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Home My WebLink AboutJefferson CP 2018_12 Jefferson County Comprehensive Plan December 2018 Photos courtesy of the Collection of the Jefferson County Historical Society, Carolyn Gallaway, and Jefferson County. CONTENTS Jefferson County Comprehensive Plan December 2018 TABLE OF CONTENTS VISION STATEMENT PLAN FOUNDATION i Introduction i Planning Area ii Comprehensive Plan Purpose iv Why Plan? iv Guiding Land Use & Growth Decisions iv The Growth Management Act vi The County-wide Planning Policy viii Jefferson County’s Compliance Strategy ix Planning Process & Public Participation x Planning Since 1991 x Considering Alternative Futures xi Plan Creation & Amendment xii Public Involvement xii Vision Statement xiii Framework Goals xiv Using This Comprehensive Plan xvii Comprehensive Plan Contents xvii Related Plans xviii Community Plans xviii Wayfinding: Western Jefferson County xviii Plan Implementation & Monitoring xix The Decision-Making Process xix Limitations in County Finance Structure to Implement Plan xix Volunteerism xx Amending this Comprehensive Plan xx Comprehensive Plan Amendment Appeals xxii Growth Management Hearings Board Review xxii Judicial Review xxii Monitoring xxii CONTENTS Jefferson County Comprehensive Plan December 2018 1 LAND USE 1–1 1.1 Framework 1–1 Land Use Typologies 1–2 Population Projections 1–4 Land Use, Health, & Surface Water Analysis 1–8 Land Use Inventory & Analysis 1–8 Land Use & Public Health 1–10 Review of Surface Water Conditions & Existing Polluted Discharges 1–14 Land Use Strategy 1–15 Land Use & Zoning Designations 1–15 Rural Designations 1–19 Resource Land Designations 1–23 Master Planned Resort Designations 1–24 Urban Growth Area Designations 1–26 Public Designations 1–27 Major Industrial Development & Industrial Land Banks 1–28 Legal Nonconforming Uses & Lots 1–28 Establishing Allowed Uses & Regulations Within Land Designations 1–28 From Rural Character to Development Regulations 1–28 Rural Character & Review of Regulations for Land Uses, Development Patterns, & Nuisances 1–29 Community Planning Efforts 1–31 County-wide Planning Policies 1–34 Rural Areas Policies 1–34 Urban Growth Areas & Services 1–34 Overarching Land Use Goals & Policies 1–36 General Land Use 1–36 Land Use Consistency with Naval Base Kitsap 1–37 Industrial Development 1–39 Housing 1–39 Public Purpose Lands 1–40 Transportation 1–40 Environment 1–41 Drainage, Flooding, Stormwater Management, & Polluted Discharges 1–43 Flood Hazards 1–44 Groundwater 1–44 Legal Nonconforming Uses 1–46 Permit Processing 1–47 1.2 Rural 1–48 Rural Character 1–48 CONTENTS Jefferson County Comprehensive Plan December 2018 Limited Areas of More Intensive Rural Development 1–50 Rural Centers, Crossroads, & MPRs 1–50 Rural Commercial Areas: Centers & Crossroads 1–52 Master Planned Resorts 1–69 Evaluation of Rural Commercial Boundaries 1–73 Periodic Review of LAMIRDs & GMA Implementation Challenges in Rural Counties 1–77 Rural Industrial Lands 1–82 Forest Resource-Based Industrial Zones 1–92 Economic Activities Outside of Rural Commercial Areas 1–94 West Jefferson County 1–95 Rural Goals & Policies 1–96 Rural Character 1–96 Rural Centers, Crossroads, & MPRs 1–99 Rural Industrial Lands 1–104 Economic Activities Outside of Rural Commercial Areas 1–105 Capital Facilities in Rural Areas 1–107 1.3 Resource 1–109 Resource Lands of Long-Term Commercial Significance under the GMA 1–109 Forest 1–109 Mineral 1–109 Agriculture 1–110 Resource Conservation 1–110 Resource Lands Goals & Policies 1–111 1.4 Urban 1–112 Urban Growth Areas 1–112 Municipal & Unincorporated 1–112 Port Hadlock / Irondale Urban Growth Area 1–113 History of Planning 1–113 Phased Implementation 1–119 Alternative Phasing Sewer Policy 1–120 Land Use Map & Zoning Designations 1–121 Dwelling Unit & Population Holding Capacity Analysis 1–124 Housing Variety & Affordability 1–124 Urban Growth Area Goals & Policies 1–125 Urban Level Capital Facilities 1–129 Stormwater Management 1–130 Transportation 1–132 Green Space Planning in Urban Growth Area 1–133 1.5 Action Plan 1–134 CONTENTS Jefferson County Comprehensive Plan December 2018 2 NATURAL RESOURCES 2–1 2.1 Purpose 2–2 2.2 Trends & Opportunities 2–3 Conditions & Trends 2–3 Forest Lands 2–3 Mineral Lands 2–4 Agricultural Lands 2–6 Aquaculture Resources 2–7 Challenges & Opportunities 2–7 Forest Lands 2–7 Mineral Resources 2–8 Agriculture 2–9 2.3 Natural Resources Plan 2–11 Forest Lands 2–11 Mineral Lands 2–12 Agricultural Lands 2–14 Aquaculture Resources 2–18 2.4 Goals & Policies 2–23 2.5 Action Plan 2–29 3 HOUSING 3–1 3.1 Purpose 3–2 3.2 Trends & Opportunities 3–2 Housing Affordability & Attainability 3–10 Assisted Housing Programs & Resources in Jefferson County 3–11 Homelessness 3–12 3.3 Housing Plan 3–13 3.4 Goals & Policies 3–15 3.5 Action Plan 3–19 4 OPEN SPACE, PARKS & RECREATION, HISTORICAL & CULTURAL PRESERVATION 4–1 4.1 Purpose 4–2 4.2 Trends & Opportunities 4–2 Conditions & Trends 4–2 Challenges & Opportunities 4–4 CONTENTS Jefferson County Comprehensive Plan December 2018 4.3 Open Space, Parks & Recreation, Historical & Cultural Preservation Plan 4–5 Jefferson County Parks, Recreation & Open Space Plan 4–5 Open Space 4–6 Historical & Cultural Resource Preservation 4–7 4.4 Goals & Policies 4–8 4.5 Action Plan 4–12 5 ENVIRONMENT 5–1 5.1 Purpose 5–1 5.2 Trends & Opportunities 5–2 Environmental Considerations 5–2 Watershed Planning & Fish Habitat Recovery 5–2 Designating & Protecting Critical Areas 5–4 Regulating Shorelines 5–4 Addressing Environmental Impacts in Conditional Use & the State Environmental Policy Act 5–4 Reduction of Greenhouse Gas Emissions & Addressing Climate Change 5–5 Environmentally Friendly Development Techniques 5–6 Environmental Nuisance Factors 5–6 Balancing Environmental Protection With Community Needs 5–7 5.3 Environment Plan 5–8 Critical Areas Maps 5–8 5.4 Goals & Policies 5–14 Water Resources 5–14 Shorelines 5–16 Environmental Nuisance Factors (Excessive Light, Glare, Odor, & Noise) 5–17 Critical Areas Regulated Under the Critical Areas Ordinance 5–17 5.5 Action Plan 5–19 6 TRANSPORTATION 6–1 6.1 Purpose 6–1 6.2 Trends & Opportunities 6–3 Conditions & Trends 6–3 County-wide Conditions 6–3 Challenges & Opportunities 6–8 CONTENTS Jefferson County Comprehensive Plan December 2018 County Roads & State System 6–8 6.3 Transportation Plan 6–9 Roadway Level of Service 6–9 Concurrency 6–10 Transit Level of Service 6–11 Non-motorized Trail & Standards 6–11 Transportation Demand Management Strategies 6–15 Safety, Maintenance, & Preservation 6–15 Active Living 6–15 County-wide Transportation Improvement Program 6–16 Irondale/Port Hadlock Urban Growth Area 6–16 6.4 Goals & Policies 6–19 6.5 Action Plan 6–28 7 ECONOMIC DEVELOPMENT 7–1 7.1 Purpose 7–3 7.2 Trends & Opportunities 7–4 Conditions & Trends 7–4 Unemployment Rate 7–4 Age 7–5 Wages 7–6 Taxable Sales Trends 7–9 Educational Attainment 7–10 Economic Sectors 7–12 Challenges & Opportunities 7–13 Strengths & Challenges 7–14 Jefferson County Economic Development Organizations 7–15 EDC Team Jefferson 7–15 Port of Port Townsend 7–16 Washington State University 7–17 The Chamber of Jefferson County 7–17 North Hood Canal Chamber of Commerce 7–17 North Olympic Development Council (NODC) 7–17 County-wide Planning Policies 7–19 7.3 Economic Development Plan 7–20 Workforce Development 7–20 Industrial & Manufacturing Businesses 7–20 Place-making for Visitors & Residents 7–21 Sustainable, Innovative Agricultural & Food Businesses 7–21 Infrastructure Improvements as Economic Development Strategy 7–21 CONTENTS Jefferson County Comprehensive Plan December 2018 7.4 Goals & Policies 7–24 7.5 Action Plan 7–29 8 CAPITAL FACILITIES & UTILITIES 8–1 8.1 Purpose 8–1 8.2 Capital Facilities 8–2 Overview 8–2 County-wide Planning Policies 8–5 Summary of Trends & Opportunities 8–6 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 County-wide Planning Policies 8–9 Summary of Trends & Opportunities 8–10 8.4 Utilities 8–11 Electric Utilities 8–11 Providers 8–11 Duty to Serve 8–11 JPUD Inventory 8–12 Electricity: Future Capacity Needs & Requirements 8–14 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 8–17 County-wide Planning Policies 8–18 Summary of Trends & Opportunities 8–19 8.5 Capital Facilities & Utilities Plan 8–20 Capital Facilities 8–20 Essential Public Facilities 8–20 Utilities 8–20 8.6 Goals & Policies 8–21 Capital Facilities 8–21 General 8–21 Potable Water 8–27 Sewer & Wastewater 8–28 Solid Waste 8–29 CONTENTS Jefferson County Comprehensive Plan December 2018 Surface Water Management 8–31 Essential Public Facilities 8–31 Utilities 8–37 General Capacity & Conservation 8–37 Telecommunication & Internet Utilities 8–39 Electrical Utilities 8–40 8.7 Action Plan 8–41 REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY APPENDICES Appendix A: Community Engagement Summary Vision 2038 Appendix B: Resolution #38-15, Population Forecast & Allocations Appendix C: Transportation Technical Document Appendix D: Capital Facilities Plan Technical Document Appendix E: Port Hadlock/Irondale Land Capacity Analysis CONTENTS Jefferson County Comprehensive Plan December 2018 LIST OF EXHIBITS PLAN FOUNDATION I Exhibit A Jefferson County Planning Area iii Exhibit B Relationship: County-wide Planning Policies & Elements viii Exhibit C Comprehensive Plan Update Process Diagram xii 1 LAND USE 1–1 Exhibit 1-1 General Land Use Categories 1–3 Exhibit 1-2 Jefferson County & City of Port Townsend 20-year Population Projection & Distribution (2018-2038) 1–4 Exhibit 1-3 Population Shares 2010 & 2038 1–5 Exhibit 1-4 Employment: Quimper Peninsula Travel Demand Model Updated 2018 1–7 Exhibit 1-5 Current Land Use Map, 2018 Assessor Information 1–9 Exhibit 1-6 Current Land Use, 2018 Assessor Information 1–10 Exhibit 1-7 Recreation Trail Connections to Schools and Parks of the Irondale-Port Hadlock UGA and Chimacum 1–13 Exhibit 1-8 Land Use / Zoning Map 1–16 Exhibit 1-9 Land Use Designations / Zoning Districts & Acreage 1–17 Exhibit 1-10 Planned Residential Densities 1–18 Exhibit 1-11 Summary of Rural Land Use & Zoning Designations 1–19 Exhibit 1-12 Summary of Overlay Land Use & Zoning Designations 1–21 Exhibit 1-13 Summary of Resource Land Use & Zoning Designations 1–23 Exhibit 1-14 Summary of Master Planned Resort Land Use & Zoning Designations 1–25 Exhibit 1-15 Port Hadlock/Irondale Urban Growth Area Land Use & Zoning Designations 1–26 Exhibit 1-16 Public Land Use Designations & Zoning 1–27 Exhibit 1-17 Community Planning Areas 1–33 Exhibit 1-18 Location of Rural Commercial Areas & Master Planned Resorts 1–51 Exhibit 1-19 Rural Commercial Area Total Acreage & Infill Acreage 1–75 Exhibit 1-20 Location of Rural Industrial Lands 1–83 Exhibit 1-21 Transitional Rural Zoning 1–122 Exhibit 1-22 Irondale & Port Hadlock Urban Zoning 1–123 CONTENTS Jefferson County Comprehensive Plan December 2018 Exhibit 1-23 Estimated Total Dwelling Unit & Population Holding Capacity 1–124 Exhibit 1-24 Land Use Action Plan 1–134 2 NATURAL RESOURCES 2–1 Exhibit 2-1 NRCS Potential Mineral Source Soils 2–5 Exhibit 2-2 Jefferson County Farmland Classifications 2–6 Exhibit 2-3 Forest Lands Zoning 2–12 Exhibit 2-4 Map of Forest Resource Lands 2–20 Exhibit 2-5 Map of Mineral Resource Lands 2–21 Exhibit 2-6 Map of Agricultural Resource Lands 2–22 Exhibit 2-7 Natural Resources Action Plan 2–29 3 HOUSING 3–1 Exhibit 3-1 Housing Units by Type, 2017 3–6 Exhibit 3-2 Household Type, County-wide 3–7 Exhibit 3-3 Age, 2016 & 2040 3–8 Exhibit 3-4 Median Household Income 3–9 Exhibit 3-5 Unemployment Rate, Jan 2014-Dec 2016 3–9 Exhibit 3-6 Poverty, 2011-15 3–9 Exhibit 3-7 Housing Action Plan 3–19 4 OPEN SPACE, PARKS & RECREATION, HISTORIC & CULTURAL PRESERVATION 4–1 Exhibit 4-1 Jefferson County Parks 4–3 Exhibit 4-2 Open Space, Parks & Recreation, Historical & Cultural Resources Action Plan 4–12 5 ENVIRONMENT 5–1 Exhibit 5-1 Critical Aquifer Recharge Areas 5–9 Exhibit 5-2 Hydrography: Streams, Wetlands, & 1998 FEMA Flood Zones 5–10 Exhibit 5-3 Geologic Hazards 5–11 Exhibit 5-4 Critical Areas: Fish-Bearing Inventory & Primary Association Habitats 5–12 Exhibit 5-5 Seawater Intrusion Protection Zones 5–13 Exhibit 5-6 Environment Action Plan 5–19 6 TRANSPORTATION 6–1 Exhibit 6-1 Functional Classification Map 6–4 Exhibit 6-2 Transit Passenger Trips & Service Hours 6–6 Exhibit 6-3 On-Road Bicycle Routes 6–13 Exhibit 6-4 Multi-Purpose Paths 6–14 CONTENTS Jefferson County Comprehensive Plan December 2018 Exhibit 6-5 2018-2023 Six-year Transportation Improvement Program 6–16 Exhibit 6-6 Port Hadlock/Irondale Area Improvement Projects 6–18 Exhibit 6-7 Transportation Action Plan 6–28 7 ECONOMIC DEVELOPMENT 7–1 Exhibit 7-1 Unemployment Rate 7–4 Exhibit 7-2 Population by Age 7–5 Exhibit 7-3 Comparison of Population by Age, 2016, 2040 7–6 Exhibit 7-4 Average Annual Wage by Sector, 2016 7–7 Exhibit 7-5 Employment Share by Sector & Inflation Adjusted Average Wage 7–8 Exhibit 7-6 Inflation Adjusted Annual Taxable Retail Sales 7–9 Exhibit 7-7 Inflation Adjusted Quarterly Taxable Retail Sales 7–10 Exhibit 7-8 Adult Educational Levels 7–11 Exhibit 7-9 Adult Educational Levels by Age Group 7–11 Exhibit 7-10 Economic Development Action Plan 7–29 8 CAPITAL FACILITIES & UTILITIES 8–1 Exhibit 8-1 Capital Facilities & Public Services Provided 8–2 Exhibit 8-2 Relationship of Capital Facilities Plan to County-wide Planning Policies 8–5 Exhibit 8-3 Distinguishing Public Purpose Lands from Essential Public Facilities 8–8 Exhibit 8-4 JPUD Electrical Income by Customer Class 8–13 Exhibit 8-5 Residential Population Electricity Demand 8–14 Exhibit 8-6 Overhead & Underground Fiber Optic System Location 8–17 Exhibit 8-7 Capital Facilities, Essential Public Facilities, & Utilities Action Plan 8–41 VISION Jefferson County Comprehensive Plan December 2018 Vision Statement OUR HOME Jefferson County, Washington encompasses approximately 1,814 square miles of land, bound on the north and east by the shores of the vast Salish Sea, with the Pacific Ocean to the west and the Hood Canal to the southeast. The terrestrial borders of Jefferson County join with Clallam County to the north and west, and Mason and Grays Harbor Counties to the south. Approximately 80% of the land within the total County acreage is in non-county public ownership. Jefferson County stretches across Olympic National Park and Olympic National Forest, and encompasses spectacular rainforests and mighty rivers including the Queets, Quinault, Hoh, Bogachiel, Quilcene, Dosewallips, Duckabush, and hundreds of miles of shoreline. The first inhabitants of this vast region were indigenous people belonging to a number of different groups who lived here for millennia, including who we now refer to as the Chemakum, S’Klallam, Klallam, Twana, Kilcid (“Quilcene”), Skokomish, Suquamish, Makah, Quinault, Queets, Quileute, and Hoh. Collectively, many of the early indigenous people are referred to as the Twana society, a name given to the Coast Salish peoples who were identified by their use of Salish languages. These people and tribal nations reside in Jefferson County and/or have affirmed treaty rights under the provisions of their “usual and accustomed grounds and stations” within Jefferson County and include the Jamestown S’Klallam Tribe, Port Gamble S’Klallam Tribe, Lower Elwah Klallam Tribe, Skokomish Indian Tribe, Suquamish Tribe, Makah Tribe, Quinault Indian Nation, Quileute Tribe, and Hoh Tribe . Early European settlements began in the mid-1800s. Today’s towns and villages, rural crossroads, and tribal nations in Jefferson County grew from early-established imprints of urban, commercial, and cultural centers. Snapshots of our history include the establishment of the city of Irondale in 1879, leading the way for development of the iron smelter of Puget Sound Iron Co., later to become Western Steel Company. The 1870s to 1890s represents the time in our nation’s history of extensive railroad construction and the Collectively, many of the early indigenous people are referred to as the Twana society, a name given to the Coast Salish peoples who were identified by their use of Salish languages. However, the Chemakum were not a part of the Salish language ethno-linguistic group. Although geographically isolated from each other, the Chemakum were linguistically related to the Quileute rather than the local Salish speaking people. The Chemakum are now considered to be extinct as an ethnological group and tribe, and the Coast Salish peoples in the northern-mid Puget Sound region are now subsumed into surviving groups and organized tribes. Federal treaties, formal tribal recognition, and movements to established reservation areas have also played a role in how the region’s indigenous groups have become the organized tribes of today. The Twana Society VISION Jefferson County Comprehensive Plan December 2018 anticipation that Port Townsend, a well-known seaport, would be the railroad terminus and prosper—coining the term “City of Dreams”. During that time in 1884, the large sawmill of Western Mill and Lumber Company was built in Hadlock. An oil boom in western Washington was underway in 1885 and the plat of Oil City in western Jefferson County was registered in 1911, and the same year the alcohol distillery plant making methanol from sawdust, was constructed in Port Hadlock. Irondale was a bustling boom town. World War I was on the heels of this time, starting in 1914. Jefferson County’s geographical setting contributed to strategic military installations on our shorelines and corresponding economic development from World Wars I and II. The post-war decommissioning of coastal defense systems at Forts Warden, Townsend, and Flagler began a turn away from the military’s contribution to the economy; and the industrial facilities that constructed them were largely gone. The short-lived steel plant had already closed in 1891, and Western Mill and Lumber Co. had closed in 1907 when the bottom fell out of the lumber market. 1913 marked the closure of the short-lived Alcohol Plant. While many people chose to leave for a more stable economic future, those who stayed found opening doors to other economic opportunities. The Paper Mill was constructed in 1920 and today is the largest private employer in the County. Remnants of our industrial past have become parks and points of interest. Over thirty-thousand people now live in small communities skirting the Olympic Mountains to the west and east. As both a refuge from metropolis surroundings, and a destination for economic opportunity, Jefferson County has stood out as a place where fishers, farmers, hunters, mariners, artists and artisans, foresters and outdoor enthusiasts, as well as independent and innovative entrepreneurs of every kind have subsisted and thrived in this working landscape. Jefferson county residents, throughout history rise to the occasion working to mark a new stories for them, their families, and the County. While County residents may be developing a new entrepreneurial idea, just trying to get by and survive, or working to build a new future together on the edge of this rural wilderness, they form a diverse community with a distinctive and collective Jefferson County identity forging a future together. VISION Jefferson County Comprehensive Plan December 2018 OUR VISION FOR 2038 The communities of Jefferson County embrace a balance of tradition and innovation while preserving the rural character of our land and lifestyles. Land use priorities have protected open spaces, forests, and farmland for long-term management and conservation, while also embracing innovations that foster opportunities for increased synergy between natural and built environments. Jefferson County believes that investing in our local economy, culture, and ecosystem yields benefits for current residents and future generations. Low-impact techniques, localized environmental remediation, and other innovations in housing and industry benefit overall ecosystem vitality and biodiversity while aiding ecological restoration and adapting to climate disruption. The vibrant community fabric offers opportunity for all residents, including working-class individuals and families; as well as those who struggle to live, thrive, and age with dignity. Jefferson County values creativity and life-long learning and reveres constitutional rights, personal independence and privacy; as well as working cooperatively as a community on issues that affect all. Jefferson County embraces diversity. We respect and honor tribal treaty rights and tribal sovereignty. Policies are in place to ensure that government-to-government collaboration and consultation is regular and ongoing. The County values high-quality education, public services, and facilities. Emphasis on community spaces and networks of non- motorized trails, bike lanes, and paths encourages interactive communities of healthy individuals. Community members of all ages have access to safe and active environments, healthcare— including preventative, mental health, and long-term care—as well as fresh and abundant local food. Jefferson County citizens value the strengths and resiliencies found in volunteerism, taking an active role in local government and participation in organizations and institutions supporting our communities. Volunteer initiatives and private services provide additional opportunities and forward momentum in communities when there are limited public funds and capacity, or when identified needs are outside of the purview of county government. Jefferson County enjoys a healthy and diverse local economy with wisely- considered economic development and balanced growth. Though people inevitably leave their mark on the natural landscape, through Public Health An additional value could be included regarding public health matching GMA’s encouragement for planning for active living per staff suggestions: “Jefferson County values: Environments that foster health for the entire population. We place emphasis on creating places that make it easy to lead physically active lifestyles and where there is access to nutritious foods.” Balancing Competing Interests Jefferson County’s setting, character, and economy attracts visitors and new residents alike. However, the County’s limited affordable housing supply presents challenges attracting and retaining families. This Comprehensive Plan establishes goals and policies balancing competing interests, such as affordable housing, economic development, and protection of environmentally sensitive areas. Together, Jefferson County can be a place of opportunity for all, while maintaining its character and environment. Additional Ideas VISION Jefferson County Comprehensive Plan December 2018 responsible planning, we are intentional with the type of mark we create, maintaining our character while allowing communities to develop and thrive. Sectors including food system development, marine trades and craftsmanship, healthcare and education, resource management, high- tech and science-based trades; and sectors relating to tourism, art and cultural events, among others, support our robust economy. We believe that investing in human potential and the resilience of our local economy, including improved infrastructure networks, yields benefits for current residents and future generations. Jefferson County honors and respects the natural world as integral to our health and lifestyles. The County protects open spaces, shorelines, forests, clean air and clean water, wildlife and wildlife habitat so that future generations may also practice stewardship of the land, the seas, and the communities of Jefferson County. VISION Jefferson County Comprehensive Plan December 2018 [ This page intentionally blank ] Jefferson County Comprehensive Plan i December 2018 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 2038. 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 is amended and monitored. Carolyn Gallaway PLAN FOUNDATION Jefferson County Comprehensive Plan ii December 2018 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—nearly 96%—resides in eastern Jefferson County. Jefferson County largely is a rural county with one incorporated city, Port Townsend—the largest community and a de facto Urban Growth Area (UGA) under the Growth Management Act. Jefferson County has one other Urban Growth Area (UGA), defined by the unincorporated communities of Port Hadlock and Irondale. These areas meet UGA criteria because they have pre-Growth Management Act (GMA) development patterns characteristic of urban growth. However, at this time the UGA relies entirely on septic systems for wastewater treatment. To comply with GMA, the Port Hadlock/Irondale UGA cannot be developed at planned urban densities without a sanitary sewer system. A zoning overlay of Transitional Zoning is in place, implementing lower density development until sanitary sewer service is available. There are two Master Planned Resorts (MPR), Port Ludlow and the designated, yet undeveloped, Pleasant Harbor MPR in the Brinnon Community. 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. The county is 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, 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 have expressed a desire to protect. PLAN FOUNDATION Jefferson County Comprehensive Plan iii December 2018 EXHIBIT A Jefferson County Planning Area Source: Jefferson County Community Development, BERK Consulting, 2018. PLAN FOUNDATION Jefferson County Comprehensive Plan iv December 2018 COMPREHENSIVE PLAN PURPOSE This Comprehensive Plan is a legal document that serves as a decision- making guide for both officials and citizens. This Comprehensive Plan serves as a tool for making decisions about future growth and development in Jefferson County over the next 20 years. 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. 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 environmentally sensitive areas and natural resource, rural, and open space lands. It is also intended to PLAN FOUNDATION Jefferson County Comprehensive Plan v December 2018 provide an educational and a policy implementation tool for a broad range of 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 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), 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 Policy as regional perspectives or county-wide viewpoints when other plans and growth policies are developed and when making project decisions. ▶ It allows for citizen 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 citizens, businesses, and interested organizations. ▶ It allows us to thoughtfully plan the future and create a place where we are happy to live. Carolyn Gallaway PLAN FOUNDATION Jefferson County Comprehensive Plan vi December 2018 The Growth Management Act Through the Growth Management Act (GMA), the State of Washington provides a new 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 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 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 “tool box” 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 will likely result in inappropriate choices being made. The GMA establishes several requirements for local comprehensive planning. The Act identifies specific goals for all Comprehensive Plans, prescribes the elements each plan is to contain, provides requirements for interim 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: ▶ It established 14 statewide goals with which local Comprehensive Plans and 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 The Growth Management Act provides goals that guide the development and adoption of comprehensive plans and development regulations. See RCW 36.70A.020, for full goals; in summary goals 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 The goals and policies of the Shoreline Management Act in RCW 90.58.020 were added as one of the goals of the Growth Management Act. See RCW 36.70A.480. Growth Management Act Goals PLAN FOUNDATION Jefferson County Comprehensive Plan vii December 2018 — Housing Element — Capital Facilities Plan Element — Utilities Element — Transportation Element — Rural Element for counties — Economic Development Element, when state funds are available — Park and Recreation Element, when state funds are available ▶ Local governments must adopt policies and 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 UGA must be able to accommodate the allocated growth that is expected to occur over 20 years. ▶ Counties and cities must jointly adopt County-wide Planning Policies which establish guidelines on how their Comprehensive Plans will be developed to be consistent. The GMA requires that Jefferson County and any city within it prepare comprehensive plans every eight 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 population is less than fifty thousand and has had its population increase by no more than 17% in the ten years preceding the deadline, the County has an additional twenty-four months following the eight-year deadline. (RCW 36.70A.130(7)(a)). The County has worked to meet this mandate with extensive public involvement and community outreach. PLAN FOUNDATION Jefferson County Comprehensive Plan viii December 2018 The County-wide Planning Policy On December 21, 1992, Jefferson County and the City of Port Townsend adopted a joint resolution establishing the County-wide Planning Policies (CWPPs) as a policy framework to guide the development of comprehensive plans. CWPPs 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 Growth Management Act, 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 CWPPs 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 Comprehensive Plans. The implementing legislation to the GMA required that counties and cities agree upon policy statements in eight 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, county-wide transportation facilities and strategies, affordable housing for all economic segments of the population, county-wide development and employment, 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 CWPPs. Exhibit B offers a guide to the relationship between the County-wide Planning Policy and the Comprehensive Plan Elements. Compliance with the County-wide Planning Policies has been integral to the development of individual elements of this Comprehensive Plan, and each element provides an overview of consistency with relevant CWPPs. EXHIBIT B Relationship: County-wide Planning Policies & Elements County-wide Planning Policy Comprehensive Plan Element 1. Policy to Implement RCW 36.70A.110 Urban Growth Areas (UGAs) Land Use 2. Contiguous and Orderly Development and Provision of Urban Services Capital Facilities, Essential Public Facilities, and Utilities 3. Joint County and UGA Representation Planning within UGA Land Use 4. The Siting of Essential Public Facilities of County or Statewide Significance Capital Facilities, Essential Public Facilities, and Utilities Element PLAN FOUNDATION Jefferson County Comprehensive Plan ix December 2018 County-wide Planning Policy Comprehensive Plan Element 5. County-wide Transportation Facilities and Strategies Transportation Capital Facilities, Essential Public Facilities, and Utilities 6. Affordable Housing Housing 7. County-wide Development and Employment Economic Development 8. Rural Areas Land Use 9. Fiscal Impacts Analysis Capital Facilities, Essential Public Facilities, and Utilities 10. County-wide Planning Policy: Use and Amendment Plan Foundation Source: Jefferson County, 2018. 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 regulations. ▶ Compliance with CWPPs, 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 Countywide Planning Policies, 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 County-wide Planning Policy and public participation supply local detail for realizing the broader GMA goals within Jefferson County. PLAN FOUNDATION Jefferson County Comprehensive Plan x December 2018 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 Growth Management Act (GMA) in 1990. Jefferson County Commissioners voted to “opt-in” to the GMA in late 1991. Public involvement in the planning process began immediately with the formation of citizen 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. 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 GMA planning in Jefferson County. The Steering Committee consisted of three representatives from the City of Port Townsend, the only incorporated city in Jefferson County, and the three County Commissioners. 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 County-wide Planning Policy (CWPP) was 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 CWPP, and both City and County government adopted these policies by resolution on December 21, 1992. PLAN FOUNDATION Jefferson County Comprehensive Plan xi December 2018 Considering Alternative Futures To assist citizens 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 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, and the distribution of growth in urban areas, rural centers, and resorts, together with the balancing of GMA goals and CWPPs. 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 2018 Comprehensive Plan Update completed addressing the 2038 planning horizon draws on and benefits 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. PLAN FOUNDATION Jefferson County Comprehensive Plan xii December 2018 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 of County Commissioners. EXHIBIT C Comprehensive Plan Update Process Diagram Public Involvement Public involvement is the cornerstone of long-range comprehensive planning for any community. Complying with the requirements of the GMA in Jefferson County has engaged community leaders, interested citizens, developers, property rights advocates, environmentalists, and neighborhoods in a dynamic, active public process. Public participation has occurred not only through citizen 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. 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 & SEPA Environmental Review Planning Commission Public Hearing & Recs. Board of County Commissioners Public Hearing & Adoption PLAN FOUNDATION Jefferson County Comprehensive Plan xiii December 2018 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 and with other periodic and annual amendment cycles, the County has conducted public engagement efforts. Appendix A documents the 2018 Comprehensive Plan periodic update community involvement efforts. VISION STATEMENT Comprehensive Planning in Jefferson County has matured in the quarter century since the Growth Management Act (GMA) was passed, and the diverse viewpoints shared during participation of the community has 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 the Comprehensive Plan element goals and policies. Board of County Commissioners Meeting, BERK PLAN FOUNDATION Jefferson County Comprehensive Plan xiv December 2018 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 county-wide vision statement. They are the heart of this Comprehensive Plan and provide a bridge from the Vision Statement to the Element-specific goals and policies. Although these goals are not listed in priority order, they are interrelated, provide structure in the document, 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 PLAN FOUNDATION Jefferson County Comprehensive Plan xv December 2018 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 the work- force, seasonal housing for farmworkers, 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 PLAN FOUNDATION Jefferson County Comprehensive Plan xvi December 2018 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 public involvement. Engage diverse stakeholders. Jefferson County Tri-Areas Open House Meeting Framework Goal X Compliant with GMA Maintain a Comprehensive Plan consistent with GMA goals, requirements, case law, and the County-wide Planning Policies, and within this framework, strive to provide leadership and collaborative work with the State on legislative and local solutions to the challenges met with GMA by rural counties. Carolyn Gallaway PLAN FOUNDATION Jefferson County Comprehensive Plan xvii December 2018 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 Appendices provide additional detail and supporting materials, as follows: ▶ Appendix A: Community Engagement Summary Vision 2038 ▶ Appendix B: Resolution #38-15, Population Forecast & Allocations ▶ Appendix C: Transportation Technical Document ▶ Appendix D: Capital Facilities Plan Technical Document ▶ Appendix E: Port Hadlock/Irondale Land Capacity Analysis 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. The Unified Development Code (UDC) provides detailed 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 PLAN FOUNDATION Jefferson County Comprehensive Plan xviii December 2018 Related Plans The following related plans address shorelines, subarea, and parks important to meeting Growth Management Act (GMA) requirements for required or optional elements, and are hereby incorporated by reference as amended: ▶ Shoreline Master Program Goals and Policies (2014) ▶ Brinnon Subarea Plan (2004) ▶ Parks, Recreation, and Open Space Plan (2015) 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 Planning Commission and Department of Community Development staff reviewed 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, Related to western Jefferson County PLAN FOUNDATION Jefferson County Comprehensive Plan xix December 2018 Open Space, Parks, and Recreation, Historical & Cultural Preservation, Environment, and Economic Development elements include information specific to the area. 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 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 the 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. PLAN FOUNDATION Jefferson County Comprehensive Plan xx December 2018 The 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. 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 citizens 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 Growth Management Act (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 Washington State Growth Management Act, Chapter RCW 36.70A and the State Planning Enabling Act, Chapter RCW 36.70, and the GMA implementing rules at Chapter 365-196 WAC. b. Any proposed amendments to this Comprehensive Plan must be submitted by the County to the Washington State Department of PLAN FOUNDATION Jefferson County Comprehensive Plan xxi December 2018 Commerce at least 60 days prior to final adoption by the Board of County Commissioners (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 County- wide Planning Policy, 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. PLAN FOUNDATION Jefferson County Comprehensive Plan xxii December 2018 Comprehensive Plan Amendment Appeals Growth Management Hearings Board Review A petition for review to challenge an amendment to this Comprehensive Plan or related plans that are within the jurisdiction 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 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 v. projected, ▶ land capacity, actual v. 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. PLAN FOUNDATION Jefferson County Comprehensive Plan xxiii December 2018 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 implementing regulations. Growth management indicators work well with the public participation process of the planning cycle. Using growth management indicators, citizens 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. PLAN FOUNDATION Jefferson County Comprehensive Plan xxiv December 2018 [ This page intentionally blank ] Jefferson County Comprehensive Plan 1–1 December 2018 1 Land Use 1.1 FRAMEWORK The Land Use Element establishes the future goals and policies addressing rural lands and rural character, rural villages, and communities, and incorporated and unincorporated urban growth areas (UGAs).A fundamental focus of the periodic update has been a refreshed set of land use goals and policies that meets community needs to strengthen the economy, provide housing choices, welcome tourists, create opportunities for active living, steward the natural environment, offer public services and infrastructure to support growth, and maintain an exceptional quality of life. The Land Use Element is arranged in four components: ▶ Framework: The Framework section presents county-wide land use plan concepts, population trends and forecasts, current land use inventories, current surface water conditions, public health, comprehensive land use map categories, and general land use and surface water policies that apply county-wide. ▶ Rural: Consistent with Rural Element requirements under the GMA, the Rural section addresses rural character, rural residential densities, and areas that qualify as exceptions to rural densities: Casey Scalf via the Jefferson Landworks Collaborative This element supports the Vision Statement by preserving the rural character of land and lifestyle in Jefferson County. Priorities in this element protect open spaces, forests, and farmland for long-term management and conservation, while also embracing ideas that foster opportunities for increased synergy between natural and built environments. Additional concepts support integrating diversified economic activity and innovations in housing and industry that benefit overall ecosystem vitality and offer opportunities for all residents to thrive. Connection to the Vision Statement LAND USE Jefferson County Comprehensive Plan 1–2 December 2018 limited areas of more intensive rural development (LAMIRDs) and Master Planned Resorts (MPRs). ▶ Resource: This section summarizes the Comprehensive Plan’s approach to conservation of natural resource lands of long-term commercial significance; these lands are more fully addressed in the Natural Resource Element. Additionally, this section addresses conservation of forested lands in rural areas not zoned for resource production. ▶ Urban: The Urban section of the Land Use Element addresses UGAs, including the City of Port Townsend and the Port Hadlock/Irondale UGA. Additionally, this section addresses current and planned residential and commercial uses, and urban services necessary to support the UGA. Land Use Typologies Under the GMA, lands are generally characterized as rural, resource, or urban. Accordingly, this Land Use Element defines and regulates these categories as follows: ▶ Rural Areas: This term refers to lands which are not within an UGA and are not designated as natural resource lands having long-term commercial significance for production of agricultural products, timber, or the extraction of minerals. Rural areas may consist of a variety of uses and residential densities at levels that are consistent with the preservation of rural character. Rural areas can include LAMIRDs, which provide opportunities for rural economic development and housing, and Master Planned Resorts (MPRs). ▶ Natural Resource Lands: This term refers to agriculture, aquaculture, forest, and mineral resource lands which have long-term commercial significance. A detailed discussion of Natural Resource Lands can be found in the Natural Resources Element, and goals and policies related to aquaculture are contained in the Jefferson County Shoreline Master Program. ▶ Urban Growth Areas: This term refers to areas designated for growth that make intensive use of land for the location of buildings, structures, and impermeable surfaces to such a degree as to be incompatible with the primary use of such land to produce food, other agricultural products, fiber, or the extraction of mineral resources. The three major land use categories are reflected on the following map. Rural (Chimacum), Windermere Resource, Carolyn Gallaway Urban, Carolyn Gallaway LAND USE Jefferson County Comprehensive Plan 1–3 December 2018 EXHIBIT 1-1 General Land Use Categories Source: Jefferson County Community Development, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–4 December 2018 Population Projections The State of Washington Office of Financial Management (OFM) publishes population projections for each county for use in the GMA planning efforts every five years. The County is responsible under the GMA for allocating population in consultation with the City of Port Townsend. In 2015, Jefferson County and the City of Port Townsend developed a population projection and urban population allocation for the City of Port Townsend, Port Hadlock/Irondale Urban Growth Area, and the Port Ludlow and Pleasant Harbor Master Planned Resorts based on OFM’s 2012 Medium projections. The County passed Resolution #38-15 on October 26, 2015, adopting the Updated Population Forecast (see page 30 of Appendix B. OFM has since published 2017 projections, but results are nearly identical.1 The 2018-2038 population forecast is summarized in Exhibit 1-2. EXHIBIT 1-2 Jefferson County & City of Port Townsend 20-year Population Projection & Distribution (2018-2038) Location (Unincorporated unless noted) 2010 Population1 Allocation Total Growth County-wide Projected Growth (2010-38) 2018 Projected Population7 Estimated Growth (2018-38)2 Projected Population 2038 2010-38 Projected Growth Rate3 Port Townsend UGA (Incorporated) 9,113 36% 3,366 9,661 2,814 12,479 1.13% Port Hadlock/ Irondale UGA4 3,580 19.4% 1,814 3,795 1,516 5,394 1.48% Port Ludlow MPR 2,603 10.1% 944 2,759 789 3,547 1.11% Pleasant Harbor (Brinnon) MPR -- 4.5% 421 -- 352 421 24.1 % UGA/MPR Subtotal 15,296 70% 6,545 16,215 5,471 21,841 1.28% Rural & Resource Areas Subtotal 14,576 30% 2,804 15,452 2,445 17,380 0.63% County-wide Total 29,8725 100% 9,349 31,667 7,8166 39,221 0.98% Legend: UGA = Urban Growth Area, MPR = Master Planned Resort 1 Source: Estimated using tract and block data, 2010 U.S. Census. 2 Source: Estimated based on OFM’s 2018 Projection for Jefferson County (31,405) and 2010 population shares. 3 Calculated as a compound annual growth rate. 4 In 2004, the Tri-Area UGA became known as the Port Hadlock/Irondale UGA. 5 Source: 2010 U.S. Census 6 The net total of 7,816 was reported in Resolution 38-15; however, when adding 5,471 and 2,445 the total is 7,916. 7 Calculated 2018 from increasing OFM published 2017 population 31,360 by 1.0098 = 31,667. CAGR 2010-2018 = 0.00732086. (31,667/29,872)^(1/8)-1, and increased 2010 allocations to 2018 by (n2010 * 1.00732086)^8 1 The OFM medium growth forecast for 2038 developed in 2017 shows a projected population of 39,397, slightly higher than the 2012 medium series at 39,221. LAND USE Jefferson County Comprehensive Plan 1–5 December 2018 Because of legislative changes to Comprehensive Plan Periodic review schedules, the Joint Growth Management Steering Committee adopted population projections for separate planning periods for the City of Port Townsend and Jefferson County. The City of Port Townsend’s allocation and planning efforts were conducted based on the 2016-2036 20-year planning period. The City of Port Townsend completed its plan in 2016 consistent with the original due date for Growth Management Act planning by the City of Port Townsend, whereas Jefferson County, as a slow-growing county, was allowed by Commerce to extend its Growth Management Act planning efforts to 2018 and is addressing a 2038 horizon. The Port Townsend 2036 population projection of 12,165 is very similar to the projection in 2038 of 12,479. Consistent with the County’s and the City of Port Townsend’s prior methodology, 36% of the projected County-wide growth would be planned for and accommodated within the Port Townsend UGA, an increase from the observed share of 30.5% in 2010. The Port Hadlock/Irondale UGA would increase its population share from 12% to 19.4% with implementation of urban wastewater services and planned urban densities. MPR shares are based on development agreements and expected growth trends. EXHIBIT 1-3 Population Shares 2010 & 2038 Source: Jefferson County Resolution #38-15, BERK, 2018. Overall, with adopted plans and agreements, the urban and MPR share would increase from 51% in 2010 to 70% in 2038. The rural share would decrease from 49% in 2010 to 44% in 2038 by allocating 30% of growth to rural areas. This is consistent with the goals of this Comprehensive Plan to protect rural character and offer more housing and employment choices in Urban Growth Areas, in MPR areas where urban services are available, and in existing rural communities classified as LAMIRDs. LAND USE Jefferson County Comprehensive Plan 1–6 December 2018 Resolution 038-15 provided assumptions regarding housing units in relation to the population allocation, as summarized below: ▶ Port Townsend UGA: Assuming a population increase of 2,711 at 1.98 persons/household, approximately 1,369 additional units will be needed by the end of the City of Port Townsend’s 20-year planning period at 2036. ▶ Port Hadlock/Irondale) UGA: The population projections for this area assume development at urban densities with sewer service available. Assuming 2.1 persons per household in the UGA, to accommodate the projected population increase of 1,516, approximately 758 additional units will be required by the end of the County’s 20-year planning period at 2038. ▶ Port Ludlow Master Planned Resort: The development agreement adopted in 2000 provides for approximately 2,250 residential “Measurement Equivalent Residential Units” (MERU’s); the development agreement addresses both commercial and dwelling units. In 2015, 1,544 residential dwelling units had been constructed. A population of 789 per the allocation, together with a household size of about 1.49 persons, results in approximately 529 units during the 2018-2038 period. Growth would occur consistent with the CWPPs, this Comprehensive Plan, and the development agreement that expires in 2025. ▶ Pleasant Harbor Master Planned Resort: The land use designation was established in 2008, and a final Supplemental Environmental Impact Statement capped the maximum number of development units at 890 with 52 units designated for staff housing and no more than 65% dedicated to time-share and short-term rental units, leaving approximately 293 units for permanent housing. Approval of the Pleasant Harbor Master Planned Resort development regulations was made by the Board of County Commissioners in 2018 through Ordinance No. 03-0604-18, and a development agreement approved through Ordinance No. 04-0604-18. ▶ LAMIRDs and Rural Communities: As a predominantly rural county, Jefferson County has many small, existing rural communities characterized by more intense, yet not fully urban, levels of development. These include rural villages and commercial crossroads of Quilcene, Brinnon, Gardiner, Chimacum, Nordland, and Discovery Bay, as well as a number of smaller rural commercial areas. These Limited Areas of More Intensive Rural Developments (LAMIRDs) serve the housing and day-to-day commercial needs of local residents and the travelling public, and provide opportunities for rural economic development. Rural population is allocated to unincorporated Rural and Resource Areas and to Master Planned Resorts. It is expected that additional rural housing would occur in and around the existing rural LAND USE Jefferson County Comprehensive Plan 1–7 December 2018 communities and, in a more dispersed pattern, in rural residential and resource zones. An overview of Jefferson County’s rural community classification system and detailed descriptions of each village or center are provided in Section 1.2 of this Land Use Element. Employment shares within planning areas show another distribution factor of population when considering planning policies. For comprehensive plan periodic reviews, the Joint Growth Management Steering Committee (JGMSC), through joint resolutions between County and City, allocate the 20-year projected population, but not employment. Current employment covered by unemployment insurance is about 8,356 jobs as of 2016 (ESD, 2017). This does not include sole proprietors, clergy, chief executives, etc. Covered employment generally represents 85-90% of total employment in communities. (Employment Security Department and PSRC, 2017) If adding 15% to the total covered employment in 2016 there would be about 9,600 jobs. Employment figures prepared for the Quimper Peninsula Travel Demand model in 2018 estimates about 11,907 jobs in 2018, rising to about 18,893 in 2038 (see Appendix C). As shown in Exhibit 1-4, it is estimated that over 50% of the jobs in 2018 and in 2038 would be found in the City of Port Townsend, and over 10% would be in Port Hadlock/Irondale UGA. EXHIBIT 1-4 Employment: Quimper Peninsula Travel Demand Model Updated 2018 Area 2007 Employment Share 2018 Employment Share 2038 Employment Share Port Townsend 51% 52% 54% North Peninsula 6% 6% 7% Mid-Peninsula 9% 8% 9% Port Hadlock/Irondale UGA 9% 10% 13% South Peninsula 2% 2% 2% Port Ludlow MPR 3% 3% 3% Rural Jefferson County 19% 18% 13% Total 10,611 11,907 18,893 Source: Transpo Group, 2018. Refer to Appendix C— Transportation Plan Technical Document LAND USE Jefferson County Comprehensive Plan 1–8 December 2018 Land Use, Health, & Surface Water Analysis Land Use Inventory & Analysis Based on parcel records maintained by the Jefferson County Assessor, about 65% of the current land use in the County consists of parks and open space due to the Olympic National Park. About 31% consists of forestry. Relatively small areas are residential, agriculture, public/civic and industrial. See Exhibit 1-5 and Exhibit 1-6. Refer to the Natural Resources Element for detailed information regarding forestry, mineral resources, and agriculture lands. Of the total acreage zoned forest lands by Jefferson County (CF-80, RF-40, IF), approximately 40% is privately held forest land and approximately 60% is in public ownership. Of the public ownership category, approximately 99% is owned by Washington Department of Natural Resources. A majority of the forest lands in East Jefferson County are privately owned, while a majority of the forest lands in West Jefferson County are publicly owned. Forest Lands LAND USE Jefferson County Comprehensive Plan 1–9 December 2018 EXHIBIT 1-5 Current Land Use Map, 2018 Assessor Information Source: Jefferson County Assessor, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–10 December 2018 EXHIBIT 1-6 Current Land Use, 2018 Assessor Information Current Use Category Parcel Count Parcel Acres Percentage Agriculture 357 6,749 1% Commercial 540 1,405 0.1% Forestry 1,931 358,557 31% Industrial 55 238 0.02% Parks and Open Space 11,581 746,858 65% Military1 1 2,573 0.2% Public/Civic 322 7,407 1% Residential 17,317 28,176 2% Total 32,104 1,151,964 100% Source: Jefferson County Assessor, BERK, 2018. 1 Military lands are located on Indian Island and on the Thorndyke/Toandos Peninsula fronting Hood Canal. Land Use & Public Health The GMA suggests that counties and cities “consider utilizing urban planning approaches that promote physical activity” in their Land Use Elements. Some indicators of health risk in a 2016 State of Washington Department of Health profile of chronic disease included: ▶ 79% of 10th graders in Jefferson County had insufficient physical activity, similar to 80% for the State as a whole. ▶ 36% of adults 18 years or older in Jefferson County had insufficient physical activity, similar to 38% for the State as a whole. ▶ About 29% of adults were obese in Jefferson County compared to 27% of adults in the state as a whole. ▶ Rates of cancer (16%), heart disease (12%), and diabetes (11%) were higher for adults in Jefferson County than the state as a whole (cancer-12%, heart disease 6%, diabetes 9%). ▶ The proportion of Jefferson County’s population over the age of 65 is more than double the state average, which results in an increased incidence of chronic disease and creates increased demand for ongoing health services. For example, approximately 84% of Jefferson County residents 65+ years are living with a chronic disease. LAND USE Jefferson County Comprehensive Plan 1–11 December 2018 In 2012, Jefferson County commissioned an evaluation of the County’s Comprehensive Plan regarding active living and healthy food access under the Washington State Department of Health’s Healthy Communities grant program (Alta Planning + Design, ChangeLab Solutions, September 2017). The 2012 evaluation cited the National Centers for Disease Control and Prevention (CDC) recommendations that identified that healthy community design can improve people’s health by increasing physical activity, increasing access to healthy food, improve air and water quality, decrease mental health stress, reduce the effects of climate change, strengthen social ties, provide access to livelihood, education, and resources. The analysis also made several recommendations to integrate active living and healthy food access into policies (see text box). The evaluation led to the Jefferson County Community Health Improvement Plan (CHIP), a 2013 partnership between Jefferson Healthcare and Jefferson County Public Health, to identify the health needs in Jefferson County. Additional partners such as Discovery Behavioral Healthcare, Jefferson County, and the City of Port Townsend, joined the initiative and developed the 2016 CHIP and companion Strategic Results Framework strategic plan document. Active Living Accessibility: ▶Mixed Use zoning ▶Connectivity ▶Multimodal options/ standards ▶Active Recreation Facility design: ▶Safety ▶Complete Streets Active Living & Healthy Food Access Recommendations Healthy Food Access Linking residents to local food: ▶Rural and regional agriculture ▶Urban agriculture: community and school gardens ▶Local processing and value-added production ▶Farmers’ markets and farm stands Improving access to healthy food and limiting unhealthy food: ▶Grocery stores and healthy food retailers ▶Fast food and convenience stores ▶Nutrition education and support for healthy eating The Community Health Improvement Plan (CHIP) is addressed in the following Elements: Land Use Land Use & Public Health Natural Resources, Agriculture Open Space, Parks & Rec. Challenges & Opportunities Environment Environmentally Friendly Development Techniques Transportation Active Living Community Health Improvement Plan LAND USE Jefferson County Comprehensive Plan 1–12 December 2018 The Land Use Element supports active living recommendations by including mixed use zoning in urban areas, master planned resorts, and rural centers; and by directing growth to urban areas where there is access to transit or other modes of non-motor vehicle transportation opportunities. Promoting parks and other destinations connected by regional trails also supports active living and is supported by this Land Use Element. Exhibit 1-7 shows existing and proposed trail connections in the vicinity of Chimacum Crossroads and the Irondale-Port Hadlock UGA. It illustrates connectivity between rural and urban communities, and linking destinations such as schools, parks, and other amenities. Non-motorized transportation connections and supporting non- motorized and park system plans are discussed in greater detail in the Transportation Element. LAND USE Jefferson County Comprehensive Plan 1–13 December 2018 EXHIBIT 1-7 Recreation Trail Connections to Schools and Parks of the Irondale-Port Hadlock UGA and Chimacum Source: Jefferson County Assessor, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–14 December 2018 Healthy food access is well supported by the land use strategy in this plan. A healthy food system supports the livelihoods of local farmers and ranchers and the economic viability of farmland and other working landscapes, both of which are necessary to protect open spaces from sprawl. Local food systems can also reduce the environmental impacts associated with shipping agricultural products long distances. Local food supports healthy eating, food literacy, and a healthy local economy. This Land Use Element supports commercial agriculture and allows agriculture in rural areas including farm-related accessory uses such as food processing and farm stands. Land Use and Economic Development Element policies support local food processing in industrial areas. The Land Use Element also supports urban agriculture and farmer’s markets in urban and rural centers. Considering health while planning our communities is a critical step toward a framework for future growth and design that maximizes a community’s ability to lead active, healthy lifestyles. Review of Surface Water Conditions & Existing Polluted Discharges The GMA requires that the land use element of each comprehensive plan include a review of drainage, flooding and stormwater runoff in the area and nearby jurisdictions. (RCW 36.70A.070(1)). The GMA recognizes that drainage, flooding, and storm water runoff issues are watershed basin concerns not confined by political or planning boundaries. The County has adopted the Department of Ecology Stormwater Management Manual for Western Washington (2001) as a technical guide and set of standards for stormwater management. A comprehensive stormwater program includes: ▶ Adoption of a comprehensive surface/stormwater management plan; ▶ Implementation of an operation and maintenance ordinance for stormwater facilities; ▶ Implementation of additional public education efforts regarding nonpoint source pollution and stormwater management; ▶ Completion of a more thorough inventory of county owned and operated facilities (i.e., cross-culverts and approach culverts); and Implementation of a clearing and grading ordinance to provide a permit trigger for compliance with stormwater standards at the time of lot clearing. In addition to the goals and policies of the Land Use Element, the Environment Element addresses surface water and stormwater. LAND USE Jefferson County Comprehensive Plan 1–15 December 2018 Land Use Strategy This Land Use Element is designed to Growth Management Act Goals, as balanced by Jefferson County’s Vision, Framework Goals, and this Element by: ▶ Directing growth to urban areas including the Port Hadlock / Irondale Urban Growth Area; ▶ Offering a variety of residential housing types at low, medium, and high densities in designated urban and rural village centers and crossroads; ▶ Ensuring areas designated as Master Planned Resorts follow their adopted development standards and development agreements; ▶ Conserving resource lands—agriculture, forestry, and mineral—of long-term commercial significance; ▶ Accommodating projected rural residential population and employment growth through flexible and innovative approaches to growth in LAMIRDs and other rural communities, including fostering their role as rural employment centers, and offering opportunities to create a vibrant economy while sustaining rural character in a rural county; ▶ Working cooperatively with other groups and individuals to develop long-term future opportunities to improve rural economic development and visitor facilities along established highway/tourist corridors. Land Use & Zoning Designations Based on its Vision, land characteristics, and the provisions of the GMA, Jefferson County does not propose to change its Land Use Map for the next 20-year planning horizon in this periodic update. See Exhibit 1-8. The predominant future land use designation / zoning district is Commercial Forest (CF-80). Other extensive designations include Rural Residential – 20 and Rural Residential – 5. Refer to Overlay Districts, Policy LU-P-1.9, and the Action Plan in Section 1.5 LAND USE Jefferson County Comprehensive Plan 1–16 December 2018 Source: Jefferson County Community Development, 2018. Note: No map changes are proposed as part of this periodic update. EXHIBIT 1-8 Land Use / Zoning Map LAND USE Jefferson County Comprehensive Plan 1–17 December 2018 Categories of rural land use, including rural commercial and industrial, residential, resort, resource, public and urban land use designations and zoning districts are listed in Exhibit 1-9. Acreage statistics illustrate the great predominance of forest resource land designations / zoning at over 76% of zoned land. Rural Residential categories represent about 20% of zoned land. Master Planned Resorts make up about 0.6% of zoned land. Unincorporated Urban Growth Area land use designations / zoning is at 0.2%. EXHIBIT 1-9 Land Use Designations / Zoning Districts & Acreage General Category Future Land Use Designation / Zoning District Acres Percent RURAL Rural Residential RR-5, RR-10, RR-20 86,341 20.1% Rural Commercial RVC, GC, NC, CC 249 0.1% Rural Industrial LI/M, LI/C, LI, HI, RI 519 0.1% RESORT Master Planned Resorts MPR-PH, MPR-SF-4, MPR-SFT, MPR-MF-10, MPR-RC/CF, MPR-VC, MPR-RA, MPR-OSR 2,366 0.6% RESOURCE LANDS Agriculture Resource Lands AP-20, AL-20 7,281 1.7% Forest Resource Lands IF-20, RF-40, CF-80 328,785 76.4% Mineral Resource Lands MRLO/CF-80 161 0.04% URBAN GROWTH AREA Urban Growth Area Residential UGA-LDR, UGA-MDR, UGA-HDR 736 0.2% Urban Growth Area Commercial UGA-UC, UGA-VOC 234 0.1% Urban Growth Area Industrial UGA-LI 25 0.01% Urban Growth Area Public UGA-P 68 0.02% PUBLIC Public Parks, Preserves, and Recreation PPR 2,812 0.7% Essential Public Facilities EPF-A, EPF-WM 534 0.1% Total 430,110 100% Source: Jefferson County GIS 2018; BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–18 December 2018 The GMA indicates the land use elements shall include population densities, building intensities, and estimates of future population growth (RCW 36.70A.070(1)). Planned residential densities are listed by zone in Exhibit 1-10. In Jefferson County Code some zones include standards for conditional uses that may have alternative allowed densities, requiring additional review; when consistent with the zone intent the alternative densities may be allowed. EXHIBIT 1-10 Planned Residential Densities Land Use / Zone Acronym Residential Density (DU/AC) RURAL Rural Residential RR-5 0.20 RR-10 0.10 RR-20 0.05 Rural Commercial RVC Allowed GC Allowed NC Allowed CC N/A Rural Industrial LI/M N/A LI/C Allowed LI Allowed HI N/A RI N/A RESOURCE AP-20 0.05 AL-20 0.05 CF-80 0.01 RF-40 0.03 IF-20 0.05 CF-80/MRLO N/A Land Use / Zone Acronym Residential Density (DU/AC) MASTER PLANNED RESORT MPR-PH MPR-GR, MPR—OSR, MPR-MV, Density per Title 17, Division II. Port Ludlow MPR-SF-4 4.00 MPR-SFT 0.40 MPR-MF-10 10.00 MPR-RC/CF Allowed MPR-VC Allowed MPR-OSR N/A MPR-RA N/A PUBLIC PPR N/A EPF-WM N/A EPF-A N/A URBAN GROWTH AREA UGA-LDR 6.00 UGA-MDR 12.00 UGA-HDR 18.00 UGA-UC N/A UGA-VOC N/A UGA-LI N/A UGA-P N/A Source: Jefferson County Code, 2018; BERK, 2018. Notes: Allowed = some residential uses allowed; density not specified and subject to permit review. N/A Not applicable. LAND USE Jefferson County Comprehensive Plan 1–19 December 2018 Rural Designations Rural Land Use Designations & Zones Jefferson County uses three rural residential land use densities ranging from five (5) acres to ten (10) acres, to twenty (20) acres in size. Regulations are included in the development code to encourage residential “clustering” in the rural areas of Jefferson County (see Goal LU- G-18). Subdivision of large parcels for residential purposes in designated commercial forest lands is not permitted. The criteria for designation of rural densities are provided in Exhibit 1-11 below. Exhibit 1-11 includes various land use and zoning designations, criteria used for such designation, and the principal land uses. Greater detail regarding rural character, and limited areas of more intensive rural development, is provided in Section 1.2. EXHIBIT 1-11 Summary of Rural Land Use & Zoning Designations Land Use/Zoning Designation Criteria for designation Principal Land Use RESIDENTIAL Rural Residential 1 unit/5 acres (RR 1:5) Located in areas of similar development; areas with smaller existing lots of record; along the coastal area; adjacent to Rural Village Center and Rural Crossroad designations; overlay designation for pre-existing platted subdivisions. Single family residential Rural Residential 1 unit/10 acres (RR 1:10) Located in an area with similar development patterns; adjacent to Urban Growth Area, transition density between RR 1:5 and RR 1:20; parcels in coastal areas of similar size; includes land affected by critical areas. Single family residential Rural Residential 1 unit/20 acres (RR 1:20) Located in an area with similar development patterns; Adjacent to Urban Growth Area, Resource Production Land or State/National Forest Land; parcels in coastal areas of similar size; includes land affected by critical areas; includes private timberlands; includes agricultural lands. Single family residential COMMERCIAL Convenience Crossroads (CC) Existing rural commercial uses which provide a limited range of basic goods and services (basic foodstuffs, gas, basic hardware, and basic medicinal needs); generally located at the intersection of local arterials or collectors; usually contain a convenience/general store associated with gas pumps. May also serve the traveling public. Rural commercial LAND USE Jefferson County Comprehensive Plan 1–20 December 2018 Land Use/Zoning Designation Criteria for designation Principal Land Use Neighborhood/ Visitor Crossroads (NC) Existing rural commercial uses which provide an expanded range of basic goods and services for the rural population and traveling public (grocery, hardware, bakery, restaurant, tavern, auto repair, small professional offices, public services, and medical offices). Rural commercial General Crossroads (GC) Existing commercial uses that provide a mixture of local, traveling public, and community uses, and may include limited regional uses due to proximity to population centers in the Tri-Area. Rural commercial Rural Village Centers (RVC) Existing rural commercial uses that provide for many of the basic daily needs of the rural population; typically supplies goods and day-to-day services; provides limited public and social services. Residential uses include single family, duplexes, triplexes, and assisted living facilities. Rural community-based commercial and residential Village Commercial Center (VCC) Commercial area identified in the 1993 EIS for Port Ludlow Master Planned Resort. Commercial uses will provide many essential day-to-day goods and services to residents and resort visitors. Rural community-based commercial INDUSTRIAL Heavy Industrial (HI) Port Townsend Paper Mill Heavy industrial Paper Mill and ancillary activities Light Industrial Glen Cove Center Valley Light industrial Light Industrial/ Manufacturing (LI/M) Quilcene Industrial Area Eastview Industrial Plat (JCIA LI/M Overlay III, consisting of 24 acres, Assessor’s Parcel No. 001-331-005 in the AEPF. Light industrial Light Industrial/ Commercial (LI/C) Glen Cove Industrial Area Light industrial and retail uses associated with an industrial use Forest Resource-Based Industrial Zones (RBIZ) Gardiner West Jefferson County Forest resource-based industrial Source: Jefferson County, 2018. Overlay Districts Jefferson County has established several overlay designations: The following overlay designations allow for additional commercial opportunities in more remote areas of the County in addition to those of the underlying zoning district: LAND USE Jefferson County Comprehensive Plan 1–21 December 2018 ▶ The Remote Rural Overlay designation is applied in two locations in the County: West Jefferson County and Brinnon Planning Area. In Remote Rural Overlay areas, greater flexibility is provided in home- based business and cottage industry regulations. In West Jefferson County, additional small-scale tourist uses are allowed. ▶ The Small-scale Recreation and Tourist (SRT) Overlay is allowed in the Wawa Point Area in the Brinnon Planning Area. Another Overlay District establishes a view corridor along Highway 20 and other major routes: ▶ Highway 20 View Corridor: Maintain a forest buffer between the roadway and other development. ▶ Highway/Commuter Corridor Overlay: This overlay provides for future rural economic development opportunities. The County has established several Jefferson County International Airport Overlays addressing noise, airport safety, and rural scale non- aviation-related industrial uses. EXHIBIT 1-12 Summary of Overlay Land Use & Zoning Designations Land Use/Zoning Designation Intent Principal Land Use Remote Rural Overlay District The intent of this designation is to allow for expanded rural-compatible employment opportunities in sparsely populated rural areas that are isolated and remotely located from commercial and urban growth areas. These areas are characterized by high unemployment, distressed traditional resource-based economies, low residential densities, and very limited projected 20-year population growth. In Brinnon and West Jefferson County: home-based businesses and cottage industry uses. Additionally, in western Jefferson County some recreation and tourist uses. Small-scale Recreation and Tourist (SRT) Overlay The intent of this section is to encourage small-scale recreation and tourist development consistent with the needs, scale, and rural character of the Brinnon Planning Area. Recreation and tourist Highway 20 View Corridor Along SR 20 and other suitable roadways, preserve and protect the forest corridor, and to provide a visual buffer between the roadway and new commercial and manufacturing development. Forest corridor Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–22 December 2018 Land Use/Zoning Designation Intent Principal Land Use Highway/Commuter Corridor Overlay This overlay may be applied through an area wide evaluation of future rural economic development opportunities in heavily traveled existing highway corridors such as State Highway 104 or State Highway 19. Commercial and Tourist Uses in a rural setting Jefferson County International Airport Overlay I Purpose of the Airport Overlay I is to disclose to permit applicants and prospective property owners their proximity to airport operations, and to identify an airport safety zone within which certain uses will be prohibited for public safety and compatibility reasons. The overlay is a fixed boundary reflecting the projected 55 DNL contour mapping in the year 2022, as set forth in Exhibit 6.4 of the adopted Jefferson County Airport Master Plan. Airport noise exposure is measured in a Day-Night Average Sound Level (DNL) and is used to analyze and characterize multiple aircraft noise events, and for determining the cumulative exposure of such noise to individuals around airports. Aviation facilities and activities Jefferson County International Airport Overlay II Airport Overlay II is an airport operations awareness area delineated by the WSDOT Aviation Division, Aircraft Accident Safety Zone #6 recommendations contained in the “Airports and Compatible Land Use” publication. The safety zone correlates with the FAA mandated airport traffic pattern for JCIA, and is to apprise the public, property owners and developers of the existence of the airport traffic pattern and impacts from routine aircraft over-flights; and to identify an airport safety zone within which certain uses that involve higher concentration of people will be prohibited for safety and compatibility reasons. Aviation facilities and activities Jefferson County International Airport Overlay III The purpose of the Airport Overlay III is to provide a limited opportunity for rural scale non-aviation-related industrial uses that contribute to the long-term financial viability of the AEPF and to enhance the economic vitality and quality of life for the citizens of Jefferson County. Non-aviation-related light industrial/ manufacturing in the Airport Essential Public Facility Source: Jefferson County, 2018. LAND USE Jefferson County Comprehensive Plan 1–23 December 2018 West Jefferson County Rural Residential West Jefferson County includes land use and zoning designations of RR1:10 and RR1:20. Where consistent with rural character and goals of affordable housing and economic development, the County may conduct a comprehensive analysis of potential locations for RR1:5 designations and zoning. West Jefferson County also contains some private inholding parcels within the Quinault Indian Nation Reservation. The County may consult the Quinault Nation about common concerns regarding planning issues. Resource Land Designations Agricultural Resource lands have a designated twenty (20) acre minimum density. Forest Resource lands have a forty (40) acre and eighty (80) acre minimum parcel size (see Natural Resources Element). Exhibit 1-13 includes resource land designations, intents, and the principal land uses. See Section 1.3 for additional discussion. EXHIBIT 1-13 Summary of Resource Land Use & Zoning Designations Land Use/Zoning Designation Intent Principal Land Use Prime Agricultural Lands (AP-20) The purpose of the prime agricultural lands district is to protect and preserve areas of prime agricultural soils for the continued production of commercial crops, livestock, or other agricultural products requiring relatively large tracts of agricultural land. It is intended to preserve and protect the land environment, economy, and lifestyle of agriculture in Jefferson County. These lands must be protected as “agricultural lands of long-term commercial significance.” Agriculture Agricultural Lands of Local Importance (AL-20) The purpose of the agricultural lands of local importance district is to protect and preserve parcels of land which, while not necessarily consisting of prime agriculture soil or relatively large acreage, are still considered important to the local agricultural economy, lifestyle, and environment. As such they deserve protection as “agricultural lands of long-term commercial significance.” Agriculture Inholding Forest (IF-20) This district encompasses parcels at least 20 acres in size that are entirely surrounded by designated forest resource lands and that are not vested for development under Washington State law. Forestry Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–24 December 2018 Land Use/Zoning Designation Intent Principal Land Use Rural Forest (RF-40) The purpose of the rural forest district is to ensure forest lands of long-term significance are protected from incompatible uses thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity, while allowing for diversity in the size of forest tracts. Forestry Commercial Forest (CF-80) The purpose of the commercial forest district is to ensure large tracts of forest lands of long-term significance are protected from incompatible uses thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity. Forestry Mineral Resource Lands Overlay District (MRL) The mineral resource land district is to provide for the conservation of mineral lands of long-term commercial significance. The intent of this district is to aid in sustaining and enhancing mineral extraction and processing activities of long-term commercial significance by protecting designated lands from incompatible development and to allow for the continued contribution of mineral lands to the Jefferson County economy. Mineral Extraction Source: Jefferson County, 2018. Master Planned Resort Designations Master planned resorts (MPRs) are large-scale, self-contained developments that are based on an integrated, conceptual master plan, yet are typically developed in stages depending on market demand or other factors. They are Limited Areas of More Intensive Rural Development and may constitute urban densities and intensities of growth outside of Urban Growth Areas. ▶ Master planned resorts in existence as of July 1, 1990 and developed, in whole or in part, as a significantly self-contained and integrated development that includes short-term visitor accommodations associated with a range of indoor and outdoor recreational facilities within the property boundaries in a setting of significant natural amenities may constitute urban growth outside of urban growth areas as limited by RCW 36.70A.362. ▶ Master planned resorts not in existence as of July 1, 1990 are allowed if they meet the requirements of RCW 36.70A.360. The Port Ludlow Master Planned Resort was developed consistent with RCW 36.70A.360 per Jefferson County Ordinance 8-99.. The Brinnon Subarea Plan (adopted 2002 and amended 2004) identified the Black Point area an appropriate location for a possible future Master LAND USE Jefferson County Comprehensive Plan 1–25 December 2018 Planned Resort. The Brinnon Master Plan Resort land use designation was established in 2008, and a final Supplemental Environmental Impact Statement capped the maximum number of development units at 890 with 52 units designated for staff housing and no more than 65% dedicated to time-share and short-term rental units, leaving approximately 293 units for permanent housing. Approval by the Board of County Commissioners of zoning regulations and a development agreement is required prior final establishment of the Master Planned Resort and project construction. In 2018, a Master Plan, development regulations, and a development agreement were approved by Ordinance No. 03-0604-18 and Ordinance 04-0604-18 to establish the interior zoning and provide for a phased development plan for the Pleasant Harbor Master Planned Resort, formerly called the Brinnon Master Planned Resort. The Master Plan Resort land use designations are shown in Exhibit 1-14 below. More discussion of the master planned resorts is found in Section 1.2. EXHIBIT 1-14 Summary of Master Planned Resort Land Use & Zoning Designations Land Use/Zoning Designation Intent Principal Land Use Port Ludlow Master Planned Resort with the following zoning designations: MPR-SF-4 MPR-SFT MPR-MF-10 MPR-RC/CF MPR-VC MPR-OSR MPR-RA The master planned resort of Port Ludlow is characterized by both single-family and multifamily residential units with attendant recreational facilities including a marina, resort and convention center. The master planned resort of Port Ludlow also includes a large residential community. The entire MPR is served by a village commercial center, which accommodates uses limited to serving the MPR and local population. Resort with mix of uses Pleasant Harbor Master Planned Resort with the following zoning designations: MPR-GR MPR-OSR MPR-MV Provides a mixture of visitor-oriented transient accommodations, secondary homes, recreational facilities, and supporting commercial facilities Resort with mix of uses Source: Jefferson County, 2018 LAND USE Jefferson County Comprehensive Plan 1–26 December 2018 Urban Growth Area Designations The Port Hadlock/Irondale Urban Growth Area is planned for urban residential, urban commercial, urban industrial, Both Rural and Urban Zones apply per the Land Use and Zoning map. Rural zones apply until urban wastewater services are available, and then Urban zones apply. See Section 1.4 for additional discussion. EXHIBIT 1-15 Port Hadlock/Irondale Urban Growth Area Land Use & Zoning Designations Land Use Designation Description of Zoning Districts & Location Principal Land Use Urban Residential The Urban Low Density Residential (UGA-LDR) zone will allow housing density from four (4) to six (6) dwelling units per acre. Moderate Density Residential (UGA-MDR) zoning will allow housing at a density of 7-12 units per acre. The High Density Residential (UGA-HDR) zone will allow housing at a density of 13-18 dwelling units per acre. Residential dwellings detached and attached. Urban Commercial The Urban Commercial (UGA-UC) zone covers both the existing and planned future commercial development in the Port Hadlock core area and along Rhody Drive from Ness” Corner following the commercial strip along SR 19. The Visitor-Oriented Commercial (UGA-VOC) zone is applied to the tourism-oriented potential development area around the Old Alcohol Plant and marina. Commercial retail, services, tourism, and other similar uses Urban Industrial The Urban Light Industrial (UGA-LI) zone in the UGA applies to a largely developed industrial area: all but 5 acres are already in light industrial use. These uses are in the southwest corner of the UGA well buffered from the bulk of the residential neighborhoods in the community. Light industrial Public Facilities Public facilities (UGA-P) comprise 80 acres, including public park and open space areas, the Library and Chimacum Creek Elementary School, the Jefferson County Sheriff’s Office and Jail, Jefferson County Public Works Department Maintenance Yard, and the Public Utility District #1 of Jefferson County’s (JPUD) Sparling Well facility along Rhody Drive and the Kivley Well in Port Hadlock. Public and institutional Source: Jefferson County, 2018. LAND USE Jefferson County Comprehensive Plan 1–27 December 2018 Public Designations This section addresses public designations of two types: ▶ Public: Lands needed to provide the full range of services to the public provided by government, substantially funded by government, contracted for by government, or provided by private entities to public service obligations. ▶ Essential Public Facilities: Facilities needed to provide public services and functions that are typically difficult to site. Those public facilities that are usually unwanted by neighborhoods, have unusual site requirements, or other features that complicate the siting process. Jefferson County allows public uses in nearly every implementing zone. The County has created a specific zone for the public use of parks due to their unique facilities and needs with some being linear, outdoor, and indoor spaces. Jefferson County has developed zones for two essential public facilities regarding waste management and airports. Each designation and zone are described in Exhibit 1-16. More detailed policies regarding these uses are included in the Capital Facilities, Essential Public Facilities, and Utilities Element. EXHIBIT 1-16 Public Land Use Designations & Zoning Land Use/Zoning Designation Intent Principal Land Use Parks, Preserves and Recreation (PPR) This land use district consists of state and county parks, preserves and recreational sites. It is intended to provide for public recreational opportunities consistent with the rural character of the County and preserve significant natural amenities of special or unique character. Parks, recreation, and open space facilities and activities County Waste Management Essential Public Facility (CWMEPF) This district addresses facilities needed to provide waste management public services and functions. Solid waste and waste management Airport Essential Public Facility (AEPF) This land use district consists of land owned by the Port of Port Townsend that directly and indirectly supports operations of the Jefferson County International Airport as an essential public facility. It is intended to promote compatible land uses and the long-term economic viability of the JCIA consistent with county goals regarding essential public facilities, the preservation of rural character, and economic development. Additional AEPF information is found in the Transportation and Capital Facilities & Utilities Elements. Aviation facilities and activities Source: Jefferson County, 2018. See the Capital Facilities / Essential Public Facilities / Utilities Element for additional background regarding the process of siting essential public facilities LAND USE Jefferson County Comprehensive Plan 1–28 December 2018 Major Industrial Development & Industrial Land Banks If there is insufficient industrial land available within an urban growth area for a large industrial operation or if a natural resource-based industrial operation needs to be sited adjacent to natural resources, there is a process within the GMA that allows for the siting of a major industrial development (MID) outside of an urban growth area. (RCW 36.70A.365) Additionally, the Act allowed qualified counties to designate up to two Industrial Land Banks (ILBs) before December 31, 2016 for specific purpose of siting MIDs; the date has changed from 2007 to 2016 and may be changed again at the will of the legislature. MIDs sites in rural lands either through a permitting process (RCW 36.70A.365) or within a designated ILB (RCW 36.70A.367) would be considered industrial development or activity outside of urban growth areas. No MIDs or ILBs are designated in Jefferson County as of the 2018 Periodic Update. Legal Nonconforming Uses & Lots While the 2018 Periodic Update has not proposed Future Land Use Map changes, there may be pre-existing uses of property prior to the 1998 Comprehensive Plan adoption or subsequent changes addressing land use and zoning. Non-conforming uses of property that were legally established are considered grandfathered and may continue to operate when new plans, policies, or regulations are adopted. If a use ceases for a certain period, it may not continue. See policies regarding nonconforming uses later in this element. Some areas zoned for residential uses have smaller lots platted prior to 1998 than would be allowed with new plats. Residential uses may be permitted on existing lots of record as legal lots. However, in terms of development, some of the smaller lot sizes could require consolidation with other lots to meet current Health Department standards for wells or septic areas, or to meet other regulations, such as critical areas. Establishing Allowed Uses & Regulations Within Land Designations From Rural Character to Development Regulations The Jefferson County Comprehensive Plan discusses our vision, rural character, rural lifestyle, working landscapes, rural aesthetics, and rural economy. These sentiments and definitions are provided throughout the LAND USE Jefferson County Comprehensive Plan 1–29 December 2018 Elements, and the entirety of the Comprehensive Plan reflects our definition of rural character. The Comprehensive Plan establishes land designations, harmonizes goals and policies, and implements them through County regulations and local actions. Jefferson County defines rural character not only in terms of visual character, but also in terms of densities and intensities of use. Jefferson County protects natural resources, open spaces, and preserves critical environments. Jefferson County places high regard to meeting our housing, infrastructure, and economic development needs, as we appropriately balance each of the GMA goals to ensuring that our County’s priorities and needs are addressed. Within the aesthetics of our rural character, there is an expectation of an ambient background of rural life affecting our senses: sounds, smells, views, perhaps even tastes of working rural communities and local neighborhoods. Along with the variety of these experiences is an understanding that a rural area is distinctly set apart from a largely urbanized landscape, and there is an expectation of comfort and quiet that is often sought in a rural residential neighborhood. Living in a rural area does not necessarily ensure a continuous bucolic experience. Chainsaws, recreational shooting, or an occasional portable saw mill operating nearby are not out of character in our rural setting. But there is an expectation that one property owner’s use of a property will not interfere with another’s reasonable use and enjoyment of theirs. Our land use goals and policies give direction to protect rural character in ways that meet the broader set of community needs, and our definition of rural character guides the development of implementing regulations. Rural Character & Review of Regulations for Land Uses, Development Patterns, & Nuisances GMA encourages local jurisdictions to perform a periodic analysis of rural development, to determine if patterns of rural development are protecting rural character. It is the County’s policy to review implementing regulations that affect our rural character. Regulations are tailored for specific land uses. Also, regulations can be tailored to specific communities or sub-areas, such as in the special small-scale recreation and tourism overlays and expanded cottage industry standards for Brinnon and the West End. Many uses that have the potential to create nuisances or other impacts are reviewed under a conditional use permit process. LAND USE Jefferson County Comprehensive Plan 1–30 December 2018 The conditional use permit process provides flexibility in the application of land use regulations accommodating uses that may be appropriate under certain circumstances, but inappropriate under others. Approval of a conditional use permit application includes compliance with the Comprehensive Plan and implementing development standards, such as cottage industry requirements, the Critical Areas Ordinance, the Shoreline Master Program, and the small-scale recreation and tourist overlay. (a) The conditional use is harmonious and appropriate in design, character and appearance with the existing or intended character and quality of development in the vicinity of the subject property and with the physical characteristics of the subject property; (b) The conditional use will be served by adequate infrastructure including roads, fire protection, water, wastewater disposal, and stormwater control; (c) The conditional use will not be materially detrimental to uses or property in the vicinity of the subject parcel; (d) The conditional use will not introduce noise, smoke, dust, fumes, vibrations, odors, or other conditions or which unreasonably impact existing uses in the vicinity of the subject parcel; (e) The location, size, and height of buildings, structures, walls and fences, and screening vegetation for the conditional use will not unreasonably interfere with allowable development or use of neighboring properties; (f) The pedestrian and vehicular traffic associated with the conditional use will not be hazardous to existing and anticipated traffic in the vicinity of the subject parcel; (g) The conditional use complies with all other applicable criteria and standards of this code and any other applicable local, state or federal law; and more specifically, conforms to the standards contained in Chapters 18.20 and 18.30 JCC; (h) The proposed conditional use will not result in the siting of an incompatible use adjacent to an airport or airfield; (i) The conditional use will not cause significant adverse impacts on the human or natural environments that cannot be mitigated through conditions of approval; (j) The conditional use has merit and value for the community as a whole; (k) The conditional use is consistent with all relevant goals and policies of the Jefferson County Comprehensive Plan; and (l) The public interest suffers no substantial detrimental effect. Consideration shall be given to the cumulative effect of similar actions in the area. Jefferson County’s Conditional Use Permit Criteria (JCC 18.40.530(1)) LAND USE Jefferson County Comprehensive Plan 1–31 December 2018 Impacts from small-scale commercial activity in rural residential zones associated with home business or cottage industries are inevitable. However, these impacts are analyzed under our development standards and typically approved only when they are consistent with the Comprehensive Plan, rural character, and development regulations, including conditional use permit approval criteria. The conditional use criteria weigh public interest, potential cumulative effects, assure the use is harmonious and appropriate to the property and to the vicinity, and that the use is not materially detrimental to uses of other’s property in the vicinity, including residential use. Community Planning Efforts Jefferson County has worked with interested communities on area- specific plans over time. The County’s planning areas are shown in Exhibit 1-17. Jefferson County adopted its first Comprehensive Plan in 1998. Prior to that, the County participated in the following community planning efforts spanning 1977 to 1998: ▶ Brinnon Community Development Plan (original 1982) ▶ Coyle Community Development Plan (1977) ▶ Gardiner Community Development Plan (1989) ▶ Marrowstone Community Development Plan (1978) ▶ Tri-Area Community Development Plan (1982) LAND USE Jefferson County Comprehensive Plan 1–32 December 2018 Additional communities which requested permission to develop community plans prior to 1998 include North Port Ludlow and Lake Leland, but these planning efforts were not completed due to resource constraints. The general content and direction of these community plans provided information for development of the 1998 Comprehensive Plan. The community plans were entirely incorporated into the goals and policies of the 1998 Comprehensive Plan. The community plans have no further standing as individual community plans. As briefly discussed below, additional community- specific planning would be conducted through a more rigorous process of developing a sub-area plan, which would be implemented as a distinct part of the Comprehensive Plan. Refer to Policy LU-P-1.11. Historical planning documents may be found at the Department of Community Development. After the completion of the initial Comprehensive Plan in 1998, Jefferson County has engaged in planning through the policy direction of the Comprehensive Plan for rural and urban areas as allowed under the GMA. Detailed plans developed for a specific area in a comprehensive plan is called a Subarea Plan. These plans are optional elements that must be consistent with the Comprehensive Plan, and become part of the Comprehensive Plan (RCW 36.70a.080(2)). Subarea Plans have been completed as follows: ▶ Brinnon Subarea Plan (2002, Amended 2004) The Brinnon Subarea Plan (BSAP) was adopted as a supplement to, and part of the Comprehensive Plan in 2002 (Ord.#13-1213-02) and was modified by subsequent ordinances in 2004.. The BSAP appends this Land Use Element and is a referenced component of the Land Use Element and Comprehensive Plan. Provisions of the BSAP are implemented in the Unified Development Code. ▶ Port Hadlock/Irondale Urban Growth Area Element (2009) In addition, Master Plans have been prepared for master planned resorts and can be considered a type of subarea plan: ▶ Port Ludlow (1999) ▶ Pleasant Harbor Master Planned Resort (pending 2018) Fishing on Lake Leland, Jefferson County LAND USE Jefferson County Comprehensive Plan 1–33 December 2018 EXHIBIT 1-17 Community Planning Areas Source: Jefferson County, 2018. LAND USE Jefferson County Comprehensive Plan 1–34 December 2018 County-wide Planning Policies The Countywide Planning Policy in Resolution 128-92 provides policies that address: ▶ Rural Areas: Includes both rural and resource lands. ▶ Urban Growth Areas: Proper sizing, provision of urban services, joint County and the City of Port Townsend planning, The full text of the policies is provided in the Resolution. The policies are summarized below for brevity. Rural Areas Policies Rural areas are described as “characterized by low density development, open spaces, minimal public services, resource dependent activities, and industries; and outdoor recreational facilities.” Innovative tools such as “clustering or density transfer is considered a positive tool” to maintaining rural character. Level of service standards are to fit rural areas and rural centers such as: “emergency services, transportation and roads, individual septic systems, individual or community water systems, and storm water and water quality” systems. Parcel sizes are to be “commensurate with the character of existing rural communities,” and rural areas are to have a “variety of acreage parcels.” Rural centers serve commercial and service needs of the local area and may have commercial, residential, and community facilities and services. The County’s rural element is to recognize existing industry outside of urban growth areas, with limitations on the potential for conversion of adjacent land uses. Urban Growth Areas & Services Policies on Urban Growth Areas describe using the OFM to develop a joint County-City of Port Townsend population forecast that would be used in capital facility and service plans. Additionally, the policies describe sizing the urban growth area based at least on the low forecast or if capital facilities are sufficient based on a medium or high projection. Sizing of Urban Growth Areas is to be based on adequate supply of developable land to accommodate the joint population forecast, and including land for residential, commercial, and industrial uses. Urban growth areas are to include lands in city limits and lands already characterized by urban development and served or capable of being served by urban services at defined levels of service. Urban growth areas LAND USE Jefferson County Comprehensive Plan 1–35 December 2018 should include greenbelt and open space corridors. Critical areas and topographic features are to help form boundaries. Port Hadlock and Port Ludlow are considered being "characterized by urban growth" and community plans are to be used as a guide to urban boundaries. Urban growth area boundaries may be changed by reviewing sizing criteria and if there are appropriate capital facility plans. Urban areas are to be separated by rural, resource, or open space lands, or unique topographic features. Within the urban growth area, the full range governmental urban services are to be provided at adopted levels of service: community water, sanitary sewer, piped fire flow, and storm water systems. Urban services and facilities are not to be extended beyond the urban growth area except if there’s a threat to public health or welfare or to protect an area of environmental sensitivity, with a focus on threats from existing development. The County, City of Port Townsend, and Public Utility District are to use updated population forecasts to update the Coordinated Water System Plan. Capital plans may have tiers with the existing developed areas having six-year plans as the first tier, and the second tier being areas included within the capital facilities plan to receive the full range of urban services within twenty (20) years. Improvements in the second tier may be provided by a developer concurrent with development of by public entities. Reciprocal circulation of development applications by the County and the City of Port Townsend is promoted in the policies. Port Ludlow, Port Ludlow Village Council Downtown Port Townsend, BERK LAND USE Jefferson County Comprehensive Plan 1–36 December 2018 Overarching Land Use Goals & Policies General Land Use Goal LU-G-1 Ensure a community-based Comprehensive Plan that is consistent with the Growth Management Act and the County-wide Planning Policy, and provide for a well-implemented Comprehensive Plan through the preparation of supporting development regulations, system plans, and programs. ▶ Policy LU-P-1.1 Incorporate opportunities for continuous and ongoing public participation into both the comprehensive planning process and the implementation of the resulting Comprehensive Plan. ▶ Policy LU-P-1.2 Acknowledge and protect the rights of private property owners in preparing land use, development, and environmental regulations, prohibit arbitrary and discriminatory actions, and preserve reasonable uses for regulated properties. ▶ Policy LU-P-1.3 Maintain Jefferson County’s character of rural working landscapes, with planning efforts to meet community needs of housing, infrastructure, and economic development. Meet these needs through county leadership and collaborative work with the State for legislative and local solutions to the challenges met with GMA in rural counties. ▶ Policy LU-P-1.4 Encourage the use of innovative site planning and design techniques as a way to preserve rural character, open lands and natural resources, including lot consolidation opportunities, development regulations, and other innovative tools such as farm conservation plans. ▶ Policy LU-P-1.5 If the County chooses to adopt methods of paying for new services and facilities related to new development that causes additional demand for new public facilities or services, by shifting the cost from the community at large to those who benefit, determine through a public process how to apportion the fair share of funding for required public facilities, services, and amenities. ▶ Policy LU-P-1.6 Ensure appropriate services are provided as needed and that the duplication of services is avoided by promoting the coordination of local governmental agencies, non-profits, cooperatives, educational institutions, programs, and planning. LAND USE Jefferson County Comprehensive Plan 1–37 December 2018 ▶ Policy LU-P-1.7 Ensure the annexation of unincorporated territory in Jefferson County occurs in a manner consistent with State law. ▶ Policy LU-P-1.8 Establish land use goals and policies in the Land Use Element of this plan that are internally consistent with and reflective of the goals and policies of all other elements of the Plan. ▶ Policy LU-P-1.9 Cooperatively examine new potential development opportunities along selected regions of existing highway/commuter corridors for trails, multi-use trails, and economic development, consistent with GMA. ▶ Policy LU-P-1.10 Explore opportunities to incentivize standards such as Built Green Washington, Low Impact Development, and /or LEED (Leadership in Energy and Environmental Design), dependent upon the availability of funding. ▶ Policy LU-P-1.11 Support Jefferson County communities by reviewing, developing, or updating local community plans, subarea plans, and implementing regulations in sync with the needs of the community, environment, Comprehensive Plan, and Growth Management Act, as staffing capacity and funding allows. Land Use Consistency with Naval Base Kitsap Goal LU-G-2 Continue to partner with the Department of Defense for land use planning that benefits national security, conservation, and economic prosperity in Jefferson County. ▶ Policy LU-P-2.1 Support additional Joint Land Use Study (JLUS) planning work with military and other partners, provided funding is made available. ▶ Policy LU-P-2.2 Upon the conclusion of the JLUS Implementation Phase, identify those tools recommended by the JLUS Implementation Committee, which are applicable and appropriate in Jefferson County, and undertake reasonable efforts to implement those tools in a timely manner. Marrowstone Island, Carolyn Gallaway LAND USE Jefferson County Comprehensive Plan 1–38 December 2018 ▶ Policy LU-P-2.3 Continue to partner with Navy Region Northwest and other applicable military partners on evolving missions, installation planning, transportation planning, military construction projects, land use compatibility programs, such as Readiness and Environmental Protection Integration, and other issues affecting Jefferson County. Naval Base Kitsap (NBK), as the third largest naval base in the United States has direct and indirect impacts on Jefferson County. NBK missions include: homeporting and maintenance and repair of submarines, aircraft carriers, and surface ships. Additional missions include weapons handling and research, development, testing, and evaluation. NBK is home to approximately 34,000 active-duty, reserves, and US Department of Defense civilian employees. NBK includes the three flag commands (Admiral-directed) of Navy Region Northwest, Carrier Strike Group Three, and Submarine Group Nine. While the vast majority of NBK’s operations are located outside of Jefferson County, Naval Magazine Indian Island, a strategic loading point for the Pacific Fleet, is located in Jefferson County. Naval Magazine Indian Island, located on a 2,700-acre island within Jefferson County, is a strategic loading point for ships in the Pacific Fleet preparing for or returning from deployment. It is also a strategic port for transshipment of joint service ordnance. The pristine and undeveloped deep water nature of Dabob Bay and Hood Canal allows the Navy to perform sensitive acoustical testing. NBK’s evolving mission requires close coordination with Jefferson County to ensure compatible land uses between NBK and Jefferson County. Jefferson County was a participant in the Joint Land Use Study (JLUS), a multi-county and city effort to jointly plan land uses around NBK facilities. The JLUS describes the importance of the military installation in Jefferson County, identifying four areas of interest: 1. Marrowstone Island shares access via the Portage Canal Bridge and utilities with Naval Magazine Indian Island. 2. The Port Hadlock-Irondale UGA is a location of the freight route also used by Naval Magazine Indian Island. 3. Development along the western shores of Hood Canal and Dabob Bay could increase water traffic, which could impact the viability of the Navy’s in-water operating areas and testing ranges. The Navy has been partnering with state agencies and land trusts to secure land and easements, including easements on working forests to buffer noise-sensitive areas, reduce electromagnetic interference, and protect habitat. 4. Communication and coordination. Implementing JLUS recommendations can improve land use compatibility and natural area conservation but may also affect the rural economy and rural housing options. For example, the US Navy is interested in additional Readiness and Environmental Protection Integration (REPI) funding to purchase development rights in Jefferson County. The REPI program seeks to purchase development rights from targeted property owners, in most cases extinguishing property owner’s ability to develop their property. The REPI program is designed to protect the Navy from existing and future encroachment of military missions, mitigate security risks to the existing and future missions, and improve natural area conservation. However, these REPI acquisitions permanently extinguish current and future development rights. Therefore, it is crucial that Jefferson County and NBK partner in implementing compatibility programs, such as REPI. The County seeks to implement JLUS recommendations that are appropriate to the County’s Comprehensive Plan Vision and this Land Use Element while recognizing the military’s long-standing mission and partnership in the county. Naval Base Kitsap Joint Land Use Study LAND USE Jefferson County Comprehensive Plan 1–39 December 2018 Industrial Development Goal LU-G-3 Identify and designate sufficient land area within the County for industrial uses and economic development. ▶ Policy LU-P-3.1 Designate sufficient land for light industrial uses within the Irondale/Hadlock Urban Growth Area. ▶ Policy LU-P-3.2 Consider designating major industrial developments (MIDs) outside of Urban Growth Areas consistent with the Uniform Development Code and all the criteria in GMA. Housing Goal LU-G-4 Support opportunities to provide a variety of affordable housing types for county residents of all income groups and needs. ▶ Policy LU-P-4.1 Encourage duplexes, triplexes, senior housing, farmworker housing, and assisted living facilities—limited in size and scale—to be permitted in rural commercial/mixed-use areas within the capacity of local infrastructure and site constraints. ▶ Policy LU-P-4.2 Encourage special needs housing, senior housing, farmworker housing, and assisted living facilities to be permitted conditionally in rural residential areas. ▶ Policy LU-P-4.3 Consider existing platted developments for designation as Residential Limited Areas of More Intensive Rural Development (Residential LAMIRDs). ▶ Policy LU-P-4.4 Evaluate and support land use that supports and promotes a range of affordable housing types and supplies workforce housing, including farmworker housing, to gain and maintain an adequate workforce and improves local the local economy. Refer also to the Housing Element LAND USE Jefferson County Comprehensive Plan 1–40 December 2018 Public Purpose Lands Goal LU-G-5 Identify and designate lands for both public purposes, public facilities, and essential public facilities. ▶ Policy LU-P-5.1 Assess for designation public purpose lands to provide a range of services to the public to meet public needs and serve as sites for some public facilities. ▶ Policy LU-P-5.2 Wherever practical, site essential public facilities, such as airports, large-scale transportation facilities, state educational facilities, correctional facilities, solid waste treatment facilities, substance abuse facilities, mental health facilities and group homes, so as to avoid potential adverse impacts to surrounding land uses and critical areas, to meet public need, and be compatible with the surrounding community. ▶ Policy LU-P-5.3 Ensure that designated public purpose lands are appropriate to the level of service standards for the designated land use density. ▶ Policy LU-P-5.4 Provide for broad-based participation by agencies, citizens, tribes, and other interested parties in the process for designating land to be used for essential public facilities. Transportation Goal LU-G-6 Ensure that transportation is safe, efficient, multi-modal, and based on levels of service that correspond to the land use densities in the Comprehensive Plan to connect people to where they live, work, learn, and play. ▶ Policy LU-P-6.1 Encourage development and land use proposals that utilize existing transportation systems and provide interconnected, multi-modal, pedestrian-friendly, non-motorized transportation opportunities that address environment and economic development goals. ▶ Policy LU-P-6.2 Coordinate with state and federal transportation agencies to ensure that their plans meet the land use expectations of the County’s Comprehensive Plan. Refer also to the Transportation Element Refer to related elements and follow multi-modal wayfinding references between goals and policies of the Economic Development, Transportation, Environment, and Land Use Elements LAND USE Jefferson County Comprehensive Plan 1–41 December 2018 ▶ Policy LU-P-6.3 Site transportation facilities in locations which minimize the disruption of natural habitat, floodplains, wetlands, geologically sensitive areas, resource lands, and other priority systems. ▶ Policy LU-P-6.4 Prioritize non-motorized improvements and connectivity in communities, especially around schools. Environment Goal LU-G-7 Preserve the functions and values of critical environmental areas and protect development from the risks of environmental hazards. ▶ Policy LU-P-7.1 Ensure that land use decisions consider climate change, and are based on land use ordinances which are in compliance with the Critical Areas Ordinance and all applicable state environmental laws. ▶ Policy LU-P-7.2 Allow residential, commercial, and industrial development in a manner that minimizes risk from flooding, earth movement, shoreline erosion, sea level rise, and other natural hazards. ▶ Policy LU-P-7.3 Develop information and action plans regarding impacts to land use from climate change, including protecting or moving infrastructure from inundation areas; review of hydrologic budgets and water impoundment and conservation measures for changing precipitation patterns; and protection of water quality from seawater intrusion or other pollutants to drinking water quality. ▶ Policy LU-P-7.4 Support cooperative ecosystem and habitat management processes between stakeholders and local, state, federal and tribal governments. ▶ Policy LU-P-7.5 Ensure that land use decisions along Jefferson County shorelines protect the shoreline environment, facilitate public access, recognize the needs of water-oriented activities and cooperate with regional plans for protection and management of shorelines. In areas of the County under the jurisdiction of the Shoreline Management Act (Chapter 90.58 RCW), activities which are water-oriented will be preferred over those activities which are not, all other factors being equal, consistent with the Shoreline Management Act and the land use designations, goals, and policies of this Comprehensive Plan. Refer to the Environment Element for primary information on environmental protection and hazard issues Refer to the Environment Element for primary information on shorelines and Shoreline Master Program Goals—see the “SMP Purpose & Goals” information box at EN-G-4 Also refer to the Natural Resource Element—Aquaculture LAND USE Jefferson County Comprehensive Plan 1–42 December 2018 ▶ Policy LU-P-7.6 Encourage small-scale marine trades activities, in Port Hadlock, Port Ludlow, Nordland, Brinnon, and Quilcene. ▶ Policy LU-P-7.7 Develop land use ordinances based on comprehensive watershed and salmon recovery plans for the conservation, protection, and management of surface and ground waters, floodplains and estuaries, in order to maintain water quality and quantity, provide potable water, and to restore and protect fish habitat. ▶ Policy LU-P-7.8 Continue to implement, periodically review, and update critical area regulations under the Jefferson County Critical Areas Ordinance (CAO) consistent with GMA requirements, including best available science. ▶ Policy LU-P-7.9 Continue to protect aquifer recharge areas from depletion of aquifer quantity or degradation of aquifer quality under the Critical Area Ordinance (CAO). Continue to periodically review and update CAO regulations relating to aquifer recharge, including best available science. ▶ Policy LU-P-7.10 Continue to protect flood hazard areas from development and uses that compromise the flow, storage, and buffering of flood water, normal channel functions, and fish and wildlife habitat, and minimize flood and river process risk to life and property under the Critical Area Ordinance (CAO). Continue to periodically review and update CAO regulations relating to flood hazards, including best available science. ▶ Policy LU-P-7.11 Continue to ensure that landslide, erosion, and seismic hazard areas are appropriately designated and that measures protecting public health and safety are implemented for hazardous areas under the Critical Areas Ordinance. Continue to periodically review and update CAO regulations relating to geologic hazard areas, including best available science. ▶ Policy LU-P-7.12 Continue to protect and enhance fish and wildlife habitat under the Critical Areas Ordinance (CAO). Continue to periodically review and update CAO regulations relating to fish and wildlife habitat, including best available science. ▶ Policy LU-P-7.13 Continue to protect existing wetland area and functions, while encouraging wetland enhancement and restoration under the Critical Areas Ordinance (CAO). Continue to periodically review and update CAO regulations relating to wetlands, including best available science. Brinnon, Carolyn Gallaway Refer also to the Environment Element LAND USE Jefferson County Comprehensive Plan 1–43 December 2018 Drainage, Flooding, Stormwater Management, & Polluted Discharges Goal LU-G-8 Continue to address stormwater management and drainage issues with private property owners and resource agencies to protect shellfish beds, fish habitat and other natural resources and to reduce nonpoint sources of pollution. ▶ Policy LU-P-8.1 Encourage increased coordination between stormwater requirements of Forest Practices and Jefferson County stormwater requirements to reduce potential impacts to off-site residential development, and encourage the preservation of natural drainage systems. ▶ Policy LU-P-8.2 As a condition of project approval, require operation and maintenance agreements for all stormwater management facilities as a means of ensuring long-term compliance with the stormwater management standards of the Jefferson County Unified Development Code. ▶ Policy LU-P-8.3 As appropriate funds, funding sources and staff resources become available, develop and implement an operation and maintenance program for public and private stormwater control facilities. Ensure that the program includes provisions for ongoing monitoring and inspection of stormwater facilities, as well as effective compliance and enforcement measures. ▶ Policy LU-P-8.4 Consider adopting stormwater control facility charges (as authorized by RCW 36.89.080) in order to provide an adequate funding source for stormwater facility development, operation and maintenance, and for public education, water quality monitoring, stream gauges and enforcement. ▶ Policy LU-P-8.5 Storm water management plans should minimize adverse effects of floods on existing and future development and protect the natural conditions and functions of the flood plain. LAND USE Jefferson County Comprehensive Plan 1–44 December 2018 Flood Hazards Goal LU-G-9 Protect life and property from flood hazards and retain the flood storage capacity of rivers and streams. ▶ Policy LU-P-9.1 Periodically review, and if necessary, update the Jefferson County Flood Damage Prevention Ordinance to reflect such things as climate change, and changes in federal, state and local legislation, including Jefferson County-City of Port Townsend Natural Hazards Mitigation Plan adopted in 2004. ▶ Policy LU-P-9.2 Encourage community-based flood hazard management planning through participation in the National Flood Insurance Program’s “Community Rating System” (CRS). ▶ Policy LU-P-9.3 Collaborate with the Federal Emergency Management Agency (FEMA) as a Cooperating Technical Community and enter into Mapping Activity Agreements in order to update and maintain accurate flood hazard area data and maps. Groundwater Goal LU-G-10 Ensure a sustainable and safe water supply for residential, economic, and environmental needs that rely on conservation and other current technologies, while incorporating the most current climate projections into supply planning. ▶ Policy LU-P-10.1 Work cooperatively with water supply purveyors, public utility districts, and other experts at federal, state, local, tribal governments, including private non-profit organizations to preserve and protect existing water supplies while addressing future water supply needs. Such measures may utilize alternative water sources that are compatible with environmental protection. Goal LU-G-11 Protect the quality and quantity of surface, ground, and marine water resources through locally implemented shoreline, critical areas, and other related environmental programs. Refer also to the Environment Element LAND USE Jefferson County Comprehensive Plan 1–45 December 2018 ▶ Policy LU-P-11.1 Ensure that County water quality program are designed to complement related programs developed and implemented by other local as well as state and federal agencies. For ease of administration and enforcement, reference related programs implemented by other agencies within relevant county plans and regulations. ▶ Policy LU-P-11.2 Preserve the environmental functions of surface and ground water resources by retaining native vegetation and open spaces where feasible and by requiring mitigation measures for land use activities that may adversely impact surface and ground water. ▶ Policy LU-P-11.3 Work with the Department of Ecology and other agencies to minimize salt water intrusion, to evaluate ground water resources that have been damaged either by salt water intrusion or other contamination, and to identify technically and financially feasible measures for remediation of adverse impacts. ▶ Policy LU-P-11.4 Promote best management practices and voluntary open space conservation to protect critical areas in land use regulations related to septic systems, forest management, agricultural practices, industry, and other development. Goal LU-G-12 Cooperatively manage, protect, enhance, and conserve water resources through a comprehensive watershed management program that is integrated with recovery plans for listed species. ▶ Policy LU-P-12.1 Take an active role in implementing watershed plans for Water Resource Inventory Area (WRIA) 16, 17, and 20, as funding allows. ▶ Policy LU-P-12.2 Participate in collaborative watershed, shoreline, and salmon habitat conservation planning processes with state, federal, and tribal governments, including local stakeholders. LAND USE Jefferson County Comprehensive Plan 1–46 December 2018 Legal Nonconforming Uses A legal nonconforming use or structure is one that conformed to all applicable codes in effect on the date of its creation, but no longer complies due to subsequent changes in the code or comprehensive plan. Goal LU-G-13 Allow the continued existence and economic viability of legally established land uses which have now become nonconforming. ▶ Policy LU-P-13.1 Allow existing commercial and industrial uses that become nonconforming to continue and to expand within limits as defined in JCC 18.20.260, including the right to continue and not be subject to nuisance claims if operating in compliance with all County regulations, to be able to change to a different non-conforming use of equal or lesser intensity, and be able to be sold within a reasonable amount of time without jeopardizing the continuation of the use or activity. ▶ Policy LU-P-13.2 Allow existing commercial and industrial uses to expand or be replaced in Rural Residential areas provided that they do not require additional urban levels of government service and they do not impose uncompensated additional costs to the taxpayers of Jefferson County for the provision of infrastructure, its replacement or improvement. Allow expansion or replacement, provided they do not conflict with natural resource industries or surrounding rural uses. Also allow expansion or replacement provided it results in no further adverse environmental or neighborhood impacts, unless mitigated. ▶ Policy LU-P-13.3 Prohibit businesses that do not meet the above criteria from expanding or rebuilding if destroyed. ▶ Policy LU-P-13.4 Allow a legal existing nonconforming structure damaged or destroyed by fire, earthquake, explosion, wind, flood, or other calamity to be completely restored or reconstructed if all the applicable criteria are met and if provisions of Jefferson County Code are met. ▶ Policy LU-P-13.5 Allow a legal existing nonconforming use to change to a conforming use allowed within the zone classification in which the use is located. LAND USE Jefferson County Comprehensive Plan 1–47 December 2018 ▶ Policy LU-P-13.6 Process all proposals to change the use of a legal existing nonconforming use to a different non-conforming use in accordance with a public hearing process to ensure notification of adjacent property owners. ▶ Policy LU-P-13.7 Apply legal existing nonconforming use status only to businesses which were established prior to the adoption of the Comprehensive Plan as legal commercial establishments. This policy does not apply to Home Businesses and Cottage Industries. Permit Processing Goal LU-G-14 Ensure responsive, fair, and efficient permit processing. ▶ Policy LU-P-14.1 Develop and maintain implementing regulations and internal policies that ensure that development applications are processed in a timely, fair, and predictable manner. ▶ Policy LU-P-14.2 Ensure that permit review and requests for additional information are fair, consistent and balanced with the needs of the applicant and the public interest at large. ▶ Policy LU-P-14.3 Implement and maintain a land use and building permit enforcement program that encourages voluntary compliance as the first course of action, but is protective of the community’s life, safety, and environmental health. LAND USE Jefferson County Comprehensive Plan 1–48 December 2018 1.2 RURAL Rural Character Rural counties, as defined by the State of Washington, are “…a county with a population density of less than 100 persons per square mile or a county smaller than two hundred twenty-five square miles” (RCW 82.14.370(5)). Based on this definition and OFM population estimates from April 1, 2017, Jefferson County is a rural county.2 The GMA requires that the County “include measures that apply to rural development and protect the rural character of the area as established by the County.” These measures must be used to control rural development, assure visual compatibility of rural development with surrounding areas, reduce sprawl, protect critical areas and surface and groundwater water resources, and protect against conflict with the use of agricultural, forest, and mineral resource lands (RCW 36.70A.070(b)). The GMA defines rural character as follows: "Rural character" refers to the patterns of land use and development established by a county in the rural element of its comprehensive plan: (a) In which open space, the natural landscape, and vegetation predominate over the built environment; (b) That foster traditional rural lifestyles, rural-based economies, and opportunities to both live and work in rural areas; (c) That provide visual landscapes that are traditionally found in rural areas and communities; (d) That are compatible with the use of the land by wildlife and for fish and wildlife habitat; (e) That reduce the inappropriate conversion of undeveloped land into sprawling, low-density development; (f) That generally do not require the extension of urban governmental services; and (g) That are consistent with the protection of natural surface water flows and groundwater and surface water recharge and discharge areas RCW 36.70A.030(16). 2 As of April 1, 2017, Jefferson County has a population density of 17.39 persons per square mile (OFM, 2017). LAND USE Jefferson County Comprehensive Plan 1–49 December 2018 Additional principles that define Jefferson County’s rural character include the following (elements of the GMA definition for rural character supported by each principle are shown in parenthesis): ▶ Ensure that the County’s quality of life is preserved as it is enhanced. (all) ▶ Protect and conserve the County’s agricultural and forest working lands, shoreline and mountain vistas, visual and forest corridors, night sky, and natural ecosystems. (a, c, d) ▶ Encourage development that blends with the County’s natural setting. (a, c) ▶ Promote low-density residential development that is consistent with the historical pattern of growth, prevents a new pattern of sprawling development, and offers a variety of residential densities. (e) ▶ Promote economic development that supports place-based jobs, supports renewable resources, supports local healthy food and local job and housing choices for residents and the local workforce. (b, d) ▶ Encourage and provide incentives for businesses to create local “family wage” employment opportunities, and for modern economic opportunities—including home-based business and cottage industries—compatible with surrounding uses. (b) ▶ Provide efficient delivery of rural public services which minimize the need for additional infrastructure. (f) ▶ Protect and conserve the environment, ecologically sensitive areas, natural surface water and recharge areas, and preclude development and land uses which are incompatible with critical areas. (d, g) The land use designations and the goals and policies of this element have been developed to meet these criteria. Goals and policies of other elements of the Comprehensive Plan have been evaluated for consistency with the protection of rural character as defined above, and by the other factors contributing to local “rural character” as provided under the full text of the amendment. LAND USE Jefferson County Comprehensive Plan 1–50 December 2018 Limited Areas of More Intensive Rural Development Rural commercial and industrial lands in Jefferson County are designated using criteria in the GMA at RCW 36.70A.070(5)(d), which establishes the criteria by which limited areas of more intensive rural development (LAMIRDs) can be designated by local jurisdictions outside of urban areas. GMA includes LAMIRDs for three types of development patterns in rural areas (WAC 365-196-425(6)): ▶ Type 1 LAMIRDs: Isolated areas of existing more intense development. Within these areas, rural development consists of infill, development, or redevelopment of existing areas. These areas may include a variety of uses including commercial, industrial, residential, or mixed- use areas. These may be also characterized as shoreline development, villages, hamlets, rural activity centers, or crossroads developments. ▶ Type 2 LAMIRDs: Small-scale recreational uses. Counties may allow small-scale tourist or recreational uses in rural areas. Small-scale recreational or tourist uses rely on a rural location and setting and need not be principally designed to serve the existing and projected rural population. ▶ Type 3 LAMIRDs: Small-scale businesses and cottage industries. Counties may allow isolated small-scale businesses and cottage industries that are not principally designed to serve the existing and projected rural population and nonresidential uses, but do provide job opportunities for rural residents, through the intensification of development on existing lots or on undeveloped sites. Counties making such designations must adopt measures to minimize and contain the existing areas or uses of more intensive rural development. In Jefferson County, rural commercial areas include Rural Village Centers, three types of Rural Commercial Crossroads, and Rural industrial areas. Rural Centers, Crossroads, & MPRs Exhibit 1-18 shows the location of all designated rural commercial areas and master planned resorts in Jefferson County. A detailed discussion of the types of rural commercial areas and master planned resorts, as well as a description and map of each individual area, follows. As shown in Exhibit 1-1, Jefferson County predominantly consists of resource lands, with sparsely distributed communities settled many decades ago and serving as focal points including Chimacum, Quilcene, Brinnon, Gardiner, and others. These communities are distant from urban services and limited in their ability to grow or change due to limitations on infrastructure such as wastewater treatment and some limitations on growth under GMA’s rural policy framework. As described in the Housing and Economic Development Elements, Jefferson County has a critical need for safe and affordable housing, accessible health and human services, supportive infrastructure, and local jobs. Urban densities and job growth are planned for a majority of the County’s growth through 2038 in Port Townsend and Port Hadlock/Irondale UGAs. Urban housing and job options in these locations cannot solely meet the needs for housing options and services in other corners of the county that are experiencing housing cost burdens, lack of job opportunities, and in some cases failing septic systems, endangered water supplies and low health outcomes. Jefferson County seeks legislative and rule adjustments to GMA Rural Element provisions for Limited Areas of More Intensive Rural Development (LAMIRDs) to more fully realize the potential for its historic communities to serve as complete compact communities and rural employment centers (small-scale services, small businesses that support resource-based industries, etc.). Jefferson County LAMIRDs LAND USE Jefferson County Comprehensive Plan 1–51 December 2018 EXHIBIT 1-18 Location of Rural Commercial Areas & Master Planned Resorts Source: Jefferson County Community Development, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–52 December 2018 Rural Commercial Areas: Centers & Crossroads Rural Village Centers Rural Village Centers are established, historically settled areas with commercial uses that address most of the essential needs of the rural population, supply a large variety of goods and day-to-day services, and provide a broad range of professional and social services. The designated Rural Village Centers contain mixed residential and commercial uses and are designated for residential as well as commercial uses according to historic patterns of mixed development. Rural Village Centers are intended to provide for a mixture of commercial, residential, and community/public services uses. Infill allowed in Rural Village Centers considers affordable housing goals through limited multi-family (duplexes, triplexes) and assisted living/special needs housing, as well as by preserving the existing housing supply (see Housing Element). In addition to residential and commercial uses, land for community clubs, churches, public facilities, and social services are necessary to meet projected population growth and to preserve community identity. There are two designated Rural Village Centers in Jefferson County: Brinnon and Quilcene. The Comprehensive Plan identifies policies in Goal LU-G-21 that help guide development of any new Rural Village Center designation. LAND USE Jefferson County Comprehensive Plan 1–53 December 2018 BRINNON Rural Village Center Carolyn Galloway Source: Jefferson County Community Development, BERK, 2018. Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Total Area: 66.1 acres Undeveloped: 18.8 acres (29%) Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–54 December 2018 Carolyn Galloway The historic community of Brinnon is located on U.S. Highway 101 at the mouth of the Dosewallips River. The traditional community boundaries are the river on the south, the steep valley wall to the north, and Hood Canal on the east. The designated core area consists of mixed commercial and residential uses. Existing uses—such as a nursery and a mixed commercial/residential short plat with an existing mini- storage and a new post office—have been included in the RVC, which was modified through adoption of the Brinnon Subarea Plan in 2002. The boundary allows for areas of infill in Brinnon based on the distressed economy of the area because of decreased employment in logging and fishing. The seasonal increase in the visitor population is expected to increase in the future because of ongoing regional growth in Puget Sound. Limited areas of infill in the Brinnon Rural Village Center will provide employment opportunities for local residents in the transition to a more diversified economy as Brinnon attempts to promote small-scale tourist and recreation-oriented businesses based on a location on Highway 101 adjacent to the Olympic National Park. A high priority for the community is a facility that allows elderly residents to stay in the community rather than moving away from family and friends to facilities elsewhere. Areas of limited infill are also provided in support of the community goal of an extended care or assisted living facility. Although such facilities would be permitted conditionally in residential areas, the community prefers they would be located in the Rural Village Center. Community Priorities LAND USE Jefferson County Comprehensive Plan 1–55 December 2018 QUILCENE Rural Village Center Joel Peterson Source: Jefferson County Community Development, BERK, 2018. Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Total Area: 50.6 acres Undeveloped: 12.4 acres (24%) Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–56 December 2018 Quilcene Fair & Parade, North Hood Canal Chamber of Commerce Similar to Brinnon, the historic community of Quilcene is distinct from the Port Hadlock and Port Ludlow communities. Quilcene’s location at the gateway to Olympic National Park on Hood Canal and Highway 101 provides a unique opportunity to serve visitors and seasonal residents building a diversified economic base. Areas of commercial infill in Quilcene are intended to provide new living-wage employment opportunities. Commercial development can take advantage of a high volume of visitors because of the community’s location on both Highway 101 and Center Valley Road. The amount of potential commercial infill development depends on the availability of public services, such as the water system and fire flow. Quilcene has a public water system with the assistance of the County Health Department and the JPUD. The Washington State Department of Ecology approved a water rights transfer in 2004 from the National Forest Service to the JPUD with the effect of providing public water for Quilcene. Jefferson County and its partners have taken efforts to prevent sprawl, restore habitat, and preserve environmentally sensitive areas and farmlands in Quilcene. This has been accomplished through restoration efforts, land acquisition, and habitat restoration projects. These efforts along with Quilcene’s natural growth barriers, such as Dabob Bay and the Olympic National Park, work to prevent sprawl in this area. Community concerns in Quilcene indicate a priority need for areas of infill in the commercial core that could allow for enhanced existing and new economic development and residential opportunities. Such development is currently, constrained by the cost of utility and infrastructure upgrades as well as existing LAMIRD boundaries. For example, modern wastewater treatment options, such as modular plants or connections with existing plants are considered an urban level of service and thus prohibited in LAMIRDs. This limits wastewater improvements that would support job growth, existing commercial development, and improve existing housing stock. Community Priorities LAND USE Jefferson County Comprehensive Plan 1–57 December 2018 Rural Commercial Crossroads Rural commercial crossroads are distinct from rural village centers in that they provide access to a limited range of services for residential and non-residential uses. Three types of rural commercial designations are further defined based on scale and intensity of use. Individual commercial areas are discussed regarding the GMA criteria and local circumstances in the sections that follow. Maps of commercial lands and boundaries are provided in this element and in digital format on the County’s website. This Comprehensive Plan identifies policies in Goal LU-G-22 that help guide development of any new rural commercial crossroads designation, including policies specific to general crossroads, neighborhood/visitor crossroads, and convenience crossroads. General Crossroads General crossroads (GC) are existing commercial areas that provide a broad range of commercial goods and services for a higher population base in the northeastern part of Jefferson County. These areas provide several regional uses, as well as multiple uses at community levels of service. Permitted uses in these areas include all those allowed in convenience and neighborhood/visitor crossroads (see below), as well as building materials, hardware and farm equipment, auto repair with subordinate auto sales, appliance sales and repair, clothing and accessories, mini-storage, Recreational Vehicle (RV) repair and sales, and an expanded range of specialty stores, professional services, and public and social service offices. Performance standards for general commercial uses shall allow for sizes and scales of new development larger than those for neighborhood/visitor crossroads but be more limiting than those for rural village centers. There is one general crossroad designation in Jefferson County: SR 19/20. The Comprehensive Plan identifies policies in Goal LU-G-22 that help guide development of any new general crossroads designation. Neighborhood/Visitor Crossroads Neighborhood/visitor crossroads (NC) are designated based on multiple commercial uses that serve the nearby rural neighborhood and the commuting or traveling public with a limited range of basic goods and services. Permitted uses include all those allowed in convenience crossroads (see below), as well as restaurant, tavern/bar, auto parts and repair, farm supply and equipment, and a limited range of specialty stores and professional services. LAND USE Jefferson County Comprehensive Plan 1–58 December 2018 Performance standards for new development shall be consistent with the rural character, size, and scale of the existing commercial area and the surrounding neighborhood. There are five neighborhood/visitor crossroad designations in Jefferson County: Mats Mats, Discovery Bay, Gardiner, Chimacum, and Four Corners. The Comprehensive Plan identifies policies in Goal LU-G-22 that help guide development of any new general neighborhood/visitor crossroads designation. Convenience Crossroads Convenience crossroads (CC) typically consist of a single commercial property at a historical crossroads which provides basic goods and commodities for the local population and the commuting or traveling public. There are four convenience crossroad designations in Jefferson County: Wawa Point, Beaver Valley, and Nordland, are existing commercial properties that include a convenience general store with associated uses such as gas station, espresso, or café/deli. SR 104/Shine Road has a single commercial building and accessory structures, The Comprehensive Plan identifies policies in Goal LU-G-22 that help guide development of any new convenience crossroads designation. LAND USE Jefferson County Comprehensive Plan 1–59 December 2018 Source: Jefferson County Community Development, BERK, 2018. SR 19/20 General Crossroad Under the criteria for commercial crossroads boundaries, this area has been downsized considerably from 1994 zoning designations. Existing development on one side of State Route 19 was recognized and contained, consisting of a nursery/garden supply store, a former auto dealership—currently commercial self-moving rentals and supplies— under a Binding Commercial Site Plan. Commercial uses excluded from the crossroad include an auto repair business adjacent to residential uses and a drive-in movie theater. These uses have been excluded to limit access near an intersection with high traffic volumes and, prior to the installation of a traffic light, a relatively high incidence of accidents. Total Area: 26.5 acres Undeveloped: 8.8 acres (33%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–60 December 2018 Source: Jefferson County Community Development, BERK, 2018. MATS MATS Neighborhood/Visitor Crossroad The Mats Mats General Store serves local neighborhood residents as well as visitors to the Oak Bay and Mats Mats Bay shoreline areas. The logical boundary takes in additional uses including a photography studio, a vacant former medical clinic, and a chiropractor’s office. The southern boundary is located along a stream drainage. Total Area: 5.7 acres Undeveloped: 1.2 acres (21%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–61 December 2018 Source: Jefferson County Community Development, BERK, 2018. DISCOVERY BAY Neighborhood/Visitor Crossroad The Discovery Bay community was historically a thriving economic area on the railroad line, with a sawmill and a cannery. The historic community declined in population as these uses ended, but the commercial area has continued due to its location at the junction of State Route 20 and U.S. Highway 101. It serves nearby residents as well as visitors and commuters. Criteria for logical boundaries have been applied with special consideration of critical areas and traffic issues. The logical boundary to contain this commercial area allows for limited infill but protects critical fish and wildlife habitat in the Salmon and Snow Creek estuaries. Areas of infill are also limited over estuarine lands based on seismic, frequently flooded, and wetlands critical areas. Existing uses have been recognized, and limited areas of infill have been allowed farther from critical areas. Several uses on the western boundary were excluded to address traffic concerns on Highway 101 and to prevent linear commercial sprawl, as development is constrained by the estuary on one side and steep slopes on the other. Total Area: 19.9 acres Undeveloped: 1.6 acres (8%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–62 December 2018 Source: Jefferson County Community Development, BERK, 2018. GARDINER Neighborhood/Visitor Crossroad The Gardiner commercial area is located on U.S. Highway 101, and historically served the community with a grocery and gas station that closed during the 1980s. Current uses include a bird feeding supplies store, U-fish pond, an antique store, espresso, and a fishing tackle store. The logical boundary around the triangular commercial area has been drawn using Highway 101, the Old Gardiner Road, and the Gardiner Beach Road. A limited amount of infill is allowed to accommodate the community’s desire for future development of uses, such as a convenience store. Total Area: 5.3 acres Undeveloped: 0.2 acres (3%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–63 December 2018 Source: Jefferson County Community Development, BERK, 2018. CHIMACUM Neighborhood/Visitor Crossroad Chimacum is a historic commercial area that includes a post office and is located adjacent to the public school, therefore serving as a focal point for the local community. Existing uses—such as a farm equipment and supply store—serve nearby agricultural activities in the Chimacum Valley, while other uses—such as mini-storage—provide a community level of service. The logical boundary recognizes and contains existing commercial uses and provides for limited infill on a parcel along Chimacum Road. Total Area: 40.0 acres Undeveloped: 5.5 acres (14%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–64 December 2018 Source: Jefferson County Community Development, BERK, 2018. FOUR CORNERS Neighborhood/Visitor Crossroad The Four Corners community, which historically served the nearby area with a sawmill, contains a convenience store and gas pump, a construction yard, an auto recycling yard, an UPS distribution office, and a mini-storage rental. The boundary of this commercial area recognizes and contains the existing uses and allows for limited infill development only through subdivision or redevelopment of existing parcels, all of which are developed. Total Area: 26.5 acres Undeveloped: 0 acres (0%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–65 December 2018 Source: Jefferson County Community Development, BERK, 2018. WAWA POINT Convenience Crossroad The hardware/general store and accessory building at Wawa Point is a designated convenience crossroad. The logical boundary includes limited additional area for possible expansion and area to meet parking requirements. The commercial area designated within the large parcel of 24.3 acres on which the store is located is limited to 4.3 acres. Safe access from Highway 101 is provided by a frontage road. During the Brinnon subarea planning process a Small-Scale Recreation and Tourist Overlay District (see Overlay Districts above) was created at Wawa Point for four lots comprising 18.7 acres. The SRT Overlay recognizes the historic use of the area for recreation and allows low- intensity commercial activities, such as campgrounds, RV parks, nursery or public gardens, Scuba diving facilities, and a farmer’s market. Total Area: 4.3 acres Undeveloped: 0 acres (0%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–66 December 2018 Source: Jefferson County Community Development, BERK, 2018. BEAVER VALLEY Convenience Crossroad The historic Beaver Valley Store functions as a community center and “bulletin board” for nearby residents in the Beaver Valley area. The store is home to the retail operation for Sugar Hill Farms and sells locally- produced candies and desserts. Located on State Route 19 between the Hood Canal Bridge and northeastern Jefferson County, the store also serves commuters and visitors. Total Area: 3.1 acres Undeveloped: 0 acres (0%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–67 December 2018 Source: Jefferson County Community Development, BERK, 2018. NORDLAND Convenience Crossroad The Nordland store is located on State Route 116 on Marrowstone Island. The general store has a post office and kayak rental and provides the only basic goods and services available for the island community. It is a historic enterprise which serves as a social and community center. Total Area: 1.0 acres Undeveloped: 0 acres (0%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–68 December 2018 Source: Jefferson County Community Development, BERK, 2018. SR 104/SHINE ROAD Convenience Crossroad The SR 104/Shine Road location was approved as a Limited Area of More Intensive Rural Development (LAMIRD) through the 2008 Comprehensive Plan Amendment process. The half-acre property has been developed for commercial use since approximately 1977. Total Area: 0.4 acres Undeveloped: 0 acres (0%) Undeveloped parcels are those with a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. Infill Opportunity LAND USE Jefferson County Comprehensive Plan 1–69 December 2018 Master Planned Resorts Master planned resorts (MPRs) are large-scale, self-contained developments that are based on an integrated, conceptual master plan, yet are typically developed in stages depending on market demand or other factors. Recent amendments to the GMA allow jurisdictions to plan master planned resorts as Limited Areas of More Intensive Rural Development which may constitute urban levels of growth outside of Urban Growth Areas as limited by RCW 36.70A.360. Jefferson County currently contains two master planned resorts, Port Ludlow and Pleasant Harbor. The Comprehensive Plan contains policies in Goal LU-G-23 that help guide development at Port Ludlow. Many of Port Ludlow’s goals and policies were drafted from issues identified by community residents who, through the establishment of community planning groups, articulated their desired plan for Port Ludlow’s future development. The goals and policies identified by the community and included in Jefferson County’s Comprehensive Plan focus on maintaining and enhancing Port Ludlow’s recreational and community amenities and preserving the community’s lifestyle. Siting of New Master Planned Resorts The GMA also authorizes counties to allow for the development of new MPRs in accordance with RCW 36.70A.360. According to the statute, counties may permit new master planned resorts “in a setting of significant natural amenities, with primary focus on destination resort facilities consisting of short-term visitor accommodations associated with a range of developed on-site indoor or outdoor recreational facilities”. The MPR designation provides an opportunity to encourage economic development that takes advantage of the significant rural recreational resources and scenic amenities of Jefferson County, particularly in the more remote areas of the County where the local economy’s dependence on natural resource-based industries has been negatively impacted, or where other economic opportunities are more limited. For example, in the southern and western portions of Jefferson County, many of the existing communities and rural residential areas have experienced a downturn in resource-based economic activities. These areas are gradually transitioning from primarily a natural resource- based local economy to one that is also dependent on actively engaged in the tourism industry. LAND USE Jefferson County Comprehensive Plan 1–70 December 2018 The economic reasons for siting of a MPR, however, must also be carefully balanced against the potential for significant adverse environmental effects from such a development. Any proposal must be carefully planned and regulated to prevent sprawl development outside of the master planned development that would negatively impact the scenic and often environmentally sensitive setting. The Comprehensive Plan identifies policies in Goal LU-G-23 that help guide development of any new MPR designation. The goal and policies focus on protecting the rural character and natural environment of areas potentially impacted by development of an MPR, ensuring adequate provision of public facilities and services, and preventing the spread of low density sprawl. LAND USE Jefferson County Comprehensive Plan 1–71 December 2018 Source: Jefferson County Community Development, BERK, 2018. PORT LUDLOW Master Planned Resort The Master Planned Resort of Port Ludlow has a large residential community that is served by a Village Commercial Center. The designated commercial area is consistent with the 1993 programmatic EIS and has been agreed to by community planning groups. Land use activities and performance standards will be regulated by the County but may be limited to a somewhat greater degree by the Master Planned Resort’s internal community codes, covenants, and restrictions. Port Ludlow Resort Source: The Chamber of Jefferson County LAND USE Jefferson County Comprehensive Plan 1–72 December 2018 Source: Jefferson County, BERK, 2018. PLEASANT HARBOR Master Planned Resort The remote rural areas of south Jefferson County offer significant recreational opportunities and scenic amenities including access to the Olympic National Park, the Olympic National Forest, and the Hood Canal. Popular recreational activities in the area include boating, fishing, shellfish gathering, hiking, camping, birdwatching, and historical sites. In the peak summer months, it is estimated that as many as 500,000 tourist visitors travel through the North Olympic Peninsula. However, the lack of private tourist accommodations and services in the south County area often means that potential economic benefit from tourism spending is lost to other, more developed, areas of the Peninsula. Pleasant Harbor Marina Source: Pleasant Harbor Marina LAND USE Jefferson County Comprehensive Plan 1–73 December 2018 Evaluation of Rural Commercial Boundaries Criteria for Determining Logical Boundaries of Rural Commercial Areas The designation of Jefferson County’s rural commercial areas was guided by the GMA criteria as applied to local circumstances. Pursuant to RCW 36.70A.070(5), measures used by Jefferson County to protect the rural character of the County must be used to control rural development, assure visual compatibility of rural development with surrounding areas, reduce sprawl, protect critical areas and water resources, and protect against conflict with the use of agricultural, forest, and mineral resource lands. To be consistent with the requirements of the GMA, designated LAMIRDs must also have clearly identifiable and logical outer boundaries delineated predominately by the built environment and/or physical boundaries, such as bodies of water, streets and highways, and land forms and contours. Although new development and redevelopment is allowed, development cannot extend beyond the established boundary and contribute to a new pattern of low density sprawl. Public facilities and services provided to LAMIRDs must not permit low density sprawl. In addition, the boundaries were evaluated based on local considerations that could affect location or require the application of special conditions. The following local considerations were determined in response to extensive public comment heard by County decision- makers during the planning and review process: ▶ Regional transportation concerns, traffic volumes, access, and safety. ▶ Proximity to incompatible uses. ▶ Partial designation of large parcels that are not fully developed for existing uses, to prevent sprawl. ▶ Home businesses/cottage industries should not be used to determine boundaries. ▶ Provide employment opportunities for local residents, in particular in areas of insufficient economic growth or economic decline. ▶ Support community planning goals and rural community cohesion. ▶ Provide for multi-family and special needs housing opportunities. ▶ Avoid creating new non-conforming uses. LAND USE Jefferson County Comprehensive Plan 1–74 December 2018 Application of Criteria to Designation of Rural Commercial Boundaries The process for determining rural commercial boundaries in Jefferson County included public comment and an internal County review to ensure consistency with the GMA criteria, Comprehensive Plan goals and policies, and local considerations discussed above. Historical commercial areas that serve as a focal point for community economic and social activities were recognized for the multiple functions they provide to residents. A number of these areas also serve the visiting public, a seasonal population influx that is increasing during other times of the year. Final Comprehensive Plan boundaries for rural commercial areas resulted in a substantial reduction in the amount of commercial land available for development in rural Jefferson County from 1994 zoning. This reduction in commercial land resulted from the application of the GMA criteria for rural lands, including those established in 1997 legislative amendments (RCW 36.70A.070(5)(d)). Logical boundaries were drawn around existing commercial uses to contain and limit new development to existing areas of more intensive development. Current Trends & Opportunity to Serve Community Needs Exhibit 1-19 provides total acreage within each rural commercial area, as well as net acreage of land available for infill in undeveloped parcels based on the County Assessor’s land use codes. The net undeveloped acreage—without factoring in roads, water and right of ways—is followed by the percent that the total undeveloped land comprises of total land for each commercial area. LAND USE Jefferson County Comprehensive Plan 1–75 December 2018 EXHIBIT 1-19 Rural Commercial Area Total Acreage & Infill Acreage Rural Village Centers Total Area Undeveloped* Brinnon 66.1 acres 18.8 acres (29%) Quilcene 50.6 acres 12.4 acres (24%) Total Rural Village Centers 116.7 acres 31.2 acres (27%) Rural Crossroads Total Area Undeveloped* General Crossroads SR 19/20 26.5 acres 8.8 acres (33%) Neighborhood/Visitor Crossroads Mats Mats 5.7 acres 1.2 acres (21%) Discovery Bay 19.9 acres 1.6 acres (8%) Gardiner 5.3 acres 0.2 acres (3%) Chimacum 40.0 acres 5.5 acres (14%) Four Corners 26.5 acres 0.0 acres (0%) Convenience Crossroads Wawa Point 4.3 acres 0.0 acres (0%) Beaver Valley 3.1 acres 0.0 acres (0%) Nordland 1.0 acres 0.0 acres (0%) SR 104/Shine Road 0.4 acres 0.0 acres (0%) Total Rural Crossroads 132.8 acres 17.3 acres (13%) Total Rural Commercial Areas 249.5 acres 48.5 acres (19%) Source: Jefferson County Community Development, BERK, 2018. * Undeveloped parcels are defined as parcels that have a land use code of 9100 (undeveloped and unused land area) in the Jefferson County Assessor’s database. The total designated rural village centers acreage of 116.7 acres contains 31.2 acres of undeveloped parcels available for infill, approximately 27% of the total. The total designated rural crossroads acreage of 132.8 acres contains 17.3 acres in undeveloped parcels available for infill, approximately 13% of the total. The number of uses that may develop in these infill areas varies with the size and lot coverage of the use, as well as the requirement for septic systems, critical areas protection, buffering, access roads, and wells or water supply lines. In addition, the convenience/general stores at Wawa Point, Beaver Valley, and Nordland can expand the existing business under the criteria for a Convenience Crossroad but cannot subdivide for an additional commercial use. LAND USE Jefferson County Comprehensive Plan 1–76 December 2018 Of the above rural commercial crossroads, many are limited in infill opportunity. According to the William D. Ruckelshaus Center, regulatory limitations related to LAMIRDs stifle reasonable development and vitality in rural counties, and this topic may be further developed through the Road Map initiative (The William D. Ruckelshaus Center, 2017). Brinnon and Quilcene, for example, are distant from urban services yet limited in their ability to become robust, thriving, and self-sufficient communities because of GMA restrictions concerning infrastructure improvements. Modern wastewater treatments options, such as modular plants or connections with existing plants, are considered an urban level of service and are thus prohibited in LAMIRDs. Improvements to existing commercial development and housing stock are unlikely to occur if necessary infrastructure upgrades cannot take place. A lack of broadband internet capacity in rural areas further limits the reach and effectiveness of emergency response efforts and opportunities for job training, education, public health, and economic vitality; the Jefferson Public Utility District has a broadband initiative. Septic system, water supply, and critical areas issues can substantially reduce the amount of land area available for development on a property by 30-50%, depending on the size of the parcel. For example, a minimum of 12,500 square feet are necessary just to meet septic drainfield and reserve requirements. This results in approximately 15.6- 21.8 acres of undeveloped land available for commercial development in rural village centers (50-70% of the 31.2 undeveloped acres), and 8.7-12.1 acres of undeveloped land available for commercial use in rural commercial crossroads (50-70% of the 17.3 undeveloped acres). The designated logical boundaries thus limit the land available for infill development in existing rural village centers and rural commercial crossroads. The logical boundaries of commercial areas prevent development from expanding beyond existing developed areas. While areas of limited infill are provided within the designated built environment, a significant amount of undeveloped land was removed from commercial zoning status through implementation of the GMA in Jefferson County. There were 967 net acres zoned commercial in unincorporated Jefferson County in 1994. With adoption of the GMA-compliant Comprehensive Plan in 1998, that number was reduced 62% to 368 net acres zoned rural commercial. With adoption of a zoning map for the Irondale/Hadlock Urban Growth Area (UGA) in 2004, the effective percent reduction of commercial area from the 1994 zoning was reduced to 39%. It should be noted that while rural commercial crossroads are designated commercial lands, land within the boundaries of Rural Village Centers (RVCs) is designated as both commercial and residential land, as the existing uses are mixed to a degree that precludes separate designations within the boundaries. The commercial lands identified at LAND USE Jefferson County Comprehensive Plan 1–77 December 2018 Nesses’ Corner, Irondale Road, and the Port Hadlock RVC were re- designated Urban Commercial as a result of the Irondale/Hadlock UGA designation. Periodic Review of LAMIRDs & GMA Implementation Challenges in Rural Counties Overview The Growth Management Act (GMA) advises that counties should perform a periodic analysis of development occurring in rural areas to determine if patterns of rural development are protecting rural character and encouraging development in urban areas. Jefferson County is investigating potential revisions to our limited area of more intensive rural development (LAMIRD) evaluating how we can better meet our rural goals, maintain our rural character, and plan for economically and environmentally sustainable growth. The Comprehensive Plan is our written record of local circumstances, establishing patterns of rural densities and uses while harmonizing GMA planning goals. The Comprehensive Plan establishes a definition of our rural character to guide development of rural policies and implement development regulations. Jefferson County’s definition of rural character is inclusive of our working landscapes, rural economy, and protection of our natural resources, while balancing the need for housing, jobs, and services to care for and support our communities. Recognizing our past and planning for our future, Jefferson County has articulated our rural character throughout the Comprehensive Plan. Jefferson County’s past includes development intensities from World Wars I & II-era industries that were intensive in use and distribution. These uses were significantly more intensive than we experience today. Our communities are not remnants of a greater past, nor are they in a static development pattern as established July 1, 1990, but are communities adapting to local conditions and moving forward. Jefferson County is rich with natural and scenic areas. A part of the richness of our natural areas comes from providing our community—and the larger region—with ecosystem services such as clean air, clean water, and a high quality of life. This is a significant part of our rural economy. The County makes environmental protection a high priority in our planning and development. Seen as a resource to protect and a resource that has economic value, the County is interested to explore innovative concepts using our investments in conservation as an alternate way of delineating and containing development. See also sidebars in this Section 1.2—Rural See also the Environment Element, Challenges & Opportunities—Balancing Environmental Protection With Community Needs. LAND USE Jefferson County Comprehensive Plan 1–78 December 2018 Jefferson County proposes to investigate new opportunities in the following areas: Update LAMIRD Provisions for Outcomes that Reflect Current Local Circumstances, Rural Character, and Balancing of GMA Goals The GMA allows local jurisdictions to balance GMA goals while taking into consideration the jurisdiction’s local circumstances. Because local circumstances vary from county to county, in establishing patterns of rural densities and uses, a county may consider local circumstances when harmonizing the GMA planning goals. This process considers the uniqueness of a place’s geography, such as landscapes, transportation networks, economics, and distribution of resources. To address the uniqueness of our local circumstances and places, Jefferson County seeks flexibility to provide community services in our LAMIRDs and other local places. Review the Tightlined Logical Outer Boundaries of Our LAMIRDs GMA requires the County to adopt measures that contain or control development so that we do not experience inappropriate conversion of undeveloped land into sprawling, low-density development patterns. As a result of challenges to the County after the initial delineation of LAMIRDs, Logical Outer Boundaries (LOB) were tightlined to existing infrastructure, even to the point of crossing parcels and creating split- zoning. GMA limits LAMIRD development to infill and intensification within the outer boundary. An analysis needs to be undertaken to determine if the outer boundaries are too tightly drawn, or if a market factor for vacant land needs to be applied. In fact, ordinances implementing Jefferson County LAMIRDs include the finding that the planning work establishing the boundaries needs to continue, and boundaries need to be reviewed when resources allow. The County would likely benefit from legislative and rules changes to GMA better addressing flexibility for rural county development, while limiting development. Jefferson County’s existing development within its rural areas promotes GMA planning goals, such as reducing sprawl, protecting the environment, providing for open space and recreation, and maintained and enhancing natural resource-based industries. Explore Alternate Criteria for Establishing Logical Outer Boundaries To contain or control development, the GMA requires LOBs to be based on criteria that defines an existing area or existing use that was in existence on July 1, 1990 and includes a criterion limiting the boundary to infrastructure that existed on that date. Once a LOB has been adopted, counties may consider changes to the boundary in subsequent amendments, but must use the same criteria used when originally Refer to Exhibit 1-19, which shows that there is very little infill potential in our LAMIRDs LAND USE Jefferson County Comprehensive Plan 1–79 December 2018 designating the boundary. The current LOB delineation process freezes LAMIRD boundaries as of July 1, 1990. Rural counties characteristically have minimal infrastructure—because of low population density and a correspondingly reduced need, as well as a generally lower financial base to fund and finance infrastructure. Using infrastructure as the method to define LOB constrains the County’s ability to meet community needs in rural areas. Rural areas are resource rich. Jefferson County proposes to investigate alternative LAMIRD delineation, consistent with GMA, focusing on our rural and ecosystems investments, capacity for future investments, and limiting factors on growth. The Washington State Legislature recognizes the economic benefit of the natural resources, open space, and rural resources to the entire state of Washington. Jefferson County proposes investigating alternate ways of containing and controlling growth of LAMIRDs through LOBs bounded by land conservation easements, extinguishment of development rights, natural resources boundaries, and natural barriers to growth. Since GMA’s inception, the State of Washington Growth Management Hearings Board (Hearings Board) has interpreted the GMA and its rules to local jurisdictions’ comprehensive plans. Over the years, a body of law has developed, which appears to force counties to curtail innovation in rural area development, such as prescriptively establishing rural and urban densities and requiring tightlined LOBs in LAMIRDs. This imposes a difficult challenge when trying to meet affordable housing needs outside of designated urban growth areas. Some LAMIRDs, such as Chimacum, do not fit neatly within this urban rural dichotomy. This provides only two boxes, urban or rural for solutions to complex land use issues. Solutions may require more in-between areas to meet requirements, such as a greater focus on performance standards for some housing developments over a prescriptive residential density. Innovations to meet current housing crises is limited by GMA. If a county allows bonus densities in a rural cluster the resulting density after applying the bonus must be a rural density, which doesn’t yield enough bonus density to enable the types of housing developments that can meet the challenges of providing density for affordable housing, even within a rural context. Jefferson County proposes to investigate provisions for planned residential developments and investigate the feasibility of alternative performance standards that could potentially increase rural residential density above the current maximum rural density. Jefferson County is aware that these options require a legislative amendment to the GMA. LAND USE Jefferson County Comprehensive Plan 1–80 December 2018 Rural Economy Jefferson County’s rural economy has responded to economic conditions and market forces pivoting towards tourism, agricultural businesses, and small businesses. Our economy is similar to other rural economies, transitioning away from natural resource industries. Our rural economy needs infrastructure to support its economic activities and changes in modern infrastructure, such as the ability to scale wastewater management solutions to meet small community needs is evolving. Even though developments in infrastructure, such as small and innovative sanitary sewer systems may be able to support the overarching planning goals of GMA, while containing and controlling growth in rural areas, GMA generally precludes small and innovative sanitary sewer systems in rural areas as they are defined as urban levels of service. This ignores potential opportunities to provide modern, scaled treatment facilities to support a variety of community needs such as housing and economic development. Jefferson County is aware these rural infrastructure systems would require a legislative amendment to the GMA. GMA allows sanitary sewer infrastructure in rural areas if abates an environmental problem, does not induce sprawling development, and is affordable by the community that it serves. The application of this allowance is being investigated in the Brinnon Rural Village Center, adjacent to Dosewallips State park’s wastewater treatment facility. The County is working to address requirements of GMA, while allowing limited service by the Dosewallips State park’s system. Currently, Brinnon is served entirely by septic systems. These septic systems have current and potential problems and some systems are located within flood zones. In a 2002 amendment to the GMA, the Washington State Legislature found that GMA is intended to recognize the importance of rural lands and rural character to Washington's economy, and find that rural lands and rural-based economies enhance the economic desirability of the State of Washington. To retain and enhance the job base in rural areas, rural counties must have flexibility to create opportunities for business development and to retain existing businesses and allow them to expand. The legislature’s findings close with: “[T]he legislature finds that in defining its rural element under RCW 36.70A.070(5), a county should foster land use patterns and develop a local vision of rural character that will: [h]elp preserve rural-based economies and traditional rural lifestyles; encourage the economic prosperity of rural residents; foster opportunities for small-scale, rural-based employment and Jefferson County LAND USE Jefferson County Comprehensive Plan 1–81 December 2018 self-employment; permit the operation of rural-based agricultural, commercial, recreational, and tourist businesses that are consistent with existing and planned land use patterns; be compatible with the use of the land by wildlife and for fish and wildlife habitat; foster the private stewardship of the land and preservation of open space; and enhance the rural sense of community and quality of life.” In summary, as Jefferson County reviews rural commercial areas, we explore ways to meet GMA’s fundamental purposes in flexible and meaningful manners. For example, flexibility in designating LAMIRDs, while meeting the purpose and intent of GMA would assist the County with contained and controlled development, enhanced rural economies, additional housing, preservation of natural resources, enhanced open space and parks, and enhanced rural character. The legislative findings for GMA include the conservation and wise use of our lands, along with sharing economic development with communities experiencing insufficient economic growth. GMA should not be a barrier for rural counties, but a platform to encourage sustainable, coordinated, and controlled growth and economic development in accordance with the public’s interest. LAND USE Jefferson County Comprehensive Plan 1–82 December 2018 Rural Industrial Lands Rural land designated as rural industrial land in this Plan is based on existing industrial uses in areas previously zoned as industrial. Pursuant to RCW 36.70A.070(5)(d), counties may recognize areas of more intensive industrial development and contain them within logical boundaries to limit to infill development. All areas meet the following minimum criteria for designation of rural industrial land, as defined in WAC 365- 196-425: An area or use of more intensive industrial development in existence on July 1, 1990; and An area that is not located on designated natural resource lands. The industrial areas designated in 1998 resulted in a reduction in industrial acreage of 1994 zoning designations from a total of 928.3 acres to 616.9 acres, an overall reduction of 34%. The application of GMA criteria protected the economic viability of existing uses while it restricted industrial activities to existing areas. Rural industrial lands provide job opportunities for rural residents through redevelopment of existing rural industrial areas (see Limited Areas of More Intensive Rural Development above). Designated under this Plan are the following industrial zones: ▶ Port Townsend Paper Mill as Heavy Industrial (HI), ▶ Glen Cove as Light Industrial (LI) and Light Industrial/Commercial (LI/C), ▶ Center Valley as Light Industrial (LI), ▶ Eastview Industrial Plat and Quilcene Industrial Area as Light Industrial/Manufacturing (LI/M), ▶ Forest Resource-Based Industrial zones (RBI) at Gardiner and Western Jefferson County, and ▶ Jefferson County International Airport Non-Aviation-Related Light Industrial/Manufacturing (LI/M) Overlay. Exhibit 1-20 shows the location of all designated rural industrial areas in Jefferson County. A discussion and map of each rural industrial area follows. The Comprehensive Plan contains policies in Goal LU-G-24 and Goal LU- G-25 that help guide development of rural industrial land. Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–83 December 2018 EXHIBIT 1-20 Location of Rural Industrial Lands Source: Jefferson County Community Development, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–84 December 2018 Source: Jefferson County Community Development, BERK, 2018. PORT TOWNSEND PAPER MILL HEAVY INDUSTRIAL AREA Rural Industrial Area The Port Townsend Paper Mill has provided employment for several generations of Jefferson County residents. The mill property has been designated as heavy industrial (HI) for the mill and for activities ancillary to the mill. The property includes a water treatment lagoon and a port facility on Port Townsend Bay that are directly related to activities at the mill. The mill is recognized as a heavy industrial activity because it is a large-scale and intensive industrial activity that must meet extensive environmental permitting requirements under industrial standards for air quality, water quality, and wastewater treatment. LAND USE Jefferson County Comprehensive Plan 1–85 December 2018 Source: Jefferson County Community Development, BERK, 2018. GLEN COVE INDUSTRIAL AREA Rural Industrial Area Uses for the Light Industrial (LI) and Light Industrial/Commercial (LI/C) designations at Glen Cove include commercial and retail uses that are directly associated with the light industrial uses. Associated commercial and retail uses may include commodities and products, mechanical or electrical supplies, warehousing, and storage, or may provide support services to those who work in the industries, such as a small café. Allowing broader commercial uses at Glen Cove would require addressing concerns regarding pedestrian and traffic safety, infrastructure, and incompatible uses both visually and in terms of hazardous materials storage and use. Thus, the commercial designation for Glen Cove is restricted to uses which differ considerably from those in Rural Crossroads (NC, GC, & CC) and Rural Village Centers (RVC). LAND USE Jefferson County Comprehensive Plan 1–86 December 2018 Left: Glen Cove Industrial Park, Jefferson County, 2018. Right: Oblique aerial view of Glen Cove Industrial Park, Google Earth, 2018. Light industrial/commercial uses allowed at Glen Cove include but are not limited to: industrial parks, light manufacturing, construction yards, engine repair, metal fabrication or machining, plumbing shops and yards, printing and binding facilities (non-retail), research laboratories, excavating contractors, furniture manufacturing, software development, lumber yards, vehicle repair and restoration, warehousing and storage, boat building and repair, boat storage, craft goods, blacksmith or forge, commercial relay and transfer stations, and associated commercial uses as discussed above. Also permitted as conditional uses are those such as: amateur radio towers greater than 65 feet in height, café, car wash, electronic goods repair, fitness center, kennels, mini-storage, and nursery/landscape materials. The Glen Cove industrial boundary for light industrial/commercial uses recognizes a contained cluster of existing uses. When the County adopted the Comprehensive Plan in 1998 and established the interim LI/C zone at Glen Cove, the GMA was still in its formative years and the case law was not available for guidance. Jefferson County was among the first counties to establish LAMIRDs allowed under the GMA as amended in 1997 by ESB 6094. There was intent to revisit the boundary after thorough analysis was completed (Tri-Area/Glen Cove Special Study Final Supplemental Environmental Impact Statement with Addendums, August 1999). An expanded Light Industrial (LI) zone was established at Glen Cove in December 2002. The Light Industrial district does not allow for the commercial uses that are allowed in the LI/C zone. LAND USE Jefferson County Comprehensive Plan 1–87 December 2018 Source: Jefferson County Community Development, BERK, 2018. CENTER VALLEY INDUSTRIAL AREA Rural Industrial Area The Center Valley Light Industrial area was previously designated a Resource Based Industrial Zone due to the presence of a small sawmill operation. The sawmill closed and was inactive for several years before the area was rezoned as Light Industrial (LI) in 2008 to accommodate an expanded opportunity of uses at the site. LAND USE Jefferson County Comprehensive Plan 1–88 December 2018 Source: Jefferson County Community Development, BERK, 2018. QUILCENE INDUSTRIAL AREA Rural Industrial Area The Light Industrial/Manufacturing (LI/M) area at Quilcene was recognized in the 1998 Comprehensive Plan based on criteria in 1997 amendments to the GMA allowing Counties to recognize and contain existing areas and uses of more intensive industrial development (RCW 36.70A.070(5)(d)). The industries need not be limited to those serving the local population. Other criteria and considerations used for this designation include the need to provide local employment in an area of distressed economic conditions located at a distance from the Urban Growth Area, and the desire to reduce commuter-related traffic pressures on County roadways. LAND USE Jefferson County Comprehensive Plan 1–89 December 2018 Quilcene Industrial Area, Google Street View, 2015. The existing industrial uses include a sawmill, machine shop, and industrial storage. A vested project for additional industrial storage is the basis for recognition of an adjacent parcel. Light industrial uses allowed in the Quilcene Industrial Area include but are not limited to those described above for Glen Cove, except for the associated commercial and retail uses. Transportation access is adequate, as the area is on Highway 101. New development will be restricted until water supply issues related to adequate fire flow are addressed following the community election for a Local Utility District in late 1998. LAND USE Jefferson County Comprehensive Plan 1–90 December 2018 Source: Jefferson County Community Development, BERK, 2018. EASTVIEW LIGHT INDUSTRIAL/ MANUFACTURING AREA Rural Industrial Area The Eastview Industrial Plat (LI/M) borders the Paper Mill Heavy Industrial Zone on the north. Eastview consists of six lots comprising about 8 acres that was platted in 1978. The current uses include storage, boat yard, and repair services. LAND USE Jefferson County Comprehensive Plan 1–91 December 2018 Source: Jefferson County Community Development, BERK, 2018. JEFFERSON COUNTY INTERNATIONAL AIRPORT NON-AVIATION-RELATED LIGHT INDUSTRIAL/MANUFACTURING Rural Industrial Area Jefferson County has established an overlay zone in association with the Airport Essential Public Facility (AEPF) in order to provide a limited opportunity for rural scale non-aviation-related industrial uses that contribute to the long-term financial viability of the AEPF, as well as to support rural economic vitality benefiting the Jefferson County community. LAND USE Jefferson County Comprehensive Plan 1–92 December 2018 Forest Resource-Based Industrial Zones Rural Industrial Area Forest resource-based industries at Gardiner and West Jefferson County have been designated as Resource-Based Industrial Zones (RI) to recognize active sawmills and related activities at those sites, based on 1997 GMA amendments codified as RCW 36.70A.070(5)(d)(i) recognizing existing industrial uses and allowing for their intensification. The Resource-Based Industrial Zones are limited to forest resource-based industrial uses to prevent the establishment of a wider range of industrial uses. It is also intended to support employment in a distressed economic sector that, despite a decline in employment, will continue to have long-term economic importance for the County. Forest resource-based industrial zone boundaries were determined based on criteria in RCW 36.70A.070(5)(d) for determining logical boundaries. The reduction in acreage allows for limited infill and contains the industrial activity and associated uses to an area based on the developed area on July 1, 1990. Jefferson County recognizes that the cyclical nature of the forest industry will continue to result in economic upturns and downturns as reforested areas become available for harvest. To maintain facilities that continue to operate, the County recognizes that conversion of machinery and facilities into forest-related production activities would help to support this industry from one cycle to the next. The development code will include criteria for the permitting and regulation of conversion and/or intensification of these areas for related uses that may involve adapting existing equipment and facilities, recycling, or adding limited value to the forest resource products and byproducts (see Policy LU-P-25.4). Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–93 December 2018 Source: Jefferson County Community Development, BERK, 2018. LAND USE Jefferson County Comprehensive Plan 1–94 December 2018 Economic Activities Outside of Rural Commercial Areas Jefferson County will allow the following types of economic activities to provide employment opportunities outside of designated Rural Village Centers and Rural Commercial Crossroads: New industrial uses may be allowed in rural areas when they are resource-based pursuant to RCW 36.70A.365—Major Industrial Developments, in that they are dependent on a location near the forest, mining, agricultural, or aquaculture resource (see Section 1.3). Goals and policies in the Natural Resources Element provide for protection of the resource activity as well as of surrounding land uses. Resource-based industries must be in compliance with environmental and other regulations. A major industrial development may be allowed outside of a UGA if the activity requires a parcel of land so large that no suitable parcels are available within the UGA, or if the nature of the activity is incompatible with urban development due to its potential threat to the public health, safety, and welfare. Such development is defined in an amendment to the GMA enacted in Engrossed Senate Bill 5019 and codified as RCW 36.70A.365 as a master planned location for a specific manufacturing, industrial, or commercial business, but it cannot be for commercial shopping development or multi-tenant office parks. Small-scale recreational or tourist-related uses will be reviewed through the conditional use permitting process according to criteria provided in the goals and policies of this element. The activity must rely on a rural setting and nearby natural features for its location. Conditionally permitted uses such as RV parks, boat rentals, marinas, horse arenas and stables, and campgrounds are typical of this type of use. Goal LU-G-26 provides policies for these economic activities. Home-based businesses may be permitted to provide opportunities to supplement a family income, start up a business, or establish a work-place at home. Home-based businesses must be clearly incidental and secondary to the primary use of the premises as a residence. The goals and policies of this element provide limits on home-based businesses designed to prevent adverse impacts from such activity on the preservation of rural character (see Goal LU-G- 27). Cottage industries will be reviewed through the conditional use permitting process and must be clearly incidental and subordinate to the residential use of the property. A cottage industry is defined as limited small-scale commercial or industrial activities and shall not grow beyond the scale permitted unless it is moved to a location designated for commercial or industrial uses. The limitations Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–95 December 2018 provided in land use policies are intended to prevent the activity from detracting from adjacent land uses and the rural character of the area (see Goal LU-G-27). Potential new planning for future zoning designations on existing highway/commuter corridors and tourist routes. West Jefferson County The western portion of Jefferson County is geographically isolated from eastern Jefferson County by Olympic National Park. No existing Commercial-zoned lands currently exist in the West County, and therefore no commercial land for that area was designated in this Plan. Convenience services are available on Upper Hoh Road, at the Kalaloch Lodge store on Olympic National Park land and at a Quinault Nation convenience store at Queets. A regional decline in forestry and fishing has resulted in distressed economic conditions in the area. New employment opportunities in available economic sectors must be developed to respond to this decline of natural resource-based industries, allowing West Jefferson County to transition to a more diversified economy. West Jefferson County is not projected to experience significant growth during the 20-year planning period, with a total 20-year population projection of 43 additional people. Although the population of West Jefferson County is low, a significant number of people visit the tourist and recreation attractions of the area year-round. During the tourist season, the area experiences a large influx of visitors. Situated on U.S. Highway 101 between the mountain/rainforest and the ocean beach portions of the Olympic National Park, West Jefferson County receives visitors from Puget Sound regional metropolitan areas, as well as national and international visitors. The Hoh and Quinault Indian Reservation communities are concentrated population centers that both contribute to and rely upon the economy in West Jefferson County. To encourage employment opportunities in this economically distressed area, policies in this Plan allow additional small-scale recreation and tourism commercial activities serving tourist-related uses so that a broader range of goods and services can be provided, increasing economic development opportunities for the local population (see Policy LU-P-26.5). In addition, policies for home-based businesses and cottage industries allow for greater flexibility under criteria specific to West Jefferson County (see Policy LU-P-27.2 and Policy LU-P-27.4). Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–96 December 2018 Rural Goals & Policies Rural Character Goal LU-G-15 Preserve rural character and protect and promote rural lifestyle, as defined in this element. ▶ Policy LU-P-15.1 Identify and implement rural land uses, densities, and environmental standards which preserve and protect rural character. Evaluate environmental quality as critical to the preservation of rural character when reviewing development applications in rural areas ▶ Policy LU-P-15.2 Protect open space consistent with the goals and policies of this plan and in cooperation with County Conservation Futures and other land conservation programs. ▶ Policy LU-P-15.3 Locate designated open space areas so as to provide connections with adjoining open space areas, offer visual relief for both on and off-site residents, enhance habitat values, and where appropriate allow for recreational opportunities. ▶ Policy LU-P-15.4 Endorse the establishment of visual corridors and forest corridors along suitable roadways in Jefferson County. Endorse the extension of the forest corridor concept from Port Townsend’s City limits south along SR 20 to Old Fort Townsend Road to preserve and protect the forest corridor, and to provide a visual buffer between the roadway and new commercial and manufacturing development. Goal LU-G-16 Ensure that development is accomplished in a manner which protects the long-term habitability, significant historical and cultural areas, and natural beauty of Jefferson County. ▶ Policy LU-P-16.1 Encourage the preservation and conservation of Jefferson County’s unique history, scenic resources, and rural community identities; support the contributions that each community has made to the fabric of the County’s rural and cultural character, and encourage the preservation of community cohesiveness through designated land uses in this Plan. Related to western Jefferson County Fall in Quilcene, Carolyn Gallaway LAND USE Jefferson County Comprehensive Plan 1–97 December 2018 ▶ Policy LU-P-16.2 Encourage project proponents to mitigate potential adverse impacts to the public health, safety, and welfare as a result of a proposed project, action, or use concurrent with project development. ▶ Policy LU-P-16.3 Preserve, protect, and enhance cultural amenities by protecting tribal cultural artifacts, historic structures, farms and other historical settlements throughout the rural landscape, through cultural and historical preservation planning efforts. Local tribes should be consulted and included early in the planning process to ensure that tribal recommendations are thoughtfully considered. ▶ Policy LU-P-16.4 Consider elements of a Night Sky ordinance and lighting provisions in the Jefferson County Code. Goal LU-G-17 Preserve and protect the rural character of the land and the identities of existing rural communities through examination of rural land uses, development densities, rural economies, and economic development opportunities. ▶ Policy LU-P-17.1 Residential uses in the unincorporated portions of the County shall be characterized by a variety of rural residential parcel sizes and densities. ▶ Policy LU-P-17.2 Encourage innovation and creativity in lot and site design and in re-platting of existing lots to create efficient land developments, add flexibility in design, and encourage multi-modal transportation while meeting underlying density and site requirements. ▶ Policy LU-P-17.3 Carefully plan rural commercial development in a way that supports and is compatible with rural community character and that can be supported by rural levels of service. ▶ Policy LU-P-17.4 Review land use, development densities, rural economies, and economic development opportunities in the West End planning area to address local needs within the requirements of GMA. Related to western Jefferson County Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–98 December 2018 Goal LU-G-18 Encourage residential land use and development intensities that protect the character of rural areas, avoid interference with resource land uses, and minimize impacts upon environmentally sensitive areas. ▶ Policy LU-P-18.1 Rural residential cluster subdivisions shall be encouraged, consistent with development regulations, throughout the rural areas. The open space tracts in these planned rural residential development subdivisions should be permanently preserved. ▶ Policy LU-P-18.2 Integrate open space planning with innovative programs such as the purchase or transfer of development rights, cluster development with density bonuses, open space tax assessment, and acquisition of easements. Goal LU-G-19 Foster sustainable natural resource-based industry in rural areas through the conservation of lands that support forestry, agriculture, mineral extraction, and aquaculture industries and local employment opportunities. ▶ Policy LU-P-19.1 The County has identified resource lands as an integral part of rural character. Resource-based uses that are compatible with the conservation and sustainable use of the county’s resources shall be permitted. ▶ Policy LU-P-19.2 Use farm and forest preservation programs, such as Forest Stewardship Program, and other tools to preserve historic working lands. ▶ Policy LU-P-19.3 Encourage responsible stewardship of upland areas in support of programs that enable sustainable aquaculture. Irondale Park, Carolyn Gallaway LAND USE Jefferson County Comprehensive Plan 1–99 December 2018 Rural Centers, Crossroads, & MPRs Rural Residential Land Use Goal LU-G-20 Ensure that rural residential development preserves rural character, protects rural community identity, is compatible with surrounding land uses, and minimizes infrastructure needs. ▶ Policy LU-P-20.1 Identify and encourage diverse rural land uses and densities which preserve rural character and rural community identity. ▶ Policy LU-P-20.2 Establish rural residential land use densities for all lands located outside of designated Urban Growth Areas. Proposed rural residential densities and site-specific re-zones shall allow for an adequate supply of appropriately zoned land based upon the County’s rural population projections and needs while maintaining rural character and rural community identity, preserving rural resource-based uses, and avoiding sprawl. Proposed changes to residential land use designations shall take into consideration the vacant lot supply of the local area before allowing site-specific changes to residential zoning. ▶ Policy LU-P-20.3 Analyze historical subdivisions in Jefferson County to define processes for legal lots of record certifications, and define valid plats in rural and urban areas. ▶ Policy LU-P-20.4 Encourage the development and adoption of new technologies such as alternative wastewater and energy systems that minimize infrastructure cost, reduce environmental impacts, and maintain rural character. ▶ Policy LU-P-20.5 Rural residential densities shown on the Land Use Map shall be designated by three (3) residential land use densities— one dwelling unit per five (5) acres, one dwelling unit per ten (10) acres, and one dwelling unit per twenty (20) acres in size—and subject to the criteria in Chapter JCC 18.15.040. ▶ Policy LU-P-20.6 Within limited areas of more intensive rural development (LAMIRDs), allow infill development at densities comparable to the surrounding area. Measures shall be considered to limit and contain these areas to the logical outer boundary of the existing area or use once identified and designated. Pursue planning analyses that evaluate the LAMIRDs’ ability to achieve housing goals such as with appropriate and innovative wastewater management techniques. LAND USE Jefferson County Comprehensive Plan 1–100 December 2018 ▶ Policy LU-P-20.7 Allow minimum lot sizes within the designated boundaries of Rural Village Centers (RVC) which are flexible and determined by such considerations as: septic or sewer availability, potable water availability, zoning, and building regulations such as setbacks and parking requirements, fire prevention measures, and community character. Rural Commercial Land Use Goal LU-G-21 Support existing and explore opportunities for new appropriately-sized Rural Village Centers (RVC) and provide for the development of appropriately scaled commercial and residential uses, with consideration of innovative planning techniques, such as mixed commercial and residential use, creating vibrant communities with access to local services. ▶ Policy LU-P-21.1 Encourage a variety of commercial, retail, professional, tourist-related, community service, cottage industry, and residential uses—through new infill development—including duplexes, triplexes and assisted living facilities, within the designated boundaries of RVCs at a scale appropriate to protect the rural character of the natural neighborhood. ▶ Policy LU-P-21.2 Concentrate and contain the existing built environment through development regulations allowing for infill development within Rural Village Center boundaries. ▶ Policy LU-P-21.3 ▶ Policy LU-P-21.4 Ensure visual compatibility of Rural Village Center commercial and mixed-use infill development with the surrounding rural area, through the creation and implementation of community based “rural character” design and development standards. Uses within Rural Village Centers shall be scaled and sized to preserve the natural character of the neighborhood. ▶ Policy LU-P-21.5 Periodically review Rural Village Center infill development, logical outer boundaries, and regulations to ensure the success of Rural Village Centers. Integrate infrastructure plans with economic development and housing plans for the Rural Village Centers. LAND USE Jefferson County Comprehensive Plan 1–101 December 2018 LU-P-21.5.1 Encourage affordable housing in Rural Village Centers through the allowance of multifamily housing opportunities such as multifamily residential units, senior housing, assisted living facilities, and manufactured/mobile home parks. LU-P-21.5.2 Allow for adequate economic development to provide economic sustainability, adequate employment opportunities, small business opportunities, family wage jobs, and services in and for the rural areas. LU-P-21.5.3 Promote opportunities for non-motorized and multimodal transportation options within and to Rural Village Centers. ▶ Policy LU-P-21.6 Ensure logical outer boundaries minimize and contain areas of more intensive development and are delineated predominantly by the built environment. Goal LU-G-22 Provide access to a limited range of services in the County’s Rural Commercial Crossroads for residential and non-residential users and other compatible uses. ▶ Policy LU-P-22.1 Designate General Commercial Crossroads (GC), Neighborhood/Visitor Crossroads (NC), and Convenience Crossroads (CC) pursuant with Chapter JCC 18.15.015(2). LU-P-22.1.1 Lands designated as General Crossroads (GC) are existing historic commercial areas that provide a broad range of commercial goods and services, and shall meet the requirements of LAMIRDs in WAC 365-196-425(6)ii. LU-P-22.1.2 Lands designated as Neighborhood/Visitor Crossroads (NC) serve the nearby rural neighborhood and the commuting or traveling public, and shall meet the requirements of LAMIRDs in WAC 365-196-425(6)ii. LU-P-22.1.3 Land designated as Convenience Crossroads (CC) consist of a single commercial property at a historical crossroads, and shall meet the requirements of LAMIRDs in WAC 365-196-425(6)iii. ▶ Policy LU-P-22.2 Periodically review Rural Commercial Crossroad infill development, outer boundaries, and regulations to ensure the success of Rural Commercial Centers, including access to affordable housing, family wage jobs, small business opportunities, non- motorized and multimodal transportation options, and services in and for the rural areas. Chimacum Market, Jefferson County Public Health LAND USE Jefferson County Comprehensive Plan 1–102 December 2018 LU-P-22.2.1 Encourage affordable housing in General Commercial Crossroads and Neighborhood/Visitor Crossroads through the allowance of multifamily housing opportunities such as multifamily residential units, senior housing, assisted living facilities, and manufactured/mobile home parks. LU-P-22.2.2 Allow for adequate economic development to provide economic sustainability, adequate employment opportunities, small business opportunities, and services in and for the rural areas. LU-P-22.2.3 Promote opportunities for non-motorized and multimodal transportation options within and to Rural Commercial Crossroads. ▶ Policy LU-P-22.3 Ensure visual compatibility and traditional design elements for Rural Crossroads commercial infill development with the surrounding rural area through the creation and implementation of community-based "rural character" design and development standards. Uses within Rural Crossroads shall be scaled and sized to protect the natural character of the neighborhood. Master Planned Resorts Goal LU-G-23 Provide for the siting of, and maintain the viability of, Jefferson County’s Master Planned Resorts (MPR) in locations that are appropriate from both an economic and environmental perspective. ▶ Policy LU-P-23.1 Ensure that development of MPRs comply with County development regulations established for critical areas, that on-site and off-site infrastructure impacts are fully considered and mitigated, and that development is consistent with lawfully established vested rights and approved development permits. ▶ Policy LU-P-23.2 Allow the provision of urban-style services to support the anticipated growth and MPR development only within the designated MPR boundaries. ▶ Policy LU-P-23.3 Discourage any new urban or suburban land uses within the immediate vicinity of MPRs. ▶ Policy LU-P-23.4 Accommodate a variety of housing types in MPRs, including affordable housing, single family, and multi-family housing and assisted living care facilities. LAND USE Jefferson County Comprehensive Plan 1–103 December 2018 ▶ Policy LU-P-23.5 Include designated greenbelts, non-clearing open spaces, and wildlife corridors within the boundary of MPRs as appropriate. ▶ Policy LU-P-23.6 Open Space zones created within the boundaries of MPRs should address non-clearing, permanently vegetated areas and include forest management plans to ensure long-term viability, forest ecosystem health, and fire safety. ▶ Policy LU-P-23.7 Ensure that MPRs, which constitute urban growth outside of urban growth areas, are limited by, and consistent with RCW 36.70A.360. Master planned resorts are generally larger in scale, and involve greater potential impacts on the surrounding area, than uses permitted under the Small-Scale Recreation and Tourist Uses standards. ▶ Policy LU-P-23.8 Require that MPRs contain sufficient portions of the site in undeveloped open space for buffering and recreational amenities to help preserve the natural and rural character of the area. Where located in a rural area, the master planned resort should also be designed to blend with the natural setting and—to the maximum extent practical—screen the development and its impacts from the adjacent rural areas outside of the MPR designation. ▶ Policy LU-P-23.9 Develop and maintain site-specific development regulations to guide the review and development of master planned resorts that include, at a minimum, compliance with these policies and the Jefferson County Code. ▶ Policy LU-P-23.10 Ensure new or expanded existing master planned resorts located in areas of existing shoreline development, such as marinas and shoreline lodges, which promote public access to developed shorelines, and/or locations which promote public access and use of National Parks and National Forests, provide and commit to continued public access. LAND USE Jefferson County Comprehensive Plan 1–104 December 2018 Rural Industrial Lands Goal LU-G-24 Recognize and contain areas and uses of more intensive industrial development within boundaries that may allow for limited areas of infill development. ▶ Policy LU-P-24.1 Maintain the Port Townsend Paper Mill property as Heavy Industrial, the Glen Cove industrial area as Light Industrial/Commercial, Center Valley industrial area as Light Industrial, Quilcene industrial area as Light Industrial/Manufacturing, and Eastview Industrial Plat as Light Industrial/Manufacturing (LI/M), consistent with the provisions of RCW 36.70A.070(5)(d) and in Chapter JCC 18.15.015. ▶ Policy LU-P-24.2 Continue the ongoing planning discussions with the City of Port Townsend regarding infrastructure and boundaries of the Glen Cove Light Industrial/Commercial District and examine alternative solutions such as Large On-Site Sewage Systems (LOSS). ▶ Policy LU-P-24.3 Encourage establishment of renewable energy power systems in rural areas to foster local economic prosperity, living wage jobs, local energy resiliency, and additional revenue opportunities for rural land owner/operators. ▶ Policy LU-P-24.4 Protect future opportunities for planning Industrial Land Banks and Major Industrial Developments by keeping development regulations current and effective for these land uses. Goal LU-G-25 Locate new natural resource-based industries in rural lands and near the resource upon which they are dependent, in accordance with RCW 36.70A.365. ▶ Policy LU-P-25.1 Encourage the establishment of sustainable natural resource-based industrial uses in rural areas to provide employment opportunities, such as food processing near areas of agricultural production and milling infrastructure near designated commercial forests. ▶ Policy LU-P-25.2 Natural resource-based industries may be located near the agricultural, forest, mineral, or aquaculture resource lands upon which they are dependent. LAND USE Jefferson County Comprehensive Plan 1–105 December 2018 ▶ Policy LU-P-25.3 Maintain existing pre-1990 forest resource-based industrial uses and activities at Gardiner as a Resource-Based Industrial Zone (RBI). ▶ Policy LU-P-25.4 Continue to recognize the Gardiner Resource-Based Industrial Zone as an area of more intensive rural development under RCW 36.70A.070(5)(d)(i), and allow the Zone to accommodate conversions and/or an intensification of these uses and activities under the provisions contained in RCW 36.70A.070(5)(d)(iii). Economic Activities Outside of Rural Commercial Areas Small-Scale Recreational & Tourist Related Uses Goal LU-G-26 Foster economic development that relies on a rural location and setting, and that is small scaled recreational or tourist-related. ▶ Policy LU-P-26.1 Small-scale recreational or tourist uses shall be defined as those uses reliant upon the rural setting, incorporating the scenic and natural features of the land. Under no circumstances should this policy be interpreted to permit new residential development, except that allowed by underlying zoning, and that necessary for on-site management. ▶ Policy LU-P-26.2 Small-scale recreational or tourist uses shall be provided for through a permitting process appropriate to the type of proposed use and the land use district in which it is proposed. ▶ Policy LU-P-26.3 The primary use of the site shall be for the small- scale recreational or tourist use. Commercial facilities, as provided for within an approved conditional use permit for small-scale recreational or tourist uses, shall serve only those recreational and tourist uses. ▶ Policy LU-P-26.4 Upon application for intensification/expansion of existing small-scale recreational or tourist areas and uses, the ultimate size and configuration of the site should be established and maintained by logical outer boundaries. Existing areas and uses are those that are clearly identifiable and contained, and where there is a logical boundary delineated predominately by the built environment on July 1, 1990, but may also include undeveloped lands if the overall goals of the Rural Element are maintained, by: a. preserving the character of the existing natural neighborhood; LAND USE Jefferson County Comprehensive Plan 1–106 December 2018 b. physical boundaries such as bodies of water, roadways, and land forms and contours are used to assist in delineation of the site; c. abnormally irregular site boundaries are prevented; d. public facilities and services are provided in a manner that does not permit low-density sprawl; and e. protecting critical areas and surface and groundwater resources. ▶ Policy LU-P-26.5 Within isolated West Jefferson County, allow small- scale recreation and tourist uses to provide basic goods and services to meet the needs of a local population living at a distance from commercial areas. This limited expansion of uses is also intended to allow for the creation of local jobs in an area of high unemployment and distressed economic conditions. ▶ Policy LU-P-26.6 When a specific area is identified through community planning as appropriate for the expansion of existing small-scale recreation and tourist uses and for new small-scale recreation and tourist uses, a Small-scale Recreation and Tourist (SRT) overlay district for the identified area may establish variations from the conditional use permitting process and the criteria in this section, so long as the overall goals of the Rural Element are maintained. Home-based Businesses & Cottage Industries Goal LU-G-27 Foster home-based businesses or cottage industries in order to provide economic and employment opportunities outside of Rural Commercial zones. ▶ Policy LU-P-27.1 Permit home-based businesses and cottage industries that are accessory to the residential use of the property throughout the unincorporated portions of the County, subject to permit review procedures. ▶ Policy LU-P-27.2 Home-based businesses in West Jefferson County and the Brinnon Planning Area shall be regulated according to Chapter JCC 18.15 Article VI-L in order to encourage new economic development and employment opportunities in unique areas that are isolated and distant from commercial and urban growth areas. ▶ Policy LU-P-27.3 Cottage industries are an accessory use to the primary residential use and shall be operated by the owner or lessee of the property, who shall reside either within a single family dwelling or an accessory dwelling unit, subject to conditional use permit review procedures. Related to western Jefferson County Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–107 December 2018 ▶ Policy LU-P-27.4 Cottage industries in West Jefferson County and the Brinnon Planning Area shall be regulated according to Chapter JCC 18.15 Article VI-L in order to provide employment opportunities in unique areas that are isolated and distant from commercial and urban growth areas. ▶ Policy LU-P-27.5 Codify provisions which will ensure that home- based businesses and cottage industries will not create de-facto Commercial Zoning in residential districts. ▶ Policy LU-P-27.6 Periodically evaluate the use and success of home- based business and cottage industry provisions and make modifications as appropriate. Capital Facilities in Rural Areas Goal LU-G-28 Provide Rural Village Centers with the level of infrastructure support that will allow the community to be served with appropriately-scaled housing, commercial services, and/or mixed-use development patterns to provide for community needs through infill and development of the LAMIRD. Limit the establishment or expansion of urban development and infrastructure to those areas designated for urban growth. ▶ Policy LU-P-28.1 Ensure that expansion of urban infrastructure occurs only in coordination with designated land uses based on projected growth estimates and in compliance with provisions of the state Growth Management Act. ▶ Policy LU-P-28.2 Periodically review and update the Coordinated Water System Plan (CWSP) to ensure consistency with the joint population projection and all land use designations. ▶ Policy LU-P-28.3 Ensure that any impact fees adopted by the County require that a “fair share” of development costs be borne by the developer. Land use decisions should consider cost efficiency regarding publicly-funded infrastructure. ▶ Policy LU-P-28.4 Ensure that where the County assumes maintenance responsibilities for infrastructure, the infrastructure is adequately designed to meet the area growth projections and to fulfill the functions the infrastructure is intended to perform. Related to western Jefferson County LAND USE Jefferson County Comprehensive Plan 1–108 December 2018 ▶ Policy LU-P-28.5 Require the provision of an appropriate level of facilities and services prior to, or concurrent with, development as identified in Chapter JCC 18.30. These services shall include, but are not limited to, potable water supply, commercial fire flow, adequate sewage disposal and roads, including sidewalks and pathways if safety is an issue. ▶ Policy LU-P-28.6 Ensure that rural areas are adequately served by a rural level of public services. Encourage the development and adoption of new technologies such as alternative wastewater and energy systems that minimize infrastructure costs, reduce environmental impacts, and maintain rural character. ▶ Policy LU-P-28.7 Allow community water facilities and community sewage facilities in rural lands in order to support projected growth, or where necessary to protect public health and safety. LAND USE Jefferson County Comprehensive Plan 1–109 December 2018 1.3 RESOURCE Resource Lands of Long-Term Commercial Significance under the GMA One of the goals of the GMA is the conservation of productive natural resources lands of long-term commercial significance, including forestlands, agricultural lands, and mineral resources. All counties and cities planning under the GMA are required to identify and designate such natural resource lands for conservation to avoid conflicts with other incompatible uses and ensure these lands are available to support economic productivity and healthy ecological systems. Identification and classification of natural resource lands is required by GMA under RCW 36.70A.050 and as described more fully in Element 2 Natural Resources. Forest Forestry has a long history in Jefferson County, and large areas of the unincorporated county are devoted to timber production. Forest lands provide both economic and ecological benefits to local residents, making their conservation a high priority under the GMA. Over three- quarters of the non-federal land in the County is zoned for forestry purposes. Mineral Mineral resource extraction provides nonrenewable raw materials for a wide variety of uses, including construction of essential public infrastructure. The GMA also requires that counties evaluate future needs for mineral resources and ensure that access to mineral resources of long-term commercial significance is not knowingly precluded by other types of land development. To meet the requirements of GMA, mineral extraction should be a priority land use for all designated mineral resource lands. Many of Jefferson County’s designated mineral resource lands are also designated forest land. Without definitive surveys and mapping of mineral resources of Jefferson County, the broad forest land zones covering the largely overlapping resource areas, provide a stand-in protective designation that helps to protect mineral lands until additional surveys and mapping can be done. LAND USE Jefferson County Comprehensive Plan 1–110 December 2018 Agriculture Agriculture plays a vital role in economies of both Washington and Jefferson County, and it is central to the culture and history of many communities across the state. As described in the Framework section of this Element, two agricultural land zones are part of the land use and zoning districts and are supported by strong policies that address both agricultural land protection, and the importance of the food processing industry, as well as healthy food access for the community. Aquaculture: Refer to Natural Resources Element for the primary information on upland aquaculture activities and aquaculture resources regulated by the Shoreline Master Program (SMP). Primary information about the SMP can be found in the Environment Element. Resource Conservation While natural resource lands often consist of large properties under intensive commercial production, valuable natural resource lands also occur on smaller, family-owned parcels. For example, nearly 30,000 acres of land in Jefferson County is designated as forest land for property taxation purposes but is zoned for rural land use other than commercial forestry, primarily rural residential development. Nearly one-quarter of farms in Jefferson County are less than 10 acres in size, and more than half are less than 50 acres. While the long-term commercial significance of properties such as these may not be equal to that of larger commercial operations, they represent resource lands capable of providing economic and ecological benefits to local residents and should be conserved in keeping with the goals of the GMA. Jefferson County LAND USE Jefferson County Comprehensive Plan 1–111 December 2018 Resource Lands Goals & Policies Goal LU-G-29 Conserve and manage the forest, agriculture, aquaculture, and mineral resources of Jefferson County for sustainable natural resource-based economic activities that are compatible with surrounding land uses. ▶ Policy LU-P-29.1 Conserve natural resource lands through land use designations and encourage resource-based industries that provide rural employment opportunities. Emphasize the development of agricultural systems, including processing, storage, and distribution, and identify where these facilities will be allowed. ▶ Policy LU-P-29.2 Support cooperative resource and habitat management processes between stakeholders and local, state, federal and tribal governments by integrating cooperative agreements and plans into land use ordinances and regulations. ▶ Policy LU-P-29.3 Work with resource-based industries to achieve compliance with all applicable regulations to protect environmental values and to protect surrounding land uses. ▶ Policy LU-P-29.4 Allow green burials in designated or accepting cemeteries and consider allowing green burial cemeteries consistent with Title 68 RCW, on forest zoned land greater than 20 acres in size with a conditional use permit. See also the Natural Resources Element for goals and policies addressing resource lands of long-term commercial significance. LAND USE Jefferson County Comprehensive Plan 1–112 December 2018 1.4 URBAN Urban Growth Areas Municipal & Unincorporated The GMA authorizes the designation of Urban Growth Areas in RCW 36.70A.110 to include cities and other areas characterized by urban growth or adjacent to such areas. Urban Growth Areas are intended to accommodate a projected population growth for the next twenty years. The GMA specifies that future growth should, first, be located in areas that already have public facilities and service capacity and, second, in areas where such services, if not already available, are planned. In Jefferson County, there are two Urban Growth Areas: ▶ City of Port Townsend Municipal Urban Growth Area; and ▶ Port Hadlock / Irondale Unincorporated Urban Growth Area. The City of Port Townsend is subject to its own Comprehensive Plan and development regulations affecting urban growth and the provision of public facilities and services in the City of Port Townsend. The Port Hadlock / Irondale Urban Growth Area is an unincorporated Urban Growth Area, located approximately 5 miles south of the City of Port Townsend, adjacent to Port Townsend Bay. This unincorporated Urban Growth Area is subject to the Jefferson County Comprehensive Plan and implementing regulations. An Urban Growth Area defines where urban developments will be directed and supported with typical urban public facilities and services, such as storm and sanitary sewer systems, domestic water systems, fire and police protection services, and public transit services. Urban growth areas enable new development to locate close to vital capital facilities and urban services or "infill" in existing urbanizing areas. Urban Growth Areas enable fiscal resources associated with capital facilities and urban services to be operated more cost-effectively. The Urban Growth Area is an area where urban public facilities and services are available or are planned. Provision of urban public facilities and services may be available through several service providers, such as Jefferson County, the JPUD, or some other entity such as a sewer and water district. LAND USE Jefferson County Comprehensive Plan 1–113 December 2018 Port Hadlock / Irondale Urban Growth Area History of Planning Designation Detailed planning for the designation of a Port Hadlock / Irondale Urban Growth Area in compliance with the requirements of the GMA has been on-going since the Jefferson County Comprehensive Plan was originally adopted in 1998. Specific policy language in the Comprehensive Plan indicated the joint city/county intent to pursue future Urban Growth Area planning for the “Tri-Area” (including Irondale, Port Hadlock and Chimacum). As part of the on-going joint City/County urban growth area planning, the Tri-Area Provisional Urban Growth Area (Urban Growth Area) was designated by Jefferson County on October 5, 1999 as an interim step in the Urban Growth Area planning process. In 2000, the boundary of the Interim Urban Growth Area was established, and included the Irondale and Port Hadlock communities. In-depth analysis and environmental impact review of the land use, population, capital facilities and public services, natural systems and critical area constraints, open space, housing, and non-residential land use needs for a Tri-Area Urban Growth Area are incorporated in the Tri Area/Glen Cove Special Study conducted from 1998-2002. Public Facilities & Services Specific planning for public facilities and services in the Port Hadlock / Irondale Urban Growth Area is referenced in this section and in the Capital Facilities Element, as well as supporting appendices of the Comprehensive Plan, the Tri Area/Glen Cove Special Study, the Jefferson County Port Hadlock Urban Growth Area Sewer Facility Plan of September 2008, and the Port Hadlock Urban Growth Area Sewer System/Water Reclamation Facility and Influent Pipeline Design Plans & Specifications dated December 2013. Urban Growth Area Sizing & Capacity Further planning analysis of the size and capacity of the Urban Growth Area was conducted in the Proposed Irondale/Port Hadlock Urban Inside the Puget Sound Iron Company, Jefferson County, from the Collection of the Jefferson County Historical Society LAND USE Jefferson County Comprehensive Plan 1–114 December 2018 Growth Area: Dwelling Unit & Population Holding Capacity Analysis, Cascadia Community Planning Services, January 21, 2009, and updated by Community Development in 2017 for the periodic review. CWPPs provide a broad framework for UGA planning that were developed in a collaborative process between the City of Port Townsend and the County. Countywide Planning Policy #1.3 provides specific guidance on criteria for the sizing and delineation of UGA boundaries outside of cities: ▶ Adequate amount of developable land to accommodate forecasted growth for the next twenty years. ▶ Sufficient developable land for residential, commercial, and industrial uses to sustain a healthy local and regional economy. ▶ Sufficient area for the designation of greenbelts and open space corridors. ▶ Topographical features or environmentally sensitive areas that may form natural boundaries such as bays, watersheds, rivers, or ridge lines. ▶ Lands already characterized by urban development that is currently served or are planned to be served by roads, water, sanitary sewer, and storm drainage, schools, and other urban services within the next twenty years; provided that such urban services that are not yet in place are included in a capital facilities plan. ▶ The type and degree of existing urban services necessary to support urban development at the adopted interim level of service. The County-wide Planning Policies also provide selected guidance for the phasing of urban growth commensurate with the provision of adequate urban services to UGAs: ▶ Land use plans, regulations and capital facility plans for each UGA will be designed to accommodate the projected population. Growth should first be directed into two tiers: Tier 1—existing commercial centers and urbanized areas where the six (6) year capital facilities plan is prepared to provide urban infrastructure; Tier 2—areas included within the capital facilities plan to receive the full range of urban services within twenty (20) years. Infrastructure improvements necessary to support development in the second tier will be provided by the developer concurrent with development, or by public entities because of implementing all or a portion of the capital facilities plan. (CWPP 1.5) ▶ Before adopting boundaries of UGAs, interim Level of Service Standards (LOS) for public services and facilities located inside and outside of UGAs must be adopted. (CWPP 1.7) LAND USE Jefferson County Comprehensive Plan 1–115 December 2018 ▶ The full range of governmental urban services at the adopted level of service standards will be planned for and provided within UGAs, as defined in the capital facilities plan, including community water, sanitary sewer, piped fire flow, and storm water systems (CWPP 2.1) ▶ New development will meet the adopted level of service standards for the UGA as a condition of project approval. Said standards will include interim provisions for those urban facilities identified in the capital facilities plan but not yet developed. New development will contribute its proportionate share towards provision of urban facilities identified in the capital facilities plan. (CWPP 2.3) ▶ Local public involvement and citizen advice into the formation and development of UGA land uses and supporting urban public facilities and services are also an important component of planning and implementation for UGAs. (CWPP 2.2) Urban Growth Area Designation Criteria The GMA specifies certain minimum requirements for Urban Growth Area formation. These include the following provisions of RCW 36.70A.110: An urban growth area may include territory that is located outside of a city only if such territory already is characterized by urban growth whether or not the urban growth area includes a city, or is adjacent to territory already characterized by urban growth, or is a designated new fully contained community as defined by RCW 36.70A.350. (RCW 36.70A.110(1)). The vast majority of the Port Hadlock / Irondale Urban Growth Area is “already characterized by urban growth”. In addition, the boundary for the Urban Growth Area was delineated based on the criteria in CWPPs with guidance from the Tri-Area Community Plan (1995) and public input from local residents. Only limited areas “adjacent to territory already characterized by urban growth” are included in the Urban Growth Area to: 1) interconnect areas characterized by existing urban growth; 2) incorporate sufficient developable land to sustain the urban growth projected to occur during the 20-year planning period; or 3) provide for a reasonable land market supply factor to discourage adverse land and housing price increases. The Port Hadlock / Irondale Urban Growth Area is significantly smaller and more compact than the “Tri- Area Urban Growth Area” originally proposed in the Special Study. Based upon the growth management population projection made for the county by the office of financial management, the county and each city within the county shall include areas and densities sufficient to permit the urban growth that is projected LAND USE Jefferson County Comprehensive Plan 1–116 December 2018 to occur in the county or city for the succeeding twenty-year period. (36.70A.110(2)). Adequate land area for the expected growth during the planning period has been designated based on both the projected 20-year residential population growth for Port Hadlock / Irondale identified in the Comprehensive Plan as well as the need for commercial/industrial lands identified as a part of the Special Study. The Comprehensive Plan population growth projections indicate a 20-year projected growth from 2018-2038 of 1,516 residents for the Urban Growth Area. The Urban Growth Area buildout capacity analysis is presented later in this element. The boundary (i.e., sizing) of the Urban Growth Area included only those areas “characterized by urban growth...or…adjacent to territory already characterized by urban growth” necessary to accommodate the urban growth projected to occur consistent with the Act. The Port Hadlock / Irondale Urban Growth Area includes areas designated for Medium and High Density multi-family developments that are “adjacent to territory already characterized by urban growth” as one means to accommodate the projected population increase. Although the Port Hadlock / Irondale Urban Growth Area contains a significant amount of existing single-family urban residential development—from a future urban growth perspective—its major intent is to provide more economic development opportunity to serve the unmet regional commercial needs of eastern Jefferson County identified in the Special Study. Secondarily, Urban Growth Area designation and the provision of urban facilities and services will allow for development of higher density (and more affordable) multi-family housing when a sanitary system becomes available. Each urban growth area shall permit urban densities and shall include greenbelt and open space areas. (36.70A.110(2)). Average urban density of residential development is above 4 dwelling units per acre in the Urban Growth Area. See the Proposed Irondale/Port Hadlock Urban Growth Area: Dwelling Unit & Population Holding Capacity Analysis, Cascadia Community Planning Services, January 21, 2009. The Urban Low Density Residential (ULDR) designation on the Port Hadlock / Irondale Urban Growth Area Zoning Map requires a minimum density of 4 dwellings units per acre, except where the following criteria are met: 1) in areas where no sanitary sewer service is provided in the adopted Six-Year Capital Facilities Plan; and 2) in such areas within an adopted Critical Aquifer Recharge Area (CARA). The provisions of the Jefferson County Health Department On-Site Sewage Disposal Systems regulations (JCC 8.15) and Unified Development Code (UDC) Section (Best Management Practices for On-Site Sewage Disposal in CARAs) shall apply under these circumstances which effectively limit maximum LAND USE Jefferson County Comprehensive Plan 1–117 December 2018 density to approximately 3.5 units per acre. The so-called “bright line” rule adopted by the Growth Management Hearings Boards suggests that four units per acre is a minimum urban density. However, the Boards have also recognized that jurisdictions may apply densities below that line in Urban Growth Areas if there is a compelling GMA reason for doing so. Protection of critical areas, including CARAs, has been recognized by the Hearings Boards as such a reason. In the Urban Growth Area, the CARA serves to protect the same groundwater aquifer that supplies the public water supply for the Urban Growth Area—the Public Utility District’s Sparling Well located within the Urban Growth Area at the corner of Kennedy Road and Rhody Drive (SR 19). The Zoning Map indicates several additional areas designated for moderate and high density residential development within sewer service areas that are in close proximity to existing commercial centers and community facilities such as the Chimacum Creek Elementary School and the County Library. Open space and greenbelt areas have also been identified for the Urban Growth Area, especially along the Chimacum Creek corridor, in associated wetland areas and along the Port Townsend Bay marine shoreline at the mouth of Chimacum Creek where substantial shoreline restoration has been completed at the site of a former log dump and at the Irondale smelter site. Concurrently with development and re- development of the Urban Growth Area, a primary urban design consideration is to create better connections between residential and commercial uses, non-motorized access to transit services, sidewalks, bicycle lanes, and overall attention to non-motorized transportation connectivity. An urban growth area determination may include a reasonable land market supply factor and shall permit a range of urban densities and uses. (36.70A.110(2)). Single-family and multi-family residential, urban commercial, light industrial, lands for public purposes, and open space and greenbelt land needs are incorporated in the Port Hadlock / Irondale Urban Growth Area. Sizing of the Urban Growth Area was intended to include only those areas “characterized by urban growth...or…adjacent to territory already characterized by urban growth” consistent with the Act. A reasonable land market supply factor was applied to discourage adverse increases to land and housing values in the Urban Growth Area. Reduction factors to account for lands needed for roads and utilities and preservation of environmentally sensitive areas were also applied. Documentation of supporting population and land area analysis are found in the Special Study and in the Port Hadlock / Irondale Urban Growth Area Buildout Analysis, dated March 4, 2004, and the Proposed Refer to the Transportation Element, Non-Motorized Trail & Standards LAND USE Jefferson County Comprehensive Plan 1–118 December 2018 Irondale/Port Hadlock Urban Growth Area: Dwelling Unit & Population Holding Capacity Analysis, Cascadia Community Planning Services, January 21, 2009, and updated in the 2018 Periodic Review; see Appendix E. Cities and counties have discretion in their comprehensive plans to make many choices about accommodating growth. (36.70A.110(2).) Planning for an unincorporated Urban Growth Area in eastern Jefferson County has been on-going since the initial GMA Comprehensive Plan for the County was adopted in 1998. The Special Study was a collaborative joint planning process between the City of Port Townsend and the County that entailed a broad analysis of population and employment growth and land use needs as well as alternative Urban Growth Area boundary configurations and their associated impacts. It presented many choices about accommodating growth. One of the key findings of the Special Study was that the County experienced a significant amount of “retail leakage” to urban areas in adjacent counties due to an inadequate commercial land use base in the County. The City of Port Townsend and the County also jointly chose through the Joint Growth Management Steering Committee to accommodate new growth through formation of a Tri-Area Unincorporated Urban Growth Area rather than accommodate the unmet demand for commercial growth in the existing Port Townsend Urban Growth Area. The Comprehensive Plan and the CWPPs both identify the Tri-Area (now Port Hadlock / Irondale Unincorporated Urban Growth Area) as the primary regional commercial growth center for the unincorporated County. However, the lack of the full range of urban services, including a sanitary sewer system, has been an impediment to significant commercial development and job creation. The Urban Growth Area planning process involved an extensive amount of public involvement. The Implementation Plan for the Special Study identified and analyzed more specific Urban Growth Area land use alternatives for the area. Because of the extensive public involvement process and capital facilities impact analysis conducted throughout the life of the Special Study, the Tri-Area Urban Growth Area represents a significantly smaller, more compact and more fiscally viable Urban Growth Area than originally proposed in the DSEIS/FSEIS prepared as a part of the Special Study. Urban growth should be located first in areas already characterized by urban growth that have adequate existing public facility and service capacities to serve such development, second in areas already characterized by urban growth that will be served adequately by a combination of both existing public facilities and services and any additional LAND USE Jefferson County Comprehensive Plan 1–119 December 2018 needed public facilities and services that are provided by either public or private sources, and third in the remaining portions of the urban growth areas. (36.70A.110(3)). The Special Study included several alternative Urban Growth Area boundaries and permitted land use alternatives for Urban Growth Areas in Jefferson County. One of these alternatives (Alternative 1) was not to adopt a new unincorporated Urban Growth Area but rather accommodate the unmet need for regional commercial growth identified in the Special Study through intensification of the existing Port Townsend Urban Growth Area. Following issuance of the Final Supplemental Environmental Impact Statement for Jefferson County Comprehensive Plan Amendments, dated August 1999 (FSEIS) the Joint Growth Management Steering Committee (comprised of three City Councilors and three County Commissioners) decided on August 24, 1999 (by a vote of 5 to 1) to move forward with Urban Growth Area implementation for Port Hadlock / Irondale and to reject implementation of Alternative 1—effectively precluding allocation of the unmet employment and commercial growth needs identified in the Special Study to the existing Port Townsend Urban Growth Area. Phased Implementation In 2002, Port Hadlock / Irondale lacked the full range of urban services needed for immediate Urban Growth Area implementation indicated in CWPP 2.1, above. Therefore, the Comprehensive Plan had to plan for the provision of those services as required by RCW 36.70A.110(3). The Port Hadlock / Irondale Urban Growth Area was programmatically defined in several phases. The initial phase involved amendments to the Jefferson County Comprehensive Plan in 2002 to adopt the final Urban Growth Area boundary, land use map and interim levels of service for urban facilities as well as goals and policies guiding the development of the Urban Growth Area. This included identification of additional plans and capital facilities (including costs and funding sources) needed to implement the full range of urban services and facilities within the Urban Growth Area. The next phase involved preparation and adoption of Urban Growth Area development regulations now codified in Chapter 18.18 of the JCC. This phase also included completion of the capital facility plans needed to implement the full range of urban services required in CWPP 2.1, including the adoption of urban level of service standards for Urban Growth Area transportation improvements, storm water management facilities, and a new sanitary sewer system. These capital facility plans are adopted herein by reference and are included as appendices to the Comprehensive Plan. The Urban Growth Area functional capital facility plans as adopted herein are available under separate cover and include: ▶ Port Hadlock Urban Growth Area Sewer Facility Plan, September 2008 LAND USE Jefferson County Comprehensive Plan 1–120 December 2018 ▶ Port Hadlock / Irondale Urban Growth Area Stormwater Management Plan, May 2004 ▶ Port Hadlock / Irondale Urban Growth Area Transportation Plan, May 2004 as updated in Appendix C Consistent with CWPP 1.5, the adopted Port Hadlock / Irondale Urban Growth Area General Sewer Plan identifies phased development areas within the Urban Growth Area based on where the six (6) year capital facilities plan is prepared to provide urban sanitary sewer service in the Urban Growth Area core, followed by expansion of sewer service availability throughout the Urban Growth Area in the 20 year planning period. More complete discussion and analysis of these areas are found in the “Capital Facilities” section of this element and in the adopted Urban Growth Area General Sewer Plan. Public involvement was a key component of all phases of Urban Growth Area planning. The County appointed an Urban Growth Area Citizen Advisory Committee during the initial Port Hadlock / Irondale Urban Growth Area boundary and land use planning phase in 2001. The CAC was comprised of local Urban Growth Area residents and business owners and participated in developing the initial recommendations for the Port Hadlock / Irondale Urban Growth Area boundary and land use designations adopted in 2002. An Urban Growth Area Citizens Task Force was appointed in 2004, again comprised of local business owners and residents, to help the Planning Commission Urban Growth Area Subcommittee develop specific implementing regulations and capital facility development standards for the Urban Growth Area. Alternative Phasing Sewer Policy Within the UGA, the principal barrier to greater density is the lack of a sanitary sewer. Some communities in Washington State allow development activity on alternative wastewater treatment systems that do not preclude future hook-up to traditional sewer. For example, Kitsap County explored pocket plants, membrane bioreactor treatment systems, and community drain fields, and the Growth Management Hearings Board found these types of systems provided an urban level of service for new development (KCRP VI v. Kitsap County; Case 06-3- 0007). Pierce County allows dry sewer lines to be installed; residential development up to the maximum density may be allowed, if lots in excess of the density permitted with on-site septic cannot be developed until the sewer line is extended and connected to all the lots. The City of Yakima allows urban development if there are either public sewer systems or approved community sewer systems. A policy is included allowing for alternative technologies and phasing to advance development in the Urban Growth Area, and meet community needs such as for housing variety and affordability. LAND USE Jefferson County Comprehensive Plan 1–121 December 2018 Land Use Map & Zoning Designations The Future Land Use and Zoning Map, adopted as a part of this element, is the graphic representation of the densities and intensities of use and the goals, policies and strategies contained within this plan. The Land Use and Zoning Maps were developed based on consistency with the GMA, community involvement, consideration of the 1995 Tri- Area Community Development Plan, the results of the Special Study, the Proposed Irondale/Port Hadlock Urban Growth Area: Dwelling Unit & Population Holding Capacity Analysis, Cascadia Community Planning Services, January 21, 2009, and the specific criteria contained within this element. Land use and zoning designations are as follows: ▶ The Urban Low Density Residential (UGA-LDR) zone will allow housing density from four (4) to six (6) dwelling units per acre. Moderate Density Residential (UGA-MDR) zoning will allow housing at a density of 7-12 units per acre. The High Density Residential (UGA- HDR) zone will allow housing at a density of 13-18 dwelling units per acre. ▶ The Urban Commercial (UGA-UC) zone covers both the existing and planned future commercial development in the Port Hadlock core area and along Rhody Drive from Ness” Corner along the commercial strip fronting SR 19. The Visitor-Oriented Commercial (UGA-VOC) zone is applied to the tourism-oriented potential development area around the Old Alcohol Plant. ▶ The Urban Light Industrial (UGA-LI) zone in the UGA applies to a largely developed industrial area: all but 5 acres are already in light industrial use. These uses are in the southwest corner of the UGA well buffered from the bulk of the residential neighborhoods in the community. ▶ Public facilities (UGA-P) comprise 80 acres, including public park and open space areas, the Library and Chimacum Creek Elementary School, the Jefferson County Sheriff’s Office and Jail, Jefferson County Public Works Department Maintenance Yard, and the JPUD’s Sparling Well facility along Rhody Drive and the Kivley Well in Port Hadlock. Rural zones apply until urban wastewater services are available, and then Urban zones apply. See Exhibit 1-21. LAND USE Jefferson County Comprehensive Plan 1–122 December 2018 EXHIBIT 1-21 Transitional Rural Zoning Source: Jefferson County, 2009. LAND USE Jefferson County Comprehensive Plan 1–123 December 2018 EXHIBIT 1-22 Irondale & Port Hadlock Urban Zoning Source: Jefferson County, 2009. LAND USE Jefferson County Comprehensive Plan 1–124 December 2018 Dwelling Unit & Population Holding Capacity Analysis Planning analysis of the Urban Growth Area’s capacity was conducted in by Community Development staff for the 2018 Comprehensive Plan using the current population allocation from Resolution No. 38-15, and the methodology outlined in the 2009 Cascadia Community Planning Services analysis. The Comprehensive Plan population growth projections for 2018-2038 indicate a 20-year projected growth of 1,516 residents for the Urban Growth Area. The capacity analysis prepared for the 2018 Periodic Update illustrates there is a capacity for new population of 1,518-2,413. Thus, there is capacity to meet the 20-year growth projection. EXHIBIT 1-23 Estimated Total Dwelling Unit & Population Holding Capacity Dwellings Population Estimated Net Additional Capacity of Vacant & Underdeveloped Lands 723– 1,149 1,518– 2,413 Estimated Existing Dwelling Units & Population on Vacant & Underdeveloped Lands 1,380* 2,898 Estimated Holding Capacity Range at Build-Out 2,103–2,529 4,416–5,311 Source: Jefferson County, 2018. * 1,352 in 2016 x 1.06% growth rate from 2010 to 2016 = 1,380 (1261 in “developed areas; 119 in “underdeveloped” areas). Projected population 2038 = 5,394 5,311-5,394 = (83) Housing Variety & Affordability Aside from the extension of sewer, other obstacles to urban development include the size of older semi-rural lots and ownership that make redevelopment difficult. Some solutions could be to offer incentives such as fee reductions or permit fast-tracking for infill housing such as accessory dwelling units. Lot consolidation incentives could include: density bonuses, reduced yards, reduced parking, fee waivers and permit fast-tracking in exchange for implementing lot consolidation. LAND USE Jefferson County Comprehensive Plan 1–125 December 2018 Urban Growth Area Goals & Policies The goals and policies of the Urban Growth Area element provide direction for the development of Jefferson County’s Port Hadlock / Irondale Unincorporated Urban Growth Area. They outline specific criteria for urban development, incorporating issues and opportunities identified by County residents in the public Urban Growth Area planning process. Goal LU-G-30 Provide for the orderly development of urban land uses in urban growth areas consistent with the provision of adequate and feasible urban levels of public facilities and services. Goal LU-G-31 Encourage a balance of commercial and industrial uses for urban-scale and regional-scale economic activities within Urban Growth Areas (Urban Growth Areas). Goal LU-G-32 Provide urban development design that promotes healthy communities through policies that promote healthy lifestyles. ▶ Policy LU-P-32.1 Encourage and facilitate urban regional- scale economic activities in unincorporated Urban Growth Areas which provide for County-wide goods, services, and employment opportunities. ▶ Policy LU-P-32.2 Direct new urban growth into areas that are already characterized by existing urban growth or adjacent to areas characterized by urban growth. Within the confines of the GMA, urban levels of services (capital facilities and infrastructure) should be scaled to the needs of urban growth areas and the ability of businesses, homeowners, workers, and the public to finance them. Examples of urban development design that promotes healthy lifestyles include: ▶Complete Streets planning; ▶Pedestrian friendly developments; and ▶Access to healthy foods, healthcare, and senior care services. Healthy Communities LAND USE Jefferson County Comprehensive Plan 1–126 December 2018 ▶ Policy LU-P-32.3 Ensure future infrastructure improvements are appropriately sized and scaled to the planned population projections and development densities in the County. The level of urban infrastructure must serve the needs of the public, protect the environment and be affordable. Use Health Impact Assessments in the decision-making process of prioritizing capital projects, in order to make progress on healthy community goals. ▶ Policy LU-P-32.4 Encourage growth in the Port Hadlock / Irondale Urban Growth Area commensurate with the appropriate level of urban public facility and service capacities consistent with adopted plans, projections and interlocal agreements. ▶ Policy LU-P-32.5 Plan urban governmental services at urban levels of services prior to or concurrent with development. (See Capital Facilities and Utilities Element for a list of urban public facilities and their adopted levels of service). ▶ Policy LU-P-32.6 Consider Urban Growth Area development plans that allow urban development on septic systems or alternative wastewater treatment systems in a site design process, such as a binding site plan, subdivision or shadow—plat, that ensures future urban development will not be precluded, and develop regulations that facilitate urban infill in areas previously developed or platted at sub urban densities, including multiple accessory dwelling units. ▶ Policy LU-P-32.7 Provide incentives for affordable housing through planned urban densities initially on septic systems. ▶ Policy LU-P-32.8 Provide incentives for efficient development patterns such as lot consolidation. ▶ Policy LU-P-32.9 Consider developing an affordable housing incentives program for the Port Hadlock / Irondale Urban Growth Area per RCW 36.70a.540, as funding allows. ▶ Policy LU-P-32.10 Support legislative efforts to allow tax exemptions for housing in unincorporated Urban Growth Areas for rural counties like Jefferson County. Include support for multifamily tax credits such as federal low income housing tax credits (LIHTC) and project- based vouchers (Section 8). ▶ Policy LU-P-32.11 Periodically review development regulations for potential affordable housing barriers with for-profit and non-profit housing providers and community members. LAND USE Jefferson County Comprehensive Plan 1–127 December 2018 ▶ Policy LU-P-32.12 Consider allowing tiny homes as accessory dwelling units or where mobile home parks are allowed. Adopt tiny home building standards such as Appendix Q, International Residential Code. ▶ Policy LU-P-32.13 Set a walkability standard (for example, a quarter mile) for residential access to daily retail and transit stops in urban areas. Adopt a service standard that can be applied to urban or rural village centers throughout the county. ▶ Policy LU-P-32.14 Incorporate physical activity measures into the design of project evaluation studies, such as multimodal transportation planning, community design, or community health studies.. ▶ Policy LU-P-32.15 Incorporate traffic calming measures where needed to increase pedestrian and bicycle safety. ▶ Policy LU-P-32.16 Facilitate non-motorized transportation and reduce the need for automobile parking in pedestrian use areas through development regulations in the Irondale / Port Hadlock Urban Growth Area. ▶ Policy LU-P-32.17 Support farmer’s markets and farm stands in urban, rural residential, and commercial districts. ▶ Policy LU-P-32.18 Encourage small-scale urban community farming and gardening, consistent with urban plans. ▶ Policy LU-P-32.19 Maximize opportunities to incorporate urban home and community gardens in new development. Allow community gardens to count toward park and open space requirements. ▶ Policy LU-P-32.20 Promote equitable access to food growing opportunities. Identify neighborhoods that are underserved by open space and healthy-eating opportunities, including access to existing urban agriculture resources. Prioritize the development of new urban agriculture sites in low-income and underserved neighborhoods. ▶ Policy LU-P-32.21 Support and expand access to school gardens and safe multi-modal non-motorized transportation facilities around schools. Refer to the Housing Element, Policy HS-P-2.2, and the Housing Action Plan LAND USE Jefferson County Comprehensive Plan 1–128 December 2018 ▶ Policy LU-P-32.22 Provide mixed use development strategies in the commercial centers of the Urban Growth Area to provide housing within walkable distance to services, food, transit, and parks; and to promote neighborhoods that foster interaction. Incentivize mixed- use developments to provide affordable housing. ▶ Policy LU-P-32.23 Identify non-motorized transportation connections that provide opportunities, such as sidewalks and bicycle lanes, for physical activity as key elements to mixed use center planning. ▶ Policy LU-P-32.24 Prioritize the placement of community services in neighborhood centers (i.e. health clinics, childcare centers, senior centers, libraries, educational facilities, etc.). ▶ Policy LU-P-32.25 Coordinate with the respective purveyor, special district, agency, or other entities delivering, or who are anticipated to deliver, urban public facilities and services to ensure that growth and development are timed, phased, and consistent with the provision of adequate urban level facilities and services. The County shall conduct the coordination with other providers during Comprehensive Plan periodic updates when growth allocations or levels of service are revisited, or during the development review process. ▶ Policy LU-P-32.26 Ensure the provision of adequate levels of service for urban public facilities and services. Where the County is not the urban public facility or service provider for the unincorporated Urban Growth Area, the County may adopt an Interlocal Agreement with the appropriate service provider. Such agreements, when utilized, shall include the level of urban public facilities and services. ▶ Policy LU-P-32.27 Recognizing that the Port Hadlock / Irondale Urban Growth Area has a limited amount of undeveloped commercial parcels suitable for attracting and accommodating regional commercial development, conduct periodic evaluation of commercial land needs to ensure the adequacy of commercial zones to provide community goods and services and to promote economic development. ▶ Policy LU-P-32.28 Provide for on-going review and evaluation of the Port Hadlock / Irondale Unincorporated Urban Growth Area to monitor the rate of development, land supply and availability, market conditions, infrastructure implementation and costs in order to identify constraints to growth in the Urban Growth Area and recommend corrective actions, where appropriate. Refer to the Transportation Element, Non-motorized Trail & Standards, and Goal TR-G-4 LAND USE Jefferson County Comprehensive Plan 1–129 December 2018 Urban Level Capital Facilities Goal LU-G-33 Provide infrastructure for the needs of Urban Growth Areas, Master Planned Resorts, and Rural Village Centers, but limit the establishment or expansion of urban-level development and infrastructure to rural residential and small rural commercial crossroads. ▶ Policy LU-P-33.1 Ensure that expansion of urban infrastructure occurs in coordination with designated land uses based on projected growth or land supply needs and will be concurrent with amendments to the comprehensive plan. ▶ Policy LU-P-33.2 Ensure that where the County assumes maintenance responsibilities for infrastructure, the infrastructure is adequately designed to meet the area growth needs and to fulfill the functions the infrastructure is intended to perform. ▶ Policy LU-P-33.3 Require that development provide, plan, or mitigate for, an appropriate level of service for capital facilities including, but not limited to, potable water supply, fire flow, adequate sanitary sewerage treatment and disposal, stormwater management, and roads, including sidewalks where required by adopted urban road standards. ▶ Policy LU-P-33.4 Ensure the planning and implementation of transportation and stormwater management facilities in the unincorporated Urban Growth Area reflects consistency with the goals and policies in the Urban Growth Area Stormwater Management Plan and the Urban Growth Area Transportation Plan adopted as components of this Comprehensive Plan. ▶ Policy LU-P-33.5 Maintain consistency with the Capital Facilities and Utilities Element, as amended. All adopted Level of Service Standards (LOS) for Category A, B and C Public Facilities identified in the Element shall apply to the Port Hadlock / Irondale Urban Growth Area, except as may be modified by or provided for separately in an adopted Urban Growth Area-specific Capital Facility Plan, including the Port Hadlock Urban Growth Area Sewer Facilities Plan, Transportation Plan and Stormwater Management Plan. ▶ Policy LU-P-33.6 In addition to the LOS adopted for public facilities in the Capital Facilities and Utilities Element of this Comprehensive Plan, adopt Urban LOS standards for the following capital facilities and public services in the Port Hadlock / Irondale Unincorporated Urban Growth Area: LAND USE Jefferson County Comprehensive Plan 1–130 December 2018 a. On-Site Septic Sewage Treatment and Disposal: Per Jefferson County Code Chapter 8.15 (On-Site Sewage Disposal Systems) b. Sanitary Sewer: Per the adopted Port Hadlock / Irondale Urban Growth Area General Sewer Plan and Port Hadlock Wastewater Facility Final Design. c. Stormwater Management: Per the Washington Department of Ecology Stormwater Management Manual for Western Washington (DOE Manual), as amended. d. Transportation: Maintain Level of Service standard “D” or better on all road facilities within Urban Areas (Urban Growth Areas) as established by the Peninsula Regional Transportation Planning Organization (PRTPO), based upon Average Annual Daily Trips. e. Jefferson County Public Utility District Urban Growth Area Public Water System Design Criteria Demand Average Daily Demand (466 GPD/ERU) Maximum Daily Demand (933 GPD/ERU) Fire Flow: The adopted Coordinated Water System Plan (CWSP) for Jefferson County establishes the Fire Flow level of service requirements for the Urban Growth Area Water System. The requirements are identified in Table 4-1 of the CWSP, as may be amended. Stormwater Management Goal LU-G-34 Minimize the adverse effects on ground and surface water quality and quantity and protect aquatic resources and habitats from stormwater runoff generated within the Irondale and Port Hadlock Urban Growth Area. ▶ Policy LU-P-34.1 Manage stormwater runoff in the Urban Growth Area in compliance with the Jefferson County Comprehensive Plan and Unified Development Code. ▶ Policy LU-P-34.2 Use the technical standards from the Washington Department of Ecology Stormwater Management Manual for Western Washington to manage stormwater within the Irondale and Port Hadlock Urban Growth Area. ▶ Policy LU-P-34.3 Develop and implement an Irondale and Port Hadlock Urban Growth Area Stormwater Management Program. Water Spout, Jefferson County LAND USE Jefferson County Comprehensive Plan 1–131 December 2018 ▶ Policy LU-P-34.4 Increase the public’s knowledge of stormwater runoff issues and support public involvement in stormwater management by developing and implementing a Stormwater Management Public Education component of the Irondale and Port Hadlock Stormwater Management Program. ▶ Policy LU-P-34.5 Ensure the continued operation of stormwater management facilities by developing and implementing a Stormwater Management Facility Operation and Maintenance component of the Irondale and Port Hadlock Stormwater Management Program. ▶ Policy LU-P-34.6 Ensure that stormwater management activities are effective by developing and implementing a Water Quality Monitoring and Stream Gauging component of the Irondale and Port Hadlock Stormwater Management Program. ▶ Policy LU-P-34.7 Develop a stable and equitable revenue source to fund a Port Hadlock/Irondale Urban Growth Area Stormwater Management Program. ▶ Policy LU-P-34.8 Maintain an inventory of public and private stormwater management facilities within the Urban Growth Area. ▶ Policy LU-P-34.9 Join with State and local agencies and private landowners to plan, finance, and construct regional stormwater management facilities and to remediate existing stormwater management deficiencies. ▶ Policy LU-P-34.10 Minimize adverse stormwater impacts and preserve aquifer recharge by encouraging Low Impact Development design strategies. LAND USE Jefferson County Comprehensive Plan 1–132 December 2018 Transportation Goal LU-G-35 Encourage efficient multimodal transportation systems that are based on regional priorities and coordinated with county and city comprehensive plans, in order to connect people from where they live to where they work, learn and play. ▶ Policy LU-P-35.1 Encourage the use of roadway features that enhance urban qualities by applying urban standards as deemed appropriate in the Urban Growth Area. Make these facilities safe and accessible for all modes of transport, including pedestrians and cyclists. ▶ Policy LU-P-35.2 Require that subdivision and commercial project designs address the following issues: a. Cost effective transit and delivery of emergency services; b. Provisions for all transportation modes, including electric vehicle infrastructure; c. Dedication of rights of way for existing and future transportation needs; d. Motorized and nonmotorized access; e. Sidewalks and bicycle pathways; f. Compatibility between motorized vehicles, pedestrians, bicyclists, and transit users g. Inclusion of transit and bicycle friendly design elements h. Adequate parking for non-peak period; and i. Frontage improvements and roadway features to meet urban design standards within the Irondale-Port Hadlock Urban Growth Area. j. Freight access and mobility ▶ Policy LU-P-35.3 Develop a Complete Streets model to all new construction and redevelopment of roadways in the Urban Growth Area to make roadways accessible for all users, including vehicles, bicyclists, public transportation vehicles and riders, and pedestrians of all ages and abilities. Refer to the Transportation Element, Goals TR-G-4 and TR-G-5. and Appendix C—Transportation Technical Appendix LAND USE Jefferson County Comprehensive Plan 1–133 December 2018 Green Space Planning in Urban Growth Area Goal LU-G-36 Identify and protect open space corridors within and abutting the Urban Growth Area. ▶ Policy LU-P-36.1 Tie non-motorized transportation planning to urban open space planning, and consider connectivity of urban/rural greenways. Identify open space corridors and urban separators. Identify open space lands and corridors within Urban Growth Areas. Consider lands useful for recreation, wildlife habitat, trails, and connection of critical areas per RCW 36.70A.160. ▶ Policy LU-P-36.2 Identify implementation strategies and regulatory and non-regulatory techniques to protect the corridors. ▶ Policy LU-P-36.3 Develop innovative ways to apply gross residential density in areas that have planned greenspace or critical area protection areas. ▶ Policy LU-P-36.4 Develop Transfer of Development Rights program to create a market solution using Urban Growth Area density to protect rural lands and resource areas from conversion. ▶ Policy LU-P-36.5 Explore the potential to conserve an open-space corridor along Chimacum Creek, such as through transfer of development rights and on-site density transfer for properties along the creek. Coordinate efforts with Jefferson Land Trust, Jefferson Conservation District preservation and restoration efforts, and Public Works wastewater treatment facility access planning efforts. LAND USE Jefferson County Comprehensive Plan 1–134 December 2018 1.5 ACTION PLAN Exhibit 1-24 highlights key activities the County can use to implement the Land Use Element over the next eight years (prior to the next periodic update), several in partnership with other entities: EXHIBIT 1-24 Land Use Action Plan Action Description Implement Overlays Address Highway 20 View Corridor Overlay on Zoning Maps and UDC as appropriate. Work with economic development entities on a study and potential location for Highway/Commuter Corridor Overlay. Integrate healthy and active living into system plans and codes Implement goals and policies supporting active living and access to healthy foods, into development plans for UGA, Non-Motorized Transportation & Recreation Plan,, PROS Plan, and into the Unified Development Code. Encourage urban densities in UGAs Address innovative wastewater treatment facilities that do not preclude future urban services. Seek funding for Irondale/Port Hadlock Wastewater Facility Encourage legislative solutions to address needs of rural counties Support the Road Map initiative by the Ruckelshaus Center and other legislative initiatives that address needs of rural counties, particularly affordable housing and living wage jobs. Review LAMIRDS and add additional flexibility to boundaries and uses, meeting GMA requirements. Seek legislative amendments to GMA where appropriate. Economic Development Seek opportunities for additional economic development in Glen Cove. Prioritize Glen Cove and Irondale/Port Hadlock UGA as priority economic development areas. Source: Jefferson County, 2018. Refer to the Economic Development Element for additional information Jefferson County Comprehensive Plan 2–1 December 2018 2 Natural Resources Historically, Jefferson County was almost entirely a resource- extraction based economy. Today, large areas of Jefferson County remain in natural resource production, and the County must balance competing needs for rural economic development, housing capacity, and the long-term sustainability of forestry, agriculture, aquaculture, and mineral extraction activities. Efforts to protect resource lands include regional conservation stewardship programs, and public and private conservation easements. Jefferson County’s forests, agriculture, fish and shellfish are still vital to our community and must be managed and protected for future generations. Jefferson County This element supports the Vision Statement by conserving agricultural and forest working lands, shoreline and mountain vistas, and natural ecosystems, furthering the County’s rural character. Priorities support growing a robust rural economy with living wage jobs based on resource lands, manufacturing, and tourist and recreation-oriented services that benefit the county’s clean quality environment. The element also promotes community safety and well-being through access to nutritious local food, community services, and active recreation that empowers residents to make healthy choices and supports the agricultural economy. Connection to the Vision Statement NATURAL RESOURCES Jefferson County Comprehensive Plan 2–2 December 2018 2.1 PURPOSE The purpose of the Natural Resources element is to classify, protect and enhance the yield and function of Jefferson County’s natural resource lands. Because of the complexity of the issues associated with natural resource lands, several other elements of this Comprehensive Plan interact with the natural resource element: ▶ Land Use Element. Natural resource lands and industries are important components of the county’s rural character and economy. The abundance of natural resources provides a strong sense of place and supports the diverse mixture of livelihoods and lifestyles that make Jefferson County unique. A significant percentage of the land in Jefferson County is in natural resource production. To conserve these lands for productive use by natural resource-based industries, it is essential to maintain large contiguous parcels and ensure the compatibility of surrounding land uses. ▶ Environment Element. Natural resource lands provide important environmental functions, including surface water protection, habitat enhancement, ground water recharge, and carbon sequestration. Significant environmental features on natural resource lands are preserved using best management practices. ▶ Open Space, Parks, and Recreation Element. Forest and agricultural lands provide one aspect of Jefferson County’s open space network that provides important visual and ecological benefits. Recreation services offered by parklands, trails and open space are valuable to County residents and visitors alike because they provide opportunities for meeting social, recreational and cultural needs; economic development; historic and cultural preservation; and for community livability and high quality of life. Natural resource lands are preserved as essential components of the fabric of open space in Jefferson County. ▶ Economic Development Element. Natural resource industries continue to be important sectors of the county’s economy. Despite significant structural changes in these industries in recent decades, they remain essential to a diversified local economy. See the Economic Development Element for additional information about increasing resiliency in agriculture-based jobs by creating value- added products and connecting local goods with local markets. New policies to support and enhance these industries are proposed within this Comprehensive Plan. ▶ Transportation Element. Criteria for agriculture zoning includes consideration of areas that are served by transportation NATURAL RESOURCES Jefferson County Comprehensive Plan 2–3 December 2018 infrastructure adequate to facilitate transport of agricultural goods to markets. Regarding all natural resources, Transportation Goal TR- G-5 states to “ensure the transportation system in Jefferson County includes all modes of transportation, and encourages the efficient movement of goods, services, and passengers in coordination with a statewide system”. 2.2 TRENDS & OPPORTUNITIES Conditions & Trends Jefferson County is fortunate to claim a rich variety of natural resources, including forests, farmland, fisheries and shellfish beds; and deposits of sand, gravel, and minerals. Natural resource industries have played, and will continue to play, a central role in the culture, history, and economy of Jefferson County. These lands also provide aesthetic, recreational, and environmental benefits to the public while contributing to the diverse character of the county. To conserve these resource lands and ensure the continued commercial viability of these industries, three resource land designations have been developed. These designations address the specific needs of each resource industry and meet the guidelines provided by State law. The three major types of resource lands designations in Jefferson County are as follows: ▶ Forest Lands; ▶ Mineral Lands; and ▶ Agricultural Lands. — Aquaculture is a productive activity also addressed along with upland forms of agriculture. Forest Lands Forest lands provide an important and abundant renewable resource in the form of timber, which is milled into lumber and used for the construction of buildings, and other important uses and functions, such as recreation, clean air, and clean water. Timber harvests also provide an important economic benefit to the county by providing jobs and revenue NATURAL RESOURCES Jefferson County Comprehensive Plan 2–4 December 2018 from timber sales, some of which is reserved for public school funding. Small forest land owners can also get help managing their lands for the conservation of natural resource values and for producing value-added forest products, and with approved forest management plans, owners of timber land in single ownership, consisting of five or more acres, may receive a current use taxation tax break. According to the Jefferson County Assessor, approximately 160,922 acres are taxed based on a use classification as Designated Forest Land, and a further 185,683 acres are classified as Washington Department of Natural Resources managed timberlands, mostly in western Jefferson County. In total, these two classifications equal about 346,605 acres. These acreages exclude federal lands, which are not counted because they are outside of any state or local jurisdiction’s control. Of the total acreage zoned forest lands by Jefferson County (CF-80, RF- 40, IF), approximately 40% is privately held forest land and approximately 60% is in public ownership. Of the public ownership category, approximately 99% is owned by Washington Department of Natural Resources. A majority of the forest lands in East Jefferson County are privately owned, and a majority of the forest lands in western Jefferson County are publicly owned. Mineral Lands Mineral lands provide an important non-renewable resource in the form of sand, gravel, and hard rock basalt. These resources are used in a variety of applications, such as making concrete, restoring beaches, and providing gravel for roads. Mining interests have remarked that the County’s gravel deposits are of very high quality (ANSI “perfect”, a materials engineering standard from the American National Standards Institute), which means it is highly useful for roadway and other construction activities without further processing. Washington Department of Natural Resources (DNR) records 13 active surface mining permits in Jefferson County, primarily concentrated in eastern Jefferson County, though two are in western Jefferson County along the Hoh River. In addition to these sites under active production, the United States Department of Agriculture Natural Resource Conservation Service (NRCS) has classified extensive areas in both the eastern and western county as potential source areas for sand and gravel based on soil characteristics. NRCS classifies each soil unit in its soil surveys as a “good,” “fair,” or “poor” source for these mineral resources. A breakdown of acres in each category for sand and gravel sources is shown in Exhibit 2-1. Related to western Jefferson County Related to western Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–5 December 2018 EXHIBIT 2-1 NRCS Potential Mineral Source Soils NRCS Mineral Source Acres Sand Rating “Good” 10,889 Rating “Fair” 67,239 Subtotal 78,128 Gravel Rating “Good” 0 Rating “Fair” 60,896 Subtotal 60,896 Total 139,024 Source: USDA NRCS, 2017. These soils, which could potentially serve as source areas for future sand or gravel extraction, are mapped in Exhibit 2-5. Surface soil characteristics and other proxy indicators identify sub-surface geology providing initial data for mineral resource mapping. This preliminary information needs to be refined with other data sources. Much of Jefferson County’s forest resources have potential mineral resource value. The forest resource designation provides another level of land use resource protection for unidentified mineral resources within the County. The Department of Community Development and mining interests have periodic discussions regarding mineral resource mapping and locations. Since the County does not have financial resources to conduct independent geological surveys of County-specific resources, available state and federal data sources need to be considered along with ongoing public-private communications. As part of comprehensive planning under the Growth Management Act, a periodic review of potential mineral resource lands of long-term commercial significance is done by the County based upon our available data sources. While sand, gravel, and rock are currently the only mineral resources permitted for active surface extraction in Jefferson County, a variety of other minerals have been recorded in the county, including the following: ▶ Oil and Natural Gas: DNR has recorded the presence of 29 oil and natural gas wells in Jefferson County—all in western Jefferson County. These wells consist mostly of exploratory drillings, and records show generally poor oil and gas showings at most locations. Roughly half of these wells were drilled between 1930 and 1940, and no new wells have been drilled since 1981. None are known to be producing. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–6 December 2018 ▶ Metallic Minerals: DNR metallic assay records show isolated occurrences of copper and gold on federal lands in the interior of the county, as well as Abbey Island on the Pacific coast. Manganese deposits have also been recorded in the eastern county, primarily on federal lands and in the Dosewallips River valley. USGS Mineral Resources Data System shows 31 historical mineral mines (metallic and non-metallic) located in Jefferson County. ▶ Non-Metallic Minerals: DNR records also indicate scattered occurrences of non-metallic mineral resources, including diatomite (a chalky sedimentary rock), limestone, marble, quartz crystal, and peat. The recorded locations of these resources are mapped in Exhibit 2-5. Agricultural Lands Agricultural lands are an essential and valued part of Jefferson County’s food system, both for local production and export to other areas. To identify areas that are suitable for agricultural use, the United States Department of Agriculture (USDA) assigns classifications to farmland soils based on their physical and chemical characteristics and potential for production. Prime Farmland is land that has the best combination of characteristics for agricultural production and is not urban in nature. Farmland of Statewide Importance is quality farmland that does not meet the criteria to be classified as prime farmland, but still has the capability to produce high crop yields when managed appropriately. Exhibit 2-2 shows the acreage of each USDA farmland classification present in Jefferson County. EXHIBIT 2-2 Jefferson County Farmland Classifications Farmland Classification Acres Prime Farmland 35,542 Prime Farmland if drained 16,923 Prime Farmland if irrigated 10,577 Prime Farmland if drained and either protected from flooding or not frequently flooded during the growing season 796 Farmland of Statewide Importance 209,818 Total 273,656 Source: USDA NRCS, 2017. Most of Jefferson County’s Prime Farmland soils are in the river valleys of western Jefferson County, particularly along the Hoh and Queets rivers, NATURAL RESOURCES Jefferson County Comprehensive Plan 2–7 December 2018 and in the coastal areas south of La Push. Prime Farmland soils in the eastern county are concentrated in the Dosewallips River valley near Brinnon, in the area around Quilcene, and in the area along Snow Creek between Discovery Bay and Crocker Lake. The Chimacum and Beaver Valley areas contain extensive soils that qualify as Prime Farmland if properly drained, and these areas are home to most of the county’s actively cultivated cropland. Eastern Jefferson County also possesses large areas designated as Farmland of Statewide Importance. While these soils may not possess the same physical and chemical characteristics as Prime Farmland soils, they are suited to many types of agricultural activities and represent a valuable potential resource. Aquaculture Resources According to the 2012 USDA Census of Agriculture, while the number of commercial aquaculture operations in Jefferson County was small, they accounted for more than half of the agricultural commodity value produced in the county. Aquaculture is a preferred, water-dependent use of regional and statewide interest that is important to the long-term economic viability, cultural heritage, and environmental health of Jefferson County. Water quality is both an input and output of Aquaculture. Aquaculture requires high water quality for growing; however, this may impact the overall water quality, such as increased nutrient loads. Aquaculture includes commercial and recreational shellfish farming and harvesting, predominantly bivalve mollusk species. In-water finfish farming is conditionally allowed in some shoreline designations by the Jefferson County Shoreline Master Program (SMP), though the SMP discourages non-native finfish farming except in limited areas, and the State is phasing out certain net pen uses. Advancing technology is increasing the feasibility of upland fish farming. Fish hatcheries are operated by state, tribal and federal entities and are not under the purview of Jefferson County. Challenges & Opportunities Forest Lands Forestry has a long history in Jefferson County, and large areas of the unincorporated county are devoted to timber production. Forest resource-based industries at Gardiner and in western Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–8 December 2018 have been designated as Resource Based Industrial (RI) zones to recognize active sawmills and related activities at those sites. If an expansion of forest-based industrial activity occurs, additional RI zoning may be appropriate. It is a challenge to maintain the necessary level of forestry infrastructure with the cyclic nature of the forest industry. The forest industry also experiences challenges from changes in natural resource regulations or enforced regulations like the Endangered Species Act. New forest management strategies may also be necessitated by long-term changes in climate, resulting in moisture and fire frequency changes. The County has historically faced challenges managing the interface between forest lands and residential areas and ensuring that both resource production and the needs of rural residents are protected. The County established a Forest Transition Overlay (FTO), which was originally intended to minimize conflicts between forestry and adjacent rural residential uses, but as written, it is not widely applicable in the County, and it has never been implemented on any specific property. Because the FTO has not been shown to effectively respond to the challenge of managing the forestry/rural residential interface, it is no longer addressed in the policies of this plan. The U.S. Navy’s Readiness and Environmental Protection Integration (REPI) program, has proposed to purchase development rights in strategic areas of Jefferson County, much of which are natural resource lands, in order to preempt types of future development that could conflict with critically important Navy missions.. The County has continued interest in the REPI program, as available, and seeks to collaborate with the Navy to identify strategic areas that meet the dual intentions of the program. Mineral Resources Mineral resource extraction activities in Jefferson County are not widespread, but the county contains significant resources that should be protected for future use. A primary challenge associated with mineral resources is that many of the areas with potential extraction value also fall under the umbrella of agriculture or forest resource lands. At present, the Mineral Resource Lands overlay covers a relatively small area compared to the extent of potential mineral resources available in the county. This Comprehensive Plan includes policies to ensure that mineral lands of long-term significance are adequately protected for long-term use and management, even if they are not actively under production in the short-term. The County will also continue to refine its mineral lands inventory to capture all mineral resources of long-term significance. Refer also to the Land Use Element for additional information on natural resources and zoning NATURAL RESOURCES Jefferson County Comprehensive Plan 2–9 December 2018 Agriculture While agriculture is a vital part of Jefferson County’s economy and culture, barriers to the economic sustainability of farming in the county continue to arise. In recent years, the number of individual farms has trended upward, including a rise in total commodity values. However, sales have decreased per farm, as the local industry transitions towards smaller targeted farm operations. As land values continue to rise, starting and maintaining a productive, profitable farm is challenging for many Jefferson County farmers. An additional challenge, Water Resources Inventory Area 17 (WRIA-17), which is located primarily in Jefferson County, is considered by the State Department of Ecology to be one of the 16 critical “water short” basins in the State of Washington (Washington Department of Ecology, 2018). To ensure that agriculture remains an economically viable option for Jefferson County residents, ongoing planning efforts should fully leverage existing tools and resources and consider novel approaches to address the challenges faced by the county’s agricultural community, such as: ▶ Increasing enrollment in the Current Use Taxation Program to reduce property taxes; ▶ Additional agricultural conservation measures, such as new zoning overlays, agricultural production districts, or transfer of development rights programs; ▶ Innovative farm ownership and operation models, such as cluster development or cooperative farms; ▶ Water conservation and water banking possibilities in areas that may become water-limited. The large extent of local agriculture in Jefferson County makes us uniquely situated to provide healthy, local agricultural goods to our communities. This opportunity has been articulated in related elements of the Comprehensive Plan relating to local agricultural food products, opportunities for local markets, and our community’s access to healthy food as one component of a healthy lifestyle. See related information in the Economic Development Element. Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–10 December 2018 The Community Health Improvement Plan (CHIP) is a community plan to address Jefferson County’s primary health priorities of: Access to Mental Health and Chemical Dependency Care; Chronic Disease Prevention; Access to Care; and Immunizations. The importance of this relationship between local agriculture and community access to healthy food is rooted in chronic disease prevention. According to the CHIP, “healthy eating and active living contribute to decreasing the risks of chronic diseases and the related health outcomes. Many social and environmental factors influence the diet and exercise choices individuals make: built environment, knowledge, skills, social support, policies, cost, access, safety, etc.” Policies of this Comprehensive Plan support the agricultural community in developing local food systems and local food partnerships. These, in turn, increase our community’s access to local, healthy food and improved health outcomes. The Community Health Improvement Plan (CHIP) is addressed in the following Elements: Land Use Land Use & Public Health Natural Resources Open Space, Parks & Rec. Challenges & Opportunities Environment Environmentally Friendly Development Techniques Transportation Active Living Community Health Improvement Plan NATURAL RESOURCES Jefferson County Comprehensive Plan 2–11 December 2018 2.3 NATURAL RESOURCES PLAN Under GMA, designation and classification of resource lands should be approached as a county-wide or regional process, rather than a site-by- site determination. Of particular importance are lands of long-term commercial significance for forest, agriculture, and mineral lands. The GMA identifies resource lands activities and charges the Washington Department of Commerce with developing guidelines for their classification. Criteria for the designation of forest, mineral, and agricultural lands are established in RCW 36.70A.050 and Chapter 365- 190 WAC and summarized below by resource land type. Forest Lands Under GMA, forest resources lands are designated based on the following three factors: ▶ The land is not already characterized by urban growth; ▶ The land is capable of being used for forestry production or is already in use for this purpose; and ▶ The land has long-term commercial significance, determined using the Washington Department of Revenue private forest land grade classification system. (WAC 365-190-060) To conserve the forest resource land base in Jefferson County and maintain the forestry industry while recognizing the diversity of forest landowners, Jefferson County has established the following forestry zoning districts: ▶ Commercial Forest Lands (CF-80): The purpose of the commercial forest district is to ensure large tracts of forest lands of long-term significance are protected from incompatible uses thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity. ▶ Rural Forest Lands (RF-40): The purpose of the rural forest district is to ensure forest lands of long-term significance are protected from incompatible uses thereby sustaining the ability of forest resource extraction activities to be maintained as a viable commercial activity, while allowing for diversity in the size of forest tracts. ▶ Inholding Forest Lands (IF): This district encompasses parcels at least 20 acres in size that are entirely surrounded by designated NATURAL RESOURCES Jefferson County Comprehensive Plan 2–12 December 2018 forest resource lands. While important for the preservation of forestry lands, lands in the IF zone are not necessarily forest lands of long- term significance due to their smaller parcel sizes (20 acres). Together, these three zoning districts account for more than 76% of unincorporated areas in Jefferson not under Federal, State, or Tribal jurisdiction. Exhibit 2-3 shows a breakdown of acreage in each of the forest lands zones. EXHIBIT 2-3 Forest Lands Zoning Zoning District Acres Commercial Forest (CF-80) 309,493 Rural Forest (RF-40) 12,204 Inholding Forest (IF-20) 7,250 Total 328,947 Source: Jefferson County GIS, 2018. Regulations governing the designation of forest land, the allowed uses within Forest land zones, as well as performance and development standards for these lands can be found in the Jefferson County Code, sections 18.15, 18.20, and 18.45. Mineral Lands Under GMA, mineral resource lands are designated based on the following criteria (WAC 365-190-070): ▶ Counties and cities classify mineral resource lands based on geologic, environmental, and economic factors, existing land uses, and land ownership. It is expected that mineral resource lands will be depleted of minerals over time, and that subsequent land uses may occur on these lands after mining and reclamation is completed. Counties and cities may approve and permit land uses on these mineral resource lands to occur after mining is completed. ▶ Counties and cities should classify lands with potential long-term commercial significance for extracting at least the following minerals: Sand, gravel, and valuable metallic substances. Other minerals may be classified as appropriate. ▶ When classifying these areas, counties and cities should use maps and information on location and extent of mineral deposits provided by the Washington Department of Natural Resources, the United NATURAL RESOURCES Jefferson County Comprehensive Plan 2–13 December 2018 States Geological Service and any relevant information provided by property owners. Counties and cities may also use all or part of a detailed minerals classification system developed by the Washington Department of Natural Resources. ▶ Classifying mineral resource lands should be based on the geology and the distance to market of potential mineral resource lands, including: — Physical and topographic characteristics of the mineral resource site, including the depth and quantity of the resource and depth of the overburden; — Physical properties of the resource including quality and type; — Projected life of the resource; — Resource availability in the region; and — Accessibility and proximity to the point of use or market. ▶ Other factors to consider when classifying potential mineral resource lands should include three aspects of mineral resource lands: — The ability to access needed minerals may be lost if suitable mineral resource lands are not classified and designated; and — The effects of proximity to population areas and the possibility of more intense uses of the land in both the short and long-term, as indicated by the following:  General land use patterns in the area;  Availability of utilities, including water supply;  Surrounding parcel sizes and surrounding uses;  Availability of public roads and other public services; and  Subdivision or zoning for urban or small lots. — Energy costs of transporting minerals. GMA also requires that counties evaluate future needs for mineral resources and ensure that access to mineral resources of long-term commercial significance is not knowingly precluded. Mineral extraction should be a priority land use for all designated mineral resource lands. Jefferson County has designated mineral resource lands as an overlay to the underlying land use designation. An overlay is used because mining operations are eventually depleted, and sites are restored for other uses, and thus the Mineral Lands designation is not permanent. Upon completion of mining operations and following the reclamation of the site, the overlay is removed, and the site is subject to the underlying land use designation depicted on the Land Use map. Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–14 December 2018 To be designated as new mineral resource lands for future extraction, lands must have the following characteristics: ▶ They appear to contain the resource, based upon information supplied by the Washington Department of Natural Resources; ▶ They are not primarily constrained by critical areas, for example, the 100-year flood plain or high-quality wetland areas; and, ▶ They are at least 80 acres in size, of which one forty (40) acre parcel or two twenty (20) acre parcels are currently vacant. The Mineral Resource Lands overlay currently covers approximately 2,339 acres, mostly in the eastern county, which represents less than 2% of the NRCS mineral source soils mapped in Jefferson County. Most of the county’s potential gravel source lands are in the Commercial Forest (CF- 80) zone, and sand source lands are concentrated primarily in the Commercial Forest (CF-80) and Rural Residential (RR-20) zones. Regulations governing the classification and designation of mineral lands, allowed, and prohibited uses, and performance and development standards for these lands can be found in the Jefferson County Code, sections 18.15, 18.20, 18.30, and 18.45. Agricultural Lands Agriculture is not just important as a resource but is essential to modern human life. Not only does the GMA mandate the protection of agricultural lands, farmland conservation is a centerpiece of that legislation. Under GMA, agricultural resource lands are designated based on the following criteria (WAC 365-190-050): ▶ The land should not already be characterized by urban growth. ▶ The land is being used or is capable of being used for agricultural production. Factors to consider include whether the physical conditions are well-suited to agriculture. Soil conditions are important considerations, but some agricultural operations are less dependent on soil quality than others. — Lands currently used for agriculture and those capable of being used for such must be evaluated for designation, and land enrolled in federal conservation programs is recommended for inclusion. — The land capability classification system of the USDA Natural Resource Conservation Service shall serve as a primary indicator of agricultural capability. “It ought to be obvious that in order to have sustainable agriculture, you have got to make sustainable the lives and livelihoods of the people who do the work. The land cannot thrive if the people who are its users and caretakers do not thrive. Ecological sustainability requires a complex local culture as the preserver of the necessary knowledge and skill; and this in turn requires a settled, stable, prosperous local population of farmers and other land users.” —Wendell Berry, Author, from “Bringing It to the Table: On Farming and Food” Importance of Agriculture Resources NATURAL RESOURCES Jefferson County Comprehensive Plan 2–15 December 2018 ▶ The land has long-term commercial significance for agricultural production. Counties and cities should consider the following factors, as applicable: — Presence of prime and unique farmland soils; — Availability of public facilities and services; — Water availability; — Tax status, such as enrollment in a current use taxation program; — Relationship or proximity to urban growth areas, — Predominant parcel size; — Land use settlement patterns and compatibility with agriculture, including intensity of nearby land uses and history of nearby development permits; — Value of the land under alternative uses; and — Proximity to markets. Jefferson County is committed to protecting limited agricultural lands, as well as promoting agriculture as the key component of a strong local food system, which has multiple benefits to the economy, emergency preparedness, health of local citizens, and ecosystem services. Successful, commercial agriculture can be practiced on many types of soils, through a variety of environmentally sound means, on small parcels as well as large, and in all zoning classifications in the county. Small ventures that simply augment family income are valuable to both the land owner and the whole community. To conserve the agricultural resource land base in Jefferson County and maintain the farming industry while recognizing the diversity of agricultural land owners, Agricultural Lands of Long-Term Commercial Significance consist of two designations: ▶ Prime Agricultural Lands (AP-20)—The purpose of the prime agricultural lands zoning classification is to protect and preserve areas of prime agricultural soils for the continued production of commercial crops, livestock, or other agricultural products requiring relatively large tracts of agricultural land. It is intended to preserve and protect the land, environment, economy, and lifestyle of agriculture in Jefferson County. These lands must be protected as “agricultural lands of long-term commercial significance.” — Criteria for Designation: AP-20  Meet all criteria for agricultural production capability established in WAC 365-190-050 and consist, in substantial proportion, of land with prime agricultural soils as defined by the Natural Resources Conservation Service’s Soil Survey of Jefferson County, Washington; and Refer to Transportation Element, Goal TR-G-5 NATURAL RESOURCES Jefferson County Comprehensive Plan 2–16 December 2018  Is located in rural areas served by transportation infrastructure adequate to facilitate transport of agricultural goods to market; and  Is in an area characterized by a substantial proportion of undeveloped parcels of land 20 acres or greater in size; and  Is outside of any area designated as Master Planed Resort (MPR) or Urban Growth Area (UGA); and  Is in an area where no existing land uses are present that would seriously interfere with the successful long-term practice of a range of agricultural activities; and  Does not include land currently designated Rural Forest (RF- 40) presently in a parcel size 40 acres or larger, or Commercial Forest (CF-80) or Inholding Forest (IF). ▶ Agricultural Lands of Local Importance (AL-20)—The purpose of the agricultural lands of local importance is to protect and preserve parcels of land which, while not necessarily consisting of prime agriculture soil or relatively large acreage, are still considered important to the local agricultural economy, lifestyle, and environment. As such they deserve protection as “agricultural lands of long-term commercial significance. To preserve and stimulate agricultural diversity and to maintain an undeveloped land base for future agricultural use, the owner of a parcel may petition the County for designation as Agricultural Land of Local Importance. When the owner of a parcel or an aggregate of parcels petitions successfully for rezone to agriculture, the land shall be considered Agricultural Land of Long Term Commercial Significance, and as such, it shall be afforded the rights and protections of natural resource land. — Criteria for Designation: AL-20  The land is located away from existing land uses that would interfere with agricultural practices; and  The land is located outside any area designated as Master Planed Resort (MPR) or Urban Growth Area (UGA) and is not characterized by urban development; and  The land is physically and topographically suitable for the practice of commercial agriculture; and  Is located in rural areas served by transportation infrastructure adequate to facilitate transport of agricultural goods to market; and  If currently designated as Rural Forest (FR-40), the land is already platted into 20 acre of smaller parcels; and  The land is not currently designated as Commercial Forest (CF-80) or Inholding Forest (IF). NATURAL RESOURCES Jefferson County Comprehensive Plan 2–17 December 2018 Regulations governing the designation of agricultural lands, the allowed and prohibited uses, as well as performance and development standards for these lands can be found in the Jefferson County Code, sections 18.15, 18.20.030 (“Ag Code”), 18.30, and 18.45. Agricultural activities, as a use of land, are considered a matter of right in all land use zones and not subject to land use permits or approval from the administrator. Agricultural zoning is implemented using the criteria above, and agricultural zoning is not allowed by GMA in Urban Growth Areas. Examples of the types of agricultural-related activities regulated under JCC 18.20.030 and permittable on Agricultural zoned land include: ▶ Agricultural-related accessory uses that support, promote, or sustain agricultural operations and production such as, — Storage and refrigeration of regional agricultural products; — Production, sales, and marketing of value-added agricultural products derived from regional sources; — Supplemental sources of on-farm income that support and sustain on-farm agricultural operations and production; — Support services that facilitate the production, marketing, and distribution of agricultural products; and — Off-farm and on-farm sales and marketing of predominantly regional agricultural products and experiences, locally made art and arts and crafts, and ancillary retail sales or service activities. ▶ Permanent and/or seasonal farm worker housing. ▶ Agritourism. Agriculturally related activities designed to bring the public to the farm on a temporary or continuous basis, such as U- Pick farm sales, retail sales of farm products, farm mazes, pumpkin patch sales, farm animal viewing and petting, wagon rides, farm tours, horticultural nurseries and associated display gardens, cider pressing, wine or cheese tasting, etc. ▶ Classes and Schools related to agriculture. ▶ Veterinary clinics and hospitals. ▶ Farm Restaurants. ▶ Campgrounds. ▶ Tourist lodging. ▶ Guide services. ▶ Commercial display gardens. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–18 December 2018 Agricultural zoned land is also eligible to participate in the County’s Open Space Tax Program for reduced property tax rates. Owners of agricultural land can receive technical assistance from the Jefferson County Conservation District, and Washington State University (WSU) Extension. Aquaculture Resources Because land use activities upslope of aquatic areas can affect water quality and other parameters of a healthy aquatic system, the County recognizes the importance of responsibly managing land adjacent to commercially designated aquaculture resource areas, as well as subsistence and recreational harvest areas. The Department of Commerce does not issue guidelines for the classification of aquaculture resource lands. However, GMA does define agriculture as including finfish in upland hatcheries in RCW 36.70A.030(2): “…land primarily devoted to the commercial production of horticultural, viticultural, floricultural, dairy, apiary, vegetable, or animal products or berries, grain, hay, straw, turf, seed, Jefferson County’s SMP identifies aquaculture as an important water dependent use along shorelines for its rural economy as well as to ensure it develops in a sustainable manner. An excerpt of policies includes: 18.25.440 (1) (a) Aquaculture is a preferred, water-dependent use of regional and statewide interest that is important to the long-term economic viability, cultural heritage and environmental health of Jefferson County. (b) The county should support aquaculture uses and developments that: (i) Protect and improve water quality; and (ii) Minimize damage to important nearshore habitats; and (iii) Minimize interference with navigation and normal public use of surface waters; and (iv) Minimize the potential for cumulative adverse impacts, such as those resulting from in-water structures/apparatus/ equipment, land-based facilities, and substrate disturbance/modification (including rate, frequency, and spatial extent). (c) When properly managed, aquaculture can result in long-term ecological and economic benefits. The county should engage in coordinated planning to identify potential aquaculture areas and assess long-term needs for aquaculture. This includes working with the Department of Fish and Wildlife (DFW), the Department of Natural Resources (DNR), area tribes and shellfish interests to identify areas that are suitable for aquaculture and protect them from uses that would threaten aquaculture’s long-term sustainability. More detailed policies are included in the SMP about aquaculture location and operation. Aquaculture in Shorelines NATURAL RESOURCES Jefferson County Comprehensive Plan 2–19 December 2018 Christmas trees not subject to the excise tax imposed by RCW 84.33.100 through 84.33.140, finfish in upland hatcheries, or livestock, and that has long-term commercial significance for agricultural production.” (RCW 36.70A.030(2)) Because aquaculture is a water-dependent use primarily located in shoreline areas, policies and regulations related to aquaculture are addressed in the County's Shoreline Master Program (JCC 18.25.440). The SMP includes several policies noting the importance of aquaculture and how it may be developed and operated in an environmentally sensitive and economically viable manner. Upland aquaculture outside shoreline jurisdiction is governed by the County’s zoning code. Upland aquaculture may qualify as agriculture of long-term significance according to criteria in WAC 365-190. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–20 December 2018 EXHIBIT 2-4 Map of Forest Resource Lands Source: Jefferson County GIS, 2018. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–21 December 2018 EXHIBIT 2-5 Map of Mineral Resource Lands Source: USDA NRCS, 2017; Washington DNR, 2018; Jefferson County GIS, 2018. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–22 December 2018 EXHIBIT 2-6 Map of Agricultural Resource Lands Source: USDA NRCS, 2017; Jefferson County GIS, 2018. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–23 December 2018 2.4 GOALS & POLICIES The goals outlined below provide a general direction for both the conservation of Jefferson County’s natural resource lands and the enhancement of resource-based industries. These goals are based on the requirements of the GMA, which outlines specific criteria for the conservation of natural resource lands element, and on the issues and opportunities identified by county residents. The Natural Resource Lands policies will provide the basis for a review of the development standards contained in the Jefferson County Forest, Mineral, and Agricultural Lands Ordinances and other regulations as implementing activities following adoption of this Comprehensive Plan. Goal NR-G-1 Encourage the conservation and long term sustainable use of resource lands so their continued future use will not be precluded by other uses; and encourage the long-term sustainability of natural resource-based economic activities throughout Jefferson County. ▶ Policy NR-P-1.1 Support resource-based economic activities that comply with applicable federal, state, and local regulations. ▶ Policy NR-P-1.2 Support cooperative resource management among natural resource landowners, environmental groups, state, federal and tribal governments. ▶ Policy NR-P-1.3 Consider incentive programs to support resource- based economic activities in rural areas. ▶ Policy NR-P-1.4 Locate natural resource-based economic activities throughout rural areas in close proximity to designated agricultural, forest or mineral resource lands upon which they are dependent. ▶ Policy NR-P-1.5 As part of the Comprehensive Plan Update Periodic Review Process under the Growth Management Act, regularly review and update the inventories and designations of forest, mineral, and agricultural resource lands of long-term commercial significance in Jefferson County to ensure that all such designated lands meet requirements of state law, and are available into the future. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–24 December 2018 Goal NR-G-2 Encourage resource-based economic activities, including markets for ecosystem services, that are compatible with environmental quality. ▶ Policy NR-P-2.1 Ensure resource-based practices do not cause cumulative adverse impacts, and ensure they mitigate adverse impacts to the environment and adjacent properties. ▶ Policy NR-P-2.2 Work with stakeholders in cooperative processes to evaluate direct, quantifiable ecosystem services provided by Jefferson County’s natural resources, the prospects of participating in economic markets for these services, and the County’s role in developing markets. Participate with existing broad-scale planning groups that define uniform standards, characterize and locate areas providing ecosystem services, describe their economic value, examine prospects for markets; and participate at a county level to provide market-based conservation and stewardship based land use plans and actions. ▶ Policy NR-P-2.3 Explore incentives that encourage compliance with "best management practices" by resource-based economic activities. Goal NR-G-3 Conserve and protect Forest Resource Lands for long-term economic use and environmental and health benefits. ▶ Policy NR-P-3.1 Encourage the continued diversity and scale of forestry lands and management practices, and the full utilization of forest lands as a natural, environmental, and economic resource. ▶ Policy NR-P-3.2 Consider parcels designated as Forest Land in common ownership separated by a public right-of-way as a single parcel. ▶ Policy NR-P-3.3 Allow commercial forest management and harvest, mineral extraction, sand and gravel operations, and inert landfills, consistent with State law, on designated commercial forest lands. ▶ Policy NR-P-3.4 Support and facilitate the improvement of state and local environmental regulations affecting the forest products industry in order to improve operational predictability, minimize regulatory costs to forest land owners, and encourage protection of the forest environment and surrounding watersheds. Carolyn Gallaway Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–25 December 2018 ▶ Policy NR-P-3.5 Promote the concept and practice of community forestry, where forest land owners are assisted in properly managing their forests for conservation and natural resource value, as well as value-added economic development. ▶ Policy NR-P-3.6 Encourage small forest land owners to use the Washington Department of Natural Resources Small Forest Land Office and other educational and management assistance providers, to help forest land owners manage their property. ▶ Policy NR-P-3.7 Promote the use and experimentation of new forest management practices through the DNR and University of Washington School of Forestry’s Olympic Natural Resources Center in Forks. ▶ Policy NR-P-3.8 Recognize and support Firewise and similar programs as part of any educational or management effort to prevent fire destruction, and promote the conservation of forest lands. Goal NR-G-4 Minimize potential conflicts between forest management activities and land use activities within or adjacent to designated forest lands. ▶ Policy NR-P-4.1 Restrict the extension of service areas of utility local improvement districts, fire districts, or sewer, water, or public utility districts into designated Forest Lands. ▶ Policy NR-P-4.2 Cooperate with the Washington Department of Natural Resources, forest landowners, and the general public in management of forest lands. Goal NR-G-5 Encourage the continuation of forestry on lands which are not designated as commercial forest resource lands. ▶ Policy NR-P-5.1 Endorse the use of Forest Management Plans and the planting of a diversity of native trees, especially trees like Western red cedar, red alder, and Western white pine that are resistant to laminated root rot. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–26 December 2018 Goal NR-G-6 Conserve and protect Mineral Resource Lands for long-term economic use, while providing for mitigation of potential adverse impacts associated with mineral extraction and processing operations. ▶ Policy NR-P-6.1 Work with Washington Department of Natural Resources to develop standards and guidelines to identify and address the impact of mining operations on adjoining properties. Conditions placed on mining uses should not have the intent of rendering mining operations economically unfeasible. ▶ Policy NR-P-6.2 Evaluate small mining operations to determine when the cumulative impact of small operations becomes a significant adverse impact upon the land or upon adjacent lands. ▶ Policy NR-P-6.3 Preserve water resource quality and quantity in the regulation of mineral extraction activities. ▶ Policy NR-P-6.4 Designate mineral resource lands as follows: — Mineral Lands of Long-Term Commercial Significance: Properties that have been approved with a mineral resource lands overlay consistent with JCC 18.15.170 and those properties actively being mined for commercial production in compliance with State and County permits, as appropriate. — Provisional Mineral Lands: Areas known to be potential sources of valuable mineral resources, including sand, gravel, stone, or rock, but not included in the MRLO overlay and not in production. These areas include:  Maps and information provided by the Washington Department of Natural Resources, the United States Geological Service, and any relevant information provided by property owners;  Lands classified by NRCS as “good” sources of sand, gravel, or road fill material; and  Lands classified by NRCS as “fair” sources of sand, gravel, or road fill material, and which are located outside cities and urban growth areas. ▶ Policy NR-P-6.5 The provisional mineral resource designation is an interim measure to protect mineral resources until the presence of a commercially viable mineral deposit can be verified through a geologic study. — Property owners who wish to finalize designation of their property and undertake mining activities may submit a study by a qualified geologist indicating the presence of commercially NATURAL RESOURCES Jefferson County Comprehensive Plan 2–27 December 2018 significant, accessible mineral resources and request a mineral lands overlay. Likewise, property owners may request removal of their property from the provisional mineral lands designation by submitting a study from a qualified geologist confirming the absence of such resources. — The County may evaluate whether non-mineral lands activities on the provisionally designated areas may foreclose the potential for mineral extraction and request a study of development applicants. The county may condition uses to ensure that significant deposits are not foreclosed over the long term. Goal NR-G-7 Ensure, through Washington Department of Natural Resources reclamation plans, that County mineral resource lands are restored to safe and useful condition with enhancement and mitigation of damage to the function and aesthetics of the environment and subsequent land uses. ▶ Policy NR-P-7.1 Ensure that County-required reclamation plans preserve the safety, function and value of adjacent lands including aesthetic and environmental and water resource values. ▶ Policy NR-P-7.2 Encourage reclamation plans that provide enhanced public value such as parks, playgrounds, open space, trails, wetlands, and fish and wildlife habitat. ▶ Policy NR-P-7.3 Encourage reclamation that occurs on an ongoing basis as mineral deposits are depleted. Goal NR-G-8 Conserve and protect the agricultural land base and its associated economy and lifestyle. ▶ Policy NR-P-8.1 Support the conservation of agricultural land through prioritization and protection of parcels large enough to maintain viability of agricultural use, tax incentive programs, the purchase or transfer of development rights, and other methods developed in cooperation with agricultural landowners and managers and stakeholders. ▶ Policy NR-P-8.2 Coordinate with local, state and federal agencies and organizations to encourage conservation of productive agricultural land through best management practices, including soil and water conservation, drainage, and livestock waste management programs. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–28 December 2018 ▶ Policy NR-P-8.3 Investigate water conservation and water banking possibilities in areas that may become water-limited. ▶ Policy NR-P-8.4 Support the preservation of family owned farms by discouraging the conversion of these lands to other uses. ▶ Policy NR-P-8.5 Support the work of Washington State University Cooperative Extension, and the Jefferson County Conservation District, for technical and marketing assistance for small-scale commercial farmers. ▶ Policy NR-P-8.6 Collaborate with partners such as North Olympic Development Council (NODC), Washington State University (WSU), and Jefferson County Conservation District to assess likely impacts of climate change on agriculture and to develop mitigation and adaptation strategies suited to Jefferson County’s soils and farm economy. ▶ Policy NR-P-8.7 Consider an Agricultural Production District overlay for lands in cultivation that are not zoned for agriculture to promote continued production and flexible tools, such as clustering. ▶ Policy NR-P-8.8 Analyze the benefits and feasibility of new or revised development regulations to implement cluster development in rural and resource areas, such as in association with cooperative/joint ownership farming operations. ▶ Policy NR-P-8.9 In lieu of subdividing agricultural zoned lands, explore innovative zoning techniques, as described under RCW 36.70A.177, to help facilitate the availability of more affordable farm land and create opportunities to expand the market for local food. ▶ Policy NR-P-8.10 Consider allowing tools that support current and new generation farmers with access to land and housing. Goal NR-G-9 Conserve and protect lands covered with water, aquaculture resources & the lands that sustain them, and associated facilities in order to ensure a long-term commercial and recreational resource base. ▶ Policy NR-P-9.1 Refer to the Shoreline Management Plan, JCC 18.25.440(1) for all policies related to aquaculture in Jefferson County. Jefferson County NATURAL RESOURCES Jefferson County Comprehensive Plan 2–29 December 2018 2.5 ACTION PLAN Exhibit 2-7 highlights key activities the County can use to implement the Natural Resources Element over the next eight years (prior to the next periodic update), several in partnership with other entities: EXHIBIT 2-7 Natural Resources Action Plan Action Description Forest Resource Lands Remove the Forest Transition Overlay (FTO) District Concept from the Unified Development Code. Update UDC to remove the FTO, which was originally established to minimize conflicts between forestry and adjacent rural residential uses, but is not widely applicable in the County, has never been implemented, has not responded to any conflicts, nor shown to be protective of natural resources. Mineral Resource Lands Mineral Lands Inventory and Assessment Detailed review of available data on mineral resources in Jefferson County, including assessment of economic impact of mineral extraction and projected future needs. Establish baseline inventory of lands to be protected for future mineral resource extraction. Refine and expand mineral lands overlay to capture all areas of long-term commercial significance. Agricultural Lands Conservation Agricultural Use Regulation Review Evaluate current development regulations for agricultural activities and accessory uses to address land supply and affordability challenges for local farmers. Agricultural Community Outreach Continue and strengthen communication with Jefferson County agricultural producers, including the Jefferson County Local Food System Council regarding innovative methods to grow the local agricultural economy and conserve farmland. Local Food Systems and Public Health Local Food Partnerships Work with the Jefferson County Local Food System Council, Jefferson County Public Health, Community Health Improvement Plan, local schools, and other community groups to identify opportunities to strengthen Jefferson County’s local food system. Source: Jefferson County, 2018. NATURAL RESOURCES Jefferson County Comprehensive Plan 2–30 December 2018 [ This page intentionally blank ] Jefferson County Comprehensive Plan 3–1 December 2018 3 Housing Jefferson County continues to exist as a rural region that provides ideal lands for outdoor recreation, conservation, and resource- based jobs. While the approximately 31,000 residents highly value this enviable “quality of life” there is an existing and growing lack of affordable housing for many sectors of the population, especially for the moderate, low, and very-low income households. Since 2010, the county’s average annual growth rate has been nearly 0.6% lower than the 1.6% experienced in prior decades. Even with Jefferson County’s current low growth rate, the shortage of attainable housing is not reconciled. The condition of average housing prices being beyond what average wages can attain has been documented over the last two decades in state and local reports, including the Port Townsend/Jefferson County Housing Action Plan (2006). Despite a general national recovery from the Great Recession, defined by the period of 2007-2009, rural areas nationally had a slower and longer recovery period that stretched well into 2012, with complete recovery unlikely to happen in some communities at all. As the lack of affordable housing grows, we must consider a growing list of interrelated factors that influence affordable housing outcomes beyond just housing stock. To develop appropriate housing policies for Jefferson County, this Element discusses a few of these factors such as This element supports the Vision Statement by supporting affordable and attainable housing across incomes, abilities, and ages through innovations and flexibility in housing. The element encourages a variety of housing options that benefits overall community vitality and offers opportunities for all residents to thrive. Connection to the Vision Statement Carolyn Gallaway HOUSING Jefferson County Comprehensive Plan 3–2 December 2018 the economy, jobs, wages, and influences of vacation rentals and seasonal homes on housing stock. 3.1 PURPOSE The purpose of the Housing Element is to ensure the vitality and character of residential neighborhoods by assessing existing and future needs for housing in Jefferson County, so that housing is available for all economic segments of the community now and in the future. Existing residential patterns, demographic trends and projected population growth typically provide the basis for this assessment. Considering significant and growing gaps in rural economic development and affordable and available housing, the Housing Element periodic update will closely align with: ▶ Economic Development: moderately-priced housing is critical to support job creation and expansion ▶ Capital Facilities/Utilities and Transportation Elements: additional housing is best planned for where there are existing or planned utilities, transit/transportation routes and other community levels of service ▶ Land Use Element: land use designations and implementing development standards are key to supporting housing goals and policies. This Element addresses the range of housing opportunities and the challenges that confront Jefferson County in providing affordable housing options now and over the 20-year planning period. The County will work cooperatively with public and private housing providers to create and maintain safe and attractive housing stock and encourage the siting and development of affordable housing. 3.2 TRENDS & OPPORTUNITIES Jefferson County’s residents occupy a range of housing types including private individual single-family residences (9,848), mobile homes and manufactured units (2,890), multi-family complexes, including duplexes, condominiums, and apartments (365). (Washington State Office of Financial Management 2017) Throughout Jefferson County, accessory Refer to Land Use Element, Section 1.4 Urban and related goals and policies Refer to Transportation Element, Non-motorized Trail & Standards HOUSING Jefferson County Comprehensive Plan 3–3 December 2018 dwelling units (ADUs) are allowed in all residential zones; the exact contribution of ADUs to overall housing stock in the county is not known. A recent phenomenon in the short-term, transient housing market is on- line Web advertising for short term or vacation rentals (e.g., VRBOs— vacation rentals by owner, Airbnb). While short-term rentals support tourism and provide income for homeowners, they reduce year-round housing supply for permanent residents contributing to rising rent. While the County does not have specific data regarding the short-term transient housing market, state and private data sources can be analyzed developing basic assumptions for Jefferson County. In addition to a lack of data, web-based short-term transient rental companies often sidestep local jurisdiction’s regulatory framework, further aggravating holistic policy approaches. Based on the county-wide planning policies adopted by Jefferson County and the City of Port Townsend, approximately 36% of all new population growth is targeted to occur in the City of Port Townsend, which is currently the County’s single incorporated Urban Growth Area (UGA). The City of Port Townsend’s Comprehensive Plan calls for a range of household sizes, housing types and densities. The City of Port Townsend possesses urban levels of planned density and is supported by urban levels of services such as municipal wastewater treatment. Housing development at higher densities in the County’s unincorporated areas are possible in the Port Hadlock/Irondale UGA. Urban housing densities, however, are stymied by a lack of municipal wastewater treatment. Substantial work has been completed to develop this infrastructure. A sewer facility plan was prepared in 2008 and received state review and approvals along with site design, engineering, and a financing plan. Construction of the Port Hadlock/Irondale UGA wastewater treatment project has not begun; however, the property was purchased. The project is construction-ready when funding is available and the County is actively pursuing available sources.. For the 2018 periodic update, consideration is given to options that help in the planning and development of housing in the Port Hadlock/Irondale UGA while funding and resources continue to be sought for a sewer system. The City of Port Townsend and Port Ludlow are presently the only two communities that have level of service standards that would accommodate the density, services, and other criteria for locating multi- family residential housing. The Port Hadlock/Irondale UGA is planning for a sewer service area that will meet requirements for higher density housing. Jefferson County contains a predominately-rural residential land use pattern. This pattern allows single-family dwellings throughout a HOUSING Jefferson County Comprehensive Plan 3–4 December 2018 majority of Jefferson County. The Port Ludlow Master Planned Resort, future Pleasant Harbor Master Planned Resort, Port Hadlock UGA, and Rural Village Centers of Brinnon and Quilcene provide opportunities for greater densities and the creation of multi-family housing units, depending on available infrastructure. Since the last Comprehensive Plan update in 2004 and continuing for the 2018-2038 planning period, population growth is expected to occur at a rate of approximately 1% annually. There is sufficient undeveloped, under-developed and vacant land available to accommodate future housing needs on a gross unit basis. While there is sufficient undeveloped rural residentially-zoned land in the unincorporated county, the barriers to adding to the county’s housing stock in a way that provides affordability is constrained by the minimum acreage for creation of new parcels (five acres), land costs, and utility creation/installation costs and availability (legally available water supply and affordable on-site waste water treatment). These factors are principle contributors to a well-documented “affordable housing crisis.” Refer to the Economic Development Element for additional information about addressing housing needs as an economic development strategy. HOUSING Jefferson County Comprehensive Plan 3–5 December 2018 1. For planning purposes the definition of “affordable housing” is: Those housing units available for purchase or rent to individuals or families with a gross income between the federally recognized poverty level and the median income for working families in Jefferson County; and who’s costs, including utilities, would not exceed 36% of gross income. 2. The provision of affordable housing is acknowledged as a general public need and will be addressed in Jefferson County through private sector programs and projects. Local government should not assume a direct role in the ownership or administration of public assisted housing to meet low income needs, rather this should be left to private, non-profit or quasi-public entities. 3. The housing and/or land use elements of comprehensive plans will include an assessment of land available and the process of siting special purpose housing (such as homeless shelters, group homes, etc.), to ensure that such housing can be accommodated. 4. A sufficient quantity of land will be appropriately zoned or designated to accommodate a wide range of housing types, densities and mixtures. Multi-family housing should only be located with UGAs or rural centers. 5. An affordable housing strategy will be developed as part of the housing element of the comprehensive plan. This affordable housing strategy will examine existing regulations and policies to identify opportunities to encourage the previous of affordable housing mechanisms such as accessory dwelling units (“mother-in-law”) or efficient apartments, density bonuses, mitigation fees waivers, priority permit processing and the like. 6. Each UGA shall accommodate its fair share of housing affordable to low and moderate income households according to its percentage share of the county population and by promoting a balanced mix of diverse housing types. 7. Undeveloped land owned by the public entities will be inventoried and those that are appropriately located should be considered for development of low income housing. Consideration of assembling these parcels for development by non-profit housing organizations or private developers should be encouraged. 8. The housing element will include criteria for locating higher density residential areas near public facilities and services, commercial services, arterial or within walking distance of jobs or transit. County-wide Planning Policy #6 Policy on the Provision of Affordable Housing HOUSING Jefferson County Comprehensive Plan 3–6 December 2018 Some selected statistics on Jefferson County housing, household types and housing affordability appear below. EXHIBIT 3-1 Housing Units by Type, 2017 Source: Washington State Office of Financial Management, 2017. ▶ About 75% of the county’s housing stock consists of single-family homes, which is typical in a rural county and particularly a county that attracts investments in second homes for retirement. ▶ Another 17% of the county-wide stock consists of manufactured or mobile homes. ▶ About 8% of the county-wide stock includes two or more attached units. ▶ The unincorporated county’s share of housing shows more mobile homes than Port Townsend, and Port Townsend has a greater share of two or more attached units. ▶ One of the key means of protecting affordability is retaining older housing stock. About 40% of the county’s housing stock was built prior to 1980. Another 40% of the county’s housing stock was built from 1980-1999. Only about 20% of the stock has been built since the year 2000 reflecting the slower rate of county growth in more recent years. (ACS 2012-2016) HOUSING Jefferson County Comprehensive Plan 3–7 December 2018 EXHIBIT 3-2 Household Type, County-wide Source: ACS, 2012-2016. ▶ Jefferson County’s households consist of about 60% who are married or single parenting with children. However, about 30% live alone and another 10% live in a non-family household (e.g. roommates or unmarried). Many of the 40% of households without children are anticipated to include retirees. ▶ As children grow and as life stages evolve, housing needs may change. Forms of housing that may be more attractive as households shrink in size, or as interest and ability in maintenance change, include: smaller single-family lots, townhomes, accessory dwelling units, planned unit developments, etc. Single parents may also prefer these other housing styles for affordability as well. HOUSING Jefferson County Comprehensive Plan 3–8 December 2018 EXHIBIT 3-3 Age, 2016 & 2040 Source: ESD, 2017. ▶ Jefferson County has a much higher share of persons aged 60 or older compared to the state. By 2040 that share may decrease but is still expected to be high. ▶ Per US Census and American Community Survey data, in 2010, the county’s share of retirement aged persons 65+ was 26.3% in 2010 growing significantly to 34.7% by 2016. ▶ Jefferson County has the highest median age in the State of Washington at 53.9 years, with a negative natural increase—deaths outpacing births. Population increase is attributed primarily to migration (2016 Population Trends, OFM). ▶ Meeting the housing needs of an aging population will be an increasingly important issue in the next 20 years. ▶ Seniors may desire single-family homes at retirement age, but as their abilities and needs change, other forms of housing with smaller lots, townhomes, or assisted living may be attractive for maintenance and affordability purposes. Since these forms of housing are denser and encouraged in the UGA they would have more access to healthcare and other supportive services. HOUSING Jefferson County Comprehensive Plan 3–9 December 2018 EXHIBIT 3-4 Median Household Income Location Median Household Income 2006-10 2011-15 U.S. $55,938 $67,864 State $61,681 $74,702 Jefferson $49,617 $64,612 Note: 2014 (inflation-adjusted dollars) Source: ESD, 2017; ACS 2010 and 2015. ▶ County median incomes lag that of the state and US. EXHIBIT 3-5 Unemployment Rate, Jan 2014-Dec 2016 Location Three-Year Average Washington State 5.7% Jefferson County 7.5% Source: Federal Bureau of Labor Statistics, 2017; ESD, 2017. ▶ The county’s unemployment rate is underperforming the state for several years in a row and exceeds 6.8%, which is considered distressed. EXHIBIT 3-6 Poverty, 2011-15 Location All Individuals Children (<18 years old) U.S. 15.5% 27.8% State 13.3% 21.2% Jefferson 12.0% 20.4% Source: U.S. Census, ACS 2015, ESD, 2017. ▶ The county’s poverty rate is slightly lower than the state or US though still high at 12%, and about 20% of children live in poverty. ▶ Attracting higher-wage jobs is a Jefferson County goal to improve employment opportunities and to support attainment of affordable housing. ▶ Providing opportunities for workforce housing developments that are affordable to workers earning low and median incomes is a Jefferson County goal. Providing a range of housing types is part of an economic development strategy to retain and attract businesses. HOUSING Jefferson County Comprehensive Plan 3–10 December 2018 Housing Affordability & Attainability Cost burdened households are those spending 30% or more of their income on housing and earning less than 80% of the county median income. Based on US Housing and Urban Development information based on the 2009-2013 5-year estimates by the American Community Survey, over 17% of homeowners and 47% of renters are cost-burdened in Jefferson County. There is a gap in the supply of affordable housing to lower incomes. There is only a fraction of housing available to households requiring less than 30% of their income (17 of every 100 units are available and attainable with 30% or less of a household’s income). Going to 50% or less of a household’s income, there are still only 32 of every 100 units that are attainable at that share of income. (Washington State Affordable Housing Advisory Board, 2015)Employers in Jefferson County report they cannot attract and have difficulty retaining qualified workers due to limited housing supply, including limited affordable housing stock. In addition, employees are finding housing appropriate to their needs only at increasing distances from work, many times outside of the County. Economic impacts from this trend are discussed in the Economic Development Element. Promoting housing variety and greater density in land use and zoning regulations, particularly in UGAs, and securing funding for supporting capital facilities such as sewer or alternative wastewater technologies can help address housing supply and affordability concerns going forward. Another challenge to housing supply and attainability may include short-term rentals. Year round about 75% of units are occupied and about 25% are vacant. Seasonally, the population grows in summer months and the shoulder spring and fall seasons. The almost 25% of vacant units are likely occupied by second-home owners, and a share is used as short-term rentals. Use of housing for short-term rentals can help the homeowner with their mortgage costs; however, if homes are purchased with the primary purpose to rent them on a short-term basis, that can lower the supply of housing and increase costs for permanent residents. Other communities have developed polices and regulations designed to ensure short- term rentals are registered and located in areas that are less disruptive to year-round residents. (MRSC, 2016) Transient housing includes hotels, bed & breakfasts, boarding homes, rooming homes, and short-term rentals (e.g., AirBnB/VRBO). Transient Housing HOUSING Jefferson County Comprehensive Plan 3–11 December 2018 Port Hadlock Housing Assisted Housing Programs & Resources in Jefferson County Jefferson County participates and supports area programs that provide housing assistance to income-limited families and individuals and to other special needs groups. The Peninsula Housing Authority, Olympic Community Action Programs and other public and private, non-profit groups provide assistance in the form of funding, services, rental assistance, home rehabilitation and/or homeownership help. Based on recent data, there are insufficient funds and resources to serve all individuals and households that qualify for housing assistance. There is a well-documented lack of affordable rental apartments and houses. The lack of affordable rental units means that households that qualify for rental assistance cannot find homes and apartments whose rent meets “fair market rates.” Another challenge to planning and developing affordable housing is the desired proximity that is needed to services that help the county’s most vulnerable populations including the low- income elderly, disabled Veterans, disadvantaged youth, and persons with mental and/or physical disabilities. HOUSING Jefferson County Comprehensive Plan 3–12 December 2018 Homelessness The Annual Point in Time Count found 187 homeless in Jefferson County on January 26, 2017 Homelessness in Jefferson County is a very real problem not confined to any one sector of the county’s population. Homelessness occurs in a variety of ways. Some families or individuals experience job loss, reduced household income, domestic violence, increases in housing, living and medical costs and other displacing events. Some become suddenly homeless and others may be chronically homeless. Homelessness includes those that are accommodated in emergency shelters, stay temporarily with family or friends or other transitory housing or are “unsheltered” living on the streets, in forested areas, in vehicles or other conditions that do not provide safe shelter. Homelessness is a condition found in Jefferson County as well as across the state. The Washington Department of Commerce summaries of Point In Time Counts for Jefferson County show total homeless counted for years 2015, 2016, and 2017 as 272, 181, and 187 respectively. Of these totals, the average number of sheltered homeless for the three year period of point-in-time counts was 75. This condition impacts children. All school districts documented some level of student homelessness, particularly in the Quillayute Valley, but also in Chimacum and Port Townsend. Jefferson County’s current regulations do not support transitory accommodations, temporary encampments, or other ways to provide additional options for temporary housing for the homeless. This update will include goals and policies that address a variety of means to provide shelter and supportive services to transition the homeless and other vulnerable populations to more permanent housing. There are several types of housing that address immediate shelter needs and those that allow a stepping stone to permanent housing: Transitory Accommodations—Variety of temporary housing (usually < 1 year) to serve the immediate needs of homeless people, which may include temporary shelters or camping facilities at a developed or undeveloped property, recreational vehicle site, safe parking lot, et cetera. Transitional Housing—Shelter-to-housing, temporary (e.g. 1-3 years) housing that also provides network or social services or training; foster care Temporary Housing for the Homeless HOUSING Jefferson County Comprehensive Plan 3–13 December 2018 3.3 HOUSING PLAN A Ten Year Plan to End Homelessness in Jefferson County was drafted by Olympic Community Action Programs (OlyCAP) in 2011, which documents homelessness in Jefferson County from the annual Point In Time Count. This plan provides information about multiple programs providing support to community efforts for people at risk of becoming homeless, such as permanent and temporary housing search/assistance programs for the homeless and rental assistance programs. The 2017 Point In Time Count was lower than previous years; however, it is assumed that the lower 2017 counts relate to systematic issues relating to counting the homeless population within the County. Priorities of the 2015 plan Ending Homelessness in Jefferson County include: Move people into housing first; Stop discharging people into homelessness (healthcare or justice systems); Improve outreach to homeless people; Emphasize permanent solutions through innovative partnerships; Maintain and preserve the existing supply of affordable housing; Increase the supply of permanent supportive housing; Make the rental assistance system more effective; Increase economic opportunity for homeless people; Implement and utilize new data-collection technology throughout the homeless services system; and Identify and fill gaps in the system. With consideration of the 2015 Ending Homelessness plan priorities and how the County can participate with housing agencies and stakeholders, the Housing Element addresses the following: ▶ Remove potential barriers to housing ▶ Create additional housing opportunities ▶ Seek and promote funding sources to retain and add housing Some of the potential actions toward solutions include: ▶ Convene or participate in an ad-hoc local panel of for-profit and non- profit developers and housing stakeholders to consider barriers to implementing diverse and affordable housing types. HOUSING Jefferson County Comprehensive Plan 3–14 December 2018 ▶ Evaluate short-term rentals and consider policies to ensure a sufficient housing supply for year-round residents. ▶ In the Port Hadlock/Irondale UGA, allow some development activity on alternative wastewater treatment systems. ▶ In the Port Hadlock/Irondale UGA, offer incentives and fee waivers for infill housing. Creating additional housing opportunities includes: ▶ Consider allowing tiny homes as ADUs or where co-housing or mobile home parks are allowed. ▶ Allow Homestead Parcels for resource lands and potentially agricultural activities on larger lots in rural areas. ▶ Evaluate the development of a housing incentives program for Urban (Port Hadlock/Irondale) and Rural areas per RCW 36.70A.540. ▶ Explore alternative, GMA compliant, development and performance standards that define bonus residential densities by measuring the reduced levels of resource use and reduced adverse ecological impacts relative to those associated with conventional development. This would be similar to the Planned Rural Residential Development standards, but would provide potential density bonuses to projects with smaller acreages. Funding sources may include: ▶ To incentivize development of multifamily dwellings in the Port Hadlock/Irondale UGA, advocate the legislature for multifamily tax exemptions in unincorporated UGAs in smaller rural counties, where they are now only allowed in large incorporated UGAs and counties with large populations. ▶ Support Commerce’s Low-Income Home Rehabilitation Revolving Loan Program for rural property owners. ▶ Support expansion of federal tax credit programs, such as the Low- Income Housing Tax Credit (LIHTC). HOUSING Jefferson County Comprehensive Plan 3–15 December 2018 3.4 GOALS & POLICIES Safe, affordable housing is a fundamental need for all citizens in Jefferson County. Jefferson County communities are strong, vibrant, and healthy when there is safe and reliable housing that meets the full range of income levels, household sizes, preferences, and needs. Jefferson County citizens’ average household incomes have not kept up with increasing prevailing housing costs. The result is a widespread lack of safe and affordable housing for many county residents and especially for populations with special needs. Community engagement in the 2018 periodic update reflect a strong desire for improved housing opportunities on a county-wide basis to address affordability, homelessness, and improved access to economic opportunities. Goal HS-G-1 Encourage and support efforts to increase housing availability for county residents of all income groups. ▶ Policy HS-P-1.1 Identify locations where housing development can be promoted and work with inter-jurisdictional and public-private cooperative groups to increase a broad spectrum of housing supplies including market-rate homes, moderately-priced homes, and housing for lower income households. ▶ Policy HS-P-1.2 Assess the progress of County-wide Planning Policy #6 to better document successes, challenges, and opportunities to inform housing programs, the development community and housing advocacy groups. ▶ Policy HS-P-1.3 Update codes and development standards that preserve existing higher densities and improve housing development and redevelopment opportunities in County Urban Growth Areas (UGAs), Rural Village Centers (RVC), Rural Crossroads (CC), and Master Planned Resorts (MPR). ▶ Policy HS-P-1.4 Provide public and private, non-profit housing assistance programs with information on areas where moderate-to- low income housing can be accommodated based on zoning, existing lot density, access to transit, jobs, or other support services. Refer to Land Use Element, Section 1.4 Urban and related goals and policies Refer to Transportation Element, Public Transit HOUSING Jefferson County Comprehensive Plan 3–16 December 2018 ▶ Policy HS-P-1.5 Support the Peninsula Housing Authority, Habitat for Humanity, and Olympic Community Action Programs, in their efforts to assist income-limited households with funding for home repairs and other housing rehabilitation assistance, including support for multifamily tax credits such as federal low income housing tax credits (LIHTC) and project-based vouchers (Section 8), ▶ Policy HS-P-1.6 Through zoning, incentives, and other strategies, encourage the development of housing affordable to the county’s workforce across all incomes. These housing types may include single family dwellings with a variety of lot sizes, manufactured homes, clustered homes, co-housing, accessory dwelling units, townhouses, apartments, or other forms appropriate to the urban or rural location. Promote workforce access to services and transportation options for commuting. Goal HS-G-2 Promote a variety of housing choices throughout the county with innovative land use practices, community redevelopment strategies, development standards, design techniques, and building and infrastructure permit requirements. ▶ Policy HS-P-2.1 Explore regulatory opportunities that help minimize costs to developing affordable housing while ensuring that public health, safety, and environmental quality standards are not compromised. ▶ Policy HS-P-2.2 Encourage and support greater opportunity for the development of innovative housing types to increase the inventory of affordable housing throughout the county. Work cooperatively with public and private housing experts on community redevelopment strategies, residential mixed-use development, single and multi- family attached housing, accessory dwelling units, duplexes, triplexes, apartment houses, mixed-use, senior, and multi-care facilities, community housing, farm worker housing, tiny homes, etc. Encourage development patterns such as clustering in Rural Village Centers and Urban Growth Areas, provided adequate infrastructure and services are in place. ▶ Policy HS-P-2.3 Pursue demonstration and pilot projects that document the safety and reliability of innovative technologies such as composting toilets, gray water systems, site-specific nutrient management plans, water conservation, and net zero energy systems that minimize housing development costs, reduce environmental impacts, and provide more affordable housing options throughout the county. Refer to Land Use Element, Section 1.4 Urban and related policies HOUSING Jefferson County Comprehensive Plan 3–17 December 2018 ▶ Policy HS-P-2.4 In response to the critical lack of affordable housing, work with stakeholders to initiate housing developments in the Port Hadlock Urban Growth Area and other established rural employment areas allowing higher residential density to be served by more inexpensive wastewater treatment options than a traditional public sanitary sewer facility. . ▶ Policy HS-P-2.5 Review and revise development standards and land use codes to allow for manufactured home parks, other types of residential parks such as parks for tiny homes, and community land and housing trusts in order to increase housing supplies. ▶ Policy HS-P-2.6 Consider development standards that would provide bonus densities in return for providing a percentage of low or moderate-income housing units for multi-unit residences in the Irondale/Port Hadlock Urban Growth Area and Rural Village Centers.. ▶ Policy HS-P-2.7 Reference the Transportation, Capital Facilities, Utilities, and Urban Growth Area Elements of this Plan for public facilities planning in connection to planning for affordable housing development sites. ▶ Policy HS-P-2.8 Consider developing an affordable housing incentives program for Urban (Port Hadlock/Irondale) and Rural areas consistent with RCW 36.70A.540. ▶ Policy HS-P-2.9 In the Port Hadlock/Irondale UGA, allow some development activity on alternative community wastewater treatment systems that do not preclude future hook-up to traditional sewer ▶ Policy HS-P-2.10 In the Port Hadlock/Irondale UGA, offer incentives and fee waivers, as funding is available, for infill housing such as ADUs and for lot consolidation. ▶ Policy HS-P-2.11 To support the Port Hadlock/Irondale UGA, advocate the legislature for multifamily tax exemptions in unincorporated UGAs in smaller rural counties. ▶ Policy HS-P-2.12 Support Commerce’s Low-Income Home Rehabilitation Revolving Loan Program for rural property owners. Port Hadlock Properties, PHA (top) and Zillow (bottom) HOUSING Jefferson County Comprehensive Plan 3–18 December 2018 Goal HS-G-3 Develop and maintain partnerships with the housing assistance programs, and other public and private groups and agencies to support maintenance and rehabilitation of existing housing stock and provide new and affordable housing opportunities. ▶ Policy HS-P-3.1 Support weatherization, housing rehabilitation and energy conservation activities and programs to ensure households are safe and well maintained for low-income households. ▶ Policy HS-P-3.2 Coordinate with the Peninsula Housing Authority and other groups and agencies to identify areas most in need of rehabilitation assistance and infrastructure improvements. To the extent possible, coordinate public investments in capital infrastructure with rehabilitation efforts. ▶ Policy HS-P-3.3 Reinvigorate cooperative City of Port Townsend- County coordination regarding affordable housing, low-income and special needs household assistance and regulatory updates to support affordable housing development throughout Jefferson County. Determine and fund staffing and other resources necessary to sustain continuous coordination regarding affordable housing. Goal HS-G-4 Pursue housing programs that address homelessness and encourage the development of housing for people with special needs (individuals who require assistance for disabilities that may be physical, medical, social, or psychological). ▶ Policy HS-P-4.1 Allow for a continuum of care for special needs populations, in UGAs and Rural Village Centers, including emergency housing, transitory accommodations, transitional housing, assisted living, group homes, developmental disability housing, senior housing and low-income housing. ▶ Policy HS-P-4.2 Encourage and support the development and implementation of a transitory accommodation permitting process that considers the variety of transitory accommodations that may be deployed, for single-family, small and large indoor and outdoor transitory accommodations in cooperation with willing public and private landowners. HOUSING Jefferson County Comprehensive Plan 3–19 December 2018 ▶ Policy HS-P-4.3 Coordinate with Olympic Community Action Programs, the Peninsula Housing Authority, nonprofit housing providers, and other public and private housing interests to ensure that low income and special needs housing is sited in locations that are adequately served by necessary support facilities and infrastructure. 3.5 ACTION PLAN Exhibit 3-7 highlights key activities the County can use to implement the Housing Element over the next eight years prior to the next periodic update, several in partnership with other entities: EXHIBIT 3-7 Housing Action Plan Action Description Remove Potential Barriers to Housing Convene or participate in an ad-hoc local panel of for-profit and non-profit developers and housing stakeholders to determine if procedural or market barriers need to be addressed to encourage forms of housing already allowed, such as ADUs, co-housing, and manufactured/mobile home parks. Evaluate short-term rentals using available local and state data sources. Determine if a registration program and limits on numbers, zones, or locations are appropriate to help ensure a sufficient housing supply for year-round residents. In the Port Hadlock/Irondale UGA, allow some development activity on alternative wastewater treatment systems. In the Port Hadlock/Irondale UGA, offer incentives and fee waivers, as funding is available, for infill housing such as ADUs and for lot consolidation. Participate in planning efforts with other jurisdictions and housing stakeholders to address housing affordability and homelessness, and convene an ad-hoc local panel of for-profit and non-profit developers and housing stakeholders to determine if procedural or market barriers are causing impediments to implementing housing types that are innovative or higher density. Evaluate short-term rentals. To ensure such uses do not further restrict the housing supply for year-round residents, the County could examine the prevalence of short-term rentals and determine if a registration program and limits on numbers, zones, or locations are appropriate. HOUSING Jefferson County Comprehensive Plan 3–20 December 2018 Action Description Create additional housing opportunities Evaluate the overall role and purpose of emergency, transitional, and affordable housing categories—including types of structures such as tiny homes—and evaluate their place within housing strategies, including opportunities, locations, and consequences. Consider allowing tiny homes as ADUs or where co-housing or mobile home parks are allowed, and by adopting International Residential Code standards addressing tiny homes. Allow Homestead Parcels for resource lands and potentially agricultural activities on larger lots in rural areas. A minimum parent parcel size, and siting criteria, may need to be set to ensure that this allowance does not interfere with goals of supporting agriculture. Evaluate the development of a housing incentives program for Urban (Port Hadlock/Irondale) and Rural areas to advance housing variety and affordability per RCW 36.70A.540. Seek and promote funding sources to retain and add housing Advocate the legislature for multifamily tax exemptions in unincorporated UGAs in smaller rural counties. Pursue multi-family tax credits, especially at the federal level such as low income housing tax credit (LIHTC) and project-based vouchers (Section 8) Support Commerce’s Low-Income Home Rehabilitation Revolving Loan Program for rural property owners. Determine how the County can help educate rural property owners about the program. Source: Jefferson County, 2018. Jefferson County Comprehensive Plan 4–1 December 2018 4 Open Space, Parks & Recreation, Historical & Cultural Preservation While the GMA does not require comprehensive plans to include a parks and recreation element absent state funding, the goals of the GMA include retention of open space, enhancement of recreational opportunities, development of parks and recreation facilities, and preservation of significant historical and cultural sites. Further, the County has a Parks, Recreation, and Open Space (PROS) Plan (2015) that sets forth the County’s system plan and helps the County’s eligibility for funding. The Jefferson county Parks, Recreation, and Open Space plan is adopted by reference. This element draws from the system plan and connects land use and parks planning together to support healthy active lifestyles for county residents, supports the County’s tourism and recreation economic sector, and maintains the county’s rich cultural heritage. This element supports the Vision Statement by promoting active recreation, and networks of trails, bikes lanes, and paths that support the agri-tourism economy and empower residents to make healthy choices. Additional concepts encourage collaboration with Tribes and appropriate agencies to identify and preserve cultural resources and character within the County. Policies are in place to ensure that government-to-government collaboration and consultation with local tribes is regular and ongoing. Connection to the Vision Statement Jefferson County OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–2 December 2018 4.1 PURPOSE Parks and recreational opportunities are important to quality of life in Jefferson County, and a key goal of this Comprehensive Plan is to classify, protect, and enhance parks and open space lands. The purpose of this element is to link them to a county-wide network, develop goals and policies to meet the demand for these facilities and services consistent with GMA, and to incorporate by reference and integrate the Jefferson County Parks, Recreation & Open Space (PROS) Plan Update (2015) with the County’s overall comprehensive planning framework. The purpose of the Historical and Cultural Preservation component of this element is to encourage the preservation of historical and pre- European contact sites, structures and artifacts through designation criteria and review processes. 4.2 TRENDS & OPPORTUNITIES Conditions & Trends The Jefferson County Parks and Recreation system includes a variety of lands and facilities under the management of County, City of Port Townsend, school district, State, and Federal agencies. Approximately three-fourths of all land in Jefferson County is publicly owned, most notably the Olympic National Park and the Olympic National Forest. Combined, these two areas cover nearly 2 million acres in central Jefferson County. Land owned by Washington State Parks, the Washington State Department of Fish and Wildlife, and the DNR comprises an additional 5,000 acres of public recreational areas and 10 miles of shoreline. Parks owned and managed by Jefferson County are summarized in Exhibit 4-1. A detailed inventory of parks and recreation facilities, including parks, trails, community centers, and open space is contained in the Jefferson County Parks, Recreation, and Open Space Plan (PROS Plan), which was updated in 2015. OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–3 December 2018 EXHIBIT 4-1 Jefferson County Parks Parks Acres Location Neighborhood Parks County Courthouse Park 2.0 Port Townsend Irondale Community Park 3.0 Port Hadlock Quilcene River & Bay Park East 2.0 Quilcene Subtotal 7.0 County/Community Parks Bob Bates Field 12.0 Port Hadlock Cape George Trailhead 43.0 Port Townsend Chimacum County Park 14.0 Chimacum East Beach County Park 1.0 Marrowstone Island Hicks County Park in Shine 1.0 Port Ludlow Irondale Beach County Park 12.5 Port Hadlock Lake Leland County Park 9.0 Quilcene North Beach County Park 1.0 Port Townsend Quilcene County Park 8.0 Quilcene Quilcene Sports Park/Smackman Field 14.0 Quilcene Subtotal 115.5 Regional Parks Beausite Lake County Park & NW Kiwanis Camp 30.0 Chimacum Gibbs Lake County Park & Trails 601.0 Chimacum H.J. Carroll County Park & Trail 50.0 Chimacum Larry Scott Trail 7.0 (8.5 mi) Port Townsend Oak Bay County Park Lower 30.0 Port Ludlow Oak Bay County Park Upper 5.0 Port Ludlow Subtotal 723.0 Natural Open Space Indian Island County Park & Trail 140.0 Port Hadlock Broad Spit County Park 43.8 Quilcene Subtotal 183.8 Special Use Areas Jefferson County Memorial Athletic Field 5.0 Port Townsend Jefferson County Fairgrounds 27.7 Port Townsend Jefferson County Equestrian Park 80.0 Quimper Jefferson Co. Sportsman Assn. Shooting Range 43.0 Quimper Port Townsend Community Center 1.0 Port Townsend Brinnon Community Center NA Brinnon OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–4 December 2018 Parks Acres Location Coyle Community Center (Laurel B. Johnson) 1.0 South Toandos Gardiner Community Center 2.0 Gardner Tri-Area Community Center 2.0 Port Hadlock Quilcene Community Center 4.1 Quilcene Subtotal 165.8 Total Jefferson County Parks 1,195.2 Source: Jefferson County Parks, Recreation, and Open Space Plan, 2015; Jefferson County, 2018. Challenges & Opportunities The 2015 Jefferson County Parks, Open Space, and Recreation (PROS) Plan includes a detailed needs assessment for each category of park and recreation facility and establishes guidance for future recreation system planning, including gaps and major service challenges, as well as opportunities for partnerships and other means of expanding and improving the facilities available to county residents. Challenges and opportunities identified in the 2015 PROS plan include the following: ▶ The County and City of Port Townsend have sufficient acreage in neighborhood and community parks to meet projected demand, but additional funding and/or partnerships will be necessary to ensure ongoing maintenance. ▶ The County has a large amount of regional park acreage, but, due to the large and complex nature of such facilities, additional funding sources may be necessary to make future operations sustainable. ▶ Regional trails are a highly valued park amenity greatly desired by the public, and the development of additional trails to meet demand is a high priority for parks and recreation capital planning. ▶ Special Use facilities, such as athletic fields and recreation centers, require significant commitments and funding for maintenance and continued operation. Additional programming at recreation centers, specifically programs for children, are in high demand. In addition, Jefferson County faces a fundamental challenge common to many counties in the necessity to provide recreation services to a decentralized population over a large area with limited resources, particularly regarding western Jefferson County, which contains a relatively isolated population with few County facilities. Refer to the Transportation Element for additional information at the heading Non- motorized Trails & Standards. Related to western Jefferson County OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–5 December 2018 The importance in providing these opportunities for physical activity and recreation is reflected in data cited in the Community Health Improvement Plan (CHIP) and other healthy living programs. Policies in this element help to provide recreation opportunities and facilitates the CHIP goal for Jefferson County residents to get the appropriate levels of physical activity and create positive health outcomes regarding chronic disease prevention. 4.3 OPEN SPACE, PARKS & RECREATION, HISTORICAL & CULTURAL PRESERVATION PLAN Jefferson County Parks, Recreation & Open Space Plan The 2015 Jefferson County Parks, Open Space, and Recreation (PROS) Plan establishes a framework to guide the acquisition, development and improvement of park areas and facilities and the provision of recreational services throughout Jefferson County. It is designed to meet the County’s recreational, social, and cultural needs now and into the future. Parks and recreation facilities must be recognized as valuable not only to county residents, but also visitors. As Jefferson County grows in population, demands on parks and recreational facilities increase. Recreational opportunities are one important measurement of community livability in that they help to build strong neighborhoods and promote a high quality of life. Parks and recreation planning should be flexible enough to meet the ever-changing demands of the community, yet comprehensive enough to assure that the needs of the community are consistently met. This plan examines and addresses current needs, desires, and opportunities with an eye toward historical information relevant to parks and recreation development. Population factors, land use, and general geographic features of the county are also vital considerations within the plan. The Community Health Improvement Plan (CHIP) is addressed in the following Elements: Land Use Land Use & Public Health Natural Resources Open Space, Parks & Rec. Challenges & Opportunities Environment Environmentally Friendly Development Techniques Transportation Active Living Community Health Improvement Plan OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–6 December 2018 The 2015 PROS Plan (as amended) is adopted by reference as a part of this Comprehensive Plan. This document provides an inventory of park and recreation facilities and programs under Jefferson County jurisdiction. It also establishes standards, goals, objectives and programs for parks, open space, recreation facilities, wildlife resources and special historical and cultural resources and presents a strategy for providing facilities and programs to meet the needs of the county’s residents and visitors. The 2015 PROS Plan is consistent with the Recreation and Conservation Office (RCO) and the GMA Comprehensive Plan Guidelines. Open Space As defined under the Washington State Open Space Taxation Act (RCW 84.34.020), "Open space land" means: ▶ any land area so designated by an official comprehensive land use plan adopted by any city or county and zoned accordingly, or ▶ any land area, the preservation of which in its present use would — conserve and enhance natural or scenic resources, or — protect streams or water supply, or — promote conservation of soils, wetlands, beaches, or tidal marshes, or — enhance the value to the public of abutting or neighboring parks, forests, wildlife preserves, nature reservations or sanctuaries or other open space, or — enhance recreation opportunities, or — preserve historical sites, or — preserve visual quality along highway, road, and street corridors or scenic vistas, or — retain in its natural state tracts of land not less than one acre situated in an urban area and open to public use on such conditions as may be reasonably required by the legislative body granting the open space classification, or; ▶ any land meeting the definition of farm and agricultural conservation land. In addition to the goals and objectives for open spaces in this element, and the 2015 PROS Plan, Jefferson County offers it citizens participation in an Open Space Tax Program - current use assessment, that evaluates lands using a rating system based on the criteria above, to identify potential public benefit, and provide a reduction in property tax. OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–7 December 2018 Historical & Cultural Resource Preservation Prior to the arrival of European settlers and explorers, the area that is now Jefferson County was home to several Native American groups (First People), including the Chemakum, Hoh, Klallam, Suquamish, Makah, Quileute, Quinault, and Twana Tribes. Permanent village sites and activity areas were concentrated near ocean and riparian resources for food access and mobility. The First People were hunters and gatherers, using canoes to fish, hunt whales and seals, and collect shellfish. They also hunted land mammals and birds, collected food and medicinal plants, and extensively used forest resources, creating most of their material culture from wood, other botanical material, and bone. Evidence of the First People’s activities can be found throughout Jefferson County, especially archaeological sites along the coasts and rivers. Specialized activity sites, such as work camps and cedar cutting areas can be found inland. Sites of religious importance are known through oral traditions and early documents. The primacy of these First People to Jefferson County is preserved in place names throughout the county. The Hoh and Quinault tribal nations still occupy land in West Jefferson County. Successors of the Klallam Tribe have sovereign lands in adjoining Clallam County (Lower Elwha Klallam Tribe and Jamestown S'Klallam Tribe) and adjoining Kitsap County (Port Gamble S’Klallam Tribe). A successor to the Twana Tribe, the Skokomish Tribe, has its tribal nation in adjoining Mason County. The preservation of Jefferson County’s historical cultural resources is important for many reasons. These resources help us retain community values; provide for continuity over time; represent an enduring link to tribal cultural traditions; and contribute to a sense of place. This link is also important for Jefferson County because of the often forward-looking tribal perspective that is provided on many current issues. To protect cultural resources for future generations, it is important to set goals and policies designed to identify, designate, preserve, and reuse irreplaceable remnants of the past in a way that honors their history and cultural significance. In addition to the goals and policies in this element, the Jefferson County Open Space, and Recreation (PROS) Plan Update 2015 (as amended), contains a goal in Chapter 2 on Special Historical and Cultural Resources and Use Areas, and the County maintains a Memorandum of Understanding (MOU) with the Washington State Department of Archaeology and Historic Preservation (DAHP) mapping sites of significance and establishing discovery protocols. Significant archaeological and historical sites are also considered high priority resources in the Open Space Tax Program. From the Collection of the Jefferson County Historical Society OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–8 December 2018 4.4 GOALS & POLICIES The goals outlined below provide a general direction for the maintenance and enhancement of Jefferson County’s open space lands, parks and recreation facilities, and historical and cultural resources. These goals are based on the requirements of the GMA, consistent with the 2015 Jefferson County Parks, Open Space, and Recreation PROS Plan, and on the issues and opportunities identified by county residents. As with all elements of this Comprehensive Plan, goals state the general growth management intentions of the County while policies are the guidelines for implementation and provide the basis for the development standards contained in the UDC. Also see the Jefferson County Parks, Recreation & Open Space Plan Update 2015 (as amended) Chapter 2 for Goals and Objectives. Goal OS-G-1 Preserve and improve the quality, value, and extent of open space lands. ▶ Policy OS-P-1.1 Work collaboratively with public and private groups, individuals, and tribes to develop a financially sustainable, high quality, diversified open space system, including campgrounds and trail network linkages, that preserves and enhances significant environmental resources and features. Continue to look at feasibility of expanding campground parks as a revenue generator. ▶ Policy OS-P-1.2 Partner to establish and conserve a sustainable system of open space corridors or separators to provide definition between natural areas and urban land uses. ▶ Policy OS-P-1.3 Encourage public enrollment in the current-use or open space tax program (Chapter 84.34 RCW) for open space lands. ▶ Policy OS-P-1.4 Identify and conserve critical wildlife habitat, including nesting sites, foraging areas, and migration corridors within or adjacent to natural areas, open spaces, and developed urban areas. Preserve especially sensitive habitat sites that support threatened species and wildlife habitat in developed areas. ▶ Policy OS-P-1.5 Promote open space network linkages throughout the county that connect Urban Areas, Rural Centers, schools, parks, or recreation sites, and supports tourism by bicycle, horse, or foot. Physical activity is key to a healthy lifestyle, and the Parks, Recreation, Historical, and Cultural Preservation Element plays a central role in promoting public health in Jefferson County. The Plan’s Vision recognizes that the natural environment and open spaces are integral to healthy lifestyles and offer residents many benefits, including clean air, clean water, and healthy food. Framework Goal VIII of the Plan Foundation calls for the promotion of community safety and well-being by creating access to “active recreation that empowers residents to make healthy choices.” Awareness of the benefits and importance of healthy environments is reflected in the Community Health Improvement Plan. This Element and the 2015 PROS Plan provide a framework for increasing access to recreational amenities for Jefferson County residents and making it easier for them to make those healthy choices. Active & Healthy Living OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–9 December 2018 ▶ Policy OS-P-1.6 Preserve and protect significant environmental features including unique wetlands, open spaces, woodlands, shorelines, waterfronts and other characteristics that support wildlife and reflect Jefferson County’s resource heritage. Improve public access to environmentally sensitive areas and sites that are especially unique to the Jefferson County area in a sustainable manner. ▶ Policy OS-P-1.7 Promote the inclusion of open space in development proposals by encouraging and promoting residential clustering and design. ▶ Policy OS-P-1.8 Ensure that the development of new parks adequately addresses the open space objectives of both the Jefferson County Comprehensive Plan and the Jefferson County Parks, Recreation and Open Space Plan. Goal OS-G-2 Develop a high-quality system of multipurpose park trails and corridors that access significant environmental features, public facilities and developed local neighborhoods and business districts. ▶ Policy OS-P-2.1 Create a comprehensive system of multipurpose off-road trails using public as well as cooperating private properties where appropriate, as well as a comprehensive system of on-road bicycle routes for commuter, recreational, and touring enthusiasts using scenic, collector, and local road rights-of-way that link residential neighborhoods to County facilities. ▶ Policy OS-P-2.2 Work with other public agencies and appropriate parties to link and extend trails along the Puget Sound, Hood Canal, and Strait of Juan de Fuca shorelines with elementary and middle schools, downtown business districts and other commercial and retail activity centers, as well as extend trails through natural area corridors and campground areas, to provide diverse and sustainable environmental experiences. ▶ Policy OS-P-2.3 Pursue and encourage public involvement in open space, parks, and recreation planning through a variety of methods including advisory boards, workshops, and news releases. Refer to Transportation Element, Goal TR-G-5 Irondale Park Waterfront, Carolyn Gallaway Steps to Ludlow Falls, Carolyn Gallaway OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–10 December 2018 Goal OS-G-3 Encourage the multiple use of open spaces and wildlife corridors. ▶ Policy OS-P-3.1 Encourage appropriate recreational uses within critical areas, such as floodplains, to also preserve open spaces. ▶ Policy OS-P-3.2 Review development proposals to evaluate opportunities for multiple use of proposed open space. The open space should be of a quality, quantity, and configuration which ensures that a suitable portion of the site is designated for conservation, food plants and trees, passive recreation, and, where appropriate, active recreation. Goal OS-G-4 Develop and maintain public park and recreational facilities that are responsive to the needs and interests of Jefferson County residents and visitors. ▶ Policy OS-P-4.1 Investigate innovative available methods for the financing of facility development, maintenance, and operations to reduce costs, retain financial flexibility, match user benefits and interests, and increase facility services, while including joint ventures with other public and private agencies when feasible. ▶ Policy OS-P-4.2 Develop recreational opportunities and programs that enhance, support, and utilize our existing facilities to the highest degree possible. ▶ Policy OS-P-4.3 Maintain and improve those resources and facilities currently in the system. When financially feasible and sustainable, develop a high quality, diversified recreation system that provides for all age and interest groups. ▶ Policy OS-P-4.4 Define existing and proposed levels of service for recreation lands and facilities that address both increased requirements due to population growth and improved facility standards. Levels of Service should address neighborhood versus county nexus of benefit and differentiate between County, City, and other provider agency efforts. ▶ Policy OS-P-4.5 Establish a funding source within the County or within other organizations, to develop parks programs; and seek funding for recreational programming and facilities that is responsive to geographic equity, and provides a low threshold of entry for all to participate. Lower Oak Bay County Park Mt. Walker Trail Sign, Carolyn Gallaway OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–11 December 2018 ▶ Policy OS-P-4.6 Ensure that parks and recreation facilities along marine shores, lakes and streams are compatible with the goals, policies, and performance standards of the Jefferson County Shoreline Master Program. ▶ Policy OS-P-4.7 Require developers of new residential subdivisions to provide land, facilities, or in-lieu-of payments for neighborhood parks and recreation, when appropriate. ▶ Policy OS-P-4.8 Encourage the provision of public parks and private parks concurrent with development. ▶ Policy OS-P-4.9 Promote cooperative efforts, joint project development, and long-range planning with other public agencies, Tribes, the private sector, and citizen groups and volunteers to create and maintain open space, parks, and recreational areas. Goal OS-G-5 Work with Tribes and other appropriate agencies to identify and preserve historical and pre-contact sites, structures, settlements, and artifacts that have value as cultural resources. ▶ Policy OS-P-5.1 Support the efforts of the Jefferson County Historical Society, local Tribes, and other interested groups, to: — Assist in identifying, evaluating, and designating historical and pre-contact sites, structures, and artifacts of cultural significance for inclusion on appropriate national, state, and/or local registers; — Help develop methods to link cultural resource preservation with tourism and local and tribal economic development strategies. — Partner with Tribes and other agencies in implementing protocols for inadvertent discovery of archaeological resources and human remains. ▶ Policy OS-P-5.2 Encourage that new development located adjacent to structures and sites of archeological, historical, or cultural significance is compatible with the character of the site. From the Collection of the Jefferson County Historical Society OPEN SPACE, PARKS, & REC., HISTORICAL & CULTURAL PRESERVATION Jefferson County Comprehensive Plan 4–12 December 2018 4.5 ACTION PLAN The 2015 Jefferson County Parks, Open Space, and Recreation PROS Plan includes a detailed implementation plan, based on the needs assessment and capital improvement plan contained in that document. The action plan below highlights a combination of implementation measures based on the policies of the 2015 PROS plan and this element. EXHIBIT 4-2 Open Space, Parks & Recreation, Historical & Cultural Resources Action Plan Action Description County Park and Recreational Resources Continue implementation of the 2015 PROS Plan. Maintain and optimize services at existing recreational facilities. Implement facility improvements, expansions, and acquisitions according to the 2015 PROS Plan Capital Improvement Plan. Continue developing partnerships and volunteerism to ensure adequate staffing and increase available programming at County recreation facilities. Continue funding and development of trails projects to create community linkages. Partner with the City of Port Townsend and the State of Washington Department of Transportation (WSDOT) to plan future corridors and identify feasible funding opportunities. Bring parks and recreational programming to underserved populations Identify underserved populations, whether by geography or by other barriers to participation, and implement strategies to serve those populations with updated parks programming and facilities. Seek to establish a consistent funding source for parks programs, recreational programming, and facilities. Historical and Cultural Preservation Develop internal inventory of historical and culturally sensitive sites to aid development permit review. Partner with tribes, community groups, and other agencies to identify culturally significant sites that could be adversely impacted by development and establish development permit review procedures to protect culturally significant locations. Incorporate information from DAHP, such as the WISAARD database, to supplement local knowledge of culturally significant sites. Continue to develop collaborative relationships and consult with area tribes. Identify Jefferson County’s historical sites and seek ways to preserve high-priority historical elements. Source: Jefferson County, 2018. Jefferson County Comprehensive Plan 5–1 December 2018 5 Environment 5.1 PURPOSE Jefferson County enjoys substantial, intact, high quality ecosystems and natural environmental features. The County stretches from the shores of the Pacific coast over the wilderness of the Olympic Mountains to the banks of the Salish Sea and Hood Canal. Protection, enhancement, and sustainable use of the environment are an integral part of Jefferson County’s ethos and a significant reason why people visit, recreate or relocate here. The county is relatively undeveloped with over 95% of the zoning designations dedicated to forestry as well as to parks and open space. The preponderance of low densities, working forestlands combined with vast acreages devoted to the federal Olympic National Forest and Olympic National Park create a local environmental quality that is superlative to the urban and urbanizing jurisdictions to the east. The County through its Comprehensive Plan and implementing development regulations has designated growth management policies and regulations ensuring strong environmental protections, while addressing the housing, economic, social, and healthy living needs of its residents. While the Environmental Element is optional under the Growth Management Act, the County developed this element embodying county leaders and citizens This element supports the Vision Statement by addressing the conservation of open spaces, shorelines, forests, and by setting forth goals and policies on conserving and protecting important environmental resources. Additional concepts anticipate and respond to climate change and plan for long-term management and conservation of water resources, air quality, forests, and farmland. Connection to the Vision Statement Steve Schauer ENVIRONMENT Jefferson County Comprehensive Plan 5–2 December 2018 deep commitment to sustainably managing the high environment quality and high functioning ecosystems while balancing the needs of County residents and visitors. 5.2 TRENDS & OPPORTUNITIES Environmental Considerations Jefferson County protects the natural environment in part through its Unified Development Code (UDC) which implements the County’s Critical Areas Ordinance (CAO), Shoreline Master Program (SMP), Stormwater Management standards, and other regulations concerning environmental quality. Further, Jefferson County cooperatively plans with other public and private stakeholders to address the following important environmental factors in the County: ▶ Watershed planning and fish habitat recovery; ▶ Designating and protecting critical areas; ▶ Regulating shorelines; ▶ Addressing environmental impacts in conditional use and State Environmental Policy Act; ▶ Reduction of greenhouse gas emissions and addressing climate change ; and, ▶ Environmentally friendly development techniques. ▶ Environmental nuisance factors Each of these considerations are summarized below. Watershed Planning & Fish Habitat Recovery Jefferson County plans for its watersheds under Washington State rules designating watershed areas. Jefferson County contains Water Resource Inventory Area (WRIA) 17 and 18 in East Jefferson County and WRIA 20 and 21 in West Jefferson County. WRIA 17 is considered by the Department of Ecology to be one of the 16 critical water short basins in the State of Washington (Washington Department of Ecology, 2018). Watershed plans assist in updating land use regulations. Jefferson County specifically considers water resources, watershed plans and the natural environment in Unified Development Code (UDC) development standards for critical areas, shorelines, resource lands, open space, ENVIRONMENT Jefferson County Comprehensive Plan 5–3 December 2018 stormwater management, and conditional use standards. Further, Jefferson County partners with local, State, and tribal agencies to jointly develop and implement comprehensive integrated watershed and salmon recovery plans. The text box below describes the recent Hirst decision impacts on Jefferson County’s watershed planning and implementation. Source: Caulkins, 2016; Dvorkin, 2018; Washington Department of Ecology, 2018; Washington Department of Ecology, 2018; Washington Department of Ecology, 2016; Chapter 173-517 WAC, 2009. Quick guide: The Hirst decision did not change Jefferson County’s process for issuing building permits that use permit-exempt wells for a water source. Learn more: The 2016 Washington State Supreme Court decision in Whatcom County v. Hirst, Futurewise, et al. (the “Hirst decision”) changed how counties decide to approve or deny building permits that use wells for a water source. The court ruled that Whatcom County failed to comply with the GMA requirements to protect water resources, and required the county to make an independent decision about legal water availability—in other words, local jurisdictions planning under GMA have a duty to determine legal and physical water availability for development and cannot simply defer to Department of Ecology adopted rules when making these determinations. This decision changed how counties approve or deny building permits that use permit-exempt wells for a water source. To address the Hirst decision, the Washington State legislature passed a new streamflow restoration law (ESSB 6091) in early 2018. ESSB 6091 allows local governments to rely on Department of Ecology instream flows rules to satisfy their obligations under GMA for demonstrating water availability based on Water Resource Inventory Areas (WRIAs), or geographic areas used to establish instream flow and other water resource-related rules. The law focuses on 15 WRIAs with pre-2001 instream flow rules that were impacted by the Hirst decision, and establishes standards for rural residential permit-exempt wells in the rest of the state. There are four WRIAs where a major portion is in Jefferson County, and three in which the County takes an active role: ▶WRIA 16: Skokomish/Dosewallips Watershed (active role) ▶WRIA 17: Quilcene-Snow Instream Resources Protection and Watershed Management Program (active role) ▶WRIA 20: Soleduck/Hoh Watershed (active role) ▶WRIA 21: Queets/Quinault Watershed Under ESSB 6091, Jefferson County may continue to issue permits consistent with RCW 90.44.050 in WRIA 16, WRIA 20, and WRIA 21, all of which are not regulated by an instream flow rule. No further action is required by ESSB 6091 to modify WRIA 17, which has a post-2001 instream flow rule that regulates permit-exempt well withdrawals, and thus complies with the GMA. The 2009 Water Resource Management Program for WRIA 17 allocates an amount of water available for future use by reserve management areas (WAC 173-517-150). These reserves are available to a user only if the conditions set forth in WAC 173-517-150 are met, as well as any applicable requirements of law, including, but not limited to, all water resource laws and regulations. When each reserve is fully appropriated, the applicable reserve management areas are closed to any further consumptive appropriation. Under such circumstances water for new uses may be available in accordance with WAC 173-517-110. The Hirst Decision in Jefferson County ENVIRONMENT Jefferson County Comprehensive Plan 5–4 December 2018 Designating & Protecting Critical Areas Jefferson County is required under the GMA to designate and protect critical areas. Protection of Critical Areas includes a review of the best available science regarding the function and values of critical areas. When updating critical areas rules, counties and cities are required to include best available science in the updates. In addition, counties and cities are required to consider conservation or protection measures necessary to preserve or enhance anadromous fisheries. Jefferson County has a critical areas ordinance (CAO) to designate and protect critical areas and to ensure no net loss of the functions and values of critical areas and their buffers. Critical areas is a term in GMA to describe environmentally sensitive natural features as well as resources that are important to public health, safety and welfare. The following are identified as critical areas through RCW 36.70A.030(5): ▶ Critical aquifer recharge areas; ▶ Frequently flooded areas; ▶ Geologically hazardous areas; ▶ Fish and wildlife habitat conservation areas; and ▶ Wetlands. Regulating Shorelines Jefferson County contains extensive shoreline resources which significantly contribute to the environment, economy, and recreation of the County and its residents. In 2014, Jefferson County adopted an update to its Shoreline Master Program (SMP) with goals, policies, and regulations consistent with the Shoreline Management Act (SMA). The SMP is considered part of the County’s Comprehensive Plan and development regulations and is subject to a periodic review schedule. The SMP establishes a regulatory framework balancing environmental protection with use and enjoyment of shoreline functions. SMA. The overall intent of the SMP is to protect ecological resources, allow for preferred shoreline uses, and promote public access to enjoy the shoreline Addressing Environmental Impacts in Conditional Use & the State Environmental Policy Act The Comprehensive Plan implementing regulations, the Unified Development Code (UDC), establish development standards relating to specific uses. Certain uses require a Conditional Use Permit (CUP) under Carolyn Gallaway ENVIRONMENT Jefferson County Comprehensive Plan 5–5 December 2018 the UDC. The CUP approval criteria require environmental considerations as a part of the CUP decision-making process. For example, the CUP criteria require that the applicant prove that the proposed use will not cause significant adverse impacts on the human or natural environments that cannot be mitigated through conditions of approval. The State Environmental Policy Act (SEPA) requires that all local jurisdictions evaluate the potential environmental impacts on government actions—including the issuance of permits - unless exempt under state statue or rule. The SEPA process is a part of the Jefferson County Unified Development Code and applied to all projects. Typically, the SEPA process requires the County to determine if there is a significant adverse environmental impact and whether those impacts can be mitigated or require further, more in-depth, environmental review. Jefferson County works cooperatively with permit applicants to identify, avoid and, if necessary, mitigate environmental impacts of proposed development projects. The SEPA and conditional use permitting processes are part of how the County maintains, oversees and ensures the long-term sustainability of high-functioning environments. Moreover, the SEPA and conditional use permitting process is part and partner with other regulatory processes, such as the Shoreline Master Program and Critical Areas Ordinance, that help to ensure long-term protection and viability of the County’s high environmental quality. Reduction of Greenhouse Gas Emissions & Addressing Climate Change Climate change is a global phenomenon that has the potential for significant local impacts to natural resources, ecosystem functions, as well as human health, infrastructure, agriculture, and the economy. The Climate Impacts Group (CIG), a consortium of scientists at the University of Washington, has done an extensive analysis of potential local climate change impacts in the Pacific Northwest. Based on a range of climate change model projections and peer-reviewed scientific publications, the CIG concludes that climate variability and change may affect the Puget Sound region significantly during the next 20-40 years by altering key climate-related factors shaping the local environment, including temperature, precipitation, heavy rainfall events, sea level, ocean acidification, and season natural variability (Climate Impacts Group, 2015). More specifically: ▶ More precipitation is expected as rain rather than snowfall in the Olympics and Cascades due to an increased snow-line elevation; ▶ Decreased (winter) mountain snowpack and earlier (spring) snowmelt is expected; ENVIRONMENT Jefferson County Comprehensive Plan 5–6 December 2018 ▶ Higher winter streamflow velocities in rivers that depend on snowmelt and stormwater runoff resulting in scouring floods that negatively affect salmon populations ▶ Lower summer streamflow and more drought-like conditions are expected. Additional climate change impacts are likely to include longer-term shifts in forest types and species, potentially increasing wildfire risk and greater exposure to insects and disease. Susceptibility to natural hazards is also expected to intensify due to climate change, including increased landslides, erosion, coastal and riverine flooding due to more winter rainfall, and potential rising sea levels. The CIG indicated that aggressive greenhouse gas reduction would result in less climate change impacts to the area, lessening the short- and long-term shifts and impacts. (Climate Impacts Group, 2015) More localized data has been developed by the North Olympic Peninsula Resource Conservation & Development Council (North Olympic Development Council/NODC) in the report Climate Change Preparedness Plan for the North Olympic Peninsula. (North Olympic Development Council (NODC), 2015) In 2011, the City of Port Townsend and Jefferson County adopted a Climate Action Plan that laid out specific actions and targets for reducing greenhouse gas emissions and increasing energy conservation efforts in response to potential climate change. Environmentally Friendly Development Techniques Environmentally friendly development techniques can help communities achieve a balance between growth and quality-of-life. Jefferson County encourages the use of low-impact techniques, and other innovations in housing and industry that benefit overall ecosystem vitality and biodiversity while aiding ecological restoration and adapting to climate disruption. Recognizing the interrelatedness of a healthy natural environment and environmentally friendly built environment, the policies addressed in this element help to achieve goals of the Community Health Improvement Plan (CHIP) regarding chronic disease prevention. Environmental Nuisance Factors Given the rural nature of the County, individual households are typically located on large lots that exist individually or form a small community or are part of more established higher-density rural communities such as Chimacum, Quilcene, or Brinnon. Each The Community Health Improvement Plan (CHIP) is addressed in the following Elements: Land Use Land Use & Public Health Natural Resources Open Space, Parks & Rec. Challenges & Opportunities Environment Environmentally Friendly Development Techniques Transportation Active Living Community Health Improvement Plan ENVIRONMENT Jefferson County Comprehensive Plan 5–7 December 2018 landowner has a right for a nuisance-free quality of life. Occasionally, bright lights, loud noise, offensive odors, or other nuisance level disrupts the rural quality of life. Jefferson County citizens typically make inquiries as to what laws, regulations, or programs exist to help address environmental nuisances. In general, private individual landowners are encouraged to engage in civil dialogue with their neighbors on adjacent properties where nuisances may originate. Where there is legitimate and serious life, safety, or public welfare issues at stake state and local regulatory enforcement programs are able to address and abate associated nuisance factors. Examples include unauthorized dumping, hazardous solid waste, and threats to environmental public health. Rural living requires balancing civic engagement with maintenance of rural lifestyles. There are not always political or regulatory answers to address environmental nuisance factors. The Jefferson County Comprehensive Plan along with implementing land use regulations assists in ensuring that future residential developments occur in a way that does not create adjacent incompatible land uses that are associated with environmental nuisance factors. For example, the Jefferson County Unified Development Code requires that certain uses obtain a Conditional Use Permit (CUP), allowing the County to proactively limit potential land generating nuisances through the CUP approval process. Balancing Environmental Protection With Community Needs The resilience of the county’s local environment, economy, and culture all yield benefits for current residents and future generations. However, these objectives are not mutually exclusive. Environmental protection in Jefferson County must be considered in relation to the goals and policies found within other parts of the Comprehensive Plan, including economic development opportunities and social objectives. Jefferson County’s natural setting is but one of the county’s economic strengths. Protection of the environment must be balanced with the need for economic development. For example, the protection of critical areas and their associated buffers were established with the intent of minimizing the adverse effects that such protections would cause to the county’s economic vitality. Although some potential types of development are limited in critical areas, other types may still be allowed that provide alternative investment opportunities. In addition, social objectives discussed throughout the Comprehensive Plan, such as affordable and diverse housing and healthy living opportunities are fundamental to the community’s future vision. Hoh River, Carolyn Gallaway ENVIRONMENT Jefferson County Comprehensive Plan 5–8 December 2018 Protection, rehabilitation, and enhancement of Jefferson County’s natural environment should allow for flexible and innovative development or investment that meets environmental and quality-of-life goals. 5.3 ENVIRONMENT PLAN Critical Areas Maps Jefferson County is required under the Growth Management Act to designate and protect critical areas. Protection of Critical Areas includes a review of the best available science on the function and values of critical areas. In addition, counties and cities are required to consider conservation or protection measures necessary to preserve or enhance anadromous fisheries. Jefferson County has a critical areas ordinance (CAO) to designate and protect critical areas and ensure no net loss of the functions and values of critical areas and their buffers. Jefferson County’s Critical Area Ordinance (CAO) regulates aquifer recharge areas, frequently flooded areas, geologically hazardous areas, fish and wildlife conservation areas, and wetlands. The maps below generally depict the location of mapped critical areas. ENVIRONMENT Jefferson County Comprehensive Plan 5–9 December 2018 EXHIBIT 5-1 Critical Aquifer Recharge Areas Source: Jefferson County Community Development, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–10 December 2018 EXHIBIT 5-2 Hydrography: Streams, Wetlands, & 1998 FEMA Flood Zones Source: Jefferson County Community Development, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–11 December 2018 EXHIBIT 5-3 Geologic Hazards Source: Jefferson County Community Development, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–12 December 2018 EXHIBIT 5-4 Critical Areas: Fish-Bearing Inventory & Primary Association Habitats Source: Jefferson County Community Development, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–13 December 2018 EXHIBIT 5-5 Seawater Intrusion Protection Zones Source: Jefferson County Community Development, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–14 December 2018 5.4 GOALS & POLICIES The goals outlined below provide direction for the protection of Jefferson County’s environmental features in a balanced relationship with other elements in the Comprehensive Plan As in all elements of this Comprehensive Plan, the goals are general statements while policies are more specific. Goals state the general growth management intentions of the County while the policies are the processes for implementation. Water Resources Goal EN-G-1 Ensure a sustainable and safe water supply for residential, economic, and environmental needs that rely on conservation and other current technologies, while incorporating the most current climate projections into supply planning. ▶ Policy EN-P-1.1 Work cooperatively with water supply purveyors, public utility districts, and other experts at federal, state, local, tribal governments, including private non-profit organizations to preserve and protect existing water supplies while addressing future water supply needs. Such measures may utilize alternative water sources that are compatible with environmental protection. Goal EN-G-2 Protect the quality and quantity of surface, ground, and marine water resources through locally implemented shoreline, critical areas, and other related environmental programs. ▶ Policy EN-P-2.1 Ensure that County water quality program are designed to complement related programs developed and implemented by other local as well as state and federal agencies. For ease of administration and enforcement, reference related programs implemented by other agencies within relevant county plans and regulations. ▶ Policy EN-P-2.2 Preserve the environmental functions of surface and ground water resources by retaining native vegetation and open spaces where feasible and by requiring mitigation measures for land use activities that may adversely impact surface and ground water. ENVIRONMENT Jefferson County Comprehensive Plan 5–15 December 2018 ▶ Policy EN-P-2.3 Work with the Department of Ecology and other agencies to minimize salt water intrusion, to evaluate ground water resources that have been damaged either by salt water intrusion or other contamination, and to identify technically and financially feasible measures for remediation of adverse impacts. ▶ Policy EN-P-2.4 Promote best management practices and voluntary open space conservation to protect critical areas in land use regulations related to septic systems, forest management, agricultural practices, industry, and other development. Goal EN-G-3 Cooperatively manage, protect, enhance, and conserve water resources through a comprehensive watershed management program that is integrated with recovery plans for listed species. ▶ Policy EN-P-3.1 Take an active role in implementing watershed plans for Water Resource Inventory Area (WRIA) 16, 17, and 20, as funding allows. ▶ Policy EN-P-3.2 Participate in collaborative watershed, shoreline, and salmon habitat conservation planning processes with state, federal, and tribal governments, including local stakeholders. ENVIRONMENT Jefferson County Comprehensive Plan 5–16 December 2018 Shorelines Goal EN-G-4 Implement Chapter 18.25 JCC to protect shoreline functions and processes while allowing appropriate development and uses within the shorelines of Jefferson County. ▶ Policy EN-P-4.1 The goals and policies of the Jefferson County Shoreline Master Program, as amended, are considered an element of the Comprehensive Plan and are adopted by reference as if fully set forth herein. Refer to JCC 18.25 Articles III, VI, VII, and VIII for goals, policies, and regulations related to the shorelines and how the Shoreline Master Programs goals are implemented. Jefferson County contains significant shoreline resources and adopted a Shoreline Master Program (SMP) with goals, policies, and regulations consistent with the Shoreline Management Act (SMA) in 2014. The SMP is considered part of the County’s Comprehensive Plan and development regulations and is subject to a periodic review schedule in the SMA. The overall intent of the SMP is to protect ecological resources, allow for preferred shoreline uses, and promote public access to enjoy the shoreline. 18.25.120 Conservation. (1) Purpose. …conservation goals address the protection of natural resources, scenic vistas, aesthetics, and vital shoreline areas for fisheries and wildlife for the benefit of present and future generations. 18.25.130 Economic development. (1) Purpose. …economic development goals address the location and design of industries, transportation facilities, port facilities, tourist facilities, commerce and other developments that are particularly dependent on their location on or use of the shorelines. 18.25.140 Historic, archaeological, cultural, scientific and educational resources. (1) Purpose. … goals address protection and restoration of buildings, sites and areas having historic, archaeological, cultural, scientific, or educational significance. 18.25.150 Public access. (1) Purpose. … public access goals address the ability of the public to reach, touch, and travel on the shorelines of the state and to view the water and the shoreline from adjacent locations. 18.25.160 Recreation. (1) Purpose. … recreation goals address the creation and expansion of water-oriented public recreational opportunities including, but not limited to, parks, tidelands, beaches, and ecological study areas. 18.25.170 Restoration and enhancement. (1) Purpose. … restoration and enhancement goals address reestablishment, rehabilitation and improvement of impaired shoreline ecological functions, values and/or processes. 18.25.180 Shoreline use. (1) Purpose. … shoreline use goals address the general distribution, location, and extent of housing, business, industry, transportation, agriculture, natural resources, aquaculture, recreation, education, navigation, and other categories of public and private land use. 18.25.190 Transportation, utilities and essential public facilities. (1) Purpose. … transportation and essential public facilities goals address circulation and the general location and extent of thoroughfares, transportation routes, terminals, and other public utilities and facilities. SMP Purpose & Goals ENVIRONMENT Jefferson County Comprehensive Plan 5–17 December 2018 ▶ Policy EN-P-4.2 Work cooperatively with the Washington State Department of Ecology for Periodic Review and associated updates to the Jefferson County SMP, consistent with state law. Environmental Nuisance Factors (Excessive Light, Glare, Odor, & Noise) Goal EN-G-5 Provide technical assistance and information to all residents regarding environmental nuisance factors affecting the habitability and environmental quality of life. ▶ Policy EN-P-5.1 Provide practical information and technical assistance to citizens regarding methods to reduce, mitigate, and where possible eliminate problems associated with environmental nuisance factors. Encourage civil dialogue and neighborhood level conversation to resolve conflicts associated with environmental nuisance factors that are not part of a regulatory program or enforcement code. Critical Areas Regulated Under the Critical Areas Ordinance Goal EN-G-6 Continue to implement, periodically review, and update critical area regulations under the Jefferson County Critical Areas Ordinance (CAO) consistent with GMA requirements, including best available science. ▶ Policy EN-P-6.1 Continue to protect aquifer recharge areas from depletion of aquifer quantity or degradation of aquifer quality under the Critical Area Ordinance (CAO). Continue to periodically review and update CAO regulations relating to aquifer recharge, including best available science. North Beach Tidepool, Carolyn Gallaway ENVIRONMENT Jefferson County Comprehensive Plan 5–18 December 2018 ▶ Policy EN-P-6.2 Continue to protect flood hazard areas from development and uses that compromise the flow, storage, and buffering of flood water, normal channel functions, and fish and wildlife habitat, and minimize flood and river process risk to life and property under the Critical Area Ordinance (CAO). Continue to periodically review and update CAO regulations relating to flood hazards, including best available science. ▶ Policy EN-P-6.3 Continue to ensure that landslide, erosion, and seismic hazard areas are appropriately designated and that measures protecting public health and safety are implemented for hazardous areas under the Critical Areas Ordinance. Continue to periodically review and update CAO regulations relating to geologic hazard areas, including best available science. ▶ Policy EN-P-6.4 Continue to protect and enhance fish and wildlife habitat under the Critical Areas Ordinance (CAO). Continue to periodically review and update CAO regulations relating to fish and wildlife habitat, including best available science. ▶ Policy EN-P-6.5 Continue to protect existing wetland area and functions, while encouraging wetland enhancement and restoration under the Critical Areas Ordinance (CAO). Continue to periodically review and update CAO regulations relating to wetlands, including best available science. Carolyn Gallaway ENVIRONMENT Jefferson County Comprehensive Plan 5–19 December 2018 5.5 ACTION PLAN Exhibit 5-6 highlights key activities the County can use to implement the Environment Element. EXHIBIT 5-6 Environment Action Plan Action Description Watershed and Fish Habitat Recovery Management Continue to support and participate in watershed and fish habitat studies and planning. Integrates water resource management for human needs with fish and wildlife habitat protection and restoration. Critical Areas Protection Periodically update critical areas development standards and include as Best Available Science and considerations of anadromous fish. Ensures appropriately updated regulations for critical aquifer recharge areas, frequently flooded areas, geologically hazardous areas, fish and wildlife habitat conservation areas, and wetlands Greenhouse Gas Emissions and Climate Change Encourage businesses and homeowners to reduce building energy and water consumption. Focus greenhouse gas reduction efforts on those sources and reduction programs that can have the greatest impact on greenhouse gas reduction. Provide support for implementing new modes of transportation such as electric vehicles and transit busses, as feasible and as funds are available. Environmentally Friendly Development Techniques Encourage the use of low-impact development techniques and other innovations that benefit ecosystem vitality. Supports resiliency of the county’s local environment in coordination with other community needs, such as economic development, affordable housing, and healthy living opportunities. Potential for reduced site preparation costs, resulting in savings to developers. Source: Jefferson County, 2018. ENVIRONMENT Jefferson County Comprehensive Plan 5–20 December 2018 [ This page intentionally blank ] Jefferson County Comprehensive Plan 6–1 December 2018 6 Transportation 6.1 PURPOSE Transportation infrastructure is extremely important to all aspects of daily life and visitor travel in Jefferson County, and includes local roads, State Highways, trails, sidewalks, bike lanes, parking lots, and transit routes. The purpose of this Transportation Element is to analyze current conditions and plan for future use for both motorized and non- motorized travel in coordination with the Washington State Department of Transportation and other regional planning partners, and related citizen groups. As of 2013, transportation accounts for the largest share of greenhouse gas emissions in Washington State, so planning an efficient, multimodal transportation network is critically important to our environment. (Washington State Department of Ecology, 2016) The Growth Management Act (GMA) requires a systematic approach for estimating and planning for future transportation needs based on an analysis of existing conditions and a projection of future needs. This Transportation Element meets the requirements of the GMA. It provides analysis, goals, policies, Carolyn Gallaway The Transportation Element supports the Vision Statement by facilitating the maintenance and extension of transportation infrastructure available to residents, visitors, and industry in Jefferson County. Networks of non-motorized trails, bikes lanes, and paths also empower residents to make healthy choices and encourage active lifestyles. Connection to Our Vision TRANSPORTATION Jefferson County Comprehensive Plan 6–2 December 2018 and strategies necessary to develop the transportation facilities that will serve Jefferson County in the future. The Element describes the Level of Service (LOS) standards desired for the County's transportation system and estimates vehicular traffic that will be generated on county roads and state routes by the land use designations adopted in this Comprehensive Plan and by regional traffic growth. The analysis in the Element shows that no capacity-related transportation improvements are necessary on County roads to meet levels of service for traffic. However, there are future needs for intersection improvements in the Tri-Area of the county to address future intersection level of service deficiencies and concurrency issues, as seen in Exhibit 6-6. See the Transportation Technical Appendix C for detailed information. The Element also discusses non-motorized transportation modes such as trails that support active lifestyles. Coordination and support of transit, ferry, and airport facilities is also necessary to ensure a variety of travel modes serving the community and to support the local economy. More details on the County’s transportation system are included in Appendix C. Transportation projects that incorporate motorized and non-motorized elements include the Quilcene Complete Streets Project, funded through a WSDOT Pedestrian and Bicycle Program grant for streetscape improvements within Quilcene Center. The project will compose a streetscape which creates a sense of place, alleviates safety concerns and has the potential to spur economic development through construction of accessible sidewalks and bicycle lanes, accessible crosswalks and associated islands/medians/refuges, pedestrian activated signal(s) at crosswalks, and traffic signs and beacons. The program will improve the transportation system to enhance safety and mobility for people who choose to walk or bike. TRANSPORTATION Jefferson County Comprehensive Plan 6–3 December 2018 6.2 TRENDS & OPPORTUNITIES Conditions & Trends County-wide Conditions Roadway Functional Classification Roadways are categorized according to their role and use in carrying vehicles. The categorization is a hierarchy of roadways ranging from principal and minor arterials and major and minor collectors to local access roads and streets. The different categories vary in their ability to carry traffic for long distances, and in their ability to provide access to land uses. The County's road network and functional classifications is illustrated in Exhibit 6-1. The County road inventory consists of 399.29 miles of County roads, with most roadways being local rural access roads; see sidebar. There are also 32 County-owned bridges. Road design standards are based on a roadway’s function and use as determined by the Federal Functional Classification System. There are numerous County roads that are classified as rural local access roads that, in fact, function as collectors. They provide access to commercial and industrial developments and to dense residential neighborhoods. Generally, roads classified as rural local access are not eligible for grant funding. Since only limited local road funds are available, improvements to these roads are not typically funded and collector road standards are not applied when improvement are made. All roadways and bridges maintained by the County are evaluated and ranked for inclusion in the Six-Year Transportation Improvement Program (TIP), as funding becomes available. The County resurfaces approximately 20 to 30 miles of road annually. County Road Miles by Functional Class (Thru Lane Surface) Functional Classification Miles Major Rural Collectors 36.35 Minor Rural Collectors 102.13 Local Rural Access 255.67 Urban Collectors 5.14 Total 399.29 Source: Jefferson County TRANSPORTATION Jefferson County Comprehensive Plan 6–4 December 2018 EXHIBIT 6-1 Functional Classification Map Source: Transpo Group, 2018 TRANSPORTATION Jefferson County Comprehensive Plan 6–5 December 2018 State Highway Classifications State Routes, roads owned and operated by the Washington State Department of Transportation (WSDOT), provide for regional and interregional travel. State routes within the county are US 101 and State Routes 19, 20, 104, and 116. They are classified according to how they function, for example, as principal or minor arterials or collectors. US 101, and State Route 20 are classified as principal arterials. SR 104 is a rural expressway. SR 19 is a rural minor arterial. SR 116 is classified as a major collector. SR 19 is designated as a Highway of Statewide Significance (HSS) while its functional classification remains a minor arterial. This change reflects the highway’s increasing importance within the region as an HSS route that links SR 104 to Port Townsend. Although SR 19 currently serves adjacent needs (direct access) more readily than other principal arterials, unfavorable restrictions to mobility that may develop through this corridor should be avoided. The Peninsula Regional Transportation Planning Organization (PRTPO) has designated US 101, SR 19, SR 20, and SR 104 in Jefferson County as highways of statewide significance and SR116 as a highway of regional significance, using criteria developed by the PRTPO. These criteria require that PRTPO Technical Advisory Committee members agree that such corridors serve as a primary conduit providing access and mobility. It is important to work and plan closely with WSDOT and the PRTPO to assure that the County’s needs and priorities are recognized by the State. The state routes are a critically important component of the transportation network in the County, and the State must do their part in maintaining the major corridor component of the transportation network. Road Conditions Many of the County's roadways have minimal, gravel shoulders except in limited locations bordering suburban development, commercial areas, and various public facilities. In these more developed areas, some roadways have paved shoulders and/or sidewalks in addition to an upgraded roadway cross section. The County also has many roads with unimproved, gravel surfaces. The County’s Transportation Improvement Plan includes a program to upgrade these road by chip sealing them. Traffic Safety WSDOT compiles State Highway accident data for all 39 Counties in Washington. On State Routes in Jefferson County, the average rate in 2015 was 1.20 collisions per million vehicle miles of travel. Statewide, in TRANSPORTATION Jefferson County Comprehensive Plan 6–6 December 2018 2015, the collision rate per million vehicle miles of travel was 1.96. Compared to statewide averages, Jefferson County currently experiences a relatively low number of collisions. Few collisions involving a bicycle or a pedestrian have occurred with less than one collision per year for all roadway segments. Public Transit Jefferson Transit was created in 1981 to provide transportation services primarily to transit-dependent persons. Jefferson Transit provides service between Port Townsend and Jefferson County communities including Port Hadlock, Port Ludlow, Quilcene, and Brinnon with additional service to Sequim and Poulsbo. Jefferson Transit provides links to adjoining transit systems including Island Transit, Kitsap Transit (from Route 7), Clallam Transit (from Route 8), Mason Transit (from Route 1) and Grays Harbor Transit (West Jefferson Transit service connecting Forks and Amanda Park along the Pacific Coast). The link with Kitsap Transit provides transit service to the Washington State Ferry terminals in Bainbridge Island and Kingston. Bicycle racks are available on all Jefferson Transit routes. To address greenhouse gas emissions, Jefferson Transit is considering a move toward electric busses, as feasible. See related information in the Environment Element Action Plan for greenhouse emissions. EXHIBIT 6-2 Transit Passenger Trips & Service Hours Passenger Trips Passengers/ Service Hour Fixed Route Total 22,512 13.09 Dial-A-Ride (M-Sun) 1,144 2.80 Other (Specials, Contracts, Vanpools) 1,032 — Total Passenger Trips 24,688 — Source: Jefferson Transit, 2016. Refer to Housing Element, Goal HS-G-1 TRANSPORTATION Jefferson County Comprehensive Plan 6–7 December 2018 Air, Waterborne, & Freight Travel The Jefferson County International Airport (JCIA) is owned and operated by the Port of Port Townsend. It is situated about four miles southwest of the City of Port Townsend on about 316 acres. Its runway is about 3,000 feet in length, and over 107 aircraft are based there. The Airport is designated as a General Aviation (GA) airport by the FAA’s National Plan of Integrated Airport Systems (NPIAS). In 2010, the total operations equaled approximately 58,030, a small percentage of which are air taxi and commuter service and the majority of which are general aviation flights, Airport use is anticipated to increase in the future. The Port’s Airport Master Plan Update (July, 2014) identifies an expansion plan to meet a 2.8% growth rate for its 107 based aircraft and to stay within FAA requirements for safety and efficient airside and landing facilities. The Port will apply for airport development grants for eligible components of its preferred airport layout plan. Ancillary uses of the facility which attracts public interest and increases use in the airport includes businesses and organizations such as an aero museum, flight instruction school, airplane mechanics, airplane restoration school, restaurant, and 24 acres designated in 2009 (Ord. No. 11-1215-09) for non-aviation-related light industrial/manufacturing development. The airport is designated and zoned as an Essential Public Facility by Jefferson County. Some airport master plan recommendations address height, noise, and other factors. (Port of Port Townsend, 2014) Public ferry service is provided by the Washington State Ferry System (WSF) to Whidbey Island and via the Port Townsend/ Coupeville ferry route, and to the greater Puget Sound through Kitsap County via the Kingston/Edmonds, Bainbridge Island/Seattle, Bremerton/Seattle, and Southworth/Vashon/Fauntleroy routes. The ferry service can accommodate automobiles, pedestrians, bicyclists, kayaks, and canoes. There are three basic forms of freight travel in Jefferson County: truck, waterborne (shipping and ferry) and air. Trucking is the predominant mode of freight transportation. Most of the total westbound truck freight is carried over the Hood Canal Bridge, towards Port Townsend, or up US 101 through Shelton. The Washington State Freight and Goods Transportation System (FGTS) classifies highways, county roads, and city streets according to the average annual gross truck tonnage they carry. Truck tonnage values are derived from actual or estimated truck traffic count data that is converted into average weights by truck type. Corridors with the highest annual gross tonnage, T-1 and T-2 routes, are also identified as Strategic Freight Corridors. SR-104 and US 101 are T-2 routes that run through Jefferson County and connect to other freeways in Washington and Oregon. Top: Historic Bridge, from the Collection of the Jefferson County Historical Society Bottom: Ferry, Carolyn Gallaway TRANSPORTATION Jefferson County Comprehensive Plan 6–8 December 2018 Non-motorized Transportation System The Transportation Element includes collaborative efforts to identify and designate planned improvements for pedestrian and bicycle facilities and corridors that address and encourage enhanced community access and promote healthy lifestyles. Given the rural nature of Jefferson County, travel occurs predominantly by motorized vehicle. However, bicycle and pedestrian circulation are important transportation modes that are used by county residents. Interjurisdictional Coordination The Transportation Element should be prepared through a process that includes not only public participation but also intergovernmental coordination. Since 1998 and with periodic updates, development of the Jefferson County Transportation Element included coordination with WSDOT, PRTPO, City of Port Townsend, Port of Port Townsend, Jefferson Transit Authority, and community planning groups. Challenges & Opportunities County Roads & State System Jefferson County is in an unusual situation because all of the roadways identified in the Transportation Element's analysis as requiring capacity improvements are state routes and are, therefore, outside of the County's jurisdiction. At the same time, these state routes form the bulk of the County's arterial system and are not subject to concurrency1 under GMA, but are integral components of the transportation system within the County. The Transportation Element projects that no concurrency issues or LOS deficiencies will occur on County roads during the planning period. However, other issues relating to safety, road shoulders, pedestrian facilities, and intersection capacity for intersections with state highways may arise. Challenges and opportunities are also present in the changing face of transportation, including the development of electric vehicles with more range and functionality, advances in ride-sharing technology, autonomous vehicles and increasing opportunities for non-motorized travel. Jefferson County’s transportation plan considers how our rural county can plan for and provide various multi-modal transportation opportunities. 1 Concurrency means providing improvements at time of development or within six years. TRANSPORTATION Jefferson County Comprehensive Plan 6–9 December 2018 6.3 TRANSPORTATION PLAN Jefferson County's strategy for managing its transportation network is to encourage efficient multi-modal transportation through implementation of the policies of the Transportation Element which address: ▶ The County's highways and arterials, ▶ Public transportation needs and services, ▶ Non-motorized transportation facilities, ▶ Land development standards associated with the County's transportation network, ▶ State, regional, and local intergovernmental coordination, ▶ Promotion of transportation demand management programs, ▶ Protection of the environment and conservation of energy in transportation activities, and ▶ Development of a transportation improvement program that will identify and rank projects for funding. The technical information and policies in the Transportation Element provide the basis for recommendations for transportation improvements that are contained in the County’s six-year Transportation Improvement Program (TIP). The TIP, which is updated annually, is available from the Jefferson County Public Works Department. Roadway Level of Service For roadways, LOS is typically described in terms of congestion, which may be measured by average travel speed or vehicular density. Six levels of service are defined from A to F with LOS A representing the best operating conditions and LOS F the worst. Jefferson County’s adopted level of service standards are consistent with the standards established by the PRTPO and the Washington State Department of Transportation. These standards are as follows: ▶ Rural Roads (roads outside an urban boundary line) = LOS C ▶ Urban Roads (roads within an urban boundary line) = LOS D ▶ Master Planned Resort Roads (roads within an MPR boundary line) = LOS D ▶ Highways of Regional Significance (rural corridors carrying an urban level of traffic) = LOS D Top: Rural Road, Carolyn Gallaway Bottom: Trail, Jefferson County TRANSPORTATION Jefferson County Comprehensive Plan 6–10 December 2018 The capacity analysis and traffic forecasts indicate that at the planning horizon year of 2038, all County roads are expected to operate at or above the adopted level of service (LOS) standard. A few State Route segments will exceed their estimated capacity based on the level of service standards established by WSDOT and the PRTPO, and the roadway LOS methodology adopted by the County. These LOS standards are based on roadway classification. State highways that are forecast to not meet LOS standards within the planning period include: ▶ SR 104 (Paradise Bay Road to Jefferson/Kitsap County Line) ▶ SR 19 (SR 116 to SR 20) The LOS analysis performed utilized a roadway capacity analysis that evaluated classified roadways throughout the County. Individual intersections were only analyzed within the County’s Tri-Area UGA, and the results of the analysis are presented in the UGA Chapter of the Comprehensive Plan. The PRTPO utilized a similar methodology and process for evaluating traffic forecasts and levels of service. However, it differed from the County as it utilized directional PM peak hour roadway capacities instead of total daily volume capacities. The differences in LOS methodology resulted in the following additional state highway segments exceeding capacity: ▶ SR 104 (Eastbound direction from SR 19 to Paradise Bay Road) ▶ US 101 (Both directions from SR 104 to SR 20) ▶ SR 20 (Thomas Street to Kearney Street) The state highway system is owned and maintained by WSDOT and serves regional and statewide travel needs. While several roadway segments of the state highway system through Jefferson County are expected to exceed adopted state LOS standards, further widening of the corridors to accommodate future demand would require significant investments in capital dollars, impact adjoining property owners, and would be beyond the financial capacity of Jefferson County. Concurrency Concurrency occurs when public facilities or services needed to accommodate growth and development are provided at the time that development occurs. Transportation concurrency is intended to ensure that transportation facilities are available to accommodate expected traffic increases resulting from development. This will ensure orderly growth and development and avoid significant transportation impacts such as unacceptable levels of congestion. Achieving concurrency may require transportation improvements ranging from constructing physical TRANSPORTATION Jefferson County Comprehensive Plan 6–11 December 2018 improvements (e.g., wider travel lanes or shoulders, additional travel lanes, intersection improvements, or traffic signals) to implementing travel demand management techniques (e.g., improved transit service, rideshare programs, or staggered shift times for larger employers). Concurrency applies to County roads as well as intersections in the Tri- Area, but does not apply to Highways of Statewide Significance. Transit Level of Service Transit service within Jefferson County is maintained and operated by Jefferson Transit Authority (JTA), which defines the transit level of service methodology. The Transit Development Plan 2017-2022 & 2016 Annual Report (JTA, August 2017) provides goals for the transit operations and services which include: preserve existing system, improve safety and security, improve mobility, promote healthy communities, protect the environment, improve efficiency of services, and promote the economy. JTA has plans to update the Transit Comprehensive Plan which may further refine transit levels of service methods and standards. Jefferson County defaults to JTA’s definition and findings of transit levels of service, but will collaborate with JTA on County’s transit system service needs. JTA has identified in the Transit Development Plan 2017-2022 & 2016 Annual Report (JTA, August 2017) capital improvements that are needed to maintain current services (replacement of vehicles over defined time periods) or to improve facilities and communication tools. These are intended to maintain the current levels of transit service with regard to transit operations. More details on transit capacity analysis and changes to levels of service may be provided as JTA updates its Transit Comprehensive Plan. Non-motorized Trail & Standards The National Recreation & Parks Association established a methodology for existing level of service for non-motorized recreational trails as a composite of all trail miles divided by the county population. Their recommended standard is 0.5 miles of recreational trails for every 1000 population. Jefferson County exceeds the national standard with almost a 4:1 ratio. In the adopted 2002 Non-Motorized Transportation and Recreational Trails Plan (NMRTP), the baseline existing conditions level of service (ELOS) was 1.8 miles of trail for every 1000 residents of county owned facilities. Since then, the popular Larry Scott Trail (4.8 mi.) and its extension to the City limits, the Rick Tollefson Memorial Trail (1.5mi.), Olympic Discovery Trail-Segment A (0.75 mi.), Gibbs Lake Park (5 mi.) and Undi Road Bypass (1.2 miles as part of the Pacific Northwest Trail) have been added to the inventory of non-motorized transportation trails. Jefferson County is conducting a Carolyn Gallaway TRANSPORTATION Jefferson County Comprehensive Plan 6–12 December 2018 route study to connect the Larry Scott Trail to the Olympic Discovery Trail, which will also become a portion of the Pacific Northwest Scenic Trail. In 1998, the Jefferson County Board of Commissioners adopted an ELOS for composite non-motorized recreational trails of 0.52 miles for every 1000 residents. With this standard and the current 2017 population estimates, Jefferson County has exceeded the ELOS threshold. The 2038 forecast year of 39,221 population exceeds the Jefferson County ELOS standard by a 3:1 ratio.2 The NMRTP suggests a jurisdiction such as Jefferson County with great tourism appeal can maintain an ELOS standard within the national standard range and pursue a plan for trail growth to meet an economic development strategy. In the NMRTP Chapter 5, a long range vision for system demand from the years 2003 to 2022 is listed with planning level estimates. An update of the NMRTP will commence before the next Comprehensive Plan Periodic Review. The Jefferson County Non-motorized and Recreational Trails Plan designates several state routes as on-road bicycle routes. Examples of such route designations include, SR 104, SR 19, and SR 20. Jefferson County's rural highways are frequently used by bicyclists for commuting or recreation. The Non-motorized and Recreational Trails Plan recognizes this use of the state highways. Cycling along these routes is limited to the shoulder. It is important to note that these routes are not dedicated bicycle facilities and users do not have the same operating privileges as with designated roadway bicycle facilities. Jefferson County coordinates with WSDOT and PRTPO in implementing safety features for these routes, such as rumble strips, improved roadway maintenance, and potential improvements, such as signage. Non-motorized transportation in the Port Hadlock/Irondale Urban Growth Area will be a principle consideration for planning, development and re-development. A walkability standard is proposed to evaluate walkable distances between uses and services. This is also proposed in Rural Village Centers (LU-P-18.5.3). Non-motorized movement of people in the UGA will be facilitated through urban development designs, taking prominent consideration of connectivity between uses, distance from transit, sidewalks, and bicycle lanes. Refer to Land Use Element, Section 1.4 Urban, and related Goals and Policies. 2 It should be noted that the 2015 Jefferson County Parks, Recreation, and Open Space Plan (PROS) describes the adopted LOS from the 2002 NMRTP as 1.83 miles per 1,000 population, and recommends that demand standard for pathways and trails in the PROS Plan. The PROS Plan allows the County to be grant eligible for projects. To reconcile the NMTP and PROS Plans, this Comprehensive Plan identifies the 0.52 miles per 1,000 residents as a base LOS and 1.83 miles per 1,000 residents as a target LOS, if funding allows. See Appendix D, CFP for additional analysis. Refer to Land Use Element, Section 1.4 Urban and related goals and policies TRANSPORTATION Jefferson County Comprehensive Plan 6–13 December 2018 EXHIBIT 6-3 On-Road Bicycle Routes Note: Since the 2010 document, additional trail plans and trail construction have occurred. The 2010 NMRTP will be updated during its periodic review. Planning figures for trails in this element and the Capital Facilities plan have been updated. Source: Jefferson County Non-motorized and Recreational Trails Plan, 2010 TRANSPORTATION Jefferson County Comprehensive Plan 6–14 December 2018 EXHIBIT 6-4 Multi-Purpose Paths Note: Since the 2010 document, additional trail plans and trail construction have occurred. The 2010 NMRTP will be updated during its periodic review. Planning figures for trails in this element and the Capital Facilities plan have been updated. Source: Jefferson County Non-motorized and Recreational Trails Plan, 2010. TRANSPORTATION Jefferson County Comprehensive Plan 6–15 December 2018 Transportation Demand Management Strategies Transportation Demand Management (TDM) strategies promote travel efficiency and energy conservation while reducing the adverse environmental impacts of the transportation system. In addition, TDM strategies lessen the need for additional capacity improvements by decreasing dependence on single-occupancy vehicle use and preserving capacity on existing roadways. The additional capacity created throughout the County’s transportation system can reduce the need for improvements. These strategies can include commute trip reduction and demand and system management strategies, telecommuting, non- motorized travel, site design standards, ridesharing, encouraging commercial and freight shipping during off-peak hours, staggered shift times, flexible work schedules and public transportation. These strategies are typically achieved through employer-based programs with technical assistance available from WSDOT subsidized proven programs. WSDOT provides incentives to individual employers willing to provide a financial benefit to employees for reducing drive- alone commuting. The County can support efforts to advance TDM techniques by funding subsidized proven programs, planning and public information towards implementing these strategies. Safety, Maintenance, & Preservation Safety programs seek to reduce the frequency and severity of traffic accidents through identification of high accident locations, corridors, or elements. Maintenance and preservation practices protect the transportation infrastructure through regular repairs as well as responding to emergency situations such as mudslides, culvert washouts, or flooding. Active Living This Element promotes opportunities to improve connectivity and increase non-motorized travel such as bicycling and walking to promote active living. The policies addressed in this element help to achieve goals of the Community Health Improvement Plan (CHIP) regarding chronic disease prevention. Many social and environmental factors influence the exercise choices individuals make, including the built environment. One of the CHIP goals includes providing Jefferson County residents with opportunities to get the appropriate levels of physical activity. Transportation Element Policies also address support for the Non- motorized Transportation and Recreational Trails Plan (2010) and the The Community Health Improvement Plan (CHIP) is addressed in the following Elements: Land Use Land Use & Public Health Natural Resources Open Space, Parks & Rec. Challenges & Opportunities Environment Environmentally Friendly Development Techniques Transportation Active Living Community Health Improvement Plan TRANSPORTATION Jefferson County Comprehensive Plan 6–16 December 2018 Parks, Recreation, and Open Space Plan (2015). Safe routes to destinations such as schools are also promoted in policies. County-wide Transportation Improvement Program Annually, Jefferson County prepares a six-year transportation improvement program. It is used to help seek federal and state funds and apprise the general public and affected agencies of future capital investments in the transportation system. The program shows secured funding and planned projects requesting funding. Historically, Jefferson County projects have averaged more than 70% funding from State and Federal sources. Local funds available for this proposed six-year capital program average only $277,000 per year. Road, culvert, bridge, intersections, and non-motorized improvements make up most of the proposed program. EXHIBIT 6-5 2018-2023 Six-year Transportation Improvement Program Source Jefferson County, 2017. Irondale/Port Hadlock Urban Growth Area Individual intersections were only analyzed within the County’s Tri-Area focused on the Port Hadlock/Irondale UGA. Existing intersection level of service results show that five of the twelve study intersections currently operate at LOS E and LOS F. Each of these five intersections are two-way stop-controlled. For two-way stop-controlled intersections, the Highway Refer to Land Use Element, Land Use & Public Health TRANSPORTATION Jefferson County Comprehensive Plan 6–17 December 2018 Capacity Manual 2010 methodology bases the LOS on the vehicle delay for the worst movement (generally vehicles making a left onto the major road when stopped on the minor road). While this methodology shows five intersections operating below standard, the vehicles traveling along the major approaches currently experience little to no delay. Under GMA and SEPA, new development and growth would not be required to mitigate existing deficiencies. The County could require new development to mitigate conditions back to existing levels of service, if traffic conditions worsen due to development. Under existing conditions, roadway capacity on SR 19, SR 116, and all roadways in the Irondale-Port Hadlock UGA are adequate. However, there are several unsignalized intersections along SR 19 in the Irondale, Port Hadlock and Chimacum areas that experience long delays as vehicles wait for gaps in traffic on SR 19. To accommodate the minor street delays while also maintaining mobility on SR 19, a minimum number of interruptions to traffic flow (traffic signals or roundabouts) should be pursued. The most appropriate way to avoid excessive traffic control is to minimize the number of locations of traffic access onto SR 19 as well as control turn movements onto SR 19. The intersection of SR 19 and SR 116 (Ness's Corner) currently experiences the greatest side-street delay, and is therefore the most immediate need for signalization or roundabout installation. Several intersections experience similar problems to those of the SR19/SR 116 intersection, such as SR 19 and Irondale Road, SR 19 and Prospect Avenue, and SR 19 and Four Corners Road. Excessive minor leg delays should be reduced by improved traffic control at these intersections. As growth and development continues in the Irondale-Port Hadlock UGA as planned over the next 20 years, further improvements to the road system will be required to maintain adopted Level of Service standards. New development could be required to pay for these improvements through new construction, or pro-rata payments to defined improvements as discussed in the Transportation Facilities Assessment section. A Traffic Impact Analysis would be needed for new developments to distinguish between existing deficiencies (not growth funded) and deficiencies caused by the new development (growth funded). Proposed improvement projects are illustrated in Exhibit 6-6. Based on projected volumes, intersection improvements will be required at the following intersections by 2038: ▶SR 19 & SR 116 ▶Chimacum Road and SR 116 ▶SR 19 & Irondale Rd. ▶SR 19 & 4 Corners Rd. ▶SR 116 & Cedar Ave ▶SR 19 & Woodland Dr. ▶SR 19 & Prospect Ave. Future Intersection Improvements TRANSPORTATION Jefferson County Comprehensive Plan 6–18 December 2018 EXHIBIT 6-6 Port Hadlock/Irondale Area Improvement Projects Source: Transpo Group TRANSPORTATION Jefferson County Comprehensive Plan 6–19 December 2018 6.4 GOALS & POLICIES Goal TR-G-1 Provide a safe, convenient, efficient, and integrated multimodal highway and arterial system for the movement of people and goods, one that is functionally well maintained, reflects local environment, and meets the demands of the future. ▶ Policy TR-P-1.1 Provide for a Level of Service C, or better, for rural County road facilities based upon Average Annual Daily Trips. ▶ Policy TR-P-1.2 Provide for a Level of Service D, or better, on all County road facilities within Urban Growth Areas, Master Planned Resorts, and Designated Highways of Regional Significance as established by the Peninsula Regional Transportation Planning Organization Regional Transportation Plan, based upon Average Annual Daily Trips. ▶ Policy TR-P-1.3 Minimize life cycle costs of the County transportation system by preserving and maintaining both the adequacy and operating condition of the existing transportation system. ▶ Policy TR-P-1.4 Maintain the efficiency of traffic flow by Transportation Demand Management, planning for limited road access, monitoring traffic, upgrading traffic control devices, and developing traffic management techniques as appropriate. ▶ Policy TR-P-1.5 Require that streets are designed and constructed to County standards to efficiently and effectively meet the needs of the community and promote overall transportation safety for all road users, including bicyclists and pedestrians. ▶ Policy TR-P-1.6 Require use of access management techniques to regulate driveway access. ▶ Policy TR-P-1.7 Encourage the retention and use of roadway features in rural areas that enhance rural character, minimize impervious surfaces, and minimize cost to taxpayers and developers. ▶ Policy TR-P-1.8 Prevent glare and minimize pollution to the night sky through the use of appropriate roadway lighting and fixtures without compromising public safety. ▶ Policy TR-P-1.9 Enhance urban qualities by applying appropriate urban standards in Urban Growth Areas and Master Planned Resorts. TRANSPORTATION Jefferson County Comprehensive Plan 6–20 December 2018 ▶ Policy TR-P-1.10 Design roadways in the County road system according to their functional classification and forecasted 20-year traffic demand. Goal TR-G-2 Promote a coordinated and integrated public transportation system available to all that is reliable, safe, cost effective, energy efficient, and contributes to the cultural and economic betterment of the residents of Jefferson County. ▶ Policy TR-P-2.1 Support existing public transportation programs and coordinate with the Peninsula Regional Transportation Planning Organization to improve the system as needed, and consider including Kitsap County, Bainbridge Island and Seattle. ▶ Policy TR-P-2.2 Encourage cooperation between private and public transportation providers. ▶ Policy TR-P-2.3 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. ▶ Policy TR-P-2.4 Provide convenient automobile, pedestrian, and bicycle access to park and ride facilities on arterial/collector routes where warranted and cost effective. ▶ Policy TR-P-2.5 Coordinate with Jefferson Transit Authority in the planning and permit review process, to identify and invest in road and pedestrian improvements that support transit use, reliability, safety, retail shopping facilities, offices, and industrial and residential development. ▶ Policy TR-P-2.6 Promote and enhance passenger and freight travel opportunities, including development of air and water transportation alternatives. ▶ Policy TR-P-2.7 Encourage public transportation agencies to use technology based software which would allow for better coordination with other public transportation providers, agencies, and customers. TRANSPORTATION Jefferson County Comprehensive Plan 6–21 December 2018 ▶ Policy TR-P-2.8 Coordinate with the Peninsula Regional Transportation Planning Organization and other jurisdictions to ensure that adequate Washington State Ferry System service is provided to the community. ▶ Policy TR-P-2.9 Encourage and support the adoption of electric and autonomous vehicle sharing programs that include a comprehensive network of electric changing stations that facilitate electric vehicle use. Goal TR-G-3 Provide safe, accessible, and convenient routes, trails, parking facilities, trailheads, and other amenities that promote the use of non-motorized travel in a manner that integrates other forms of transportation. ▶ Policy TR-P-3.1 Using established standards, promote coordinated and safe bicycle, equestrian, and pedestrian way improvements in accordance with the Non-motorized Transportation and Recreational Trails Plan; and in coordination with Federal, State, and regional agencies, utilities, and citizen groups, emphasize connectivity and access to schools, parks, employment, major activity service centers, transit facilities (ferry, bus, etc.), and links between existing trails and regional trail networks during land use and transportation system development planning. Evaluate safety issues for bicycle and pedestrian travel near schools and identify potential improvements. ▶ Policy TR-P-3.2 Support educational opportunities for children and adults that will encourage safe use of roadways, trails, and sidewalks for all transportation modes. ▶ Policy TR-P-3.3 Promote safe, convenient, and protected bicycle parking at activity centers such as schools, parks, commercial centers, employment and service centers, and mass transit facilities (ferry, bus, etc.) in accordance with the Non-motorized Transportation and Recreational Trails Plan. ▶ Policy TR-P-3.4 In coordination with the Parks, Recreation, and Open Space Plan and the Non-motorized Transportation and Recreation Trails Plan, provide signage for on-street segments of bicycle, pedestrian, and equestrian routes in accordance with the Federal Manual on Uniform Traffic Control Devices (MUTCD). Refer to Open Space, Parks & Rec. Goal OS-G-2 and Land Use Element, Section 1.4 Urban and related goals and policies TRANSPORTATION Jefferson County Comprehensive Plan 6–22 December 2018 ▶ Policy TR-P-3.5 Encourage buffering between motorized travel and non-motorized transportation modes, where appropriate and economically feasible. ▶ Policy TR-P-3.6 Continue to update the Non-motorized Transportation and Recreational Trails Plan incorporated into the Comprehensive Plan by reference. ▶ Policy TR-P-3.7 Coordinate with WSDOT and PRTPO to enhance existing bicycle connectivity and safety along state highway bicycle routes. Goal TR-G-4 Encourage land use types, mixes, and densities that promote efficient multi-modal transportation systems. ▶ Policy TR-P-4.1 Recognize and promote multimodal transportation, especially in high density Urban Growth areas where it is most efficient and effective. ▶ Policy TR-P-4.2 Encourage innovative land development proposals that are consistent with the County Comprehensive Plan Land Use Element and Rural Element which minimize the need for expanding the road system, and utilize the capacity of the existing transportation system, including the capacity of transit and non- motorized modes. ▶ Policy TR-P-4.3 Consider the use of impact fees as a means to ensure that adequate facilities (including, but not limited to transit, pedestrian facilities, bikeways, or road shoulders) are available to serve new growth and development, and to maintain adopted level of service standards for those facilities. ▶ Policy TR-P-4.4 Enhance transportation system safety by requiring appropriate facility design, including providing landscaping and setbacks adjacent to transportation facilities, and limiting access where appropriate. ▶ Policy TR-P-4.5 Protect outstanding scenic vistas accessible from transportation facilities through site design, provide visual, and where possible and appropriate, physical access to these resources. ▶ Policy TR-P-4.6 Require that subdivision and commercial project designs address the following issues: a. Cost effective transit and delivery of emergency service; b. Provisions for all transportation modes; Refer to Land Use Element, Section 1.4 Urban and policies LU-P-32.22, LU-P-32.23, and LU-G-35 TRANSPORTATION Jefferson County Comprehensive Plan 6–23 December 2018 c. Dedication of rights of way for existing and future transportation needs; d. Motorized and non-motorized access; e. Shoulders, sidewalks, trail connections, and bicycle pathways; f. Compatibility between motorized vehicles, pedestrians, bicyclists, and transit users; g. Inclusion of transit friendly design elements; h. Adequate parking for non-peak periods; and i. Frontage improvements and roadway features to meet urban design standards within the Irondale-Port Hadlock Urban Growth Area and, when appropriate, the Port Ludlow Master Planned Resort. ▶ Policy TR-P-4.7 Provide adequate right-of-way for future transportation needs, through implementation of a systematic right- of-way acquisition program, by limiting encroachment of structures or ancillary uses into the right-of-way (e.g., setbacks), requiring right- of-way dedication or easements as part of development approval, and by acquiring right-of-way for future needs through purchase from willing sellers. ▶ Policy TR-P-4.8 Ensure that unacceptable safety hazards will be mitigated. The definition of unacceptable will be based on analysis of the existing facility(s) and the current standards for that facility(s) contained in commonly used and adopted transportation publications. ▶ Policy TR-P-4.9 Ensure that the Level of Service for County roads are met for existing and proposed development concurrent with proposed development prior to issuing development approvals, by requiring traffic impact analyses where appropriate. ▶ Policy TR-P-4.10 Ensure that new developments that would generate traffic that would significantly decrease the Level of Service below the adopted Level of Service Standard for an intersection or roadway segment not be approved without stipulations for mitigation. When a new development would lower the Level of Service below the adopted Level of Service Standard, require the development proponent to mitigate the impact by one of the following: a. Construct improvements that restore the Level of Service to the adopted Level of Service Standard; b. Contribute an impact fee that is a proportionate share of the cost of improvements related to the development; TRANSPORTATION Jefferson County Comprehensive Plan 6–24 December 2018 c. Implement alternative measures such as Transportation Demand Management (TDM), project phasing, or other appropriate measures determined by the County that will avoid the impact. ▶ Policy TR-P-4.11 Encourage land use development patterns and support technologies that reduce the demand for increased capacity on roadways. ▶ Policy TR-P-4.12 Ensure that proposed roads on unopened public rights-of-way are constructed to appropriate County standards based on their function, location, projected traffic, and potential for future circulation. ▶ Policy TR-P-4.13 Require that roadway improvements and new subdivisions within the defined school pedestrian walking zone meet established standards intended to ensure the safety of pedestrians and bicyclists. ▶ Policy TR-P-4.14 Provide adequate and appropriate signage to promote safe and effective multimodal transportation on local and state bicycle routes. (New) Goal TR-G-5 Ensure that the transportation system in Jefferson County includes all modes of transportation, and encourages the efficient movement of goods, services, and passengers in coordination with a statewide system. ▶ Policy TR-P-5.1 Allow the use of public funds that ensure that appropriate transportation facilities are in place at the time of development in designated commercial and industrial zones. ▶ Policy TR-P-5.2 Ensure that access to the major air and water transportation facilities via County arterials and state highways is safe, efficient, and coordinated with other transportation modes. ▶ Policy TR-P-5.3 Recognize the existence and current use of private small airfields, landing strips, and private helistops in land use decisions, and ensure that proposed new and expanded use of these private facilities do not adversely impact surrounding properties, and meet all required development criteria. ▶ Policy TR-P-5.4 Protect arterials and highways from encroachment and congestion by access, utilizing appropriate traffic mitigation techniques for commercial development and other impediments to flow. Refer to Natural Resources Element and Open Space, Parks & Rec., Historical & Cultural Preservation Element, Goal OS-G-2 TRANSPORTATION Jefferson County Comprehensive Plan 6–25 December 2018 ▶ Policy TR-P-5.5 Ensure that local access roads provide through passage at appropriate speeds that minimize impacts to the surrounding area, and discharge to an appropriate facility. Goal TR-G-6 Ensure efficient management of all transportation resources through cooperation in planning and project development with Federal, State, regional, and local jurisdictions, the PRTPO, and the Public. ▶ Policy TR-P-6.1 Coordinate with relevant agencies in the development of federal, state, and County regulations and guidelines for transportation of hazardous materials through the county. ▶ Policy TR-P-6.2 Coordinate planning for transportation improvements and projects with the facilities/utility planning activities of other agencies and utilities in order to reduce duplication of service, ensure that per-project costs are reduced, environmental impacts minimized, and community inconvenience and disruption lessened, while increasing the quality of service. ▶ Policy TR-P-6.3 Comply with the Americans with Disabilities Act of 1990 (ADA) in all transportation projects. Goal TR-G-7 Ensure that transportation planning includes extensive opportunities for public involvement. ▶ Policy TR-P-7.1 Consider convening a transportation advisory committee to assist the County with transportation planning and implementation issues. ▶ Policy TR-P-7.2 Consider conducting a public process to develop local criteria and standards for arterial, collector, and local access streets, commercial and residential development, and roadway maintenance. TRANSPORTATION Jefferson County Comprehensive Plan 6–26 December 2018 Goal TR-G-8 Promote Transportation Demand Management programs as a means of reducing traffic, minimizing environmental impacts such as climate change, and optimizing existing transportation investments. ▶ Policy TR-P-8.1 Encourage employers to reduce single-occupancy commuting by offering flexible work schedules, telecommuting options, subsidized transit passes, and incentives to carpooling. ▶ Policy TR-P-8.2 Encourage employers to provide on-site facilities that encourage use of alternative transportation modes, such as transit shelters and covered bike racks, lockers, and showers at work sites. ▶ Policy TR-P-8.3 Facilitate transportation demand management by coordinating and assisting in the development of transit amenities and non-motorized transportation facilities in County road or highway improvements, including bus pullouts, passenger shelters, bypass lanes, park-and-ride facilities, sidewalks, bicycle lanes, and multi-purpose trails, where appropriate. ▶ Policy TR-P-8.4 Participate with state government and transit agencies in developing, promoting, and facilitating regional ridesharing through such programs as parking management, and ride match services and preferential parking for carpools and vanpools. Goal TR-G-9 Provide transportation facilities and services that are energy efficient, protect and enhance the environment, and preserve the existing residential quality of life. ▶ Policy TR-P-9.1 Continue the County’s long-standing commitment to prioritize mechanical and manual methods to control roadside vegetation. ▶ Policy TR-P-9.2 Ensure that all transportation projects comply with the Jefferson County Critical Areas Ordinance in order to protect critical areas, preserve open space, and maintain wildlife habitat in transportation projects and planning. Include the mitigation of adverse impacts on water resources, drainage patterns, and soils in the design of transportation facilities. TRANSPORTATION Jefferson County Comprehensive Plan 6–27 December 2018 ▶ Policy TR-P-9.3 Protect air quality by improving the operating efficiency of the overall transportation system, through the effective use of multimodal transportation. ▶ Policy TR-P-9.4 Promote the conservation of energy through Transportation Demand Management policies and techniques. ▶ Policy TR-P-9.5 Address environmental retrofitting of transportation facilities, including the implementation of storm water facility best management practices and the replacement of culverts that impede fish passage, as opportunities and funding allows. ▶ Policy TR-P-9.6 Transportation facilities and services shall be sited, designed, or buffered to fit in harmoniously with their surroundings, as appropriate. When sited within or adjacent to residential areas, special attention should be given to traffic, noise, light, and glare impacts. ▶ Policy TR-P-9.7 Evaluate all transportation, plans and projects for opportunities to adapt and mitigate the effects of climate change. ▶ Policy TR-P-9.8 Towards reduced use of fossil fuels and greater community wellness in a county with a high median age, expanded use of electric-assist bicycles, as defined under RCW 46.04.169, should be encouraged. This includes, but is not limited to the safe and effective siting of E-bicycle charging stations. Goal TR-G-10 Continue to update the Transportation Improvement Program consistent with, and incorporated by reference into the Comprehensive Plan. ▶ Policy TR-P-10.1 Roadway improvement projects included in the County’s six-year Transportation Improvement Program shall be consistent with the goals and policies of the Transportation Element, and other elements of the County’s Comprehensive Plan. ▶ Policy TR-P-10.2 Implement Capital Facility and Utility Element policies addressing funding, financing, and project implementation to fulfil the County’s transportation system. TRANSPORTATION Jefferson County Comprehensive Plan 6–28 December 2018 6.5 ACTION PLAN The Transportation Element is implemented by on-going updates to capital plans and system plans, as well as implementation of the County’s code, such as with concurrency standards. EXHIBIT 6-7 Transportation Action Plan Action Description Multi-modal System Investments Transportation Improvement Program Annually update the six-year transportation improvement program. Capital Facility Plan Include six-year and 20-year transportation system improvements. System Plan & Code Implementation System Plan Coordination Coordinate this Transportation Element with system plans that promote non-motorized travel, including the following, as amended: Non-motorized Transportation and Recreational Trails Plan (2010) Parks, Recreation, and Open Space Plan (2015) Coordinate with WSDOT and PRTPO to implement connectivity and safety improvements to state highway bicycle routes, such as rumble strips, improved roadway maintenance, and signage. Transportation Levels of Service and Concurrency Implementation Consider implementing level of service and concurrency provisions in County code. Coordination Participate in Regional Forums Continue to coordinate in regional forums through the PRTPO and collaborate with WSDOT, Jefferson Transit, and Port of Port Townsend on road, airborne, and marine travel. Source: Jefferson County, 2018. Jefferson County Comprehensive Plan 7–1 December 2018 7 Economic Development Jefferson County enjoys an enviable quality of life, and outstanding scenic, recreational, and ecological resources. In addition, it enjoys proximity to urban areas in the Puget Sound region, and a growing popularity as a tourist destination. The rural, resource-based history is evident in the county's numerous and vast areas of commercial forestlands, farms, and gravel mines. This somewhat isolated setting, paired with the large amount of state and federal lands in the county, can create challenges for economic development. However, maintaining and enhancing quality of life is a key aspect of the county’s economic development strategy, as well as providing resiliency within various possible economic futures. Accessibility to all areas of Jefferson County is quite limited. Only four state highways provide vehicular access. State ferries provide access at the City of Port Townsend at the county's northern-most point. Jefferson County is more geographically isolated than counties elsewhere in the Puget Sound creating a unique and challenging business and economic development setting. The North Olympic Development Council reported that the natural This element supports the Vision Statement by promoting job retention and job growth to maintain and enhance quality of life for existing and future residents. Priorities leverage the resource-based, tourist-based, and location-based economies, promote the port and other assets, and incorporate additional innovative and entrepreneurial economic development. Economic Development Element concepts are directly linked with goals and policies in other elements that seek to empower adequate and affordable housing, supportive land use and development codes, and safe and sufficient infrastructure. Connection to the Vision Statement Left: Jefferson County, Right: Carolyn Gallaway ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–2 December 2018 abundance of the region has not translated into prosperity for its residents nor jurisdictions (North Olympic Development Council (NODC), 2016). With over two-thirds of the county in public ownership and unavailable for direct economic development activities, Jefferson County may appear to have limited economic development opportunities. However, within a changing economy, the county can capitalize on opportunities including the possibility to use its natural abundance as an asset and transcend the perceived development limitations of the land. Natural and social qualities drive Jefferson County prosperity and are key elements to develop and strengthen the economic development strategy. For example, Olympic National Park, occupies most of Jefferson County's center and is one of the top ten most-visited national parks in the US with most of those visitors traveling first through Jefferson County to enjoy the park's spectacular scenery and outdoor recreation opportunities. Tourism development strategies that increase Jefferson County’s ability to attract and serve these travelers can be a way to turn these challenges into opportunities. The local Jefferson County economy is currently dominated by industrial, agricultural, and natural resource activities, along with the attendant governmental and health services provided to the community. The Jefferson County finds that it is important to create a future that allows our communities to thrive and prosper as we maintain our rural character. This includes strategies that allow our communities to develop not only resource-based economies, but provide the balance and flexibility to provide for new emerging economies. The Growth Management Act makes the following findings regarding Rural Lands and a Rural Economy (RCW 36.70A.011): “Rural lands and rural-based economies enhance the economic desirability of the state, help to preserve traditional economic activities, and contribute to the state's overall quality of life. The legislature finds that to retain and enhance the job base in rural areas, rural counties must have flexibility to create opportunities for business development. Further, the legislature finds that rural counties must have the flexibility to retain existing businesses and allow them to expand. The legislature recognizes that not all business developments in rural counties require an urban level of services; and that many businesses in rural areas fit within the definition of rural character identified by the local planning unit. Finally, the legislature finds that in defining its rural element under RCW 36.70A.070(5), a county should foster land use patterns and develop a local vision of rural character that will: Help preserve rural-based economies and traditional rural lifestyles; encourage the economic prosperity of rural residents; foster opportunities for small-scale, rural-based employment and self-employment; permit the operation of rural-based agricultural, commercial, recreational, and tourist businesses that are consistent with existing and planned land use patterns; be compatible with the use of the land by wildlife and for fish and wildlife habitat; foster the private stewardship of the land and preservation of open space; and enhance the rural sense of community and quality of life.” Flexibility in Implementing GMA in a Rural Economy ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–3 December 2018 Growth Management Act provides jurisdictions with opportunities to plan Industrial Land Banks as a planned reserve area for a future industrial site, as well as provisions for planning Major Industrial Developments. Additional detail can be found in the Land Use Element. Still present are the historical industries of forestry and lumber production, and maritime trades such as seafood processing, ship repair and boatbuilding. Agricultural activities include aquaculture, organic farming, and food production. These industries are productive in their own right, and can also create and sustain their own type of diversified, experiential tourism activities. 7.1 PURPOSE The purpose of the Economic Development element is to establish “local goals, policies, objectives, and provisions for economic growth and vitality and a high quality of life.” (RCW 36.70A.070(7)). A strong, stable, diversified, and resilient economy provides a high quality of life for the citizens of Jefferson County and the region. The economy generates resources necessary for the well-being of families and individuals and the resources through which local governments provide for the health, safety, and welfare of its citizens. In Jefferson County, our citizens, communities, neighborhoods, and businesses share a unique sense of local identity and purpose. We care about each other and this community, and recognize our responsibility for the long-term well-being of this place we call “home”. As active participants in the life of our community, we are willing to make choices today that will help to shape our future, rather than merely allowing the future to shape us. We recognize that key public investments today will help us to improve and maintain our long-term economic health. Our future economic vitality rests primarily with the private sector, not the County, City and Port governments. Still, our local governments can play an important role in contributing to a robust community. Government can provide the “necessities” that enable individuals and businesses to achieve their potential—and they can also assist in preserving those aspects of our community’s character and natural environment that makes this pace unique. Through this Strategy, the County, City and Port are focusing their efforts on three keys for our economic future: 1. Developing infrastructure that overcomes our isolation. 2. Fostering educational excellence. 3. Maintaining and enhancing our quality of life. Source: Jefferson County, 2012. Draft Joint Economic Development Strategy Vision (JEDS, 2011) ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–4 December 2018 7.2 TRENDS & OPPORTUNITIES Conditions & Trends Unemployment Rate Since the U.S. recession of 2007-2009, Jefferson County unemployment has been higher than State and national figures; though officially the recession ended in 2009, impacts of the recession extended into 2012 for Jefferson County. Recent peaks of unemployment coincided with the recession of 2007-2009. The Jefferson County unemployment rate has declined since then, from a peak of 10.5% in 2011 to 7.3% in 2016. Jefferson’s unemployment rate has remained consistently higher than the state unemployment rate, which went from 9.3% to 5.4% over the same period. EXHIBIT 7-1 Unemployment Rate Notes: Historical resident labor force and employment, not seasonally adjusted; data developed from Employment Security Department/WITS; U.S. Bureau of Labor Statistics, Local Area Unemployment Statistics. Issued: June 25, 2017; Benchmark: March 2017 Source: ESD, 2017; BERK Consulting, 2018. 7.3% 5.4%4.9% 0% 2% 4% 6% 8% 10% 12% 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 JeffersonStateU.S. Despite a general national recovery from the Great Recession, defined by the period of 2007-2009, rural areas nationally had a slower and longer recovery period that stretched well into 2012, with complete recovery unlikely to happen in some communities at all. Recovering from the Great Recession ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–5 December 2018 Age Jefferson County has the oldest median age of county populations in the State of Washington. Further, Jefferson County has a relatively larger proportion of residents aged sixty or over, than the country as a whole or Washington State. Reciprocally, there are proportionately fewer young residents in Jefferson County compared to country as a whole or Washington State. This trend can be expected to affect the economy in ways ranging from shifts in housing demand, retail sales, labor force replacement and healthcare services demands. As seen in the data on educational attainment (Exhibit 7-8), the County’s population is comparatively highly educated, but a large proportion is retired and not in the working population. EXHIBIT 7-2 Population by Age Source: ESD, 2017; BERK Consulting, 2018. 2006 2016 0-4 5-9 10-14 15-19 20-24 25-29 30-34 35-39 40-44 45-49 50-54 55-59 60-64 65-69 70-74 75-79 80-84 85 + 500 561 626 609 623 592 640 674 702 826 965 1,275 1,570 1,822 1,418 906 591 534 478 543 610 571 576 501 569 613 636 816 1,077 1,454 1,810 1,930 1,410 892 567 604 541 623 776 763 594 530 564 700 901 1,073 1,250 1,368 1,246 1,112 828 655 447 278 527 629 745 719 491 480 570 687 913 1,195 1,386 1,510 1,331 1,069 800 639 463 444 Male Female ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–6 December 2018 EXHIBIT 7-3 Comparison of Population by Age, 2016, 2040 Source: ESD, 2017; BERK Consulting, 2018. Wages The 2016 average annual average wage for Jefferson County was $36,850 in 2016. This was below the state’s average annual wage of $59,073, as well as the state average minus King County, which was $46,771. The median hourly wage in 2016 was $20.16, less than that of the state’s median hourly wage at $23.91 and for the state less King County at $20.68. Industries with higher average wage earnings included utilities, manufacturing, government, and professional and technical services jobs. Inflation adjusted average wages in the county have been lower than the State and nation and have been falling further behind. Given the high proportion of potential retirees in the population, wages are likely to be a smaller proportion of county residents’ personal incomes. See Exhibit 7-4 on the following page. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–7 December 2018 EXHIBIT 7-4 Average Annual Wage by Sector, 2016 Source: ESD, 2017; BERK Consulting, 2018 The largest employers by sector in Jefferson County are accommodation and food services, retail trade, and health care. Together these sectors make up approximately 40% of covered employment in the county. Jefferson Healthcare is the largest public employer in Jefferson County. In addition to large employers like Jefferson Healthcare and the Port Townsend Paper Company, Jefferson County is characterized by having many small business employers. This characteristic of having a local economy of many small businesses provides resiliency, as when an individual employer moves or goes out of business, it does not take the whole local economy with it. Economic development strategies in Jefferson County may include consideration of major industrial developments or similarly large businesses, but the mainstay has been developing and maintaining businesses scaled to the infrastructure and development intensities that Jefferson County can provide or foresee in our current planning horizon. $36,850 $83,935 $55,598 $51,258 $46,568 $43,914 $42,654 $37,614 $36,492 $35,524 $33,949 $30,151 $28,999 $27,004 $24,440 $23,303 $20,994 $16,583 $15,866 $0 $10,000 $20,000 $30,000 $40,000 $50,000 $60,000 $70,000 $80,000 $90,000 All Industries Utilities Manufacturing Government Professional & technical services Finance & insurance Construction Information Wholesale trade Transportation & warehousing Ag., forestry, fishing & hunting Other services, ex. public admin. Administrative & waste services Health care & social assistance Retail trade Educational services Real estate & rental & leasing Accommodation & food services Arts, entertainment, & recreation ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–8 December 2018 EXHIBIT 7-5 Employment Share by Sector & Inflation Adjusted Average Wage Employment Share by Sector Source: ESD, 2017; BERK Consulting, 2018. Inflation Adjusted Average Wage Source: ESD, 2017; BERK Consulting, 2018. 14%13%12%11%10% 8%6% 0% 5% 10% 15% 20% 25% 1990 1994 1998 2002 2006 2010 2014 Accommodation and Food Services Retail Trade Health Care andSocial Assistance Government Educational Services Manufacturing Construction $36,850 $59,073 $46,771 $0 $10,000 $20,000 $30,000 $40,000 $50,000 $60,000 $70,000 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 2011 2013 2015 Jefferson Washington State State Less King ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–9 December 2018 Taxable Sales Trends Taxable retail sales capture information about some types of economic activity. Inflation adjusted quarterly taxable retail sales can been seen in Exhibit 7-6. The data show both the variability of some sectors across time as well as the seasonal variation within sectors. It shows the reliance of the county on retail and construction as source of sales tax revenue, and the seasonal variation of these sectors. Sales from retail trade and accommodation and food services also reflect the growing tourism in the county. A 2010 report by E.D. Hovee and Company found that travelers to Jefferson County spend proportionately more for dining, accommodations, groceries, other retail purchases, and arts, entertainment, recreation than is typical for visitors traveling elsewhere in Washington. (E.D. Hovee & Company, LLC, 2010) EXHIBIT 7-6 Inflation Adjusted Annual Taxable Retail Sales Source: ESD, 2017; BERK Consulting, 2018. $155,496,504 $124,557,370 $61,521,748 $28,562,014 $22,582,742 $85,238,771 $0 $20,000,000 $40,000,000 $60,000,000 $80,000,000 $100,000,000 $120,000,000 $140,000,000 $160,000,000 1996 2000 2004 2008 2012 2016 Retail Trade Construction Accommodations& Food Services WholesaleTrade Information All OtherIndustries ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–10 December 2018 EXHIBIT 7-7 Inflation Adjusted Quarterly Taxable Retail Sales* *Note seasonal periodicy. Source: ESD, 2017; BERK Consulting, 2018. Educational Attainment Approximately 94.1% of Jefferson County residents age 25 and older were high school graduates, compared to 90.4% of Washington State’s residents and 86.7% of U.S. residents in the period 2011-2015. Those with a bachelor’s degree or higher made up 37.0% of Jefferson County residents age 25 and older compared to 32.9% of state residents and 29.8% of U.S. residents over the same period. $41,038,144 $30,132,469 $12,957,784 $34,766,589 $- $5,000,000 $10,000,000 $15,000,000 $20,000,000 $25,000,000 $30,000,000 $35,000,000 $40,000,000 $45,000,000 Retail Trade Construction Accommodations & Food Services All Other Industries ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–11 December 2018 EXHIBIT 7-8 Adult Educational Levels Source: ESD, 2017; American Community Survey, BERK Consulting, 2018. While Jefferson County has a higher adult educational level than the state, the county also has a larger share of residents over the age of 60, indeed, the largest in the State, as shown in Exhibit 7-3. The educational achievement rates of adults 65 and older is much higher than other age groups, shown in Exhibit 7-9. EXHIBIT 7-9 Adult Educational Levels by Age Group Source: ESD, 2017; American Community Survey, BERK Consulting, 2018. 1.7% 4.2% 23.2% 27.1% 6.8% 21.5% 15.5% 4.0%5.5% 23.3%24.6% 9.8% 20.9% 12.0% 5.7% 7.6% 27.8% 21.1% 8.1% 18.5% 11.2% 0% 5% 10% 15% 20% 25% 30% Less than 9th Grade Some High School, NoDiploma High School Diploma/GED Some College Associate's Degree Bachelor's Degree Master's or Higher Jefferson State U.S. Population in Age Group 2,572 2,483 9,952 9,598 8% 7% 5% 5% 67% 67% 58% 50% 25% 26% 37% 45% 0%20%40%60%80%100% 25 to 34 35 to 44 45 to 64 65 and older Less than high school High school graduate Bachelor's degree or higher ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–12 December 2018 Economic Sectors Resource Based Sectors The largest economic sectors of Jefferson County by dollar value are the natural resource-based sectors, including private commercial forestry, timber harvest, and gravel and other mineral resource extraction. Commercial forestry occupies the largest area of privately owned land in the county and is zoned at a minimum of eighty acres per resource parcel. Other Manufacturing, Service Based Jobs, and Industries Historically, Jefferson County had more industrial development than today. Various activities relating to fruit, vegetable, and poultry production, canneries, tourist ferries to Seattle, as well as sawmills and other resource extraction activities took place in the county. Key major industrial development included the Puget Sound Iron Company in Irondale (1879-1881), the Western Mill and Lumber Company in Irondale and Port Hadlock (1884—1907), and the Alcohol distillery in Port Hadlock (1911—1913). World War I and World War II ushered in a burgeoning industry from military installations and support facilities. Remnants of this era include coastal defense systems at Fort Warden, Fort Townsend, Fort Flagler, and development of the Indian Island munitions depot. Currently, Jefferson County supports jobs in a broad range of service- based jobs and in the manufacturing, marine trades, and maritime industries. These jobs exist in the incorporated and unincorporated urban growth areas, in the rural commercial and rural village centers and intermittently throughout other rurally zoned lands. These include all services related to small businesses, home businesses and cottage industries, tourist based and food services and health care and medical services. The service-based sectors come in second place in Jefferson County after resource-based economies for total jobs supported and by dollar volume generated. Agriculture While occupying much less of the economy than in previous decades, Jefferson County possesses and designates areas for long-term commercially viable agricultural production due to its high quality agricultural soils and grazing areas. The return of agricultural-based jobs and incomes is slow yet steady and is the focus of increasing support and interest by agricultural leaders in attracting new and expanding existing agricultural-based jobs in Jefferson County. To underscore the importance of agriculture in our economic resiliency, agriculture jobs actually grew in Jefferson County during the Great Recession. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–13 December 2018 Challenges & Opportunities The county’s land largely consists of rural and resource lands, and limited urban areas, which creates economic development needs unique to the county and its residents. Economic development strategies must balance economic growth, housing needs, environmental and health protection, and a high quality of life. Many economic development opportunities exist to provide forestry, agriculture and aquaculture production and processing, marine industries, tourism and recreation, and other enterprises suited to a rural county; yet the State Growth Management Act (GMA) limits opportunities for urban levels of development or urban services outside of urban areas. Planning under GMA, Jefferson County identified development patterns in place at the time GMA was adopted, July 1, 1990. As planning continued through the adoption of the first County Comprehensive Plan under GMA in 1998, and subsequent years, designation of urban and rural commercial centers was completed: the Port Hadlock/Irondale Urban Growth Area, designations of rural commercial and industrial districts, and outer boundaries of LAMIRDs (Limited Areas of More Intensive Rural Development), essential public facilities like the airport, and master planned resorts. These designations were made very conservatively. With the experience of local jurisdictions implementing GMA over the last 20 years, the County is compelled to revisit the planning assumptions of the 1990’s and analyze in the current planning horizon how we need to balance GMA goals with our local circumstances to maintain and grow a rural economy and preserve our rural character. The County has the opportunity to designate major industrial developments or plan industrial land banks under GMA. The County is considering all tools available in compliance with GMA, as well as partnering with economic development entities in the county and engaging with the state legislature to advance creative solutions to the challenges of implementing GMA in rural counties. Another challenge is that the state legislature, under GMA, has not made funding available for Economic Development Elements. Funding strategic and long-term planning by the County and partners would help further this Element’s goals and implement strategies. There is an expansion of agriculture businesses making value-added products—for example, winery, brewery, creamery, a culinary institute, and growth in farmer’s markets. Value-added products can provide a higher return on investment, as well as cash flow from sales during off-season times of year. The additional costs of licensing and processing facilities may limit the feasibility of producing value-added products, but often infrastructure costs, such as a commercial kitchen, can be shared cooperatively among many processors. Major aspects of the agriculture economy include the cost of land and finding markets. Agriculture organizations working in Jefferson County are connecting farmers with local markets for their products by building relationships between farmers and consumers (eat local first, local marketing strategies, and educating consumers). This includes finding niches for products, forming relationships with buyers—wholesale, restaurants, cooperatives, direct-marketing, or farmers markets. Whether it’s providing a special ingredient for a local chef, or connecting organic growers with wholesale buyers, market connections made and relationships developed have helped producers and consumers both find value-added business. —Kelli Henwood, WSU Jefferson County Extension, September 2018. The Return of Agricultural-based Jobs Enhanced by Relationships & Market Connections ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–14 December 2018 Strengths & Challenges One objective of the Economic Existing Conditions Report (E.D. Hovee & Company, LLC, 2010) is to provide a “SWOT” analysis—a preliminary assessment of Strengths, Weaknesses, Opportunities & Threats affecting the local economy. SWOT findings are intended to consist of preliminary summary observations, subject to refinement in consultation with participating jurisdictions and stakeholders. The summary below is an abbreviated representation of the 2010 findings and includes additional findings from subsequent stakeholder discussions. SWOT Analysis of key variables generally affecting economic development in Jefferson County: ▶ An available workforce population with a higher than average educational level; ▶ Natural setting and quality of life that increases appeal as a place to live; ▶ Proximity to growing Puget Sound region; ▶ Growing popularity as a tourist destination; ▶ Availability of industrial sites, working harbor, and diverse maritime sector; ▶ A limited workforce that is increasing in average age or becoming removed from the workforce through retirements, and relatively high and growing service sector needs as population ages; ▶ Distance from markets and direct client contact, constraining options for business expansion. ▶ A lack of county-wide recovery from the Great Recession that continues to constrain those trades, goods and services that support economic development (including recovery of construction, manufacturing, and related sectors); ▶ A lack of affordable housing caused from housing costs outpacing average household incomes; ▶ Higher home prices from limited housing supply, and a scarcity of rental units with a 2017 vacancy rate of 1% or less; ▶ Barriers to attracting a qualified workforce especially for the agricultural sector due to the shortage of affordable housing and limitations on developing workforce housing; and ▶ Legal barriers and limited public-sector financing to build infrastructure to support new or expanded job growth (municipal wastewater treatment, access to broadband internet services) in rurally zoned areas of Jefferson County. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–15 December 2018 Jefferson County Economic Development Organizations While this element focuses on the County’s role in economic development, the County is committed to working collaboratively with agencies, institutions, and organizations to foster economic development in Jefferson County. The main organizations and their strategic priorities are described below. These organizations are potential partners for regional efforts at business retention, development, and job creation. EDC Team Jefferson Founded in 2007, the Economic Development Council of Jefferson County (“EDC/Team Jefferson”) is designated by the Washington State Department of Commerce as an Associate Development Organization (ADO) for Jefferson County. It receives funding from various organizations to help grow and develop the local economy. One of its main tenets is to identify potential business opportunities that can be started or attracted to Jefferson County. The EDC assists entrepreneurs and business owners by connecting them to financing opportunities such as our Local Investment Opportunity Network—“LION”, and Community Development Financial Institutions (CDFIs) such as Craft3, which provides assistance to entrepreneurs, nonprofits and individuals who do not have access to traditional financing. According to EDC Team Jefferson, the Jefferson County economy pivots around nine business clusters: ▶ Advanced Technology & Manufacturing—with established industries ranging from renewable forest products to technology and distribution firms. ▶ Arts & Culture—encompassing individual artists, non-profit organizations, and private businesses such as galleries. ▶ Education—including K-12 public and private schooling, and higher education through WSU Extension, Peninsula College and Goddard College. ▶ Small Business and Entrepreneur—focused on individual proprietors or less than 5-employee firms that are technology or craft/product based in start-up or acquisition mode and with a range of growth potentials. ▶ Food & Farm—with activities ranging from farm and aquaculture to food retail and distribution including farmers markets, food banks, food coop and traditional grocery. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–16 December 2018 ▶ Healthcare—encompassing hospital, medical/clinic, and alternative health providers. ▶ Marine Trades—with key segments including shipwrights, outfitters, and boat services. ▶ Real Estate and Construction—including persons employed with real estate brokerage and development firms together with residential, commercial and infrastructure construction. ▶ Tourism & Retail—encompassing firms and activities (including festivals) that provide hospitality, dining and retail services for local residents and visitors. (Team Jefferson, 2010) EDC Team Jefferson has identified the following strategies: ▶ Retain and expand local businesses by energizing entrepreneurship; ▶ Attract and keep 18-35-year-old emerging entrepreneurs and their families; ▶ Increase access to local capital for entrepreneurs and small businesses; ▶ Set a positive tone for business in Jefferson County; and ▶ Focus on collaboration and leadership development. Source : EDC Team Jefferson, 2017. Port of Port Townsend As independent government bodies run by directly elected commissioners, Port Districts have a combination of government powers (taxation, issuing bonds etc.,) and a mission to responsibly promote sustainable economic growth.. They play a key role in economic development by providing transportation and industrial infrastructure. Formed by Jefferson County voters in 1924, the Port of Port Townsend operates three marinas, a marine trades industrial area, the Jefferson County International Airport, an RV park, and boat launches at multiple sites. In addition, Ports issue Industrial Development Revenue Bonds (IDRBs) that offer manufacturing and processing companies below- market interest rates for eligible uses, such as purchasing land /equipment, constructing buildings, and/or upgrading existing facilities. In addition to its maritime and aviation business centers, the Port of Port Townsend provides building space for new and expanding businesses. It owns property at Port Townsend Boat Haven, Point Haven, Herb Beck Marina, and the Jefferson County To serve the citizens of Jefferson County by responsibly maintaining and developing property and facilities to promote sustainable economic growth, to provide community access to Port facilities and services, and to protect and maintain our community resources and maritime heritage. The Port of Port Townsend’s Mission Herb Beck Waters, Carolyn Gallaway ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–17 December 2018 International Airport that it rents out to a variety of businesses that support the local economy. Washington State University WSU Jefferson County Extension services and programs strongly support Jefferson County agricultural based economic development through technical assistance, demonstration/teaching farms, local food resources, and coordination and serving as an information clearinghouse. WSU extension develops programs and works with the agricultural-based community to explore and expand new models of agriculture that pulls together innovations in agriculture and economy. WSU also coordinates efforts to eradicate noxious weeds with the Noxious Weed Board and assists the Organic Seed Alliance with seed banking. The Chamber of Jefferson County The Chamber of Jefferson County’s work of building business and building community throughout Port Townsend, Port Hadlock/Tri-Area, and Port Ludlow is pursued through relationships with the Economic Development Council of Jefferson County (EDC Team Jefferson) and city & state governments, enabling the Chamber and Port Townsend’s Business Resource Center to be a hub for connecting with business services and advocating for change when necessary. North Hood Canal Chamber of Commerce The Hood Canal Chamber of Commerce operates two Visitor Centers, in Quilcene and Brinnon, which direct visitors to local lodging, food, activities, and other goods and services available in the area. Chamber staff also promote local businesses by developing advertising materials and connecting local residents and tourists to local businesses. North Olympic Development Council (NODC) North Olympic Development Council (NODC) is a non-profit corporation formed in October 1984 to advance economic and community development on the North Olympic Peninsula of northwestern Washington State. NODC is designated and funded through the U.S. Dept. of Commerce’s Economic Development Administration (EDA) as a regional Economic Development District. EDA works directly with communities and regions to help them build the capacity for economic development based on local business conditions and needs. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–18 December 2018 The NODC works in collaboration with local governments, businesses, tribal nations, and non-profit organizations to serve the people of Clallam and Jefferson Counties. The Council Board of Directors has identified several immediate areas of focus to foster economic development. These are listed below: ▶ Work to improve infrastructure in support of economic growth; ▶ Make renewable energy technology and innovative manufacturing key components of the regional economy; ▶ Focus on innovative manufacturing (i.e.: composites) to diversify the regional economy; ▶ Encourage entrepreneurship; ▶ Help build a higher-skilled, high-wage workforce; ▶ Explore regional and international markets; ▶ Expand tourism opportunities/revenues; ▶ Improve regional collaboration and partnerships; and ▶ Advocate for natural resource and agriculture growth. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–19 December 2018 County-wide Planning Policies The County-wide Planning Policies direct that the Comprehensive Plan give attention to the needs of nonservice sector businesses and industries and recognize that some businesses are best suited for the urban growth area (UGA) while others may be better suited for the rural unincorporated areas. 1. The private sector is primarily responsible for the creation of economic opportunity in Jefferson County. The responsibility of the public sector is to assure that these activities are carried out consistent with defined community and environmental values. To this end, comprehensive plan should clearly identify these values in order that economic opportunity is not lost due to confusion or unreliability of process. Particular attention will be given to the needs of non-service sector businesses and industries as a strategy to increase wage earning potential within the community. 2. An economic development element should be prepared and included in the County's and incorporated areas' comprehensive plan. This element should identify and designate adequate areas for commercial, retail, and industrial growth necessary to sustain and meet future population and employment forecasts. The economic development element shall be coordinated with the capital facility, land use and utilities elements of the comprehensive plan. 3. Each UGA and rural center is considered the commercial and business "hub" in their respective area of the County. UGAs should be viewed as regional service and retail centers, while the rural center focus is on local community retail and service needs, and transient accommodations. 4. Certain industries due to their size or type of operation, or due to their dependence on the local resource base should not be located within the boundaries of UGAs. When locating these types of activities outside of UGAs, special attention must be given to assure that the activity will not promote "urban development" of the surrounding area. These activities will need to be self-supporting and not require the extension of urban services. 5. The Port of Port Townsend's legislative authority should be utilized as a tool to implement industry and trade strategies; including the promotion of employment opportunities, the consolidation and parceling of property, and the development of infrastructure to meet the needs of industry consistent with comprehensive plans and development regulations. County-wide Planning Policy #7 Policy on Economic Development & Employment ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–20 December 2018 7.3 ECONOMIC DEVELOPMENT PLAN The economic development plan leverages the strengths of the county to support a strong and diversified economy. Key opportunities and sites are listed below. Workforce Development Given the county’s high educational attainment, there is an opportunity to both increase and better align educational resources and training programs with industry. This will ensure access to a high-skilled workforce for regional businesses and to higher wage jobs for county residents. Industrial & Manufacturing Businesses A key strength and opportunity area is the availability of designated industrial and manufacturing sites that can both serve small, local entrepreneurs and potential advanced manufacturing businesses. In addition to the availability of sites suitable for industrial or manufacturing uses, the county’s highly-educated workforce is an asset for emerging manufacturing uses that require higher-skilled workers. Industrial sites in Jefferson County include the Port of Port Townsend, Port Townsend Industrial Park (which has become a commercial and business park), Glen Cove, Eastview, Quilcene Industrial Area, the Irondale/Port Hadlock UGA, the Port Townsend Paper Company, 24 acres at the Jefferson County International Airport, and Resource Based Industrial zoned sites. In addition to the industrial sites described above, the light industrial manufacturing park at the Jefferson County International Airport, also known as the Airport Light Industrial Park also allows non-aviation related industrial and manufacturing uses. In 2009, the County approved a rezone of 24 acres from rural residential to Airport Essential Public Facility capable of supporting up to ten small to medium sized low- impact, non-aviation-related light industrial/manufacturing businesses. As of 2017 the site requires a Binding Site Plan, clearing and installation of infrastructure before any business operations. Information about designation and siting of Industrial Land Banks or new Major Industrial Developments can be found in the Land Use Element. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–21 December 2018 Place-making for Visitors & Residents In addition to its natural and scenic assets, the distinct Port Townsend Downtown and small-scale neighborhood business districts in the county are a place-making feature that attracts visitors and serves local residents. Commercial development in Jefferson County is mainly concentrated within the City of Port Townsend, the Irondale Port Hadlock Urban Growth Area, and to a lesser extent, within the County’s Limited Areas of More Intense Rural Development (LAMIRDs), which includes Brinnon, Quilcene Discovery Bay, Chimacum, Mats Mats, Wawa Point, Beaver Valley, Nordland, Gardiner, and Four Corners. The Port Ludlow and Pleasant Harbor Master Planned Resorts also have sites zoned for commercial development. Home Businesses, Cottage Industries and Small-Scale Tourist Recreational uses are also allowed in most non- commercial zones with a permit. Sustainable, Innovative Agricultural & Food Businesses Given its historic and environmental strengths, the county has a small but growing set of businesses related to farming and related food production such as grains, eggs, cheese, and spirits. In addition, aquaculture continues to be a key industry. Local economic policy can support this sector so that it continues to add diversity and entrepreneurial opportunities to the economy. The state implemented Initiative 502—the legalization of recreational cannabis production, processing and sales. In 2017, Jefferson County sales generated approximately $2,049,000 in state excise tax from cannabis sales, and the County received only $21,297 of that amount for local enforcement and health programs. Infrastructure Improvements as Economic Development Strategy Investments in infrastructure can be a powerful way to attract high- quality jobs and entrepreneurs. For rural counties such as Jefferson County, investments in infrastructure such as broadband can address multiple objectives such as the provision of healthcare services or education, support tourism and attract a younger, more mobile workforce. Downtown Port Townsend Chimacum Corner Farm Stand, Jefferson County ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–22 December 2018 In addition to broadband, some parts of the county will also benefit from sewer infrastructure. For example, the primary growth center for unincorporated Jefferson County, the Irondale/Port Hadlock UGA requires sewer as an “urban level of service” to implement new zoning urban level zoning and density. Phased sewer implementation will facilitate further economic development as almost one-quarter of the UGA is designated for commercial land use, including a commercial zone as the largest with 272 acres. Approximately 25 acres is designated as Urban Light Industrial (all but 5 acres of which are already in light industrial use). This UGA has been found to be legally compliant with the GMA as of January 27, 2010. The County is currently pursuing funding to construct the wastewater infrastructure to promote future economic growth in this area. Within LAMIRDs development is constrained by the cost of utility and infrastructure upgrades as well as existing LAMIRD boundaries. Some wastewater treatment options are considered an urban level of service and not allowed in LAMIRDs. This limits wastewater improvements that would support job growth, existing commercial development, and improve existing housing stock. The Port of Port Townsend commissioned a preliminary feasibility study to estimate the cost of building a large on-site sewage system in Quilcene, estimated to cost between $6.5 million and $20 million. (Port of Port Townsend, 2017) The service area examined was the entire Rural Village Center as well as the southern half of the center. The information will help the Quilcene community and Jefferson County consider wastewater service options and rural economic development goals. The estimated costs identified in the feasibility study demonstrates the challenges of providing infrastructure for Jefferson County and the small community of Quilcene. Efforts to provide wastewater treatment to Brinnon, another Rural Village Center, have not been comprehensively developed as of 2018. However, a wastewater plant was constructed for Dosewallips State Park in 2014. In cooperation with State Parks, PUD #1 of Jefferson County is investigating the feasibility of expanding the service area of the facility to address septic issues in Brinnon. A wastewater treatment plant is required to serve the Pleasant Harbor MPR near the Brinnon Rural Village Center. There are efforts to identify and correct failing septic systems in Brinnon through the Central Hood Canal Pollution Identification and Correction Project for the period 2017–2020. (Jefferson County Public Health, 2017) A comprehensive strategy to address rural wastewater treatment could be a future action strategy. Water supply is critical in both rural and urban areas. A key water provider is Jefferson County PUD, who is leading an update to a Quilcene, BERK ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–23 December 2018 consolidated water system plan; see the Capital Facilities & Utilities Element and Appendix D Capital Facilities Plan Technical Document. Water development is a need for rural economic development but presents a challenge to provide. Other infrastructure investments that benefit economic development include transportation improvements, especially regarding ferries. Updates to State ferry system plans are underway, and will include local input. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–24 December 2018 7.4 GOALS & POLICIES Goal ED-G-1 Improve and enhance coordination with federal, state, regional, tribal and local economic development groups to promote a healthy and vibrant economic environment within Jefferson County. ▶ Policy ED-P-1.1 Adequately fund Jefferson County’s designated Associate Development Organization (ADO)—“EDC Team Jefferson”—and establish specific responsibilities and performance measures for the ADO to ensure that taxpayers obtain good value for their investment. Support the ADO in providing access to business management expertise for new and growing businesses (Joint Economic Development Strategy (JEDS) Strategies 1.6 & 1.9). Support collaborative work between economic development partners, including Jefferson County Economic Development Council Team Jefferson (EDC Team Jefferson), North Olympic Development Council (NODC), Port of Port Townsend, City of Port Townsend, and other public and private partners in efforts to plan for, promote, educate, train attract, build and maintain businesses and economic development in Jefferson County. ▶ Policy ED-P-1.2 Investigate and/or pursue programs, grant funds and other technical and financial support with federal, state, and local agencies to collectively plan, develop and implement economic growth in high demand sectors of the local economy. ▶ Policy ED-P-1.3 Consult with NODC and area tribal governments regarding shared economic development planning and implementation and discuss solutions to shared issues concerning economic development and unemployment. ▶ Policy ED-P-1.4 Coordinate with other economic development entities and related citizen groups and individuals in Jefferson County to prepare strategies that promote economic development opportunities in existing commuter and tourist highway corridors and non-motorized facilities and multi-purpose trails. Land use and zoning strategies may include a highway-tourist-commercial zone or other techniques consistent with rural character. Strategy 1.6: Adequately fund the designated Associate Development Organization (ADO), and establish specific responsibilities and performance measures for the ADO to ensure that taxpayers obtain good value for their investment. Strategy 1.9: Support the ADO in providing access to business management expertise for new and growing businesses. Joint Economic Development Strategies 1.6 & 1.9 ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–25 December 2018 Goal ED-G-2 Support a comprehensive approach to education and training for employment, job retention, and advancement. ▶ Policy ED-P-2.1 Support and actively participate in Olympic Workforce Development Council (OWDC) as they facilitate a full spectrum of education and job skills providers to coordinate class offerings, facilities, and staff resources available to Jefferson County residents (teenagers, adults, displaced workers, veterans, retirees, etc.) who seek high school degrees, general education degrees, remedial education, vocational training and retraining, skills or knowledge enhancement, professional certification, two-year degrees, four-year degrees, and advanced degrees. Goal ED-G-3 Support Jefferson County’s industries that leverage existing strengths, advantages, and potential in the following areas: — Health Care; — Port related economic development; — Marine Trades; — Natural Resources; — Advanced Technology/Manufacturing; — Construction and Real Estate; — Agriculture/Aquaculture; — Education; — Home-Based Business; — Tourism & Retail in centers and corridors; and — Local and Native Arts. ▶ Policy ED-P-3.1 Support the efforts of the Port of Port Townsend in diversifying the Jefferson County International Airport (JCIA) to provide for a broader number of trades, manufacturing, and services. This may include, but is not limited to, the siting of appropriately scaled aviation and non-aviation-related industrial/manufacturing activities in the Airport Essential Public Facilities District. ▶ Policy ED-P-3.2 In accordance with County-wide Planning Policy 7.5, recognize the legislative authority of the Port of Port Townsend as a valuable tool to implement industry, trade strategies and promote employment opportunities. Related to western Jefferson County ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–26 December 2018 ▶ Policy ED-P-3.3 Protect from encroachment, the Port of Port Townsend’s industrial properties, waterfront and all other public assets managed by the Port to ensure and enhance economic vitality and quality of life for the citizens of Jefferson County. ▶ Policy ED-P-3.4 Conserve existing agriculture and encourage future innovative agriculture ventures and technologies, while managing the water and soil to be sustainable. ▶ Policy ED-P-3.5 Support broadband or other technology infrastructure that fosters home-based businesses and online provision of services, (e.g., telecommuting, telemedicine etc.). ▶ Policy ED-P-3.6 Protect future opportunities for planning Industrial Land Banks and Major Industrial Developments by keeping development regulations current and effective for these land uses. Goal ED-G-4 Work in partnership with public and private economic development interests to review barriers, consider flexible regulations that incentivize, encourage and facilitate innovative economic opportunities within the County. ▶ Policy ED-P-4.1 Continue to work with state, federal, and local agencies to coordinate and streamline land use review procedures and processes, while ensuring a proper balance between expeditious review and protecting the public interest. ▶ Policy ED-P-4.2 Continue to work towards internal efficiencies in the application of development regulations. ▶ Policy ED-P-4.3 Periodically review and update, if necessary, land-use and permitting procedures to assure that regulatory processes are understandable, predictable, and timely. ▶ Policy ED-P-4.4 Continue to work with the City of Port Townsend, Port of Port Townsend, PUD, economic stakeholders and economic development agencies regarding capital facilities and land use in the Glen Cove Industrial District. ▶ Policy ED-P-4.5 Amplify Jefferson County’s strengths in tourism, recreation, and retail through rural employment opportunities in centers and corridors and through development and enhancement of non-motorized facilities. Related to western Jefferson County From the Collection of the Jefferson County Historical Society ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–27 December 2018 Goal ED-G-5 Support the development of tourist and tourist-related activities as a source of employment and business opportunities in Jefferson County. ▶ Policy ED-P-5.1 Provide infrastructure for tourist services that promote agricultural, experiential, and educational tourism, eco- tourism, and native and cultural tourism as well as recreational tourism with revenue generated from the lodging tax. ▶ Policy ED-P-5.2 Encourage efforts to preserve scenic open space, historic and local cultural and tribal resources that attract both local residents and visitors. ▶ Policy ED-P-5.3 Encourage the development of small businesses, services, cultural attractions, recreational opportunities, and special events that capture and support tourism. Identify wider uses for these small businesses to also furnish goods and services, such as locally grown food, and value-added products to the traveling public and local population. Goal ED-G-6 Encourage economic development that sustains natural resources and open spaces, protects environmental quality, encourages non-motorized recreation and transportation, and enhances Jefferson County’s overall quality of life. ▶ Policy ED-P-6.1 Recognize the economic strengths and opportunities that come from the appeal of Jefferson County’s surroundings, and preserve our quality of life as an economic development asset. ▶ Policy ED-P-6.2 Develop and update land use policies that conserve working resource lands and provide sustainable employment opportunities. ▶ Policy ED-P-6.3 Encourage “working water-front” small-scale marine trade activities in Port Hadlock, Port Ludlow, Nordland, and Quilcene. Related to western Jefferson County ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–28 December 2018 Goal ED-G-7 Coordinate the development of infrastructure that is adequate to attract and accommodate the diversified economy centers of Jefferson County, consistent with the requirements of the Growth Management Act. ▶ Policy ED-P-7.1 Support and coordinate efforts of infrastructure service providers, and economic stakeholders in identifying and meeting infrastructure needs of the diversified economic centers where commercial and industrial development is appropriate. ▶ Policy ED-P-7.2 Support the development, production, siting and use of non-fossil based renewable energy such as solar, wind, water, ammonia fuel, and other innovative renewable sources. ▶ Policy ED-P-7.3 Through emergency or disaster preparedness networks such as Jefferson County Regional Emergency Preparedness Network (JPREP), promote infrastructure, such as storage, for a local food system capable of supporting the population of Jefferson County without diminishing the long-term carrying capacity of the County’s natural resources. ▶ Policy ED-P-7.4 Continue to work on the funding, installation, and operation of the Irondale/Port Hadlock UGA sanitary sewer system, and investigate alternatives and opportunities for wastewater treatment systems to serve the needs of Brinnon and Quilcene. Goal ED-G-8 Ensure responsive, fair, and efficient permit processing. ▶ Policy ED-P-8.1 Develop and maintain implementing regulations and internal policies that ensure that development applications are processed in a timely, fair, and predictable manner. ▶ Policy ED-P-8.2 Ensure that permit review and requests for additional information are fair, consistent and balanced with the needs of the applicant and the public interest at large. Port Townsend Wharf, Carolyn Gallaway ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–29 December 2018 7.5 ACTION PLAN Exhibit 7-10 highlights key activities the County can use to implement the Economic Development Element over the next eight years (prior to the next periodic update), several in partnership with other entities: EXHIBIT 7-10 Economic Development Action Plan Action Description Workforce Development Align education resources and current and target industries. Through the Olympic Workforce Development Council, connect businesses and local employers with the North Olympic Development Council (NODC) local school districts, colleges, and other educators to co-design training and re-skilling programs. Introduce educators, high school counselors and students to experiential education settings for advanced manufacturing, maritime and marine trades, and related career paths. Diversify & Strengthen Industries Support current and target industries that leverage existing strengths Develop a long-term strategy for the Glen Cove Light Industrial Area addressing diversity of businesses, zoning designations, and intensification of uses, in collaboration with the City of Port Townsend, Port of Port Townsend, and economic development stakeholders and agencies. If requested, consider rezoning Port of Port Townsend’s Quilcene Marina, currently residentially zoned property, to a public facility zoning category. Support the creation of a facility to support food production and value-added processing of agricultural products. Placemaking for Visitors & Residents Create an identity and brand for Jefferson County as a tourist destination. Continue to support collaboration and partnership of the Tourism Coordinating Council with the Olympic Peninsula Tourism Commission and local communities and agencies. Partner with Team Jefferson and other local partners to create a strategic marketing plan that highlights the assets of different communities. Infrastructure Improvements Make investments in infrastructure to attract and retain industries. Support the provision of high-quality, reliable broadband to support industries, service provision and increase quality of life. Secure additional funds and financing to complete the Port Hadlock sewer system. Address needs for improved wastewater treatment in Brinnon and Quilcene. Develop opportunities to open new dialogue regarding LAMIRDs and how GMA regulations can be tailored to better serve rural communities with the appropriate level of needed infrastructure. Advocate for enhanced ferry service to support tourism and other sectors. ECONOMIC DEVELOPMENT Jefferson County Comprehensive Plan 7–30 December 2018 Action Description Study New Economic Opportunities Conduct a cooperative study into zoning for economic development in transportation corridors. Coordinate with economic development groups to study business and economic development opportunities in highway and tourist corridors. The study may consider highway and tourist commercial development zoning to promote economic development. The study may consider the following: assessing how to promote job growth and economic development along highway and tourist corridors while maintaining rural character and guarding against sprawl; access to the site for workers, tourists, and other visitors; maintaining scenic views; non-motorized transportation and recreation opportunities;, safety design for commuters, visitors freight movement, trucks, cars, and pedestrians; node connectivity, and other topics of interest to economic development and community groups. Source: Jefferson County, 2018. Jefferson County Comprehensive Plan 8–1 December 2018 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 2038: ▶ 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. 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 Jefferson County CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–2 December 2018 ▶ 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 to 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 these capital facilities and services listed below. The Guiding Plans of service providers support this Element. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–3 December 2018 EXHIBIT 8-1 Capital Facilities & Public Services Provided Capital Facility & Service Topic Providers Serving Unincorporated Territory Guiding Plans Law Enforcement Jefferson County Sherriff Jefferson County Sheriff’s Office Strategic Plan, Comprehensive Version, 2018 Parks and Recreation Jefferson County Jefferson County Parks, Recreation & Open Space Plan Update,2015, Jefferson County Parks and Recreation, Department of Public Works Public Administration Jefferson County Jefferson County Strategic Plan, County Administrator’s Office, 2018 Individual operations plans for community centers, maintenance facilities, and animal control facilities Sewer Port Hadlock/Irondale UGA – Jefferson County Port Ludlow – Olympic Water and Sewer Port Hadlock Wastewater System: Urban Growth Area Sewer Facility Plan, 2008 Design Plans & Specifications, 2013 Solid Waste Jefferson County Jefferson County, Solid Waste Management Plan, September 2016 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–4 December 2018 Capital Facility & Service Topic Providers Serving Unincorporated Territory Guiding Plans Stormwater Jefferson County Port Hadlock / Irondale Urban Growth Area Stormwater Management Plan, May 2004 Jefferson County Surface Water Management Plan, November 2006 Transportation Jefferson County Peninsula Regional Transportation Planning Organization Jefferson Transit Authority Port Hadlock / Irondale 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 2035, May 2013 Jefferson County Public Works Transportation Improvement Plan, 2017 Jefferson Transit, Transit Development Plan 2017-2022 & 2016 Annual Report, August 2017 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 Individual Operational Plans CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–5 December 2018 Capital Facility & Service Topic Providers Serving Unincorporated Territory Guiding Plans Fire Protection 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. 3 – Port Ludlow Fire and Rescue Jefferson County Fire Protection District No. 4 – Brinnon Jefferson County Fire Protection District No. 5 – Discovery Bay - Gardiner Jefferson County Fire Protection District No. 6 – Cape George/Kala Point/Beckett Point - Merged Jefferson County Fire District No. 7 – Clearwater-Queets 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 Pending Update: Jefferson County Public Utility District No. 1 Water System Plan 2011 Source: BERK Consulting, 2018. 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–6 December 2018 County-wide Planning Policies The County-wide Planning Policy (CWPP) includes 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). EXHIBIT 8-2 Relationship of Capital Facilities Plan to County-wide Planning Policies County-wide 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 County-wide capital facilities for public safety, transportation, solid waste, storm water management, and utilities. Siting essential public facilities of County or State-wide significance Do not extend urban public facilities to essential public facilities sited outside of UGAs. County-wide transportation facilities and strategies Guides development of the County’s Six-Year Transportation Improvement Plan. Requires development of Levels of Service. County-wide 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, CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–7 December 2018 and transportation, where growth would require some additional capacity projects over time. See also the Environment Element for policy regarding placement of facilities with consideration of existing climate change mapping and data. 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. CWPP#4 stipulates that the County and its UGAs must identify appropriate land for essential public facilities that meets the needs of the community such as local waste handling and treatment facilities, landfills, drop-box sites and sewage treatment facilities, airports, state educational facilities, essential state public facilities, regional transportation and utility facilities, state and local correctional facilities, and in-patient facilities (including substance abuse facilities, mental health facilities and group homes). These facilities are difficult to site, serve regional or state requirements, or are part of a county-wide 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, and inpatient facilities including substance abuse facilities, mental health facilities, group homes, and secure community transition facilities as defined in RCW 71.09.020. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–8 December 2018 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, contracted for by the government, or provided by private entities subject to public service obligations. The OFM shall maintain 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–9 December 2018 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 Storm water 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 Inpatient Facilities (Substance Abuse Facilities, Mental Health Facilities & Group Homes). Source: Jefferson County, 2018. 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 the table are typical essential public facilities and are addressed in this section. Essential Public Facility Designations in Jefferson County Two facilities are designated as essential public facilities in Jefferson County and have unique zoning districts: ▶ County Waste Management Essential Public Facility (CWMEPF): This district addresses facilities needed to provide waste management public services and functions. It applies to the County’s Jacob Miller Solid Waste Facilities at 325 County Landfill Road in Port Townsend. Policy CF-P-7.7 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 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–10 December 2018 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 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. County-wide Planning Policies Adopted CWPPs require the County and UGAs to develop a cooperative and structured process, including public involvement at an 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. County-wide Planning Policy #4 outlines the County’s approach to the siting of essential public facilities: ▶ The County and incorporated UGAs will jointly develop specific siting criteria for 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–11 December 2018 — 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. Summary of Trends & Opportunities The County’s Solid Waste Management Plan (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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–12 December 2018 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 Eastern Jefferson County, except for the Brinnon area. As the JPUD serves the vast majority of residents, it is the focus of this electrical utility analysis. Mason County PUD. is a public utility district that provides electricity to 1700 residents 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 172 residents of the southwestern portion of Jefferson County in the Queets/Clearwater and Quinault areas. 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. 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. Jefferson County CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–13 December 2018 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 and includes the communities (from South to North) of Quilcene, Port Ludlow, Chimacum, Port Hadlock, Gardiner, Nordland, and Port Townsend. There is a wide range of service demand intensities, from undeveloped areas with no demand to areas of high demand commercial customers. System Acquisition: In 2013, JPUD acquired 8 substations, 26.4 miles of 115 kV transmission line, 380 miles of overhead distribution line along with 353 miles of underground distribution line and one operations building with materials storage yard from PSE. As of 2013, there were approximately 19,300 customers with approximately 322,750 megawatt hours sold. (Jefferson County PUD, 2010) 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–14 December 2018 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. Current Usage: There are 16,683 residential customers1; average use is 12,000 kWh per customer per year, or 1,000 kWh per month. (EES Consulting, 2017) Per Exhibit 8-4, most of JPUD’s electrical income comes from residential customers. (Jefferson County PUD, 2018) EXHIBIT 8-4 JPUD Electrical Income by Customer Class Source: Jefferson County PUD, 2018. Note: “Int. Schools” refers to “Interruptible Rate for Schools,” a term originating with Puget Sound Energy. 1 This figure is assumed to be population in residential dwellings since 13,922 housing units are estimated County-wide in 2017 per the OFM. County-wide the population equals 31,360 (OFM 2017). Note: “int. Schools” means “Interruptible Rate for Schools,” a term originating with Puget Sound Energy. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–15 December 2018 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. 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 7,816 persons is expected county-wide, with 352 in the future Master Planned Resort in Brinnon. Excluding the Brinnon resort area, which is served by Mason County PUD, the increase in population would be 7,464. Those customers would increase demand for electricity by about 31%. EXHIBIT 8-5 Residential Population Electricity Demand Customers kWh/year Annual kWh Share Current Residential Customers (Population) 16,683 12,000 200,196,000 69% Future Population Growth in Service Area (excluding Brinnon) 7,464 12,000 89,568,000 31% Total 24,147 289,764,000 100% Source: EES Consulting, 2017; BERK Consulting, 2018. In addition, there will be demand from commercial and industrial users. Energy Efficiency: JPUD has an energy efficiency program that includes incentives for conservation projects. From April 2013-April 2016, JPUD spent $1.6 million dollars on energy efficiency projects and incentives. This was estimated to result in 3.6 megawatt hours saved with savings almost equal in share by industrial, commercial, and residential customers. (Jefferson County PUD, 2016) Energy efficiency programs and trends towards renewable energy can further reduce demand. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–16 December 2018 Future Facilities Requirements: Two capital investments are currently in planning stages: a service area wide meter replacement to a more advanced meter type and an upgraded operations facility. As development occurs, other investments in the distribution system may occur. (Jefferson County PUD, 2017) 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 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–17 December 2018 construction permit, but it can cite a proposed tower as a hazard to navigation. 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 JPUD and Northwest Open Access Network (NoaNet) installed a fiber optic and wireless network in 2013. The project was funded through the federal Broadband Technology Opportunity Program (BTOP) and the American Recovery Act (2010). The intent was to provide better and more affordable broadband to unserved and underserved “anchor institutions” such as federal, state, and local government, emergency services, education, and medical facilities. Many such facilities in Jefferson County are now connected with fiber or wireless drops, but most are not currently receiving service through the new network at this time for a variety of reasons (cost, existing contracts with service providers, etc.). CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–18 December 2018 EXHIBIT 8-6 Overhead & Underground Fiber Optic System Location Note: map may not show all current trunk lines of NOANET broadband service, and those areas that receive service through wireless connection. Source: Jefferson County PUD JPUD owns the network and has been utilizing it for electrical monitoring and operational purposes. NoaNet has been selling and managing business services on the network for the JPUD under an operations and maintenance agreement. Currently, the JPUD does not have the authority to provide services to end users and can only sell wholesale service to other Internet Service Providers (ISPs). CenturyLink provides digital subscriber line (DSL) services throughout the county across its fiber optic and copper service lines. Broadband DSL is not available everywhere there is conventional telephone service in Jefferson County. Several local ISPs resell CenturyLink DSL circuits. 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 Quest's tariff WNU-24 Schedule 9, filed with the State of Washington Utilities and Transportation Commission (WUTC). Chapter 480-120 also contains performance standards. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–19 December 2018 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 (CSGA) 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. County-wide Planning Policies CWPPs address adequate utilities within UGAs (#3), and the coordination of the Economic Development Element with the Utility Element (#7). CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–20 December 2018 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. 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 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. (Washington State Department of Ecology, 2012) Some adaptation measures have been identified by state and local planners, including: ▶ 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. ▶ 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. (Washington State Department of Ecology, 2012) (American Planning Association Washington Chapter, 2015) CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–21 December 2018 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 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. As of 2018, JPUD is evaluating expanding this high-speed open-access broadband network to residences in Jefferson County, to where there is demand to build broadband infrastructure. 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–22 December 2018 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 appropriate levels of service for public facilities. ▶ Policy CF-P-1.1 Levels of service for Public Facilities: 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 C 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 (UGAs) Master Planned Resorts, and Highways of Regional Significance as established by the Peninsula Regional Transportation Planning Organization (PRTPO), based upon Average Annual Daily Trips. See Transportation Technical Appendix C. Category A LOS will guide the County's capital budget and capital improvements program beginning with the 2018 fiscal year. Category B Public Facilities are the public facilities owned or operated by Jefferson County subject to LOS standards. — Category B LOS:  Animal Control Shelter: 58 square feet per 1,000 pop. 2038  Community Centers: 1,005 square feet per 1,000 pop. 2038  Corrections Inmate Facilities: 1.48 beds per 1,000 pop. 2038  County Sheriff Facilities: 200 square feet per 1,000 pop. 2038  County Justice Facilities: 515 square feet per 1,000 pop. 2038 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–23 December 2018  County General Administrative Facilities: 1,020 square feet per 1,000 pop. 2038  County Maintenance Shop Facilities: 825 square feet per 1,000 pop. 2038  Regional Parks: 19.07 acres per 1,000 pop. 2023 and 18.43 acres per 1,000 pop. 2038.  Community Parks: 3.05 acres per 1,000 pop. 2023 and 2.94 acres per 1,000 pop. 2038  Neighborhood Parks: 0.16 acres per 1,000 pop. 2023 and 0.18 acres per 1,000 pop. 2038  Open Space: 4.85 acres per 1,000 pop. 2023 and 4.69 acres per 1,000 pop. 2038.  Special Use: 3.24 acres per 1,000 pop. 2023 and 3.24 acres per 1,000 pop. 2038.  Trails: base LOS 0.52 miles per 1,000 pop. 2023 and 2038; target LOS if funding allows, 1.83 miles per 1,000 pop. 2023 and 2038  Solid Waste, Garbage: 3.12 pounds per capita per day 2038  Solid Waste, Recycle: 2.8 pounds per capita per day 2038  Stormwater Management Facilities: Stormwater Management Manual for Western Washington  Water System Facilities: Pending  Sewer Systems: Pending Category B LOS will guide the County's capital budget decisions including the capital improvements program beginning with the 2018 fiscal year. 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: Roads: Same as for Category A above. Sanitary Sewer:  City of Port Townsend: 260 gallons per day/ERU  Port Ludlow (Ludlow Water Co., Inc.):230 gallons per day/ERU Water:  City of Port Townsend: 840 gallons per day/ERU  Port Ludlow (Ludlow Water Co., Inc.):160 gallons per day/ERU  PUD No.1: 200 gallons per day/ERU  Tri-Area (City of Port Townsend): 800 gallons per day/ERU Airport:  JCIA: Pursuant to JCIA Master Plan 2014 or successor. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–24 December 2018 Fire and Emergency Medical Services:  Jefferson County Fire Protection District No. 1 - East Jefferson Fire and Rescue: 0.29 EMS units in service per 1,000 pop. 2038  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  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  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  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  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  Port Townsend Fire Department: 0.29 EMS units in service per 1,000 pop. 2038 Hospital:  Jefferson County Public Hospital District No. 2:: 0.75 beds per 1,000 population 2023 and 2038 Library:  Jefferson County Library. 1:433 square feet per 1,000 population 2023 and 2038 School District facilities:  Brinnon School District 46: K-8: Not to exceed 23 students/classroom  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  Port Townsend School District 50: 4-6: Not to exceed 30 students/classroom  Port Townsend School District 50: 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 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 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–25 December 2018 definition and findings of transit levels of service, and will collaborate with Jefferson Transit Authority on the county’s transit system service needs. 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 Urban and Rural LOS: Jefferson County may create different Levels of Service for Urban Growth Areas and rural areas of the county. ▶ Policy CF-P-1.3 Level of Service in Unincorporated Urban Growth Areas: Levels of Service for public facilities in the unincorporated portion of Urban Growth Areas are the same as the County's adopted standards. Goal CF-G-2 Implement a Six-Year Capital Facilities Concept Plan that ensures that County-owned public facilities meet the established Level of Service. ▶ Policy CF-P-2.1 Determining Public Facility Needs: 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 Priorities: 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 Financial Feasibility: 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 Budget Appropriation for Capital Improvements: 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–26 December 2018 ▶ Policy CF-P-2.5 Monitoring: 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 Financing Policies: 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 Operating and Maintenance Costs: 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-2.8 Revenues Requiring Referendum: 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-2.9 Financial Responsibility: 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. ▶ Policy CF-P-2.10 Contingent Revenue: 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 Adequate Public Facility Concurrency: Issue development approvals only after a permit decision has been made that there is sufficient capacity of Category A public facilities to meet the Level of Service for existing and proposed development concurrent with the proposed development. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–27 December 2018 ▶ Policy CF-P-3.2 Planning Level of Service: If the 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 Urban Growth Area Tiers: 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 with development, or by public providers by implementing all or a portion of an approved capital facilities plan. ▶ Policy CF-P-3.4 Financing: 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 Reserving Public Facility Capacity: 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 Consistency: 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. ▶ Policy CF-P-4.2 Integration and Implementation: Integrate land use planning and decisions with planning and decisions for public facility capital improvements. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–28 December 2018 ▶ Policy CF-P-4.3 Consider potential effects of climate change 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-4.4 Implement inter-local agreements with municipalities and other entities to coordinate efficient provision of public facilities consistent with the Capital Facilities Element. ▶ Policy CF-P-4.5 Planning Coordination: 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-4.6 Fiscal Coordination: Coordinate funding of public facilities, including tax revenue sharing, the provision of regional services, and annexations through the development of inter-local agreements. 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. Goal CF-G-5 Promote coordination of water utility planning among purveyors, government agencies, and citizens to ensure an adequate potable water system, to protect the quality 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 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. Water Tanks at Kala Point, Jefferson County CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–29 December 2018 ▶ Policy CF-P-5.4 Take an active role in reviewing and approving Satellite Management Agencies 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 salt 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 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. 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–30 December 2018 ▶ 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 Encourage the use of water-conserving fixtures with new systems or services. ▶ Policy CF-P-6.5 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. Solid Waste Goal CF-G-7 Provide solid waste facilities and programs through guidance of a coordinated, comprehensive solid waste management plan meeting the requirements of the Solid Waste Management Act, Chapter 70.95 RCW, and as set forth in the Jefferson County Solid Waste Management Plan, as amended, and functioning within the frameworks of the Jefferson County and City of Port Townsend Comprehensive Plans. ▶ Policy CF-P-7.1 Implement, to the fullest extent possible, the prioritized waste reduction recommendations of the Jefferson County Solid Waste Management Plan (SWMP, 2016, Chapter 3, as amended), including programs and education regarding reducing and reusing material before it enters the waste-stream, diverting, reusing and recycling materials to keep out of the waste stream, and/or pricing disincentives to reduce waste. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–31 December 2018 ▶ Policy CF-P-7.2 Implement, to the fullest extent possible, the prioritized recycling recommendations of the Jefferson County Solid Waste Management Plan (SWMP, 2016, Chapter 4, as amended), including programs and education to increase access to recycling services and increase recycling rates. ▶ Policy CF-P-7.3 Implement, to the fullest extent possible, the prioritized organics recommendations of the Jefferson County Solid Waste Management Plan (SWMP, 2016, Chapter 5, as amended), including programs and education regarding composting, diversion from waste-stream, and other alternatives for handling residential and commercial food wastes and pet wastes. ▶ Policy CF-P-7.4 Implement, to the fullest extent possible, the recommendations of the Jefferson County Solid Waste Management Plan (SWMP, 2016, Chapter 6, as amended) for solid waste collection, transfer, disposal, handling of special wastes, administration, and public education. Identify and implement appropriate measures to ensure mitigation of adverse environmental impacts associated with solid waste collection activities. ▶ Policy CF-P-7.5 Maintain the Solid Waste Advisory Committee involving citizens, 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-7.6 If incentive programs fail to reach the waste reduction goals identified in the Solid Waste Management Plan (SWMP, 2016, as amended), consider mandatory programs to the extent allowable by State law. ▶ Policy CF-P-7.7 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-7.8 Ensure reclamation of areas currently serving as solid waste disposal facilities to promote the recovery of such areas for future functional land uses. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–32 December 2018 Surface Water Management Goal CF-G-8 Manage surface water consistent with the Jefferson County Surface Water Management Plan (2006, or as amended) 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. 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 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 8–33 December 2018 i. Other criteria as determined relevant to the specific essential public facility, or criteria developed with Port Townsend or the Port Hadlock/Irondale unincorporated Urban Growth Area 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, County-wide and local significance and incorporate into the County Comprehensive Plan and Map and the County-wide Planning Policy. ▶ 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 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–34 December 2018 3. Existing zoning of surrounding areas 4. Existing Comprehensive Plan designation for surrounding areas 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 CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–35 December 2018 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. ▶ 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 citizens, 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 8–36 December 2018 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: Jefferson County International Airport, Port of Port Townsend CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–37 December 2018 — Discourages the siting of new, incompatible land uses adjacent to the airport; — Establishes a noise overlay zone; — 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–38 December 2018 ▶ 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. Utilities General Capacity & Conservation Goal CF-G-12 Provide adequate utility capacity for future growth consistent with the requirements of the Growth Management Act. ▶ 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 Support efficient permit and application processing for utility systems projects to facilitate timely completion of utility development to meet growth demands. ▶ Policy CF-P-12.5 Ensure that all citizens 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–39 December 2018 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. ▶ 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. 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. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–40 December 2018 ▶ 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. ▶ Policy CF-P-14.4 Encourage siting and installation of locally owned and operated renewable energy sources, power production and storage systems, consistent with land use development regulations. 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, 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. 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 in cooperation with other public and private entities, to facilitate communication among members of the public, public institutions, and businesses. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–41 December 2018 ▶ 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. 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 improve capacity and reliability of regional electrical utility services, particularly when multiple jurisdictional benefits within the region can be achieved. ▶ 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 with appropriate permit procedures, and potential development incentives as they are affordable. CAPITAL FACILITIES & UTILITIES Jefferson County Comprehensive Plan 8–42 December 2018 8.7 ACTION PLAN Exhibit 8-8 highlights key activities the County can use to implement the Capital Facilities and Utilities Element over the next eight years (prior to the next periodic update), several in partnership with other entities: EXHIBIT 8-7 Capital Facilities, Essential Public Facilities, & 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 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 Urban Growth Areas). Pursue state and federal funds as they may become available. Source: Jefferson County, 2018. Jefferson County Comprehensive Plan R–1 December 2018 References General Jefferson County. (1992). County-wide Planning Policies, Resolution 128- 92. Jefferson County. (1999, August). Tri-Area/Glen Cove Special Study. Final Supplemental Environmental Impact Statement with Addendum Jefferson County. (2002 and 2004). Brinnon Subarea Plan and Amendments. Retrieved from http://www.co.jefferson.wa.us/749/Brinnon-Subarea-Plan. Jefferson County. (2015, October 26). 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Retrieved from https://www.census.gov/quickfacts/fact/table/WA,jeffersoncountywas hington/PST045217. Washington State University (WSU). (2018). WSU Jefferson County Extension. http://extension.wsu.edu/jefferson/. Capital Facilities & Utilities and Appendix D Capital Facilities Technical Document 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/ REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–9 December 2018 October_Revisions/planning_for_climate_change_adaptation_11.10.1 5.pdf Bureau of Labor Statistics. (2018, April). Databases, Tables & Calculators by Subject: CPI Inflation Calculator. Retrieved from Bureau of Labor Statistics: https://data.bls.gov/cgi-bin/cpicalc.pl. City of Port Townsend. (2018). Public Works Projects. Retrieved from http://cityofpt.us/PW/. EDC Team Jefferson. (2018). Strategic Priorities. https://www.edcteamjefferson.org/strategic-priorities. EES Consulting. (2017, January). Jefferson County PUD Electric Cost of Service and Rate Study. Retrieved from Jefferson County PUD : http://www.jeffpud.org/wp- content/uploads/Jefferson_PUD_COSA_Report_Final.pdf. Jefferson County. (1997, June). Coordinated Water System Plan. Jefferson County. (2006, November). Surface Water Management Plan. Jefferson County. (2010). Non-motorized and Recreational Trails Plan. Retrieved from http://www.co.jefferson.wa.us/440/Non-Motorized- Transportation-Recreationa. Jefferson County. (2016, September). Solid Waste Management Plan. Retrieved from https://jeffersoncountysolidwaste.com/37-2/2016- jefferson-county-solid-waste-management-plan/. Jefferson County Administrator’s Office. (2018). Jeffferson County Strategic Plan. Jefferson County Brinnon Fire Department District #4. (2018). www.brinnonfire.org. Jefferson County Department of Public Works. (2015). Parks, Recreation & Open Space Plan. Retrieved from https://www.countyrec.com/forms/6081_final_draft_jefferson_co_pro s_062915_final.pdf. Jefferson County Discovery Bay Volunteer Fire and Rescue District #5. (2018). www.dbvfr.org. Jefferson County Port Ludlow Fire and Rescue District #3. (2018). http://www.plfr.org/. Jefferson County Public Utility District (PUD). (2010, June). Utility Development Plan. Retrieved from http://www.jeffpud.org/wp- content/uploads/2014/04/Utility_Development_Plan_06082010_final .pdf. Jefferson County Public Utility District (PUD). (2011). Water System Plan. Jefferson County PUD. (2016, April 11). Jefferson County Energy Efficiency Program. Retrieved from Jefferson County PUD: REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–10 December 2018 http://www.jeffpud.org/wp- content/uploads/JPUD_Conservation_CAB.pdf Jefferson County Public Utility District (PUD). (2017, October). Infrastructure Improvement Program. Retrieved from http://www.jeffpud.org/infrastructure-improvement-program/. Jefferson County Public Utility District (PUD). (2018, March 1). Current JPUD Rates for Electrical Services: Effective March 1, 2018. Retrieved from Jefferson County PUD: http://www.jeffpud.org/rate-schedule/. Jefferson County Public Utility District (PUD). (n.d.). Current JPUD Rates for Electrical Services: Effective March 1, 2018. Retrieved from http://www.jeffpud.org/rate-schedule/. Jefferson County Public Works. (2017). Adopted 2018—2023 Six-Year Transportation Improvement Program. Retrieved from Jefferson County: http://www.co.jefferson.wa.us/444/6-Year-Transportation- Improvement-Progra. Jefferson County Quilcene Fire Rescue District #2. (2018). http://qvfd.org. Jefferson County Rural Fire Protection District #1. (2018). http://www.jcfd- 1.org/. Jefferson County Sheriff’s Office. (2018). Strategic Plan, Comprehensive Version. Jefferson Transit. (2016). 2016 Annual Report. Retrieved from https://jeffersontransit.com/about/transit-development-plan/. Jefferson Transit. (2017). Transit Development Plan 2017-2022. Retrieved from https://jeffersontransit.com/about/transit-development-plan/. Municipal Research & Services Center (MRSC). (2018). Local Government Fire Protection Service Providers. Retrieved from http://mrsc.org/Home/Explore-Topics/Management/Service- Delivery/Local-Government-Fire-Protection-Service- Providers.aspx#jefferson. Newlin, N. (2015, September 25). Chief, Corrections Division, Kitsap County Sheriff's Office. (T. Gunesekera, Interviewer) Peninsula RTPO. ((undated, ca. 2013)). Regional Transportation Plan 2035. Retrieved from https://www.wsdot.wa.gov/partners/prtpo/publications.htm. Pierce County. (June 2015). Pierce County Comprehensive Plan. Tacoma: Pierce County. Port Hadlock / Irondale. (2004, May). Urban Growth Area Stormwater Management Plan. Port Hadlock / Irondale. (2004, May). Urban Growth Area Transportation Plan. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–11 December 2018 Port Hadlock. (2008). Urban Growth Area Sewer Facility Plan. Retrieved from http://www.co.jefferson.wa.us/1161/View-Project-Documents. Port Hadlock Water System. (2013). Design Plans & Specifications. Reid Middleton and Barnard Dunkelberg Company. (2014, July). Jefferson County International Airport Master Plan Update, Final Report. Snohomish County. (2015). Snohomish County Capital Facilities Plan. Transpo Group. (2008, October). Quimper Peninsula Travel Demand Model. Transpo Group. (2012, January). Quimper Peninsula Transportation Study and Model. Retrieved from Jefferson County: http://www.co.jefferson.wa.us/443/Transportation-Planning. Washington State Department of Ecology. (2012, April). Preparing for a Changing Climate: Washington State’s Integrated Climate Response Strategy: Publication No. 12-01-004. Retrieved from State of Washington Department of Ecology: https://fortress.wa.gov/ecy/publications/documents/1201004.pdf Washington State Department of Health. (2018). Water Systems Database. Retrieved from https://fortress.wa.gov/doh/eh/portal/odw/si/FindWaterSystem.aspx. Washington State Office of Superintendent of Public Instruction (OSPI). (2018). Information and Condition of Schools (ICOS). Zhang, T. D. (2015). Jail Inmates at Midyear 2014. U.S. Department of Justice, Office of Justice Programs, Bureau of Justice Statistics. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–12 December 2018 Photo Credits Individual photo credits are noted throughout this plan; photos are courtesy of the following individuals and organizations or included under fair use provisions of U.S. copyright law: ▶ BERK ▶ Carolyn Gallaway ▶ Casey Scalf via the Jefferson Landworks Collaborative ▶ The Chamber of Jefferson County ▶ Collection of the Jefferson County Historical Society ▶ Google Earth and Street View ▶ Jefferson County ▶ Jefferson County Public Health ▶ Joel Peterson ▶ Kitsap Sun ▶ North Hood Canal Chamber of Commerce ▶ Peninsula Housing Authority (PHA) ▶ Pleasant Harbor Marina ▶ Port Ludlow Village Council ▶ Port of Port Townsend ▶ Steve Schauer ▶ Windermere Real Estate ▶ Zillow REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–13 December 2018 Acronyms ADO Associate Development Organization ADU Accessory dwelling unit Ag Code Jefferson County Code, sections 18.15, 18.20.030, 18.30 and 18.45 ATRSH Annual Transit Revenue Service Hour BPA Bonneville Power Administration BTOP Broadband Technology Opportunity Program CAC Urban Growth Area Citizen Advisory Committee CAO Critical Areas Ordinance CARA Critical Aquifer Recharge Area CDC National Center for Disease Control and Prevention CHIP Community Health Improvement Plan CRS National Flood Insurance Program’s Community Rating System. CSGA Cellular Geographical Service Area CWPPs County-wide Planning Policies CWSP Coordinated Water System Plan for Jefferson County DAHP Washington State Department of Archaeology and Historic Preservation DEIS Draft Environmental Impact Statement DNR Washington Department of Natural Resources DOE Manual Washington Department of Ecology Stormwater Management Manual for Western Washington DSL Digital subscriber line EIS Environmental Impact Statement EPA United States Environmental Protection Agency FAA Federal Aviation Administration FCC Federal Communications Commission FEIS Final Environmental Impact Statement FEMA Federal Emergency Management Agency FSEIS Final Supplemental Environmental Impact Statement GMA Growth Management Act, Chapter 36.70A RCW. IDRB Industrial Development Revenue Bond ILB Industrial Land Bank ISP Internet Service Provider REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–14 December 2018 JCC Jefferson County Code JCIA Jefferson County International Airport JEDS Joint Economic Development Strategy JLUS Joint Land Use Study JPREP Jefferson County Regional Emergency Preparedness Network JPUD Public Utility District #1 of Jefferson County LAMIRD Limited Areas of More Intensive Rural Development LOS Levels of Service MERU Measurement Equivalent Residential Units MOU Memorandum of Understanding MID Major Industrial Development MPR Master Planned Resort NAVMAGII Naval Magazine Indian Island NBK Naval Base Kitsap NoaNet Northwest Open Access Network NODC North Olympic Development Council NRCS US Department of Agriculture Natural Resource Conservation Service OFM State of Washington Office of Financial Management PROS Plan Jefferson County Parks, Recreation, and Open Space Plan, 2015 PDD Peninsula Development District (currently merging with NODC) PRTPO Peninsula Regional Transportation Planning Organization RCO State of Washington Recreation and Conservation Office RCW Revised Code of Washington RV Recreational Vehicle SEIS Supplemental Environmental Impact Statement SEPA State Environmental Policy Act, Chapter 43.21c RCW SMA Shoreline Management Act, Chapter 90.58 RCW SWMP Jefferson County Solid Waste Management Plan, 2016 UDC Unified Development Code, Title 18 of the Jefferson County Code UGA Urban Growth Area USDA United States Department of Agriculture WAC Washington Administrative Code WRIA Water Resource Inventory Areas WRIA 16 Skokomish-Dosewallips Watershed REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–15 December 2018 WRIA 17 Quilcene-Snow Instream Resources Protection and Watershed Management Program, Chapter 173-517 WAC WRIA 20 Soleduck-Hoh Watershed WRIA 21 Queets-Quinault Watershed WSDOT Washington State Department of Transportation WSU Washington State University WUTC State of Washington Utilities and Transportation Commission Land Use/Zoning Designations AEPF Airport Essential Public Facility AL-20 Agricultural Land of Local Importance (Local Agriculture) AP-20 Prime Agricultural Land (Commercial Agriculture) CC Convenience Crossroads CF-80 Commercial Forest CWMEPF County Waste Management Essential Public Facility EPF Essential Public Facilities EPF-A Essential Public Facilities – Airport EPF-WM Essential Public Facility – Waste Management GC General Crossroads HI Heavy Industrial IF Inholding Forest JPREP Jefferson County Regional Emergency Preparedness Network LI Light Industrial LI/C Light Industrial/Commercial LI/M Light Industrial/Manufacturing MPR-GR Master Planned Resort – Golf Resort MPR-OSR Master Planned Resort – Open Space Reserve MPR-PH Master Planned Resort – Pleasant Harbor MPR-MF-10 Master Planned Resort – Multifamily MPR—MV Master Planned Resort – Maritime Village MPR-RA Master Planned Resort – Recreation Area MPR-RC/CF Master Planned Resort – Resort Complex/Community Facilities MPR-SF-4 Master Planned Resort – Single-Family MPR-SFT Master Planned Resort – Single-Family Tract (1:2.5) MPR-VC Master Planned Resort – Village Commercial Center MRLO/CF Mineral Resource Lands Overlay District and Commercial Forest REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–16 December 2018 NC Neighborhood/Visitor Crossroads PPR Parks, Preserves, and Recreation RBIZ Forest Resource-Based Industrial Zone RF-40 Rural Forest RI Resource Industrial – see also RBIZ Forest Resource- Based Industrial RR Rural Residential RR-5 Rural Residential – 1 DU/5 Acres RR-10 Rural Residential – 1 DU/10 Acres RR-20 Rural Residential – 1 DU/20 Acres RVC Rural Village Center SRT Small-scale Recreation and Tourist UGA-C UGA Commercial UGA-HDR UGA High Density Residential (14-24) UGA-LDR UGA Low Density Residential (4-6) UGA-MDR UGA Medium Density Residential (7-14) UGA-P UGA Public UGA-VC UGA Visitor Oriented Commercial ULDR Urban Low Density Residential – see also UGA-LDR REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–17 December 2018 Glossary Introduction This glossary is meant to support the Comprehensive Plan with definitions of key terms. State legislation, implementing state rules, case law, or supporting plans and regulations may change over time. The following guiding principles are intended to assist in the review and application of the glossary and interpretation of the plan: ▶ The County may use the most current definitions in Chapter 36.70A RCW or WAC 365-196 or other related legislation or rules to interpret this Comprehensive Plan. ▶ The County may consider judicial interpretations regarding the meaning and interpretation of Comprehensive Plan terms. ▶ The County may consider terms as defined in related plans or supporting documents, including but not limited to, the County- wide Planning Policy, supporting County system plans for services and infrastructure, capital and transportation improvement programs, budgets, and other documents. ▶ The County may consider terms as defined in its Unified Development Code. ▶ Where terms are not defined in this plan or other relevant sources, the County may consult general use, planning, legal, or other dictionaries in common use. Terms Accessory Dwelling Unit: An additional dwelling unit either in or added to an existing single-family detached dwelling, or in a separate accessory structure on the same lot as the main dwelling, for use as a complete, independent living facility with provisions within the accessory dwelling unit for cooking, eating, sanitation and sleeping. Such a dwelling shall be considered an accessory use to the main dwelling and be clearly subordinate to the main dwelling. Accessory Use: A use of land or building or a portion thereof that is demonstrably subordinate and incidental to the primary use of the premises. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–18 December 2018 “Act”: The Growth Management Act as enacted in chapter 17, Laws of 1990, 1st Ex. Sess, and chapter 32, Laws of 1991, 1st Special Sess., State of Washington (see Growth Management Act). Adequate Public Facilities: Facilities that have the capacity to serve development without decreasing levels of service below locally established minimums. In Jefferson County, adequate public facilities are synonymous with adopted levels of service. Adjacent Property Owners: The owners of real property, as shown by the records of the County Assessor, located within three hundred feet of any portion of the boundary of the property proposed for division. If the owner of the real property which is proposed for division owns another parcel or parcels of real property which lie adjacent to the real property proposed for division, adjacent property owners shall mean owners of real property located within three hundred feet of any portion of the boundaries of such adjacently located parcels of real property. Adjacent: A lot or parcel of land that shares or touches all or part of a common lot line with another lot or parcel of land. Parcels that are cater- corner to one another also are considered adjacent. Adult Family Home: A home facility that provides care for between two to six senior citizens or disabled persons who are unable to live independently. Affordable Housing: Those housing units available for purchase or rent to individuals or families with a gross income between the federally recognized poverty level and the median income for working families in Jefferson County; and whose costs, including utilities, would not exceed 30% of gross income. Agriculture: Improvements or activities associated with the growing, cultivation, and/or harvesting of crops and livestock, including those activities necessary to prepare the agricultural commodity for shipment. Agricultural Land: Land primarily devoted to the commercial production of horticultural, viticulture, floriculture, dairy, apiary, vegetable, or animal products or of berries, grain, hay, straw, turf, seed, Christmas trees not subject to the excise tax imposed by RCW 84.33.100 through 84.33.140, or livestock, and that has long-term commercial significance or has local significance for agricultural production. Airport Approach Zone: An imaginary “zone” extending upward and outward from a runway’s centerline within which there may be additional height restrictions and/or limited land uses. Annexation: The act of incorporating an area into the domain of a city. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–19 December 2018 Aquaculture: Improvements or activities associated with the culture or farming of food fish, shellfish, or other aquatic plants or animals, including those activities necessary to prepare the aquacultural commodity for shipment. Aquifer: A saturated geologic formation that will yield a sufficient quantity of water to serve as a private or public water supply. Aquifer Recharge Areas: Areas where soils and geological materials permit the infiltration of natural or artificial sources of water in rates and quantities sufficient to recharge ground water reserves. Critical aquifer recharge areas are areas with a critical recharging effect on aquifers used for potable water, including areas where an aquifer that is a source of drinking water is vulnerable to contamination that would affect the potability of the water, or is susceptible to reduced recharge. Arterial, Minor: A street with signals at important intersections, stop signs on the side streets and that collects and distributes traffic to and from collector streets. Arterial, Principal: A street with access control, channelized intersections, restricted parking, and that collects and distributes traffic to and from minor arterials. Assisted Housing: Owner-occupied or rental housing which is subject to restrictions on rents or sales prices as a result of one or more project based government subsidies. Assisted housing does not include holders of non-project based Section 8 Certificates. Assisted Living Facility: Residences for the elderly that provide room, meals, personal care, supervision of self-administered medication and other services such as recreational activities, financial services and transportation. Best Available Science: With regard to designating and protecting critical areas, best available science refers to the utilization of the most current, widely-accepted scientific data, research, studies and/or reports in making land use and policy decisions. Best Management Practices (BMP): State-of-the-art technology as applied to a specific problem. BMPs are often required as part of major land development projects. BMPs represent physical, institutional, or strategic approaches to environmental problems, particularly with respect to nonpoint source pollution control. Block: A group of lots, tracts, parcels, or sites located within well-defined and fixed boundaries such as roads. Board: The Jefferson County Board of County Commissioners, (BOCC). REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–20 December 2018 Bond and Levying Financing: A method employed by local governments for generating revenue through either the sale of municipal bonds, which require 60 percent voter approval, or by increasing property tax, which requires a simple majority. Buffers: An area, unit or strip of land designed so as to shield, separate or protect one type of land use from another with which it is incompatible or to protect environmentally sensitive areas. Buffers typically consist of open areas, landscaped areas, walls, fences, berms or any combination thereof which help to minimize conflicts from noise, light or other nuisances. Building: Any structure used or intended for supporting or sheltering any use or occupancy. Built Environment: A combination of buildings and related activities along with associated impervious surfaces, infrastructure, parking and landscaping. Capital Improvements: Projects to create, expand or modify a capital facility that have a minimum cost of $15,000 and have a life expectancy of at least five years. Capital Improvements include facilities such as utility systems, landfills, public buildings, streets, sidewalks, drainage and major equipment. Capital Improvements Program (CIP): A plan for future capital expenditures which identifies each capital project, its anticipated start and completion dates, and allocates existing funds and known revenue sources over a six-year period. Categorical Exemptions: Development actions, enumerated in WAC 197-11-800, which have been legislatively determined not to have significant adverse environmental impacts, and therefore do not require environmental review or documentation for potential impacts under the State Environmental Policy Act. Certified Local Government (CLG): A program established by the National Historic Preservation Act that provides technical and financial assistance to preserve historic buildings, sites, neighborhoods and other places of local importance. A local government that participates in the program and becomes certified is known as a “certified local government.” City: The incorporated City of Port Townsend, Washington. Cluster Development: A development design technique that groups or “clusters” buildings in specific areas on a site rather than spread evenly throughout the parcel as in a conventional lot-by-lot development. The remaining land is to remain undeveloped in perpetuity and used for REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–21 December 2018 recreation, common open space, and/or preservation of environmentally critical areas. Collector: A street that collects traffic from local streets and connects with minor or major arterials. Commercial Use: An activity that provides merchandise or services for compensation to an owner, leasee or licensee. Community Plan: A document that has been prepared by a group of individuals, representing individual communities, that outline the goals and visions set forth by community residents. Community Plans provide guidance for the County-wide Comprehensive Plan. Community Sites and Facilities: Sites and facilities provided as a community service including, but not limited to, parks, open space, recreation facilities, water, and sanitary facilities. Comprehensive Plan: A generalized coordinated policy statement of the government body of a city or county that is adopted pursuant to the Washington State Growth Management Act (Chapter 36.70A RCW). A document or series of documents prepared by a professional planning staff and planning commission that sets forth guidelines and policies for the future development of a specific geographical area (i.e., city or county). Concurrency: The provision of capital improvements, infrastructure or facilities at the same time (concurrent) with a development project so as to maximize efficiency and minimize costs. Conditional Use: A use that, owing to some special characteristics attendant to its operation or installation (e.g. potential danger, smoke or noise), is permitted in a district, subject to approval and special requirements, different from those usual requirements for the district in which the conditional use may be located. Condominium: A system of separate ownership of individual units, usually in a multiple tenant building. A single parcel of property with all the unit owners having a right in common to use the common elements with separate ownership confined to the individual units. Congregate Care: Care which caters to those who are unable to provide for themselves and which provides services such as housekeeping, transportation or other support services. Consistency: The requirement that subdivision regulations, zoning regulations and capital improvement programs be consistent with the comprehensive plan and each of its elements, and that individual land use decisions also be consistent with the plan. The GMA requires that the REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–22 December 2018 plan be both internally consistent and consistent with neighboring jurisdictions. Contiguous Development: Development of areas next to, adjacent, abutting, or touching one another. Parcels that are cater-corner to one another also are considered contiguous. Conversion Option Harvest Plan (COHP): A voluntary plan developed by a landowner and approved by the local government entity indicating the limits of harvest areas, road locations, and open space. Cooperative Housing: A multiple unit residential building owned and jointly administered and maintained by members of a cooperative generally residing in the building. Cottage Industries: An accessory use within a single-family dwelling or building accessory to a dwelling and is wholly incidental and subordinate to the residential use of the property. Limited, small-scale commercial or industrial activity, including fabrication, and that can be conducted without substantial adverse impact on the residential environment in the vicinity. Some examples include: dressmaking, baking, weaving, carpentry, cosmetic sales, and sculpting. County: Jefferson County, Washington. County-wide Planning Policy (CWPP): Written policy statements developed cooperatively between the County and City of Port Townsend establishing a policy framework to guide development of the Comprehensive Plan and ensure that it is consistent with the provisions of the Growth Management Act (Chapter 36.70.210 RCW) and with each other’s Comprehensive Plans. Critical Areas: Areas of substantial importance as unique and vital ecosystems and which are highly susceptible to adverse impacts associated with development. Under GMA, every county or city must classify, designate, regulate and protect critical areas which include: ▶ Critical aquifer recharge areas; ▶ Frequently flooded areas; ▶ Geologically hazardous areas; ▶ Fish and wildlife habitat conservation areas; and ▶ Wetlands REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–23 December 2018 CWSP: The Jefferson County Coordinated Water System Plan. Dark Sky: Denoting or located in a place where the darkness of the night sky is relatively free of interference from artificial light. Density: The number of households, persons or dwelling units per unit of land (usually expressed as “per acre”). Density Transfer: The transfer of all or part of the permitted density from one parcel to another. Detached Single-Family House: A residential building on a single lot, designed for occupancy by only one household and not attached to any other dwelling. Development: Any man-made change to improved or unimproved real estate, or in use, or extension of the use of the land for any purpose including, but not limited to, construction, reconstruction, conversion, structural alteration, relocation, mining, dredging, filling, grading, paving, excavation, drilling operations, or storage of equipment or vehicles. Development Regulations: Any controls placed on development or land use activities by a county or city, including, but not limited to, zoning ordinances, official controls, planned unit development ordinances, subdivision ordinances, and binding site plan ordinances. Development Standards: Minimum standards for new development required by local governments for the provision of roadways, fire and building safety, utilities, storm water, landscaping, and public access. Domestic Water System: Any system providing an adequate supply of potable water pursuant to RCW 19.27.097 for the intended use of a development. Downzoning: A change in the zoning classification of land from a more intensive land use classification to one of less intensive development, such as a change from commercial to residential zoning. Duplex: A single structure containing two dwelling units within one building located on a single lot, which is used or intended to be used as the residence for two families. Dwelling Unit: One or more rooms located in a residential building or residential portion of a building that may be used as a residence with each having sleeping, cooking and sanitation facilities. Easement: A grant by a property owner to a specific person, party, corporation or entity to use the owner's property for a specified purpose. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–24 December 2018 Economic Development: Any development or activity which creates jobs and promotes economic vitality. Encroachment: Typically refers to the advance of land use(s) or activity upon adjacent and often incompatible land uses or activity. As used with respect to floodplains, any artificial restriction, physical object, or obstacles within a floodplain that hinders the passage of water or otherwise affects flood flows. Endangered, Threatened or Sensitive Species: Those species of fish and wildlife listed as endangered, threatened or sensitive by the Washington State Department of Fish and Wildlife, the U.S. Fish and Wildlife Service or the National Marine Fisheries Service. Essential Public Facilities: Important and necessary facilities which provide essential services such as airports, state educational and/or regional transportation facilities, state or local correctional facilities, solid waste handling facilities, and in-patient facilities including substance abuse facilities, mental health facilities and group homes, and which are typically difficult to site because of their potential adverse effects related to size, hazardous characteristics, noise, or public health and safety. Existing Area of More Intensive Development: As defined with regard to Engrossed Senate Bill 6094, an area of more intensive development is one that is clearly identifiable and contained and where there is a logical outer boundary delineated predominately by the built environment and that was in existence: ▶ On July 1, 1990 ▶ On the date the County adopted a resolution under RCW 36.70A.040(2); or ▶ On the date OFM certifies the County’s population. Fair Share Housing: The concept that seeks to equitably distribute affordable and special-needs housing proportionately throughout appropriate areas of the County which can accommodate it. Family: An individual or two or more persons related by blood or marriage or a group of not more than five (5) persons (excluding servants) living together as a single housekeeping unit and doing their cooking on the premises as distinguished from a group occupying a boarding house or rooming house or hotel. Family Wage Jobs: Jobs that pay a wage or salary which can support the typical needs of an average family. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–25 December 2018 Farmland of Statewide Importance: Quality farmland that does not meet the criteria to be classified as prime farmland, but still has the capability to produce high crop yields when managed appropriately. First People: Native American groups that inhabited Jefferson County prior to the arrival of European settlers and explorers. Fish and Wildlife Habitat Areas: Areas that are designated as critical areas due to the presence of specified animal species. Flood Fringe: That portion of the floodplain that lies between the floodway and the outer limits (i.e., boundary) of the 100-year floodplain. Floodplain: Synonymous with the 100-year floodplain, a floodplain is land that is susceptible to being inundated by stream-derived waters with a 1 percent chance of being equaled or exceeded in any given year. Floodway: Those portions of the area of a river valley lying streamward from the outer limits of a water-course upon which flood waters are carried during periods of flooding that occur with reasonable regularity, although not necessarily annually, said floodway being identified, under normal conditions by a change in surface soil conditions or changes in types or quality of vegetative ground cover conditions. The floodway doesn’t include lands that can be reasonably expected to be protected from flood waters by flood control devices maintained by or maintained under licenses from the federal government, the State, or political subdivisions of the State. Forest Land: Land devoted primarily to the growing trees for long-term commercial timber production on land that can be economically and practically managed for such production, including Christmas trees, subject to the excise tax imposed under RCW 84.33.100 through 84.33.140, for commercial purposes, and that has long-term commercial significance. Forest Practices: Any activity conducted on or directly pertaining to forest land and relating to growing, harvesting, or processing timber, including, but not limited to: road and trail construction; harvesting; final and intermediate; pre-commercial thinning; reforestation; fertilization; prevention and suppression of diseases and insects; salvage of trees; and brush control. Forest practices do not include preparatory work, such as tree marking, surveying and road flagging, or removal or harvest of incidental vegetation from forest lands such as berries, ferns, greenery, mistletoe, herbs, mushrooms, and other products which cannot normally be expected to result in damage to forest soils, timber or public resources (see Chapter 222-16-010(21) WAC). Forest Transition Overlay (FTO): An overlay district designation that creates a transitional area between Forest Lands and pre-existing high REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–26 December 2018 density residential land uses in order to minimize the potential for conflict and incompatibility. Forestry: The management, protection, production, cultivation and transporting of timber resources to ensure the continuous production of wood and wood products. Frequently Flooded Areas: Lands in the floodplain subject to at least a one percent or greater chance of flooding in any given year, or within areas subject to flooding due to high groundwater. These areas include, but are not limited to, streams, rivers, lakes, coastal areas, wetlands, and areas where high groundwater forms ponds on the ground surface. Frequently flooded areas perform important hydrologic functions and may present a risk to persons and property. Fully Contained Community: A fully contained community which supports a mix of uses that provide jobs, housing and services to the residents of the community and pursuant to the criteria set forth in RCW 36.70A.350. Functional Plans: Planning documents which establish long-range goals and objectives to guide County (or a city’s) operations and capital development requests. These plans typically represent ideal goals for specific County departments in providing services and facilities. Geographic Information Systems (GIS): An advanced computerized information system, capable of storing, organizing, analyzing and retrieving data and linking it to a map. Geologically Hazardous Areas: Areas that, because of their susceptibility to erosion, sliding, earthquake, or other geological events, are not suited to the siting of commercial, residential, or industrial development consistent with public health or safety concerns. Grandfathering: A process which permits the continuance of a land use or activity which, at the time of establishment, was a permitted, legally created use but may be an incompatible use upon the reclassification of underlying land use or zoning. (see also Legal existing, non-conforming uses). Ground Water: All water found beneath the ground surface, including slowly moving subsurface water present in aquifers and recharge areas. Growth Management: A method to control the amount, type and rate of growth and development and channel it into designated areas in order to minimize adverse environmental and fiscal impacts and maximize the health, safety, and welfare benefits to the residents of the community. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–27 December 2018 Growth Management Act (GMA): The Growth Management Act as enacted in chapter 17, Laws of 1990, 1st Ex. Sess, and chapter 32, Laws of 1991, 1st Special Sess., State of Washington (see Growth Management Act). Hazardous Substances, or Dangerous Wastes: Substances that pose a present or potential hazard to human health or environment when improperly used, stored, transported or disposed of. Hazardous substances include those materials identified as hazardous waste in Title 40 CFR 261 or defined as hazardous substances in Title 40 CFR 302, and Chapter 173-303 WAC. Home Occupations: Home-based businesses that are secondary and incidental to the primary residential use of the structure, provide supplemental income for a family, consist of limited-scale service or fabrication, and are limited to mail order and phone sales with off-site delivery. Household: A household includes all the persons who occupy a group of rooms or a single room which constitutes a housing unit and can include one person, two or more families living together, or any other group of related or unrelated persons who share living arrangements. Hydraulic Project Approval: A permit from the Washington Department of Fish and Wildlife (WDFW) that you need before you construct a project or conduct other work activities in or near the water. Impact Fee: A fee or exaction imposed on developers to pay for the costs to the community of providing services to a new development. It is a means of providing funds for financing new improvements without resorting to deficit financing. The Growth Management Act authorizes imposition of impact fees on new development and sets the conditions under which they may be imposed. Impervious Surface: A hard-surfaced area that either prevents or retards the entry of water into the soil mantle under natural conditions; a constructed hard surfaced area that causes water to run off the surface in greater quantities or at an increased rate of flow from the flow present under natural conditions prior to development. Impervious surfaces include, but are not limited to: roofs; walkways; patios; driveways; parking lots or storage areas; concrete or asphalt paving; gravel roads; packed earthen materials; and oiled or macadam surfaces which similarly impede the natural infiltration of storm water. Incentive (Bonus) Zoning: The granting of additional development capacity or bonuses, via methods such as smaller lot sizes, in exchange for the developer’s provision of a public benefit or amenity, such as open space or a public plaza. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–28 December 2018 Inclusionary Housing: An affordable housing production strategy that seeks to provide a specified number of affordable and/or low income units within new housing developments. Inclusionary housing units are generally provided through density bonus incentives, requirements for cash contributions to a pool or minimum percentages of affordable units, or combinations of requirements and incentives. Industrial Use: Any activity involved in the production, processing, manufacturing, fabrication, or assembling of goods and materials, including the storage of material used in the industrial process. Warehousing and distribution centers are also considered industrial activities. Infill Development: Development consisting of either (1) construction on one or more lots in an area which is mostly developed, or (2) new construction between two existing structures. Infrastructure: The basic facilities and services necessary to sustain commercial, residential or industrial uses including public utilities such as water, sewer, roads, power or communications service. Instream Flow: A base flow adopted into Washington State regulations used to condition water rights. A water right for instream resources such as fish, wildlife, recreation, aesthetics, navigation, stock watering, and water quality with a priority date set when the instream flow rule was adopted. Intensity: The degree to which the land is used, or level of concentration or activity of land uses such as, residential, commercial, industrial or recreational. a. Less intensive use: Refers to a type of land use that is less concentrated, generally results in a decreased impact or activity, utilizes fewer resources and/or services, or creates less of a demand as, for example, the difference between commercial and residential land uses. b. More intensive use: A type of use which generally creates a greater demand for services or resources, generates increased activity and/or in greater concentrations, and has a greater impact upon the land use or its environs. Inter-Agency Committee (IAC): A committee created by the Washington State Legislature under Chapter 43.99 RCW to assist in the preservation, conservation, and enhancement of the State’s recreational resources. Inter-Jurisdictional: Relationships between governmental jurisdictions such as city, county, state, tribal, federal government agencies, special purpose districts, water, fire and port districts. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–29 December 2018 Jefferson County Code (JCC): The Jefferson County Code contains the provisions under which the County government functions. Joint Planning Area: The portion of the unincorporated county which is the future growth and service area of a city and for which planning will occur jointly between the county and that city. Jefferson County Regional Emergency Preparedness Network (JPREP): is a network of representatives from county entities, emergency responders and community volunteers that work together to prepare for emergency or disaster. Quarterly meetings, exercises and other efforts are coordinated to communicate, plan and practice readiness in the case of different types of emergencies. Land Banks: Acquisition of land for the purpose of reserving it for specified future development types. Land Trust: An organization created to acquire and manage land to sustain long-term affordability and preserve the qualities of the land such as historical significance, environmental value, or agricultural value. The land trust organization leases development rights to individual or nonprofit organizations who agree to reasonable limitations on resale profits while maintaining basic owner equity and tenure rights. Land Use: A term used to indicate the utilization of any piece of land; The way in which land is being used. Legal Existing (Non-conforming) Uses: A lawful use of land that does not comply with the use regulations for its zoning district but which complied with applicable regulations at the time the use was established. (See also Grandfathering). Level of Service (LOS): A qualitative measure of service levels or operating conditions used in reference to transportation systems, public facilities or services. Typically, level of service means an established minimum capacity of public facilities or services that must be provided, per unit of demand, or other appropriate measure of need. Local Improvement District (LID): A quasi-governmental organization formed by landowners to finance and construct a variety of physical infrastructure improvements beneficial to its members. Procedures for establishing a LID in Washington are addressed in RCWs 35.43 through 35.56. Location Factors: Features which affect where a particular type of commercial or industrial operation will locate. Location factors include but are not limited to: Proximity to raw materials, supplies, and services; proximity to markets or educational institutions; access to transportation REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–30 December 2018 facilities; labor market factors (e.g., skill level, education, age distribution, etc.). Long-Term Commercial Significance: As used with respect to natural resource lands, it includes the growing capacity, productivity, and soil composition of the land for long-term commercial production, with consideration of the land's proximity to population areas and the impact of this proximity on the ability to practically and economically manage the land, and the possibility of more intense uses of the land. Lot: A fractional portion of land having fixed boundaries, and of sufficient area and dimension to meet the requirements set forth in the Jefferson County Zoning Code. Lot Consolidation: The process of “merging” or “consolidating” substandard lots under contiguous ownership into one lot or parcel to create a lot or parcel which meets the current minimum lot size requirements. Low-Income: A household whose income does not exceed 80 per cent of the median income for the area, as determined by the Department of Housing and Urban Development (HUD). Major Industrial Development: Pursuant to RCW 36.70A.365, a master- planned location for a specific manufacturing, industrial, or commercial business that should be located in an Urban Growth Area but can be conditionally permitted outside the UGA boundary if it is shown that the activity: requires a parcel of land so large that no suitable parcels are available within an Urban Growth Area; a. is a natural resource-based industry requiring a location near agricultural land, forest land, or mineral resource land upon which it is dependent; or b. the nature of the activity is incompatible with urban development due to its potential threat to the public health, safety and welfare. Furthermore, a major industrial development can not be for the purpose of commercial shopping development or multi-tenant office parks. Manufactured Housing: A manufactured structure or major portion of a building designed for long-term residential use, which is transportable in one (1) or more sections and is designed for use with or without a permanent foundation when connected to required utilities. Master Planned Resort (Existing): A self-contained fully integrated planned unit development, in a setting of significant natural amenities, with a primary focus on destination resort facilities consisting of short- REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–31 December 2018 term visitor accommodations associated with a range of developed on- site indoor or outdoor recreational facilities and pursuant to the criteria set forth in RCW 36.70A.362. Mineral Extraction: The removal of minerals including, but not limited to, sand, gravel, shale, rock, coal, soil, peat or clay from an excavation in the earth. Mineral Resources: Include gravel, sand, rock, other aggregates and valuable metallic substances. Mineral Resource Lands: Lands primarily devoted to the extraction of minerals or that have known mineral resources or the potential of long- term commercial significance for the extraction of minerals. Mining: The removal of naturally occurring rock, sand, gravel, and minerals from the earth. Multi-Family Residential Development: Developments containing structures housing two or more residential dwelling units. Multi-modal: The integration or coordination of multiple types of transportation systems including, but not limited to, non-motorized transportation, transit, automobile, rail, water or aviation. Natural Resource-Based Industry: Those industries that are directly dependent upon natural resources for manufacturing or processing and which typically locate near the natural resource upon which they are dependent. Examples include, but are not limited to, sawmills or fish canneries. Natural Resource Lands: Agricultural, forest, aquaculture, and mineral resource lands that have long-term commercial significance. Non-Conforming Use: See Grandfathering and/or Legal Existing Uses. Nonpoint Source Pollution: A diffuse source of water pollution that freely flows across natural or man-made surfaces from activities such as agriculture, urban run-off, mining and silviculture. Non-structural Solutions: Shoreline protection measures to prevent loss of upland property, usually referring to the placement of beach material or vegetation management at the shore in order either to replace eroded material, to feed a littoral current that would otherwise cause shoreline retreat, or to plant vegetation to stabilize shore material. Nuisance: Any use or activity that interferes with the use or enjoyment of property, endangers personal health or safety, or is offensive to the senses. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–32 December 2018 OFM: Washington State Office of Financial Management. On-site Retention: Permanent impounding of storm water, or a substantial portion of storm water, in manmade or man-modified lakes and ponds. On-site retention is often required for developments. Open Space Land: Land not occupied by buildings or other structures, and which is set aside to serve as a buffer, provide recreational opportunities, protect environmentally sensitive areas, preserve wildlife corridors, provide viewsheds or to serve as locations for future public facilities. Overlay District: A specially designated zoning district containing additional standards and requirements, which is applied on top of a basic zoning classification. Examples include Historic Districts, Office/Clinic, Gateway Corridor, Design District, and Pedestrian overlays. Park: Public land set aside for recreational, educational, aesthetic or cultural use. Permeability: The rate at which water moves through undisturbed soil. Planned Unit Development (PUD): A form of development usually characterized by a unified site design for a number of housing units and compatible nonresidential uses, including provisions for the clustering of buildings and promotion of common open space, and may include density increases and a mix of buildings types and land uses. PUDs allow for the planning of a project and the calculation of densities over the entire development, rather than on an individual lot-by-lot basis. Planning Period: The 20-year period following the adoption of a comprehensive plan or such longer period as may have been selected as the initial planning horizon by the planning jurisdiction. Plat: A map of the design of a land subdivision. Prime Agricultural Land: Soils with little or no limitations or hazards for crop production. Prime Farmland: Land that has the best combination of characteristics for agricultural production and is not urban in nature Principal Use: The main or primary purpose for which a building, other structure and/or lot is designed, arranged, or intended, or for which it may be used, occupied or maintained. Protective Easement: An easement for the purpose of precluding future or additional development of the land. Protective easements are REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–33 December 2018 generally used to preserve tidelands, shorelines, marshes, streamways, or other environmentally sensitive areas. Public Benefit and Rating System: Open space applications are awarded points on the Public Benefit Rating (PBR) Scale to the extent that they implement policies which prioritize types of open space. Public Facilities: Any use of land, whether publicly or privately owned, for transportation, utilities, or communications, or for the benefit of the general public, including streets, roads, highways, sidewalks, storm and sanitary sewer systems, parks and recreational facilities, schools, libraries, fire and police stations, municipal and county buildings, powerhouses and cemeteries (see 36.70A.030 RCW). Public Services: The full range of services traditionally provided by local government including fire protection, law enforcement, public health, education, recreation, environmental protection, and other governmental services. RCW: Revised Code of Washington. Real Estate Excise Transfer Tax (REET): A tax levied on the sale of real property. The amount of the tax is determined as a percentage of the sales price. The GMA authorized cities to impose a second 0.25 per cent REET tax to be used to fund capital projects. Recreational Facilities: Facilities such as trails and pathways, parks, and campgrounds that provide opportunities for leisure-type activities. Regional Services: Goods, services and/or facilities that serve the population of a large geographic area. Regional Transportation Plan: The transportation plan for the regionally designated transportation system and which is produced by the Regional Transportation Planning Organization. Regional Transportation Planning Organization (RTPO): A voluntary organization of local, multi-county governments which coordinate inter- regional transportation needs pursuant to RCW 47.80.020. Residential Use: Any land which provides for living space. Examples include single family dwellings, multi-family dwellings, artist studio/dwelling, boarding house, caretaker's quarters, special residence, floating homes, and mobile homes. Resource-Based Industrial Zone (RBIZ): A Forest Resource-Based Industrial Zone designation that recognizes existing, active sawmills and related activities. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–34 December 2018 Rezone: Changing the zoning designation to a different zoning classification. Right-of-Way (ROW): A recorded right to use or travel over a specified property. The property can be an area or strip of land, public or private. Most commonly, it refers to land on which a street, sidewalk, or railroad is located. It can also be occupied by utilities, transmission lines, oil or gas pipelines, drainageways or similar facilities although pathways for these features are more commonly referred to as easements. Runway Protection Zone: A trapezoidal area located adjacent to each end of a runway representing the ground level at the innermost portion of the runway approach. Rural Character: Pursuant to RCW 36.70A.030 (14), rural character refers to the patterns of land use and development established by a County in the rural element of its Comprehensive Plan: a. In which open space, the natural landscape, and vegetation predominate over the built environment; b. That foster traditional rural lifestyles, rural-based economies, and opportunities to both live and work in rural areas; c. That provide visual landscapes that are traditionally found in rural areas and communities; d. That are compatible with the use of the land by wildlife and for fish and wildlife habitat; e. That reduce the inappropriate conversion of undeveloped land into sprawling, low-density development; f. That generally do not require the extension of urban governmental services; and g. That are consistent with the protection of natural surface water flows and ground water and surface water recharge and discharge areas. Rural Crossroads: Those areas established by virtue of historic transportation patterns and characterized by existing concentrations of small scale commercial uses fronting on, or in close proximity to, major transportation routes and intersections. The interim boundaries of Rural Crossroads are defined by the contained built environment that existed in 1990 or before. These site-specific areas serve an identified existing need for the local community and cannot be expanded in size. The following three types of Commercial Rural Crossroads exist in Jefferson County: Neighborhood/Visitor Crossroads, Convenience Crossroads, and General Crossroads: ▶ Convenience Crossroads (CC): Those crossroads that provide a limited selection of basic retail goods and services, and serve a lower REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–35 December 2018 intensity population base and the traveling public. Convenience Crossroads are characterized by a single convenience/general store. There are three (3) Convenience Crossroads in Jefferson County: Nordland, Beaver Valley and Wawa Point. ▶ Neighborhood/Visitor Crossroads (NC): Those crossroads which provide multiple uses and services serving both the local community and the traveling public. There are five (5) Neighborhood/Visitor Crossroads identified in Jefferson County: Mats Mats, Discovery Bay, Four Corners, Chimacum and Gardiner. ▶ General Crossroads (GC): Similar to Neighborhood Crossroads, General Crossroads serve a higher local population base and offer a wider variety of goods and services. There are three (3) General Crossroads identified in Jefferson County: Ness’ Corner, Irondale Corner and SR 19/20 Intersection. Rural Development: Refers to development outside the Urban Growth Area and outside agricultural, forest, and mineral resource lands designated pursuant to RCW 36.70A.170. Rural development does not refer to agriculture or forestry activities that may be conducted in rural areas. Rural Lands: Land which primarily contains a mix of low-density residential development, is not within an Urban Growth Area and is not designated as natural resource land having long term commercial significance for production of agricultural products or timber. Rural Services: Pursuant to RCW 36.70A.030 (16), rural services are those public services and facilities historically and typically delivered at an intensity usually found in rural areas, and may include domestic water systems, fire and police protection services, transportation and public transit services and other public utilities associated with rural development and not normally associated with urban areas. Rural services do not include storm or sanitary sewers except as otherwise authorized by RCW 36.70A.110 (4). Rural Village Center(s): Small, unincorporated commercial and residential community centers that provide a rural level of services and which serve as a focal point for the local population. The interim boundaries of the Rural Village Centers are predominantly defined by the contained, built environment as it existed in 1990 or before. These commercial districts allow modest in-fill development that maintains the character of the immediate area, but cannot expand their designated boundaries. In Jefferson County these centers include: Port Hadlock, Quilcene and Brinnon. Salt Water Intrusion: The process of sea water being drawn into ground water sources or aquifers. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–36 December 2018 Seawater Intrusion Protection Zones (SIPZ): Aquifers and land overlying aquifers with some degree of vulnerability to seawater intrusion. SIPZ are defined either by proximity to marine shoreline or by proximity to groundwater sources that have demonstrated high chloride readings. Scenic Corridor: Strip of land along streams, rivers, cliffs, bays, shorelines, ridges or roadways that provides scenic vistas, views or aesthetically- pleasing landscapes. SEPA: See State Environmental Policy Act. Service Area: A geographic area defined by a county or intergovernmental agreement in which a defined set of public facilities provides service to development within the area. Its boundaries are typically delineated according to the distance people are willing to travel for goods and services. Shoreline Management Act: A law passed by the Washington State Legislature in 1971 and ratified by the voters in 1972 (reference RCW 90.58). The Shoreline Management Act requires local governments to establish a program, consistent with the rules adopted by the Department of Ecology, for the administration and enforcement of the permit system for shoreline management. Shoreline Master Program (SMP): Local land-use policies and regulations that guide public and private use of Washington lake, stream, wetland, and marine shorelines. Shorelines: All the water areas of Jefferson County, including reservoirs and their associated wetlands, together with lands underlying them, except: a. Shorelines of state-wide significance; b. Shorelines or segments of streams upstream of a point where the mean annual flow is twenty cubic feet per second or less and the wetlands associated with such upstream segments; and c. Shorelines on lakes less than twenty acres in size and wetlands associated with such small lakes. Shorelines of State-wide Significance: A shoreline of the State with respect to Jefferson County and the City of Port Townsend as identified as follows: a. Those lakes, whether natural, artificial, or a combination thereof, with a surface acreage of one thousand acres or more measured at the ordinary high water mark, including associated wetlands; b. Those areas of Puget Sound and adjacent salt waters and the Strait of Juan de Fuca between the ordinary high watermark and the line REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–37 December 2018 of extreme low tide, which are Hood Canal from Tala Point to Foulweather Bluff south to the Mason-Jefferson County line, including associated wetlands; c. Those areas of Puget Sound and the Strait of Juan de Fuca and adjacent salt waters north to the Canadian line and lying seaward from the line of extreme low tide; and d. Those natural rivers or segments thereof downstream from a point where the mean annual flow is measured at one thousand cubic feet per second or more. In Jefferson County these rivers are the Clearwater, Hoh, and Quinault. Significant Trees: Trees with significant aesthetic, cultural, environmental or historical importance including, but not limited to, ridge-top trees, riparian buffers, and Port Townsend forest corridor trees. Single Family Residence: A dwelling unit detached from any other dwelling unit and intended for occupation by one immediate family. Small-scale Recreational or Tourist-related Uses: Those uses which are leisure or recreational in nature and typically are reliant upon a rural setting. Examples include, but are not limited to, the following: campgrounds, U-fish ponds, hot springs, trails, cultural or religious retreats, mini-golf, public gardens, marinas and music festivals. Special Needs Housing: Housing designed for persons who require supportive social services in order to live independently or semi- independently. Special needs groups include, but are not limited to, the homeless, elderly, persons with disabilities and persons with substance abuse Spot Zoning: The process of signaling out a small parcel of land for a use classification that is different and inconsistent with the surrounding area, for the benefit of the owner of such property and to the detriment of the rights of other property owners. Sprawl: see Urban Sprawl. Stakeholder: Any affected or interested person or party including, but not limited to, property owners, tribes, government agencies, businesses or organizations. State Environmental Policy Act, (SEPA): The State law passed in 1971 requiring state and local agencies to consider environmental impacts in the decision-making process. Storm Water: Water that is generated by rainfall and is often routed into drain systems in order to prevent flooding. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–38 December 2018 Storm Water Detention: The process of collecting and holding back storm water for a delayed release to receiving waters. Strip Development: Intensive development, typically commercial, and usually arranged in a linear pattern, located on both sides of an arterial. Strip Zoning: A zone normally consisting of a ribbon of uses fronting both sides of an arterial roadway and extending inward for half a block. Structure, Detached: A structure, which has no common or party wall with another structure. Subdivision: Any division of land regulated under the Jefferson County Subdivision Ordinance, No. 4-0526-92, as amended, for the purpose of sale or lease. Substandard Dwelling: A dwelling unit that does not meet the building code requirements through lack of maintenance, age of unit, neglect, lack of (part or all) plumbing facilities, kitchen facilities, or crowded conditions. Substandard Lot: A lot or parcel that does not meet the minimum lot size requirements of current development regulations. Surface Water: That portion of water that appears on the land surface, such as oceans, lakes, rivers, springs and wetlands. Targeted Industry Program: A program that identifies and targets specific industries or business activities that the County wishes to promote or encourage. Time Share: A building used or intended for use as an occasional residential accommodation by one or more persons who permanently reside elsewhere and who typically share in operating expenditures such as rent and upkeep. Tourist-Related Industries: See Small-scale Recreational or Tourist- Related Uses. Transfer of Development Rights (TDRs): A program in which the development rights are separated from the land in an area in which a community wishes to limit development, and permits them to be sold for use in an area targeted for high-density development. Transitional Housing: As defined by the Federal McKinney Act, transitional housing means a project that: a. Is designed to provide housing and appropriate supportive services to homeless persons, including (but not limited to) de- REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–39 December 2018 institutionalized homeless individuals with mental disabilities other homeless individuals with mental disabilities, and homeless families with children; and b. Has as its purpose facilitating the movement of homeless individuals to independent living within 24 months, or within a longer period determined by HUD as necessary to facilitate the transition. Transit: A multiple-occupant vehicle operated on a for-hire, shared-ride basis, including bus, ferry, rail, shuttle bus, or vanpool. Public transportation can include, but is not limited to: public bus, trolley, light rail, heavy rail, and commuter rail transport, but not ferries or van pools. Transportation Improvement Project (TIP): A jurisdiction’s six-year road improvement program. Trip: A one-direction movement, which begins at the origin and ends at the destination. For example, a trip movement from a residence to a work place is a trip from home to work. Trip Generation: The second step in forecasting the number of trips generated by the forecasted land use. The number of trips made to and from each type of land use by day. Trip generation provides the linkage between land use and travel. Trips generated at the home end are generally termed “production.” Trips generated by business are generally termed “attractions.” Upzoning: A change in the zoning classification of land to a classification allowing more intensive use of the land, such as a change from single family to multi-family residential (see downzoning). Unified Development Code (UDC): The set of development regulations in Jefferson County that implement the Comprehensive Plan. Urban Growth: Pursuant to RCW 36.70A.030 (15), urban growth is growth that makes intensive use of land for the location of buildings, structures, and impermeable surfaces to such a degree as to be incompatible with the primary use of such land for the production of food, other agricultural products, or fiber, or the extraction of mineral resources. When allowed to spread over wide areas, urban growth typically requires urban governmental services. “Characterized by urban growth” refers to land having urban growth located on it, or to land located in relationship to an area with urban growth on it as to be appropriate for urban growth. Urban Growth Areas (UGA): Areas which counties designate, in consultation with cities, where urban growth will be encouraged and supported with urban levels of services pursuant to the criteria set forth in RCW 36.70A.110. The Urban Growth Areas are to include areas and REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–40 December 2018 densities sufficient to permit the urban growth that is projected to occur in the County for the succeeding 20-year period. Urban Growth Boundaries: The line or boundary that delineates the limit between the Urban Growth Areas and other areas such as rural and resource areas where urban growth is not allowed, as designated by the County in consultation with its cities, under the requirements of the GMA. Urban Services: Pursuant to RCW 36.70A.030 (19) urban services are those public services and public facilities at an intensity historically and typically provided in cities, specifically including storm and sanitary sewer systems, domestic water systems, street cleaning services, fire and police protection services, public transit services, street improvements such as sidewalks, curbs and gutters and other public utilities associated with urban areas and normally not associated with rural. Urban Sprawl: Scattered, poorly planned urban development that occurs particularly in urban fringe and rural areas and frequently invades land important for environmental and natural resource protection. Urban sprawl typically manifests itself in one or more of the following patterns (see also Sprawl): a. Leap frog development: when new development is sited away from an existing urban area, bypassing vacant parcels located in or closer to the urban area that are suitable for development; b. Strip development: when large amounts of commercial, retail, and often multi-family residential development are located in a linear pattern along both sides of a major arterial and typically, accessing directly onto the arterial; and c. Large expanses of low-density , single-family dwelling development. Use: The purpose for which the building or structure or premises or part thereof is used, occupied or intended to be used or designed to be used or occupied; or An activity, occupation, business or operation carried on, or intended to be carried on, in a building or on a tract of land; or Any purpose for which a building or other structure or parcel of land may be designed, arranged, intended, maintained or occupied, or Any activity, occupation, business or operation carried out, or intended to be carried on, in a building or other structure or on a parcel of land; or Anything done or permitted by the owner or occupant of any land, building or structure, directly or indirectly, or through any trustee, tenant, servant or agent for or with the knowledge or consent of REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–41 December 2018 such owner or occupant, for the purpose of making use of said land, building or structure. Vested(ing): The status of a project for which landowners are granted permission to proceed with development after obtaining all necessary permits and meeting all criteria set forth by the appropriate agencies. In Washington State, the time at which the project is vested is statutorily defined. When a complete building permit application for a structure to be used in a manner permitted under the land use regulations in effect on the date of such application is submitted, the applicant will be entitled to improve and use land under the ordinances of the County in effect on the date of the complete building application. A vested right to subdivide is established as of the date a “fully competed application for preliminary plat approval has been submitted.” Village Commercial Center: The zoning classification of Port Ludlow Master Planned Resort’s commercial area. WAC: Washington Administrative Code. Water-Dependent Use or Activity: A use or portion of a use which can not exist in any other location and is dependent on the water by reason of the intrinsic nature of its operations. Examples of water-dependent uses may include ship cargo terminal loading areas, ferry and passenger terminals, barge loading facilities, ship building and dry docking, marinas, aquaculture, float plane facilities and sewer outfalls. Water-Enjoyment Use or Activity: A recreational use, activity or other use facilitating public access to the shoreline as a primary characteristic of the use; or a use that provides for recreational use or aesthetic enjoyment of the shoreline for a substantial number of people as a general characteristic of the use and which, through the location, design and operation, assures the public’s ability to enjoy the physical and aesthetic qualities of the shoreline. Water-Oriented Use or Activity: Any combination of water-dependent or water-enjoyment uses or activities. Water-Related Use or Activity: A use or a portion of a use which is not intrinsically dependent on a waterfront location but whose economic viability is dependent upon a waterfront location because: Of a functional requirement for a waterfront location such as the arrival or shipment of materials by water or the need for large quantities of water or, The use provides a necessary service supportive of the water- dependent commercial activities and the proximity of the use to its customers makes its service less expensive and/or more convenient. REFERENCES, PHOTOS, ACRONYMS, & GLOSSARY Jefferson County Comprehensive Plan R–42 December 2018 A use or activity which must be located close to the land/water interface to support a water-dependent use or activity either by its own operation or by the provision of the services it houses. Warehousing of goods transported by water, seafood processing plants, hydroelectric generating plants, and log storage are examples of water-related uses or activities. Water Resource Inventory Area (WRIA): Geographic areas defined by the Washington Department of Ecology and used for water resource planning and administration, including instream flow and other water resource-related rules. Watershed: The geographic region within which water drains into a particular river, stream, or body of water. A watershed includes hills, lowlands, and the body of water into which the land drains. Western Jefferson County: The Pacific Coast of Jefferson County, west of the Olympic National Forrest and the Olympic National Park. Wetland: Areas that are inundated or saturated by surface water or ground water at a frequency and duration sufficient to support, and that under normal circumstances do support, a prevalence of vegetation typically adapted for life in saturated soil conditions. Wetlands generally include swamps, marshes, bogs, and similar areas. Wetlands do not include those artificial wetlands intentionally created from non-wetland sites, including, but not limited to, irrigation and drainage ditches, grass- lined swales, canals, detention facilities, wastewater treatment facilities, farm ponds, and landscape amenities, or those wetlands created after July 1, 1990, that were unintentionally created as a result of the construction of a road, street, or highway. Wetlands may include those artificial wetlands intentionally created from non-wetland areas created to mitigate conversion of wetlands, if permitted by the County. WSESD: Washington State Employment Security Division Zoning: A measure enacted by general purpose unit of local government in which the community is divided into districts or zones within which permitted and special uses are established as are regulations governing lot size, building bulk, placement, and other development standards. The Zoning Ordinance consists of two parts, the text and the map.