HomeMy WebLinkAbout0 Foundation HEARING DRAFTJefferson County Comprehensive Plan i Public Hearing Draft April 2026
Plan Foundation
INTRODUCTION
This Comprehensive Plan is the foundation for ensuring our
community values are preserved while we proactively plan for future
growth. This Comprehensive Plan considers the voice, vision, and future
of the Jefferson County community in the Jefferson County Planning
Area through the year 2045.
This Chapter describes:
▶ The Jefferson County planning area.
▶ The purpose of this Comprehensive Plan.
▶ The planning process and public involvement
▶ The Vision Statement and Framework Goals that guide this
Comprehensive Plan.
▶ Use of this Comprehensive Plan in decision-making.
▶ How this Comprehensive Plan shall be amended and monitored.
Carolyn Gallaway
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Jefferson County Comprehensive Plan ii Public Hearing Draft April 2026
PLANNING AREA
Jefferson County is in the north-central portion of Washington’s Olympic
Peninsula. The County is bounded on the west by the Pacific Ocean, and on
the east by the waters of the Admiralty Inlet and Hood Canal. Clallam
County and the Strait of Juan de Fuca define the northern border, while
Mason and Grays Harbor Counties define the southern boundaries. Jefferson
County comprises approximately 1,814 square miles of land area and
approximately 2,187 square miles within the full county boundary, which
includes offshore water areas. It is the eighteenth largest of the State’s thirty-
nine counties. The Olympic National Park and National Forest, which bisect
the county into western and eastern halves, comprise approximately 60% of
the county’s 1.16 million acres of land. About another 20% of land is under the
jurisdiction of other federal and state agencies. Most of the county’s
population—over 94%—resides in eastern Jefferson County. As of 2023, 5.7%
of the population in Jefferson County reside in Western Jefferson County.
The bulk of the county’s population is located primarily in the northeast
portion of the county, in the communities of Port Townsend, the Tri-Area
(Irondale, Port Hadlock, and Chimacum), and Port Ludlow. Quilcene, and
Brinnon are the largest communities in the southern portion of the
county. There are two Master Planned Resorts (MPR)—the Port Ludlow
MPR and the Pleasant Harbor MPR in Brinnon.
The county is largely a rural county, comprised primarily of forest lands
along with a smaller portion of agricultural lands. Clusters of small
residential developments are found along waterways and rural roads, a
reflection of settlement along Puget Sound and the Hood Canal, early
transportation routes, and a resource-based economy. This rural quality
of life is what attracts many residents and tourists to the county and is
what most residents desire to protect.
Jefferson County has one incorporated city, the City of Port Townsend—
the largest community and an urban growth area (UGA) under the
Growth Management Act, chapter 36.70A RCW (the GMA). In 2024, the
Port Townsend UGA was expanded to include approximately 33 acres of
publicly owned parcels to the south of city limits. This unincorporated
portion of the Port Townsend UGA is subject to this Jefferson County
Comprehensive Plan and Jefferson County development regulations.
Jefferson County has one other UGA, located in portions of the
unincorporated communities of Port Hadlock and Irondale and now
referred to as the Irondale and Port Hadlock UGA (PHUGA). UGA zoning
in in portions of Port Hadlock and Irondale satisfied the GMA
requirements on September 9, 2025, when urban levels of service for
sewer were realized by the Port Hadlock Sewer System (PHUGA Sewer
System) became operational. The urban zoning in the current
unincorporated UGA only will expand to other areas of Port Hadlock and
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Jefferson County Comprehensive Plan iii Public Hearing Draft April 2026
Irondale as sewer service becomes available to properties within 200 feet
of a sewer collection line. These areas only then will meet the GMA
requirements for a UGA because they will have urban levels of service in
terms of a water and a sanitary sewer system. The PHUGA Sewer System
uses a modular sewer plant with greater capacity to process sewage
than for the just the initial service area. Division I of title 13 JCC allows for
broadening the PHUGA Sewer System. The county may initiate
formation of a local improvement district (LID) for the purpose of funding
sewer extensions or expansions, or the county may secure grants or
appropriations for this purpose. The county currently has no plans to
fund sewer extensions or expansions. However, chapter 13.08 JCC
authorizes late comer agreements which allow developers to pay for
sewer expansion with recovery of expansion costs from owners of parcels
who later hook up to the PHUGA Sewer System.
The PHUGA Sewer System provides wastewater treatment for local
residents and businesses on properties within 200 feet of a sewer
collection line. A zoning map shows the area of the current UGA. See
zoning map at:
https://www.co.jefferson.wa.us/DocumentCenter/View/11745/UGA-
Zoning-with-Sewer. the PHUGA Sewer System supports affordable
housing, medical facilities, higher density multifamily residences, senior
housing, and commercial and industrial development within the area
shown on the zoning map.
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Jefferson County Comprehensive Plan iv Public Hearing Draft April 2026
Exhibit A Jefferson County Planning Area
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Note: This exhibit was updated since the April 2025 Public Draft to include tribal reservation boundaries. Note: This
map accurately depicts the current boundary where UGA zoning is in effect within 200 feet of an existing sewer collection line via public rights-of-way, utility easements or some other route at the discretion of the Public Works director. However, urban zoning is not yet effective in the entire UGA and is limited to properties within 200 feet of 200 feet of an existing sewer collection line via public rights-of-way, utility easements or some other route at the
discretion of the Public Works director. See JCC 13.04.010(1) and definition of “available” and “availably” in JCC 13.02.010. See also, zoning map at: https://www.co.jefferson.wa.us/DocumentCenter/View/11745/UGA-Zoning-with-Sewer. Source: Jefferson County Community Development, 2024; BERK, 2025.
COMPREHENSIVE PLAN
PURPOSE
As required by RCW 36.70A.030, this Comprehensive Plan is a
generalized coordinated land use policy statement of the governing
body of Jefferson County that is adopted pursuant to the GMA.
Under the GMA, counties must adopt a comprehensive plan and
development regulations. “Development regulations” include, but are
not limited to, zoning ordinances. Woods v. Kittitas Cty., 162 Wn.2d 597,
609 (2007). As required by WAC 365-196-800(1), the development
regulations must be consistent with and implement this
Comprehensive Plan. However, since a comprehensive plan is a guide
and not a document designed for making specific land use decisions,
conflicts surrounding the appropriate use are resolved in favor of the
more specific development regulations, usually zoning regulations.
Citizens for Mount Vernon v. City of Mount Vernon, 133 Wn.2d 861, 873
(1997). A specific zoning ordinance will prevail over an inconsistent
comprehensive plan. Id., 133 Wn.2d at 873-74. If a comprehensive plan
prohibits a particular use but the zoning code permits it, the use would
be permitted. Weyerhaeuser v. Pierce County, 124 Wn.2d 26, 43, (1994).
These rules require that conflicts between a general comprehensive
plan and a specific zoning code be resolved in the zoning code’s favor.
Citizens of for Mount Vernon, 133 Wn.2d at 873-74.
This Comprehensive Plan must contain certain elements, discussed in
detail below. The county must designate any urban growth area,
outside of which growth can occur only if it is not urban in nature.
When this Comprehensive Plan and development regulations comply
with the GMA, then project permit decisions that are consistent with
this Comprehensive Plan and development regulations will also comply
with the GMA.
This Comprehensive Plan is a decision-making guide for both officials
and community members. This Comprehensive Plan serves as a tool for
making decisions about future growth and development in Jefferson
County over the next 20 years.
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This Comprehensive Plan outlines goals and policies that help define,
direct and guide future growth and development throughout the
county.
Why Plan?
Comprehensive land use planning is a systematic process designed to
define a long-range community vision. The process unites a clear
understanding of existing conditions within a community with the
development of goals and policies that enable that community to make
decisions from which its long-range vision will be addressed. The process
is a powerful tool for turning promising possibilities into long-term
realities.
Planning enhances the ability to weigh competing needs in the
community and make judicious allowances for each. It affords the
opportunity to balance the demands of development with benefits of
economic development and protection of human health and the
environment. It provides tools for supplying family wage jobs and
affordable housing without compromising our rural character. In
addition, it prepares for harnessing the rewards of a growing
population while simultaneously meeting the challenge of providing
safe, healthy, and convenient community services for everyone.
Planning enables addressing the current needs of the community
before development begins and then directs how and where that
growth should occur.
In accordance with the GMA, the 2025 update addresses a 2045 horizon
year, and considers new population, housing, and job growth, changes
to the Future Land Use Map, accommodating the county’s fair share of
affordable housing, racially disparate impacts of housing policies and
adequate provisions to address identified impacts, and supporting
investments in parks and transportation, utilities, and public services.
The 2025 update also includes a new Climate Element consistent with
recent changes in State law. This Comprehensive Plan is also required
to be consistent with the Countywide Planning Policies (CPPs). Each of
these are discussed in more detail below.
Guiding Land Use & Growth Decisions
This Comprehensive Plan provides a legally recognized framework for
making decisions about land use in the unincorporated areas of
Jefferson County. This Comprehensive Plan manages growth by
directing more intensive development to appropriate areas while
protecting public health and conserving critical areas and natural
resource, rural, and open space lands. It is also intended to provide an
educational and a policy implementation tool for a broad range of
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public and private users, including community groups, Jefferson
County officials, and other government agencies. This Comprehensive
Plan helps these users in several ways:
▶ This Plan is the framework for other plans and development
regulations that govern the location and intensity of land uses
throughout unincorporated Jefferson County. This Comprehensive
Plan’s policies provide the basis for updating community plans
(subarea, local, and functional plans), for evaluating proposed
changes in zoning development regulations, and in reviewing
proposals for development projects such as land divisions. It also
indicates to the public how Jefferson County would likely review
and approve changes in plans, zoning, or other regulations that
apply to an area or a specific parcel.
▶ It guides the provision of public facilities and services by integrating
land use, infrastructure, and delivery of human services. This
Comprehensive Plan provides the framework for decisions about
public facilities and services (such as where facilities should be
located to support planned growth). This Comprehensive Plan also
directs public spending to areas where growth is targeted.
▶ It provides regional coordination and consistency with other
jurisdictional planning efforts. It is intended that other public
agencies (local, regional, state, federal, and tribal), in cooperation
with Jefferson County, use this Comprehensive Plan in conjunction
with the County-wide Planning Policies (CPPs) as regional
perspectives or county-wide viewpoints when other plans and
growth policies are developed and when making project decisions.
▶ This Comprehensive Plan allows for community participation and
involvement. Comprehensive planning is an evolving process which
allows for periodic review and updates in response to changing
community goals and vision as articulated by community
members, businesses, and interested organizations.
▶ This Comprehensive Plan allows the county to thoughtfully plan
the future and create a place where residents are happy to live.
Carolyn Gallaway
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Jefferson County Comprehensive Plan viii Public Hearing Draft April 2026
Growth Management Act
The GMA provides a framework for land use
planning and the regulation of development in
response to challenges posed to the health and
quality of life by rapid growth.
Within the framework established by the GMA, a
wide diversity of local visions for the future can be
accommodated; however, certain procedural
criteria must be met. Recognition of the variations
and diversity in local communities is implicit in the
framework of the GMA. A “bottom-up” approach
to planning is recommended. “Bottom-up”
planning originates at the community level with
the articulation of a vision statement, which
encompasses the values of as many different
community members as possible. The vision is
then translated into goals and policies, and
eventually development regulations. The main
requirement is that the vision is consistent with
the goals and intent of the GMA.
It is important to note that a “bottom-up”
approach does not mean that procedural and
regulatory constraints may be ignored. Successful
“bottom-up” planning is predicated on allowing a
community to choose the appropriate “tools” for
the job, provided that those selected are located
entirely within a “toolbox” defined by the GMA. It is
critical in the planning process for a jurisdiction to
provide sufficient guidance so that a community
understands the need to avoid selecting “tools”
which are found outside of the “GMA toolbox.”
Failure to provide adequate guidance likely will
result in inappropriate choices being made.
The GMA establishes several requirements for local
comprehensive planning. The GMA identifies
specific goals for all Comprehensive Plans, prescribes the elements
each plan is to contain, provides requirements for interim development
regulations, mandates the establishment of Urban Growth Areas
(UGAs), requires local governments to demonstrate how they will pay
for the improvements and facilities called for in their plans, and
mandates extensive public participation in the planning process.
The GMA changed the process for developing Comprehensive Plans in
several important ways:
The Growth Management Act provides goals,
in no particular order, that guide the development and adoption of comprehensive plans and development regulations. These goals direct most population and growth to
be focused in urban areas to avoid sprawl,
provide efficient and effective services and infrastructure with adopted levels of service, and protect environmentally critical areas. See
RCW 36.70A.020, for full goals. These goals, in summary, address:
▶Urban Growth
▶Reduce Sprawl
▶Transportation
▶Housing
▶Economic Development
▶Property Rights
▶Permits
▶Natural Resource Industries
▶Open Space and Recreation
▶Environment
▶Citizen Participation and Coordination
▶Public Facilities and Services
▶Historic Preservation
▶Climate Change and Resiliency
▶Shorelines of the State
The fourteenth goal was added in 2023 to
address climate change, and the fifteenth
goal references goals and policies from the Shoreline Management Act (RCW 90.58.020). See RCW 36.70A.480.
Growth Management Act Goals
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▶ It established 15 statewide goals with which local Comprehensive
Plans and development regulations must be consistent. See
sidebar.
▶ In addition to the mandated goals, local Comprehensive Plans
must contain the following elements per RCW 36.70A.070:
— Land Use Element
— Housing Element
— Capital Facilities Plan Element
— Utilities Element
— Rural Element, for counties
— Transportation Element
— Economic Development Element, when state funds are
available
— Park and Recreation Element, when state funds are available
— Climate Change and Resiliency Element
▶ Local governments must adopt policies and development
regulations to protect critical areas and natural resource lands.
▶ Local governments must demonstrate how the capital facilities
necessary to support the development envisioned by their
Comprehensive Plan will be provided and paid for as development
occurs, or within a specified time thereafter.
▶ The Comprehensive Plans of counties, and cities or towns within
those counties, must be consistent with one another (e.g.,
alignment with growth allocations and Countywide Planning
Policies, not local policies).
▶ In consultation with cities, Counties must adopt population
allocations for the 20-year planning period.
▶ Counties and cities must agree on UGAs "within which urban
growth shall be encouraged and outside of which growth can
occur only if it is not urban in nature." The UGAs must be able to
accommodate the allocated growth that is expected to occur over
20 years.
▶ Counties and cities jointly must adopt county-wide planning
policies which establish guidelines on how their Comprehensive
Plans will be developed to be consistent.
The GMA goals and element requirements were amended in recent
years to require jurisdictions to plan for and accommodate housing
that is affordable to all economic segments of the population (House
Bill (HB) 1220), to identify and address racially disparate impacts (HB
1220), to expand housing options by easing barriers for ADUs (HB 1337),
and to address climate hazards that Jefferson County currently
experiences and that are expected to worsen in the future (HB 1181). In
addition, HB 1110 requires many cities in the state to increase middle
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Jefferson County Comprehensive Plan x Public Hearing Draft April 2026
housing opportunities—the county is not required to comply with HB
1110 but has chosen to increase middle housing opportunities in the
Irondale and Port Hadlock UGA to improve housing opportunities and
affordability in the UGA and meet other local priorities.
The GMA requires that Jefferson County and any city within it prepare
comprehensive plans every ten years to manage population and
employment growth for 20–year planning horizons (RCW
36.70A.130(5)(b)). As long as the population of Jefferson County is less
than fifty thousand and its population has increased by no more than
17% in the ten years preceding the deadline, the county has an
additional twenty-four months following the ten-year deadline (RCW
36.70A.130(6)(b)). The County has worked to meet this mandate with
extensive public involvement and community outreach.
Countywide Planning Policies
On December 21, 1992, Jefferson County and the City of Port Townsend
adopted a joint resolution establishing the Countywide Planning
Policies (CPPs) as a policy framework to guide the development of
comprehensive plans. The county’s version of this joint resolution is
Jefferson County Resolution No. 128-92. To achieve greater countywide
representation in coordinated planning, the Growth Management
Steering Committee (GMSC) was expanded over time to include
officials from Jefferson County, the City of Port Townsend, the Port of
Port Townsend, and Jefferson County Public Utility District No. 1. In
2024, the reconstituted GMSC, along with one representative each from
the Irondale and Port Hadlock UGA and Brinnon Rural Village Center
communities oversaw updates to the CPPs. Federally recognized
Indian Tribes were also invited to participate in review of the CPPs. The
2024 amendments to the CPPs included those necessary due to recent
legislative changes, updates to provide clarification to select policies,
and deleting policies that were no longer relevant. The updated CPPs
were adopted by the City of Port Townsend and the Jefferson County
Board of Commissioners (Board) in a joint resolution on November 18,
2024. The county’s version of this joint resolution is Jefferson County
Resolution No. 67-1118-24R.
CPPs are designed to ensure that county and city comprehensive plans
are consistent with one another and consistent with regional growth
management planning. According to the GMA, each local
Comprehensive Plan should demonstrate that such policies have been
followed in its development (RCW 36.70A.210(1) and WAC 365-196-510).
The CPPs ensure coordinated land use and population planning
between Jefferson County and the City of Port Townsend.
The CPPs recognized the need for counties, cities, special purpose
districts, and those agencies and jurisdictions involved in the delivery of
public services, to coordinate the independent development of
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Jefferson County Comprehensive Plan xi Public Hearing Draft April 2026
Comprehensive Plans. The implementing legislation to the GMA
required that counties and cities agree upon policy statements in
eleven subject areas, including: urban growth areas, contiguous and
orderly development and the provision of urban services, joint county
and city planning, siting of essential public facilities, countywide
transportation facilities and strategies, affordable housing for all
economic segments of the population, countywide development and
employment, Tribal coordination and protection of Tribal cultural
resources, and rural areas. In addition, the City of Port Townsend and
Jefferson County agreed to include policies pertaining to fiscal impacts
associated with the impacts of growth and how to use the CPPs.
Exhibit B offers a guide to the relationship between the CPPs and the
Comprehensive Plan Elements. Compliance with the CPPs has been
integral to the development of individual elements of this
Comprehensive Plan, and each element provides an overview of
consistency with relevant CPPs.
Exhibit B Relationship: CPP & Comprehensive Plan Elements
Countywide Planning Policy Comprehensive Plan Element
1. Policy to Implement RCW 36.70A.110 Urban Growth Areas (UGAs) Land Use
2. Promotion of Contiguous and Orderly Development and Provision of Urban Services Transportation
Capital Facilities, Essential Public Facilities, & Utilities
3. Joint County and City Planning within Urban Growth Areas Land Use
4. Siting Public Capital and Transportation Facilities of a County or Statewide Significance Transportation
Capital Facilities, Essential Public Facilities, &
Utilities
5. Countywide Transportation Facilities and Strategies Transportation
Capital Facilities, Essential Public Facilities, &
Utilities
6. Provision of Affordable Housing Land Use
Housing
7. Countywide Economic Development &
Employment
Land Use
Economic Development
8. Rural Areas Land Use
9. Fiscal Impacts Analysis Transportation
Capital Facilities, Essential Public Facilities, &
Utilities
10. Protection of Tribal Cultural Resources & Tribal
Coordination
Land Use
Open Space, Parks & Recreation, Historical & Cultural Preservation
11. Countywide Planning Policy: Use, Monitoring, Review, and Amendment Plan Foundation
Source: Jefferson County, 2025.
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Jefferson County’s Compliance
Strategy
This Comprehensive Plan has been designed based on four
fundamental sources of support and guidance. Together, they provide
the framework for this Comprehensive Plan, which is responsive to local
needs and regionally unique land use patterns and follows the goals
and requirements of the GMA.
▶ Compliance with the goals and procedural criteria of the GMA and
its implementing development regulations.
▶ Compliance with CPPs, adopted jointly by the City of Port
Townsend and Jefferson County, to ensure that local plans are
consistent with each other and with the GMA (e.g., alignment with
growth allocations and the CPPs, not local policies).
▶ Continuous, open public participation in the planning process.
▶ Analysis and compliance with the Growth Management Hearings
Board decisions and decisions made by Washington State courts.
The GMA goals and procedural criteria, and the Growth Hearings Board
and court decisions, set the State-wide framework. The Countywide
Planning Policy and public participation supply local detail for realizing
the GMA’s broader goals within Jefferson County.
PLANNING PROCESS &
PUBLIC PARTICIPATION
Planning Since 1991
The State legislature, responding to the Growth Strategies Commission
Report on Long-Range Planning in the State of Washington, adopted
the GMA in 1990.
The Board voted to “opt-in” to the GMA in late 1991. Public involvement
in the planning process began immediately with the formation of
community task forces to develop Interim Critical Area, Mineral Land,
and Forest Resource Land Ordinances.
Concurrently, the county developed a questionnaire, titled Jefferson
2000, which surveyed County residents’ opinions about their vision for
the future. Jefferson 2000 also asked residents to rank “values,” such as
economic growth, environmental protection, visual beauty, and the
accessibility of services.
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The County convened the Jefferson 2000 Strategic Planning process,
which involved 26 separate taxing districts and service providers
responsible for water, fire protection, libraries, and similar services to
County residents. Jefferson 2000 Strategic Planning used information
generated by the Jefferson 2000 questionnaire and analysis of existing
services, facilities, and long-range plans of the service providers to
begin capital facilities planning required by the GMA.
The Joint Growth Management Steering Committee was created in
1991 to oversee the development of planning in Jefferson County under
the GMA. The Steering Committee consisted of three representatives
from the City of Port Townsend, the only incorporated city in Jefferson
County, and the Board. The Steering Committee was formed with a
provision that, should additional UGAs be designated, the Steering
Committee would be expanded to accommodate representation from
the newly designated UGA.
The CPPs were developed cooperatively between City and County staff
consistent with the requirements and procedural criteria of the GMA,
and was reviewed by the Joint Growth Management Steering
Committee. Public hearings were held on the CPP, and both City and
County government adopted these policies by joint resolution on
December 21, 1992. The county’s version of this resolution is Jefferson
County Resolution No. 128-92. The most recently updated CPPs were
adopted by the Board on November 18, 2024 in Jefferson County
Resolution No. 67-1118-24R, as discussed above.
Considering Alternative Futures
To assist community members and decision-makers in formulating a new
long-range Comprehensive Plan for Jefferson County and to comply with
the State Environmental Policy Act (SEPA), Chapter 43.21c RCW, the county
commissioned and issued an Environmental Impact Statement (EIS).
The EIS contained an analysis of existing conditions and land use needs
and demands and compared and analyzed the possible environmental
impacts of the Comprehensive Plan alternatives. Alternatives evaluated
were developed by the planning staff and Planning Commission with
input from the county’s community groups and residents.
The four alternative “Growth Scenarios” analyzed in the Draft EIS were:
▶ The Focused Growth Alternative
▶ The Dispersed Growth Alternative
▶ The Moderate Growth Alternative
▶ The Preferred Growth Alternative
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The 1997 Draft EIS evaluated environmental impacts that may
result from the implementation of the proposed alternative plans.
The alternatives explored the meaning of rural character (see
sidebar for state requirements on rural character), and the
distribution of growth in urban areas, rural centers, and resorts,
together with the balancing of the GMA goals and the CPPs.
The Draft EIS and the Draft Comprehensive Plan were considered
in the public review and adoption process. The Final
Environmental Impact Statement (Final EIS) of May 27, 1998
included additional analysis and findings resulting from public
comments on the Draft EIS. The Final EIS included all comments
received in writing along with County responses to the comments.
The Final EIS, together with the Draft EIS it completes, provides a
foundation of land use and environmental analysis for subsequent
Comprehensive Plan periodic updates and amendments and
implementation measures such as development regulations and
projects. The Final EIS has been supplemented and addended
since 1998.
The Preferred Alternative, evaluated in the Final EIS was adjusted
and integrated into the 1998 Comprehensive Plan.
The completed 2018 Comprehensive Plan Periodic Update
addressing the 2038 planning horizon, drew on and benefited
from the exploration of alternatives in the Final EIS, including the
definition of rural character, approaches to distributing growth
primarily in urban areas, and suggested environmental policies
and mitigation.
The 2025 Comprehensive Plan Periodic Update, addressing the
2045 planning horizon further, explored distribution of affordable
and attainable housing growth in urban areas and two Limited
Areas of More Intensive Rural Development (LAMIRDs) that allow
residential, and adopts policies that contribute to climate change
resilience and mitigation. A Determination of Nonsignificance
(DNS) and SEPA Checklist were issued in September 2025 for
public review and comment.
Rural character refers to the
patterns of land use and
development established by a county in the rural element of its comprehensive plan. See
RCW 36.70A.011 and RCW
36.70A.170 for full description.
In summary, rural character involves patterns of land use
and development established
by a county in the rural element of its comprehensive plan, including areas:
▶Where open space, natural landscape, and vegetation
predominate over built
environment.
▶That foster traditional rural
lifestyles, rural-based economies, and opportunities to both live
and work in rural areas.
▶That provide visual
landscapes that are traditionally found in rural areas and communities.
▶That are compatible with the use of the land by wildlife nad for fish and
wildlife habitat,
▶That reduce the
inappropriate conversion of undeveloped land into sprawling, low-density
development.
▶That generally do not
require the extension of
urban governmental services.
▶That are consistent with the protection of natural surface water flows and
groundwater and surface
water recharge and discharge areas.
Rural Character
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Plan Creation & Amendment
Exhibit C below describes how the various pieces of the
comprehensive planning process fit together. Concurrent with
environmental review, public hearings and workshop meetings have
been held by both the Jefferson County Planning Commission and the
Board [meetings in process after Planning Commission Public Hearing
Draft].
Exhibit C Comprehensive Plan Update Process Diagram
Public Involvement
Public involvement is the cornerstone of comprehensive planning for any
community. Complying with the requirements of the GMA, Jefferson
County has engaged community leaders, interested community
members, developers, property rights advocates, environmentalists, and
neighborhoods in a dynamic, active public process.
Public participation has occurred not only through community
participation in task forces and goals-setting workshops, but also under
the auspices of the Planning Commission. Consistent with the Planning
Enabling Act, Chapter 36.70 RCW, the Planning Commission has been
involved in comprehensive planning in Jefferson County. The Planning
Commission has advertised its activities in the local newspapers and
held open houses on a variety of issues.
[These photos will be updated with photos from Open Houses.]
Port Ludlow Open House Meeting, July 2016, Jefferson County
Community Visioning Inventory & Analysis
Discussion Draft Elements
Public
Outreach, Consultation with Tribes, State, & Other Governments, & Planning Commission Review
Draft Plan Review
Planning Commission Public
Hearing & Recs.
Board of County Commissioners Public Hearing & Adoption
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Draft Plan Open House in Quilcene (left) and Chimacum (right), April 2018, BERK
Public involvement in comprehensive planning is required for
compliance with the GMA and has been identified by the Growth
Management Hearings Board as essential to proper development
and adoption of plans. In addition, public participation is essential in
adopting a Comprehensive Plan which preserves the character of
Jefferson County as envisioned by community residents.
With the 1998 adoption of this comprehensive plan and with other
periodic and annual amendment cycles, the county has conducted
regular and extensive public engagement efforts. Appendix A
documents the 2025 Comprehensive Plan periodic update community
involvement efforts in full. Residents, property owners, community
groups, businesses, and experts provided valuable input throughout
the 2025 update. Outreach efforts employed both traditional and
creative approaches to involve the community and key stakeholders in
an effort to welcome all community members to contribute their
voices. These included four outreach events hosted by staff and
Planning Commission in February and March of 2025 to review draft
goals and policies, organization of a Climate Action Committee
workgroup to guide development of the new Climate Element,
targeted engagement with community-based organizations and
stakeholders, and formal public hearings with Planning Commission
and the Board.
Key themes of feedback across the efforts included:
▶ One of the most common values in the county is the natural
beauty and rural landscape. Conservation and celebration of the
county’s recreational opportunities and natural resources is a
priority for county residents, particularly around conservation and
protection of forest resource land and agricultural land.
Board of County Commissioners
Meeting, BERK
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▶ People encourage the County to continue actively preparing for
the existing and projected impacts of climate change to ensure a
regenerative and equitable future, where environmental health,
social justice, and economic resilience are inseparable.
▶ Residents value the strong sense of community, including the
strength of its diverse, multicultural community.
▶ Affording a home to rent or to own is one of the most
challenging issues people are facing. The community would like
to see more diverse housing types (including more rental options
and supportive housing) available across all affordability levels,
ages, and abilities and additional support for those experiencing
homelessness.
▶ Residents would like to see increased access to services and more
infrastructure to meet needs across the whole community,
particularly for vulnerable or marginalized groups and in
geographically isolated areas.
▶ Residents would like to see an increase in multimodal
transportation options, including expanding universally accessible
public transportation, bike and pedestrian paths, and trail
connections.
▶ People would like to see a diversified economy with more
employment and workforce development opportunities,
particularly living wage jobs and job training. This includes
strengthening key industries and expanding job options in natural
resources, industrial and manufacturing businesses, agricultural
and food businesses, and tourism.
▶ Planning for the future should center historically
underrepresented or marginalized voices—including Black,
Indigenous, immigrant, disabled, and working-class communities—
and ensure meaningful, ongoing participation and benefit.
▶ Tribes in West Jefferson County voiced a need for more housing,
a closer school, improved transportation (especially for elders),
better health care services, and additional economic
development opportunities. For example, Hoh Tribal members
especially value living in a close-knit Tribal community but find
accessing services and limited infrastructure difficult.
The overarching goal of this outreach was to develop a comprehensive
plan that ensures a high quality of life and access to opportunities for all
residents. See Appendix A for a full summary of engagement
conducted as part of the period update.
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Jefferson County Comprehensive Plan xviii Public Hearing Draft April 2026
VISION STATEMENT
Comprehensive Planning in Jefferson County has matured in the 35
years since the GMA was passed, and the diverse viewpoints shared
during participation of the community have shaped a meaningful and
enduring vision that is pragmatic and responsible. Jefferson County’s
vision statement is prominently located at the beginning of this plan
following the table of contents. This vision guides and directs this
Comprehensive Plan’s element goals and policies.
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FRAMEWORK GOALS
This Comprehensive Plan represents a synthesis between a thorough
analysis of existing conditions, the history of development patterns,
anticipated population growth, the requirements of the GMA, the
opportunities for new land uses, and the Vision Statement.
Community engagement described in Appendix A shaped the
following framework goals, which echo the vision statement in this
Comprehensive Plan. The framework goals are the heart of this
Comprehensive Plan and provide a bridge from the Vision Statement
to the Element-specific goals and policies. Although these framework
goals are not listed in priority order, they are interrelated, provide
structure in this Comprehensive Plan, and are to be balanced with each
other to support the desired future of Jefferson County.
Framework Goal I
Preserving Rural Character
Conserve Jefferson County’s functioning rural
way of life, agricultural and forest working lands,
shoreline and mountain vistas, and natural
ecosystems, not just to be preserved to provide
scenery, but to be preserved as a living, working,
and sustaining rural landscape with which the
community has a living/working relationship.
Carolyn Gallaway
Framework Goal II
Sustainable and Suitable Growth Patterns
Maintain a rural landscape by smartly growing in
urban areas, resorts, and established rural centers
and crossroads. Plan for infrastructure needed to
care for these communities. Consider
environmental, economic, and fiscal sustainability
when investing in infrastructure and adding new
development in rural and urban places.
Carolyn Gallaway
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Framework Goal III
Enhancement of the Rural Economy
Grow a robust economy with living wage jobs
based on resource lands, manufacturing, tourist
and recreation-oriented services, and evolving
technologies that allows our communities to
thrive; through a concept of a sustainable rural
economy—benefiting the county’s clean
environment and benefiting from the county’s
clean environment.
Jefferson County
Framework Goal IV
Housing Variety and Affordability
Create opportunities for innovation and flexibility in
housing types affordable and attainable across
incomes, ages, and abilities. Promote an adequate
supply of quality year-round housing for
community members, the workforce, seasonal
farmworker housing, and recreational homes or
accommodations for visitors.
PHA, Port Hadlock Zillow, Quilcene
Framework Goal V
Allocation of Land and Investment
to Meet Anticipated Needs
Meet projected community needs for housing,
commercial, and industrial growth through
appropriate zoning and capital facility investment.
To be consistent with urban growth and rural
character goals, focus higher densities in urban
growth areas and secondarily within resorts, rural
centers, and crossroads.
Zillow, Port Hadlock Property
Framework Goal VI
Environmental Conservation
Foster environmental stewardship, preserve clean
air and water, and protect fish and wildlife habitat.
Anticipate and respond to climate change with
mitigation and adaptation strategies.
Carolyn Gallaway
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Jefferson County Comprehensive Plan xxi Public Hearing Draft April 2026
Framework Goal VII
Mobility
Provide a transportation system where residents,
workers, and visitors have safe, comfortable, and
interconnected ways to travel in Jefferson County
whether as a driver, bicyclist, or pedestrian.
Kitsap Sun, Olympic Discovery Trail, Port Townsend
Framework Goal VIII
Active and Healthy Living
Promote community health and safety by
fostering built environments that increase
access to nutritious foods, active lifestyles and
community services that are convenient to
where residents live, work, learn and play.
Chimacum Market, Jefferson County Public Health
Framework Goal IX
Continuous and Ongoing Public Involvement
Provide opportunities for meaningful and
equitable public involvement. Engage diverse
stakeholders, historically marginalized
communities, and vulnerable populations in the
decision-making process.
Jefferson County Tri-Areas Open House Meeting
Framework Goal X
Compliant with the GMA
Maintain a Comprehensive Plan consistent with
the GMA goals, requirements, case law, and the
CPPs, and within this framework, strive to
provide leadership and collaborative work with
the State on legislative and local solutions to the
challenges met with the GMA by rural counties.
Carolyn Gallaway
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USING THIS
COMPREHENSIVE PLAN
Comprehensive Plan Contents
This Comprehensive Plan is organized in the following elements:
▶ Plan Foundation
▶ Element 1 Land Use
▶ Element 2 Natural Resources
▶ Element 3 Housing
▶ Element 4 Open Space, Parks & Recreation,
Historical & Cultural Preservation
▶ Element 5 Environment
▶ Element 6 Transportation
▶ Element 7 Economic Development
▶ Element 8 Capital Facilities & Utilities
▶ Element 9 Climate Change
Appendices provide additional detail and supporting materials, as
follows:
▶ Appendix A: Community Engagement Summary
▶ Appendix B: Jefferson County Resolution No. 68-1118-24R,
Population Forecast & Allocations
▶ Appendix C: Transportation Technical Document
▶ Appendix D: Capital Facilities Plan Technical Document
▶ Appendix E: Land Capacity & Housing Technical Appendix
▶ Appendix F: Climate Engagement Plan & Vulnerability
Assessment
Each element includes assessments of existing conditions
containing baseline data for key areas.
Individual “elements” of this Comprehensive Plan describe goals and
policies that have been developed to provide clear policy direction for
land use decision-making in the future. Each element also includes
strategies that implement the goals and policies.
Title 18 JCC, the Unified Development Code (UDC) provides detailed
development regulations for implementation of these goals and
policies.
Vision: A community’s best
desired future.
Framework Goal:
Framework goals are an
extension of a vision and form the foundation for the goals and policies contained in
other elements of the
Comprehensive Plan.
Goal: A goal is a direction-
setter. It is an ideal future end, condition or state related to the public health, safety, or
general welfare toward which
planning and implementation measures are directed. A goal is a
general expression of
community values and, therefore, is abstract in nature. Consequently, a goal is generally not quantifiable,
time-dependent, or suggestive of specific actions for its achievement.
Policy: A policy is a specific
statement that guides
decision-making. It indicates
a clear commitment of the local legislative body. A policy is based on a comprehensive
plan’s goals and the analysis
of the data. A policy is put into effect through implementation measures
such as zoning, land division,
and environmental ordinances.
Terms
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Related Plans
The following related plans address shorelines, subarea, and parks
important to meeting the GMA requirements for required or optional
elements, and are hereby incorporated by reference as amended:
▶ Shoreline Master Program Goals and Policies (2014, adopted
periodic update anticipated in 2026)
▶ Brinnon Subarea Plan (2004)
▶ Parks, Recreation, and Open Space Plan (2022)
Community Plans
Prior to the development of its initial Comprehensive Plan, Jefferson
County invited communities to help prepare area-specific plans. The
general content and direction of these community plans provided
information for development of the 1998 Comprehensive Plan. The
community plans were incorporated into the goals and policies of the
1998 Comprehensive Plan. The community plans have no further
standing as individual community plans.
Following are the plans completed through that process:
▶ Brinnon Community Development Plan (original 1982)
▶ Coyle Community Development Plan (1977)
▶ Gardiner Community Development Plan (1989)
▶ Marrowstone Community Development Plan (1978)
▶ Tri-Area Community Development Plan (1982)
Both the Planning Commission and the Department of Community
Development staff reviewed these Community Plans. The results of the
Community Planning Process and the Community Plans have been
integral to the identification of goals and policies included in this
Comprehensive Plan. Additional information can be found in the Land
Use Element—Community Planning Efforts.
Wayfinding: Western Jefferson County
Existing conditions, goals, and policies related to western Jefferson
County are denoted with a “W” icon and corresponding text in the
sidebar throughout this plan, as shown at right. While all elements
pertain to western Jefferson County, the Land Use, Natural Resources,
Open Space, Parks, and Recreation, Historical & Cultural Preservation,
Environment, and Economic Development elements include
information specific to the area.
Related to western
Jefferson County
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PLAN IMPLEMENTATION &
MONITORING
The Decision-Making Process
Planning decisions must be consistent with the intent of this
Comprehensive Plan. This Comprehensive Plan is a legal, binding
document and cannot be disregarded; it is also a document designed
to adapt to changing trends and circumstances. This Comprehensive
Plan serves as the basis for land use decisions. Over time, this
Comprehensive Plan’s policies may change to ensure that the
development pattern occurring in the county remains consistent with
both the intent of the Vision Statement, and the Comprehensive Plan’s
goals and objectives.
Limitations in Jefferson County Finance
Structure to Implement Plan
To carry out county duties and other duties required by the state, the
State Constitution enables a county to collect taxes for municipal
purposes. Levying taxes on assessed properties provides these funds.
State law limits the property tax levy on the regular rate and annual
increases.
Although there are various sources of state funds that come to local
jurisdictions and, at times, grant funding is available, Jefferson County is
limited in its ability to provide funds and financing to implement policies
in this Comprehensive Plan. This forces the county to make hard
decisions when developing budgets. The county must prioritize what can
be done or must delay project phases when there are inadequate funds.
The county’s budget must fund many items to provide local
governance. This includes services like health and emergency services,
water quality protection, sheriff, the court system, correctional facilities,
assessor, parks and recreation, and auditor functions including
elections. These and many other basic services need funding to allow
the county to function.
This Comprehensive Plan recognizes these funding limitations and the
need to balance aspirational policies with the need to identify where
funds will come from. Alternative methods of accomplishing goals and
policies are important in light of revenue collection challenges.
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Levies outside of this regular limit are “excess” or “special” levies that
may be elected to fund specific community needs like school and fire
districts, or funds for housing programs.
Volunteerism
Tremendous actions have been accomplished by an active and
energized community. There are countless examples of creative and
motivated community members filling the gaps between identified
needs which may be outside of the county’s purview or needs that
suffer from chronically unfunded or underfunded programs. Our
county can harness a collective spirit and collective responsibility to
overcome funding hurdles. Jefferson County supports and embraces
community involvement and volunteerism as a community
development strategy.
Amending this Comprehensive Plan
This Comprehensive Plan addresses long-range and county-wide issues
that are beyond the scope of decisions on subarea, local or functional
plans or individual development proposals. This Comprehensive Plan
serves as a vital guide to the future and provides a framework for
managing change. It is important that amendments to this
Comprehensive Plan retain the broad perspectives articulated in the
community vision statements, satisfy the goals, policies, and strategies
of this Comprehensive Plan, and remain consistent with the intent of
the GMA. There are typically two means of addressing Comprehensive
Plan Amendments: through an annual docket review or periodic review
per RCW 36.70A.130.
Amendments are to be justified through findings from monitoring of
“growth management indicators” (see following section). Amendments
to this Comprehensive Plan must also conform to the following:
a. The requirements of the GMA, chapter RCW 36.70A, and the State
Planning Enabling Act, chapter RCW 36.70, and the GMA
implementing rules at WAC 365-196.
b. Any proposed amendments to this Comprehensive Plan must be
submitted by the county to the Washington State Department of
Commerce at least 60 days prior to final adoption by the Board
(RCW 36.70A.106).
c. Planners should refer to: Sources of law at all levels of government,
including federal and state constitutions, federal and state statutes,
federal and state administrative regulations, and judicial
interpretations for proposed comprehensive plan amendments (WAC
365-196-720-745); this Comprehensive Plan’s Vision Statement,
Framework Goals, and Community Vision Statements; the CPPs,
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Jefferson County Comprehensive Plan xxvi Public Hearing Draft April 2026
related plans, and the comprehensive plans of other counties or cities
with which the county has, in part, common borders or regulated
regional issues (WAC 365-196-010 and 365 196-510).
d. Proposed amendments to this Comprehensive Plan will be
considered on an annual basis (no more frequently than once per
year), except when the following circumstances apply: (i) the initial
adoption of a subarea plan that does not modify this
Comprehensive Plan policies and designations applicable to the
subarea, and (ii) the adoption or amendment of a shoreline master
program pursuant to RCW 90.58. Other exceptions to the annual
process are stated in RCW 36.70A.130(2)(a). All proposals will be
considered concurrently so the cumulative effect of the various
proposals can be ascertained (WAC 365-195-620[3]). The county may
consider adopting amendments more frequently than once per
year if a declared emergency exists.
e. Consistent with the timelines contained in the GMA (RCW 36.70A),
the county must review all UGA boundaries, as well as the densities
permitted within both the incorporated and unincorporated
portions of each UGA. If necessary, the UGA boundaries will be
revised to accommodate the urban growth projected to occur in
the county for the succeeding 20-year period.
f. Amendments or changes to natural resource lands and critical area
designations should be based on consistency with one or more of
the following criteria:
— Change in circumstances pertaining to this Comprehensive
Plan or public policy.
— A change in circumstances beyond the control of the
landowner pertaining to the subject property.
— An error in designation.
— New information on natural resource land or critical area status
(WAC 365-190-485).
Details of the amendment process are contained in Jefferson County
Code Chapter 18.45.
Comprehensive Plan Amendment
Appeals
Growth Management Hearings Board Review
A petition for review to challenge an amendment to this
Comprehensive Plan or to plans, development regulations, or
amendments, adopted under the GMA that are within the jurisdiction
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Jefferson County Comprehensive Plan xxvii Public Hearing Draft April 2026
of the Growth Management Hearings Board must be filed with sixty
days of publication of the amendment per RCW 36.70A.280-290.
Judicial Review
Any judicial action to review any decision concerning the amendment
of this Comprehensive Plan, including related plans, shall be
commenced in superior court within sixty days from the date of the
final decision of the Growth Management Hearings Board per RCW
36.70A.300(5). Pursuant to RCW 36.70A.295, direct review of an
amendment to a Comprehensive Plan by the superior court is possible
if all the parties to the proceedings before the Growth Management
Hearings Board agree to direct review by the superior court.
Monitoring
The monitoring of growth management indicators such as those
listed below improves the effectiveness of public policy and allows
progress in achieving the goals and objectives behind that policy
to be measured:
▶ Population growth, actual vs. projected,
▶ Land capacity, actual vs. projected,
▶ Economic indicators, property values/comparative sales
compared to statewide averages and local trends,
▶ Public health and safety
▶ Natural resource consumption,
▶ Changes in technology,
▶ Needs,
▶ Omissions or errors, or
▶ A declared emergency.
Use of growth management indicators assures accountability to the
public. It demonstrates how effectively the county is moving toward
identified goals. Ongoing monitoring allows public resources to be
prioritized to meet goals and, if the desired outcome is not achieved, to
consider modifying the goals or development regulations. Growth
management indicators work well with the public participation process
of the planning cycle. Using growth management indicators, community
members and decision-makers can review growth management policy
and make changes that reflect present day realities.
These indicators are considered during the regular periodic review of
this Comprehensive Plan or may be considered during annual review
dockets where appropriate.
GMA requires most cities and
counties to complete an implementation progress report five years after the
Comprehensive Plan Periodic
Update that details the community’s progress in implementing their adopted
goals. Jefferson County is
exempt from this requirement as it does not meet the population density
requirements listed in RCW
36.70A.130(9)(a). However, the County will continue to monitor progress in
implementing the Plan as
discussed at left.
Plan Implementation
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Remove prior intentionally blank page from PDF if needed—formatted
as a placeholder to ensure each element starts on a right hand spread.
Do not publish from this point forward. Remove pages from
consolidated PDF. These sections should be updated and copied into
their appropriate chapters (TOC, References) as needed.
Table of Contents
PLAN FOUNDATION I
Introduction i
Planning Area ii
Comprehensive Plan Purpose v
Why Plan? vi
Guiding Land Use & Growth Decisions vi
Growth Management Act viii
Countywide Planning Policies x
Jefferson County’s Compliance Strategy xii
Planning Process & Public Participation xii
Planning Since 1991 xii
Considering Alternative Futures xiii
Plan Creation & Amendment xv
Public Involvement xv
Vision Statement xviii
Framework Goals xix
Using This Comprehensive Plan xxii
Comprehensive Plan Contents xxii
Related Plans xxiii
Community Plans xxiii
Wayfinding: Western Jefferson County xxiii
Plan Implementation & Monitoring xxiv
The Decision-Making Process xxiv
Limitations in County Finance Structure to Implement Plan xxiv
Volunteerism xxv
Amending this Comprehensive Plan xxv
Comprehensive Plan Amendment Appeals xxvi
Growth Management Hearings Board Review xxvi
Judicial Review xxvii
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Monitoring xxvii
Exhibit A Jefferson County Planning Area iv
Exhibit B Relationship: CPP & Comprehensive Plan Elements xi
Exhibit C Comprehensive Plan Update Process Diagram xv