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Home My WebLink About1 Land Use 2018_12Jefferson 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 EXHIBIT 1-8 Land Use / Zoning Map Source: Jefferson County Community Development, 2018. Note: No map changes are proposed as part of this periodic update. 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