HomeMy WebLinkAbout115Michelle Farfan
From:
Sent:
To:
Cc:
Subject:
Attachments:
David W. Joh nson < djoh nson @co jefferson.wa.us >
Tuesday, June 07,20L6 1:23 PM
Cynthia Koan; Gary Felder; Kevin Coker; Lorna Smith; Mark Jochems; Matt Sircely;
Richard Hull; Tom Giske
David W. Johnson (dwjohnson@cojefferson.wa.us); David Goldsmith
Brinnon Subarea Plan
Brinnon Subarea Plan.pdf; Brinnon Subarea Plan Appendices 1 & 2.pdf
Attached. This plan was appealed to the Growth Management Hearing (the GMHB) board in 2002by Brinnon resident
Mark Rose. They remanded the plan back to Jefferson County to conduct a Supplemental EIS for the Plan, which we did.
This is a FINAL LEGAL document (not a draft as Cynthia contents) and has been blessed by the GMHB upon appeal.
Anything in it related to Black Point has already been incorporated into the approval of Ord. No 01-0128-08 - the Comp
Plan amendment to designate Pleasant Harbor and Black Point a MPR.
From: mark jochems Imailto:mdjochems@gmail,com]
Sent: Tuesday, June 07,2016 11:23 AM
To: David W. Johnson <djohnson @co.jefferson.wa.us>
Subject: Re: Comp Plan hard copies
I would like a copy of the most recent Brinnon sub area plan. Thanks.
Sent from my iPad
On Jun 7,2076, at 9:35 AM, David W. Johnson <diohnson@co.iefferson.wa.us> wrote:
PC Members,
Do any of you need a complete hard copy of the Comp Plan?
Thanks !
David Wayne Johnson - LEED AP - Neighborhood Development
Associate Planner - Port Ludlow Lead Planner
Department of Community Development
Jefferson County
360.379.4465
<image004.jpg>
Mission: To preserve and enhance the quality of lfe in Jffirson County by promoting a vibrant
economy, sound communities and a healthy environment.
5fi SaVe PAPER - Pleose do not print this e-moil unless obsolutely necessory
All e-mail may be considered subject to the Public Records Act and as such may be disclosed to a third-
pafi requestor.
1
<image003.jpg>
BOARD OF COUNTY COMMISSIONERS
PREFERRED ATTERNATIVE DRAFT
MAY 1,2002
MODIFIED FROM JANUARY 16, 2OO2 DRAFT
RECOMMENDED BY PTANNING COMMISSION
AND AUGUST 28,2001 DRAFT
RECOMMENDED BY BRINNON SUBAREA PLANNING GROUP
A Chapter of the
Jefferson County Comprehensive Plan
Brinnon Subarea Plan
Brinnon Subarea Planning Group
Original Membership, 1999-2000
Final Mem bership Recommending Augus t 28, 2001 Draft
Linda Tudor, Chair
Lynnette Antijunti
Joy Baisch
Richard Coone
Dalila Dowd
John Dowd
Charles Finnila
Jean Johnson
Stan Johnston
Linda Tudor, Chair
Joy Baisch
Dalila Dowd
John Dowd
Charles Finnila
Jean Johnson
Cedric Lindsay
Kate Marsh, Recorder
Mike Matthews
Tom McNerney
Eleanor Sather
Bud Schindler
George Sickel
Lea Silsbee
Charles Springer
Cedric Lindsay
Kate Marsh, Recorder
Tom McNerney
Bud Schindler
George Sickel
Charles Springer
Jefferson County Representatives
Board of County Commissioners
Richard Wojt, Chair, District 3
Glen Huntingford, District 2
Dan Titterness, District I
David Goldsmith, County Administrator
Depaftment of Community Development
Al Scalf, Director of Community Development
Josh D. Peters, Associate Planner
Warren Hart, AICP; (former) Deputy Director
W. Lauren Mark, (former) Associate Planner
Special Consultant
Mark Personius, AICP; Planning Director
Earth Tech, Inc.
The work of the Special Consultant was funded in part through
the Community Development Block Grant program.
Table of Contents
Page
Background ...3
Geology ..4
Soils ...5
Historv ',6
Governmenf and Special Purpose Districts 13
Plan Implementation and Monitoring 14
Background t4
Current Effort 15
17
Monitoring 17
Land Use and Rural Element l8
Rural 18
Rural Commercial - Brinnon Rural Village Center (RVC) ..............28
Rural Commercial- WaWa Point Convenience Crossroads ...33
...33
...34
...36
...36
...38
...43
...44
...45
Historv
Small-Scale Recreation and Tourist Overlay Zone (SRT)
Statutory Requirements
Historv
Conceptual Master Planned Resort Land Use P[an..........46
..48
..50
..53
..53
..53
..54
..54
..57
..57
..60
..60
..61
..61
..61
..61
Home Businesses and Cottage Industries......
Natural Resource Conservation Element...
Forest Lands
Mineral Lands
Aquaculture Resources
Shel lfi sh Harvesting Rights
Affordable Housing
Minimum Lot Area Requirements
Minimum Floor Area Requirements
Limitations On Multi-Family Dwellings..
Limitations On Manufactured Dwellings
Minimum Yard, Setback, and Bulk Requirements ....................,61
Incentive ZoninglBonuses
Permit Fees
Land Costs
...62
...62
...62
...62
...&Parks & Recreation
Historical and Archeological Cultural Resource Preservation 70
7tEconomic Development Element
Isolation..t3
Water Resources ...80
Point Whitney Shellfish Laboratory ...................85
Natural Heritage Vegetation, Wildlife and Landforms ..................... .....................85
Essential Public Facilities and Public Purpose Facilities Element.......... ..................88
Federal Programs for Infrastructure Assistance.................,.... ........................,.....89
Utilities Element..
water utilities
...97
...97
Parks and Recreation.
Tourist Road Facilities
...99
.100
.100
.100
.100
.100
.100
.100
.100
.100
.100
.101
.101
102Conclusion
APPENDICES
Appendix I
Appendix 2
Maps (Figures BR-l through BR-14)
Brinnon Historic Business List
II
Vision Statement
Brinnon is a unique and beautiful area in southeastern Jefferson County that features 20 miles of
Hood Canal shoreline; two major rivers - the Duckabush and Dosewallips - and the backdrop of the
Olympic Mountains. The natural beauty and resources of the area have contributed to the
desirability ofBrinnon as a rural residential and recreational location.
The community is comprised of long-time families and modern-day pioneers who choose to forego
the luxuries of urban locations and delight in the challenges of a rural lifestyle. Brinnon is a
community of many friendly people, happy to be living in this great area. They share, along with
visitors, an appreciation for the sea and wildlife, significant natural beauty; and peace, quiet, clean
air and clean water.
Brinnon's innovative relationship to its economy is one aspect of its character. This is exemplified
by creative home businesses and attention to resource lands. In addition to more intensive
commercial zones along Highway l0l, Brinnon strives for a natural balance between rural living and
economic stability. One way to achieve this is to blend commercial activities and residential areas
through encouragement ofhome businesses and cottage industries.
Brinnon embraces a diversity of people with an expanse of collective experience. By adapting to
and nurturing each other's interests, both commercial and cultural, new opportunities can emerge.
Because of its isolation, Brinnon must be relatively self-sustaining. Community members want to
live where they work and be able to procure the basic goods and services needed to survive. Many
residents commute to jobs outside the area, but it is difficult for Brinnon to function as a rural
suburb, the family living one place while the wage earners commute to another. Brinnon seeks to
expand in a way that the needs of senior citizens, wage earners, and children are better served
within the community.
The primary vision continues to be of a community that encompasses a rural, lightly populated
area; an appropriate evolution of employment opportunities that replaces traditional--but no
longer viable----occupations such as logging, mining and fishing; and the quality of life in beautiful,
natural, rural surroundings that residents desire and expect.
The goal is to maintain the dignity of Brinnon's people, a closqknit and friendly community, a rural
lifestyle, and peaceful enjoyment of daily life for generations to come.
For the welfare of residents and visitors, Brinnon requires a well-balanced economy and the
ongoing protection of both the physical and human environment.
For over a century, Brinnon served as an outdoor recreation based retirement and tourist
community. This plan serves as a road map and tool for use by residents, current and new business
owners, and other interested parties to make the changes necessary for Brinnon's future success.
While the intent of this document provides a framework for the Brinnon community to retain its
much-cherished rural character, at the same time the community must support economic
development that allows the creation of new businesses and the modernization, expansion, or
relocation of existing home and small businesses. This is essential to provide the opportunities
Brinnon is a remote rural community,45 miles from the urban County seat and far from neighboring
communities, and must forge its own opportunities. Like the pioneers and the native inhabitants
before them, the people ofBrinnon value independence and freedom ofenterprise.
necessary for children and working adults who choose to work and live here, while also meeting
the community's changing needs to allow this remote rural area to thrive and flourish.
The citizens of Brinnon are uniquely qualified to understand Brinnon's current and future needs.
Although not all individual desires for the community can be met at this time, and many of the
recommendations and suggested strategies will take additional, in-depth planning, it is expected
that this community plan will be reviewed and updated at least every five years.
2
Introduction
Background
Prior to 1969, Brinnon developed slowly. The economy was based primarily on logging and
aquaculture, and provided a rest stop for travelers along US Highway l0l as well. Since that time,
growing outdoor recreational and tourism usage, an urban population migrating to rural
environments, a growing retirement population, and increased small businesses have contributed
to a gradual increase in growth.
Since an uncharted course for the area's development could jeopardize the lifestyle that the people
of Ekinnon have come to enjoy, in l98l members of the community asked the Jefferson County
Board of County Commissioners (BOCC) to assist in establishing a community plan to address the
area's future growth and development. A product of the cooperation between Brinnon citizens and
Jefferson County, the first Plan served as a written expression of community interests and desires.
Adopted by the BOCC in 1982, the Community Plan became a chapter of the Jefferson County
Comprehensive Plan and a critical element in the decision-making process that affected the
community.
In 1990, the Legislature of the State of Washington passed the Growth Management Act (GMA)
that established a statewide land uso.planning framework for cities and counties. Jefferson County
began to revise the Comprehensive Plan so that it would be consistent with the goals of the GMA.
In 1995, following working committee and public meetings, the 1982 Brinnon Community Plan was
updated and adopted by the Brinnon Planning Committee. As before, this Plan provided a
statement of how the community wished to grow and develop. The goals and policies in the plan
were based on performance standards, to be used as guidelines during the review of proposed
public and private actions as well as projects such as land subdivisions, commercial and industrial
development, open space and recreation areas, roads and transportation facilities, utilities, and
other community facilities and services. The second Brinnon Community Plan was forwarded to
Jefferson County in 1995, but due to the County's initiation of work on the overall countywide
GMA Comprehensive Plan, the Subarea Plan was never integrated into the Comprehensive Plan.
The overall update to the Jefferson County Comprehensive Plan----consistent with the GMA- was
completed and adopted by the County in 1998.
In late 1999, the Jefferson County BOCC requested that the citizens of Brinnon form a planning
group and craft the county's first Subarea Plan in relation to the new 1998 GMA Comprehensive
Plan. The scope of this effort covers what is known as Planning Area I I (the Brinnon Planning
Area) as shown in Figure BR-I. The 1995 Brinnon Community Plan served as the guiding
document, and inconsistencies with the County's 1998 Comprehensive Plan were examined in the
light of current planning goals.
The Brinnon Subarea Plan, when adopted by the BOCC, will amend the County Comprehensive
Plan as applicabte to Brinnon. [t is however, a plan that recommends certain land use designations
and policy direction regarding land ard shoreline development in Brinnon alone-it does not
authorize any specific development or constitute any land use approval for a specific piece of
property. Any proposed land use development or project in Brinnon must undergo the applicable
project permit review and approval process required by the Unified Development Code (UDC) and
consistent with the Jefferson County Comprehensive Plan (CP),
J
Location and Setting
Brinnon is an unincorporated community lying at the mouth of the Dosewallips River, situated on
the eastern slopes of the Olympic Mountains and the western shores of Hood Canal. Brinnon lies
astride US Highway l0l about equal distance between Shelton (approximately 40 miles) to the
south and Port Townsend (45 miles) to the north. The Brinnon planning area is bounded on the
north by the US Department of Agriculture (USDA) Forest Service's Rainbow campground on
Mount Walker, and on the south by the Jefferson-Mason County line near Triton Cove, and
includes all land areas from Hood Canal west to the boundaries of the Olympic National Park.
Although the area consists of approximately 120 square miles (including commercial forest lands), it
is characterized more by its 20 miles of shoreline along Hood Canal and its two major rivers, the
Duckabush and Dosewallips, which flow from west to east through the area and drain into Hood
Canal. Much of the land in the area is owned by the Federal and State governments, as well as
major timber corporations.
Throughout the years, the Brinnon area developed slowly, maintaining a remote rural character.
Overall, it is relatively lightly populated (see Figure BR-2). In recent times, however, the area has
experienced a significant increase in population growth-from 260 residents in 1970 to
approximately 1,200 in year 2000. The settlement pattern is relatively dispersed throughout the
planning area. Home sites dot the shoreline of Hood Canal and the Duckabush and Dosewallips
River Valleys. Residential lots also exist in several subdivisions in the area that contain single-
family dwellings, occupied by full-time residents or by those who use these properties for weekend
and/or recreational purposes.
Environment
Topography
Except for several small areas or narrow corridors, the Brinnon area contains pronounced
topographic features. Areas where slopes less than l5 percent occur are rare. Elevations exceeding
400 feet within 2,500 feet from Hood Canal are common. Beyond 2,500 feet from the Canal,
elevations rise sharply, particularly in the areas of Mount Walker, Mount Jupiter, and Mount
Turner, Along Hood Canal, low banks are rare; most waterfront areas are characterized by banks
rising from 30 to 70 feet. Exceptions to steep topography occur along the Duckabush and
Dosewallips River Valleys. The Duckabush River Valley is a relatively flat corridor with a width of
approximately 2,500 feet extending from its mouth for a distance of about three miles. The
Dosewallips River Valley contains two relatively flat areas of smaller width than the Duckabush;
however, these flat areas lie in the floodplains.
Geology
The geologic characteristics of the Olympic Peninsula and Hood Canal play an important role in
planning both public and private developments.
Tens ofthousands ofyears ago, vast sheets ofice began moving south from Canada, carvingout
the Puget Sound Basin. Forhundreds ofyears the ice advanced and retreated, each time carrying
tons ofrock and sand dredged from it course. Between each advance, lakes and rivers were formed
and sediments from these were later covered by glacial deposits. When the last glacier retreated
some ten thousand years ago, it left East Jefferson County and Hood Canal as we know it today.
Generally speaking, glacial deposits consist of two types, outwash and till. Outwash consists of
unconsolidated sand, gravel, and rock as a result ofrun-offfrom advancing or retreating glaciers.
4
Till consists of unsorted clay, sand, gravel, and rock that has been compacted into a highly
impervious cement-like material commonly called hardpan. Due to the advance and decline of some
several separate periods ofglaciations, faulting, and bending ofthe earth's crust, these layers of
outwash and till may overlap one another and run in different directions.
The surficial geology of the southeast portion of Jefferson County consists mainly of Vashon
Lodgment Till. This till is a compacted assortment of clay, silt, sand, pebbles, cobbles, and
boulders. Because of its compactness and high clay content, Vashon Lodgment Till is non-
compressible, impermeable, and is not prone to landslides.
Near shorelines, erosion has exposed Vashon Advance Outwash and Pre-Vashon Stratified
Sediments, Vashon Advance Outwash is a loose assortment of sands and gravels with some clay
and silt. This deposit is highly permeable, slightly compressble, will not maintain a steep slope,
and is landslide prone, especially when saturated with water. Pre-Vashon Stratified Sediments are a
group of glacial deposits that were laid down before the period of the Vashon Glacier and consist
of outwash, lake and river sediments, and alluvium. This deposit is generally permeable, slightly
compressible, and has poor natural stability. Some of the rock outcroppings in the Brinnon area
consist ofbasalt, or soils ofcemented gravel.
The other major formations are Possession Till, Ice-Contact Drift, and Double Bluff Till. These
deposits have been exposed by erosion and are found sporadically along the shoreline.
Both tilt and outwash deposits are used for domestic water sources together with the outflow of
rivers and steams from the Olympic Mountains. It is not uncommon that pockets of outwash are
found within till deposits. Where this is the case, wells are tapping perched water tables either
above or within the till. In many cases, wells that tap perched water tables are not dependable,
especially during the late summer months when rainfall does not recharge the aquifers, Where large
deposits ofoutwash are found below tilt deposits, greater ground water supplies can be expected.
These larger deposits are usually found in older geologic formations and, therefore, at greater
depths.
Interpretive maps on the surficial geology countywide, including the Brinnon Planning Area, have
been developed and are available for inspection at the Jefferson County Department of Commu nity
Development (DCD).
Soils
The soils of Jefferson County were formed by the various forces of water, heat, time, vegetation,
and animal life, all acting on the geologic parent material. In the county, the principal parent material
consists of the sands and gravels associated with glacial till and outwash. Most of the soils were
developed in a moist, marine, climate under a rich cover of plant life.
In 1968, soil scientists from the US Soil Conservation Service completed a soil survey of Jefferson
County that was published in 1975. This survey named, categorized, and classified some 101
specific soil types in the l0 major soil associates found in the county. From this survey and other
publications, the Jefferson County Planning Department (now DCD) developed a number of
interpretive maps, including suitability for septic tank and drain fields, slope, depth to seasonal
water table, ponding and flooding, aquifer recharge potential, agricultural suitability, and woodland
suitability.
Knowledge of soil, characteristics and capabilities can assist in wise public and private
investments, and can be useful in determining suitability of land for various uses. These soil
interpretive maps are not to be substituted for specific on-site field inspections that may produce
5
findings somewhat different from these more general accounts. It should also be noted that even
some of the most severe soil limitations can be overcome by engineering techniques. Soil
interpretive maps for the Brinnon area are available for inspection at the Jefferson County DCD.
Flooding
The Brinnon area contains the Dosewallips and Duckabush Rivers, two of the four major river
systems in eastern Jefferson County that are subject to flooding. When heavy rains combine with
warm temperatures, the rapid melting of snow in the Olympic Mountains can produce local
flooding. Flooding conditions can be further compounded during periods of high tides and low
barometric pressure during winter storms,
Jefferson County is a participant in the National Flood Insurance Program (NFIP), which provides
low cost flood insurance to property owners living in floodplain areas. A floodplain is the normally
dry land area adjacent to a stream or river channel that is susceptible to being inundated by water.
The 100-year floodplain has a one percent chance per year ofbeing covered with water. The NFIP
Flood Insurance Rate Maps (FIRMs) produced by the Federal Emergency Management Agency
(FEMA) show the general delineation of the 100-year flood boundary and floodway fringe.
Flooding and floodplain issues related to the Dosewallips and Duckabush Rivers are discussed in
detail in the Natural Environment Element.
Climate
Although Jefferson County is located within the West Coast Marine Climatic Region, there are five
distinct climatic zones within the county that vary with elevation, topography, rainfall, and position
with respect to bodies of water and wind patterns. The Brinnon area and Hood Canal are influenced
by the Olympic Mountains, which receive some of the nation's heaviest rains.
Area records indicate that the average annual rainfall is approximately 50 to 60 inches, with more
than eleven inches per month falling during November, December, and March. These heavy rains,
and high tides, contribute to flooding in some areas. By contrast, June, July, and August reflect
rainfalls less than two inches per month. The lack of rainfall during the summer season results in a
number of dry wells and springs in some isolated areas.
Daytime temperatures range from the middle 60s to the high 70s in summer months, dropping to the
middle 50s at night. Winter daytime temperatures are usually in the middle 40s with the nighttime
temperatures in the low 30s. The lower elevations ofBrinnon do not receive an abundance ofsnow
during the winter months.
History
Brinnon's history rests on the interconnections between families and community, subsistence on
what the land provides, and honor for deep historical roots. O'Wota Brinnon, wife of Ewell Brinnon
for whom the community is named, was of royal blood. Also known as Kate Brinnon, O'Wota was
the sister of Chief Chetzamoka, daughter to Lach-ka-him and Qua-tunra-low, leaders of the
S'Klaltam nation. O'wota Brinnon was dedicated to nature and to caring for children. She and her
husband often helped the community settle differences.
Before the arrival of explorers and settlers to the Pacific Northwest, ten thousand native people
thrived in the Hood Canal regions. The moderate climate and blend of forest, rivers and shoreline
produced ample salmon and other fish, shellfish, berries, roots, whales, seals, birds, and game
sufficient to support numerous thriving communities. Each individual community was identified by
6
differences in language and by kinship ties. During Hood Canal's colder months, October through
March, temperatures can drop to freezing and bring snow and copious rain. The native people lived
mostly from the saved food gathered in summer, and wove intricate baskets, mats, and clothing,
carved huge canoes, and created elaborate masks for ceremonies, Dyes were made from Oregon
grape roots (yellow), hemlock bark (red), marsh mud (black and gray), and other native plants and
roots.
Though Treaties were signed in 1855, most Tribes did not receive Federal recognition until after
1900, For a timeline of events from the time of the Stevens Treaties to the present, consult Jerry
Gorsline's 1997 book, Shadow ofOur Ancestors.
It was tall timber that brought some of the earliest European-American settlers to the Brinnon area.
Tom Pierce was logging the Dosewallips flat in 1859. Then the promise of 160 acres of land brought
the homesteaders. The panic or depression of the late 1880s brought many. As soon as most could
prove up on their homesteads or timber claims, the land was sold to the Forest Reserve or the
Iogging companies. (ln I 897, the president declared two million acres of the Olympic Peninsula to
be National Forest.) The railroad boom that never materialized here brought craftsmen looking for
work, and land speculators. Towns were laid out that never came into being.
Ewell Brinnon came to the area at an early date and settled at the mouth of the Duckabush River.
His Indian wife, Kate, was afraid of the flooding, so in 1868 he sold his property to Thomas Pierce
and moved to the Dosewallips, where he bought homestead rights and property. He soon owned
most of the flats. He donated an acre of land each for the school and cemetery.
Early view of the Brinnon Flats after awinter snowstorm
7
Early records show this area called Quagaboor and Ducaboos. Julius Macomber applied for a post
office in 1886. It was granted, and he was appointed as the first postmaster in 1888. His wife, Jessi,
was his assistant and it was she who named the area Brinnon in honor of Ewell Brinnon. She said
Quagaboor and Ducaboos were too hard to spell. There was a Duckabush post office established
in I 891 with George Solwold postmaster. This post office was discontinued in 1926.
Like other villages springing up
along Hood Canal, Brinnon was
for years served only by boat.
Early steamers were the
"Josephine," "Delta," "Pedita,"
"State of Washington," and the
"Potlatch." There wasn't a dock
at Brinnon until about 1900,
when Julius Macomber bought
property on the hill to the south
of Walker Creek where he built a
dock out to deep water. Here he
built a store-hotel building.
Previously he had a store and
Earlyferry dock the post office near the
present day Brinnon
Store. The store and post office continued to operate on the hill until 1952 when the second store
burned. At that time C.V. Dorothy was the owner, and he built the presentday store back on the
flat.
Shortly before 1900, Brinnon was finally getting roads to Quilcene and up the two rivers. By 1913
work was being done on a
road south of the Ducka-
bush towards Lilliwaup, In
1918 the first state road was
completed along the Canal,
which later became US
Highway 101.
The Brinnon School District
was established in 1881.
School was first held at
Pleasant Harbor, probably
so that Duckabush
students could attend too.
Later, school was moved to
a cabin on the Storey place Original Brinnon Store and Setllement located soath of the Flaa neor the
just south of the Seal Rock present day Geoduck Restoutant
Forest Camp. In 1894 a log schoolhouse was built on the property donated by Ewell and Kate
Brinnon, in the location where the Brinnon school stands today. In 1892 a second school was
granted five miles upriver. The school districtwas established on the Duckabush in 1908. Priorto
that the Pierces had a private school for their children, and for a short time, a school was held some
miles up the Duckabush River. In 1935, the Duckabush and Brinnon Schools were consolidated.
There were also schools at Triton Cove - Fulton Creek, Jackson Cove, and for a short time, at Bee's
Mill. The existing school on School House road was completed in 1952. The gym was added in
1956.
8
&T&dC
*,{-* r..-*
Timber has atways been a valuable resource in the Brinnon area. Many methods were used to get
the logs out of the woods. Loggers started with hand methods, then came ox teams, then horse
teams, then the railroad and finally they started using togging trucks. There was a log chute at
Pleasant Harbor, a splash dam on the Dosewallips, and the C.B. and M. incline on Mt. Turner. This
ingenious set-up brought the logs to water on railroad cars with no locomotive. A donkey engine
was at the top with a cable, each end of which was attached to a railroad car. There was a double
track halfway down where the cars passed. The loaded car rumbled down, crossing on a trestle
over the highway while the empty traveled back to the top. Shortly after the turn of the century,
James Izett built the first logging railroad at Brinnon on the south side of the Dosewallips. His
daughter, Janet Worthington, lives on WaWa Point.
E.K. Hjelvik first had a store at
Right Smart Cove, near where it
is now. In the early twenties he
built a new store at Pleasant
Harbor near the ferry dock.
When the highway was
changed in that area, he had
his store building sawed into
eight-foot sections and moved
it by road to his property at the
Cove. "Ma" Hjelvik continued
the business until her death in
1988. The old store burned in
1974. Son, Eivind built a new
store and moved his mother
into it' In the early days there Hjetvi*'s originat store at Right smart cove.was a store owned by Frank
Robinson across from the school. When the Olympic Highway was built, Dr. Davies built a store
where the Senior Center is now. It was known as "The Maples."
Early settlers, male and female alike, enjoyed outings into the hills, mountains, and waters of Hood
Canal to explore, climb, picnic, hunt, fish, horseback ride, prospect, orjust adventure. As early as
the turn of the century, campers from other areas of the State were attracted to the startling descent
from mountain peak to water's edge. Most camped in tents, but some built small shelters or cabins
and spent the entire summer enjoying the beauty of the area. Just as thenativepeoplehadbefore
them, families from Seattle, Tacoma, and elsewhere set up summer camps in the coves and harbors,
while other early families homesteaded and made the area their year-round residence. Often the
women and children stayed the summer, and the men came up for the weekend.
During the early part of the 1900s, trips to the "great outdoors" were so popular that it wasn't long
before Brinnon residents came up with the idea of what we'd now call a Bed and Breakfast, as well
as lodges and resorts. Entertainment was based on the surrounding areas: swimming, clamming,
oystering, horseback riding and hay rides, hiking, and fishing, while in the evening, by candlelight,
the groups created theatrical productions or played charades and other interactive group games
common at the time.
Brinnon had two hotels in the early days. The one on the hill at the dock, and one called the
"Riverside Hotel" on the south side ofthe river near the early bridge site. In the early 1900s one of
the Pierce sons started a resort on the family farm on the Duckabush. It became one of the best-
known summer resorts on the Canal,
9
I
I
.t!
i
1
I
Brinnon had ferry service to Seabeck running from 1917 to 1941. The first ferry was a scow which
was shoved up onto the beach and planks laid for the cars to drive off. Later regular ferryboats
made the run, Among them were the "Clatawa," "Lake Constance" and the "Airline,"
The only tract of acreage originally used as a camp that remains undivided today is Camp Parsons,
the third oldest Boy Scout Camp in the United States. Originally 280 acres, occupying most of
Jackson Cove, the Camp has subsequently been gifted with an additional 240 acres that cover most
of Pulali Point. This is the only wildlife corridor to remain in the Brinnon area that links the Olympic
National Park to Hood Canal, and includes shoreline on Dabob Bay as well as Jackson Cove.
Although the area had earlier served as a logging and work camp, as well as summer camp spot,
Camp Parsons officially opened as a Boy Scout Camp on July 7, 1919.
Though aampers now arrive by car, in the early years Scouts traveled to Camp Parsons on boats,
including the historic Virginia V. Many Washington state civic leaders, as well as locals, credit their
experience at Camp Parsons as a life-changing event. Several members of the current community of
Brinnon discovered the area as the result oftheir original Boy Scout experience.
After World War II, the shorelines and forests of Hood Canal became haven to veterans and their
families who sought a simpler tifestyle, and the area experienced a small population increase.
Through fishing, gardening, hunting, shellfish harvest, seasonal work in logging, fire fighting,
brush picking, or the mills, Brinnon continued its "rugged individualist" reputation. As before,
members of the community looked to each other for companionship and help rather than expect it
to be provided from outside agencies. Other families, new and old, continued the tradition of
making Brinnon a summer retreat, with wives and children retreating to the wilderness when school
was out, and husbands driving up for weekends.
Thanks to the efforts of the Brinnon Community Club,
electric power came to Brinnon in May of 1949. This club
later became the Brinnon Booster Club.
Now there is little to remind us of the early settlers.
Logging trucks have replaced locomotives and now even
they are few. Oyster and clam farming has become an
industry of the area. US Highway l0l is a major arterial
over which thousand ofvehicles travel each year. Ferries
are gone, replaced by the Hood Canal Bridge. Many of
the old homesteads have become residential or
recreational developments, yet Brinnon remains as it was
in the early days: a small community of friendly folks,
proud of its past and concerned with its future.
Just as they always have, occupations of local residents
include a range of activities and jobs. Indeed, many
present-day Brinnon area residents are descendants of
Fishing in the good otd days. original settlers, and not a few have Indian blood.
Entrepreneurial activities are @mmon, while the Internet
has allowed some to commute via cyberspace to conduct gainful employment. Some still log or
work in the shellfish industry, while others commute to work in Shelton, Olympia, Sequim, Port
Angeles, Port Townsend, Hadlock, Bremerton, and even the Seattle area.
Brinnon also has a fair share of retirees, either full-time or weekenders, who at last have the chance
to enjoy their small gardens, walks on mountain paths, bingo at the Booster Club, and the fresh air
and quiet. The local school, which has kindergarten through eighth grade, has fewer than one
hundred children. After eighth grade, students and their families can choose to take the bus or
10
*r-w
n
drive to Quilcene, Chimacum, or even Port Townsend to complete their education. A few go
directly to area community colleges through the Running Start Program that serves Washington,
while others are home- or privately-schooled.
Recreation and tourism continue to be based on the exceptionally mild climate and pleasant
environment. Most locals as well as visitors can choose from hiking, bicycling, horseback riding,
clamming or oystering, fishing, hunting, beny-picking, diving, swimming, picnics, boating,
kayaking, bird-watching, gardening, or just kicking back with a good book or video. Brinnon has
never been an area of the vast Victorian mansions of Port Townsend or Seattle, as locals know that
most of life in the area goes on out-of-doors, at least from spring's arrival in April through October,
when the first frost and heavy rains tend to begin. Thus most homes tend towards the modest end,
with as much window space as possible directed to the mountains, forest, or sea.
Cultural Heritage
There are a number of families in the Brinnon area whose forebears settled here in the late 1800s,
establishing this small community between the flanks of the Olympic Mountains and the shores of
Hood Canal. Although very few original buildings remain, a good deal of the development of
Brinnon through the decades was captured in stories and photographs. For the past few years, the
history ofthe region has been reconstructed, due particularly to the efforts ofVern Bailey and his
wife Ida, whose grandparents were early settlers.
Our cultural heritage as a mining and logging community is a source of pride in Brinnon.
Photographs depicting these activities, as well as photographs of our old schools, post offices,
hotels, churches, and family and community gatherings, have been presented to the community in
slide shows and lectures by the Baileys, and are usually dis played in local establishments.
Newcomers to the area and Brinnon old-timers, alike, are encouraged to uncover, reconstruct, and
make known to the children, the historians, and the general public, the facets of their history that
will add to this rich mixure. Government agencies that manage lands in this area, and companies
with timber holdings, may have land on which old buildings sit or on which artifacts of some
significance may be found. All are encouraged to conserve these areas, preserve the artifacts, and
bring the findings to light for all to enjoy.
An idea that is in the planning stages for development in the near future is a community kiosk in
one of our Brinnon area parks. It would show sites of historical significance and perhaps tell some
of the story of our territory. For the present, we continue to evoke the history, and in some way
capture the sites and dwellings, the tales and memorabilia which, woven together, make up the
fabric of Brinnon's heritage.
Community Values
During the winter of 1979 a team of Brinnon residents developed a community survey of attitudes
regarding specific issues. While most questions produced mixed response from the residents, there
was overwhelming agreement that the area should retain its rural characteristics and atmosphere.
After the passing of the Growth Management Act in 1990, a subsequent independently-conducted
survey funded by Jefferson County and conducted by EDAW, Inc., an international planning
consultancy in cooperation with BROUDAW, produced similar results.
During the 1994-95 process to update the 1982 Community Plan, the first such plan for Brinnon, the
Planning Committee gathered survey results and comments in order to create a profile of the
community. The essential theme echoed by residents was the importance of maintaining the rural
character of Brinnon. As before, respondents favored the development or improvement of single-
ll
family residences, convenience stores, retail and service businesses, agricultural and/or
aquaculture production, marina operation and boat launches, and the expansion ofparks and other
public areas.
Re spondents leaned towards preservation of the environment, moderate growth, suggestions for
multi.family or assisted care housing for seniors, and an increase in conveniences. Citizens also
requested support services for those in retirement, individuals with disabilities, and for commuters;
services for recreational users such as hikers and divers, including inns; and encouragement of
recreation, tourism, and small, job-creating industry.
The 1994 Planning Committee determined that stores and shops should remain primarily located in
the three commercial areas previously identified in the 1982 Community Plan. The three areas were
the Highway 101 intersections near Right-Smart Cove (WaWa Point), Brinnon Flats, and Black
Point. As with previous community planning groups, the current Brinnon Subarea Planning Group
does not favor strip-like development of businesses along highways and roads. Most group
members seemed to have a fairly homogeneous vision of the area, and expected that to some
extent, the natural limitations of the land would limit development.
In visualizing the Brinnon area fifteen years hence and addressing aesthetics, economy, and
environment, the following lists were made during a meeting of the 1994 planning group. In the
1994 list below, those items noted with an asterisk (*) were emphasized by a majority of the group
or were mentioned more than once,
Aesthetics:
Nicer landscaping Residential w/support services
Nicer dwellings 25-30o/o increase in residences
Moderate growth* Improved building quality
Recreational use center Creative architecture
No multi-family housing No more erosion of property rights
Improved roads Simple marinas
Multifamily for seniors* Specific zoning
Relatively natural Homes-vs.-condos
Keep northwest atmosphere Small community
Take care to develop in a way that takes care ofour land
Emphasis on single-family residences
Single-family residences only in the valleys
No great development in the river valleys
Look ahead and plan - be a solid and trusting community*
Economy:
Larger/more parks Commuters
Retirement* Cottage industries
Some aquaculture Recreation/tourism
Possibly a planned resort Inns as support service
Job-creating industries Increased medical services/GP/DDS
Services for hikers/divers* Daycare
Visitor information center Rest stop
Boardwalk on beach Service businesses
Golf course Development of local skills
Increase conveniences/large grocery*
Support services for recreation/tourism
Encourage small industries, cottage industries, inns, etc.
More of a commercial center south of town (Black Point Road)
12
Environment:
Status quo Keep environment safe
Enough fish and shellfish Limit roads
Renewable resource management Modest dwellings
Recycling encouraged Natural with single-family only
Timber to restrict land use limitations
Replant two trees for every one removed
Natural limitations of the land will limit what can be done
Protect and preserve air and water quality and natural resources
No greater Federal/State limitations
Natural lim itations of waterfront development
Government and Special Purpose Districts
Jefferson County is governed by a three-member Board of County Commissioners (BOCC), with the
County seat located in Port Townsend. The Commissioners, each of whom represents one of the
three districts, are elected countywide. The Brinnon Area is included in District 3. Through various
boards, departments, and advisory commissions, the BOCC acts as both the legislative and
executive branches of County government. The quasi-judicial function of the BOCC is performed
by a Hearing Examiner. Beginning in the year 2000, Jefferson County adopted a Board/County
Administrator form of government.
Brinnon residents may sit on the Jefferson County Planning Commission. This commission advises
the Board of County Commissioners on planning and community development matters.
Brinnon is included in several special purpose districts. Jefferson County Fire Protection District 4,
serving Brinnon, i supervised by three locally-elected fire commissioners who reside in the
Brinnon area. Brinnon School District 46 is supervised by five elected school board members who
reside in Brinnon.
The Brinnon Cemetery District is governed by a three-member board of elected commissioners and
is supported by a property tax levy. Jefferson County Public Utility District 1 is a water district
serving the county. PUD #1 is governed by three elected commissioners. Jefferson General
Hospital in Port Townsend serves as the county's main medical facility. The Hospital District is
governed by five elected commissioners. The Port of Port Townsend is the only port district in the
county. Managed by three elected Port Commissioners, it is responsible for the operation of the
county airport and four boat harbors and has countywidejurisdiction.
The Jefferson Transit Authority is a countywide special purpose district providing public
transportation throughout Jefferson County, with connections to Kitsap County and the entire
Olympic Peninsula. Approved by the voters in 1980, the transit authority is funded by sales taxes.
The Jefferson County Rural Library serves our rural community with a full-time library in Hadlock
and a weekly Bookmobile service to various locations in Brinnon. The library is governed by a five-
member board of trustees appointed by the Board of County Commissioners.
A three-member local volunteer Flood Board was created in 1996 to work with Jefferson County on
issues of flooding on the Dosewallips and Duckabush rivers.
It is worth noting here that a special lodging tax is levied on Jefferson County accommodations
facilities, as required by the County and collected by the State. A Lodging Tax Advisory
Committee recommends to the BOCC the distribution of monies returned from the State to be used
to advance tourism in unincorporated areas of the county. (A separate Lodging Tax Advisory
Committee serves Port Townsend for the distribution of Port Townsend lodging funds.)
l3
Plan Implementation and Monitoring
Background
In 1965, the Jefferson County Board of Commissioners established the Jefferson County Planning
Commission as a non-paid citizen advisory group. This group was charged to make ongoing
recommendations regarding the overall development of the county, and to offer policy-oriented
recommendations to the Board of County Commissioners.
The Jefferson County Department of Community Development, formerly the Planning Department
and also known as the "Permit Center," provides the Board of County Commissioners and Planning
Commission with administrative and technical planning assistance. The Department of Community
Development also reviews land use and building permit applications submitted by private property
owners and developers whose projects fall within the jurisdiction of County plans, policies, and
ordinances.
The authority to carry on the County planning program is granted by the Washington State
Planning Enabling Act, first adopted by the legislature in 1959, and amended a number of times
since. The Planning Enabling Act governs many aspects of a county comprehensive plan.
A comprehensive plan is defined by the Act as: policies and proposals adopted by the Board of
Board of County Commissioners which serve as: (a) a beginning step in planning for the physical
development of the county; (b) the means for coordinating county programs and services; (c) a
source of reference to aid in developing, correlating, and coordinating official regulations and
controls; and (d) a means for promoting the general welfare.
The original Brinnon community planning process occurred between 1978 through 1982. This effort
resulted in the 1982 Brinnon Community Plan that included maps, tables, and charts, and was
reviewed and approved by Brinnon residents.
A special chapter of the 1982 Jefferson County Comprehensive Plan incorporated the community
development plans. These community plans represent natural, homogeneous communities within
distinct geographic areas to reflect unified interests concerning the growth and development of
each area.
Community-based plans are valuable in a number of different ways: (a) they allow citizens in
various areas of the county a better means of determining for themselves what type and degree of
future growth and development they want in their specific community; (b) they allow the distinct
desires of one county community not to intrude on the wishes or needs of other areas; and (c) they
allow participatory democracy to be exercised by involving as many citizens as possible in
decision-making processes.
In 1991, Jefferson County began conducting public outreach meetings to begin its Growth
Management Act (GMA) comprehensive planning phase. A large number of Brinnon residents
participated, suggesting their desires for Brinnon's future, which were reflected in the eventual
Community Plan of 1995 and the current Subarea Plan.
In 1994, Jefferson County encouraged the citizens of Brinnon to review the existing (1982)
community plan in accordance with the requirements of the State's GMA, make necessary or
desired changes, and submit a revised plan for approval by the Board of County Commissioners.
t4
Beginning January 70, 1994, a volunteer group representing a cross-section of the community
formed a committee and started meeting weekly in an open forum at the Brinnon School. The public
was encouraged to participate, and notified by posters and weekly newspaper calendar entries until
all parts of the 1982 original Brinnon Community Plan had been discussed and, as needed, revised.
The committee analyzed and established or renewed goals, policies and other guidelines to
maintain the rural character of Brinnon, encourage growth under appropriate conditions, and
provide for independence from other County growth management actions that might adversely
affect opportunities for Brinnon residents.
The 1994 committee, assisted as needed by County staff and other specialists (such as in low cost
housing, environmental impacts, or project funding opportunities) performed their task based on
the following three beliefs:
The Brinnon area should remain as a rural, lightly populated community, maintaining
much of its present quality of life and character in coming years;
The guidelines of a development plan are necessary to successfully plan for growth;
Within the bounds of the law, common sense must be applied when regulations fail to
provide appropriate solutions.
Current Effort
The current Jefferson County Comprehensive Plan (CP) was adopted in 1998 and describes the
amendment process and rules for conformance (page ?3). The Jefferson County Community
Planning Guidelines and Comprehensive Plan Revision Process (i.e., "the Blue Book"), created in
the early 1990s as a handbook for community planning prior to the adoption of the GMA-compliant
CP, was used as a guide in the post-1998 CP Brinnon subarea planning process.
In August of 1998, Jefferson County adopted a new Comprehensive Plan (CP) and incorporated
information from community plans rather than include them as special chapters (see page l-8 of the
CP). In reference to a statement in the CP that it intended to revisit the subject of Brinnon
commercial areas, the Board of County Commissioners requested that the Brinnon community form
a community group and create a Brinnon Subarea Plan. With funding from a Community
Development Block Grant, a special consultant was hired by the County to assist in development
and presentation ofthe plan.
Upon adoption, the Brinnon Subarea Plan (SAP) will become a chapter of the Jefferson County
Comprehensive Plan and serve as a road map and tool for future decision-making. It contains clear
and reasonable guidelines for an array of public and private activities and developments,
Wherever the SAP does not propose a difference from or an exception to the countywide plan, no
inconsistencies exist, and the SAP is assumed to be in agreement with the CP. Implementation of
some of the policies of this Subarea Plan will require corresponding amendments to the Unified
Development Code.
The guidelines ofthis Subarea Plan are in the form ofgoals, policies and strategies. A goal sets
direction. A policy is a specific statement that guides decision-making. A strategy is a means of
implementation, which ensures the goal is met. The definitions of goals, policies and strategies are
further explained in the Jefferson County Comprehensive Plan (page 2-2).
The goals, policies and strategies contained in the Brinnon Subarea Plan have evolved after
consideration of a number of important factors:
l5
a
a
l. Resources of the area, such as its people, community facilities and services,
businesses, history, heritage, and natural surroundings.
2. Past, present, and projected growth and development trends
3. Desires and needs of area residents and property owners as expressed in community
planning meetings and community-wide meetings.
4. Consideration of professional planning and community development principles.
Beginning in November of 1999, in twice-monthly meetings the current Subarea Planning Group
members again sought to characterize their vision of Brinnon in the future and developed priorities
to guide the transformation of the 1994-95 Community Plan into the current Subarea Plan. The
following list was established:
a Develop rationale for expanded commercial opportunities (Black Point, Brinnon Flats,
and WaWa Point).
a Identify locations for affordable housing.
a Identify locations for assisted living housing.
a Identify locations for non-polluting light industrial: Brinnon location/other
Identify locations for increased recreational activities
a Expand resource-based industrial activity such as a) sawmills; b) quarries; c) concrete
batch plant; d) aquaculture; e) nurseries ofnative plants and other kinds ofproduce.
Revisit "adjacent to forest" land use criteria/small lot owners
Develop rationale for expanded benefits for home businesses and cottage industries
similar to those permitted in the West End.
Develop promotional activities to attract visitors
GENERAL GOALS AND POUCIES
The following general goals and policies apply to all aspects of community life in the area covered
by this plan:
GOALS:
Gl.0 Maintain and encourage the small town rural atmosphere of the Brinnon area.
Promote, encourage, and reinforce a sense of community identity.
Maintain a balanced community that continues to provide for and encourage a diversity
of activities, interests, and lifestyles.
Protect and enhance the natural environment.
Maintain and encourage economic growth and stability.
G2.0
G3.0
G4.0
Gs.0
t6
a
a
G6.0 Ensure and protect property owners' rights as they pertain to land use, water, minerals,
agriculture use, timber, beaches, and types ofdeeds.
POLICIES:
P1.0 Natural open spaces, agriculture, aquaculture, timber production, recreation, and
residential development should be the principal use of the land adjoining shorelines,
subject to policies and performance standards of the Jefferson County Shoreline Master
Program.
P2.0
P3.0 The Brinnon Flats should continue to develop as the main conmercial and community
center ofthe Brinnon area.
P4.0 Development activities locating in the Brinnon area should be consistent with relevant
policies in this plan,
Implementation
The Brinnon Subarea Plan provides guidance and structure for future activities in the area.
Individuals and groups within the community will partner with regional organizations and County,
State, and Federal government to realize the goals of the Plan. The Jefferson County Department of
Community Development will use the Plan's policies and corresponding measures in the Unified
Development Code (UDC) to review land use and development proposals, in concert with other
applicable regulations from the UDC, Shoreline Master Program, State Environmental Policy Act,
etc. Similarly, other County departments will consult the Plan when working on projects under their
purview, ranging from watershed plans to parks and recreation planning. The successful
implementation of the Brinnon Subarea Plan and the achievement of its vision is a sharedventure
requiring continuing community support and vigilance.
Private actions by individuals and/or local citizen committees may be necessary to protect and
defend the rights of the individual and to enforce the vision of community development written in
this Plan. The integrity and enforcement of the Brinnon Subarea Plan can be assured by the
continuing support of local citizens in cooperation with our elected officials.
Monitoring
This plan and its progress should be reviewed every five years, or as needed, in a coordinated
effort with the citizens of the Brinnon area community, so that as attitudes and conditions change
the Plan can be revised accordingly. This effort is consistent with that described in the
Comprehensive Plan and the Unified Development Code.
t7
Public and private community services should serve the current and anticipated needs of
the community.
Land Use and Rural Element
Rural Character
This Subarea Plan will utilize terms from the Growth Management Act (GMA) repeatedly in order to
discuss and ensure consistency between the recommendations of this Subarea Plan and the
provisions of the Act. Therefore, some definitions from the Act are important to understand and
will form the basis of better understanding the rural land issues in Brinnon presented in this Plan.
These definitions and the provisions of the Act relating lo "limited areas of more inlensive rural
development" (LAMIRDs) [at RCW 36.70A.070(5)(d)] are central to understanding the framework
within which rural land use activities can be managed under the GMA.
The Growth Management Act [at RCW 36.704.030] includes the following definitions that are of
particular relevance to this Subarea Plan:
(14)"'Rural character' refers to lhe palterns of land use and developmenl established
by a county in lhe rural element of its comprehensive plan:
(a) ln which open space, the natural landscape, and vegetation predominale over
the built environment;
(b) That foster traditional rural lifestyles, rural-based economies, and
opportunities lo bolh live andwork in rural areas;
(c) Thal provide visual landscapes lhal are traditionallyfound in rural areas and
communilies;
(d) Thatarecompatiblewiththeuseofthelandbywildlifeandforfishandwildlife
hobitat;
(e) That reduce lhe inappropriate conversion ofundeveloped land inlo sprawling,
I ow -de nsity deve lopme nt ;
(n That generally do nol require the extension of urban goternnental services;
and
(g) That are consistent with the protection of natural surface waler flows and
groundwater and surface water recharge and discharge areas,"
(15)"'Rural development'refers to development outside the urban growth area and
outside agricultural, forest, and mineral resource lands designaled pursuant to
RCW 36.70A.170. Rural development can consist of a variety of uses and
residential densities, including clustered residential developmenl, al levels thal are
consistent with the preservation of rural character and the requirements of the rural
element. Rural development does not refer to agriculture or foreslry actiyities lhat
may be conducted in rural areas."
The discussion of "limited areas of more intensive rural development" or LAMIRDs will occupy
some portion of this Subarea Plan. These are typically areas of commercial, industrial or other non-
residential development in rural areas. It is important to understand the context and statutory
requirements within which the County and the Brinnon Subarea Planning Group must work to
implement these types of areas while still meeting the requirements of the Act. The Growth
Management Act [at RCW 36.70A.070(5Xd)] includes the following selected provisions regarding
the designation of LAMIRDs:
(d) Limited areas of more intensive rural development. Subject to the requiremenls of
this subsection and except as otherwise specifically provided in this subsection
(5)(d), the rural element may allow /or limited areas of more intensive rural
18
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Rural Residential Land Use
The area's isolated location, natural resources and development constraints lave molded and
maintained Brinnon as a ruralo lightly populated community. After forest resource lands, rural
residential land uses account for the predominant land use pattern in the Brinnon Planning Area
(see Figure BR-3). Residential development is most concentrated along the Hood Canal shoreline
and the major river valleys of the Dosewallips and the Duckabush. Residential development is
comprised of a mix of year round residents and seasonal (summer) homes that take advantage of
the numerous recreational amenities offered in the area and the aesthetic saltwater shoreline and
mountain setting.
Early residential development in the Brinnon Flats
The Jefferson County Comprehensive Plan (CP) projected Brinnon's population to grow by
approximately 644 persons over the 20-year period from 1996-2016. According to the CP, Brinnon
contained a population of 1,299 in 1996 that accounted for 5.0% ofthe county's total population.
The CP projected a 2016 population for Brinnon of 1,943 would, according to CP projections, result
in Brinnon accounting for approximately 4.7o/o of the county's total population in 2016. In other
words, Brinnon is expected to keep growing in the future but at a slower rate in relation to growth
in the rest of the county-especially the northem part of the county. The northern area of the
county, including Port Townsend, is expected to receive the lion's share of future growth.
The new 2000 US Census offered an opportunity to see how Brinnon had changed over the last
decade. The Census reported a total year 2000 population of 1,199 for the area that approximates
the Brinnon Planning Area. For comparison, the 1990 US Census reported a total population of
1,049 for the zip code 98320-which includes Brinnon. However, straight comparisons between the
total population of Brinnon in 1990 and 2000 are problematic due to changes in the Census
geography between the two Censuses. In fact, Census tract boundary changes between 1990 and
2000 and designation of a new Brinnon Census Designated Place (CDP) h 2000 make straight
comparison between the 1990 Census "Brinnon" population and that of the 2000 Census extremely
difficult. In addition, many of the detailed population, housing and socio-economic data for sub-
county areas and individual Census tracts were not yet released as ofthe date ofthis report. In
light of this, building permit data from Jefferson County offers the "best available" information from
which to assess how Brinnon has been growing.
20
To gauge how Brinnon has grown in the five years sinceadoptionof theCP,buildingpermitdata
for the planning area was collected and analyzed for the period 1995-2000. The data reflect the
dominance of residential development in the local Brinnon economy. In both sheer number of
permits issued and total valuation (i.e., investment), new residential development far exceeds the
amount of commercial/industrial activity over the last five years. Indeed, new residential
development activity accounted for more than eight times as much investment in the Brinnon area
as new commercial/industrial development over the past five years. The disparity between
residential and commercial development in Brinnon is discussed in more detail in the Rural
Commercial section of the Subarea Plan.
Brinnon 1995-2000 Total New Oevelopment Construction Value
$9,000,000.00
$8,000,000.00
$7,000,000.00
$6,000,000.00
$5,000,000.00
$4,000,000.00
$3,000,000.00
$2,000,000.00
$1,000,000.00
6-
Private
Commercial/lndustrial
Buildings
PublicBuildings ResidentialUnits
Type of Development
The Comprehensive Plan (CP) projected that the Brinnon Planning Area would grow at about a
2.3%o annual average growth rate over the course of the next 20 years--compared witha2.5%orate
for the county as a whole. One way to track population growth is to convert the residential building
permits issued into a theoretical population. In this case, the building permits were converted to a
theoretical net population gain by:
Totaling all final new residential building permits (mobile/manufactured and single-
family site-built) issued from 1995-2000 in the Planning Area (l l5) and subtracting out
the number of residential units demolished during the same time period (5);
Assuming a discount factor (10%) to account for unbuilt, unfinished or otherwise
unoccupied units;
Assuming aTYovacancy rate (2000 US Census); and
Applying a 1.9 persons per household estimate (2000 US Census) to the remaining,
presumably occupied units
This exercise yields a resulting theoretical net population groMh of approximately 175 persons
over the last five years (if we assume all of the new units were occupied by year-round residents).
This is consistent with the population growth projected in the CP for Brinnon. However, based on
a growing local real estate trend towards sales of seasonal homes-supported by an increasing
part-time and permanent retired population-it is quite likely that a significant portion of these new
units are in fact intended for seasonal---and not year-round occupation. Ifthat is the case then it is
also quite likely that the permanent population of the planning area is actually growing slower than
c:I
E
.s
g
ts
Ec
a
a
a
a
21
projected in the CP. What is also not known is how many permanent residents left the area since
1990 to pursue better economic opportunities in areas closer to major employment centers.
Of particular interest to local housing issues is the comparison between the construction of new
site-built single-family homes and the placement of new mobile and manufactured homes in
Brinnon during the last five years. As shown in the following graphics, the number of permits
issued for both new mobile/manufactured homes and single-family residences in the past five years
is almost identical (56 versus 59, respectively). However, the difference in construction value
among the same housing types is significant. Mobile and manufactured homes combined
accounted for only one-third the total value of the site-built single-family homes built during the
same time period. This underscores the need for affordable housing in the community and the
relatively low household income levels experienced by many residents. [This is discussed in more
detail in the Economic Development Element of this Subarea Plan.l
Brinnon 1995-2000 New Residential Units Permitted
Manufactured Home l\4obile Home Site-Built Single Family
Residential
Residential Development Type
Brinnon 1995-2000 N6w Residential DEvelopment Construction Value
$7,000,000.00
$6,000,000.00
$5,000,000.00
$4,000,000.00
$3,000,000.00
$2,000,000.00
$1,000,000.00
$.
Manufactured Home Mobile Home Site-Built Single
Family Residential
Type of Residential Development
u:
l:
E
E
ciL
it
F
L
=E
cc
E
=
cu
70
60
50
40
30
20
10
0
22
The very high ratio of mobile home to site-built single-family unit is indicative of the need for
affordable housing in Brinnon and how that need is currently being met. While Census 2000
household income levels have not been released as of the date of this writing, information from the
Brinnon School Board and other sources indicate that household income levels in Brinnon are, on
average, the lowest in the county. Indeed, testimony from School Board members indicates that the
Brinnon School District ranks as the third lowest district in the state in poverty level (J. Baisch).
Board members indicated that as many as 40Yo of households with children attending the Brinnon
School may have incomes below the poverty level (P. Rodgers). Again, data from the 2000 Census
regarding social and economic characteristics of the population has not yet been released so the
School Board assessments represent the best available and most current socio-economic data, For
comparison purposes, the 1990 Census reported that22yo ofthe Brinnon population fell below the
poverty levef-a rate almost double that of the county as a whole. The apparent increase in
poverty status for Brinnon households between 1990 and 2000 is a disturbing trend. It suggests a
need for expanded economic development opportunities and measures to ensure the availability of
affordable housing.
When all of the data from the 2000 Census is released, information relevant to the Brinnon Planning
Area will appear in the Appendix of this Subarea Plan. An important consideration in monitoring
and updating the Subarea Plan is the on-going gathering of available data to help describe local
circumstances. The context in which this Plan is created is but a "snapshot in time,"
Some ofthe data released from the 2000 Census does shed some light on the local population and
housing characteristics. According to the 2000 Census, the Brinnon CDP (i.e., the most
concentrated area ofpopulation in the larger Brinnon Planning Area) contained 912 housing units.
Of those, less than half (a5%) were occupied on April 1, 2000. The majority (55%) of housing units
in Brinnon are vacant. Of the total 499 vacant units in 2000, the vast majority (88%) are held for
seasonal or recreational use. In 2000, compared with the total housing stock, almost half (48%) of
the housing units in Brinnon are for seasonal (summer) use. Even many of those are only used
occasionally in the summer (e.g., for weekends), typically by Seattle area residents. By comparison,
estimates based on the 1990 Census indicated that only about one-third of the housing units were
of a seasonal nature. This represents a significant shift away from a year round owner-occupied
housing stock. These figures highlight the transient nature of the local housing market. Although
the7.2o/o homeowner (i.e., owner-occupied year round) vacancy rate indicated in the Census is at
the high end ofa typical local housing market vacancy rate range.
Housing tenure among year round occupied units in Brinnon is characterized by predominantly
owner-occupied households. Year round owner-occupied units accounted for 88% ofall occupied
units while only 72o/o were renter-occupied. The dearth of locally available (and affurdable)rental
units (as well as employment opportunities) for young adults and families is also making it more
difficult for young members of the community to stay in the community. As younger members of
the community move away to seek better opportunities, the average age of Brinnon residents is
rising and the average household size is shrinking. The average household size is 1.9 persons,
significantly below the countywide average of 2.2 persons per household. The median age of
Brinnon residents is 58, compared to 47 countywide.
The Brinnon populace is an increasingly aging one. Fifty-five percent ofthe total number ofyear
round residents are age 55 years and older and households with individuals 65 years and over
account for almost one-halfofall households. This characteristic is an especially significantoneas
both owner-occupied and seasonally occupied units predominantly house retirees. Older residents
will increasingly require specialized services, including health care and other human services and
public transit, in addition to access to local retail needs and commercial services. Brinnon's
isolation and 45-mile commute to the closest commercial services center (Port Townsend Urban
Growth Area) will lead to greater demand for more localized services. The community has identified
the need for assisted living facilities as one measure of this trend.
24
The aging of the local population, lack of local access to a more diversified range of commercial and
human services and growing shift towards seasonal or occasional residents is a concern for many
members of the community. At a time when access to affordable housing is paramount to many
residents, the median home pice in the area is rising al a rale significantly higher than local,
countywide and regional wage rates. The beautiful and plentiful saltwater shoreline is a prime draw
for seasonal residential development and has significantly raised average home and land values
throughout Brinnon. The new 5-acre minimum lot size adopted in the CP precludes many
opportunities for creating more affordable housing for lower income residents in the rural area
outside of the rural village center of Brinnon and the RVC itself is sized so small so as to allow
negligible new residential development that might be affordable to local residents. [More
discussion related to the development constraints in the Brinnon RVC is found in that section. See
also the Housing Element for further discussion of affordable housing.l
In order that the community maintains much of its present character through the years to come, yet
can still respond to the challenges of affordable housing, the following goals and policies shall be
applied to planning/permitting activities for future housing and residential development.
GOALS, POLICIES AND STRATEGIES:
GOAL:
G1.0 Ensure residential development is in context with the rural landscape.
POLICIES:
Pl.1 Residential development should be sensitive to areas of natural limitations. Homes shall
be sited appropriately with respect to natural features and natural hazard areas.
Pt.2 Groundwater resources, ground water recharge areas, and shorelines, including rivers and
streams, must be protected from residential wastes such as septic tank effluent.
Pl.3 Residential development may not take place on sensitive natural areas such as tidelands
and tidal marshes.
Pl.4 Residential development within the floodplain of rivers and streams must be designed and
maintained so as not to present ahazard to its occupants or downstream properties, nor
have a detrimental effect on streamside habitats. In no case may construction take place in
river line floodways.
Pl.5 Consideration should be given to orienting lots and home sites so homes can benefit from
energy conservation measures and alternative energy sources such as solar energy.
Pl.6 Innovative residential development with respect to architectural and structural design,
utility systems, and site layout is encouraged.
Pl.7 Codes and standards should contain sufficient flexibility to permit innovation and
experimentation, as well as affordable housing.
Pl.8 Upgrading and renovation ofexisting deteriorating housing units are encouraged
25
Rural Commercial Land Use
Commercial, light industrial, professional, and business activities are all vital to the economic well
being of the community, providing all types of goods and services as well as opportunities for
employment and livelihood for the resident rural population. The most concentrated areas of rural
commercial land use activity are generally located in three small areas:
Brinnon Flats, the main commercial center, located generally between the
Dosewallips River and the Dosewallips River Road and extending from the east side
of Highway 101 west to Schoolhouse Road.
WaWa Point, where Bee Mill Road and Highway 101 intersect (north approximately
two miles from Brinnon Flats); and
Black Point, at the intersection of Highway 101 and Black Point Road (south
approximately three miles from the Brinnon Flats).
The Jefferson County Comprehensive Plan (CP), however, only designates portions of two of these
areas for commercial zoning in Brinnon: I ) a portion of the Brinnon Flats is designated as a Rural
Village Center (RVC); and 2) the existing Hjelvik's Store portion of the WaWa Point area (but not
including the Cove RV Park and Store) designated as a Convenience Crossroads (CC). Both the
Brinnon RVC and WaWa Point CC are designated as Limited Areas of More Intensive Rural
Development (LAMIRDs) under the CP as authorized in the GMA under the provisions of RCW
36.70A.070(5Xd)(i). The Brinnon RVC serves as the main commercial center for the community and
provides the broadest range of services. WaWa Point, including the Cove RV Park and Store and
Hjelvik's General Store, serve more seasonal visitors and tourists than local residents.
Black Point existing businesses include the Pleasant Harbor Marina and the former Old NACO
West RV Park and Campground and associated conmercial buildings and uses as well as Mt.
Jupiter Auto Repair and Coldwell Banker Settlers Real Estate office on Highway l0l. However,
Black Point was not designated as a LAMIRD under the existing CP. It is designated as a series of
rural residential zones. The existing businesses operate as legal nonconforming businesses under
the provisions of the CP and the UDC. This limits their expansion and the potential for new "infill"
development in the Black Point area.
In addition, many isolated small-scale conmercial/industrial activities are dispersed throughout the
community in rural residential areas based on the traditional and historic development pattem of
the community. Many of these businesses operate as home-based business, cottage industries or
small-scale tourist and recreational activities. [See discussion ofhistorical business activity in the
Economic Development Element.]
All rural commercial areas designated in the Comprehensive Plan (CP) were established as "interim"
commercial districts. The intent of the CP is to revisit and establish "final" rural commercial area
boundaries and designations upon completion of the Tri-Area/Glen Cove Special Study. The
"Special Study" was intended to determine the need for and allocation of future
commercial/industrial lands and potential development of urban growth areas in the County. [See
LNP 1.4 and LNG 5.0 and accompanying policies.l The purpose of this section of the Subarea Plan
is to make recommendation to the County----consistent with the requirements of the aforementioned
CP goals and policies-regarding designation of "final" rural commercial/ industrial areas in the
Brinnon Planning Area. This is in compliance with the direction given in the CP under LNP 4.8.
Adoption of this Subarea Plan will effectively redraw the Brinnon Rural Village Center boundary
and create a Small-scale Recreation and Tourist Overlay District at WaWa Point.
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GOALS, POLICTES AND STRATEGIES:
The following goals and policies are intended to encourage rural commercial use consistent with
the goals of this plan:
GOAL:
Gr.0 Ensure that sufficient buildable land is available to support a viable business community
and services for the residents and visitors in the Brinnon area.
POLICIES:
Pl.l Define areas for commercial uses and economic development activity in proper locations
that have sufficient land mass to support future business opportunities.
GOAL:
G2.0 Ensure that commercial development related to the natural resources and recreational
opportunities of the area is consistent with the general goals as set forth in this plan and
provides opportunity for local employment.
POLICIES:
Pz.l Define small-scale recreational and tourist areas on lots (or portions thereof) that rely on a
rural location and setting and have sufficient land mass to support future business
opportunities.
GOAL:
G3.0 Ensure that commercial development is located, designed, constructed, and operated in a
desirable and well-planned manner.
POLICIES:
P3.1 Commercial structures should allow for a mixture of uses whenever possible. An example
would be a commercial structure containing retail space, professional offices, and
residential units (except for the SRT Overlay District).
P3.2 Commercial developments should provide adequate buffering or screening when adjacent
to incompatible or dissimilar uses such as residential areas.
P3.3 Landscaping of commercial sites using native species and non-invasive plantings is
encouraged, particularly along public roads and within parking areas.
P3.4 Driveway access from ommercial developments onto major roads should be minimized;
access should follow the policies of the Transporlation section of this plan.
P3.5 Commercial developments should provide parking and off-street loading areas sufficient
to serve the size and type of commercial activity. Whenever practical, parking and off-
street loading areas should be used in common by adjoining businesses.
P3.6 Commercial activities should not adversely affect the use or value of adjacent properties
27
Rural Commercial - Brinnon Rural Village Center (RVC)
Background
The "interim" Brinnon RVC boundary adopted in the CP comprises approximately 34 acres of
mixed-use commercial, residential and light manufacturing activities. Almost all of the area of the
Brinnon Ftats within the 1998 CP RVC boundary is also located within the 100-year floodplain of
the Lower Dosewallips River. The 1998 RVC area includes a mix of residential and the following
commercial activities:
o Linda's Gifts and Video Store
r Brinnon General Store
o McKay's Shrimp Gear. Johnston Real Estate and Jefferson County Escrowr Brinnon Mini-Storage and Johnston's Well Drilling
o Brinnon Flats B & B
r Halfway House Restaurant. Angela's Crafts Corner
e US Post Officeo Brinnon Booster Clubo Severn's Auto Body and Paint Shop
o Brinnon Liquor Store
o Brinnon Automotive
. Whitney Gardens and Nursery, LLCo Flock-ln Trailer Park
The "interim" RVC for Brinnon is approximately 34 acres in size. The existing land use pattern is
shown in Figure BR-4. Most of the RVC is already developed and allows very limited infill
development opportunities. Less than a third ofthe area is vacant (l I gross acres). Ofthat amount,
more than half (6.5 acres) is comprised of one undeveloped parcel under single ownership. The
remaining vacant areas are in very small lots (one-half acre or less), most of which are located in the
residential area of the village. In short, there is almost no significant land available for new
commercial development activity in Brinnon. Development inside the RVC is further constrained by
the presence of the 100-year floodplain and the lack of a public sewer and water system. If "real
world" commercial real estate market factors were taken into consideration-if a potential
development needed to assemble a parcel more than five acres in size for a new commercial activity
and the owner of that one property in Brinnon were unwilling or unable to sell-there would
essentially be no land available for new economic development. Such land requirements are
common-even essentia!-in an area like Brinnon where the lack of public water and wastewater
treatment systems means that larger lot sizes are necessary to accommodate water wells and on-site
septic systems and drainfields and still meet minimum setback and County health standards.
Both the presence of the 1O0-year floodplain and the "interim" tightline boundary are significant
impediments to economic development in Brinnon. From an environmental protection and public
safety standpoint, it would be most desirable to locate new commercial/residential mixed use
development outside of the floodplain. However, the anti-low density sprawl and logical outer
boundary requirements of the LAMIRD provisions of the GMA make it nearly impossible to do so
[RCW 36.70A.070(5)(d)]. The result is that the Brinnon RVC has been placed in an extremely
difficult situation.
Meanwhile local economic development activity is stagnating. According to building permit data
collated by the County and shown in the following graphic, in the last five years (1995-2000) the
value of new commercial/industrial construction amounted to only 4o/o of the total new
development value in the entire Planning Area. Of that 4o/o, more than half was accounted for by
28
improvements to the Boy Scout facilities at Camp Parsons and for the rebuilding of exisllrg storm-
damaged buildings at Whitney Gardens and Nursery. In other words, less than 2Yo of the total
value of new construction in the entire Brinnon Planning Area during the past five years was
accounted for by new for-profit private commercial activity. That 2%o was accounted for by one
project-a mini-storage building in the Brinnon RVC-that created no new permanent jobs. When
viewed in combination with the only other designated rural commercial LAMIRD in Brinnon-
WaWa Point-no new perrnanent jobs were created from new private commercial development
activity allowed in any Brinnon LAMIRDs during the past five years. This speaks to the economic
stagnation experienced in the community.
Brinnon 1995-2000 Total New Development Construction Value by
Type (as a % of Total)
Commercial/
lndustrial
4%blic
13%
Residential
83%
This situation illustrates the failure of the existing Comprehensive Plan to adequately protect the
"rural character" of Brinnon. The GMA [at RCW 36.704.030(14)] requires the County-in the
patterns of land use and development established in its Comprehensive Plan-to "foster
tradilional rural lifestyles, rural-based economies, and opportunities to both live and work in
rural areas. " In combination with the 10O-year floodplain designation for the Brinnon Flats, the
"interim" RVC boundary represents a chokehold on future economic development in Brinnon and
fails to live up to the requirements of RCW 36.70A.030(l4Xb). In addition, the "interim" RVC
boundary fails to meet the local Comprehensive Plan requirements for "logical outer boundaries" of
LAMIRDs expressed in LNP 5.2.3-specifically the requirements of subsection "e." to "[pJrovide
employment opportunities for local residents, in particular in areas of insufficient economic
growth or economic decline." The existing RVC boundary does not create sufficient employment
opportunities to foster the community's rural-based economy. See further discussion in the
Economic Development Element. The shift to home-based businesses, cottage industries and
small-scale tourist and recreational uses outlined in the Comprehensive Plan is a good economic
development strategy for rural areas, but it cannot be the only one for Brinnon to survive.
Vision
The residents of Brinnon have a vision that the rural commercial designation should be expanded
to include existing commercial uses excluded from the "interim" RVC and to allow new development
opportunities [consistent with requirements of RCW 36.704.070(5xd)(i) and (d)(iv)] thereby
contributing to the vitality of the community and fostering rural-based economic development, The
proposed "final" RVC boundary approximately doubles the existing 34-acre designation and adds
another 32 acres to the boundary (after subtracting features such as roads). An additional 21.6
29
acres is re-designated as Light Industrial, consisting of the existing gravel pit north of Dosewallips
Road and adjacent upland property. Most of this new area is already characterized by the built
environment but would still allow for some limited new development and infill on existing parcels
consistent with the requirements of the GMA.
This proposed "final" RVC boundary (shown in Figure BR-6) extends westward from the current
southern boundary to Schoolhouse Road (to include the existing residential development),
northward to Dosewallips Road, and then eastward along the Dosewallips Road. On the east the
boundary is Highway 101 northward to encompass the existing developed properties (including the
Brinnon Motel and Senior Center). This designation includes the area east of Highway l0l directly
north from the existing boundary up to Walcott Slough.
The following are examples of low-inpact businesses that could be located in the Lower
Dosewallips, Brinnon Flats area:
a
a
Grocery and hardware stores to serve more ofthe tourist and seasonal residents
Light assembly to take advantage of the available labor and relatively lower rural
wage level
Medical clinic to serve the aging and growing retirement population
Recreational equipment, supplies, and apparel to serve the campers, backpackers,
hunters and fishermen who come to the National Forest/National Park
Water bottling plant with a local area name to promote one of the great benefits of the
area-our water.
The areas proposed to be included in the "final" RVC boundary were analyzed for consistency with
the "logical outer boundary" requirements of the GMA [RCW 36.70A.070(5)(dXiv]. The Western
Washington Growth Management Hearings Board stated in Durland, et.al, v. San Juan County
that the "built environment" as it applies to RCW 36.70A.070(5)(d) "means only those facilities
which are 'manmade,'whether they are above or below ground. " This definition would seem to
include the recognition of infrastructure improvements made on properties such as needed to
provide for transportation access, utilities and water and wastewater treatment. Figure BR-5 shows
the interim RVC boundary and the Subarea Plan RVC boundary and Light Industrial district over an
aerial photograph ofthe area taken July 10, 1990. The purpose ofFigure BR-5 is to contribute to a
"built environment" analysis conducted by the authors ofthis Subarea Plan. Using the Jefferson
County Assessor's Office parcel files, staff used a benchmark of "improvements" to the land (i,e.,
structures) and "year built" for structures to begin to classify and categorize the properties as
either built or unbuilt as ofJuly l, 1990. In cases where the Assessor's database did not provide
the year of construction for structures on the parcel, Jefferson County building permit files were
reviewed to find the date. For the purpose of this "built environment" analysis, the term
"structures" included houses, mobile homes and pads, sheds, garages, barns, outbuildings or
commercial buitdings. To complete the analysis, County staff and the Brinnon Subarea Planning
Group considered other characteristics of individual parcels, including the presence of above- and
below-ground infrastructure.
The proposed re-designation in the existing Brinnon Flats area is bounded by the Dosewallips
River on the south, Schoolhouse Road on the west, the Dosewallips Road to the north, and
Highway 101 to the east, including highway frontage properties north from the existing boundary
up to Walcott Sough. This area comprises approximately 32 acres (after subtracting features such
as roads). Only four parcels totaling approximately six acres within this area are currently vacant or
entirely undeveloped, Almost all of this area was originally zoned "general commercial" in 1994
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when the County began its GMA planning. Almost all of the parcels within this area exhibit
characteristics of the built environment, most of which are already developed for residential or
commercial uses, but do contain potential for "infill" and redevelopment to more intensive use.
These parcels were identified in the Tri-Area/Glen Cove Special Study Phase II, Land Use
lnventory Report (prepared by Terralogic, Inc.), as o'planned commercial and manufacturing
analysis areas." These areas were included in the inventory of potential commercial/industrial lands
for the county to consider for "final" LAMIRD designation (following up on the "interim" or
"tightline" logical outer boundary designations in the initial adoption of the CP) following
completion of the Tri-Area/Glen Cove Special Study. Almost all of these parcels were classified as
either "occupied," meaning fully developed, or as "further developable land" in the Terralogic
report, meaning that atthough already characterized by the built environment on portions of the
parcel, there was sufficient area remaining to accommodate new (infill) development. Only one
logical outer boundary parcel was identified as vacant (and not delineated by the built
environment) along the Dosewallips Road. However, this parcel is currently "for sale" and qualifies
as limited infill development.
The proposed Light Industrial district north of Dosewallips Road, on a portion of the "Upper
Flats," would include the gravel pit and the Boling property. This is the only area outside of the
existing 100-year floodplain that has both direct access to Highway l0l and historic use for non-
residential development. The gravel pit (comprised of two parcels totaling 5 acres-a 3.9-acre piece
owned by the Boling family and a 0.8-acre lot owned by the Washington Department of Natural
Resources) is essentially a resource-based industrial use with occasional excavation and truck
hauling operations and machinery storage. It did not register as a "built environment" parcel based
on the criteria used to screen the Assessor's database due to the lack ofany permanent structures
on the parcel. However, it clearly has current and historic (i.e., pre-July l, 1990) man-made activities
and alterations on the property. The upperBoling property (approximately l7 acres) comprises the
largest parcel in single ownership in the Brinnon Flats area that has a current history of industrial
land use. The property is cleared and graded and has housed a sawmill and other industrial
operations over the years. An existing house and outbuildings are present on the property. Its
location across Dosewallips Road from the Flats area and rise in elevation make it a very suitable
area for potential manufacturing or light industrial uses. It could also provide a location outside of
the floodplain for a future wastewater treatment facility and/or a public water system that could
serve the entire Brinnon Flats area. In total, the Light Industrial district includes 21.6 acres.
The Brinnon Subarea Planning Group considered and reviewed several other areas for inclusion
within an expanded "final" RVC for Brinnon. In spite of their desire to include these areas within a
new RVC boundary, therc were consistency issues associated with satisfying the GMA
requirements for "prevention of low density sprawl" and "logical outer boundaries" in these areas
that made consistency with the LAMIRD provisions of the GMA problematic.
One alternative that raas considered was to expand the RVC to include the entire "Upper Flats"
bluff area above and immediately north of the Brinnon School and Dosewallips Road. This area
contains a mix of existing residential and non-residential uses. There are several businesses
operating in the Upper Flats area, including Bud's Excavating, Brinnon Cemetery, Lucky's Trailer
Park, Mountain Electric, and Frank's Storage. Most of these businesses operate as either home-
based businesses, cottage industries or were established prior to zoning in the county.
Nevertheless the area retains a predominantly rural residential character. The area was not zoned
commercial at any previous time in history nor was it considered or did it qualify for inclusion in the
Terralogic Report as a "planned commercial and manufacturing analysis area." In total, including
the gravel pit and Boling property, and extending westward to the BPA power lines, this area would
have increased the size ofthe RVC to more than 200 acres and could have designated as much as
five times more new land for more intensive commercial development than presently exists or is
allowed under the 34-acre "interim" RVC boundary. This would likely not qualifr as allowing
31
"limited" development of undeveloped lands under the logical outer boundary requirements of
RCW 36.704.070(sXd)(iv).
The other alternative considered was to include the area one-parcel-deep immediately westof and
contiguous to Schoolhouse Road that was excluded from the "interim" RVC boundary. This area is
anchored by the new Fire Station (built after 1990) on the south and the Brinnon School (built pre-
1990) on the north. There is a limited amount of intervening vacant and further developable
residential land between the two public buildings. However, due to the fact that both the school
and the fire station are essential public facilities (and do not require a LAMIRD designation for
expansion or for provision of potential future sewer or water facilities) and there is mostly
undeveloped area in between, the area was not included in the recommended "final" RVC
boundary.
Future Objectives
As the Tri-Area/Glen Cove "Special Study" was completed December 3, 2001, we urge the BOCC to
redraw the "final" Brinnon RVC boundary and create the Light Industrial district consistent with
the recommendations of this Subarea Plan and through adoption of same. In addition, the County
should continue to work with its legislative delegation to promote revisions to the Growth
Management Act that would allow for the expansion of the Brinnon RVC and LAMIRD activities to
areas outside of the 100-year floodplain. Furthermore, the Brinnon Flood Board should act with
urgency to work with the County and the Federal Emergency Management Agency (FEMA) to re-
assess the extent of the 10O-year floodplain on the Lower Dosewallips River. Finally, the County
should coordinate with the US Department of Agriculture-Rural Development program, Economic
Development Assistance, and other agencies to pursue funding opportunities for the planning and
design of a public water and/or wastewater treatment system for the village area.
GOALS, POLICIES AND STRATEGIES:
GOAL:
Gl.0 Enhance opportunity in and near the Brinnon Flats area by promoting mixed-use and light
industrial development that supports the "hamlet" character ofthe Brinnon center.
POLICIES:
Pt.l Redefine the Brinnon RVC to include the existing boundaries and other properties,
encompassing the area from Highway l0l westerly along the Dosewallips River to
Schoolhouse Road, north to the Dosewallips Road, east to Highway l0l, south from the
Dosewallips Road to the point of beginning. This designation includes the area east of
Highway l0l directly north from the existing boundary up to Walcott Slough. This
expanded logical outer boundary increases the 1998 "interim" RVC area by approximately
32 net acres. Adoption of the Brinnon Subarea Plan by the BOCC effectively replaces the
Brinnon RVC boundary as depicted on page 3-38 of the CP with the boundary as depicted
in Figure BR-6 of this Subarea Plan.
Pt.2 Within five (5) years, the Brinnon community will have developed a plan, including
funding sources, for an enhanced community water system and sewage treatment system.
Pl.3 Designate the 21.6 acres depicted in Figure BR-6 as Light Industrial (LI) through adoption
ofthis Subarea Plan.
GOAL:
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G2.0 Coordinate with the Brinnon Flood Board, Jefferson County, and FEMA Region 10 to
pursue update of the Flood Insurance Rate Map (FIRM) for the Lower Dosewallips River
floodplain that affects the Brinnon Flats and the RVC.
POLICIES:
Pz.l Within one (1) year, the Brinnon Area Flood Control Board shall develop the rationale for
why the designation of the 100-year floodplain should be revisited and initiate contact
with the affected agencies to pursue an update to the FIRM for the Brinnon Flats.
Rural Commercial - WaWa Point Convenience Crossroads
The WaWa Point neighborhood includes all the land east of US Highway 101 and south of the
Camp Parsons Boy Scout Camp to include both the Right Smart Cove and the Jackson Cove
residential areas.
The major access road to WaWa Point is the WaWa Point Road. A service frontage road known as
Hjelvik's Road exists east of and parallel to US Highway l0l and serves Hjelvik's General Store and
boat launch. The 4-acre area comprising the existing Hjelvik's General Store is presently the only
portion of WaWa Point designated "interim" Convenience Crossroads (CC) in the Comprehensive
Plan. The Bee Mill Road is approximately three miles long and serves the Point Whitney Shellfish
Lab and residential area, Camp Parsons Boy Scout Camp and the Pulali Point residential area. At
the intersection of Bee Mill Road and US Highway l0l, is the long-standing Cove Park Store and
RV Park.
History
According to Ida and Vern Bailey's Scrapbook of Brinnon History, l997,Ihe first recreational
development at WaWa Point was known as the Olympiad. It originated in September 1926 and was
composed as a 167-acre tract. In 1929 the owners built l6 cabins and in 1930 added l3 more. The
cabins were rented for recreational use with some cabins occupied year round. There was also a
wood mill on the property. In the early 1940s they purchased 33 acres of tidelands adjoining the
cabin area. Then, in 1944the original l5-year lease owned by the Pacific Wilderness Association
expired. After some negotiation the association renamed itself the Olympiad Park Association, and
exchanged the tidelands for title to l4 acres and the main building plus one cabin and a dance hall.
The main building included the dining room, store and living quarters. The remaining property was
later subdivided and sold as individual lots to private citizens. For the past fifty years, vacation
homes and year-around residences have occupied the mouth of Jackson Cove up to the
boundaries of land owned by Camp Parsons.
Over the years since World War II, the site contained a number of different uses, including a gas
station (the tanks were removed in 1996), a restaurant (until 1974), and a crab and shrimp pot
manufacturing operation (since 1975). The primary use of the main building and surrounding
Olympiad area, however, became known as the Cove RV Park. The park presently contains
approximately 30 sites and has been operated by two different owners since 1974. It serves
seasonal visitors whose stays are limited. The main building is a store, primarily serving guests,
that sells items such as shrimp pots, fishing gear, and propane and also houses the office and
laundry for the park. The current owners added an air station for recreational scuba divers and a
portable espresso stand in recent years.
The parcel immediately adjacent to the Cove RV Park, across the Bee Mill Road to the south,
contained the dance hall associated with Olympiad Park as well as a home. After Olympiad Park
was subdivided, this parcel was sold to the new owner Maury Anderson in 1950. The dance hall,
apparently, was torn down sometime before 1950. The upland parcel was partially logged and used
for a cattle and horse pasture. The remaining home, on the upland portion of the parcel closest to
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Highway l0l (abutting the access road-Hjelvik's Road), was used as a residence until 1987 when it
was vacated. In 1989, it was donated to the Fire District for training purposes and destroyed.
Today the property is used for occasional woodcutting. Mr. Anderson retains a cabin on the
shoreline end of the property on Dabob Bay near the mouth of Marple Creek. Hood Canal Seafood
has leased the tidelands here for the past 25 years for commercial oyster harvesting. The upland
end of the parcel-across Bee Mill Road from the Cove RV Park-remains cleared, but currently
has working septic and well with water service to the property.
All of WaWa Point, from the east side of WaWa Point Road to the shoreline, is subdivided into
small residential parcels. Some contain homes for year-around residents that are mostly retirees,
while others serve as vacation homes.
Hjelvik's General Store presently resides on a 24-aue tract of land south of the WaWa Point Road
to Right Smart Cove. It is owned and operated by Mr. Eivind Hjelvik and his family. Eivind's mother
and sister-'oMa" and Nancy Hjelvik-operated a small "old-time" store until it was destroyed by
fire in 1974. Following the fire, the store was rebuilt to its current size. Gas pumps and propane were
added for a short time. The Store sits on a much larger parcel most of which is used as a pasture.
The pastureland-which comprises approximately 20 acres of the total 24-acre parcel---was fenced
and irrigated and now contains cattle, horses, and geese. Immediately south and contiguous to the
Store is another 6.5-acre parcel owned by Hjelvik. It extends to the shoreline of Right Smart Cove
and includes a concrete boat launch, access road and gravel parking lot constructed in 1976. Mr.
Hjelvik charged a fee for boat launching, parking and overnight camping at the site. Today the site
is closed for most of the year but is used sporadically during the summer season for the same
purposes.
Land Use Considerations
The area extending from Cove Park (at the intersection of Highway 101 and Bee Mill Road) south to
Hjelvik's Store (including the larger undeveloped pasture owned by the Hjelvik family on the same
parcel as the Store)- bounded by Hjelvik's Road, a frontage road to Highway l0l, on the west and
WaWa Point Road on the east-was zoned "general commercial" prior to the County initiating its
planning under the GMA in 1994. The pre-GMA commercial zone for WaWa Point was
approximately 27 aues. However, during development of the CP, as stated on page 316, the
County made a finding that "infill development" between Cove Park and Hjelvik's Store allowed
under the pre-GMA zoning would "result in inappropriate sprawl." As a result, the entire 27-acre
"pre -GMA" commercially zoned area was designated as Rural Residential in the CP, except for the
4-acre site of the existing Hjelvik's Store itself-which was designated as Convenience Crossroad
CC (thus splitting the Hjelvik family parcel), The CP specifically found that the Cove Store and RV
Park was a small-scale tourist and recreational use that "does not require commercial
designation," so only four of the original 27 acres of WaWa Point zoned commercial were
designated as "interim" Convenience Crossroads (CC) in the CP-an 85% reduction.
The CP also states (on page 3-16) that only the 4-acre site of Hjelvik's Store and not the remaining
2}-acre pasture portion of the same parcel was designated as Convenience Crossroad (CC)
commercial in order to "prevenl commercial sprawl, and in order tofocus development in areas of
infill in Quilcene and Brinnon Rural Village Centers. " We believe the "sprawl" issue is a
legitimate concern that needs to-and will-be addressed in this Subarea Plan. To wit, the County
correctly followed the criteria in LNP 5.2.3.c. that, in drawing a logical outer boundary, " [a] large
parcel that is partially developedfor existing uses may not be designated in its entirety, if such a
designation would promote sprawl. " We concur with the CP conclusion as to the application of
that criteria in the particular case of the remaining 20-acre pasture portion of Hjelvik's parcel.
However, restricting commercial land designation at WaWa Point based on the need for that
commercial allocation elsewhere in South County is unfounded. The CP cannot "rob Peter to pay
Paul." Indeed, as pointed out in the preceding discussion about the Brinnon RVC, and the present
34
economic conditions discussed in the Economic Development Element, the "interim" RVC
designation failed to allocate enough land to "foster" rural commercial/industrial opportunities in
the Brinnon village core. We make the same finding in WaWa Point.
The WaWa Point area is a separate and distinct neighborhood from the Brinnon village and
Quilcene, one that is isolated and has supported traditional and historic rural non-residential land
uses and lifestyles. The current WaWa Point CC contains one existing use comprising 4 acres-
one acre for the existing store and three acres to allow for "possible expansion" ofthe store and
"to meel parking requirements, " according to the CP (at 3-16). In other words, the current CC
designation only allows for expansion of Hjelvik's Store-it creates or "fosters" no new rutal
commercial development opportunities and no opportunities for infill development as originally
intended by RCW 36.70A.070(5XdXi).
We cannot believe that the CP intended to imply that any rural commercial designation beyond
four acres at WaWa Point would constitute "promoting sprawl." If so, then presumably even one
more acre would constitute "sprawl." We believe, instead, that the CP found, in the findings
shown at 3-16, only that the original 27-acre pre-GMA "general commercial" zoning-and the range
of uses allowed in that pre-GMA zone-proposed in the Draft CP-in its entirety----constituted
sprawl at WaWa Point. Further, that the intent of the "interim" CC designation and the CP at LNP
1.4 is to allow and indeed "plan for" additional commercial development consistent with that
necessary to foster rural economic development opportunities. But this must be done in a manner
that prevents the inappropriate conversion of undeveloped lands into sprawling low-density
development.
We analyzed the area to determine how best to achieve those dual aims.
As shown on the existing land use map (Figure BR-7) most of the area is characterized by
residential use along the Dabob Bay shoreline and east of WaWa Point Road and the Cove RV
Park. However, in the area comprised of the 27-acre "pre-GMA" commercial zone (and currently
designated Rural Residential in the CP) there is only one incidental residential structure (the
owner's house at the Cove RV Park). The rest of the area is characterized by either existing
commercial development (Cove Grocery and RV Park and Hjelvik's Store), cleared and formerly
developed land (i.e., Maury Anderson's), or open grazing land that was long ago logged and
cleared (Hjelvik's pasture). The area is immediately adjacent to and served by excellent access to
Highway l0l-the only arterial in Brinnon. All of the former (pre-GMA) commercially zoned
properties have frontage road access off of Highway l0l on Hjelvik Road. The CP at 3-16 found
that all of these properties were provided "safe access" from Highway l0l via the frontage road.
The character of the existing non-residential development, proximity to Highway l0l and local
access roads, and lack of significant tree cover make its use as a future residential area
questionable.
Analysis of the l990 "built environment" per RCW 36.704.070(5)(d)(iv) is illustrated in Figure BR-8.
This analysis shows the "built environment" using the same methodology and criteria previously
discussed in the Brinnon RVC section, except that the built environment as shown in Figure BR-8
also includes structures or facilities built below grade. For example the concrete boat launch, gravel
access road and parking lot constructed on the parcel immediately south of Hjelvik's Store which
fronts on Right Smart Cove is not shown on the Assessor's parcel database files as a "developed"
parcef-but it does qualify as the "built environment" under the recent Hearings Board definition
of the term in Durland, el.al. v. San Juan County.ln essence, that the "built environment," as it
applies to RCW 36.70A.070(5)(d), " means only those facilities which are 'manmade,' whether they
are aboye or below ground. " This is presumed to include the installation of above- or below-
ground facilities and improvements for road access, utilities, water, septic, or irrigation systems,
etc., on other parcels. However, these types of "built environments" are not identified in the
Assessor's files and therefore were not analyzed or mapped for parcels otherwise identified as
35
undeveloped or vacant by the Assessor, except in cases where field assessment or property owner
information regarding the presence of such facilities could be confirmed.
Vision
WaWa Point is truly the northern gateway into Brinnon. Some of the residents of the WaWa Point
neighborhood have a vision of the old crossroads commercial area being utilized for small-scale
recreation and tourist uses consistent with the rural character and visually compatible with the
existing development in the area. We do not want to see low-density sprawl or a commercial strip
development that bears no connection to or is visually incompatible with the character of the
surrounding area. For that reason, we propose adoption of a Small-Scale Recreation and Tourist
(SRT) Overlay District for the WaWa Point area as shown on Figure BR-9.
The following is a vision of how the crossroads area could be utilized under the SRT district to
foster rural economic development consistent with the adjacent rural residential character of the
neighborhood:
Cabins: A wooded setting with log cabins with amenities for couples and families.
The complex would be required to be buffered with trees from area residents. It could
be developed in stages and offer non-polluting recreational activities, such as those
described in the Parks and Recreation element of this plan.
Scuba Diving Facilities: Charter boats for scuba divers. A store providing air, diving
equipment and services for scuba divers. Divers favor the Point Whitney and Pulali
Point area. Recreational divers are demographically a desirable segment of the
recreational market usually characterized by relatively higher levels of disposable
incomes and a propensity to explore and travel to new-ven isolated-areas to
conduct their hobby.
Horticulture: A "high class facility," similar to Heronswood located in Kingston, that
provides native species and non-invasive exotics. Horticulture and gardening do very
well with retirement communities and with tourists, as an attraction and destination.
Heronswood is known throughout the world and Whitney Gardens and Nursery
attracts 50,000 visitors a year.
Kayak (boat/log cabin) buildins: Provide local citizens and tourists with kayaks,
boats, and/or small boats/log cabins, and boating and water safety instruction, and
also educate locals with a new master skill that earns competitive wage. Low
infrastructure costs, Fits the local environment. Would also distinguish the Brinnon-
area for craftsmanship and provide living wage jobs.
Farmers Market: Where local cottage industries and home businesses could have
an outlet to sell and market their products.
Small-Scale Recreation and Tourist Overlay District (SRT)
The proposed overlay district shown in Figure BR-9 covers only four lots (or portions thereof). It
extends from the existing Cove Grocery and RV Park south to Hjelvik's General Store and includes
the boat launch and camping area on the separate parcel immediately south of and contiguous to
the General Store. It is bordered on the west by the existing parcel boundaries along the frontage
road and bordered on the east by extending the existing Convenience Crossroad boundary line for
Hjelvik's General Store north in a straight line parallel to the parcel boundary that abuts the
frontage road.
a
a
a
a
a
36
In total the SRT Overlay constitutes approximately 18.7 acres-still significantly less than the
original 27-acre pre-GMA commercial zoning for the area. It would allow significantly fewer and
potentially less intensive non-residential uses than otherwise allowed under a rural mixed-use
commercial designation such as Neighborhood Visitor Crossroad (NVC). No new residential
development would be allowed, except as authorized in the underlying Rural Residential districts.
The overlay district would only allow the uses identified as small-scale recreational and tourist
uses in Section 4.35 of the Unified Development Code (UDC). The SRT overlay would also allow
"limited and commensurately scaled commercial facilities" intended to serve those small-scale
recreational and tourist facilities as a special use consistent with the requirements of the policies of
this Subarea Plan and as prescribed in Section 4.35.3.a. of the UDC.
The CP and this Subarea Plan promote increased tourism and recreational development in Brinnon.
As discussed elsewhere in this Subarea Plan, Brinnon has a long history of small-scale recreational
and tourism development. Much of its existing rural character is defined by such uses. The SRT
designation creates opportunities for traditional rural lifestyles and a rural-based economy by
identifying a specific and discrete rural location and setting-which these kinds of uses are
dependent upon-and relieves he affected property owners from the burden of obtaining a
conditional use permit to foster this kind of rural economic development. All identified SRT uses in
Section 4.35 UDC would be allowable uses within the SRT overlay subject to approval by the
Administrator of the Department of Community Development through a Type II permit process,
including the public notice, comment, and appeal provisions of the Type II permit process.
Administrative approval would be required in order to ensure compliance with the following:
The applicable conditions and standards of the UDC, including those of Section 4.35
and where modified by this Subarea Plan;
The relevant bulk and dimensional standards of the underlying land use district; and
Any applicable provisions of this Subarea Plan
The rationale for designation as an SRT overlay is prompted largely by the existing rural character
and land uses of the four lots (or portions thereof) in question. Despite its Rural Residential
designation in the CP the character of the lots proposed for the overlay district is decidedly non-
residential.
The CP, at 316, already recognizes the Cove Grocery and RV Park as an SRT use.
This area constitutes approximately 2.3 acres.
The portion of the Maury Anderson property included within the SRT overlay
accounts for approximately 3.0 acres. It comprises only the upland portion of the
parcel used initially as a dance hall in the 1930s that was later converted to a
residence and then destroyed by fire and never rebuilt for residential purposes. The
upper portion ofthe Anderson parcel proposed for the overlay has been cleared and
is surrounded on three sides by public roads-Hjelvik Road, Bee Mitl Road and
WaWa Point Road, and has working water and septic systems on-site. This portion
of the parcel is much better suited for non-residential development. Its location
adjacent to the existing Cove RV Park and at the intersection of Bee Mill Road and
Highway 101 makes it a unique "gateway" entrance location to the overall Brinnon
Planning Area as well as the WaWa Point and Pulali Point areas, including the Point
Whitney Shellfish Lab and public beaches.
The portion of the Hjelvik pasture proposed for the overlay comprises about 7.0
acres. It is undeveloped (but cleared), accessed by two different roads (the frontage
road and WaWa Point Road) on two sides of the property, is contiguous to the
a
a
a
a
a
37
a
existing LAMIRD designation at the General Store, and only includes the parcel
frontage along Hjelvik Road and Highway l0l-not the remaining acreage that abuts
the rural residential uses on the back side of WaWa Point Road to the east. Its
characteristics, location and setting make it a particularly attractive and unique
property for small-scale recreation and tourist uses. It represents the largest
undeveloped, topographically flat and already logged and cleared property with
views of Hood Canal and adjacent to Highway l0l in the entire Planning Area. It is an
appropriate site for conversion to SRT development. The SRT portion comprises less
than one-third (7.0 acres) of the total acreage of the Hjelvik parcel (24.3 acres). The
remaining 13 acres of the "pasture" would retain a Rural Residential designation to
act as a buffer between the residential uses east across WaWa Point Road.
a The southern terminus of the SRT overlay would include the beach and boat launch
on Right Smarl Cove at the southern end of the Hjelvik property (approximately 6.5
acres). The existing beach access, boat launch, access road, parking area and current
and historic use of the site for transient RV camping are the unique features of the
area that truly make this location best suited for small-scale tourist and recreational
uses. People could camp at Cove Park and at the beach on Hjelviks property and use
the boat launch. Also, this launch is sandwiched between two waterfront lots with
200-ft. tidelands on the east owned by Washington State Parks (and known as the
undeveloped Right Smart Cove State Park) and 5.6+ acres with 500-ft. tidelands on the
west owned by the State DNR. There is an existing permitted commercial boat launch
and a history oftransient, self-contained RV camping at the south end ofthe Hjelvik
property, which is still operated occasionally throughout the year.
The beach at Right Smart Cove.
Statutory Requirements
We have previously in this section and in the Economic Development Element discussed the land
use, rural character, and economic development rationale for the SRT overlay designation. Now we
must address the statutory (both GMA and the Jefferson County CP) requirements.
38
GMA Consistencv
The SRT designation is consistent with the uses authorized under RCW 36.70A.070(5Xd)(ii) as a
small-scale recreation and tourist LAMIRD. Such LAMIRDS are subject to the "measures
governing rural development" found in RCW 36.70A.070(5)(c). Those measures include:
(i) Containing or otherwise controlling rural development;
(ii) Assuring visual compatibility of rural development wilh the surrounding rural
area;
(iii) Reducing the inappropriate conversion of undeveloped land into sprawling, low-
density development in lhe rural area;
(iv) Protecting critical oreas, as provided ir RCW 36.704.060, and surface water and
ground w ater resources; and
(v) Protecting against conJlicts with the use of agricultural, forest, and mineral
re s ourc e I ands de s i gnate d unde r RC I,y 3 6. 7 0A. I 7 0.
We find that application of the SRT overlay to the approximately I 8.7-acre area specified in Figure
BR-9 and the applicable provisions of this Subarea Plan and the UDC will serve to meet the above
requirements of RCW 36.70A.070(5)(c).
About one-half of the area of the lots (or portions thereof) proposed for the SRT overlay are
"undeveloped" in the sense that they do not constitute the "built environment" as defined by the
Hearings Board and this Subarea Plan. These include porlions of two lots-Maury Anderson's
2.9-acre site and the 7.O-acre portion of Hjelvik's pasture. In total the portions of these lots
included within the SRT overlay comprise l0 acres (or 53%) of the total 18.7 acres proposed for
SRT designation. The designation of undeveloped land in an SRT LAMIRD is clearly consistent
with the intent of RCW 36.70A.070(5xd)(ii) to allow for "...new development o/, small scale
recreational and tourist uses, including commercial facilities to serve those recreational or
lourisl uses, that rely on a rural localion and selting. " Nevertheless care must be taken in the
application of the designation to ensure that the (c)(iii) requirements to reduce the"inappropriate
conversion of undeveloped land into sprawling, low-density development" are met. We find that
the designation of the porlions of the lots in question do, in fact, meet that requirement. lf all of
the area of the two "lots" in question (i.e., Maury Anderson's and Hjelvik's) were included it would
add between 15-20 additional acres to the designation and would extend it much closer to the
existing rural residential uses along Dabob Bay and WaWa Point. This could potentially lead to the
"inappropriate" conversion of undeveloped lands in to low-density sprawl and threaten the rural
residential character ofthe adjacent area. However, as previously discussed, the portionsofthe
properties proposed for SRT designation include those best suited for non-residential small-scale
recreation and tourist uses and therefore, comprise land uses consistent with the rural character
and constitute the "appropriate" conversion ofundeveloped land in the rural area. Furthermore, the
current proposed SRT designation includes significantly less undeveloped land than that included
in the "pre-GMA" commercial zoning CP proposal that was found to constitute "sprawl" in the CP.
To ensure visual compatibility with the surrounding rural character and residential uses [required
by RCW 36.70A.070(5)(c)(ii)l all proposed SRT uses allowed within the overlay district will be
required to prepare-and have approved by the UDC Administrator-a site plan that can
demonstrate measures to protect or minimize adverse impacts on drainage, traffic generation, visual
impact, noise, and other relevant criteria to preserve the existing rural character ofthe area.
Any development proposed within the SRT overlay will be subject to the environmentally sensitive
areas requirements, including groundwater resource protection standards, of the UDC at Section
3.6.4 et. al., and the grading, drainage and stormwater protection standards in the UDC at Section
6.6 and 6.7.The proposed SRT overlay does not include or abut any lots designated as agricultural,
39
forest or mineral resource lands in the Comprehensive Plan, nor is the implementation of such a
designation expected to interfere or conflict with the use ofsuch resource lands in the vicinity.
The Hearings Board ruled in City of Anacortes, el.al. v. Skagil County that small-scale recreational
and tourist-oriented LAMIRDS authorized under RCW 36.70A.070(5)(dXii) are not required to meet
the "logical outer boundary" (LOB) requirements of RCW 36.70A.070(5XdXiv). According to the
Board, "LAMIRDS designated under (d)(ii) or (d)(iii) are defined by 'lots'and thus fiogical
ouler boundaryJ requiremenls ore inelevant. " Small-scale recreation and tourist LAMIRDS are
intended to be small-scale by definition, to comprise "appropriate" development in a rural area, and
to only require public services and facilities that are "limited" in such a manner that-the public
facilities-do not permit the spread of low-density sprawl.
The lots (or portions thereof) proposed for the SRT overlay are adequately served by
transportation facilities and lack public water and sewer facilities. No new public water or sewer
facilities are planned for or deemed necessary to serve the lots in question. The existing non-
residential uses on the lots in question all rely on wells and septic systems for water supply and
wastewater treatment and disposal, respectively. Therefore, future development will be limited to
that which must be of a character, scale, intensity, and design to meet the on-site septic and water
requirements of the UDC and the Jefferson County Health Department. The SRT designation will
promote snall-scale and rural character development that limits the need for public services and
facilities in a manner that does not permit low-density sprawl-as required by RCW
36.70A.070(sXdXii).
Comorehensive Plan Consistencv
The CP contains several policies that require measures to "minimi:e and contain" the site of a
SRT use (LNP 7.1.6) and that allow "expansion of existing small-scale recreational or tourist
areas and uses" (LNP 7.1.7) which "should be established and maintained by logical outer
boundaries. " The site plan requirements of LNP 7 .1.6 are contained in the SRT criteria in the UDC
at Section 4.35 and reaffirmed in the policies in this Subarea Plan. The "logical outer boundary"
(LOB) requirements of LNP 7.1.7 appear to create an inconsistency with the recent Hearings Board
decision in Anacortes v. Skagit County regarding whether or not logical outer boundaries apply to
SRT LAMIRDS. Nevertheless, the CP (at LNP 7.1.7) clearly allows for and anticipates the
"inlensification/expansion of existing small-scale recreational or tourist areas and uses."
Therefore creation of a discrete SRT overlay itself at WaWa Point that takes in undeveloped land is
consistent with the CP. However, there are two potentially important questions here:
Must the boundary of the SRT overlay be "delineated predominantly by the buih
environment as of July 1990'2; and
2. If the answer to question (l) is yes, then is it?
We pass on the first question and assume for our sake that we must be consistent with LNP 7.1.7,
which states in its entirety:
LNP 7.T.7 U p on app I i c at i o n for i nte ns ifi c at i o n/e xpans ion of exi st ing s mal l-sc ale
recreational or lourist areas and uses, the ultimate si:e and
configuration of the site should be established and maintained by
logical ouler 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 as of
July 1990, but may also include undeveloped lands if the overall goals
of the Rural Element are maintained, by:
40
a. preserving the character oflhe exisling natural neighborhood;
b. physical boundaries such as bodies ofwater, roadways, and land
forms and contours are used to assisl in delineation ofthe 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
The July l, 1990 "built environment" for WaWa Point is shown in Figure BR-8. This map illustrates
the built environment based on the methodology previously discussed utilizing Assessor's Office
parcel data to identify structures and man-made (above ground) improvements. It is also (in the
case of Hjelvik's boat launch) augmented with local property owner data that has been field
verified to illustrate "below ground" man-made improvements and facilities (i.e., boat launch,
access road and parking lot) that have been determined to constitute the built environment
according to the Hearings Board. The only portion of the four lots in question that does not
constitute the "built environment" as defined herein is the undeveloped 7.0-acre portion of
Hjelvik's pasture proposed for inclusion in the SRT overlay. It accounts for slightly more than one-
third (37o/o) of the total area of the proposed SRT overlay. [t should be noted that field
investigation was done on the affected portion ofthe Anderson property to validate the presence
of man-made "below ground" facilities. These facilities include the on-site septic system and well
that served the original "dance hall" building and later residence for Mrs. Anderson (which burned
down in 1987)1.
We believe the intent of the CP at LNP 7.1.7 is clearly to allow for the inclusion of undeveloped
lands in SRT "areas." How else then to allow for "intensification/expansion"of these uses and
areas "that foster traditional rural lifestyles, rural-based economies, and opportunilies to both
live and work in rural areas"? The challenge is to find a balance between the requirementto
cultivate a rural-based economy while preventing low-density sprawl and preserving the rural
character of the area. Therefore, the key determinant in deciding how much undeveloped land
should be included within an SRT LAMIRD cannot solelybe thatof the logical outerboundary
requirement-but must include consideration of the measurable criteria prescribed inLNP 7.1,7 a.-
e. Ineffect,theLOBandthecriteriainLNPT.l.Ta.-e-takentogether----constitutetheappropriate
test for preventing low-density sprawl and preserving rural character. In other words, any
undeveloped land included within an SRT LAMIRD must be able to demonstrate satisfaction with
the criteria (in a.-e.) in order to meet the requirements of LNP 7 .1.7 . W e cannot believe the intent of
the logical outer boundary requirement of(d)(iv) was to be so restrictive so as to prevent the very
expansion of these same areas authorized by (d)(ii). If that were the case-and the portion of the
Anderson and Hjelvik's lots not defined by the built environment were removed from the
designation-there would be no opportunity for expansion of the SRT "area and uses" at WaWa
Point-in violation of the Act at (d)(ii).
We believe that the proposed SRT overlay at WaWa Point and the associated poticies and
provisions of the CP, this Subarea Plan, and the UDC act in concert to fulfill the requirements of
LNP 7.1.7.
GOALS, POLICIES AND STRATEGIES
GOAL:
GI.O Promote the historic commercial area at WaWa Point as an attractive area for new or
expanded small-scale recreational and tourist businesses in order to foster the rural-based
economy and traditional lifestyles ofthe local residents.
41
POLICIES;
Pl.l Redefine the existing WaWa Point Convenience Crossroad (CC) LAMIRD to include a
Small-Scale Rcreation and Tourist (SRT) Overlay District. The overlay includes the
existing Cove Park Grocery and RV Park, extends south to include the upland portion of
the Maury Anderson property and the Highway l0l frontage portion of Hjelvik's pasture,
and terminates at the existing boat launch and camping site on Right Smart Cove,
immediately south of and adjacent to the existing Hjelvik's Store. The overlay designates
approximately 18.7 gross acres of land for expansion and intensification of the existing
small-scale recreational and tourist area and uses. Adoption ofthis Subarea Plan by the
BOCC effectively designates the WaWa Point SRT Overlay District as depicted in Figure
BR-8, modifying the LAMIRD designation for WaWa Point as depicted on page 3-46 of
the CP.
Pt.2 Docket amendments to the Jefferson County Comprehensive Plan (CP) that will better
integrate the Brinnon Subarea Plan and the Comprehensive Plan policies related to small-
scale recreation and tourist uses, Amend the Unified Development Code (UDC) to
establish provisions for an SRT Overlay District at WaWa Point. Provisions shall include,
but not necessarily be limited to, the following:
Classify the Small-Scale Recreation and Tourist Uses (SRT) identified in Table 3-l of
the UDC under Rural Residential designations as Type II permit uses within the SRT
Overlay District, subject to the provisions of the UDC, except as may be modified by
the provisions ofthis Subarea Plan.
2. Outdoor commercial amusement facilities, outdoor shooting ranges, and off-road
vehicle (ORV) and all-terrain vehicle (ATV) parks and recreational uses shall be
prohibited within the SRT Overlay.
3. Unnamed uses, if classified as an SRT use by the Administrator----consistent with the
requirements of UDC Section 4.35.2-shall be treated as "Cd" (Conditional
discretionary) uses within the SRT Overlay.
4. All allowed uses within the SRT Overlay shall be exempt from the general minimum lot
size requirements of 4.35.3.b, provided they are located on legal lots of record.
However, other use-specific minimum lot size requirements of Section 4.35 shall apply
unless otherwise exempted by this Subarea Plan.
5. The use-specific minimum lot size requirements of UDC Section 4.35 for equestrian
centers, conference center/retreat facilities, and for rural recreational lodging shall not
apply to such uses when located within the SRT Overlay.
6. All allowed uses within the SRT Overlay shall have a site plan approved by the
Administrator consistent with the requirements of the UDC generally and Section
4.35.3j specifically.
7. Setbacks and other development standards shall be consistent with those required in
the underlying Rural Residential District, except as may be modified by UDC Section
4.35.3 or by the provisions of this Subarea Plan.
8. Expansion of existing SRT uses and facilities within the SRT Overlay shall be exempt
from the requirements of UDC Section 4.35.4.a (which requires a conditional use
permit), but shall be subject to a Type II permit process.
42
9. The maximum size provisions for rural recreational lodging or cabins for overnight
rental, and conference center/retreat facilities-specified in UDC Section 4.35.9.b-
shall be amended to read as follows when such uses are located within the SRT
Overlay:
b. Fifteen (15) built cabins or bedrooms for overnight bdging comprising up to
seven thousand five hundred (7,500) square feet ofgross floor area are allowed
for up to every ten (10) acres ofparcel area devoted to SRT use, or as allowed in
UDC Section 4.35.9.b., whichever is greater. A maximum of thirty (30) rooms or
cabins comprising no more than twelve thousand (12,000) square feet of total
building area over the entire site, excluding a caretaker's or manager's residence,
shall apply to rural recreational lodging uses in areas greaterthan ten (10) acres
when located in the SRT Overlay.
In projects involving both conference center/retreat facilities and todging
facilities, total building coverage shall not exceed the maximum impervious
surface coverage allowed by UDC Table 6-l for the underlying Rural Residential
district and other requirements of the UDC, as applicable.
The Administrator may also modiS the maximum building size of the SRT use(s)
allowed under this section based on the authority granted under UDC Section
4.3s,3 j.
11. Rural restaurants-when located within the SRT Overlay-shall be exempt from the
provisions of UDC Section 4.35.10.a (which requires co-location with another primary
SRT use).
Pt.3 Ensure that adjacent and surrounding property owners receive adequate and timely public
notice and comment periods for proposed SRT uses within the SRT Overlay District.
Amend UDC Section 8 and Table &l to require a Type II permit process for small-scale
recreation and tourist uses in the WaWa Point SRT Overlay Distict, as described in this
section of the Brinnon Subarea Plan. The public notice requirements of the Type II
process satisfy this policy.
Pt.4 During site plan review of proposed SRT uses within the SRT Overlay, the Administrator
shall consider site and building design standards including, but not necessarily limited to,
building material types, building mass and orientation, architectural treatment, and the use
of existing vegetation and landscaping as means to ensure compatibitity with the
surroundi ng rural character.
Rural Commercial - Black Point
The Brinnon Subarea Planning Group suggests that the Black Point area may be an appropriate
location for a possible future Master Planned Resort. This idea is discussed in this section. The
land use maps provided are for initial discussion purposes only and do not constitute land use
designation proposals. Final land use map designations can only be made through a formal, private
land use application for a Master Planned Resort, pursuant to the Comprehensive Plan and the
IjDC.
43
10. Rural recreational lodging or cabins for overnight rental and conference center/retreat
facilities-when located within the SRT Overlay-shall be exempt from the
requirements of UDC Section 4.35.9.f (which requires a conditional use permit), but
shall be subject to a Type II permit process.
History
Since the beginning of the timber industry, people have been coming to the Brinnon area to enjoy
the recreational opportunities afforded along the shores of Hood Canal and the Dosewallips and
Duckabush River valleys. Both State ard Federal government agencies have recognized these
recreational opportunities and provided parks and trails to accommodate the public's desire for
recreation.
Except for slowdowns during the 1930s (Great Depression) and mid 1950s (an over supply of logs
in a weak domestic market) the timber industry grew along with the need for commercial services.
Both were supported by a fleet of supply boats (often called the mosquito fleet) that served the
area by bringing in mail, supplies and people seeking employment. The boats also brought visitors
andtouristsandasaresult,thetouristindustrybegantogrow.Roadswerebuiltbetween l9l8and
the mid-1920s that extended from Hoodsport in the southern part of Hood Canal to Quilcene in the
north. This automotive connection with the outside world relieved the reliance on the mosquito
fleet for supplies. As the tourist industry grew, so did the existence of transient accommodations
such as hotels, lodges, inns, cabins and campgrounds. Boaters began to come from all over Puget
Sound to the Hood Canal area including the all-weather protection of Pleasant Harbor. The tourist
industry reached its peak in the area during the 1950s and 1960s.
Although the Pleasant Harbor facilities continued to exist, many other non-boating related facilities
began to dwindle due to aging of the
property owners, aging of the facili-
ties and the high cost of improve-
ments. Rather than staying in
business, property owners often took
advantage of a more lucrative real-
estate market and sold their conr
mercial facilities to the private sector.
This occurred to the well-known
Olympic Inn Resort (near Seal Rock)
that was originally built in 1906 as the
Early suppty boat Olympic Tavern. It contained many
cabins located on 108 acres. After a
fire in 1936, the facility was extensively remodeled and operated as a resort through the 1950s. The
Inn and cabins eventually fell into disrepair and the property was sold during the early 1970s. The
original Inn was torn down in early 1977. Many other resorts and lodges met their fate in this same
manner (See Appendix, Brinnon Historical Business List).
In the 1970s, the timber industry peaked due to the export market but began to decline in the early
1980s. A number of Olympic Peninsula lumber mills and local cedar shake mills went out of
business due to over-harvesting, poor market conditions, and increasing environmental restrictions
that limited logging in the National Forests. As the pressure continued into the 1980s and 1990s,
the USDA Forest Service continued to curtail most logging in the Olympic National Forest. Today,
private landowners are the main suppliers of forest resources along Hood Canal. However, the
future of local private logging is likely to be further adversely impacted by implementation of the
Endangered Species Act and the recent listing of native Puget Sound and Hood Canal salmon as
threatened species.
Although the timber industry slowed, the demand for both local and national tourism continued to
grow. This was largely due to more reliable autonnbiles, better road systems and emergent air
transportation industry. Air transportation allowed families to easily travel to the large California
theme parks (e.g., Disneyland, etc.). Recreation and tourism in the Brinnon area continued to grow
due to the ever-increasing desire for outdoor sports (e.g., fishing, shrimping, shellfish harvesting,
44
hiking, mountain climbing, boating, etc.) and the closeness of the Olympic National Park and Hood
Canal. The Washington State Department of Parks and Recreation, the USDA Forest Service and
the National Park Service continue to be the main providers of tourism and recreational
opportunities and facilities in the area.
In the mid-1980s, both nationally and in Washington state, the tourism industry grew even faster
largely due to the ever-increasing number of traveling retirees and an increase in the wealth and
number of families going on weekend excursions. This increase in demand for tourism and
recreation continues today. However, due to the lack of significant tourist accommodation facilities
and targeted tourism marketing, Brinnon has not benefited as much from tourism as other areas of
the county and the Olympic Peninsula.
The decline of jobs related to the timber industry coupled with the ever-increasing demand for
tourism and recreation resulted in a strong desire by the residents ofthe Brinnon area to offset the
loss of jobs in the timber industry by rebuilding the capacity to accommodate recreation and
tourism. An expansion of recreational and tourism opportunities and associated commercial
facilities in the Brinnon area, including a potential Master Planned Resort at Black Point, will help
fulfill this objective.
Master Planned Resort
The number of private parks and recreational facilities along with State and Federal campgrounds
and trail systems has been steadily growing in the Brinnon area since it was first settled. In recent
times. the areas at Jackson Cove (WaWa Point) and Black Point have contained the most intensive
use of small-scale recreational and tourist facilities. An MPR designation in this part of the county
would help boost local economic activity and more effectively serve tourist needs in this part of the
county.
Although not recognized as such, the Black Point area contains many features characteristic ofa
Master Planned Resort (MPR). The definition of an MPR is that of "a self-containedandfully
integrated planned unit development in a setting of significant natural amenities, with primary
focus on destination resort facilities consisling of shortierm visitor acconmodations associated
with a range of on-site indoor or outdoor recreationalfacilities" (cf. RCW 36.70A.360).
The existing land use pattern in the Black Point area is shown in Figure BR-I0. The Black Point area
including Pleasant Harbor already contains a number of existing recreational and visitor support
activities. This area contains two marinas accommodating over 400 vessels, a 504 unit RV Park (the
old NACO Campground & RV Park), presently under limited operation, and other support services
including: a real estate office, gift store, a gas and oil fuel facility for boats and sea-planes,
vehicle/boat maintenance and repair shop, welding service shop and a vehicle and boat storage
facility. Also, this area provides moorage for commerciat fishing, crab and oyster boats and offers
limited grocery and food service facilities including a pizza shop and a seasonal roadside food
service facility. The southern end of Pleasant Harbor contains a boat launch, beach, parking area
and approximately 30 acres of forest owned by the Washington State Department of Fish and
Wildlife.
Providing additional tourism and recreational opportunities on the former NACO RV Park site, such
as a golfcourse and hotel with conference and health facilities, could take advantage ofan existing
site previously developed for tourist and recreational uses, but currently idle. This would also help
to diversify the local tourism market by creating a unique "destination resort" not typically found
anywhere else on the west side of Hood Canal and one supported by-but not dependent upon-
the marina tourist traffic. In addition, many of the boaters and visitors to the Pleasant Harbor
marinas are a "captured market," in the sense that they arrive to the area by boat and have limited
mobility beyond the marina. Providing land-side short-term visitor accommodations and support
45
services such as a restaurant, specialty food store, pharmacy, gift shop, outdoor equipment sales
and rental, interpretive center and other uses as well as links to other nearby outdoor recreational
opportunities (e.g., hiking, birdwatching, fishing, etc.) helps to capitalize on an existing tourist
market and increase tourism spending in the local economy.
Natural amenities of the Black Point area include the harbor itself, pristine views of Hood Canal and
the Kitsap Peninsula to the east, the Olympic Mountains and adjoining forests and rivers to the
west and the abundance ofwildlife that includes osprey, bald eagles, deer, elk and cougar.
Unlike small-scale recreational and tourist uses-which rely on existing tourist populations to draw
upon-Master Planned Resorts can create their own demand by creating an amenity or attraction
that does not otherwise exist in the area. In this sense, it can be a "build it and they will come"
type of tourist or recreational attraction. It is a unique type of economic development activity that
can help to stimulate the local economy and broaden the range of tourist and recreational
opportunities in Brinnon.
The intent of this portion of the Brinnon Subarea Plan is to describe a vision of the Black Point area
to serve as a policy guide if and when a project-specific application for designation of an MPR is
made.
We envision the Black Point MPR to be significantly different and smaller in scale than the Port
Ludlow MPR in that it would be less structured towards development of permanent residential
accommodations and moreso towards providing recreational opportunities and support services
for the traveling public in a manner that will benefit local residents.
The 1995 Brinnon Community Plan recognized the potential and desire for enhanced recreational
and occupational opportunities with the suggestion of possible additions to the existing
recreational matrix including a planned resort, visitor information center, golf course, inns and
additional support services for recreation and tourism.
The expansion of recreational opportunities in the Brinnon area is closely aligned with the
following other elements of this plan:
. Parks and Recreation Element
o Economic Development
Conceptual Master Planned Resoft Land Use Plan
The recommentlqtion of this Subarea Plan is lo generally supporl the ideo of an MPR at the
Black Point, Since a project-specific applicationfor an MPR has nol yet been made, approval
and adoption of this Subarea Plon by Jefferson County will not, in and of itselJ\ result in the
approval of a Master Planned Resort for Black Point, Actual designation of an MPR district
can only be accomplished through a site-specific MPR application consistent with the
requirements of the Jefferson County Comprehensive Plon (including the Brinnon Subarea
Plan) ancl the Unified Development Code.
The following is the vision for a conceptual Black Point MPR. A conceptual MPR boundary is
shown on Figure BR-l I for planning purposes only. The conceptual MPR depicted contains
approximately 305 acres. An MPR at Black Point could include these types of uses, though an
actual application may include uses not listed here and/or not include the uses listed here:
Resort-could be comprised of the former NACO Campground and RV Park property;
an l8-hole golf course, with clubhouse facilities and hotel/inn with conference and
o
46
a
a
a
health/athletic facilities; with on-site advanced stormwater and wastewater treatment
systems integrated into the golf course.
Recreation-could include the 30 acres of land owned by the Washington
Department of Fish and Wildlife at the southwestern end of Pleasant Harbor with
beach access and a potential boat launch site, dock and day park facilities and the
existing dock at Pleasant Harbor State Park at the northeastern edge of the harbor;
may facilitate the acquisition of funding to improve the boat launch, dock, and beach
access and create new trails and an improved park and recreational area and potential
interpretive center for the community.
Marina-approximately 20 acres, including the two existing marinas and commercial
and residential uses in Pleasant Harbor; would allow for limited infill of associated
visitor-supported commercial, recreational, and residential uses.
Single-Family Residentiaf-envisioned to be located on the southern high bank
boundary of Black Point; an area of approximately 20 acres for potential development
of 20-25 single-family residential homes in a low density setting adjacent to the golf
course,
Mixed Uso-could characterize the l9-acre site across US l0l from the existing
intersection with Black Point Road; already cleared and graded and portions of which
are subject to pre-existing vested development applications; could provide for
placement of water reservoir for the resort and to allow for mixed use development,
including visitor-oriented short-term accommodations such as townhouses or
condominiums and employee housing as well as associated visitor support
commercial uses and services.
a
a Tourist Commercial---could characterize the seven (7)-acre area along the immediate
eastern side of US l0l on either side of its intersection with Black Point Road; already
cleared and graded and portions of which are subject to a pre-existing vested
development application; the area contains an existing office building (Coldwell
Banker Settlers Real Estate) and seasonal roadside food stands; could provide retail
and commercial uses and other services to meet the needs of resort visitors and
community residents, including a motel/inn, restaurant/lounge, visitor center, and
other visitor-supported commercial and retail uses. This conceptual area would also
include the 6.7-acre parcel containing the existing Mt. Jupiter Auto Repair located on
the west side of Highway 10 I at the intersection with Mt. Jupiter Road.
The conceptual MPR boundary shown in Figure BR-l I is advisory. It is a conceptual vision
based on extensive discussion by the Brinnon Subarea Planning Group, property owners in the
affected orea, neighbors and adjocent propetq) owne$ and the public, Il is inlended to serve as
a guide to any future project-specific MPR opplication for the Black Point area, An octual
proposal for a speciJic master planned resort project and MPR designation on the
Comprehensive Plan Land Use Map for Black Point should be reviewed for consistency with the
ideas presented in this Subarea Plan. However, this Subarea Plan should not be viewed so
narrowly as to preclude variations from the exact boundaries or land uses described herein so
long as the scale and intensity of the proposed MPR qre consistent with thal envisioned by this
Plan.
The conceptual MPR boundary shown in Figure BR-l1 includes multiple properties owned by
multiple property owners. Any future MPR site-specific project application for Black Point must
include the signatures (i.e., agreement) ofany affected property owners in order to be accepted for
47
review by the County. Discussion or concurrence among most, but not all, affected property
owners within the proposed MPR boundary has occurred. For example, participation by the
WDFW is uncertain. Therefore, any subsequent MPR site-specific application in the area will have
to resolve any remaining issues between or among property owners as to their participation in such
a project. The Year 2001 Comprehensive Plan and UDC amendments regarding MPRs included
provisions for the use of resort master plans and development agreements to implement MPR-
related policies h the Comprehensive Plan. These procedures are intended to be the vehicle by
which multiple property owners within a single unified MPR application could reach agreement on
their particular areas of interest. For this reason and others, the definitive boundary of an MPR for
Black Point can only be defined at the time of an actual site-specific MPR application.
Finally, several existing cottage industries are located in the Black Point area immediately adjacent
to the conceptual MPR site. These include the Mt. Jupiter Auto, Truck, and Tire Center on Mt.
Jupiter Road and Brothers Welding and Metal Arts located west of the Pleasant Harbor Marina
across Highway 101. Both of these existing businesses provide support and services to the
existing users of the Pleasant Harbor marinas as well as to surrounding local residents. Both
owners of these businesses were included in the discussion regarding the MPR. At this time , Mt,
Jupiter has expressed interest in being included in such a potential MPR development. Therefore,
the conceptual Black Point MPR boundary in this Subarea Plan includes that existing commercial
use. However, the final inclusion of any adjacent non-residential uses in such a development
would be fully evaluated at the time of an actual MPR projectapplication.
GOALS, POLICIES AND STRATEGIES
GOAL:
Gl.0 Promote recreational and tourist development consistent with the character of Brinnon.
POLICIES:
Pl.l Encourage the proposal of a Master Planned Resort for Black Point to foster economic
development in Brinnon consistent with the vision illustrated in this Subarea Plan.
Pt.2 Ensure that the project review procedures and public involvement processes in place for
designation of an MPR at Black Point are implemented in a manner that results in a project
that meets the need for local economic development while protecting the natural
environment and rural character of surrounding properties.
Home Businesses and Cottage Industries
As early as I 858 Brinnon was a community of entrepreneurs and small business owners. Roads did
not connect the community to the north or south until the early 1900s; the available transportation
was by boat. This made it necessary for Brinnonites to be self-sufficient and resourceful. Even with
the coming of roads, the community remains isolated. Brinnon is still a remote rural community that
is over 35 miles from major services and 45 miles from emergency or major public services. Highway
101 is the only road connecting Brinnon with the rest of the County. It is not uncommon for the
road to be closed and the area cut-off for indefinite periods due to mudslides, snow and ice storms,
downed trees, or flooding.
This constraint has contributed to the peace and quiet that so many residents desire but also to the
need to be self-reliant and self-supporting. The transportation constraints ard long distance to
48
Pl.3 The Black Point MPR project review and approval process should reflect the diversity of
interests and potential property owners who may be included in such an overall project at
Black Point.
employment centers means local residents must often develop their own means of economic
activity to make a living. If those options are not available or are unduly restricted by certain
regulations, their only other choice is often to leave the area and move closer to major employment
centers. This only contributes to further economic decline locally and widens the disparity between
North and South County. It also fails to live up to the promise of preserving Brinnon's rural
character made by the GMA [at RCW 36.704.030(14))to "foster traditional rural lifestyles, rural-
based economies, and opportunities to live and work in rural areas, "
Our environment of independence has been demonstrated over the years by the wealth of home
businesses and cottage industries that are an integral part of the Brinnon community. It is
characteristic ofhome businesses and cottage industries that they are not generally disruptive of
the residential or mixed uses ofadjacent properties, they generate less traffic and noise than typical
commercial or industrial activities, they are compatible in appearance and they have little impact on
the surrounding neighborhood.
Following is just a partial and illustrative list of the range of typical home based businesses and
cottage industries presently found in Brinnon-although even many of these occupations are part-
time or seasonal and do not necessarily represent year-round full+ime employment. In other cases,
residents may have more than one business activity in order to make ends meet. Typical home-
based businesses/cottage industries in Brinnon include, but are not necessarily limited to:
Today the small business owners in the Brinnon area use a variety of communication and delivery
services to conduct their activities, and electronic media has fostered new enterprises. The nature
of small business has changed regarding resources, markets, products, and the services required,
and business owners have accordingly updated their approach to meeting needs around the world.
49
. Mushroom farmer
o Home elder care
. Dog and cat groomer
. Oyster farmer and picker
o Tutor/home educator
. Dog breeder
o Craftspeople. Carpentero Electrician
o Hair stylist
o Bookbinder
o Auto repair
. Equipment rental
. Bed & Breakfast proprietor
o Watch repair
. Day care provider
o Woodcarver
r Freelance author
o Journalisto Leatherworker
. Jeweler
r Seamstress/tailoro Signmaker
o Excavatoro Metalworker
. Internet businesso Housecleaner
However, other opportunities for work are very slim. The regional decline of forestry and fishing
and shellfish gathering has resulted in dire conditions throughout the area. High unemployment, a
distressed local economy, and low residential densities characterize the community. Current state
statistics identify Brinnon has having the third highest rate of poverty among the state's small
school districts. The lack of employment and distance from living-wage jobs signify the need to
create new opportunities and actively pursue a transition to a more diversified local economy.
In the Brinnon area, home businesses and cottage industries are encouraged as opportunities to
provide family income, start up a business, or establish a work place at home (see the 1998
Jefferson County Comprehensive Plan, page 335). These businesses generally have a minimal
impact on the rural environment and reduce the capital facility services required to move remote
workers to more populated areas.
Future Objectives
The Subarea Plan proposes to initiate implementation of a Brinnon Planning Area-Remote Rural
overlay designation to allow for expanded "sustainable" economic opportunity within the
Comprehensive Plan's context of rural development based on o'unique local circumstances." The
intent ofthe overlay designation is to relieve the Brinnon Planning Area from certain regulations
and rcstrictions regarding home businesses and cottage industries that are needed for higher
populated rural areas of the county with better access to employment opportunities in urban
growth areas.
The Brinnon Planning Area-Remote Rural (BRPA RR) overlay is an overlay district designation
with provisions similar to those for western Jefferson County (West End). These provisions
include exemption from certain policies relating to home businesses and cottage industries and
provide consistency within the Comprehensive Plan for remote rural areas. Similar to the West End
of Jefferson County, this community has a low projected population growth but serves a high
number of tourists traveling in the area. Policies for home businesses and cottage industries allow
for greater flexibility under criteria specific to the West End which, because of its proximity to
Forks, is actually closer to major urban services than is Brinnon.
GOALS, POLICIES AND STRATEGIES:
GOALr
Gl.0 Establish Brinnon Planning Area-Remote Rural overlay district for the purpose of
regulating home business and cottage industry activities.
POLICIES:
Pt.l Home businesses and cottage industries, as defined in the Comprehensive Plan, shall be
permitted throughout our Remote Rural overlay. This includes any residential sites
located within a designated commercial zone, providing the criteria for residences are met.
Pt.2 Jefferson County shall immediately amend the Unified Development Code (UDC) to
establish the BRPA RR overlay and ensure that it is regulated in a similar manner as the
West End insofar as the treatment of home-based businesses and cottage industries.
Appropriate amendments that improve integration between the Brinnon Subarea Plan and
the Comprehensive Plan (CP) should be docketed for the annual CP amendment cycle.
The differences in requirements for the BRPA RR overlay are as follows:
l. The Brinnon Planning Area (BRPA) shall have alternate provisions regarding the
number ofnon-resident employees. For home businesses, up to four (4) non-resident
employees shall be allowed; a number of non-resident employees beyond four (4)
would be reviewed under a conditional use permit application. For cottage
50
industries, up to eight (8) non-resident employees shall be allowed; a number of non-
resident employees beyond eight (8) would be reviewed under a new or revised
conditional use permit application. (See Comprehensive Plan LNP 6.1.6, LNP 6.1.7(b)
and LNP 6.2.8.) (See UDC 3.6,12, UDC 4.17 and UDC 4.20.)
2. The BRPA shall be exempt from the restriction on types of on-site retail sales,
provided that on-site retail sales are not unreasonably disruptive to the use of
adjacent properties. (See Comprehensive Plan LNP 6.1.9 and LNP 6.2.7.) (See UDC
3.6.l2,tJDC 4.17 and UDC 4.20.)
3. The BRPA shall be exempt from specified hours ofoperation. (See Comprehensive
Plan LNP 6.1.12 and LNP 6.2,14,) (See UDC 3.6.12, UDC 4.17 and UDC 4.20.)
4. Cottage industries in the BRPA shall be exempt from the limitation on parking and
the storage of heavy equipment and materials to be used on other properties. (See
Comprehensive Plan LNP 6.2.15.)
5. Cottage industries in the BRPA shall be exempt from the prohibition on the following
activities: auto, truck, or heavy equipment repair shop, automobile body-work or
paint shop and large-scale fumiture stripping. (See Comprehensive Plan LNP 6.2.3.)
(See UDC 3.6.12and UDC 4.17.)
6. Home businesses and cottage industries in the BRPA shall be exempt from the need
to move to a commercial mixed-use area or industrial area as a result of growth. Home
businesses shall be allowed to grow into cottage industries with a revised permit and
cottage industries shall be allowed to expand with a revised conditional use permit.
(See Comprehensive Plan LNP 6.1.2 and LNP 6.2.4.) (See UDC 3.6.12, UDC 4.17 and
UDC 4.20.)
7. Cottage industries in the BRPA may be permitted conditionally under the provisions
of RCW 36,70A.070(5)(d) (iiD. (See UDC 3.6.12, UDC 4.17 md UDC 4.20.)
8. Exemptions herein shall be regulated subject to Comprehensive Plan LNP 6.1.10 and
LNP 6.2.12, which prohibit uses that may be disruptive to the use and enjoyment of
adjacent properties. Prohibited uses include activities that cause excessive noise,
vibration, glare, fumes, odors, or electrical interference detectable to the normal
senses off the property. Hearings on regulations prohibiting uses that may be
disruptive to adjacent property in the BRPA will be held in Brinnon to be close to the
residents who may be affected. (See Comprehensive Plan LNP 6.1.10 and LNP 6.2.12.)
(See UDC 3.6.12, UDC 4.17 and UDC 4.20.)
9. An additional home business or cottage industry or combination thereof on a single
property shall be permitted in the BRPA as long as the standards in this Subarea
Plan for home business and cottage industry are not exceeded and the criteria of
LNP 6.1.10 and LNP 6.2.12 ue met.
Pl.3
10. Any hearings associated with regulation or conditional permit review procedures for
the BRPA shall be held in the Brinnon community, close to the residents who may be
affected. (See Comprehensive Plan LNP 6.1.13(b) and LNP 6.2.16(b).) (See UDC
3.6.l2,llDc 4.17 and UDC 4.20.)
"Limited product assembly" which is commensurate with the scale and character of the
rural remote area should be appropriate for home businesses and cottage industries
provided that the other provisions of the UDC and this Subarea Plan are met.
STRATEGIES:
S1.1 Within resource limitations, Jefferson County in cooperation with the citizens of Brinnon
should develop a plan aimed at informing local home businesses and cottage industries
5l
about the provisions of the overlay district and the benefits of having a County permit
and/or a small business license from the State of Washington.
GOAL:
G2.0 Encourage the continued development of businesses that allow residents to maintain a
sustainable economic independence within our remote rural community.
POLICIES:
P2.l Provide an education program that will enhance and improve the function of small
businesses.
STRATEGIES:
52.l Within resource limitations, Jefferson County in coordination with the Economic
Development Council and in cooperation with the citizens of Brinnon should develop
educational workshops and forums locally, aimed at the small business owner, to provide,
for example, business planning, business training, and applicable small business practices.
52
Natural Resource Conservation Element
Forest Lands
Forest Lands of long term commercial significance designated pursuant to RCW 36.70A.170
comprise the single largest land use classification in the Brinnon Planning Area. As with
agricultural soils, soils well suited for timber production are classified. Much of the Brinnon area
contains Class II and Class III soils that are capable of sustaining Douglas fir, western hemlock and
western red cedar. Timber corporations retain sizeable portions of land in the area and continue to
develop this resource. Most of the marketable timber is situated on DNR or USDA Forest Service
lands and have been taken out ofthe inventory ofavailable timber production.
The Brinnon Subarea Plan supports the establishment of a Forest Transition Area (FTA) that
creates a protected long-term commercial forestland boundary that will not be impacted by adjacent
land use conflicts. This commercial forestlands FTA could be a one-quarter mile in width adjacent
to non-resource lands. The FTA could be partially developed without changing the underlying
density ifadjacent land use conflicts are restrictive ofnormal forest practices.
GOATS, POLICIES AND STRATEGIES
GOAL:
Gl.0 Provide the community sufficient protection and remedies from mineral resource activities.
POLICIES:
Pl.1 Ensure that activities of extraction and/or reclamation companies are consistent with the
State Environmental Policy Act (SEPA), surface mining law, and other applicable
regulations.
Pl.z By law, reclamation is regulated by the Washington Department of Natural Resources
(DNR). The County can ensure that mineral lands of long-term commercial significance
have a subsequent underlying density and associated future use and notify neighbors in
the Brinnon area of proposed mineral extraction if and when the County is requested to
complete an "SM-6" zoning approval by the DNR.
53
Mineral Lands
Mineral resource lands fall under the jurisdiction of the Washington Department ofNatural
Resources (DNR) and Jefferson County Department of Community Development (DCD). The DNR
has not always been diligent about keeping the community and the County informed as to resource
Iand development plans. Many areas with potential resource extraction and/or reclamation are
Iocated near areas where safety is an issue. Feeder use ofCounty roads is a safety issue as well as
a potentially serious impact on public facilities. In some areas where the topography and location
of potential resource extraction and/or reclamation activities would be affecting residential areas,
little has been done to mitigate the impact on surface streets, water resources and noise abatement.
Because of Brinnon's remoteness and because the local resource is necessarily available for
emergency use, maintenance and construction, this resource is essential; so, too, is the community
impact protection.
Pl.3 Operations on mineral resource lands that require entrance or exit onto a County road in
the Brinnon Planning Area shall meet Jefferson County Public Works Department
requirements
STRATEGY:
Sl.l For any extraction/reclamation proposal in the Brinnon Planning Area, the County shall
endeavor to notify neighbors and see that applicable provisions in State law are satisfied.
Agricultural Lands
The Dosewallips River valley is flat land, unlike much of the terrain along the Duckabush River.
Much of the Dosewallips River valley has been farmed, beginning near the mouth of the river with
Britt's truck garden, Springer's farm, Whitney Gardens and Nursery, and Wasell's private garden,
and extending to the old Kidwell place at 6.7 miles (the boundary of the National Forest). The soils
vary, but most is fine river bottom soil that is fertile and productive. The Dosewaltips valley has
been cultivated and used for cattle (both beef and dairy) since the turn of the century. Truck
gardens and nurseries have been long-time operations. The Duckabush River valley enjoys not as
much flat arable land, but does sustain small greenhouse and garden facilities that take advantage
of the rainfall and warm summer temperatures. WaWa Point has had the Hjelvik pasture land and
Anderson farm that have sustained orchards, horses, and beefcattle over many decades. However,
there are no agricultural resource lands of long-term commercial significance in the Planning Area
designated pursuant to RCW 36.70A.170.
GOAL:
Gl.0 Promote sustainable agricultural activities on appropriate lands and the marketing and
promotion of locally produced or available agricultural goods and commodities.
POLICY:
Pl.l Encourage the development of a Farmers Market for the distribution of goods to local
residents and tourists alike.
Aquaculture Resources
The definition of aquaculture as given in RCW 15.85.020 is "...the process of growing, farming, or
cultivating private sector cultured aquatic products in marine or freshwaters and includes
management by an aquatic farmer." The background of aquaculture in the Brinnon area will be
described from the southern shorelines of Dabob Bay south into the main channel of Hood Canal
down to the southwestern most region at Triton Cove. The Aquaculture Map (Figure BR-12) in the
Appendix of the Plan shows the location of these shorelines in the order described.
Prior to the 19th century, this area contained discrete populations of native Olympia oysters
(Ostreola conchaphila), as well as geoduck and hardshell clams. Late in the 19th century, an
increase in market demand resulted in heavy commercial harvesting of Olympia oysters. Clams were
also harvested commercially as demand encouraged their exploitation. However, in the early 20th
century there was concern for the ultimate depletion ofthese valuable resources.
As a result of this concern, as well as the fact that the natural reproduction could not keep up with
market demand, aquaculture first began within both the public and private sectors. The first
commercial effort occurred with the diking of certain tidelands in Quilcene Bay to provide artificial
tide pools for oyster cultivation. Soon after that, what was then known as the Washington State
Department ofFisheries began an effort to establish local oyster reserves. This effort took place at
the Whitney Point Lagoon, Fulton Lake and the tidelands formed by the deltas of the Dosewallips
and Duckabush rivers.
54
Today, the aquaculture research and management activities take place within the facilities of the
Point Whitney Shellfish Lab and at the Point Whitney Public Recreational Tidelands that extend
north from Whitney Point about one mile and south for one quarter mile. The Point Whitney
Shellfish Lab began operation in 1953 and has operated in a variety ofresearch and management
capacities. In the beginning, the main emphasis was on prediction of time and intensity of
reproduction of Pacific oysters (Crassostrea gigas) in Hood Canal. An adjacent pond was used as
part of this effort. The pond was also used for controlled spawning but did not result in oyster
"setting" due to an unfavorable environment. Other shellfish activities since 1953 included: pulp
mill pollution research, sea water productivity, predator contro[, oyster mass mortality evaluation,
subtidal geoduck stock assessment, and an experimental clam and oyster hatchery. Many other
research and management activities in connection with Puget Sound have also been carried out
since the lab's inception. Many of these efforts continue under the management of the
Washington State Department of Fish and Wildlife.
Adjacent to the Point Whitney Shellfish Lab is the Point Whitney Lagoon that was first
established as a Washington State Oyster Reserve to preserve and protect the small stock of
native Olympia oysters. However, it did not accomplish the planned purpose so the (then)
Department of Fisheries returned it to the Washington State Land Department. In the 1930s the
pond was used as a rearing area for even-year pink salmon with eggs obtained from northern
British Columbia and Cordova, Alaska. The eggs were hatched at Brinnon's Duckabush hatchery
and the fry were placed in a salt-water pond created from a dike and weir. The pond was used to
retain the young salmon until they reached the smolt stage (grow-out), before release into Dabob
Bay. After a few years, the effort was abandoned because the adult salmon failed to return to the
pond.
South of the public tidelands at Point Whitney Shellfish Laboratory and forthe next 0.75 miles are
several small tracts of tidelands owned by commercial clam and oyster growers and non-commercial
private owners. Continuing south to Pulali Point, private tideland owners cultivate shellfish for
their personal use and control the red rock crab and starfish that prey on clams and oysters.
Around the southern end of Pulali Point and into Jackson Cove, most of the tidelands, with the
exception of DNR beach #55, are privately owned. Camp Parsons Scout Camp of the Boy Scouts of
America, Seattle Council, owns a significant portion of these tidelands. Boy Scouts, college
students, elementary classes, and other users of Camp Parsons are offered limited shellfish
education.
At Right Smart Cove, the Taylor Shellfish Farm in cooperation with the Hjelviks planted hatchery
reared geoduck seed for future harvest and sale. South of this was the Seal Rock Resort, a boat
launch and the Rainbow Lodge. Norton Totten harvested oysters in this vicinity during WWIL
South of Seal Rock were the Federal Forest Camp public tidelands, and adjacent to these were
tidelands owned and operated by Ervin Kelly and Norm Germeaux, Presently, there is one small
oyster farm operated by Stan Germeaux.
During the 1950s the United States Department of Fish and Wildlife developed a hatchery on the
Quilcene River and, in conjunction with it, operated a trap and egg-taking facility for fall chum
salmon at the Walcott Slough in Brinnon. The eggs were hatched at the Quilcene hatchery and
released into Hood Canal. In the 1960s, the Brinnon facility was put into a'standby status'where
maintenance is performed but egg taking is rare or nonexistent.
One of the tracts of the Washington State Oyster Reserve was located on the north end of the
Dosewallips flats where tidelands were diked to create artificial tide pools for the purpose of
preserving a tidepool habitat for Olympia oysters. This effort also failed and the tidelands reverted
back to the Washington State Land Department, The land was then acquired by the Eagle Oyster
Co. for raising imported Eastern oysters (Crassostrea virginica). Due to the lack of natural
55
reproduction, the effort was abandoned. Other users of the northern half of the Dosewallips flats
were the P and T Log Dump, Northem Oyster Co., Coast Oyster Co., Engman Oyster Farm, and the
Taylor Shellfish Farm. The remaining tidelands are now part of the Dosewallips State Park where
hardshell clams and oysters are cultivated and utilized by the treaty tribes and the public.
Pleasant Harbor has been a site for aquaculture for many years. The upper end of the harbor
included tidelands and an oyster schucking house operated by the George Babare family. A
loading dock was built and operated by Ed Sherwood and Nat Persson, who are oyster growers
and processors from Grays Harbor. For a short time, Louie Lakenes used the harbor as a staging
area for the collection ofoyster seed at Broadspitt.
During WW II, virtually the entire natural-set Pacific oysters along the Brinnon shores were
harvested either by the tideland owners or harvesters who leased the ground. After WW II,
Sherwood and Persson harvested and shipped oysters to Grays Harbor from Babare tidelands and
those ofother owners along the shores ofnorthern Hood Canal.
At Black Point were the cabin camps of Old Orchard Beach and Lackawanna Beach. For a short
time Fulton Lake was used as an experimental site for collection of oyster seed.
South of Black Point are the tidelands formed by the delta of the Duckabush River. This area was
part of the Washington State Oyster Reserve but because the effort failed, the Iand was abandoned
and later reverted back to the Washington State Land Department. Joe Leonard of Waketickeh
Creek harvested oysters on parts of the Duckabush for many years. AtthetimetheOlympicCanal
Tracts were being developed, 40 acres ofthe former oyster reserve tidelands were purchased from
the State to provide both beach access and a source ofclams and oysters for the tracts association
members. Farmers such as Ken Gul who leased the ground from the Department of Natural
Resources (DNR) harvested other parts of the tidelands for oysters. However, Mr. Gaul gave up his
lease when the DNR increased the annual lease amount such that he felt that he could not make a
profit. Also, for a time this beach was closed due to harbor seal contamination. Recently, hatchery-
reared geoduck seed was purchased by the Olympic Canal Tracts Owners Association and planted
to enhance existing stocks.
A small effort directed towards rehabilitation of Hood Canal Chinook salmon is being conducted at
the site of the former Duckabush River hatchery. The Hood Canal Salmon Enhancement Group,
which is a non-profit organization dedicated to salmon restoration that works with the Washington
Department of Fish and Wildlife, obtains salmon eggs from the George Adams Hatchery at the
Skokomish River. The eggs are placed in streamside rearing boxes and supplied with running
spring water. After hatching, the young are reared to a size of500 fish per pound and then released
into the river to ultimately reach Hood Canal. About 30,000 to 40,000 salmon fry have been released
at this site each year since 1996.
To the south of the Duckabush are the McDaniel Cove tidelands. Although these tidelands are
small they were once used as a site for oyster culture. South of McDaniel Cove on McDonald
Creek, Harry L. Smith operated the Beacon Point Oyster Farm that is now managed by the Beacon
Point Owners Association. They are also the current owners of what was known as the Beacon
Point Oyster Farm that was located on the northern part ofthose tidelands.
South of the McDaniel Cove tidelands are the Fulton Creek flats which was another of the early
sites used for an oyster reserve and eventually abandoned. This area was later cultivated and
harvested by Zula and Walt Kelly and later by Fletcher Johnson, and still later by Fred Williams
and Partners. Their effort was followed by the Triton Cove Oyster Company.
56
Shellfish Harvesting Rights
In about 1989, thirteen Puget Sound Indian Tribes, with the support of the Federal government,
sued the State of Washington to clarify their rights to shellfish as provided in the 1854 Stevens
Treaty. The Tribes maintained that their treaty rights included the right to harvest all species of
shellfish except for those on staked or cultivated tidelands. Their claim also included the right to
harvest introduced shellfish such as Manila clams and Pacific oysters, to make up for native
shellfish that had been depleted by earlier non-lndians. When the trial was held (starting in 1994),
Federal District Judge Radfeedie sustained Tribal treaty rights to harvest shellfish and ruled that
the Tribes are entitled to 50o/o of the natural shellfish in Puget Sound. These percentages are
consistent with previous decisions of Judges Boldt and Belloni. Judge Rafeedie exempted those
shellfish (primarily Pacific oysters and Manila clams) that were artificially produced and cultivated.
However, he did not award similar protection to Hood Canal shellfish growers because so many of
those shellfish, particularly Pacific oysters, are now the result of natural setting. Also exempted are
oysters or clams cultivated on privately owned or controlled tideland. Indian shellfish harvesting
on private tidelands would be associated with the percentage of cultivated shellfish vs. natural
shellfish, as determined by the "co-managers": the Tribes and the Washington Department of Fish
and Wildlife. Judge Rafeedie also required that those Tribes that intended to invoke their treaty
rights on private tidelands must follow certain notification and stock assessment procedures before
beginning a harvest.
Upon appeal to the 9th Circuit Court in 1995, some of Judge Rafeedie's rulings were overturned and
remanded back to him. The Puget Sound Shellfish Growers Association, private tideland owners,
and the Tribes petitioned the US Supreme Court to hear the case but the Court elected not to do so.
In the meantime, the Puget Sound Shellfish Growers Association and private tideland owners have
been negotiating with the Tribes in an attempt to settle the issues.
A review of The Fisheries for Olympia Oysters, Ostreola conchaphila; Pacific Oysters,
Crassostrea gigas; and Pacific Razor Clams, Siliqua patula, in the State of Washington (by
Cedric E Lindsay and Douglas Simons) is recommended.
Future Objectives
1. The principal aquaculture activities are expected to continue on the Brinnon tidelands, where
private growers will take advantage of natural productivity of the waters for clams and oysters.
Enhancement of public tidelands by artificial reseeding will probably increase, as there is
increasing demand by recreational users and Tribal members. A relatively new activity is the
planting ofhatchery reared geoduck seed on suitable sandy or muddy tidelands.
2. Demand for fish and shellfish is expected to increase. If the business outlook for shellfish
production increases in proportion, private aquaculture will become more profitable followed
by an increase in cultivation efforts. More public funding should be applied toward
development of a "put and take" approach for supplementing natural reproduction on public
tidelands, so long as such a technique would not negatively impact the integrity of the
nearshore ecosystem. Presently, the use of offshore floating structures to transcend the
current limitations of ground aquaculture continues to be economically unattractive due to
storm exposure, the objections of upland property owners, and the potential for negative
impacts to the ecosystem.
3. A multi-species salmon enhancement plan should be developed that takes into account factors
such as overfishing; harvest methods of Tribal, commercial, and sport fisheries; salmon
habitat; forest practices; weather conditions; and property development. One such plan has
already been developed, specific to one species-the Summer Chum Salmon Conservation
Initiative (WDFW and PNPTT 2000).
57
4. Watershed landowners must be aware of and involved in watershed assessment and planning
in order to maintain the health and viability of the Brinnon area watersheds.
GOALS, POLICIES AND STRATEGIES:
GOAL:
G1.0 The maintenance of clean water is a vital necessity for successful aquaculture.
POLICIES:
Pl.l Through appropriate guidance and the application of regulations from Jefferson County,
upland runoff from activities such as logging, mining and property development shall be
controlled.
Pl.z Septic systems shall be maintained at properly functioning levels in accordance with
Jefferson County regulations.
P1.3 The County should undertake a watershed water quality improvement plan including
provisions for resource inspection, identification of problem areas, and recommended
corrective measures, actions and funding sources in order to protect water quality in the
area watersheds.
STRATEGIES:
Sl.l Review and, if appropriate, follow what other communities (e.g., Belfair) have
accomplished to establish and maintain clean water.
GOAL:
G2.0 Establish a working relationship between the Brinnon community and the Tribes and
create an on-going dialogue about the harvesting ofshellfish in the Brinnon area.
POLICIES:
P}J Encourage participation from the "co-managers" of the resource-the Tribes and the
Washington Department of Fish and Wildlife-, the National Marine Fisheries Service
(when appropriate), and Brinnon community members and stakeholders to establish a
working agreement that allow for community education and notification regarding Tribal
shellfish harvesting in the Brinnon area.
STRATEGY:
S2.l Conduct two town meetings annually with Tribal leadership, WDFW, NMFS (when
appropriate), and community members and stakeholders. These meetings should review
the Tribes' long-term harvest plans as well as upcoming harvest activities in the Brinnon
area, including dates, locations, and harvest amounts. In addition, discussions should
take place about past harvest activities and impacts to private property owners.
GOAL:
G3.0 Ensure the viability of tidal and subtidal resources through improved management.
POLICIES:
P3.l Jefferson County should maintain a policy ofdesignating aquaculture as a preferred use
of the tidelands and the beds of navigable waters. State shoreline legislation, the l97l
58
Shoreline Management Act, has already designated Hood Canal as a Shoreline of
Statewide Signifi cance.
P3.2
P3.3
Jefferson County should encourage private as well as public priority for aquaculture.
Ownership patterns vary along the marine shoreline. In order to cultivate and/or harvest
shellfish in some areas, it is neQessary to obtain a lease from the Washington Department
of Natural Resources, the State agency that manages State-owned tidelands and
bedlands. Approval of offshore aquaculture and shellfish harvesting includes
consideration of aesthetics.
GOAL:
G4.0 Support a countywide Salmon Recovery Program based on "best available science" and
focus on the protection and maintenance of critical fish habitat.
POLICIES:
P4.l Jefferson County should participate in a coordinated salmon recovery program
STRATEGIES:
54.1 Encourage more cooperation between agencies (e.g., the United States Fish and Wildlife
Service, Washington State Department of Fish and Wildlife and Jefferson County) and
property owners and land users (e.g., foresters, farmers, recreationalists, etc.) on how to
better protect fish habitat.
S4.2 Obtain Jefferson County support to establish a local 'Adopt a Creek (or a River)' program
that allows local residents to be actively involved in the improvement of salmon (fish)
habitat.
S4.3 Encourage local residents to be actively involved in existing volunteer organizations that
work towards salmon enhancement, including improving salmon habitat.
59
Housing Element
Affordable Housing
Improving the conditions of and access to affordable housing is a prime concern of this Subarea
Plan. The challenge is a significant one. The following indicators signify the depth and breadth of
affordable housing and household income conditions in Brinnon.
Median household income levels for the Brinnon area are significantly less than
that for Jefferson County and the state of Washington. Median household income
levels in Brinnon are almost 40%o lower than those in the rest of the county.
According to the 1990 Census, the median household income for Brinnon was
S15,719, compared to S25,197 for Jefferson County as a whole.
a
According to local school district officials, as many as 40Yo of Brinnon households
may have incomes that fall below the Federal poverty level.
The 1990 Census reported that more than one-half (57o/o) of all households in
Brinnon were classified as low or moderate income.
A review of building permits issued by Jefferson County for construction in the
Brinnon area over the last five years reveals that about as many mobile and
manufactured homes (56) were permitted as site-built single-family residences (59).
Visual and anecdotal evidence suggests that the Brinnon area contains a higher
degree of substandard housing than any other area of the countyo except perhaps
the West End.
Finding affordable housing is further compounded by escalating prices for many existing homes
and acreage as the area becomes more attractive for retirement living and for second homes.
Brinnon's abundant and beautiful shoreline and river valleys and the close access to public
recreational lands are particularly attractive for recreational home purchases and a relative bargain
(for seasonal home purchasers) compared with other areas of the Peninsula and Puget Sound.
According to local realtors, for example, 5-acre waterfront lots have, on average, more than doubted
in value in the last decade. In 1990, five acres of raw land with a good water view typically sold for
$15,000 to $24,000. Today those same parcels sell for $45,000 to $55,000, with no improvements.
Most of the original waterfront homes along the Hood Canal shoreline were small cabins. But as
the area's attractiveness for second home purchase and retirement living increased many of the
cabins were sold and replaced by new larger or remodeled homes. A typical waterfront cabin or A-
frame sold for $125,000 and a home for $195,000 in 1990. Today those same cabins and homes are
selling for $150,000 to $275,000. Water view homes have typically increased value by 50%o or more
over the last decade. For example, in the early 1990s, water view homes were selling for $85,000 to
$100,000, and some of the same homes have recently sold again in the $135,000 to $155,000 range,
although it is not uncommon to see waterfront homes for sale in the $400,000 to $600,000 range.
Based on current conditions many Brinnon residents are unable to afford local site-built home
prices and have utilized mobile/manufactured housing as an affordable alternative. However, other
alternatives such as higher density or multi-family housing, such as apartments, are either not
allowed by local land use regulations or the infrastructure (i.e., sewer and water) is not available to
make such development feasible where it is allowed, such as in the Brinnon RVC. Lacking a
significant local job market or opportunity for skilled labor, residents in the local labor force must
either move or travel greater and greater distances away from Brinnon to find a larger market for
a
a
a
a
60
living wage employment. These are significant challenges, especially given Brinnon's isolated
location, low income levels and frequently hefficient transportation access to employment,
workforce training or education centers. Providing alternative access to a broader range of local
potential employment opportunities is discussed in more detail in the Economic Development
E,lement of the Subarea Plan.
Local land use regulations are often cited as primary reasons for the lack ofaffordable housing in a
community. The following techniques are among those considered to have an exclusionary effect
on providing housing affordable to a local community. Each item includes a brief evaluation of the
applicability of Jefferson County's land use policies and regulations as represented in the
Comprehensive Plan (CP) and Unified Development Code (UDC), respectively.
Minimum Lot Area Requirements
The Rural Residential (RR) districts in the County are one dwelling unit per five acres (RR l:5), RR
l:10, and RR l:20. This is an impediment to small lot, higher density development, which better
provide affordable housing. However, the County has an excess of legal lots ofrecord, most of
which are smaller than their assigned development density. Additionally, the minimum lot area
necessary for an onsite sewage system, according to regulations implemented by the
Environmental Health Division, is 12,500 square feet. The County is planning to designate an
Urban Growth Area (UGA) in the Port Hadlock/lrondale area. The new UGA will provide increased
opportunity for affordable housing, however this area is a significant distance from Brinnon
(approximately 30 miles) and is not expected to significantly benefit the affordable housing needs
of local Brinnon residents.
Minimum Floor Area Requirements
The County does not have floor area requirements. The Uniform Building Code (UBC) requires a
minimum 220 square feet for an "efficiency dwelling unit" (i.e., a habitable dwelling). However, this
is not considered an impediment to providing safe affordable housing.
Limitations On Multi-Family Dwellings
Unless the applicant can meet the land use map base density, multi-family dwellings (defined as
three units or more in the UDC) are not allowed in RR districts, presenting a definite impediment.
Multi-family dwellings are allowed in Rural Village Centers (RVC). Duplexes are allowed in RR
districts, subject to meeting the underlying density requirements (such as two 5-acre parcels if the
density is RR l:5). Approximately 93%o of the Brinnon RVC is located within the 100-year floodplain.
This situation requires increased costs for flood-proofing new development in the RVC (i.e., to
raise the minimum building elevation above the 1O0-year flood elevation level). The presence of the
floodplain in the RVC also restricts the ability to acquire State and Federal funding for sewer or
water utility improvements that would allow for increaseddensity and potential affordable housing
projects.
Limitations On Manufactured Dwellings
There are no County limitations to manufactured dwellings on individual lots. Accessory Dwelling
Units (ADUs) are allowed to a maximum size of 1,250 square feet- a figure that was raised through
adoption of the UDC from a maximum 850 square feet to provide more affordable housing
opportunities. Recreational Vehicles (RVs) can also be used on individual privately owned lots as
living units-subject to meeting minimum septic standards in the UDC and the Health Code.
Minimum Yard, Setbach and Bulk Requirements
County side yard setbacks are five feet; these cannot be lowered further. Front setbacks are a
function of the street classifi cation.
6l
Overzoning (e.g., devoting a disproportionate amount of land area to lowdensity, single-family
use)
The majority of the County, subtracting forestlands, is Rural Residential. This is a State-mandated
Growth Management Act (GMA) requirement to protect "rural character" that is a significant
impediment to providing affordable housing.
Incentive ZoninglBonuses
The UDC offers a zoning bonus for inclusion ofaffordable housing (20Yo oftotal units and above)
in new Planned Rural Residential Development (PRRD) subdivisions. However, because of the
oversupply of tegal lots of record, there is not a significant demand for new large-scale residential
housing developments.
Permit Fees
Building permit and consistency review fees can be an impediment for true affordable housing
construction. Building permit review and "plan check" fees are based on guidelines in the Uniform
Building Code (UBC), which the County has adopted. For each valuation range of a building
project, the UBC presents a corresponding base fee using Table l-A in the 1997 UBC Fee Schedule.
The UBC allows a jurisdiction to make an additional charge for the plan check. The plan check fee
is allowed to be a maximum of 65% of the base fee. Jefferson County charges 650/o of the base fee
for a commercial plan check, but has historically only charged 30% for residential plan check. The
residential plan check fee has changed to 650/o ofthe base fee through the2002 budget process to
implement the "fee for service" strategy of the County administration. The County has not adopted
"impact fees" for new development.
Land Costs
Land costs may be a serious impediment in Jefferson County. The median home price was
estimated to be $176,400 in the year 2000 by the Washington Center for Real Estate Research
(WCRER), a program of Washington State University. The median home price in 1995 was $127,300.
In that span of time, the median home price in the state of Washington rose from $136,600 to
176,300, a similar range to the Jefferson County figures. However, the median household income of
Jefferson County is consistently lower than that of the state, $29,002 to $38,707 in 1995 and$34,662
to $50,152 in 2000, according to the Washington State Office of Financial Management.
Consequently, the affordability index, a measurement of the ability of a typical family to make
payments on a median price resale home assuminga20% down payment, is lower for Jefferson
County than for the state (WCRER) and even lower in Brinnon than other parts of the county.
Commercial Zoning
The Comprehensive Plan does not require a minimum lot size. New subdivisions have to meet the
base map density. RVC districts allow mixed use commercial/residential with no limitation (other
than bulk and dimensional requirements and the on-site septic and well requirements) on the
number of dwelling units per acre.
GOALS, POLICIES AND STRATEGIES:
GOAL:
Gl.O Secure safe and affordable housing opportunities for Brinnon residents,
62
POLICIES:
Pl.1 Continue exploring planning options that would allow for the location and siting of new
compact higher density housing in order to provide affordable owner- and renter-
occupied housing units.
Pl.2 Coordinate with the County to continue working with the US Department of Agriculture
(Rural Development), Department of Commerce (Community Development Block Grant),
Housing and Urban Development (HUD), Department of Energy, US Economic
Development Assistance (EDA), and other agencies to utilize existing grant, loan or other
funding programs to provide for the construction of affordable housing and to plan,
design and construct a water/wastewater treatment system for the Brinnon Flats RVC that
would allow for the construction of affordable higher density housing and assisted living
facilities, if desired or required by the community.
Pl.3 Ensure that the Brinnon Planning Area is considered in any future countywide affordable
housing strategy.
63
Parks & Recreation
Current Conditions:
Hood Canal, the Olympic National Park, and the Olympic National Forest provide an abundance of
recreational opportunities, and asist in the economic development of the Brinnon area in ways
such as tourism and commerce. There are a number of State and Federal parks and campgrounds.
There are three public boat launches operated by the State of Washington. There are also private
campgrounds and boat launches. However, other than the Brinnon school complex, the Brinnon
area does not have a community park or recreational area.
Camping, hiking and boating opportunities are
abundant in the Brinnon area. The following is a
partial list of these activities, beginning at the
area' s northern boundary :
Mt. Walker offers hiking trails and
vistas of Hood Canal, Puget
Sound, and surrounding mountain
ranges.
USDA Forest Service Rainbow
Campground, located at the foot
of Mt. Walker along Highway l0l,
has hiking trails and nine (9)
group-only dry campsites (no
showers, etc.).
a
a
a
a
Washington State Department of
Fish and Wildlife (WDFW) Point
Whitney Shellfish Laboratory, has
a public beach, boat launch, dock
(proposed to be rebuilt), rest-
rooms, and shellfish interpretive
center; no overnight camping. A
public beach is seasonally avail-
able for crabbing, clamming and
oy sters.
Roclcy Brook Falls, an early lourist atlraction.
Cove RV Park has divers air, rentals, an espresso stand, and thirty-plus full hookups
for RVs. Also offered are propane, fishing tackle, crab/shrimp gear, bait and WDFW
licenses.
The USDA Forest Service Seal Rock Campground has forty (40) wooded campsites,
two building with restrooms, and a beach with oysters and clams. A nature trail and
interpretive signage identifies a Native Anerican archeological shell midden and
camp.
The USDA Forest Service Elkhorn Campground on the Dosewallips River has
nineteen (19) wooded, primitive campsites with vault toilets and a single source of
water, and is located approximately ten miles off US Highway 101, nearthe trailhead
a
64
a
\
m
t
a
into the Olympic National Park. It is not recommended for access and use by large
travel trailers or motor homes.
Dosewallips National Park Campground, located at the end of the road and the
beginning of the trailhead into the Olympic National Park, has approximately rwenty-
four (24) primitive campsites, stock camp for horses and pack animals only, restrooms
and shower facilities, and a Ranger Station. It is not recommended for access and use
by large travel trailers or motor homes.
The Flock-in Trailer Park in the heart ofBrinnon is close to stores, restaurants and the
post office, and has fourteen (14) full RV hookups and restrooms with showers.
Dosewallips State Park has approximately 110 wooded campsites (some with full RV
hook-ups) on or near the Dosewallips River, showers, restrooms, a limited RV
dumping station, hiking trails, public beach with oysters/clams, and a day use park
with restrooms.
Pleasant Harbor State Park has vault toilets, limited parking area, and a dock available
for overnight boating (no overnight camping or parking).
Washington State Department of Fish and Wildlife has property at the south end of
Pleasant Harbor with potential for a boat launching facility. There is no overnight
camping.
USDA Forest Service Interorrem Cabin is available by lottery only for group (4 or
less) camping and has vault toilets and a hand pump well.
The USDA Forest Service Camp Collins Campground, approximately six miles off
Highway 101 on the Duckabush River, has primitive camp sites with vault toilets and
is located near the trailhead into the Olympic National Park.
The former Twin Eagles RV Park located at the mouth of the Duckabush River is now
owned by the Washington State Department of Fish and Wildlife and is available for
day use only.
Triton Cove Washington State Department of Fish and Wildlife Beach, located just
north of Triton Cove State Park, is available for clams and oysters.
Triton Cove State Park, located just north of the Mason/Jefferson County line, has a
day-use area, a boat launch and portable toilets.
a Outdoor activities are also well documented in a number of publications including:
Olympic Mountain Trail Guide - 2'd Edition, National Park and National
Forest by Robert L. Wood, l99l .
Middle Puget Sound and Hood Canal - Afoot and Afloat by Marge and Ted
Mueller, 1990.
Saltwater Fishing in Washington by Frank Haw and Raymond M. Buckley, 1988.
Clam Digging and Crabbing in Washington by John Johnson, l99l
a
a
a
a
a
a
a
o
a
65
Additional recreational facilities in the Brinnon area consist of:
a Camp Parsons, a Boy Scouts of America summer camp and winter retreato is a member
of the American Camping Association and has limited group acaommodations off-
season on a reservation basis. It also is a Red Cross station and has an Emergency
Medical Response helipad. Camp Parsons is unique in its designation of Private
Parks, Preserves, and Recreation (PPR).
a Pleasant Harbor Old Marina offers monthly rental of 99 boat slips, showers, restrooms
and laundry. No transient moorage is available
a Pleasant Harbor Marina offers monthly and daily rental of 312 boat slips, grocery and
pizza, gas/diesel dock, swimming pools, hot-tub, showers, restrooms, laundry.
a The Pleasant Harbor Campground (former NACO Campground), located at Black
Point Road and Highway 101, is a private campground, now open to the public on a
limited basis by reservation, with swimming pool, sauna, clubhouse, showers,
restrooms, and expansive beach.
Additionally, there are numerous State beaches, which are accessible by boat only
Vision
The residents of Brinnon have a vision that certain recreational activities could be expanded and
promoted to serve the local residents and to attract visitors and tourists to our area, thereby
contributing to the vitality of the community. The following elements of that vision are divided into
semi-active and active recreational activities. Implementation of any of these activities could
require the agreement of and possible easements from private property owners and/or State and
Federal agencies.
Semi-Actir.e Recreation Elements :Activities:
Walking/hiking Tours More hiking trails like that in the Dosewallips
State Park.
A boardwalk out to the Dosewallips State
Park beach and the Duckabush beach.
More road tour areas (by automobile or bus)Bus tours from major metropolitan areas
along the length of US. Highway l0l and
return. Include a rest stop at the Brinnon
Rural Village Center.
More automobile tour areas such as at
Walker Mountain and along the Duckabush
and Dosewallips river roads.
Hood Canal boattours Seasonal tours/rides provided out of
Pleasant Harbor.
Provide camping facilities commensurate
with the level of public demand. Provide
campers with literature about things to do in
the Brinnon area.
Camping
66
Golf Range Where the water table depth and other
environmental limitations will allow, consider
development in the floodplain,
Swimming Pool Where the water table depth and other
environmental limitations will allow, consider
development in the floodplain.
Roller Rink Where the water table depth and other
environmental limitations will allow, consider
development in the floodplain.
Seaplane/airplane/ hot air balloons tours Seasonal seaplane tours out of Pleasant
Harbor and airplane tours out of local
airports. Hot air balloon tours should be
considered as well.
Brinnon Area Museum History of Native Americans, settlers,
comm erce, transportation, etc.
Nature Tours (with Park Rangers and Naturalists) Seasonal hiking tours to observe wildlife,
flora and fauna, geology, bird watching, etc.
Active Recreation Elements :
Bicycling
Activities:
An improved bicycle lane on US Highway
r0l.
A mountain bike lane on both the
Dosewallips and the Duckabush roads,
providing the County roadway can
accommodate it.
Consider the construction of a "Hood Canal
Trail" for non-motorized bikes, hiking and
horseback riding. Possibly this trail may be
developed, in part, under the BPA power
lines, with permission of private property
owners. This trail could eventually link up
with the "Olympic Loop Trail" being
developed by the Peninsula Trails Coalition
and others.
Hiking Provide maps and recommended routes in an
area visitor center, and encourage the state
and Federal parks to develop more trails.
Construct a "Hood Canal Trail" for non-
motorized bikes, hiking and horseback riding.
Possibly this trail may be developed, in part,
under the BPA power lines, with permission
of private property owners. This trail could
eventually tink up with the "Olympic Loop
Trail" being developed by the Peninsula
Trails Coalition and others.
67
E,questrian Consider possible locations for equestrian
sites up the Dosewallips and the Duckabush
rivers with trails for touring.
Construct a "Hood Canal Trail" for non-
motorized bikes, hiking and horseback riding.
Possibly this trail may be developed, in part,
under the BPA power lines, with permission
of private property owners. This trail could
eventually link up with the "Olympic Loop
Trail" being developed by the Peninsula
Trails Coalition and others.
Motorbikes Consider developing a separate trail
system or an area set aside purely for this
activity.
Rock and Mountain Climbing
Kayaking
Boating
Sea Food
Provide maps and recommended routes.
Hood Canal recommended kayaking routes.
Hood Canal recommended routes.
Recommended locations for fishing,
crabbing, clamming, shrimping, oyster
gathering, etc.
Hunting
Camping and RV Sites
Recommended hunting locations.
Expand the number of sites in the Brinnon
delta area to match the seasonal demand.
Parks and Playgrounds Expand the number ofparks and playground
sites in the Brinnon to match projected
demand.
Recreational and Tourist Facilities
Transient Accommodations
Descriotion
More local B & Bs, motels, hotels, inns and
hostel s.
Food Services More restaurants and expanded grocery
service,
Promotional Activity
Brinnon Area Wcb Site
Description
Provide recreational, tourist, business and
support services information (in addition to
that provided by the Chamber of Commerce
and other organizations).
A tourist center that provides public
recreation and tourist information should be
located at either the existing Dosewallips
Tourist Center
68
State Park (Day Use Park) or at a future park
located at the southern end of Pleasant
Harbor that pesently contains a potential
boat launch facility and parking area owned
by the Washington State Department of Fish
and Wildlife. [See Goal 1 under Historical
and Archeological Cultural Resource
Preservation.]
Promotional Advisory Group A group of local citizens and Jefferson
County officials responsible for planning
and promotional strategy.
GOALS, POLICIES AND STRATEGIES;
GOAL:
Gl.0 Expand and promote tourist and recreational areas and activities for local residents,
tourists, recreational enthusiasts and visitors.
POLICIES:
Pl.1 The development and improvement of community parks and playgrounds in the Brinnon
area should provide for active and passive recreational pursuits, as prioritized and funded
by the Jefferson County Parks and Recreation Plan, currently being revised by the
Department of Public Works, and the Capital Facilities Element of the Jefferson County
Comprehensive Plan.
Pl.2 The development of trails for hiking, biking and horseback riding in the Brinnon area
should be included in the Jefferson County Parks and Recreation Plan and similar plans
for the USDA Forest Service and Olympic National Park.
Pl.3 Every effort should be made by public and private park operators to prevent user'over
spill' onto private properties and private tidelands. Signage, fencing, and other measures
should be employed.
Pl.4 Recreational facilities and programs should accommodate a diversity of age and interest
groups. Provide access under the Americans with Disabilities Act.
Pl.5 Pedestrian and bicycle facilities should be provided on the Dosewallips and Duckabush
River Roads , as prioritized and funded by the Jefferson County Non-motorized
Transportation Plan, currently in development, and the Capital Facilities Element of the
Comprehensive Plan. There should be appropriate signage on these roadways to alert
motorists and provide direction to cyclists. The Washington State Department of
Transportation should be encouraged to do the same improvements for US Highway l0l.
P1.6 Encourage conservation ofthe area's rural character and resources.
STRATEGIES:
S1.1 Citizen participation in cooperation with Jefferson County must be an integral part in the
planning, promotion and improvement of recreational areas, activities and facilities,
including those associated with Washington State and the US Federal government.
69
st.2 A local site should be identified and acquired or improved, as applicable, for future
development of a community park large enough to contain a variety of activities (e.g.,
soccer, baseball, etc.).
sl.3 Joint use of the Brinnon School facility for recreational programs is encouraged. An
example ofthis is that the school facility could be used as a gathering place for our youth
during non-school hours.
s 1.4 Obtain Jefferson County support to establish a local Community Center and/or improve
existing facilities to encourage residents to participate in community events/activities.
Historical and Archeological Cultural Resou rce Preservation
Much of the early history of Brinnon is contained in the book self-published by Vern and Ida
Bailey, Scrapbook of Brinnon History (Perry Publishing: Bremerton 1997). Many of the historical
materials from some of the settling families are currently in the Quilcene Museum and Port
Townsend Museum, The pictorial documentation, of which there is a great deal, can be found in
the Burke Museum, University of Washington archives and numerous archives containing the
large collections of the Curtis brothers, etc. These caretakers of our history are best prepared to
maintain these items safely and protect them from deterioration by the Best Management Practices
used by this type of facility. There are many heirloom orchards that still stand as a testament to the
vitality of Brinnon and still produce crops.
GOALS, POLICIES AND STRATEGIES:
GOAL:
Gr.0 Showcase our historical background and future regarding natural resources (logging,
shellfish, fishing) and natural habitat (for birds, fauna, and sea-life).
POLICY:
Pl.l Develop a plan to provide a historical, educational, and recreational center to be located at
the south end of Pleasant Harbor, which would include an interpretive center with a park
and rest area,
STRATEGIES:
Sl.l Establish a partnership that includes USDA Forest Service, National Parks, Washington
Treaty Tribes, Department of Natural Resources, Washington Department of Fish and
Wildlife, Jefferson County, and Port of Port Townsend, with Brinnon community members,
to develop and maintain this multi-functional center.
sl.2 Form a committee of local citizens willing to gather copies of items for a local resident and
tourist informational display.
SI.3 Form a committee of local citizens to create an inventory of the heirloom orchards, for
horticultural and historical purposes.
70
Economic Development Element
In early years, logging was a primary source of employment, followed by the shellfish industry,
retail and/or service trades, fishing, construction activities, government, and real estate. Retail
and/or service trades and construction activities were primarily individual or family oriented
businesses, offering limited opportunity for generalized employment. More recently, Brinnon has
been a retirement community, with its economic base supported primarily from the recreation and
tourist trade and 'pension' dollars. Currently, in addition to the recreation, tourism and pension
dollars, Brinnon is experiencing a slow diversification of economic activity due to changing trends,
with wage-earners commuting to out-of-area employment, early retirees with secondary income,
computer/internet at-home employment, and various local entrepreneurs.
Brinnon is a classic case of a resource-based community faced with the need for economic
transformation in a changing world. Traditional and historic logging, fishing and resource-based
support activities have been grudgingly reduced due largely to changing market conditions and
tighter environmental restrictions as a result of the impacts of past practices. Brinnon too, like other
rural communities in Western Washington, does not want to be frozen in time and become a "rural
museum piece." The community-consistent with the requirements of the GMA--{esires to
"foster" (i.e., promote) its traditional rural lifestyles and rural based economy by creating
opportunities for residents to both live and work here. But to do so will mean overcoming great
obstacles. Brinnon is truly at a crossroads. Its challenge is to how to take advantage of its best
attributes-its own natural environment and friendly people-and its biggest liabilities-its remote
location and lack of infrastructure-and together weave a new and lasting economic fabric.
There are significant impediments to increasing economic development activity in Brinnon. The
relatively small population, remote location and distance to major population and employment
centers are the primary reasons for its limited economic development activity. However, other
factors have also contributed, including the lack ofsignificant available and marketable land zoned
for commercial/industrial activity, the lack of significant infrastructure (e.g., public sewer and water
systems) to accommodate new and more intensive commercial and industrial activity, the lack of a
significant and coordinated economic development marketing and promotion program, and a
relatively small and untrained workforce.
Year 2000 Census estimates for economic, work force and employment characteristics have not
been released as of the date of this writing. However, some data from the 1990 Census in these
areas can help to describe some of Brinnon's economic development characteristics in more detail
and perhaps indicate issues that need to be addressed so as to improve the climate for economic
development.
The labor force participation rate is the ratio of all persons seeking work (including employed and
unemployed persons) to the total number ofpersons aged 16 and over (who are oflegal age to be
employed). According to the 1990 Census, the labor force participation rate in Jefferson County as
a whole was 50%o while the rate in Brinnon was only 28%o.There are likely several factors at play
here to explain the significantly lower figure in Brinnon. Chief among them are the increasing
influence of retired persons in the community most of whom are not actively seeking employment
themselves. Another factor that may contribute to the lower local labor participation rate is the
relatively high rate of work force disability in Brinnon. The 1990 Census indicated that20o/oof the
total persons aged 16 to 64 in Brinnon suffered a disability that prevented them from working
compared to a5o/o disability rate for all of Jefferson County.
Both of these factors are important in understanding why the community needs to expand and
diversify its range of economic activity. Communities with growing populations of retired persons
7l
and those experiencing high rates ofworker disability typically require higher levels ofand better
access to human services and commercial support activities than other communities. The "trap"
that Brinnon finds itself in is that at the same time as these populations demand more and better
access to these services (in effect comprising a "market" themselves), the community is not of the
critical size yet to justifi enough demand to make feasible many of these services-given its
isolated location and distance to major population centers. Many businesses have been
marginalized and even failed due to lack of critical mass or enough local market support. One way,
and perhaps the most efficient way for Brinnon to make those kinds of services and businesses
more feasible is to "create" additional demand for those commercial support activities by taking
advantage ofthe underutilized tourism and recreational nature ofthe local economy. In effect, by
"piggybacking" on the tourism sector-which Brinnon is very well suited to accommodate-to
increase the market and demand for new commercial development in a manner that can still preserve
its rural character.
Brinnon's labor force is relatively small and exhibits characteristics common to many rural and
formerly resource-based economies. The 1990 Census reported a total of 230 employed persons (16
years and over). Of those, more than one-half (53%) were private sectorwage and salary workers,
one-third (33%) worked for local, State or Federal govemments, and the remainder (14%) were self-
employed workers. The remote rural character of the area accounts for the relatively high number of
self-employed persons. The presence of State facilities (e.g., the Point Whitney Shellfish
Laboratory md Dosewallips State Park) and Federal lands (e.g., the Olympic National Forest and
National Park) account for the relatively large number of government workers in Brinnon.
1990 Census data for occupations in Brinnon provide a good analysis of the local employment
sector. The retail trade, durable goods manufacturing, transportation, and personal services sectors
of the local economy accounted for the largest share of employment, respectively, in 1990.
Indicative of the dramatic loss of the natural resource economic base of the community, the
agriculture, forestry, fishing, and mining sector of the local economy, combined, provided only
eleven jobs in Brinnon in 1990. It is ironic that an area dominated by 80% designated forest
resource lands on the Comprehensive Plan Land Use Map generates less than 5% of its total
employment from the industries associated with those resource lands. The total breakdown of
employment sectors in the local economy is shown in the following table.
BRJNNON LOCAL EMPLOYMENT SrcTORS (l 990)
Employment Sector Total Employees
(l990)
Percent of
Total Emplovment
Retail Trade 44 t9%
Manufacturing, Durable Goods 4l t8%
Transportation 37 t6%
Personal Services 23 t0%
Public Adminislration 20 9o/o
Wholesale Trade, Utilities & Communications t7 7v,
Professional Services l6 7o/o
Forestry, Fishing, Mining, & Agriculture ll 5Yo
Finance, Insurance, Real Estate 8 3%
Education 7 3%
Constructio n 6 3%
TOTAL 230 l00o/o
In 1990, Brinnon had generally lower educational attainment levels than the county as a whole. For
example, 59% of its residents (aged 25 years and over) were high school graduates or higher in I 990
72
compared to 82Yo for the county as whole. This suggests that the labor force may need better
access to work force training and other educational outreach opportunities. It also suggests that
Brinnon-in addition to its lack of efficient transportation access to major markets and other
constraints-is not likely to be as competitive as other areas in the region in attracting new
technology or other industries requiring a highly skilled or highly educated labor force. This, in
turn means that wage levels are likely to remain generally lower in Brinnon compared with other
areas ofthe region better able to attract higher paying industries.
Historic Business Activity
Hemmed in by the Olympic Mountains to the west and Hood Canal to the east, and bisected by
two major river valley floodplains, habitation and settlement concentrated along the narrow belt of
upland lands adjacent to the Hood Canal shore. Since its early years, Brinnon's business inventory
has grown considerably, although only a handful of businesses are situated in the 'downtown'
area of Brinnon, the Rural Village Center. Commercial enterprises are located throughout the
Brinnon planning area, in keeping with this rural and historically mixed-use area. The Business List
Map (Figure BR-13) illustrates some of the variety of businesses that have existed in the Brinnon
area in the past, as well as businesses currently operating. The map illustrates the historically
dispersed and scattered pattern of economic development activity throughout the planning area.
Even though the historic "core" settlement of Brinnon was located along the "Flats" adjacent to
the mouth of the Dosewallips, it represents only a small component of the entire Planning Area's
historic economic development activity. Indeed, the major residential settlements in the Planning
Area occurred outside the Brinnon Flats (and the associated floodplain). Economic development
activities largely followed the residential settlement pattern that occurred on a regular and recurring
basis throughout the rural Hood Canal shoreline and higher elevation river valley areas. Many
commercial/industrial activities also desired to locate out of the Dosewallips floodplain for obvious
Isolation
Brinnon's isolation is both its blessing and its curse. It accounts, to a large degree, for the slow-
paced rural lifestyle-the peace and quiet---of the area. That-characterized by the predominance
of the natural environment-is the primary attraction for many residents looking to "get away"
from someplace not so isolated. But that also means the community is out of the economic
mainstream and subject largely to their own economic devices. It is a characteristic and challenging
economic environment not uncommon to remote rural areas.
The Brinnon community is unique in many aspects and deals with many constraints, among them
topography, limited acreage held in private ownership, isolation, and long narrow inhabitable
territories. We are the most physically isolated populated area in Jefferson County-12 miles from
Quilcene, 25 miles from Port Hadlock, and 45 miles from the County seat in Port Townsend-
separated from the social, economic, and cultural amenities other Jefferson County communities
take for granted. To conduct business in Port Townsend or even go grocery shopping can be an
all-day event-assuming that the highway is passable. There is literally only one paved road-
Highway lOl--connecting Brinnon with the rest of the world. This results in very high
transportation costs for local residents who work in Port Townsend and have to commute every
day, There is only very limited bus service. For some lower income residents-who cannot afford
dependable private automobile transportation and maintenance costs-the isolation can be a
prohibitively expensive obstacle to securing a living wage job outside of Brinnon.
The area is particularly susceptible to natural disaster. In winter, it is not uncommon for snow or ice
storms, mudslides, wind-blown trees or flooding due to heavy rainstorms to cut-off access on
Highway l0l. A severe forest fire during the summer or bridge failure caused by flooding or
earthquake can severely impact access to urban services. In these instances, the historic self-
73
sufficient and independent nature of the community and its residents takes on a whole new
meaning. It also suggests-more than any other characteristic-the "unique local circumstances"
present in Brinnon that argue for recognition of altemative economic development strategies.
Recreation and Tourism
A cornerstone of economic development in the Brinnon Planning Area is tourism. With over 20
miles of beautiful saltwater shoreline accompanied by excellent marinas and other shoreline access,
and two long river valleys approaching the Olympic National Forest and Olympic National Park, the
potential for tourist and recreation-related uses is extraordinary. According to the Norlh Olympic
Peninsula Regional Marketing and Tourism Infraslructure Strategy, prepared for Jefferson
County in June 2000, it is estimated that as many as 500,000 tourist visitors travel through the
North Olympic Peninsula in the peak summer months. The USDA Forest Service reports that
approximately 25,000 visitors stop in annually at the Visitors Center in Quilcene. The Forest Service
also reports that about 20,000 campers annually utilize the approximately 250 campground sites
located in the various national forest campgrounds located along the east side ofthe National Park
from Hoodsport to Quilcene.
However, the lack of private tourist
accommodations and services in
South County often means that
potential economic benefit from
tourism spending is lost to other,
more developed, areas of the
Peninsula. In addition, there is not a
coordinated marketing or tourism
promotion program in effect to "get
the word out." Brinnon is usually
not even mentioned-much less
highlighted-in most guidebooks
regarding recreational and tourist
opportunities in Washington or the
Pacific Northwest.
Looking north across the Hood Canalfrom Brinnon. Nevertheless, Brinnon is extremely
well-suited to capitalize on tourism
development. Popular recreational activities in the area include boating, fishing, hunting, shellfish
gathering, hiking, camping, birdwatching, mountain biking, scuba diving, and visiting historical
sites, Small-scale recreational and tourist uses are an integral part of Brinnon's "rural character"
and "traditional rural lifestyle," while a master planned resort concept would help to expand the
scope of tourist accommodations and recreational attractions in the community and could help to
capture more tourist dollars in the local economy.
Brinnon's economy has been supported by tourism since early in the 20s Century. The logging
industry, which initially brought new settlers to work here and provided their income, continued to
be a strong part of Brinnon's economy until its collapse in the 1980s. But for most of the last
century there were also short-term visitor accommodations in the form of hotels, small resorts and
summer cabins located all along Hood Canal. While tourists and other visitors have always
enjoyed Brinnon's outdoor activities and abundant seafood, the shortened fishing and shellfish
harvesting seasons of recent years have made attracting tourists increasingly difficult. The
importance of protecting Brinnon's unique marine environmental resources and their importance to
the local economy cannot be understated.
74
The people ofBrinnon recognize that developing recreational opportunities enhances the economy
while preserving Brinnon's rural character. Brinnon residents know that they live in a community
that visitors appreciate. They enjoy the traditional rural [ifestyle. They approve of the types of
businesses that are consistent with rural character while protecting basic health and safety and the
environment. They know that tourist-related businesses are those for which the area is, and has
historically been, best suited. Tourists and tourist related businesses are welcomed in the Brinnon
community.
Many Brinnon residents commute to other areas daily to earn an income that allows them to live in
this rural community that they enjoy. Most of the residents, retired and working, do their shopping
and fuel their vehicles outside of the Brinnon area. Many of Brinnon's tourists shop and fuel their
vehicles while visiting here. This is typical of rural areas that rely on tourism to help support their
economy.
Small-scale recreational and tourist services are located in the rural areas near the resource they
serve. It is common to have many of these services consider themselves "home businesses." Most
have little impact on their neighbors and are in areas that are "pass-throughs" to the National
Forest and National Park. Given the remoteness of the area, these uses are essential to the
continued economic viability of Brinnon.
The Parks and Recreation Element of the Subarea Plan contains a more detailed description of
existing recreational and tourist-related uses and potential business opportunities.
Fhture Objectives
We treasure our environment, our resources and our neighbors, and it is the intent of this
community to maintain these as well as be economically self-sufficient. Because of the nature of
our constraints, we feel the strict application of conventional "land use districts" and their
attendant "use tables" (that may be suitable for areas with fewer constraints) do not always
provide an adequate "fit" to our community and the needs of our rural economy and rural lifestyles.
Indeed, the sizing of the existing LAMIRD designations (Brinnon RVC and WaWa Point) provides
sufficient constraint on new commercial/industrial economic activities so as to preclude any
significant new economic development opportunities. [See further discussion in the Rural
Commercial section of the Land Use Element.] We find this inconsistent with the requirements of
the GMA "thal traditional rural liftstyles including rural-based economies and opportunities
are to be fostered' in the pattern of land use and development established by a county in its
comprehensive plan per RCW 36.70A.030(l )@) and RCW 36.70A.070(5).
In Brinnon, "rural development" means a mixture of uses co-existing compatibly that preserves the
community's "rural character." It always has. It is also consistent with the definitions and
requirements of the GMA and RCW 36.70A.070(5). Our preference for small-scale owner-operator
endeavors in rural areas and recommended revised LAMIRD boundaries and designations-along
with the conditions and requirements contained in this Subarea Plan, the Jefferson County
Comprehensive Plan and the Unified Development Code-wilt retard and restrain the threat of low
density sprawl and maintain the balance of rural lifestyle and self-sufficiency.
At the same time, we understand that for our local economy to survive we must adapt and be
responsive to outside markets and trends. Capitalizing on our abundant natural resources and
scenic amenities we must take advantage of new markets for tourism and recreational opportunities
that can increase investment and spending in the local economy. The potential for a master
planned resort at Black Point is a significant opportunity, But one that should be pursued
carefully-in compliance with RCW 36.704.360 and 2001 amendments to the Jeffenon County
Comprehensive Plan-to ensure that we do not lose the very qualities that make our community a
special place.
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Brinnon shares the national trend that indicates a growing percentage of employment by home
occupation and/or small business, However, home businesses and cottage industries are notjust a
convenience here; they are a critical part of our local economy, Ensuring that these types of
activities can continue to occur and indeed be fostered and promoted as a self-sufficient means of
maintaining our rural-based economy is a prime aim of this plan. A description of typical existing
home businesses and cottage industries in Brinnon is presented in the Rural Commercial Section.
This list exhibits the broad range of home-based business and cottage industries traditionally
found in Brinnon and that contribute to its rural character. Recommendations in this Subarea Plan
are aimed at ensuring the viability of these types of uses in our fragile economy. Along with our
wise use of commercial and resource lands, it is our ability to adapt and diversify that will keep the
Brinnon area strong and healthy for the succeeding generations.
Jefferson County's Sustainable Economic Development Slrategy (Jefferson County
Comprehensive Plan, pages 7-10) leans toward self-sustained communities, small industry requiring
minimal impact on the infrastructure, and resource/recreational and tourist/service-oriented jobs as
the basis for economic development. This is consistent with the recommendations of this Subarea
Plan and seems to be consistent with the majority interests of the residents of the Brinnon Planning
Area.
The preference of uses and recommendations contained in this Subarea Plan will enable the
community to monitor its own development process and progress and be watchful that the
historically significant areas are preserved and maintained. As the Brinnon Subarea Plan was
reviewed and updated, lists were prepared on some of the ways that the community sees itself
developing. Also listed were the types of commercial enterprises that could have potential. These
lists can be found in the section on Community Values (see Introduction).
GOALS, POLICIES AND STRATEGIES:
GOAL:
Gl.0 Promote the development of employment opportunities for local residents consistent with
the rural character ofBrinnon.
POLICIES:
Pl.l Jefferson County shall structure its Economic Opportunities Plan such that the Brinnon
area can be uniquely identified.
Pl.2
P1.3
Pl.4
Jefferson County shall hold local forums to inform the citizens of Brinnon about the status
of the Brinnon-related parts of this Economic Opportunities Plan.
Team with the Jefferson County Economic Development Council to bring their resources
to bear on educating and training our local residents.
Team with the Olympic kninsula Resource Conservation and Development Council in
pursuing USDA funding for small business in the Brinnon community.
Encourage Jefferson County to reinvest a portion of the DNR's Forest Board Transfer
monies that are paid to the County each year (County-owned property managed by DNR,
with up to 78o/o of income distributed back to the County), specifically for the Brinnon
area's economic redevelopment through a community/County advisory committee to
direct the best use for the community.
P1.5
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STRATEGIES:
S1.1 Jefferson County should include the following elements in its Economic Opportunities
Plan:
r Business by industry type (e.9,, forestry, aquaculture, services,
construction, etc.).
o Employment by industry type for each employer.o Jobs available by skill for each employer.
r Local residents identified by skill that are available for employment.
o Training necessary to obtain skills for availablejobs.r Where and when to obtain training for skills.. Where to get the full range of human and social services made available by
the county.
S1.2 Establish and conduct training sessions onthe "How To's" for setting up and running a
home business, cottage industry, and small business in Jefferson County,
Sf .3 Assist existing and potential businesses in providing services while maintaining the rural
character of the area, utilizing the local Chamber of Commerce in partnership with the
Jefferson County Economic Development Council and Department of Community
Development.
GOAL:
G2.0 Promote the preservation of the existing and development of new business and economic
development opportunities in Brinnon.
POLICIES:
Pz.l Jefferson County will promote the availability of economic resources (i.e., commercial land
and potential employees) in the Brinnon area.
P2.2 Support a process and program for recruiting new resource-based and other light
industrial activities to Brinnon.
P2.3 Support a resource network for financial, educational, social and health services for
startup and existing businesses.
P2.4 Support appropriate designations for mixed commercial and residential development,
small-scale recreational and tourist uses, and master planned resorts in areas that can
utilize the land and available resources for their highest and best use, without adversely
impacting the natural environment, promoting low-density sprawl, or harming the rural
character of adj acent areas.
STRATEGIES:
s2.1 Assist existing and potential businesses in providing services while maintaining the rural
character of the area, utilizing the local Chamber of Commerce in partnership with the
Jefferson County Economic Development Council and Department of Community
Development.
Request that Jefferson County present bi-annual educational forums for the Brinnon
community to describe the coordination of its efforts with Federal, State and local
economic development groups.
s2.2
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s2.3 Request that Jefferson County present bi-annual educational forums for the Brinnon
community to describe plans to provide regulatory incentives to encourage and facilitate
economi c opportunities.
s2.4 Request that Jefferson County present bi-annual educational forums for the Brinnon
community to describe its plans to encourage and support appropriate rural economic
development.
s2.5 Cooperate with lending institutions, educational facilities, and social and health
institutions to provide local services.
GOAL:
G3.0 Market local attractions, businesses and the recreational and tourism amenities of the
Brinnon area, including Hood Canal and Olympic mountains.
STRATEGIES:
53.l Develop a community theme/identity
s3.2 Develop a cooperative marketing effort between area residents, Jefferson County and
various community and regional business organizations, including the Jefferson County
Economic Development Council and the North Olympic Peninsula Visitor & Convention
Bureau.
S3.3 Utilize the outreach capabilities of the Quilcene/Brinnon Chamber of Commerce.
GOAL:
G4.0 Ensure that the infrastructure needed to diversify the local economy is established.
POLICY:
P4.l A coordinated effort must be made between the local business community and Federal,
State, County, and private agencies forthe planning, funding, and installation ofvarious
infrastructure requirements, such as water, power, and telecommunications.
GOALr
G5.0 Integrate efforts and ideas, and share costs and services with neighboring communities.
POLICY:
P5.l Cooperate with local business organizations and service providers to provide cost-saving
joint services,
GOAL:
G6.0 Develop training opportunities for teenagers and other entry-level workers in the Brinnon
Planning Area.
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POLICIES:
P3.1 Establish a cooperative and proactive tourism marketing campaign to identifr the
recreational resources and tourist amenities in Brinnon and market those resources,
opportunities, and amenities to local, regional and national target audiences.
POLICY:
P6.l Training should be available from standard and vocational educational institutions as well
as specialized workshops and other means.
STRATEGIES:
s6.1 Encourage Jefferson County and WSU Extension Service to assist the local High School
(Quilcene) and other training modules in providing vocational education opportunities
and job training for students still of high school age and other community members who
constitute the entry -level workforce.
s6.2 Establish through the County/State a tax incentive for local businesses that mentor high
school age residents with on-the-job work experience.
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Natural Environment Element
Water Resources
The groundwater resources are characteristic of the overall diversity of the Brinnon area. In most
areas, including the Duckabush and Dosewallips drainages, groundwater resources provide more
than adequate supplies of water for private as well as public wells. There are some areas
(particularly in sites characterized by bedrock in close proximity to the shoreline) that experience
shortages during the late summer months or have been unsuccessful in tapping into an aquifer to
provide private wells. However, there is not an established geographical pattern to wide areas of
water shortage. Overall there is a relative abundance ofgroundwater sources as evidenced by the
number of adequately producing wells in the Brinnon area.
The depth and capacity of individual wells depends on water tables and aquifer recharge potential;
stream or creek flow depends on the accumulation of snow in higher elevations and seasonal
rainfall. Rainfall and aquifer recharge potential, as well as septic tank and drain field effluent, affect
the quality of these systems.
Areas where the geology is characterized by fractured bedrock-not the more typical
unconsolidated glacial outwash or till----can be particularly susceptible to changes in groundwater
levels. Some shoreline properties on Pulali Point, for example, have demonstrated water shortages
and dry wells during summer months when aquifer recharge is at its lowest. These portions of the
Point are characterized by the presence of fractured basalt that typically provides very low well
yields during the dry season because of its limited capacity. The Washington State Department of
Ecology (DOE) is responsible for issuing water right permits for new wells and tracks new water
rights applications, However, land use planning and development project proposals should be
carefully reviewed in this area to ensure adequate availability of groundwater for existing
development and "senior" water right holders.
Aquifer Recharge Potential
Aquifer recharge potential is the relative ability of the soil and underlying geology to transport
rainwater into underground reservoirs.
Aquifer recharge areas contain some of the most permeable soils. Conflicts can arise between
proper functioning of these soils and development. Rooftops, driveways, walkways, and roads all
reduce the amount of land surface able to receive rainwater. In areas of extreme permeable soils,
septic tank effluent may percolate faster than the ability of the soil microorganisms to purify it, thus
increasing the chance of contaminating ground water supplies.
Moderate aquifer recharge areas, and occasionally high aquifer recharge areas, occur in the
Dosewallips River Valley. Moderate recharge areas occur between McDonald and Fulton Creeks
and in the Jackson Cove area.
The ability of soils to allow replenishment of ground water resources becomes an increasingly
important resource as more demands are placed on ground water for domestic and commercial use.
Land uses within Critical Aquifer Recharge Areas are regulated though the environmentally
sensitive areas provisions of the UDC.
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Flooding
The Brinnon area contains the Dosewallips and Duckabush Rivers, two of the major river systems
in eastern Jefferson County that are subject to flooding. Local flooding can result from a
combination of factors, such as "rain on snow" events when heavy rains combine with warm
temperatures, rapidly melting the snows in the Olympic Mountains. Flooding conditions can be
further compounded during periods of high tides and low barometric pressure during storms.
Jefferson County is a participant in the National Flood Insurance Program (NFIP), which provides
low cost flood insurance to property owners living in floodplain areas. A floodplain is the normally
dry land area adjacent to a stream or river channel that is susceptible to being inundated by water.
The 100-year floodplain has a one percent chance per year ofbeing covered with water. The NFIP
Flood Insurance Rate Maps (FIRMs) produced by the Federal Emergency Management Agency
(FEMA) show the general delineation of the 1O0-year flood boundary and floodway fringe. A "100-
year event" has a one percent chance ofoccurring in any given year. On the Dosewallips River,
the floodplain begins approximately two miles upstream from the mouth. Approximately one mile
upstream the 100-year floodplain expands rapidly and eventually encompasses a good portion of
the Brinnon Flats area. In fact, a Geographic Information Systems (GIS) analysis reveals that 93% of
the Brinnon Rural Village Center land use district established in the 1998 Comprehensive Plan lies
within the 100-year floodplain. On the Duckabush River, the 100-year floodplain begins
approximately 0.8 miles upstream from the mouth and expands to approximately 0.4 miles as it
crosses US Highway l0l and empties into Hood Canal. The 100-year floodplain has beenadopted
as the base flood elevation for floodplain management measures and flood insurance. Pursuant to
the Jefferson County Flood Damage Protection Ordinance (No. 18-1120-95) adopted in 1995,
construction within the 100-year floodplain must demonstrate that it is sufficiently protected
against flood damage, including a Base Flood Elevation Certificate showing that the base floor of
the structure is elevated at least one foot above the Base Flood Elevation.
ln 1997, FEMA officially updated the Dosewallips Flood Boundary Floodway Map. The general
result was a decrease in the amount of land in the Brinnon Flats that falls within the floodway, an
area that represents the active channel of the river and within which construction is not allowed.
According to Lawrence Basich of FEMA (phone call l/3 l/01 with Jefferson County Department of
Community Development staff), the Floodway Map update did not affect the Base Flood Elevation
and by extension the FIRM. The Floodway Map and the FIRM are based on the same hydrology,
but use separate sub-models for the calculations. The FIRMs associated with the lower
Dosewallips (530069 1230 B, 1235 B, and 1245 B) are based on pre-1982 data. Subsequent data
could result in an adjustment to the FIRM, according to Mr, Basich, but there is no scheduled
review of any FIRMs in Jefferson County. A community may request a review in writing,
substantiating the request with factual reasoning. As FEMA Region l0 (Alaska, Idaho, Oregon,
Washington) has limited budgeted funds to conduct reviews, there are only so many miles of rivers
and streams that can be reviewed,
ln 1994, the Mapping Needs Assessment Process was established to identify and prioritize
community map update needs in accordance with Section 575 of the National Flood Insurance
Reform Act of 1994. ln Washington state, FEMA and the Washington State Department of
Ecology (DOE) have been collaborating in an effort to update a database called the Mapping
Needs Update Support System (MNUSS). The database holds records of maintenance or flood data
update needs as reported by jurisdictions in the state of Washington. Jefferson County responded
to the general DOE survey in the spring of 2001, but has not submitted detailed information on any
specific river systems. The Brinnon Flood Board is considering submitting detailed information
regarding the lower Dosewallips River to DOE and FEMA or requesting that Jefferson County do
so on its behalf.
81
FEMA, Washington State, and Jefferson County have taken flood management measures in the
Dosewallips river system. The aim of one project was to reduce localized bank erosion on the
Dosewallips River by rip-rapping approximately 0.25 miles up from the Dosewallips bridge over
Highway l0l and installing barbs further up the river. Particularly in river systems that possess a
channel migration zone, such as the lower Dosewallips, these types of measures may negatively
impact fish habitat and productivity by restricting the ability of the river channel to respond to
increases in water, wood, and sediment. Armoring the riverbank may also exacerbate bank erosion
lor downstream neighbors by reducing the roughness in the channel and failing to reduce stream
power. A major project in the last few years was the construction of a new bridge over Highway
l0l, which allows a much greater volume of water to flow under the bridge. Without the channel
constriction ofthe old, shorter bridge, there is less chance for floodwaters to spread out over the
floodplain in the Brinnon Flats. This project is one of the reasons why FEMA redefined the
floodway boundary when the agency updated the Dosewallips Flood Boundary Floodway Map
such that the boundary edge was significantly closer to the river channel.
Given the results of the floodway study, FEMA should be asked to re-analyze the area FIRM and
assess the height of the expected 100-year flood and corresponding extent of the 100-year
floodplain on the Brinnon Flats. In July of 2001, four Brinnon Subarea Planning Group members met
with representatives from USDA-RD (US Department of Agriculture - Rural Development) to
review the current public water systems, tour the floodplain area, and discuss the potential for
grants and loans for future expansion, considering that the location of the Brinnon Rural Village
Center is in the floodplain.
A comprehensive floodplain management strategy would also include restoration efforts in the
upper watershed and research into opportunities for conservation easements along riparian
corridors, the purchase of riparian properties for the public trust, and dike setback or removal to
minimize river channel constrictions which increase the severity and frequency of flooding. Some
projects can help address the distinct, but related goals offish habitat restoration and flood hazard
mitigation. As a method of gathering data and monitoring results for floodplain management,
stakeholders can request that the United States Geological Society (USGS) re-activate an historic
flow gauge at rivermile 7.1. The USGS gauge could also provide real-time flooding alerts to area
resi dents.
Currently, the Port Gamble S'Klallam Tribe's Natural Resources Department is engaged in a study
to unravel the linked issues of salmon habitat restoration and flooding on the Dosewallips.
Products from this work will be of use to the County and Brinnon residents for charting flood
hazards along the River.
GOALS, POLICIES AND STRATEGIES:
GOAL:
Gl.0 Identify the optimal area of increased acreage for mixed use commercial and residential
development where water is currently available with water right transfers or where
systems can be combined.
POLICY:
Pl.l Direct Jefferson County to provide appropriate zoning for mixed commercial and
residential development, small-scale recreational and tourist uses, and master planned
resorts in areas that can utilize the land and available resources for their "highest and best
use," without adversely impacting groundwater and other environmentally sensitive
features.
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GOAL:
G2.0 Improve water quality and reduce the risk of water quality problems in Brinnon.
POLICIES:
Pz.l Encourage managers/operators of Group A and Group B water systems to develop a plan
for the long-term needs and maintenance of their systems.
P2.2 Encourage small neighborhood water systems, advising adjoining property owners, as
appropriate, of the options to (l) share developmental and operational costs of self-
management, (2) petition the Public Utility District (PUD) to manage "for a fee," and (3)
petition the PUD for ownership takeover and management. (This policy b also located
under Essential Public Facilities and Public Purpose Facilities, and under Water Utilities,
Utilities Element.)
P2.3 The County should undertake a watershed-based floodplain management and water
quality improvement plan including provisions for resource inspection, identification of
problem areas, and recommended corrective measures, actions and funding sources in
order to protect water quality in the area watersheds.
P2.4 Upon formal request from the Brinnon Flood Board, the County should coordinate contact
with FEMA with the aim of acquiring an updated assessment and map from FEMA of the
extent of the 10O-year floodplain on the Lower Dosewallips River. Particular emphasis
should be placed on the extent and location ofthe floodplain in the Brinnon Flats area.
STRATEGIES:
Sl.l Private landowners should have their water quality evaluated and, if necessary, take
remedial action.
S1.2 Jefferson County should advise the community about how private landowners could
improve their water quality with minimal expense.
Shorelines
One of the area's outstanding physical assets is its twenty miles of shoreline, including a natural
harbor and two major river systems, the Duckabush and Dosewallips, providing a unique
opportunity for many residents to live on water-oriented property. Recognizing the potential impact
of development on these fragile and unique shoreline areas, the people of the State of Washington
in l97l enacted the Shoreline Management Act (SMA) in order to protect the natural integrity of
the shorelines of the state through a careful balance of development and preservation. Ensuring
public access to the shorelines of the state is a key component of the Act. The SMA was
implemented locally in 1974 through the adoption of the Jefferson-Port Townsend Shoreline
Management Master Program, updated in 1989 and amended in 1993, 1996, and 1998. (With Port
Townsend disassociating itself from the Master Program in 1994, the name changed to Jefferson
County Shoreline Management Master Program.) The Master Program designates shorelines with
respect to their characteristics and use, prescribes the range ofpotential activities, and establishes
policies and performance standards for each activity. The Master Program also provides the
administrative pocedures required to obtain permits for certain uses and developments of these
designated areas.
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Shoreline jurisdiction (a.k.a. shorelines) is defined
in the Shoreline Management Act as all marine
waters, streams with a mean annual flow greater
than 20 cubic feet per second, lakes larger than 20
acres, and upland areas called "shorelands" 200
feet landward from the edge ("ordinary high water
mark" or "floodway," whichever is greater) of
these waters. In addition, shoreline jurisdiction
includes wetlands and river deltas hydrologically
associated with the above-defined waters, and all
wetlands within the 10O-year floodplain. All of the
shorelines along Hood Canal are designated
"Shorelines of Statewide Significance," providing
them an extra level of protection. Brinnon
shorelines currently have the following shoreline
environment designations: Suburban,
Conservancy, and Natural. The policy regarding
Suburban designation is to provide permanent
residential and recreational areas, while that of
Conservancy b to protect, conserve, and manage
existing natural resources. The Natural shoreline
designation preserves and protects unique and Hood Canal shoreline in Brinnon,
fragile shoreline features, Brinnon currently has
three areas that have the Natural designation: the Dosewallips River and Duckabush River
estuaries and a portion of Right Smart Cove.
On November 29,2000, the Washington State Department of Ecology (Ecology), the State agency
that co-administers the Shoreline Management Act with local jurisdictions, adopted new shoreline
master program guidelines, concluding a five-year process to review and update the State rule. The
new rule required local jurisdictions to update their shoreline master programs within two years
from the date Ecology adopted the new guidelines. Those guidelines have been suspended
through a ruling by the Shoreline Hearings Board (SHB), which heard a multiparty appeal
consisting of various elements. Some of the elements in the new rule were upheld and some were
rejected by the SHB. The parties to the appeal are currently negotiating a settlement. Local
jurisdictions await the results of the settlement process.
Jefferson County issued a draft updated Shoreline Master Program on July 12,2000, well before the
adoption of the new State rule. The draft Master Program was not adopted by the County. Until the
County adopts an updated Master Program, the 1989 version with amendments remains in effect.
Some types of development and land-disturbing activities on shorelines may be influenced by the
environmentally sensitive areas protection provisions of the UDC, as well as the Shoreline Master
Program.
Persons who live along the shorelines are advised to review the provisions ofthe Jefferson County
Shoreline Management Master Program before beginning any development, which in terms of
shorelines is defined in the Shoreline Management Act. Questions may be referred to the Jefferson
County Department of Community Development (DCD). Shoreline permit information sheets and
the Shoreline Master Program can be found at DCD and via the DCD website.
The use of the area's shorelines for residential, recreational, commercial, aquaculture, industrial,
and transportation purposes is an integral part ofBrinnon's heritage.
84
Point Whitney Shellfish Laboratory
The Washington Department of Fish and Wildlife (WDFW) is in the process of developing a 5-10
year facility renovation and improvement plan for the Point Whitney Shellfish Laboratory near
Brinnon. Approval has been received to construct a new shellfish hatchery on the West Side of the
lagoon.
Funding was allocated in the 1999-2001 biennium for site development, and engineering has begun.
Construction funds for the shellfish hatchery have been allocated for the 2001-2003 biennium.
Additional large-scale construction options under consideration include upgrading the current
office complex and vacated hatchery space, or building a new office facility on WDFW land
recently vacated by the Navy. Other options include moving the harvest management staff to some
location other than Brinnon and expanding the public parking area at Point Whitney, or a
combination of the above. The Point Whitney Shellfish Laboratory currently employs 40
professional staff, ofwhich five are local Brinnon residents.
If a new office complex is constructed on bnds recently vacated by the Navy, or the harvest
management staff is relocated, space could be freed up for improved public access to the beach.
Improvements could include such things as additional public parking, rebuilding of the dock, boat
launch upgrades, and widening the road to two lanes.
Natural Heritage Vegetation, Wildlife and Landforms
The diverse forest ecosystems on the Olympic Peninsula provide habitat areas for a variety of plant
and animal species. Local indigenous populations found these resources plentiful and had no need
to cultivate them. Since the arrival of the first white settlers, a number of new species were
introduced, including domestic herd animals and plants for cultivation (as well as some invasive
species such as scotch broom, tansy ragwort, ivy, and purple loosestrife).
The moderately well-drained, gravelly soils throughout most of the area support a variety of
coniferous and deciduous trees including Douglas fir, western hemlock, western red cedar, red
alder, and madrona. Typical underbrush includes salal, Oregon grape, several species of ferns,
huckleberry, red currant, wild honeysuckle, and oceanspray as well as numerous species of
mushrooms and fungi.
The Brinnon Planning Area is also home to several unique and pristine marine environments along
its 20-mile Hood Canal shoreline, including salt meadows, marine sloughs, river estuaries, eel grass
beds, salt marshes, mud flats, and sand and gravel beaches. These environments make for rich and
diverse plant and wildlife habitats. These include important habitat for oysters, clams, mussels,
crabs, shrimp, and a variety of salmon and trout species, which rely on bait and forage fish, such as
herring,surfsmelt,shinerperchandothers. Theshorelineandnearshoreisalsohometoahostof
shoreline and marine birds and mammals.
The Brinnon area contains suitable habitats for numerous species of wildlife. The mountain
foothills, which are mostly on National Forest and wilderness areas, provide a seasonal source of
food and cover for permanent and summer resident animals. Though there are resident species
listed, it should not be presumed that all species are found in all areas of Brinnon. The diverse
terrain, elevation, ecosystems and geography provide micro-climates/environs for many species in
only one or two locations and not in the remainder of the community. It is important to note that
some species may be observed but are only transient and not resident populations.
Threatened and Endangered Species
Some species whose habitat includes the Brinnon area are listed as threatened or endangered on
State and Federal lists. Those found on the Federal endangered species list are protected via the
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provisions of the Endangered Species Act (ESA). The ESA is intended to prevent e><tinction of
animals and plants by protecting habitat and ecosystems upon which the species depend. Federal
government agencies designate "critical habitat" for the listed species. Areas within the Brinnon
Planning Area are included as "critical habitat" for at least one listed species. Aquatic species of
concern in the Brinnon area include Puget Sound Chinook, Hood Canal Summer Chum, and
potentially the Coastal/Puget Sound bull trout. Terrestrial species of concern include the bald
eagle (see below),
Although other species have been listed under the ESA in the past, the impacts from salmon
listings are more far-reaching than previous listings. Federal rules to protect threatened Puget
Sound Chinook and Hood Canal Summer Chum went into effect on January 8,2001. Coastal/Puget
Sound bull trout have been listed as threatened since early 2000. Under the ESA it is illegal to kill,
harm, or harass listed species without an approval from the Federal government. These actions are
called a "take" of the listed species, and include damage to the listed species'habitat. The ESA
allows any person or entity to bring a lawsuit against any individual or agency responsible for a
"take" of listed species. The National Marine Fisheries Service can also assign penalties. Any
individual, group, or agency can bring a Federal suit for a listed species "take," even ifyou are in
compliance with Jefferson County development codes. In many cases, both the party responsible
for the activity and the County issuing the permit would be named in the "take" lawsuit.
Through action by the Board of County Commissioners, Jefferson County has resolved to comply
with the E,SA and craft development regulations that provide a level of assurance toward that end.
The Brinnon Subarea Plan policies herein do not waiver from the environmentally sensitive areas
provisions of the Unified Development Code, including protections for Fish and Wildlife Habitat
Areas. A countywide strategy to address the ESA will include the Brinnon Planning Area.
Resident wildlife includes the bald eagle, listed as "threatened" by State and Federal agencies. The
United States Fish and Wildtife Service is considered "de-listing" the bald eagle under the ESA.
According to Washington Department of Fish and Wildlife bald eagle specialist Shelly Ament
(phone call, December 20,2001), the de-listing is tentatively proposed for July 4,2002, assumedly in
a deliberate pairing of a symbol of our country's freedom and the celebration of Independence Day.
Ms. Ament reports that the State would likely change the status of the bald eagle in Washington
from "threatened" to "sensitive." Certain elements of the current bald eagle habitat protection
strategy would remain in effect, including bald eagle management plans agreed b by private
landowners and the Washington Department of Fish and Wildlife (WDFW) when there are bald
eagle nests in the vicinity of proposed development.
Wildlife Species List
The list that follows is a representation of the regular resident or frequently migrating species in the
area and is not intended to include occasional or rare sightings. A biologist did not prepare this
list, so it should not be thought of as a comprehensive survey of species in the area. WDFW
maintains a Priority Habitats and Species database statewide for those interested in more detailed
information.
Mammals - Water and Terreslrial
Roosevelt Elk, Deer - black and white tail, Otter - river, Beaver * mountain and dam, Muskrat,
Cougar, Bobcat, Coyote, Mink, Skunk - two species, Mice - three species, Fox - red, Martin,
Marmot, Mole, Raccoon, Bear - black, Fisher, Shrew, Squirrel - two species, Chipmunk, Rat- two
species, Weasel, Rabbit, Mountain Goat, Sea Lion- California, Seal - harbor, Porpoise, Orca.
Reptiles
Frog - three species, Lizard, Snake - two species, Salamander
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Birds - LYater and Terrestrial
Bald Eagle, Grouse - two species, Hawk - four species, Owl - five species, Jay - two species,
Robin, Junco, Towhee, Finch - four species, Sparrow - three species, Grosbeak - two species,
Hummingbird - two species, Tanager - western, Woodpecker - three species, Flicker - two
species, Thrush - three species, Bush Tit, Pine Siskin, Pigeon - Band-tailed, Guillemot - Pigeon,
Crow, Raven, Swallow - bam and cliff, Warbler, Blackbird - red and yellow wing, flycatcher,
Starling, Turkey, Snipe, Meadowlark, Quail - Califomia, Turkey Vulture, Nighthawk, Wren -
Seattle, Scoter - two species, Grebe - three species, Coot, Blue Heron, Kingfisher, Merganser -
two species, Goldeneye, Loon, Murre, Tem, Gull - five species, Killdeer, Goose - two species,
Cormorant, Brant, Swan, Osprey, Water ouzel, Duck - six species
Invertebrates and Fish - Marine, Water and Terrestrial
Slugs - four species, Sow bug, Millipede, Centipede, Ant- three species, Termite, Spider, Oyster-
three species, Scallops - rock, Mussel - Blue, Clam - Manila, Pacific Surf, Jack Knife, Native
Littleneck, Thinshelled Littleneck, Butter, Bent nose (three species), Horse (two species), Eastem
softshell, Moon Snail, Cockle, Geoduck; Drill (three species), Pandalid shrimp - three species,
Crago shrimp, Mud shrimp, Chost shrimp, Sea urchin, Sea slugs - five species, Crab - three
species, Hermit crab - three species, Shore crab - four species, Sea cucumber- two species, Rock
Fish -six species, Ling Cod, Bull Cod, Pacific Herring, Candlefish, Surf smelt, Shiner perch, Sand
lance, Sole and Flounder - four species, Midshipmen fish, Viviparous perch, Steelhead (sea-run
Rainbow) and resident Rainbow trout, Cutthroat trout, Chinook, Chum, Pink and Coho salmon,
Tidepool bullheads - four species, Shark - three species.
GOALS AND POLICIES
GOAL:
Gt.0
POLICIES:
Pl.l Provide those public services such as community water and sewage treatment where
these services would provide a greater protection to the environment than multiple
individual systems.
Pt.2 Ensure the adequate protection of environmentally sensitive areas is considered in all
future development, including commercial, industrial or recreational and tourist-oriented
development.
Pl.3 Consider provisions for reducing the adverse impacts of new shoreline development on
the unique marine and riparian habitats along Hood Canal (i.e., clustering, increased
setbacks, etc.).
Pl.4 E,ncourage the use of conservation easements, transfer or purchase of development
rights, and other voluntary and innovative land owner measures to protect sensitive and
unique fish, wildlife and plant habitats in Brinnon,
New development, especially non-residential development, should be designed and
located in a manner consistent with the preservation of the surrounding rural character
and fish and wildlife habitat in the adjacent areas.
Pl.5
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Protect the natural environment while maintaining adequate opportunities for economic
development.
Essential Public Facilities and Public Purpose Facilities Element
There are many types of facilities and services typically provided in a community. Some are
provided by private enterprises, others by public entities. Some of these facilities and services
provide basic community needs, such as police and fire protection, education, water supply and
sewage disposal. Others address the social needs of a community, such as recreational, youth and
senior citizen activities. The following section describes various public and public purpose
facilities in the Brinnon Planning Area.
There are no municipal water or sewer systems serving the Brinnon area. Individual wells and on-
site sewage disposal systems serve domestic water and sewage disposal needs. There are a few
Brinnon community water systems serving two or more families that are privately owned or are on a
cost-share basis. Public Utility District #1 (PUD #1) owns and manages two community water
systems. One system serves the Lazy C Ranch development and one serves part of Triton Cove
and the Williams Addition.
The larger and denser a population becomes, the more facilities and services are required. While
these services are based on demand, often the provision of a service creates demand. This is
particularly true of utilities.
Jefferson County Fire Protection District #4 is headquartered in Brinnon. This volunteer fire
department covers the southernmost part of Jefferson County and maintains three stations with an
average of 25 volunteer firefighters and ambulance personnel. A new fire hall was built in the
Brinnon flats area in 2000. All firefighters are State-certified and receive advanced first-aid training.
There are seven State-certified emergency medical technicians (EMTs), three first-aid and CPR
instructors and two State-certified fire fighting training instructors. Fire vehicles include two
pumpers, four tankers, two brush fire rigs, one reserve truck, one search and rescue command post
vehicle and two ambulances. There are also off-highway vehicles for clearing roads and to get in
and out ofrough terrain for rescues.
The Brinnon Post Office, serving Zip Code 98320, is located in Brinnon's Rural Village Center. The
new Post Office building was built in 1999 to accommodate growth spanning the next 20 years. The
Post Office has a capacity of970 post boxes, ofwhich 581 are currently rented. There are also 556
rural delivery postal patrons.
The Brinnon Booster Club building has served as a community center (and until recently the fire
hall) over the past several decades. Booster Club members host events for children and adults
throughout the year. The facility is available for use by community members and organizations.
The Brinnon Senior Center primarily provides services to and activities for Brinnon senior citizens.
The center may be made available for other community activities. The center, and the Brinnon
Bayshore Motel that occupies the floor above the center, are owned by Jefferson County and
operated by OLYCAP (Olympic Community Action Program). The Senior Nutrition Program is
provided by Jefferson County; all activities at the Senior Center are organized/governed by the
local Seniors Organization.
State and National Parks in the Brinnon area present a variety ofrecreational opportunities.
Telephone service is provided by the Sprint Telephone System, whose offices are in Hood River,
Oregon, and Poulsbo, Washington.
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Electric power is provided by Mason County Public Utility District #1, whose offices are to the
south, in Potlatch.
The Brinnon School District #46 provides educational activities from Kindergarten through eighth
grade. As enrollment in the Brinnon School District fluctuates, the school staffing increases or
decreases accordingly. For the 2000-2001 school year, the school had an enrollment of74 students.
The school is the location for many indoor and outdoor social and recreational activities for the
community.
Brinnon is a non-high school district; therefore, high school students residing in Brinnon may
choose to attend any high school in the state.
There are no colleges or universities located in the county. Extension courses from Peninsula
College in Port Angeles are available in Port Townsend, and extension courses from Washington
State University are available in Port Hadlock. A coordinator of higher education for Jefferson
County, in cooperation with Peninsula College, is present every week at the Brinnon School to
assist the local community. In addition, satellite higher education courses for delivery from the
Brinnon School have been funded in the recently approved Washington State budget. The funding
for the necessary equipment will be available July 2002, for classes beginning in the fall of 2002.
Public library services in Brinnon are provided by the Jefferson County Rural Library Bookmobile.
Brinnon is served by two churches; the Brinnon Community Church and the Seventh Day
Adventist Church.
A house numbering and addressing system has been established, and is maintained, to identify the
location of residents and to aid in the efficient delivery of emergency services and law enforcement,
particularly when using the emergency 911 telephone system.
Jefferson County Sherifls deputies patrol the area on a scheduled basis. State troopers patrol US
Highway l0l, the mainthoroughfare through the community.
A medical clinic has been established in nearby Quilcene, supported by Jefferson General Hospital.
This clinic will be expanded to include counseling for mental health, substance abuse and other
related services. The Jefferson County Community Action Council is in the process of establishing
a medical clinic in Brinnon at the south end of the Bayshore Motel/Senior Center building. Brinnon
is served by Jefferson General Hospital in Port Townsend and Mason General Hospital in Shelton.
State and County roads in the Brinnon atea are maintained by local State Highway and County
Road crews, with facilities located on Highway l0l at Mt. Walker and at County Shop Road, north
of the Duckabush River Road.
Federal Programs for Infrastructure Assistance
United States Department of Agriculture (USDA) Rural Development (RD) offers a variety of
programs of potential use and benefit to the Brinnon community. The Rural Housing Service (RHS)
provides assistance for the financing and constuction of housing for moderate-, low-, and very
low-income families and for community facilities such as fire stations, libraries, industrial parks, and
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Brinnon maintains its own Cemetery District.
The Brinnon voting precinct is #204; currently the polling place is located at the Brinnon
Elementary School. Voters in the last four years have fluctuated between 944 and 1006. In July
200 I there were 966 registered voters.
hospitals and medical clinics. The Rural Utilities Service (RUS) offers loan and grant programs for
electric energy, telecommunications, and water and waste disposal projects. The Rural Business-
Cooperative Service (RBS) works in partnership with the private sector and community-based
organizations to provide financial assistance and business planning, including technical
assistance, research, and educational services. RD also contains other components, including the
Department of Community Development, which administers the Empowerment Zones and
Enterprise Communities (EZ/EC) program, the Alternative Agriculture Research and
Commercialization (AARC) Corporation, and an initiative to collaborate with land grant institutions
on projects for underdeveloped rural communities.
Affordable housing is an issue that has been discussed during Brinnon Subarea Planning Group
meetings. RD RHS provides some opportunities to meet affordable housing goals. RHS loan
programs include Home Ownership Loans, Home Improvement and Repair Loans and Grants, Self-
Help Housing Loans, Rural Rental Housing Loans, Rental Assistance, and Community Facilities
Direct Loans, Loan Guarantees and Grants. There has also been discussion at Planning Group
meetings regarding how the RD RUS Water and Water Disposal Programs could benefit Brinnon,
which qualifies for RUS water and wastewater loans ard grants by virtue of its size (population
under 10,000) and median household income (between the Census categories of "intermediate" and
"poverty"). Inquiries were made to RD in the past concerning the possibility of a project in the
Brinnon Flats area. The purpose of the project would be to provide the level of utility services
necessary for potential commercial enterprise and multifamily housing in the Brinnon Rural Village
Center (RVC) mixed-use district. A limitation to the availability of RD funds for projects in the
Brinnon RVC was discovered during this inquiry and further explained by visitors from RD during
Planning Group meetings in early 2001. The limitation has to do with the 100-year floodplain in the
Brinnon flats, which covers approximately 93o/o of the Brinnon RVC.
A complete application to RD RUS includes an environmental report. RUS Bulletin 1794A-602
(December 1998 Version 1.0) is the "Guide for Preparing the Environmental Report for Water and
Waste Projects." Section 3.2 of the Guide addresses floodplains. Section 3.2 references Executive
Order ll988, "Floodplain Management," which requires Federal agencies to avoid actions, to the
extent practicable, that will result in the location of facilities in floodplains and/or affect floodplain
values. To this effect, there is a model tap-in restriction ordinance that local governments must
adopt in most cases in order to receive RUS assistance for projects in the floodplain. In the rare
occasions when projects are approved in floodplain areas, such as when there are no other suitable
areas available, there are examples of mitigation measures in Section C.l of the Guide that are
applicable to floodplains. RD in Washington has an Environmental Coordinator who makes
judgments concerning the feasibility of projects in floodplains. In July of 2001, four Brinnon
Subarea Planning Group members met with representatives from USDA-RD, including the
Environmental Coordinator, as well as representatives from Washington State Department of
Ecology, to view the locations of current public water systems, tour the floodplain area, and again
discuss the potential for grants and loans for future expansion,
GOALS, POLICIES AND STRATEGIES
The following goals and policies apply to public and private community services and facilities.
GOAL:
Provide for a level of community facilities and services adequate to meet the needs of
current and future residents and ensure that the establishment or expansion of community
facilities and services is consistent with the snall town and rural characterof the Brinnon
area.
Gl.1
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POLICIES:
Pl.1 Encourage small neighborhood water systems, advising adjoining property owners, as
appropriate, of the options to (l) share developmental and operational costs of self-
management, (2) petition the Public Utility District (PUD) to manage "for a fee," and (3)
petition the PUD for ownership takeover and management. (This policy is also located
under Water Resources, Natural Environment Element and Water Utilities, Utilities
Element.)
Pl.2 Expbre alternative methods of private sewage and/or effluent disposal systems, utitizing
an adjoining or a community arca, rather than individual on-site disposal.
Pl.3 Encourage participation in community programs available to Brinnon area residents, such
as Little League, Community Theater, Food Bank, etc.
Pl.4 Encourage active participation in the Brinnon Volunteer Fire Department, the Emergency
Medical Technician (EMT) squad, and Emergency Search and Rescue (ESAR) unit, to
maintain a high level of service.
P1.5 Encourage the support and utilization of the regional outpatient medical facility being
established at the Bayshore Motel/Senior Center location.
Pf.6 Encourage the education of the community in the use of the 9ll system and other
emergency facilities.
Pl.7 Maintain and support the Jefferson Transit Authority service between Brinnon and other
parts of Jefferson County, as well as to other communities within the Puget Sound region.
Pl.8 Establish an emergency plan that includes disaster relief for the community.
Pl.9 Establish a "Welcome Wagon" service to introduce newcomers to the various community
organizations and programs.
Public Safety
Brinnon has no resident police presence. Our sheriffdeputies are dispatched from the Port Hadlock
headquarters, The Quilcene annex may have an officer available for response, but this is not on a
consistent basis. Currently, Brinnon has 5%o of the county's unincorporated population but
accounts for a significantly higher portion ofthe law enforcement calls. This has been attributed to
the high unemployment rate and high drug and alcohol use. Quilcene has recently become the
station for the County's drug enforcement k-9 unit.
GOALS AND POLICIES
GOAL:
G1.0 Improve public safety in the Brinnon planning area.
POLICIES:
Pl.l Request resident law enforcement officers in our community
A local advisory group should work with the County to explore alternatives for improved
public safety and drug control.
Pt.2
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Transportation Element
History
The people of Brinnon have always had various forms of transportation in and out of their
community, but travel has not always been convenient.
From the mid-1850s until roads were built early in the 1900s, boats were used to transport supplies,
mail, and passengers to and from Brinnon. From 1917 until the mid-1940s automobiles were ferried
between Seabeck and Brinnon. At first, this was accomplished by towing a scow behind a fishing
boat; then self-propelled ferryboats were used. The first ferry dock was located at Seal Rock and
later one was constructed at Cedar Cove near the entrance to Pleasant Harbor.
Logging company railroads were constructed along the Dosewallips and Duckabush river valleys
down to Hood Canal. The roads along these valleys were built in the late 1800s, butonly went
about 3.5 miles up the Duckabush valley and about 8 miles up the Dosewallips. Another road
connecting the Duckabush Road to the Dosewallips Road was built and improved over the next
several years.
Betrveen 1888 and 1923,there were six different bridges crossing the Dosewallips River. These were
all located in the Brinnon Flats. The first bridge lasted only one year. Each bridge lasted a little
longer than the previous one. The bridge built in 1923 lasted until it was dismantled in the year
2000. The current bridge is the seventh to cross the Dosewallips River. The first five bridges were
located about 0.25 miles upriver from the latter two and crossed the river near the location of the
original road.
Befween l90l and 1934, there were fourdifferent bridges built to cross the Duckabush flats. The
bridges built in 1934 are still in use. Crossing the Duckabush flats was always done by the use of
one small and one longer bridge, with the exception of a single bridge used from 1910 to 1914 near
the present site of the Olympic Canal Tracts.
Early bridge over the Dosewallips.
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Ia
$
In 1896, a road to Quilcene was built; in l9l8 a road south into Mason County along Hood Canal
was built; Bee Mill Road was built in 1926; Black Point Road was built in 1933; Point Whitney Road
was completed in 1971; the Olympic Loop Highway was completed in the 1930s.
Current Situation
Today, with the exception of some private and chartered boats and floatplanes, people and
supplies are transported to and from Brinnon by uay of County- and State maintained highways.
Brinnon has over 15 miles of highways maintained by the Washington State Department of
Transportation, over 35 miles of County maintained roads, and some roads maintained by the State
Department of Natural Resources, State Parks, State Fish and Wildlife, USDA Forest Service, and
National Park Service. There are also many private roads that are generally maintained by the
property owners serviced by these roads, but they can be converted into county maintained roads
if they meet criteria specified by the County.
US Highway 101 is the main highway extending from north to south through the Brinnon area.
Because it is bordered by the Olympic Mountains on the west and Hood Canal on the east and
because ofthe areas unstable soiI conditions, it is vulnerable to washouts and slides. This concern
resulted in the designation of the following emergency bypass roads: the Rocky Brook Road via
the Dosewallips Road, the Mt. Jupiter Road via the Dosewallips Road and the Waketickeh Road via
the Duckabush Road. The concern for emergency road preparedness continues today.
The Comprehensive Plan (CP) identifies current levels of service (LOS) on Brinnon's roadways. All
of the roads presently operate at either LOS *A" or "B" based on their average daily traffic. The
Transportation Element of the CP projects the 20-year (2018) operating LOS for all affected arterial
or collector roadways in Brinnon to be LOS "C" or better-either within or well-above their
adopted levels of service in the CP. Most of the roadways have an adopted minimum LOS of "C" or
"D." Therefore, roadway capacity is expected to be adequate to accommodate projected growth
during the planning period.
Jefferson Transit and Mason Transit both serve the Brinnon area with bus service. They both
connect with service to all of their neighboring counties. Jefferson Transit serves Brinnon on
Route #1, which connects Brinnon with Port Townsend by daily service. In 1998, the route
accounted for 1,809 total annual passenger trips or an operating level ofservice of 10.2 riders per
service hour,
Floatplane service is primarily provided to and from Brinnon by Kenmore Air. There are also boats
and floatplanes available for charter service. Usually, passengers entering and leaving Brinnon by
boat or floatplane do so at Pleasant Harbor, a deep sheltered body of water with marina docks,
private docks, and a public state maintained dock. There are also public and private docks between
Point Whitney and Triton Cove. Skippers and pilots are occasionally directed to transfer
passengers from boats and floatplanes onto shore boats to be left offat other waterfront locations
in the Brinnon area.
Today, Brinnon is connected with the rest of the world by land and by sea. People can travel to
and from Brinnon with or without a motor vehicle, and as in the past, if the demand increases, the
options for transportation will also increase.
GOALS, POLICIES AND STRATEGIES:
GOAL:
G1.0 The transportation system must be maintained so that it is safe, reliable, and efficient, and
at the same time conserves costs, energy, and natural resources.
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POLICIES:
Pl.1 In order to provide traffic safety and to minimize public expenditures, arterial and collector
roads should incorporate limited access provisions l.trenever possible. Jointly used
residential driveways, local access roads, frontage roads, etc., are encouraged.
Pl.2 Driveway access to commercial and industrial activities and multiple family dwellings
should be located and designed in such a manner that any vehicle entering or leaving
such premise is traveling in a forward motion and is clearly visible for a reasonable
distance to any pedestrian or motorist approaching the access.
GOAL:
G2.0 Jefferson County in concert with the Brinnon community should maintain a transportation
and circulation system that is multifunctional and consistent with the rural character of the
Brinnon area.
POLICIES:
Pz,l Support the continued operation and expansion of Jefferson County Transit service to
Brinnon.
P2.2 Support the development of the Jefferson County Non-motorized Transportation Plan to
improve safe bicycle and pedestrian access in Brinnon.
P2.3 The Washington State Department of Transportation in concert with the Brinnon
community should maintain safe traffic conditions and speed limits on US Highway 101,
and provide a safe crossing of the highway for pedestrians and bicycles. A
pedestrian/bicycle trail along the shoulder of the highway should be constructed, and
maintained, with marking and signing of the lanes for safety.
GOAL:
G3.0 Facilities associated with transportation and circulation should be located and designed
with respect to such natural features as topography, soils, geology, shorelines, etc., and
within existing routes and corridors where feasible.
POLICIES:
P3.1 Roadway systems within residential areas should be designed to minimize through-traffic.
GOAL:
G4.0 Future road improvements should be designed and built to meet the needs of local
residents. Roadway planning should always involve local citizen participation.
POLICIES:
P4.l Jefferson County Public Works should review both the County and Washington State
Department of Transportation roadway improvement plans for consistency with the goals
of this plan.
STRATEGIES:
54.l Jefferson County Public Works and the Washington State Department of Transportation
in cooperation with local citizens shall recommend changes/additions, where appropriate,
to the roadway improvement plans consistent with the goals of this plan.
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s4.2 Jefferson County shall provide public notification of any impending County road
improvements/changes per legal requirements.
GOAL:
G5.0 The Brinnon community desires a park-and-ride facility in the Brinnon area and requests
that Jefferson Transit revise to the Transit Master Plan to include this goal.
POLICIES:
P5.l The Brinnon community and Jefferson Transit should work together to achieve this goal.
STRATEGIES:
S5.l The Brinnon community, Jefferson Transit, and the Washington State Department of
Transportation should work together to identify and recommend a possible location based
on State, County, and community requirements.
GOAL:
G6.0 The Brinnon community desires a back-up road in the event that US Highway 101 and/or
other by-pass roads become impassable.
POLICIES:
P6.l Jefferson County Public Works Department, using the County's Roadway Priority Rating
System, should analyze the cost and benefits and other relevant factors related to creating
a by-pass route between the Dosewallips River Road and the Mount Jupiter Road. Based
on this analysis, the proposed by-pass route will be given the appropriate ranking in the
County's Transportation Improvement Program and the Capital Facilities Element of the
Comprehensive Plan. The analysis should consider the potential 6r a closure of US
Highway 101 or the Dosewallips River Road and the expenses related to constructing and
maintaining a by-pass road. A future by-pass road project should include coordination
between the Washington State Department of Transportation, the United States
Department of Highways, Jefferson County, the Brinnon community, and other
stakeholders.
STRATEGIES:
s6.r The Brinnon community requests that re part of the Emergency Preparedness Program,
the road connecting the Dosewallips Road to the Mt. Jupiter Road along the Mt. Jupiter
ridge be re-opened and all other by-pass roads be maintained.
The Brinnon community requests that under the guidance of the Sherifls Department and
the Emergency Preparedness Program, community property owners, the USDA Forest
Service and Jefferson County begin to cooperatively identify and agree to maintain
emergency by-pass roads for US Highway l0l.
s6.2
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Utilities Element
Water Utilities
There is no public municipal water system in the Brinnon area. Area residents derive their domestic
water from individual wells, diverting water from streams and creeks, or participating in a Brinnon
community water system.
Some residents participate in community water systems where two or more property owners share a
common source, as well as development and maintenance costs. Some of the Brinnon community
water systems are under Public Utility District (PUD) management.
There are presently two community water systems in the Brinnon area, managed by PUD # I of
Jefferson County: Lazy C Ranch and a portion of Triton Cove. These systems serve small
neighborhood areas as well as residential and recreational developments. Under provisions ofthe
Revised Code of Washington, citizens desiring to have PUD manage their community water system
may petition PUD # I for such action. The PUD will determine if sufficient water is available and the
cost of its development to each property owner concerned. Unless a majority of affected property
owners reject by vote the development of a public community water system, the PUD will proceed
in its establishment. The cost of PUD management is provided by property tax levies.
There are an additional 20 Group A water systems throughout Brinnon under private management.
Currently, l2 Group B water systems provide communities with between two to l4 connections. All
Group A systems and many private wells have water rights but none are close enough
geographically to make it economical to combine systems except perhaps in the Brinnon RVC.
However, the low density of development in the village does not make it economically feasible for a
public water system at the present time unless funded or mostly funded by outside grants and low-
interest loans.
The Washington State Department of Health (DOH) is the lead agency for the Groups A and B
water systems compliance, and coordinates closely with the Jefferson County Health Department
on developing communication and technical assistance for small public water systems.
GOALS, POLICIES AND STRATEGIES:
GOAL:
G1.0 Improve water quality and reduce the risk of water quality problems in the Brinnon area.
POLICIES:
Pl.l Encourage small neighborhood water systems, advising adjoining property owners, as
appropriate, of the options to (l) share developmental and operational costs of self-
management, (2) petition the Public Utility District (PUD) to manage "for a fee," and (3)
petition the PUD for ownership takeover and management. (This policy is also located
under Essential Public Facilities and Public Purpose Facilities, and under Water
Resources, Natural Environment Element.)
STRATEGIES:
Sl.1 Jefferson County should encourage private landowners to have their water quality
evaluated and, if applicable, provide guidance on how to improve their water quality.
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s1.2 Jefferson County should assist private landowners accomplish this goal with minimal
expense.
Sanitary Sewer Utilities
There are no public wastewater treatment and disposal systems in the Brinnon Planning Area. All
development relies on on-site septic systems to treat and dispose of sewage. New development
must meet minimum lot size, setback and septic system design standards established by the Health
Code in order to maintain adequate separation from water wells, groundwater levels and shorelines.
The classification of soil suitability for septic tank and drain field systems considers soil properties
that may inhibit the proper functioning of these systems by affecting effluent absorption and
decomposition and/or the construction and operation of the system. Some of the soils in the
Brinnon Subarea Plan area are classified as having limitations for septic tank and drain field
systems. Large lot sizes and/or engineering measures may be required to safely dispose of septic
tank effluent in areas exhibiting these soil properties.
Most on-site septic and drainfield systems operate adequately. However, there are isolated areas of
higher septic failure rates, particularly in cases of small lots in close proximity to the shoreline or
where steep slopes or poor soils are prevalent, Often times, increased failure rates occur when
development becomes too dense or locates too close together and cannot maintain adequate
separation levels between the surface soils and groundwater. Another common occurrence of
septic system failure is when small older waterfront one- to two-bedroom cabins are replaced with
three- to four-bedroom houses that produce more effluent than the original septic system was
designed to handle.
The lack of a public sewage treatment system in the Brinnon RVC is a aonstraint to future economic
development in the area. The village's current limited size and density/intensity of use does not
create sufficient density or base of potential ratepayers to make such a public system feasible at
the present time. Yet it may develop dense enough to create increased future septic failure rates.
However, expansion of the RVC boundary would allow for more commercial/industrial development
to occur and to spread the future costs of such facilities over a greater potential rate base. There
are also State and Federal programs that could provide additional monies-through grants or
loans-to help offset the costs associated with the planning, design and construction of such a
system in the future.
Much of the constraint of securing Federal monies for an improved sewage treatment system
focuses on the floodplain location in the RVC. US Department of Agriculture representatives from
the Rural Development (RD) program indicated in discussion with the Brinnon Subarea Planning
Group that their rural development funding assistance includes criteria that favors funding facilities
located outside of the 10O-year floodplain or that would not promote more development inside the
100-year floodplain. This situation remains a significant constraint to obtaining Federal funding
assistance for such facilities-unless the RVC is expanded to areas outside of the floodplain
suitable to accommodate new commercial development. See further discussion in Essential Public
Facilities and Public Purpose Facilities Element and Rural Commercial section of the Land Use and
Rural Element of the Subarea Plan.
Future Objectives
Secure appropriate locations for future wastewater treatment facilities to serve the at-risk areas of
Brinnon and pursue State and Federal funding opportunities and grant assistance programs for a
public wastewater treatment system.
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GOALS, POLICIES AND STRATEGIES:
GOALr
Gr.0 Secure a public wastewater treatment system for the Brinnon Flats RVC to allow for higher
density and more affordable housing opportunities and expanded economic development
activities in Brinnon.
POLICY:
P1.1 Encourage the County to continue working with the Department of Agriculture (Rural
Development), DOE, US EDA, and other agencies to utilize existing grant, loan or other
funding programs to plan, design and construct a wastewater treatment system for the
Brinnon Flats RVC.
Telecommunications Utilities
The Bonneville Power Administration (BPA) has laid a fiber optics cable along their electrical
transmission lines between Olympia and Port Angeles, with a drop point in Brinnon (one of many
that connect to Peninsula communities). The next step is bringing BPA's service to the user. PUD
#1 of Jefferson County could be the agency to install the "last mile" that would bring the service
into local buildings.
Sprint now has redundant fiber optic/digital microwave network connections between Brinnon
(among others) and Poulsbo. In Kitsap and Jefferson Counties, five central offices and eight remote
fiber-fed switching centers feed to/from Sprint's host central office in Poulsbo. Brinnon service is a
fully fiber optic backbone, with copper as the last mile feeding the private connection. ISDN
(lntegrated Service Digital Network) service is available now through some Internet Service
Providers. Sprint has revealed no plans for deploying a DSL (Digital Satellite Link) in Western
Washington, although DSL may be available via other providers.
Future Objectives
Continuously enhanced telecommunications capabilities, including retail service connections that
can be made available to Brinnon residents.
Solid Waste Utilities
Prior to 1997 Jefferson County operated a transfer station in Brinnon on the Duckabush River
Road. Jefferson County closed the facility due to the excessively high cost ofoperation. The Board
of County Commissioners permanently closed the facility by Resolution in 1999. Residential and
commercial garbage and recycling pickup is available from a commercial garbage hauler. The
nearest County-operated solid waste transfer station is in Quilcene.
Recycling containers are currently located at the Dosewallips State Park.
Future Objectives
The Brinnon community desires to re-establish a transfer station in Brinnon. Jefferson County
should continue to work with the community to explore creative solutions to the rural garbage
problem.
99
Capital Facilities Element
Prefoce to Capital Facilities Element
The Growth Management Act requires that the Capital Facilities Element of a comprehensive plan
include a six-year plan to fund proposed capital facilities. The Brinnon Subarea Plan suggests a
County government commitment to establish a park and ride facility, community center, County
park, US Highway 101 emergency by-pass road, solid waste transfer center, and visitor center.
These projects would require revision to the County's Capital Facilities Plan and the identification
ofproject costs and revenue sources to fund these facilities.
Considering the above, the following statements of future objectives, policies and strategies in the
Capital Facilities Element of the Brinnon Subarea Plan should be considered advisory
recommendations from the Brinnon Subarea Planning Group that should be reviewed in a
subsequent process to update the Jefferson County Capital Facitities Plan in the context of an
overall comprehensive examination of capital facilities priorities countywide.
Community Centers
Jefferson County implies that it supports a community center in Brinnon, by virtue of having the
Brinnon Senior Center facility; this "community" center is considered by the County to be a
County park. Jefferson County does not support a true community center in Brinnon, nor do we
have a County park.
Future Objectives
That Jefferson County establish a County-supported community center and County park for
Brinnon residents of all ages within the next five years,
Cou nty Maintenance Facilities
(See Essential Public Facilities and Public Purpose Facilities.)
Future Objectives
To ensure that the County facilities are fully operational and able to provide State and County road
maintenance for Brinnon residents during all seasons ofthe year.
Parks and Recreation
Background
(See Essential Public Facilities and Public Purpose Facilities.)
Future Objecfives
That Jefferson County establish a County-supported community park, with adequate grounds for
softball and soccer games, within the next five years.
Storm Water/Flood Control
Background
(Refer to Flooding in the Introduction as well as the Natural Resource Element.)
100
Tourist Road Facilities
Background
(Also see Parks and Recreation, and Transportation.)
Although the Brinnon area is the entryway to the Olympic Peninsula for visitors approaching on
Highway 101 along Hood Canal from the Shelton area, Jefferson County has not utilized any of its
tourism funds to post any visitor information or provide any tourist amenities in South County.
Future Objectives
A South County Highway l0l Conidor Visitor Center such as is being planned for Highway 104,
with sufficient tourist amenities such as public restrooms, drinking water, and visitor information.
P1.1 A County funded and maintained tourist and information center should be established
with the use of Gateway Tourism funds.
sl.t Team with the WDFW Point Whitney Shellfish Laboratory land acquisition and
development staff in exploring the potential for coordinating and possible combining of
the future Brinnon Visitor Center and the Point Whitney Shellfish Laboratory's
Interpretive Center.
sl.2 Form a committee of local citizens to work with community members and the local Chamber
of Commerce (the authorized funding recipient of Gateway funds) in developing the
tourist and information center.
l0l
Conclusion
The Brinnon Subarea Planning Group believes that this Subarea Plan will provide an important
cornerstone for the foundation of a sustainable Jefferson County Comprehensive Plan. As the first
of the Jefferson County rural communities to transform an existing Community Plan into a Subarea
Plan following adoption of the GMA Comprehensive Plan, the Group undertook to craft a document
that could stand as a model for similar committees in neighboring communities. The group updated
the 1995 plan to fit the Comprehensive Plan format, which made it easier to address relevant topics
identified in the countywide pan. The foundation of our research was the Jefferson County
Comprehensive Plan, the Growth Management Act, including Amendment 586094 and the
County's Unified Development Code.
Members of the Subarea Planning Group agreed to reach decisions by consensus. We encouraged
widespread in-depth discussions among our members when clarification or elaboration was
required. Comment periods were provided at the beginning and conclusion of each meeting for
public input. Many visitors provided valued input during the meetings.
The Group focused on the uniqueness of the Brinnon area, remoteness from urban areas and
services and the County seat of Jefferson County, and Brinnon's need for additional commercial
designation. The group's primary challenge was to show the e*ent to which Brinnon's uniqueness
is self-limiting. The topography includes steep mountainsides, narrow valleys, swift rivers, and
wide estuaries. US Highway 101 reaches Brinnon over a high mountain pass on Mt. Walker, runs
along the waterfront with bordering steep slopes and a narrow residential shelf. Using performance
standards as the basis for goals and policies stems, in part, from the self-limiting nature of the
Brinnon planning district. Potable water, transportation, wastewater control, and terrain are all at
issue.
Commercial enterprises can best be located at three main intersections, close to population
densities and accessible by the traveling public. Our interest in the tourism industry as a way of
providing viable jobs developed into support for identifying an area suitable for a master planned
resort. Appropriate areas for small-scale tourist and recreational uses were identified. Emphasis was
placed on studying the need for low-income housing and assisted living facilities, and the
community will continue to monitor this need. Group members also met with representatives from
USDA-RD (US Department of Agriculture - Rural Development) to review the current public water
systems and discuss the potential for grants and loans for future expansion.
In the course of discussions and as the result of ongoing public input and suggestions, certain
changes were recommended that were beyond the time frame available for working on the Subarea
Plan with the County-funded consultant. Suggestions such as a rewer treatment plant and
community water system will be investigated in upcoming years,
The vision continues to be for a community that provides a rural, lightly populated structure and
fosters a quality of life we currently enjoy. The Plan guidelines have been renewed or established to
help maintain the rural character of the Brinnon Planning Area while encouraging growth under
appropriate conditions. The Brinnon Subarea Planning Group members are proud of this plan and
believe it provides Brinnon with effective guidance for continued future prosperity.
102
APPENDIX 1
Maps (Figures BR-l through BR-14)
APPENDIX 2
Brinnon Historic Business List
APPENDIX 1
Maps (Figures BR-l through BR-14)
Figure BR-1
1
i
r.l
N
. .,'t ., 1
I
ii
BRINNON PLANNING AREA OVERVIEW
10 Miles
rd$(lwffirt
5 0 5
11
i:l
.i..
ll
'1-
'tl
I
il
b
t'', ' 'i
I
Figure'BR-z'a
I I ra t a a a ti rr a l l r a t r a t ! a at
I
ta
.t
lrrt
I
o
a
a
a
a
N
People Per Square Mile
t:]WI
:
l.:.: .: .l
0
1-45
46 - 134
135 - 393
394 - 4tt6
Nol Oasstfed
Brlnnon Plannlng Area
BRINNON PLANNING AREA - 2OOO CENSUS
POPUI-ATION DENSITY BY CENSUS BLOCK
4 Miles
*Al, {tuallrg4 tle L*
2 20
\#
o =J.H
)
.€FFERSON
I.D.M,S.
Peninsula
Brinnon
Comprehensive PlanLand Use Designations
lacbn
Covo
lla
Covc
Olymplc IrtloE l iord,Dabob Bay
Peninsula
ffi I DU per 6 acres (nn m)
I DU per 20 acres (RR 120)
ffi p"rt<q Paeserves, and Recreation
I[u,*l*",Igl,S1;1*r
I Psm*g';i*, kl"dt..g- * )
[.-{,ffi11 lt t otai',g Forest (lF)
m
W
0lymplc National Forest & Park
Rural Vitlagc center (RVc)
Rural Crossroad Zone (CC - f9al{a Pt.)
-*co'I Public Pressrves and Recreation
+ Private Preserves and Reereation
O Mlneral Lands
$"&
FUtCOAilftOl(Al
hi.E.trrery,tmnl bf ffit d @* 2q r,.ca
J.lk Dr ? r,| t.aF:
FIGURE BR-3
;rr\t
,t Lt
Figure BRj4
Commercial
Public/Communlty
Resldential
Vacant
RuralVillage Center
by use codes
and ttre Brlnnon Communlty Plannlng Group
Land use
BRINNON CENTER - 2OO1 LAND USE
1 000 1000 2000 Feet0
tNlEil
kr2da r!&hqry RVqd k
Figure BR-s
Rural Village Center (RVC)
Subarea Plan RVC Boundary
Subarea Plan Light lndustrlal District
EI
III
H{-
BRINNON CENTER- JULY 10, 1990
1000 1000 2000 Feet
rt&ffi4G{turffib
0
t
\
t \,
"?,t' "r1
;r
;l
',\
I
, ..:
,{
l
&-
;r
.rd-
..
.t,
Figr.iru B.n,O
lnterlm RuralMllage Center (RVC) Boundary
Subarea Plan RVC Boundary
Subarea Plan Llght lndustdal Dlstlc-t
Indlcates Subarca Plan Boundary Dlvldes Paroelsaa.aa
BRINNON SUBAREA PISN - RVC & LIGHT INDUSTRIAL
0
rate&0!.-tu4ffir8
1000 1000 2000 Feet
Figure BR-7
WffiMffi
SNI
trlrll|allllfir
Commercial
PublidCommunity
Residential
Vacant
Convenlence Crossroad
Not a Parcel Boundary
Land use determined by Assessor land use codes
and the Brinmn Community Planning Group
WAWA POINT- 2OO1 LAND USE
1000
E&,rffiD-rwil.&k
Feet
Flgu're BR-8
lrlr-tl-t
Not Inventorled
r.n.m.mur. Not a Parcel Boundary
Convenlence Ctossroad
ffi| Land wlth structures
v77V7) Land with Pre- I 990 lrihn- Made Facl I ltlesf///44 Not Gonstltutlng a structure
Land wlh gtruc'tures determlned lrom Ass€ssor
data and the Brlnnon Communl$ Plannlng Group
WAWA POINT- 1990 BUILT ENVIRONMENTANALYSIS
ra?Adfur$@ffiBffi E.rV*
500 0 500 1000 1500 Feet
I
Figure BR-g
lnterlm Convenlence Crossroads Boundary
Subarea Plan SRT Overlay Distlct
lndlcates SRT Boundary Divides Parcelsat,tl
WAWA POINT . SMALL-SCALE RECREATION
& TOURTST (SRT) USE OVERLAY DTSTRTCT
1000 2000 Feet
5&grrlrrrkqffilH
't000
Figure BR-1O
ffiMffiwffi
C,ornmerclal
PublldCommunlty
Resldentlal
Vacant
Prlvate Campground/RV Park
Land use determlned by Aseessor land uge codes
and the Brlnnon Comlntnlty Plannlng Group
BLACK POINT,2OOl LAND USE
rarAlrhrrimekh
1000 0 1000 2000 Feet
Figure BR-11
t
I
-1
J
{
I
tu
l
The depicted boundary is conceptual and for planning
purposes only. The Jefferson County Comprehensive
Plan Land Use Map is not altered by this Subarea Plan
conceptual MPR boundary. Only through approval of an
MPR application would this or any other MPR boundary
amend the Land Use Map. An MPR application need not
follow this conceptual boundary.
BLACK POINT - CONCEPTUAL MASTER PIANNED RESORT
HBtffirtsaH
1000 0 1000 2000 Feet
r
,t*g
I
sa
/
Figure BR-12
Brinnon Area Aquaculture Tidelands
rc,r{
McDanicl Covc
Triton Cove
<-
<_
Duclobush Dclta
Point Whitncy Shcllfirh Lab
Point Whitacy Public
Recreational Ti&lands
Point Whitncy Lagoou for Pink
Salmon (A), for Chinook (B)
Gunslone's rnd Brodcrs' Berchos
Pulali Point
ri
,3
Pleosast Haftor
Old Orchard Beach and
Laokawanna Beach
Fulton Lrkc
Black Poitrt Bcach
<-
{-
Bcacon Point
Jac,kson Cove
Hjclvik's Beach
Seal Rock Resort
Scal Rock Fedcral Forest
Camp Public Tidelands
Doscwrllips Delta
Fulton Creek Flats
aa
II
aaaa.rttla
aa
a
aa
I
aa a - a aa a aa a a. a a a a a a a r. a
a
Figure BR-13
a
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a
a
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a
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$
It
I
I
A
a
*
r
Tourist Camping Facilities
Resource Based Business Activities
Commercial Services
* TouristAccomodations
Home Based Business\
Cottage lndustrles
BRINNON PLANNING AREA - NON-RESIDENTIAL DEVELOPMENT
(Excludes Brinnon Rural Village Center)
t&ffihi-
2 0 2 4 Miles
I
Figure BR-14
Affordable H ouslng Potentlal*
NaUonal Forest
State and Private Timbedands
Brlnnon Plannlng Area
rr
W.
'As Determlned by the Brinnon Community
Plannlng Group
BRINNON PLANNING AREA - AFFORDABLE HOUSING POTENTIAL*
Subdivisions with Public Water (PUD and Private Systems)
2 0 2 4 Miles
.#s.m.4hiltli.*
tr
APPBNDIX 2
Brinnon Historic Business List
A.ntEhtt ErL-
Wdl(3rmfmdhg Po6t
Ih.O6!b
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sral tad thliDo.r
tbod C.rld w&h R€palr
Se.lRoctREt
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SGd Rod( tlrtord Falat CsttFgartd
xstyo,rtcFa.mccmOtdrFani
T.rhrt dbdsft.ticrFm
BottgGaElPlt
@ MotslrBtlncr S€nlor C.drl€rEd Ertron Sls!
i/hntbhEldlc
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Adlhta{lu
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Ro.kralot tty*o Porrcr
El( Mdo*3BeBrNrrlgy
&ldffiLogghg
BdqrbFamEMmy
Ts.ryEEBa0rE
Sudm-stmB
lciltcdry Co.dnJcdat
K(,trdfs Ca,tp K.lo8k
K Sdlth LogdrE
HlrdlyAur LogElng
SFhllrr Rrododmdrfi Gaddld-ogglr€
SevunlAub Eodl[Prfn
BltllqrGglordSb!
UacortcGql..C Sbre
PsgsAtshr Holla & Codddl Lqrnge
&hnarlJqu6SEr
H.Ihrry llorrso ffesieuE {rLr[ngo
Jolrnilo.t REItYJ€firs Co Bctllv
&lIclhl-Eta.g.
Bltmm FbbBAB
Bhocn Pctofic.
B]tron Ffo $etlon
Bftn6 Boiltrroub
Ul6.tGIbavldE
BrhnfiAjtonro0tc
Floddn frotrrPerk
I|ldorlSmllpG.er
DumlipoS'lebPafi
G€odrd( Rensnt&totrigc
PctOffico
FhoSHo0GMTC6t{
EGbrClub
r995?
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2000
r9r8?
1965?
$7n
lilos A.-tMtt
Oodeel Tr#ho Po8(Antqus) rg{F-Sil. Lyrn Rosdh.i6q Tho Ml(,lilgy
Oi|lrpEdPaft 1926
&hrfi Auio Gless?
Obmdcr8m 190G21
Popc sd T.Dd Log Otnp
Cmty gBEl sbBgdc6aEt6 bur d&t tu brldgErqdr
Rldr*dsfil Funlt ro Sb.s & MoU/Th3 Maplos Sb.s (g:crl€3)
GurEnti -19&fs b l9@.
t zy C ¬r - 1954/ ffi lho Lazy C Rsndi Rddgltd Sub(fiylslon
Orymrc AhbUdAt io Pada, B'll.|gtonb Lumbor Supply/Frsnah Buldhg Srrpply
P6l0{l10a
P€gt Flsh & Chlp6
Esp{€sso Stard/.rcfrdm Rmlvr06t Rsal'V
R6tatranuloungd Posl O{ncdrAfEritr$b
FIE Sta0on
Ertnoon VldEfnqrl3s a Unqus/Bdnnoo Saw Shop
Daky Fsrm,lzouo LogEtng Camp
G€odud( TswULfl ndlmuAportEnts
Ttpo of rctHt
Antqu6/61G.ilU6
Ar0q$r6{lod!baes
tlsry MahGnance Shq
SilMll
Shdlrl!fi Studl€s
BoySqnC6i?
Jactson @Yr C€flp?
FW ps,tq s!o€, Eddffi
8€d e EGdda€tr6ldecdArto glG r€pek
B.ld(rad (lElvrsy betrErn CoE Pafi & Y€lvifs)
ltefilYrrE, Lutq & C{ocr)firslda1co
Resdl wlh Cabin Rfftsb
TeE & P6lry
OtEt3a Gagveer'EPfoc€isor
Lodgo,C$lrE DocldF6ny L'ldhg
Rstr,dlh caHm tBtelst
Cripground and Badr
q/d6rGrolrr
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Gravears.rd Plt
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