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HomeMy WebLinkAbout052918_cabs01 CAB JEFFERSON COUNTY BOARD OF COUNTY COMMISSIONERS AGENDA REQUEST TO: Board of County Commissioners Philip Morley, County Administrator FROM: Joel Peterson,Associate Planner,Dept. Community Development Austin Watkins,Planning Manager,Dept. Community Development Patty Charnas,Director,Dept. Community Development DATE: May 23, 2018 AGENDA DATE: May 29,2018 SUBJECT: Work Session on Planning Commission Recommendations on the Comprehensive Plan Periodic Review & UDC Update,DCD Staff Report STATEMENT OF ISSUE: The Jefferson County Planning Commission (PC)has transmitted to the Board of County Commissioners (Board), findings and recommendations on the Public Review Draft Comprehensive Plan Periodic Update and Unified Development Code (UDC) amendments. The PC's recommended changes Comprehensive Plan and UDC are part of the County's state mandated periodic update that is required to be completed by June 30, 2018. Since the completion of the PC work, the Department of Community Development(DCD)has received minor comments on the Public Review Draft and proposed UDC amendments from the Department of Commerce, from the Washington Department of Transportation, and from County staff of various departments. All of the additional comments and recommendations from all sources are summarized in the attached DCD Staff Report. DCD staff will lead the Board in a work session, walking the Board through the PC recommendations and Staff proposed changes mentioned above. The project schedule will also be reviewed. BERK Consultants, the professional services contractor helping with the project, will participate in this session. ANALYSIS: Information presented to the Board in this work session will include an overview of the comprehensive plan periodic review process, including public involvement and planning CAB commission recommendations; an overview of the plan elements and the major framework, goals, and policies that have been updated; and an overview of the UDC updates proposed by the Planning Commission or Staff. Other relevant information, as appropriate, including compliance with State Environmental Policy Act(SEPA)will be discussed. This timely information will also prepare the Board for their public hearing scheduled on Monday, June 4, 2018 at 6:00 p.m. in the Jefferson County Superior Courtroom. The Planning Commission's recommended update to the Comprehensive Plan &update to the UDC, and the DCD Staff Report, may be viewed and downloaded by following the links at www.cojefferson.wa.us/578/Jefferson-County-Comprehensive-Plan. us/578/Jefferson-County-Comprehensive-Plan. FISCAL IMPACT: There is no fiscal impact related to the work session. RECOMMENDATION: Conduct work session with the Board in advance of their public hearing. REVIEWED BY: 572-4/a? L, Philip M•1 County• • s ator Date 0N c G2 O [NON Jefferson County Comprehensive Plan Update 2038 May 24, 2018 I Staff Report to the Board of County Commissioners Purpose of Plan and Code Update Under the Growth Management Act (GMA), counties and cities must review and revise their comprehensive land use plans and development regulations, including their population allocation, designated urban growth areas, and critical area ordinances every eight years. RCW 36.70A.1 30(1)(a). Jefferson County was granted an extension until June 30, 201 8 for their periodic update process. Jefferson County is updating its Comprehensive Plan to create a plan for the 21St Century meeting GMA periodic update requirements. The Comprehensive Plan Update includes amended plan goals and policies guiding development, capital investments, and other decisions. The County proposed focused amendments to its Uniform Development Code (UDC) and will develop further implementing codes over time. This staff report includes: • Comprehensive Plan Update Process Overview: An overview of the update process, including public involvement and Planning Commission recommendations and transmittal. • Comprehensive Plan Element Descriptions: A summary by plan element describing major concepts, goals, and policies that have changed under the Comprehensive Plan Update. • Unified Development Code Amendment Descriptions: Overview of UDC updates proposed by the Planning Commission. ■ Environmental Review: A description of the environmental review process for the Comprehensive Plan Update under the State Environmental Policy Act. Comprehensive Plan Update Process Overview Jefferson County began a community engagement process in 2014 initiating the Comprehensive Plan Update. The County reached out to the community through online events, meetings, and activities. The County collected over 603 ideas, suggestions, and comments between 2014 and 2016. In 2017, the Jefferson County Planning Commission reviewed community input, developed a refreshed vision statement, and reviewed streamlined goals and policies in a "Total Fitness Review". The Total Fitness Review process applied a set of review criteria to the existing Comprehensive Plan goals and policies, 01 May 24,2018 conducted subject matter expert outreach and review, and the Planning Commission made final Total Fitness Review recommendations. During the summer and fall of 201 6, the Planning Commission and Community Development staff conducted an extensive countywide community education and outreach program holding open houses in Port Ludlow, the Tri-Area, Gardiner, Quilcene, Brinnon, and the west end of the county at the Clearwater School. In 201 8, the County began a final phase of public review through the legislative process with the Planning Commission including public open houses and hearings on April 18 and 19, 201 8. After reviewing community input, the Planning Commission made its unanimous recommendations on May 9, 201 8 and transmitted its record and findings to the Board of County Commissioners. Attachment 1 Planning Commission Recommendations Transmittal, and Attachment 2 Public Engagement Summaries. Comprehensive Plan Element Descriptions A comprehensive plan is required to contain at least the following elements: land use, rural, housing, transportation, capital facilities, utilities, and when the state provides funding, parks, and economic development. The County is updating its plan vision statement, element inventories, and goals and policies. The Planning Commission and Jefferson County Staff have not proposed amendments to the future land use plan or zoning. The County is reorganizing its plan elements to integrate similar topics and to streamline the document. The draft Comprehensive Plan includes cross-references to the existing goal or policy or indicates if the goal or policy is newly proposed. Exhibit 1. Comprehensive Plan Organization Current Plan Elements Proposed Plan Reorganization Element 1--Introduction Plan Foundation Element 2--Urban Growth Area Element 1 -- Land Use Element 3--Land Use and Rural Element Element 2 -- Natural Resources Element 4--Natural Resource Conservation Element 3 -- Housing Element 5--Housing Element 4 -- Open Space, Parks& Recreation, Element 6--Open Space, Parks & Rec, Historic Historical & Cultural Preservation Preservation Element 5 -- Environment Element 7--Economic Development Element 6 -- Transportation Element 8--Environment Element 7 -- Economic Development Element 9--Essential Public Facilities Element 8 -- Capital Facilities, Essential Public Facilities, Utilities Element 10--Transportation Element 1 1--Utilities Element 1 2--Capital Facilities Source: Jefferson County 2018 Jefferson County Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 2 May 24,2018 PLAN FOUNDATION Formerly the Introduction, the Comprehensive Plan "Plan Foundation" chapter contains Framework Goals that respond to the Periodic Update public participation efforts and current plan objectives. The text is updated to reflect the County's planning history. This chapter is supported by an appendix describing public participation efforts. Planning Commission recommendations included: Renewed Vision Statement which provided the basis of the Framework Goals of: preserving rural character; sustainable and suitable growth patterns; enhancement of the rural economy; housing variety and affordability; allocation of land to meet anticipated needs; environmental conservation; mobility; active and healthy living; continuous and ongoing public involvement; and compliance with the GMA. The Vision Statement and Framework Goals permeate the Comprehensive Plan Update focusing individual element's goals and policies. LAND USE ELEMENT No substantive changes to the Future Land Use and Zoning Map are proposed. The Element was updated to consolidate rural, resource, and urban lands into one land use element focused on implementing the Framework goals. Planning Commission recommendations for goals included: • Framework: • Broadening Goal 1 to address consistency with state requirements and ensuring the Comprehensive Plan is implemented based on supporting regulations, plans, and programs. • Revising references to green development standards under Goal 1. • Broadening the policy on community planning to address subarea planning and implementing regulations. ■ Rural: • Referencing active engagement in tourism under Master Planned Resorts. • Adding a policy to encourage responsible stewardship of upland areas in relation to sustainable aquaculture. o Removing a policy on alternative wastewater technologies under Goal 16. o Referencing compatibility of uses under Goal 1 8. o Referencing large onsite sewage systems under Goal 20. Planning Commission recommendations included new land use goals and policies that are applicable to both rural and urban areas: ■ Examining new rural economic development and housing opportunities along selected regions of existing highway and commuter corridors. • Supporting low impact development and green building. • Ensuring land use compatibility with Naval Base Kitsap. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 3 May 24, 2018 • Supporting community planning updates, such as subarea planning, when staffing capacity allows. ■ Developing climate change information and action plans mitigating impacts. ■ Access to healthy foods linking residents to regional agriculture, urban agriculture, and improving access to healthy food. ■ Improving active living through mixed use zoning,connectivity, multimodal transportation options, active recreation, and complete streets. Planning Commission recommendations for Rural included: ■ Retaining a policy promoting adequate rural zoned land and allowing rezones, protecting rural character and avoiding sprawl, and adding a provision that there be consideration of vacant lot supply of the local area before allowing site-specific changes to residential zoning. • Creating a process and definitions for lots of record. • Ensuring periodic review of limited area of more intensive rural development (LAMIRD) related to Rural Village Centers and mixed uses. • Adding policy encouraging integration of infrastructure and economic development planning for Rural Village Centers. ■ Amending prior detailed policies that have been codified for Crossroads and simplifying to general intent and LAMIRD requirements. • Adding a policy about maintenance of open space and greenbelts in master planned resorts. ■ Encouraging renewable energy power systems and alternative wastewater systems to minimize infrastructure costs and reduce environmental impacts. • Adding a policy supporting the planning of the Glen Cove Light Industrial/Commercial District with the City of Port Townsend. • Adding policies addressing compatibility, use, and success of home-based businesses and cottage industries, such as a policy to implement development regulations preventing cottage industries from creating de-facto commercial zoning in residential districts. • Adding a policy encouraging future development regulations implementing elements of a Night Sky ordinance. Planning Commission recommendations for Resource included: • Summarizing agriculture, forest, and mineral resource lands of long-term commercial significance and addressing general woodland conservation. Planning Commission recommendations for Urban. Updates the Urban Growth Area (UGA) land capacity analysis. Relocates a shortened technical analysis to the appendix. Adds and modifies policies on: ■ Encouraging healthy active living. • Providing incentives for affordable housing and efficient development patterns. ■ Providing for alternative wastewater treatment. Jefferson County 1 Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 1 4 May 24,2018 ■ Identifying and protecting open space corridors including innovative techniques, such as transfer of development rights and gross density approaches. NATURAL RESOURCES This Element has been updated to present new background mapping of natural resource lands focusing on mineral lands and updated policies. Planning Commission recommendations included: • Promoting regular review of resource lands. • Supporting innovative techniques and accessory uses to support agriculture. • Addressing mineral land protection policies for properties that are mapped with good or fair resources but not yet in mineral resource lands overlay. ■ Supporting Firewise and similar programs as part of educational and management efforts. ■ Promoting community forestry focusing on small forest land owners assisting them in properly managing their forests for conservation and economic development. ■ Encouraging state, educational, and management assistance providers to help forest land owners manage their property. ■ Promoting the use and experimentation of new forest management practices through the Natural Resource Center facility in Forks, WA. ■ Endorsing the use of Forest Management Plans and the planting of a diversity of native trees that are resistant to laminated root rot. • Considering collaboration with Jefferson County Conservation District and other educational institutions to assess potential climate change impacts on agriculture and to develop mitigation strategies. • Referencing the importance of aquaculture, while continuing to cross reference to the Shoreline Master Program. • Broadening references to a range of tools for current and new generation farmers focused on promoting access to land and housing, such as parcel owner segregations and easements. HOUSING This Element has been updated to address recent trends and conditions regarding affordable housing. Planning Commission recommendations included: • Promoting accessory dwelling units (ADU), such as considering allowing tiny homes as ADUs and offering incentives and fee reductions for infill and ADU housing in the Irondale/Port Hadlock UGA. • Addressing housing barriers by conveying an ad-hoc panel of for profit and non-profit developers and housing stakeholders to discuss housing barriers. ■ Evaluating short-term rentals to ensure a sufficient housing supply for year-round residents. • Allowing alternative wastewater systems in UGAs. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 1 5 May 24, 2018 ■ Supporting housing rehabilitation programs in rural areas, such as the Washington State Department of Commerce's Rehabilitation Revolving Loan Program. OPEN SPACE, PARKS & RECREATION, HISTORIC & CULTURAL PRESERVATION This Element has been updated to incorporate the information in the 2015 Parks, Recreation, and Open Space (PROS) Plan Update. Active healthy living is addressed. References to tribal involvement in the identification and evaluation of cultural resources are addressed. Planning Commission recommendations included: ■ Broadening references to collaboration with individuals and tribes. ■ Referencing trail network linkages and including horse facilities in types of nonmotorized linkages. ■ Referencing cooperative efforts with citizen groups and volunteers in addition to other agencies, tribes, and the private sector. ENVIRONMENT ELEMENT This Element has been updated to address watershed planning and water resources in areas where private wells may be a water source in response to the Hirst decision. This Element adds information on climate change and the County and City climate action planning efforts. Air quality, noise, and night sky clarity are addressed in the Element background. Critical area maps are refreshed based on County code definitions and federal, state and county mapping layers. Some of the goals and policies on surface water in the current Land Use Element are moved to this Environment Element. Planning Commission recommendations included: • Addressing watershed planning efforts and reserve water quantities. ■ Incorporating by reference the Shoreline Master Program. ■ Addressing climate change with policies from the Climate Action Group and TP Lab Group's 2016 comments on the Comprehensive Plan Update. ■ Mitigating air quality and odor. ■ Promoting conservation practices supporting natural plant communities and site-specific resource concerns. ■ Supporting view protection and limiting impacts of outdoor lighting. ■ Reducing noise associated with noise-generating land uses through innovative methods. ■ Referencing stormwater management manuals. ■ Allowing alternative conservation and protection standards in fish and wildlife habitat conservation areas and wetlands areas per the Jefferson County Conservation District or other examples. ■ Promoting interagency cooperation improving environmental permit processing and wetland conservation. • Allowing mitigation banks and in-lieu fee programs for watershed based mitigation. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners I 6 May 24,2018 ■ Addressing the balance of commercial uses of natural resources with the protection of human and wildlife needs. TRANSPORTATION ELEMENT AND APPENDIX This Element has been updated to include a technical analysis regarding current and future conditions if projected growth occurs by 2038. The Element is supported by a Transportation Technical Appendix. Planning Commission recommendations included: ■ Revising public transportation goals promoting a reliable safe, cost-effective, and energy efficient system. • Encouraging public transportation agencies to use technology based software to improve coordination. • Encouraging electric and autonomous vehicle sharing programs including a network of electric changing stations. • Supporting the update of the Non-Motorized Transportation and Recreational Trails Plan. • Promoting multimodal and connected transportation networks in the Irondale/Port Hadlock UGA. • Providing adequate and appropriate signage to promote safe and effective multimodal transportation. ■ Evaluating transportation, plans, and projects for opportunities to adapt and mitigate the effects of climate change. ■ Supporting the expanded use of electric-assist bicycles, including safe and effective siting of E- bicycle charging stations. ■ Updating road miles, highway classification descriptions, airport master plan description, and other informational items. ECONOMIC DEVELOPMENT ELEMENT This Element has been updated to include new information on economic trends and activities of county economic development partners. Planning Commission recommendations included: • Working in collaboration with economic development partners, such as EDC Team Jefferson, Port of Port Townsend, Washington State University, North Hood Canal Chamber of Commerce, and North Olympic Development Council. ■ Pursuing grant funding and other forms of support from state and federal agencies to plan for economic development. • Examining rural job growth and economic development opportunities along highway and tourist corridors. Supporting a business-friendly environment. • Encouraging collaboration with tribal governments. ■ Addressing working waterfront and small marine activities in urban, rural economic, and resort areas. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners II 7 May 24,2018 • Supporting installation of a sewer system in the Irondale/Port Hadlock UGA. • Consider re-zoning Port of Port Townsend residentially zoned property of Quilcene Marina to Essential Public Facilities or to a new Public Purpose zone. • Supporting use of non-fossil based renewable energy. • Creating a local food system supporting the County population. ■ Encouraging non-motorized recreation and transportation as part of economic development. CAPITAL FACILITIES AND UTILITIES ELEMENT AND APPENDIX This Element is updated to combine the Capital Facilities, Essential Public Facilities, and Utilities Elements. It is supported by a Capital Facilities Plan Technical Appendix. Inventory information is amended. Planning Commission recommendations included: ■ Amending capital facilities level of service policies based on system plans, evaluations of growth, and funding implications. ■ Adding policy support for sewer installation in the Irondale/Port Hadlock UGA. • Adding a reference to implementing the prioritized organics recommendations contained in the Jefferson County Solid Waste Management Plan. ■ Amending essential public facility goals and policies to incorporate the 2014 Jefferson County International Airport Master Plan Update. • Updating utility polices to support new fiber optic cable installation, renewable energy source installation, and energy conservation implementation. STAFF SUGGESTED CHANGES The Washington State Department of Commerce provided an overall supportive comment letter consistent with its role under the GMA review of local government comprehensive plans. Attachment 6. The Washington State Department of Commerce requests clarity regarding population projections developed between the County and Port Townsend and suggests defining a process for reassessing land use in the Capital Facilities Technical Document. Staff and consultants have proposed changes to respond to this input. Attachment 3 and Attachment 4. Additionally, County staff and consultants have identified some text and policy consistency and housekeeping edits. In limited locations, staff suggests text or policy modifications strengthening linkages between elements, such as the link between economic development and adequate and affordable housing. The intent is to strengthen already-present goals and concepts. Further, County staff and consultants have updated a technical appendix of the current plan (Appendix G) containing acronyms and a glossary to match the Planning Commission recommendations. Staff and consultants have added in citations that match element text references. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 1 8 May 24,2018 Unified Development Code Amendment Descriptions Consistent with GMA, the County proposes updates to its development regulations,the Unified Development Code (UDC) in conjunction with the updates to the Comprehensive Plan. UDC changes are primarily housekeeping in nature identifying updated references, correcting scrivener errors, and improving usability, applicability, and understanding of the UDC. Minor policy revisions are proposed in the UDC updates. The State Environmental Policy Review Act (SEPA) Addendum issued April 4, 201 8 provided a comprehensive list of changes for public and Planning Commission consideration. The list of proposed UDC amendments are included in Attachment 1. County staff has additional recommended Comprehensive Plan and UDC amendments to the Planning Commission's recommendations. These County staff recommendations are due to review of the Prosecuting Attorney, state and other agency comments, and additional County department review. These recommendations are noted in Attachment 3 and Attachment 4. Planning Commission recommendations included: ■ Boundary Line Agreements, permitting landowners to privately agree to a disputed property line and record the agreement and updated boundary line with the County Auditor. JCC 18.35.060(7) (proposed). ■ Preapplication Conferences, permitting the UDC Administrator discretion on preapplication conferences for all Type II —Type V projects and Type I projects proposing impervious surfaces of 10,000 square feet or more and non-single-family structures of 5,000 square feet or more if the application clearly demonstrates that a preapplication will not add value. JCC 18.40.090(2) (proposed). ■ Various UDC housekeeping amendments, such as updating select definitions and improving the usability of the UDC. Environmental Review Consistent with State Environmental Policy Act Rules, Jefferson County issued a Determination of Significance and Notice of Adoption of prior EISs with an addendum on April 4, 2018. The addendum dated April 4, 201 8 identified how the proposed Comprehensive Plan and UDC changes were in the range of prior environmental review documents and alternatives and do not substantially change the analysis of significant impacts and alternatives in the prior documents. The addendum noted that no future land use/zoning map changes were proposed, and that growth projections were very similar to those in the current plan. Proposed goal and policy amendments are based on more recent technical information and trends. UDC amendments focus on consistency and clarity edits. Plan policies and code provisions are designed to mitigate the impacts of future development allowed by the Comprehensive Plan and code. Thus, environmental effects of the current non-project proposal are considered addressed. SEPA allows the preparation of an addendum at any time in an environmental review process. WAC 197-11-625; WAC 197-11-706. While a draft addendum is not required the County has prepared one considering Planning Commission recommendations and staff proposed changes; see Attachment 5. Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 9 May 24,2018 Following direction from the Board of County Commissioners on their proposed changes the draft addendum would be revised and circulated prior to County action on the Comprehensive Plan Update. Staff Report Attachments Attachment 1: Planning Commission recommendations on the 2018 Comprehensive plan periodic review (MLA14-00086) and update to the Unified Development Code (MLA14-00087) Attachment 2: Public Outreach Summary 2014-2016 and Planning Commission Open Houses 2018 Attachment 3: Staff Proposed Edits to the Planning Commission Draft Comprehensive Plan Attachment 4: Staff Proposed Edits to the Planning Commission Unified Development Code Amendments Attachment 5: Draft SEPA Addendum May 2018 Attachment 6: Department of Commerce Comment Letter Attachment 7: Comprehensive Plan and Unified Development Code Update Graphic *Note: Due to the large size of the attachments they are not included in this Staff Report and are available at http://www.co.iefferson.wa.us/578/Jefferson-County-Comprehensive-Plan under "[t]o view the proposed changes to the Comprehensive Plan click HERE" and "[t]o view the proposed changes to the Unified Development Code click HERE". Jefferson County I Comprehensive Plan Update 2038 Staff Report to the Board of County Commissioners 1 10