Comprehensive
Plan. The function of the Plan is to establish a viable planning link
between inventory, levels of service (LOS), and financing for future
public facilities. The goals state the general growth management
intentions of the County. The policies are guidelines for decisions on
how goals will be achieved. Strategies describe specific programs or
actions to implement policies.
General
Goal CF-G-1 Establish and maintain appropriate and
equitable levels of service for public facilities.
Policy CF-P-1.1 Establish the following LOS for categories of public
facilities and apply the standards as follows:
Category A Public Facilities are the public facilities owned or
operated by Jefferson County subject to concurrency.
— Category A LOS: Maintain LOS DC or better for rural road
facilities based upon Average Annual Daily Trips. Maintain LOS
D or better on all road facilities within urban growth areas,
Master Planned Resorts, and Highways of Regional Significance
as established by the Peninsula Regional Transportation
Planning Organization (PRTPO), based upon Average Annual
Daily Trips.
— Category A LOS will guide the County's capital budget and
capital improvements program.
See the Transportation
Element and Transportation
Technical Appendix C.
Commented [JH37]: Revised per EJC’s youth
informed discussions and added new policy
below. EJC’s full recommendation was to revise
to ““Establish and maintain equitable levels of
service for public facilities — including libraries,
community centers, recreation spaces, and
cultural hubs — with attention to rural access,
youth participation, universal design, and the
needs of marginalized populations such as
LGBTQ+ and disabled residents.”
Commented [JH38]: Adjusted per TE edits
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–22
Public Hearing Draft March 2026
Category B Public Facilities are the public facilities owned or
operated by Jefferson County subject to LOS standards.
— Category B LOS:
Note: This table currently compares the adopted LOS from the 2018 Comprehensive Plan
(presented as a bulleted list in the 2018 Plan) to proposed LOS to meet 2045 service needs. See
Appendix D. The table will be updated prior to adoption to show only the final, adopted LOS.
Category B Public Facilities 2018 Adopted LOS Proposed LOS
Public Administration & Law Enforcement
Animal Control Shelter 58 square feet per 1,000 pop. 2038 57 square feet per 1,000 pop.
Community Centers 1,005 square feet per 1,000 pop. 2038 975 square feet per 1,000 pop.
Corrections Inmate Facilities 1.48 beds per 1,000 pop. 2038 1.43 beds per 1,000 pop.
County Sheriff Facilities 200 square feet per 1,000 pop. 2038 198 square feet per 1,000 pop.
County Justice Facilities 515 square feet per 1,000 pop. 2038 503 square feet per 1,000 pop.
County General Administrative Facilities 1,020 square feet per 1,000 pop. 2038 No change.
County Maintenance Shop
Facilities
825 square feet per 1,000 pop. 2038 801 square feet per 1,000 pop.
Parks and Recreation Revise to match 2022 PROS Plan
Regional Parks 19.07 acres per 1,000 pop. 2023 &
18.43 acres per 1,000 pop. 2038 19.0 acres per 1,000 pop.
Community Parks 3.05 acres per 1,000 pop. 2023 & 2.94 acres per 1,000 pop. 2038 2.90 acres per 1,000 pop.
Neighborhood Parks 0.16 acres per 1,000 pop. 2023 &
0.18 acres per 1,000 pop. 2038 0.17 acres per 1,000 pop.
Open Space 4.85 acres per 1,000 pop. 2023 &
4.69 acres per 1,000 pop. 2038 No change
Special Use 3.24 acres per 1,000 pop. 2023 &
3.24 acres per 1,000 pop. 2038 No change1
Trails Base LOS 0.52 miles per 1,000 pop.
2023 & 2038
Target LOS if funding allows, 1.83
miles per 1,000 pop. 2023 & 2038
No change
Sewer, Water, Stormwater, and Solid Waste
Solid Waste, Garbage 3.12 pounds per capita per day
2038
0.57 annual tons per capita.
(Revise from pounds per capita
per day to annual tons per
capita)No change
Commented [ME39]: JES - I checked these LOS
with the CFP TA. With this blue highlight, let me
know if you want to keep it as is or if we want to
update it to show only the final, adopted LOS
Commented [JH40R39]: Keeping through BOCC
review, thanks!
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–23
Public Hearing Draft March 2026
Category B Public Facilities 2018 Adopted LOS Proposed LOS
Solid Waste, Recycle 2.8 pounds per capita per day
2038
Delete, recycling transitioning to
private sector in 2026
Stormwater Management
Facilities
Stormwater Management Manual
for Western Washington No change
Water System Facilities Pending Pending CWSP update
Sewer Systems Pending Port Hadlock UGA Sewer Facility
Plan Update (as amended)
1 The County is no longer meeting the PROS Plan’s adopted LOS standard for special use parks based on
the current population and updated inventory information from County staff (see Appendix D). The LOS
standard for special use parks is expected to be addressed in the next PROS Plan update.
— Category B LOS will guide the County's capital budget
decisions including the capital improvements program.
Category C Public Facilities are the following facilities owned or
operated by the Federal or State government, independent
districts, the City of Port Townsend (outside the incorporated
limits), and private entities.
— Category C LOS:
Note: This table currently compares the adopted LOS from the 2018 Comprehensive Plan
(presented as a bulleted list in the 2018 Plan) to proposed LOS to meet 2045 service needs. See
Appendix D. The table will be updated prior to adoption to show only the final, adopted LOS.
Category C Public Facilities 2018 Adopted LOS Proposed LOS
Transportation
Roads Same as for Category A above Same as for Category A above,
see also the Transportation
Element
Active Transportation (new) N/A (new) See Transportation Element
Transit Support the operational and
comprehensive planning of
Jefferson Transit Authority to
reduce auto dependency and
enhance regional trips by transit
ridership and TDM. Jefferson
County defaults to Jefferson
Transit Authority’s definition and
findings of transit levels of service,
and will collaborate with Jefferson
Transit Authority on the county’s
transit system service needs.
See Transportation Element
Airport JCIA: Pursuant to JCIA Master Plan
2014 or successor.
No change
Commented [JH41]: Delete per comments from
Al Cairns, Solid Waste Manager - showing
revision in this table consistent with other
currently adopted LOS standards
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–24
Public Hearing Draft March 2026
Category C Public Facilities 2018 Adopted LOS Proposed LOS
Sanitary Sewer
City of Port Townsend 260 gallons per day/ERU No change
Olympic Water and Sewer 230 gallons per day/ERU No change
Water 840 gallons per day/ERU
City of Port Townsend 200 gallons per day/ERU No change
Olympic Water and Sewer 160 gallons per day/ERU No change
PUD No.1 200 gallons per day/ERU No change
Tri-Area (City of Port
Townsend)
800 gallons per day/ERU No change
Fire, Emergency Medical Services, & Hospital Services Fire Districts: Revise if effective
LOS (based on 2024 district
population and updated
inventory information) is below
County’s adopted standard
Jefferson County Fire
Protection District No. 1 (East
Jefferson Fire & Rescue)
0.29 EMS units in service per 1,000
pop. 2038
0.42 fire units and 0.29 EMS units
in service per 1,000 pop.
Fire District 2 (Quilcene) 2.0 fire units in service per 1,000
pop. and 1.4 EMS units in service
per 1,000 pop. 2038
1.9 fire units and 1.4 EMS units in
service per 1,000 pop.
Fire District 3 (Port Ludlow) 1.0 fire units in service per 1,000
pop. and 0.8 EMS units in service
per 1,000 pop. 2038
Delete, merged with Fire
Protection District No. 1
Fire District 4 (Brinnon) 1.25 fire units in service per 1,000
pop. and 0.5 EMS units in service
per 1,000 pop. 2038
No substantive change, remove
reference to year
Fire District 5 (Gardiner) 3.0 fire units in service per 1,000
pop. and 3.0 EMS units in service
per 1,000 pop. 2038
No substantive change, remove
reference to year
Fire District 7 (Clearwater) 2.0 fire units in service per 1,000
pop. and 0 EMS units in service
per 1,000 pop. 2038
No substantive change, remove
reference to year
Port Townsend Fire
Department
0.29 EMS units in service per 1,000
pop. 2038
Delete, merged with Fire
Protection District No. 1
Jefferson County Public
Hospital District No. 2
0.75 beds per 1,000 population
2023 and 2038
0.72 beds per 1,000 pop.
(Revise to 2025 effective LOS)
Education & Library Services
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–25
Public Hearing Draft March 2026
Category C Public Facilities 2018 Adopted LOS Proposed LOS
Brinnon School District 46 K-8: Not to exceed 23
students/classroom
No change, effective LOS (based
on 2025 population and updated inventory information)
is meeting standard for all
school districts (e.g., lower than
the adopted standards)
Chimacum School District 49 K-12: Not to exceed 27
students/classroom
Port Townsend School District
50
K-3: Not to exceed 26
students/classroom
4-6: Not to exceed 30
students/classroom
7-12: Not to exceed 34
students/classroom
Queets/Clearwater School Dist.
20
K-12: Not to exceed 26
students/classroom
Quilcene School District 48 K-12: Not to exceed 26
students/classroom
Quillayute School District 402 K-12: Not to exceed 26
students/classroom
Sequim School District 323 K-12: Not to exceed 26
students/classroom
Jefferson County Library 433 square feet per 1,000
population 2023 and 2038
280 square feet per 1,000 pop.
(Revise to 2025 effective LOS)
— Misc.: In addition to the LOS standards outlined above, the
policies of the Land Use Element relating to the development
and financing of public facilities in rural and urban areas
constitute additional LOS standards in accordance with the
County-wide Planning Policies.
— Category C LOS guide the capital budget decisions and the
capital improvements programs of the appropriate entities.
Policy CF-P-1.2 Jefferson County may adopt different levels of service
for urban growth areas and rural areas of the county.
Policy CF-P-1.3 Levels of service for public facilities in the
unincorporated portion of urban growth areas are the same as the
County's adopted standards.
Policy CF-P-1.4 Maintain and use updated departmental functional
plans to guide development of capital properties and investment
decisions within each functional area. Ensure functional plans are
generally consistent with the adopted Comprehensive Plan.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–26
Public Hearing Draft March 2026
Policy CF-P-1.5 If projected funding is inadequate to finance projected
capital facility needs based on adopted LOS standards and guidelines,
adjust the level of service standards and guidelines, the planned
growth in the Land Use Element, and/or the source of revenue to
maintain a balance between available revenue and needed capital
facilities.
Policy CF-P-1.5Policy CF-P-1.6 Ensure adopted levels of service consider
rural access, youth participation, universal design, and the needs of
marginalized populations such as LGBTQ+ and disabled residents.
Goal CF-G-2 Implement a Six-Year Capital Facilities
Concept Plan that ensures that County-owned public
facilities meet the adopted level of service.
Policy CF-P-2.1 Determine the quantity of capital improvements that
are needed to eliminate existing deficiencies and to maintain the Level
of Service standards for Category A and B public facilities.
Policy CF-P-2.2 Establish priorities among capital improvements
projects through amendments to the Capital Facilities Element and the
County’s Six-Year Capital Facilities Concept and Transportation
Improvement Plans.
Policy CF-P-2.3 Ensure that the estimated cost of all capital
improvements does not exceed a conservative estimate of available
revenues. A conservative estimate need not be the lowest estimate but
does not exceed the most likely estimate. It does not include revenues
that require approval by a referendum, if that referendum has been
rejected.
Policy CF-P-2.4 Include an appropriation in the annual budget for all of
the capital improvement projects listed in the Capital Facilities Element
for that year. Omit from the budget capital improvements for which
there is a binding agreement with another party to fund those capital
improvements in the same fiscal year.
Policy CF-P-2.5 Monitor the implementation of the capital
improvement program and development to ensure that the Land Use,
Transportation, and Capital Facilities Elements are coordinated and
consistent, and that established Level of Service standards for public
facilities are achieved.
Policy CF-P-2.6 Finance capital improvements and manage debt
consistent with Capital Improvement Plans and the Capital Facilities
Element of the Comprehensive Plan.
Policy CF-P-2.7 Consider subsequent operating and maintenance costs
when planning for capital facilities.
Commented [JH42]: Added per EJC’s youth
informed discussions
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–27
Public Hearing Draft March 2026
Policy CF-P-2.8 Provide public facilities or accept their provision by
other entities only if Jefferson County or the other entity is able to pay
for subsequent operating and maintenance costs
Policy CF-P-2.9 Revise the Level of Service standard for a public facility
if either revenue for capital improvements for that facility requires
approval by referendum and a referendum has not been held, or a
referendum was held, and it did not meet the approval of the public.
Policy CF-P-2.10 Determine through a public process how to apportion
the fair share of funding capital improvements for County-owned
public facilities between existing and future developments. Ensure new
growth and development pay their proportionate share of the cost of
new capital facilities needed to serve such growth and development.
Policy CF-P-2.11 Condition approval of private developments that
require public facility capital improvements, which will be financed by
contingent sources of revenue, upon acquisition of that revenue. An
example of a contingent source of revenue is debt that requires
approval by a referendum. Make provision in the approval conditions
for substituting a comparable amount of existing revenue if the
contingent funding sources are not approved.
Goal CF-G-3 Ensure that public facilities are adequate to
support proposed development at the adopted level of
service.
Policy CF-P-3.1 Issue development approvals only after a permit
decision has been made that there is sufficient capacity of Category A
public facilities to meet the adopted level of service for existing and
proposed development concurrent with the proposed development.
Policy CF-P-3.2 If the adopted level of service for Category B or C public
facilities are not achieved, the funding will either be increased to
achieve the Level of Service, or the Level of Service will be modified
through amendment to the Plan, and/or other Comprehensive Plan
Elements will be amended.
Policy CF-P-3.3 Designate "tiers" within designated urban growth areas
to discourage urban sprawl and leapfrog development and to
encourage development of adequate public facilities and services
concurrent with development as follows:
▶ First Tier: Includes existing commercial centers and urbanized
areas for which the Six-Year Capital Facilities Concept Plan provides
urban services and facilities.
▶ Second Tier: Areas for which urban services and facilities are
planned for years 7-20 of the 20-year planning period. Urban
services and facilities will be provided by the developer concurrent
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–28
Public Hearing Draft March 2026
with development, or by public providers by implementing all or a
portion of an approved capital facilities plan.
Policy CF-P-3.4 Providers of public facilities may require users of those
facilities to pay for a portion of their cost and/or may require new
development to pay impact fees, capacity fees, system distribution
charges, special assessments, and/or mitigation payments allowed by
law.
Policy CF-P-3.5 Reserve public facility capacity for vested development
approvals that were issued prior to the adoption of this Comprehensive
Plan.
Goal CF-G-4 Ensure that all capital improvements are
made in conformance with the goals and policies of the
other elements of the Comprehensive Plan.
Policy CF-P-4.1 Locate all Category A and B public facility capital
improvements in conformance with the adopted land use map and the
goals and policies of the Comprehensive Plan. Ensure investment in
capital improvements accommodate the current and future
population, while prioritizing investment to address existing
deficiencies where vulnerable populations are located.
Policy CF-P-4.2 Integrate land use planning and decisions with
planning and decisions for public facility capital improvements. Include
analysis in the capital facility planning process of how capital facility
investment decisions will impact different geographic areas and
vulnerable communities.
Policy CF-P-4.3 Encourage equitable public engagement and input
into large public capital facility projects to identify community needs
and benefits.
Policy CF-P-4.4 Consider potential effects of climate change and future
conditions—including changes to temperature, precipitation, and
flooding—when making siting decisions for capital facilities, also with
consideration of the land use and environment goals and policies of the
Comprehensive Plan.
Policy CF-P-4.5 Provide capital facilities and services that protect and
minimize their impact on the natural environment, particularly to
critical areas.
Policy CF-P-4.6 Design capital facilities that are adaptable and flexible
to expand or be converted to other uses as the community’s needs
change over time.
Commented [ME43]: •Add goals and policies to
ensure infrastructure investments consider
equity in planning, design, and sitting of
capital facilities, essential public facilities, and
utilities and plan for any potential
displacement impacts. For example, include a
policy to encourage infrastructure
investment in underserved areas where
additional density is proposed.
Commented [ME44]: •Add additional goals and
policies focused on mitigation, preparedness,
and recovery from the effects of climate
change on capital facilities and utilities (with
cross-reference to additional goals and
policies in the new Climate Element).
Consider moving relevant existing policies
under one unified climate related goal (e.g.,
Policy CF-P-4.3)
Commented [ME45R44]: Additional ideas for goals
and policies that consider utilities from a HH
perspective. But I’m not seeing a goal that would
be appropriate for something like this to fit
under.
Leverage clean energy credits for low to
moderate income households to provide
expanded energy efficiency incentives.
(Programs include Washington Families Clean
Energy Credits Grant Program, Residential
Energy Assistance Grant and Project Share
programs)
Commented [JH46R44]: I like the policy you noted
and have added under Goal H-3 in the Housing
Element.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–29
Public Hearing Draft March 2026
Policy CF-P-4.7 Incorporate a resiliency lens into the design of capital
facilities to ensure facilities can continue to exist and function as
intended over their planned life cycle.
Policy CF-P-4.8 Implement inter-local agreements with neighboring
municipalities, local tribes, agencies, private providers, and other
entities to coordinate efficient, effective, and equitable provision of
public facilities and services consistent with the Capital Facilities
Element.
Policy CF-P-4.9 Establish inter-local or joint planning agreements with
municipalities and other providers of public facilities to coordinate
planning for and development of urban growth areas.
Policy CF-P-4.10 Site capital facilities equitably and efficiently and
ensure impacts on adjacent uses at proposed or alternative locations
have been anticipated and that overburdening any particular
community or neighborhood has been prevented or mitigated.
Policy CF-P-4.11 Coordinate funding of public facilities, including tax
revenue sharing, the provision of regional services, and annexations
through the development of inter-local agreements. Implement fee
structures and programs that ensure cost burdens for facility usage do
not disproportionately impact low-income households
Policy CF-P-4.12 Consider impact fee exemptions for affordable
housing, daycares, or other uses with public purposes as allowed by
State law.
Policy CF-P-4.13 Incorporate consideration of physical health and well-
being into decisions regarding the location, design, and operation of
capital facilities.
Policy CF-P-4.14 Integrate analysis of how capital facility decisions will
impact different geographic areas and racial and socioeconomic
groups into capital facility planning processes.
Potable Water
In addition to the following potable water goal and policies, the
Environment Element contains further discussion of rural water service
as well as supporting goals and policies.
Commented [ME47]: •revise coordination
policies (e.g., Policy CF-P-4.4) to explicitly
include local tribes or add a policy on
coordination with tribes in planning for
services and infrastructure.
Commented [ME48R47]: Light updates. Happy to
add more and make a policy explicitly focused
on coordination with local tribes
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–30
Public Hearing Draft March 2026
Goal CF-G-5 Promote coordination of water utility
planning among purveyors, government agencies, and
residents to ensure an adequate potable water system,
to protect the quality and quantity of the water supply,
and to conform to the Comprehensive Plan.
Policy CF-P-5.1 Ensure the creation and the extension of public water
supply systems outside Urban Growth Areas is consistent with the
rural densities specified in the Land Use Element and is financed by
the benefited properties and not the general rate payer.
Policy CF-P-5.2 Participate in and assist the facilitation of regional
discussions and analyses on water quality and quantity issues,
including water supply affects from climate change, through the
Jefferson County Water Utility Users Coordinating Committee (WUCC),
the Water Resources Council and other regional forums.
Policy CF-P-5.3 Periodically review and update the adopted Jefferson
County Coordinated Water System Plan (CWSP) incorporating the
adopted land use, population allocations, and pertinent policies
identified in the Comprehensive Plan.
Policy CF-P-5.4 Take an active role in reviewing and approving Satellite
Management Agencies (SMA)s that are allowed to own and operate
multiple water systems that are not physically connected. (satellite
systems).
Policy CF-P-5.5 During periodic review of the Critical Areas Ordinance,
analyze current data to identify and improve processes that may
reduce the risk of seasalt water intrusion.
Policy CF-P-5.6 Work to implement a long-term ground water quantity
and quality monitoring program for basins that provide domestic water
supplies.
Policy CF-P-5.7 Work with purveyors to promote the use of unaffected
upland water sources and other alternative supplies, where
appropriate, to supply new and existing development in affected areas.
Policy CF-P-5.8 Support implementation of conservation strategies
that reduce average annual and peak day water use for public and
individual water systems.
Policy CF-P-5.9 Recognize the authority of Jefferson Public Utility
District #1 pursuant to Title 54 RCW and other applicable statutes. The
County will cooperate with Public Utility District #1 to develop final
development regulations consistent with that authority.
Policy CF-P-5.10 Encourage the use of water-conserving fixtures with
new systems or services.
Water Tanks at Kala
Point, Jefferson County
Commented [JH49]: Moved from Goal CF-G-6 per
CE policy review (suggested moving under a
water supply goal).
Commented [JH50]: Policy can remain as is per CE
policy review, but suggest moving under a goal
or objective that mentions CC impacts to water
supply (moved under Goal CF-G-5).
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–31
Public Hearing Draft March 2026
Sewer & Wastewater
Goal CF-G-6 Promote sanitary sewer systems that
accommodate growth, are cost-effective to construct and
operate, and are consistent with the Comprehensive
Plan.
Policy CF-P-6.1 Plan sanitary sewer system sizing, phasing,
development, and expansion within urban growth areas to
accommodate the allocated population and planned urban
development to the greatest extent possible within the current
planning period; while also planning implementation phases that
provide service at the greatest cost-effectiveness.
Policy CF-P-6.2 Encourage development of community septic systems
in Rural Centers to protect public health, the environment, and foster a
reliable, integrated collection system. In areas with water quality
concerns that are or appear to be related to problems associated with
individual septic systems, Jefferson County supports utilizing a range of
sewage treatment options, including community drainfields and
centralized systems, subject to State law.
Policy CF-P-6.3 New urban public services will only be provided within
a UGA and not be extended beyond a UGA unless deemed to be an
essential public service to mitigate a threat to public health, safety, or
general welfare. Existing sanitary sewer treatment facility capacity will
not be used as a justification for expansion of a sewer system or
development inconsistent with County-wide Planning Policies and the
Comprehensive Plan.
Policy CF-P-6.4 Consider the full range of actions that will enable urban
development to occur in a UGA, including urban development initially
on Large Onsite Septic Systems to accommodate growth, affordable
housing, economic development, and environmental protection in
advance of an operational sanitary sewer system.
Policy CF-P-6.4Policy CF-P-6.5 As part of growth planning, understand
the emerging issues of septage management and treatment capacity
countywide as the State of Washington evaluates septage capacity
statewide. Commented [JH51]: Added per email on 8/6 from
Joel & Pinky Mingo
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–32
Public Hearing Draft March 2026
Solid Waste
Goal CF-G-7 Provide reliable and cost-effect solid waste
services as detailed in the most recent Jefferson County
Solid Waste Management Plan.
Policy CF-P-7.1 Maintain the Solid Waste Enterprise Fund in accord
with a reserved capital fund balance benchmarks of 25% of the current
capital replacement value of the transfer station and an operations
fund balance of 25% of projected annual operating expenses per
Resolution No. 28 23.
Policy CF-P-7.2 Implement, to the fullest extent possible, the prioritized
waste reduction, recycling, and organics recommendations of the
Jefferson County Solid Waste Management Plan.
Policy CF-P-7.3 Implement, to the fullest extent possible, the
recommendations of the Jefferson County Solid Waste Management
Plan for solid waste collection, transfer, disposal, handling of special
wastes, administration, and public education.
Policy CF-P-7.4 Identify and implement appropriate measures to
ensure mitigation of adverse environmental impacts associated with
solid waste collection activities.
Policy CF-P-7.5 Design and locate facilities with proper consideration
for health and environmental impacts.
Policy CF-P-7.6 Maintain the Solid Waste Advisory Committee involving
residents, waste management providers, regulatory agency
representatives, the County, and other affected interests to identify
methods for efficient and practical solid waste management, including
small and moderate-risk waste handling strategies.
Policy CF-P-7.7 If incentive programs fail to reach the waste reduction
goals identified in the Solid Waste Management Plan, consider
mandatory programs to the extent allowable by State law.
Policy CF-P-7.8 Identify and preserve for future use solid waste facility
sites, including potential landfill sites, consistent with the
Comprehensive Plan and the Solid Waste Management Plan.
Policy CF-P-7.9 Ensure reclamation of areas currently serving as solid
waste disposal facilities to promote the recovery of such areas for future
functional land uses.
Policy CF-P-7.10 Promote conservation education, recycling, and
composting to reduce the need for additional facilities in the future,
reduce emissions, and prevent pollution while maintaining a cost-
effective, responsive, and environmentally sensitive collection system.
Prioritized recommendations
from the Jefferson County
Solid Waste Management
Plan include:
• Programs and education
to reduce and reuse
material before it enters
the waste stream
• Diverting, reusing, and
recycling materials before
it enters the waste stream.
• Pricing disincentives to
reduce waste.
• Programs and education
to increase access to
recycling services and
increase recycling rates
• Programs and education
regarding composting and
other alternatives for
handling residential and
commercial food and pet
wastes.
Commented [JP52]: Get notes from Al Cairns
meeting for possible edits. ...
Commented [JH53R52]: NOTE: table in “missing
content” for comment
Commented [JH54R52]: Ignore per 2/10 follow-up
from Joel
Commented [JP55]: Sorry, my insertion of the
chart in the comments was either a reminder for
me, or a cut-paste mistake, and isn’t relevant
anymore. It lists all the places solid waste
appears in the CP.
The Solid Waste Manager was concerned about
two issues:
1) There may not be available county facilities to
implement organic waste recycling.
2) There is no capacity in our landfill for
emergency waste debris.
I haven’t received a response regarding edits
and didn’t have time to follow-up for this draft.
Commented [JH56R55]: Edited further to simplify
this goal and the policies below.
Commented [JH57]: Added per comments from
Al Cairns, Solid Waste Manager
Commented [JH58]: Combined into one simpler
policy and moved example recommendations to
a sidebar.
Commented [ME59]: •Consider adding a policy
related to organic materials (OM)
management facilities under Goal CF-G-7
(solid waste) to support revised development
regulations.
Commented [ME60R59]: Drafted up a policy. Does
this help capture the OM management
facilities? What are some of the revised
development regulations?
Commented [JP61R59]: From Solid Waste
Manager, 2/13/2024:
One other thing to keep in mind that we didn’t
get to talk about is the requirement in HB 1799,
the Organics Management Act, from the last
legislative session that requires Counties to
identify properties where food waste
composting facilities could be located. As part of
the solid waste facility siting process, we will be
considering the potential of candidate sites to
host non-solid waste related functions such as
food waste composting. This will be one of
many considerations but not a driver for site
selection. ...
Commented [JP62R59]:
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–33
Public Hearing Draft March 2026
Surface Water Management
Goal CF-G-8 Manage surface water consistent with the
most recent Jefferson County Surface Water
Management Plan and watershed management plans to
minimize adverse impacts from development.
Policy CF-P-8.1 Participate with other agencies to undertake joint
planning, financing, and implementation of regional storm water
management facilities.
Policy CF-P-8.2 Coordinate with state, regional and local agencies to
develop and implement policies for surface water and storm water
management.
Policy CF-P-8.3 Consider the use of storm water facilities, when
appropriate, as meeting the requirements for open space or habitat
conservation corridors.
Policy CF-P-8.4 Encourage collecting rainwater for on-site, non-potable
uses at County properties
Essential Public Facilities
Goal CF-G-9 Regulate the siting of essential public
facilities consistent with the GMA and to meet public
service needs.
Policy CF-P-9.1 Utilize the following siting criteria (from CPP #4) as the
basis for siting new essential public facilities or for the expansion of
existing essential public facilities:
a. Proximity to major transportation routes and essential
infrastructure;
b. Land use compatibility with surrounding areas;
c. Potential environmental impacts by the facility as well as to the
facility, including siting considerations regarding effects of
climate change;
d. Effects on resource and critical areas;
e. Proximity to urban growth areas
f. Public costs and benefits including operation and maintenance;
g. Current capacity and location of equivalent facilities; and,
h. The existence, within the community, of reasonable alternatives
to the proposed activity.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–34
Public Hearing Draft March 2026
i. Other criteria as determined relevant to the specific essential
public facility, or criteria developed with Port Townsend
(containing municipal and unincorporated areas) or the
unincorporated Irondale and Port Hadlock UGA community.
Policy CF-P-9.2 Establish an interjurisdictional approach to siting
essential public facilities.
Policy CF-P-9.3 Identify and designate essential public facilities of
state-wide, countywide, and local significance and incorporate into the
County Comprehensive Plan and Land Use Map and the Countywide
Planning Policies.
Policy CF-P-9.4 Ensure that the Comprehensive Plan and
implementing regulations do not preclude the siting of essential public
facilities.
Policy CF-P-9.5 Adopt and maintain development regulations that
ensure that siting of essential public facilities is consistent with the
elements of the Comprehensive Plans of both the County and City of
Port Townsend, as well as the siting criteria jointly established by the
County and its urban growth areas.
Policy CF-P-9.6 Adopt and maintain development regulations for
essential public facilities in conjunction with the City of Port Townsend,
which consider the following factors:
a. Specific facility requirements including, but not limited to, acreage
requirements, transportation needs, availability of alternative sites,
and infrastructure and services required by the facility.
1. Minimum acreage
2. Accessibility
3. Transportation needs and services
4. Supporting public facility and public service needs and
availability thereof
5. Health and safety
6. Site design
7. Zoning of the site
8. Availability of alternative sites
9. Community-wide distribution of facilities
10. Capacity and location of equivalent facilities
11. State and federal siting requirements
b. Impacts of the facility including, but not limited to, compatibility
with adjacent land uses, environmental impacts, and
transportation.
1. Land use compatibility
2. Existing land use and development in adjacent and surrounding
areas
3. Existing zoning of surrounding areas
4. Existing Comprehensive Plan designation for surrounding areas
Commented [JH63]: Added per Ordinance 09-
1209-24 adopted December 2024
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–35
Public Hearing Draft March 2026
5. Present and proposed population density of surrounding area
6. Environmental impacts and opportunities to mitigate
environmental impacts
7. Effect on agricultural, forest or mineral lands, critical areas, and
historic, archaeological, and cultural sites
8. Effect on areas outside of Jefferson County
9. Effect on the likelihood of associated development
10. Effect on public costs including operating and maintenance
11. Proximity to urban growth areas
12. Proximity to major transportation routes and essential
infrastructure
13. Current capacity and location of equivalent facilities
14. Public costs and benefits including operation and maintenance
15. The existence, within the community, of reasonable alternatives
to proposed activity
c. Impacts of the facility siting on urban growth area designations and
policies including, but not limited to, proximity to existing urban
growth areas, compatibility with existing urban growth areas and
their associated development and the urban characteristics of the
proposed facility.
1. Urban nature of facility
2. Existing urban growth near facility site
3. Compatibility or urban growth with the facility
4. Compatibility of facility siting with respect to urban growth area
boundaries
Policy CF-P-9.7 Adopt and maintain development regulations for
essential public facilities which specify:
a. The time required for construction
b. Property acquisition
c. Control of on-site and off-site impacts during construction
d. Expediting and streamlining necessary government approvals and
permits if all other elements of the County policies have been met.
e. The quasi-public or public nature of the facility, balancing the need
for the facility against the external impacts generated by its siting
and the availability of alternative sites with lesser impacts.
Policy CF-P-9.8 Adopt and maintain Unified Development Code updates
for essential public facilities which include standards and criteria related to:
a. Facility operations
b. Health and safety
c. Nuisance effects
d. Maintenance of standards congruent with applicable
governmental regulations, particularly as they may change and
become more stringent over time.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–36
Public Hearing Draft March 2026
Policy CF-P-9.9 Ensure that new essential public facilities or the
expansion of existing essential public facilities sited outside of urban
growth areas are self-supporting and do not require the extension or
construction of urban services and facilities unless no practicable
alternative exists.
Policy CF-P-9.10 Ensure that Jefferson County's policies and regulations
on essential public facility siting are coordinated with and advance
other planning goals.
Policy CF-P-9.11 Ensure that where possible, essential public facility
sites are used jointly for public benefit.
Policy CF-P-9.12 Ensure that affected agencies and residents, adjacent
jurisdictions, and other interested parties are given adequate notice
and opportunity for meaningful participation in decisions on siting
essential public facilities.
Policy CF-P-9.13 Establish a review body with specified procedures
established to hear appeals of site selection for essential public facilities.
Policy CF-P-9.14 Combine public hearings for permits required by
federal and/or state law for essential public facilities with any public
hearing required by County development regulations whenever
feasible.
Policy CF-P-9.15 Require any state essential public facility included on
the list maintained by the Office of Financial Management (OFM) and
proposed for siting within Jefferson County to be subject to the same
siting process as identified in both the County Comprehensive Plan and
development regulations.
Policy CF-P-9.16 Develop standards to allow reclamation of waste
disposal sites to other land uses.
Policy CF-P-9.17 Evaluate whether the County can be waste disposal
self-sufficient for the next twenty (20) years.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–37
Public Hearing Draft March 2026
Goal CF-G-10 Ensure the continued viability of the
Jefferson County International Airport as a transportation
hub.
Policy CF-P-10.1 Promote uses which are clearly identified as aviation
support facilities or aviation related development in conformance
with the airport’s designation as an essential public facility. Other
secondary uses may be allowed consistent with the Jefferson County
International Airport Master Plan Update 2014 or its successor when
endorsed by the County and implemented in development
regulations.
CF-P-10.1.1 Aviation Support Facilities are those uses which directly
support the operation of the Jefferson County Airport.
CF-P-10.1.2 Aviation Related Development are those uses which are
reliant upon the airport for their business.
Policy CF-P-10.2 Cooperate with the Port of Port Townsend to
implement the Jefferson County International Airport Master Plan
Update 2014 or its successor to guide future development at the
Jefferson County International Airport. This sub-area plan and its
implementing regulations may allow non-aviation uses and activities
that are compatible with the airport facility and surrounding area.
Consider the following criteria for all new uses and activities proposed
for siting at the Jefferson County International Airport and all plans for
facilities expansion in the plan and associated development
regulations:
a. Compatibility with airport operations as an essential public facility;
b. Provision of infrastructure consistent with the requirements of the
GMA;
c. Land use compatibility with surrounding area;
d. Potential environmental impacts;
e. Availability of alternative sites;
f. Public health and safety; and
g. Sub-area plan amendment process for possible future acquisition
of adjacent properties.
Goal CF-G-11 Ensure continuation of the airport as a safe
and efficient essential public facility.
Policy CF-P-11.1 Develop and maintain an “Airport Overlay Zone” for
Jefferson County International Airport which:
▶ Discourages the siting of new, incompatible land uses adjacent to
the airport;
▶ Establishes a noise overlay zone;
Jefferson County
International Airport,
Port of Port Townsend
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–38
Public Hearing Draft March 2026
▶ Identifies and regulates land uses within a “runway protection
zone;”
▶ Identifies and regulates land uses within an “airport approach
zone;” and,
▶ Regulates obstacles in accordance with Federal Aviation
Regulations (FAR) 77 until the “Airport Overlay Zone” is established
for the JCIA.
Policy CF-P-11.2 Contingent upon the results of the “Glen Cove/Tri-Area
Special Study,” review and, if necessary, amend the Jefferson County
International Airport section of this Capital Facilities and Utilities
Element.
Policy CF-P-11.3 Limit and regulate all uses within the Jefferson County
International Airport Runway Protection Zone, except for facilities and
structures determined necessary to ensure the safe operation of
aircraft.
Policy CF-P-11.4 Prohibit any new use which involves release of airborne
substances, such as steam, dust, and smoke which interfere with
aircraft operations within the Airport Approach or Runway Protection
Zones.
Policy CF-P-11.5 Prohibit any new uses which emit light, direct or
indirect (reflections), which may interfere with a pilot’s vision within the
Airport Approach or Runway Protection Zones.
Policy CF-P-11.6 Install facilities which emit electrical currents in a
manner that does not interfere with communication systems or
navigational equipment.
Policy CF-P-11.7 Prohibit any new uses that attract concentrations of
birds or waterfowl (i.e., mixed solid waste landfill disposal facilities,
waste transfer facilities, feeding stations, and the growth of certain
vegetation) in the Airport Approach or Runway Protection Zones.
Policy CF-P-11.8 Encourage the Port of Port Townsend to continue its
efforts to mitigate noise conflicts at JCIA.
Policy CF-P-11.9 Encourage the commitment between Jefferson
County and the Port of Port Townsend to coordinate individual
planning documents to preclude the occurrence of future noise conflict
areas. Coordinate with the Port of Port Townsend to explore options in
flight patterns to mitigate noise events, as long as options preserve safe
aeronautical regulations and procedures.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–39
Public Hearing Draft March 2026
Utilities
General Capacity & Conservation
Goal CF-G-12 Provide adequate utility capacity for future
growth consistent with the requirements of the GMA.
Policy CF-P-12.1 Identify where infrastructure is not adequate to
support future growth, initiate planning for the development of
infrastructure required for future growth and ensure that utility
infrastructure is adequate to support projected population growth and
economic development.
Policy CF-P-12.2 Allow extension and sizing of facilities based on the
Land Use Element. In those cases where engineering standards are in
excess of the requirements for the immediate development but are
required to meet established levels of service for proposed uses and
future needs, the excess capacity will not be a reason to allow growth
out of sequence with the Land Use Element.
Policy CF-P-12.3 Require that adequate public facilities and services are
available prior to, or concurrent with, development.
Policy CF-P-12.4 Process permits and approvals for utility facilities in a
fair, predictable, and timely manner and in accordance with local, state,
and federal regulations to facilitate timely completion of utility
development to meet growth demands.
Policy CF-P-12.5 Ensure that all community members served by an
expanding public water supply or other utility are represented by the
Washington Utilities and Transportation Commission (WUTC) or
otherwise maintain representative and elected leadership to help
ensure that long term decisions are made in the best interests of rate
payers.
Policy CF-P-12.6 Encourage equitable provision of utility infrastructure.
Prioritize underserved areas and historically marginalized populations
to avoid amassing insufficient infrastructure in vulnerable
communities.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–40
Public Hearing Draft March 2026
Goal CF-G-13 Coordinate planning and provision of utility
services among Jefferson County, the State of
Washington, local governments, and utility service
providers.
Policy CF-P-13.1 Provide coordination between Jefferson County,
agencies, and utility providers to ensure consistency between utility
systems development and the growth plans of the County.
Policy CF-P-13.2 Require utility providers to consistently utilize the
Jefferson County Comprehensive Plan Land Use Element in utility
systems planning.
Policy CF-P-13.3 Assist in making multiple use of utility corridors,
easements, and areas for utilities, whenever possible, provided that
such shared use is consistent with limitations prescribed by applicable
law and prudent utility system practice.
Policy CF-P-13.4 Coordinate and cooperate with other jurisdictions
when transmission facility additions or improvements cross
jurisdictional boundaries. Coordination to include maximizing efforts to
achieve consistency between jurisdictions in efficient permitting.
Policy CF-P-13.5 Coordinate and consolidate public service or public
facility districts, where feasible, to distribute public services and
facilities more efficiently and equitably
Policy CF-P-13.6 Require that utility infrastructure associated with new
development, which the County will assume maintenance/ownership,
will be constructed to comply with Jefferson County growth projections
and standards.
Policy CF-P-13.7 Encourage providers to implement system
improvements to enhance reliability and safety, including preparing for
climate impacts.
Policy CF-P-13.8 Coordinate with utility provider(s) on the location of
major new facilities at the earliest possible stage in planning to reduce
impacts to vulnerable communities, surrounding uses, and the natural
environment.
Commented [JH64]: Added per comment 021
from Cindy Jane on 5/23
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–41
Public Hearing Draft March 2026
Goal CF-G-14 Minimize adverse environmental impacts of
utility systems development through proper utility
design, siting, regulation, ongoing monitoring, and
education.
Policy CF-P-14.1 Support utility planning that takes precautionary
actions to prevent importation and distribution of noxious weeds;
implements the most environmentally sensitive and effective
approaches to eradicate noxious weeds in utility corridors; and
implements quick-action plans to eradicate new infestations.
Discourage recurring use of herbicides to control general vegetative
growth around utility facilities and encourage alternative methods,
such as mowing or selective treatment.
Policy CF-P-14.2 Participate in regional comprehensive watershed
planning processes and incorporate appropriate elements of
watershed agreements between the County, state, federal, tribal, local
governments and other stakeholders into local ordinances and utility
plans.
Policy CF-P-14.3 Incentivize communications conduit installation for
fiber optic cable at the same time and in the same trench alongside
electrical cable installation as part of new building construction.
Goal CF-G-15 Promote the conservation and preservation
of resources, through the use of renewable energy and
new technology to provide reliable utility services.
Policy CF-P-15.1 As appropriate, promote renewable energy sources
and support implementation of resource conservation technologies in
all areas of new construction, large scale renovation of public facilities,
and other changes that improve utility services and provide enhanced
conservation and waste reduction.
Policy CF-P-15.2 Maintain operating efficiency of existing resource
consuming facilities in Jefferson County.
Policy CF-P-15.3 Encourage providers to incorporate technological
changes when they are cost effective and consistent with their public
service obligations.
Policy CF-P-15.4 Promote conservation measures to reduce the need
for additional utility distribution facilities in the future.
Commented [JH65]: Revised per CE policy review
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–42
Public Hearing Draft March 2026
Telecommunication & Internet Utilities
Goal CF-G-16 Accommodate telecommunication and
internet technologies and service providers by allowing
systems development consistent with the
Comprehensive Plan.
Policy CF-P-16.1 Promote the widespread availability of
telecommunications, broadband internet access, and similar
technologies—especially for vulnerable populations—in cooperation
with other public and private entities, to facilitate communication
among members of the public, public institutions, and businesses.
Policy CF-P-16.2 Require consolidation of antenna siting, transmission
media, utility pole, fiber optic cable and trenching placement to
minimize adverse aesthetic and environmental impacts.
Policy CF-P-16.3 Support improvements to the telecommunications
system which facilitate business, educational, and recreational activities
and ensure that Jefferson County maintains a competitive advantage
in attracting and retaining businesses.
Electrical Utilities
Goal CF-G-17 Encourage innovative and renewable forms
of electricity, conservation of electricity, and efficient
siting of electrical utilities infrastructure, consistent with
the Comprehensive Plan.
Policy CF-P-17.1 Accommodate additions and improvements to electric
utility facilities which efficiently and equitably improve capacity,
reliability, and resilience of regional electrical utility services, particularly
when multiple jurisdictional benefits within the region can be achieved,
and with a preference for non-polluting renewable energy systems.
Policy CF-P-17.2 Accommodate electrical distribution facilities as a
permitted use in appropriate locations to ensure that land is available
for the siting of electrical facilities.
Policy CF-P-17.3 Support PUD energy conservation implementation
and climate mitigation with appropriate permit procedures, and
potential development incentives as they are affordable.
Policy CF-P-17.4 Work with energy utilities to improve the safety and
reliability of infrastructure vulnerable to climate change.
Policy CF-P-17.5 Coordinate with electricity providers to expand the EV
charging network and increase grid capacity to support charging.
Commented [JH66]: Added per EJC equity
analysis
Commented [JH67]: Added per comment 021
from Cindy Jane on 5/23
Commented [JH68]: Revise per CE policy review
Commented [JH69]: Revised per CE policy review
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–43
Public Hearing Draft March 2026
8.7 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 8-7 highlights key activities the County can use to implement
the Capital Facilities and Utilities Element over the next ten years (prior
to the next periodic update), several in partnership with other entities:
Exhibit 8-7 Capital Facilities, Essential Public Facilities, and Utilities Action Plan
Action Description
Capital Facility Plan Maintain a fiscally constrained Capital Facility Plan for the 6-year period;
conduct planning level reviews of facility needs and future revenues.
Update it as needed at the time of budget.
Implement guidance and action strategies for capital facility projects per
the Capital Facility Plan Technical Appendix D.
Essential Public Facilities Review the JCIA Master Plan 2014, as amended, for implementing land use
regulations, e.g. height, non-aviation supporting uses, etc.
Utilities Support JPUD energy conservation and broadband implementation with
appropriate permit procedures, and potential development incentives as
they are affordable (e.g., energy conservation above and beyond State
Energy Code may receive some development incentives in UGAs). Pursue
state and federal funds as they may become available.
Source: Jefferson County, 2025.
Commented [JH70]: TO UPDATE
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–44
Public Hearing Draft March 2026
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Jefferson County Comprehensive Plan 8–45
Public Hearing Draft March 2026
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
American Planning Association Washington Chapter. (2015, November). Address Climate Change:
Planning for Climate Change Adaptation. Retrieved from American Planning Association
Washington Chapter: https://www.washington-
apa.org/assets/docs/2015/Ten_Big_Ideas/October_Revisions/planning_for_climate_change_adap
tation_11.10.15.pdf
City of Port Townsend. (2019). Water System Plan. Retrieved from
https://cityofpt.us/citycouncil/page/city-plans
City of Port Townsend. (2024, July). General Sewer Plan. Retrieved from
https://cityofpt.us/engagept/page/general-sewer-plan
Economic and Engineering Services. (1997, June). Jefferson County Coordinated Water System Plan.
Retrieved from https://www.co.jefferson.wa.us/DocumentCenter/View/19611/Coordinated-
Water-System-Plan
FCS Group. (2021, November). Water, Sewer and Electric Rate Study & Pole Attachment Fee Update.
Retrieved from Jefferson County PUD - Updates: https://www.jeffpud.org/wp-
content/uploads/2021/11/Jefferson-PUD-Rate-Study-Pole-Attachment-Report-FINAL.pdf
Hartman, N., & Shailesh, S. (2025, February 24). Personal Communication with N. Hartman and
S.Shailesh with Clallam County PUD to confirm amount of Jefferson County customers.
Hood Canal Communications. (2023, November). Ribbon Cutting for Brinnon Broadband. Retrieved
from HCC - News: https://www.hcc.net/news/?id=54683#
Hood Canal Communications. (n.d.). Service Areas. Retrieved from
https://hoodcanal.crowdfiber.com/front_end/zones
Jefferson County. (2010). Non-motorized and Recreational Trails Plan. Retrieved from
http://www.co.jefferson.wa.us/440/Non-Motorized-Transportation-Recreationa
Jefferson County Administrator's Office. (2024). Jefferson County Strategic Plan 2024-2028. Retrieved
from https://www.co.jefferson.wa.us/documentcenter/view/19232
Jefferson County Parks and Recreation. (2022, October). Parks, Recreation, and Open Space (PROS)
Plan 2022. Retrieved from
https://jeffersoncountywa.myrec.com/forms/7581_jefferson_county_parks_recreation_open_spa
ce_and_trails_comprehensive_plan_october_10_2022.pdf
Jefferson County Public Utility District (JPUD). (2021). Water System Plan.
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–46
Public Hearing Draft March 2026
Jefferson County Public Utility District (JPUD). (2024, December). 2024 Combined Newsletter (June
2024 Newsletter). Retrieved from Jefferson County News - Print Newsletters - Uploads (2024):
https://www.jeffpud.org/wp-content/uploads/2025/02/2024-Combined-Newsletter-File.pdf
Jefferson County Public Utility District (JPUD). (2024). 2024 Rural Utilties Service Form 7. Retrieved from
https://www.jeffpud.org/audits-and-financial-statements/
Jefferson County Public Utility District (JPUD). (2024, November 13). The Energy Efficiency Puzzle.
Retrieved from https://www.jeffpud.org/the-energy-efficiency-puzzle/
Jefferson County Public Utility District (JPUD). (2025). Broadband Service Areas. Retrieved from
https://www.jeffpud.org/broadband-maps/
Jefferson County Public Utility District (JPUD). (2025, April). Customer Count Tracking Dashboard.
Retrieved from https://www.jeffpud.org/customer-count-tracking/
Jefferson County Public Utility District (JPUD). (2025, February). February 2025 Newsletter. Retrieved
from https://www.jeffpud.org/wp-content/uploads/2025/02/Feb2025.pdf
Jefferson County Public Works. (2006). Surface Water Management Plan. November.
Jefferson County Public Works. (2016, September). Jefferson County Solid Waste Management Plan.
Retrieved from https://www.co.jefferson.wa.us/DocumentCenter/View/7190/Solid-Waste-
Management-Plan-2016
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Program (TIP). Retrieved from https://www.co.jefferson.wa.us/444/6-Yr-TIP
Jefferson County Public Works. (2024, May). Irondale and Port Hadlock Urban Growth Area Stormwater
Management Plan.
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Transportation Plan.
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https://jeffersontransit.com/DocumentCenter/View/461/Transit-Development-Plan_2024-2029-
PDF?bidId=
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Peninsula Regional Transportation Planning Organization (PRTPO). (2024). Peninsula Regional
Transportation Plan Online. Retrieved from https://www.prtpo.org/rtp-online
Reid Middleton, Inc.; Barnard Dunkelberg Company. (2014, July). Jefferson County International Airport
Master Plan Update. Retrieved from Port of Port Townsend: https://portofpt.com/wp-
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Update
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CAPITAL FACILITIES & UTILITIES
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Public Hearing Draft March 2026
Warner, M. (2025, April 2). Personal communication with M. Warner of Grays Harbor PUD on April 2 to
confirm amount of customers in Jefferson County.
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WUE-report.pdf
Contents
8 CAPITAL FACILITIES & UTILITIES 8–1
8.1 Purpose 8–1
8.2 Capital Facilities 8–2
Overview 8–2
Countywide Planning Policies 8–4
Summary of Trends & Opportunities 8–5
8.3 Essential Public Facilities 8–6
Overview 8–6
Essential Public Facilities & Public Purpose Lands 8–7
Essential Public Facility Designations in Jefferson
County 8–8
Countywide Planning Policies 8–8
Summary of Trends & Opportunities 8–10
8.4 Utilities 8–10
Electric Utilities 8–10
Providers 8–10
Duty to Serve 8–11
JPUD Inventory 8–11
Electricity: Future Capacity Needs & Requirements 8–13
Telecommunication Utilities 8–15
Telecommunications Systems Types & Regulations 8–15
Conventional Telephone 8–16
Cellular Service 8–16
Broadband 8–16
Telephone: Future Capacity Needs & Requirements 8–18
Countywide Planning Policies 8–19
Summary of Trends & Opportunities 8–19
CAPITAL FACILITIES & UTILITIES
Jefferson County Comprehensive Plan 8–48
Public Hearing Draft March 2026
8.5 Capital Facilities & Utilities Plan 8–20
Capital Facilities 8–20
Essential Public Facilities 8–20
Utilities 8–21
8.6 Goals & Policies 8–21
Capital Facilities 8–21
General 8–22
Potable Water 8–30
Sewer & Wastewater 8–31
Solid Waste 8–32
Surface Water Management 8–33
Essential Public Facilities 8–33
Utilities 8–39
General Capacity & Conservation 8–39
Telecommunication & Internet Utilities 8–42
Electrical Utilities 8–42
8.7 Action Plan 8–43
Exhibit 8-1 Capital Facilities and Public Services
Provided 8–2
Exhibit 8-2 Relationship of Capital Facilities Plan to
Countywide Planning Policies 8–5
Exhibit 8-3 Distinguishing Public Purpose Lands from
Essential Public Facilities 8–7
Exhibit 8-4 JPUD Electrical Energy Usage by Customer
Class (2021) 8–13
Exhibit 8-5 Estimated Residential Population Electricity
Demand (2045) 8–14
Exhibit 8-6 JPUD Broadband Expansion Projects (2025) 8–17
Exhibit 8-7 Capital Facilities, Essential Public Facilities,
and Utilities Action Plan 8–43