HomeMy WebLinkAbout2024-10-10 CPA SUPPLEMENTAL Staff Report and SEPA AddendumJefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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JEFFERSON COUNTY DEPARTMENT OF COMMUNITY DEVELOPMENT
2024 COMPREHENSIVE PLAN
AMENDMENT DOCKET
SUPPLEMENTAL STAFF REPORT AND SEPA ADDENDUM
Supplemental Staff Recommendations
with Environmental Analysis for the Adoption of Proposed Amendments to the Jefferson County Comprehensive Plan
October 10, 2024
INTEGRATED GROWTH MANAGEMENT ACT/
STATE ENVIRONMENTAL POLICY ACT DOCUMENT
Environmental Review of a Non-Project Action: Addendum to Existing Environmental Documents
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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Contents:
1. Modifications to Proposed Amendment 2: UGA Comprehensive Plan
& UDC Amendments to Amend the Port Townsend Urban Growth Area,
Swapping Farm Land with Caswell-Brown Village and Adjacent
Properties.
New proposed description: ”Proposal to expand the Port Townsend
Urban Growth Area (UGA) boundary to include publicly-owned parcels
for public purpose use, including the Caswell-Brown Village for housing
services.”
2. Modifications to Proposed Amendment 4: Review of Land Use and
Zoning in the Jefferson County Airport Essential Public Facility (AEPF”)
3. Attachment – Comment Record
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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Why is there a Supplement? Changes and Additions to the September 4, 2024 Comprehensive
Plan Amendment Docket—Combined Staff Report and SEPA Addendum (“the Staff Report”)
The Staff Report was published on September 4, 2024. The Staff Report evaluated four proposed
amendments to the development regulations on the 2024 Amendment Cycle docket that are
listed below:
• Proposed Amendment 1: Irondale and Port Hadlock Urban Growth Area (“PHUGA”) UDC
Amendments for Urban Development
• Proposed Amendment 2: UGA Comprehensive Plan & UDC Amendments to Amend the
Port Townsend Urban Growth Area, Swapping Farm Land with Caswell-Brown Village and
Adjacent Properties
• Proposed Amendment 3: 2024 Annual Amendment Cycle, Planning Commission UDC
Rural Housing Amendments Carried Forward from 2023
• Proposed Amendment 4: Review of Land Use and Zoning in the Jefferson County Airport
Essential Public Facility (“AEPF”)
Modifications to Proposed Amendments 2 and 4 created a need for focused evaluation of those
changes and further documentation in this Supplemental Staff Recommendations with
Environmental Analysis (“this Supplement”), dated October 10, 2024.
For a complete analysis of Proposed Amendment 2 and Proposed Amendment 4, the reader
needs to consider both the Staff Report and this Supplement. Not all of the details within the
Staff Report are reproduced here. This Supplement strives to include additional information and
not restate what is in the Staff Report. However, the entire Cumulative Impacts Analysis table
and SEPA Non-Project question responses are included from the Staff Report, amended here as
needed. Proposed as findings for final Board of County Commissioner’s action also are included
in this Supplement.
Public Process Summary
A combined Notice of Intent to Amend (“NOIA”) the Comprehensive Plan and Unified
Development Code, Notice of SEPA Determination, and Notice of Public Hearing at the Planning
Commission was published on September 4, 2024. On September 18, 2024 the Planning
Commission conducted a public hearing on the amendment docket. Only one public comment
was received: Eric Toews, Deputy Director, Port of Port Townsend, provided comment on
Proposal #4 and submitted testimony (Exhibit A) with recommended changes to the Port’s
proposal to clarify proposed text amendments and modify the Airport Overlay III expansion by
reducing the area. After the hearing was closed, the Planning Commission deliberated on the
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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docketed proposals, and arrived at a recommendation to accept the proposals, with the changes
summarized below.
Next steps in the public process are to forward the Staff Report and this Supplement, along with
the Planning Commission Recommendations, to the Board of County Commissioners. It is
anticipated this will occur in late October.
Summary of Changes
Proposed Amendment 2: There were optional paths to include Caswell-Brown Village (“CBV”) in
an Urban Growth Area (“UGA”) in order to provide appropriate services to the project: a UGA
land swap following recent GMA provisions of RCW 36.70A.110, or extension of the Port
Townsend UGA boundary. The UGA land swap did not come to fruition. This Supplement
provides additional findings supporting the extension of the Port Townsend UGA boundary.
Proposed Amendment 4: The proposed extent of Airport Essential Public Facility (“AEPF”) Overlay
III has been reduced to include only property owned by the Port of Port Townsend, and some
text amendments that appear in the Staff Report have been supplemented or clarified.
Generally, the AEPF is expanded by the addition of two 6-acre parcels, and the AEPF Airport
Overlay III is expanded by those specific areas in the AEPF which are south of, and outside of, the
FAA building restriction line, and an approximately 6.5-acre area in the northeast of the AEPF.
The Airport Overlay III consists of parcels, or portions of parcels, currently owned by the Port of
Port Townsend within the AEPF. The requirement for a Binding Site Plan (“BSP”) process is
replaced with a requirement to meet all development regulations, recognizing that a BSP may
not be applicable in all circumstances. As the Airport Overlay III is further developed, a unifying
plan for the overlay area will be accomplished. The access from Four Corners Road, parcel APN
001334004, is not being added to the AEPF. Additional details are provided in the analysis below.
SEPA Threshold Determination
After review of the modifications of Proposed Amendments 2 and 4, Community Development
has determined that there will be no changes to the overall cumulative impact analysis for all of
the proposed amendments, and the SEPA threshold determination is unchanged from the Staff
Report: there will be no probable significant environmental impacts as a result of this action and
a threshold Determination of Nonsignificance, “DNS”, is supported.
The 2024 Comprehensive Plan & UDC Amendment Docket documents are available on the
Jefferson County webpage dedicated to the 2024 Comprehensive Plan Annual Amendment
cycle process.
https://www.co.jefferson.wa.us/1721/2024-Annual-Amendment-Cycle
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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ANALYSIS OF MODIFIED PROPOSED AMENDMENTS
Updated Summary Matrix of Impacts and Mitigation Measures
Refer to the Staff Report for the complete description of the proposals, cumulative analysis of
impacts, and overall recommendation for mitigation measures and conditions. Proposal-specific
analysis is also within the individual staff reports for each of the proposed amendments found in
Section 2, “Focused Analysis of the Proposal” of the Staff Report. Readers are encouraged to
review the more comprehensive discussion of issues of interest in Section 2, “Focused Analysis
of the Proposal”, and to consult the Appendix Items, the amendment applications themselves,
and other supporting materials, in order to formulate the most accurate impression of impacts
associated with the proposals and staff recommendations.
Amended Table 1: Revised SEPA Impact Analysis and Mitigation Summary (see p.15 of the Staff
Report).
1
2024 Irondale and
Port Hadlock UGA UDC
Amendments for urban development.
No Recommendation – None. This is not a site-
specific project proposal. Site-specific
information will be provided by applicants at the time of submittal for a project.
2
2024 UGA CP & UDC
Amendments to
Amend the Port Townsend Urban Growth Area
Boundary.
No Recommendation – There are no proposed
mitigations or conditions with this proposal.
3 2024 Annual Amendment Cycle,
Planning Commission
UDC Rural Housing
Amendments Carried
Forward from 2023.
No Recommendation – adopt suggested UDC amendments for “Family” definition,
clarification to PRRD unit count, and addition
of Congregate Housing to JCC 18.15.040 Table
3-1 uses.
Continue work on rural housing strategies
concurrently with data development for 2025
Comprehensive Plan update.
4
Review of Land Use
and Zoning in the
Jefferson County
Airport Essential
Public Facility (“AEPF”)
No Recommendation – At this phase of review,
there are no proposed mitigations or
conditions. All future development will be
required to meet the County’s zoning and
development standards of the Jefferson
County Code.
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Amended Table 2: Revised Significant Areas of Controversy & Uncertainty (pp.16-17 of the Staff
Report)
The following table summarizes the key environmental issues and options facing decision-
makers:
#
APPLICATION
NUMBER &
DESCRIPTION
AREAS OF CONTROVERSY AND UNCERTAINTY
1
2024 Irondale and
Port Hadlock UGA
UDC Amendments
for urban
development.
None
2
2024 UGA CP &
UDC Amendments
to Amend the Port
Townsend Urban
Growth Area
Boundary.
No areas of controversy. Findings are made in the Supplement to expand a
UGA boundary. There is sufficient justification and analysis to extend the
UGA boundary to include Caswell-Brown property for access to City of Port
Townsend services.
3
2024 Annual
Amendment Cycle,
Planning
Commission UDC
Rural Housing
Amendments
Carried Forward
from 2023.
None
4
Review of Land Use
and Zoning in the
Jefferson County
Airport Essential
Public Facility (AEPF)
Environmental analysis was done on the entire Airport Overlay III as
amended. There is a level of uncertainty at this non-project stage of the
proposal regarding elements of SEPA review: impacts to air, water, ground,
water runoff, plants, animals, energy, natural resources, environmental
health, noise, land use, housing, aesthetics, recreation, historic and cultural
preservation, transportation, public services, utilities, and light and glare of
unknown future development proposals. All future developments will be
required to meet the County’s zoning and development standards of the
Jefferson County Code. This may be one area of potential future controversy.
Project-specific SEPA review will be conducted for projects that are not
otherwise exempt.
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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INDIVIDUAL STAFF REPORTS: PROPOSED AMENDMENTS #2 AND #4
Modifications to Proposed Amendment 2: UGA Comprehensive Plan & UDC Amendments to
Amend the Port Townsend Urban Growth Area, Swapping Farm Land with Caswell-Brown
Village and Adjacent Properties.
New proposed description: ”Proposal to expand the Port Townsend Urban Growth Area (UGA)
boundary to include publicly-owned parcels for public purpose use, including the Caswell-
Brown Village for housing services.”
Applicant: Jefferson County
Assessor Parcel Numbers: 001162022, 001162001, 001162002, 001162003, 001162004,
001162015, 001161001, 001162017
Location: Mill Road and SR 20
Background: The construction of an emergency shelter and permanent support housing is a
verified community need. It remains one of the biggest issues facing our community, as the
current emergency shelter only has a limited time left in its contract with the American Legion
in Port Townsend. The shelter initially only provided housing during inclement weather. In
2007, the Jefferson County Board of County Commissioners adopted an Emergency Resolution
(Resolution 35-17) in response to the county’s housing emergency and need for public facilities,
providing both supportive and low-cost housing for persons who are unsheltered, extremely
low income and/or experiencing disabilities. The shelter’s management eventually was shifted
to Olympic Peninsula Community Action Programs (“OlyCAP”), and also expanded to year-
round operation.
The COVID-19 pandemic exacerbated the housing emergency issues. During this period,
unsheltered individuals began camping at the Jefferson County Fairgrounds. With the eviction
moratorium ending in November 2021, the County Commissioners began crisis planning by
identifying locations within the county and near services to house those individuals who were
experiencing homelessness. Three sites were reviewed, including the parcels on Mill Road. With
American Rescue Plan funding, the County purchased the Mill Road site and several other
contiguous parcels to the south as a unit. OlyCAP leases a site from the county, offering the local
unhoused population a temporary place to stay while working to find permanent housing.
OlyCAP named the new location the Caswell-Brown Village, in remembrance of two people who
died while experiencing lack of shelter or supportive services.
The Caswell-Brown Village (“CBV”) on Mill Road refers to the combined 50-bed emergency
shelter with permanent supportive housing and a 40-lot park consisting primarily of recreational
vehicles and tiny shelters to provide housing for persons experiencing housing insecurity. The
County approved the project under a Type III conditional use permit (ZON2022-00152) for a
public purpose facility. The local community supports the proposal and its location, as evident by
no one submitted testimony, facts, or evidence that would serve as a basis to deny the proposal.
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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The CBV currently has 50 tiny shelters available to unhoused people, and OlyCAP is working to
build a permanent support housing on site. It will be a continuum of care housing facility
operated by OlyCAP on a long-term lease with the County.
Staff Comment: Jefferson County is collaborating with the City of Port Townsend on a
modification to the Port Townsend UGA, something that has not happened since the original
establishment of the UGA boundary (coincident with the City of Port Townsend’s municipal
boundary) in the years following the adoption of GMA. The Port Townsend UGA boundary would
shift to include CBV and adjacent publicly-owned parcels. The total expansion would include eight
parcels for a combined acreage of 32.72 acres. The zoning would change from Rural Residential
(RR 1:20 and RR 1:5) to UGA Public. The area proposed to be included within the Port Townsend
UGA is characterized by urban growth. Either the subject parcels themselves already contain
urban-style development or they are located in close proximity to urban development, and by
either measure, the subject area is appropriate for urban growth. The growth pattern on or near
these lands makes the parcels incompatible with the primary use of land for the production of
food, other agricultural products, or fiber, or the extraction of mineral resources, rural uses, rural
development, and natural resource lands designated pursuant to RCW 36.70A.170. The parcels
are located in close proximity to urban services, including but not limited to the City of Port
Townsend’s regional stormwater system, sanitary sewer system, domestic water system, street
cleaning services, fire and police protection services, public transit services, healthcare and
medical services, and other public utilities associated with urban areas and normally not
associated with rural areas.
Figure 1.
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Figure 2.
Parcel numbers Acres Owners
Parcel 1 (001162022) 0.07 Jefferson County
Parcel 2 (001162001) 21.81 Jefferson County
Parcel 3 (001162002) 2.45 Jefferson County
Parcel 4 (001162003) 2.50 Jefferson County
Parcel 5 (001162004) 2.53 Jefferson County
Parcel 6 (001162015) 0.38 Jefferson County
Parcel 7 (001161001) 0.8 Jefferson County
Parcel 8 (001162017) 2.18 City of Port
Townsend
Total Acreage: 32.72 Acres
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Housing Element: The County and the City of Port Townsend have been working on solutions for
people experiencing homelessness, including emergency housing and transitional housing. CBV
would be in the unincorporated UGA (with prospective annexation in the future). It is now the
only continuum of care facility for housing of this type in the immediate area. There are no other
suitable alternative sites within the existing City of Port Townsend’s limits to accommodate a
similar facility. The level of housing services that can be developed at CBV are limited by land
area and on-site septic requirements. The City of Port Townsend has the capability to provide
sanitary sewer service to CBV if it were located in the UGA and have the proper infrastructure
upgrade [RCW 36.70A.110(4)].
Urban Growth Areas and Housing Elements are both parts of the GMA and are used to plan for
housing and growth. UGAs are intended to encourage urban growth. Housing elements consider
the needs of all economic segments of the community, including low, moderate, very low, and
extremely low-income households. They also consider existing housing stock and the need for a
variety of housing types and densities. The GMA was amended in 2021 to require that designated
cities also identify the capacity and actions needed to accommodate future housing growth
within four household income categories (based on U.S. Housing and Urban Development
Department guidelines using Average Median Income, or AMI): moderate (80-95% AMI), low (50-
80% AMI), very low (30-50%), and extremely low (<30 AMI). In 2024, the GMA was amended to
allow additional conditions under which UGAs may be revised. Counties are responsible for
designating, expanding, and reducing UGA boundaries, in consultation with the cities in their
determinations.
In 2024, Jefferson County and the City of Port Townsend completed a joint housing allocation
using Method C of the model provided by the State Department of Commerce, called the Housing
for all Planning Tool (“HAPT”). Incorporating CBV into the Port Townsend UGA boundary
addresses recent legislation that amended GMA to require local governments, when completing
the periodic update of comprehensive plans, to accommodate housing affordable to all economic
segments of the population, reduce displacement risk, and undo identified racially disparate
impacts.
Local communities must design UGAs to include "areas and densities sufficient to permit the
urban growth that is projected to occur in the county or city for the succeeding twenty-year
period” [RCW 36.70A.110(2) and WAC 365-196-310]. UGAs must also be designed so that urban
services can be provided during the 20-year planning horizon.
Although the existing Port Townsend UGA may have sufficient land to accommodate the
projected allocated population growth in twenty years, there is no other suitable land to
accommodate housing type similar to CBV. The CBV parcel is inside an existing water service area.
In order for the City of Port Townsend to provide sewer service, expanding the Port Townsend
UGA boundary to include CBV is a must. The proposal is intended to enable Jefferson County and
the City of Port Townsend to address the Housing goal in the GMA through their respective
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comprehensive plan housing elements. There will be adequate public facilities to serve CBV
during the planning period.
Infrastructure Need: The City of Port Townsend is progressing to complete the City of Port
Townsend’s General Sewer Plan (“GSP”) update in 2025. The plan update provides planning level
analysis of the City of Port Townsend’s Wastewater Treatment Plant, Biosolids Facility, and sewer
collection system. The GSP addresses changes in regulations, existing infrastructure condition
and upgrade needs, as well as growth consistent with the GMA and the 2016 adopted City of Port
Townsend Comprehensive Plan. The City of Port Townsend is currently in the process of updating
the City of Port Townsend’s Comprehensive Plan scheduled for 2025 adoption. The updated GSP
includes a projected capital investments analysis and operational projection necessary for the
next 20 years. An updated rate study was developed to pay for the infrastructure investment
identified in the capital analysis to ensure adequate funds to operate the sewer system. The City
of Port Townsend Council adopted the 2024 General Sewer Plan via Resolution 24-07 on May 6,
2024. The GSP is under review by the Washington State Department of Ecology. Following
Ecology’s review and approval, the final adoption will be incorporated into the City of Port
Townsend’s 2025 periodic update.
The City of Port Townsend’s limits coincide with the Port Townsend UGA boundary, and
encompass an area of approximately 7.4 square miles. Approximately 50 percent of the land
within the City of Port Townsend’s future wastewater service area is designated for residential
use, while the remaining land is designated for other uses such as open space/parks, commercial
use, public/infrastructure use, and other land uses. Most significantly, the City of Port Townsend
envisions a new neighborhood to CBV’s immediate north, the Evans Vista. Future plans include a
new lift station on Mill Road (i.e., Mill site) for the proposed Evans Vista neighborhood. Currently
in the preliminary design and fiscal analysis phase, the proposed 14.4-acre Evans Vista campus is
envisioned to include 100 to 150 affordable, workforce and mixed-income housing units. The
initial findings of the GSP and the Capital Improvement Plan (“CIP”) assumed that most of the
new growth will occur at or near the Mill site. The CIP includes a lift station to allow development
of the Mill site and conveyance for the new lift station’s discharge throughout the existing
collection system. All of the discharge from this station will flow by gravity to the wastewater
treatment facility posing no new loads to existing lift stations. The Mill site and all major lift
stations will be relatively new and/or rehabilitated in the 2020s, and no additional capacity or
significant upgrades will be needed during the 20-year planning horizon.
Jefferson County Public Utility District No. 1 (“PUD”) is working to address power capacity and
reliability issue in the Port Townsend area. PUD believes the solution to these issues is to build
another electrical sub-station that are adjacent to existing PUD power lines. In looking for suitable
location, the PUD identified two county-owned parcels, which were purchased as a unit when
establishing CBV at its current location. PUD’s General Manager recently addressed the County
Commissioners in a Board meeting, wherein the Board agreed to sell the two parcels to the PUD.
The County and the PUD are currently working on documentation to effectuate the sale.
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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One of the innovations of the GMA is the emphasis it places on the need to match public
infrastructure priorities with the land uses designated on the future land use map. The
comprehensive nature of planning under the GMA establishes the comprehensive plan as the
blueprint for fitting the jurisdiction’s vision, land use, and service priorities together in a more
efficient and effective way.
The capital infrastructure required to serve the revised Port Townsend UGA boundary is
determined by conducting an inventory of existing facilities, establishing an adequate level of
service to accommodate the projected growth or housing needs, and measuring the difference
between what is available and what is needed. The 32.72acres to be included in the Port
Townsend UGA are all publicly-owned parcels. In addition to the CBV properties, also included
are the City of Port Townsend regional stormwater facility parcel located northeast of CBV and
the parcels to be owned by PUD for a new substation southeast of CBV. The re-designation of the
land use and zoning maps would eliminate the potential segmentation of the required urban
services and facilities, but also ensure that future connections/expansions of these services were
possible.
WAC, RCW and Countywide Planning Policies (“CPP”). WAC 365-196-310(3) includes guidelines
for selecting and allocating countywide population projections used to assist in the overall
analysis and designation of UGAs for cities, UGAs not associated with cities, and potential growth
in rural areas. Countywide population must be within the range of projections provided by OFM
for the 20-year planning period.
This section of the WAC also encourages consideration of other population-related factors
including: population forecasts from outside agencies or service providers; historical Census data;
the ability of counties and cities to meet the financial obligation to support the population
projection they plan for; the land supply and density of uses that will efficiently accommodate
the population projection; more frequent review and update of UGAs than the required
minimum review; and integration of employment forecasts from the selected population
projection that will be allocated to UGAs and the rural area.
An UGA may be amended to include areas that are located outside of a city if it is already
characterized by urban growth, or if an area is adjacent to the area already characterized by
urban growth that will be served by urban public facilities. UGAs should reflect a cooperative
effort amongst jurisdictions in the county to accomplish the requirements of the act on a regional
basis, consistent with countywide planning policies. Services should be provided by cities in
UGAs. (WAC 365-196-310 (3))
UGA boundary expansion must be evaluated on a countywide basis. The location and size of any
revision is determined by the County after a thorough analysis and a joint planning process with
the City of Port Townsend, and then only if deemed necessary and all state requirements have
been met [RCW 36.70A.215(2) & WAC 365-196-310(4)(b)]. This includes the direction that
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“counties and cities should first consider the potential of increasing capacity of existing urban
areas through allowances for higher densities, or for additional provisions to encourage
redevelopment” (WAC 365-196-310(4)(b)(iv)).
In summary, appropriate location of new or expanded UGA boundary include:
UGA should have the density to accommodate urban growth, served by adequate public
facilities, discourage sprawl, and promote the goals of the act.
The county should attempt to define the urban growth area to accommodate the growth
plans of the City of Port Townsend.
New lands should be identified in the following priority:
o Existing incorporated areas
o Land that is already characterized by urban growth and has adequate facilities and
services
o Lands adjacent to the above, but not meeting those criteria
UGAs should not be expanded into designated agricultural, forest, or resource lands
unless no other option is available.
Counties should avoid expanding the UGA into areas with known critical areas extending
over a large area.
(WAC 365-196-310(4)(c)
Inclusion of the CBV and surrounding parcels within the Port Townsend UGA meets statutory
requirements. The addition of publicly-owned land is consistent with UGA designation criteria,
as the addition does not alter the residential or employment capacity of the UGA. The recent
legislative changes require local jurisdictions to consider accommodations for housing
projected population based on income categories. The joint effort by the County and City
leaders identified CBV as the proper location to establish the emergency shelter and permanent
support facility. CBV is currently zoned Rural Residential 1:20, which is inconsistent with the
current and projected public-purpose use of the county-owned property. Including the property
within the Port Townsend UGA would enable the provision of housing for more persons
experiencing housing insecurity. CBV will be served by adequate roads, fire protection,
infrastructure, water, wastewater disposal, and stormwater control, among other elements.
Further, SEPA mitigation measures included in the unchallenged MDNS threshold
determination in association with CBV’s housing facility approval (ZON2022-00152) are
expressly adopted as conditions of approval for the permit. Five issue-specific plans, including a
Transportation Plan, are required to be completed in consultation with first responders and
agencies (City of Port Townsend Police Department, Jefferson County Sherriff’s Office, East
Jefferson Fire Rescue). The County and City collaborated during the project review. Beyond
those as proposed and approved under the County’s conditional use permit, CBV is not
expected to experience any additional development for the foreseeable future. It will not
increase pressure to urbanize rural or natural resources lands
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Under RCW 36.70A.020, the GMA establishes a series of 15 goals that should act as the basis of
all comprehensive plans. The GMA specifically notes in the statute that the goals “are not listed
in order of priority and shall be used exclusively for the purpose of guiding the development of
comprehensive plans and development regulations.” As such, urban growth, housing, and public
facilities and services are equally important. The CBV location is suitable for urban growth as
characterized by existing development and infrastructure. Moreover, including CBV and
surrounding parcels into the Port Townsend UGA would qualify the jurisdictions to obtain
Connecting Housing to Infrastructure (“CHIP”) funding to expand/upgrade the City of Port
Townsend’s sewer infrastructure and enable the City to provide sewer service to CBV.
The Countywide Planning Policies (“CPP”) were developed initially in the 1990s as prescribed by
RCW 36.70A.210 through a collaborative process between Jefferson County and the City of Port
Townsend. With subsequent population allocation exercises associated with GMA-mandated
periodic updates, a Growth Management Steering Committee (“GMSC”) was expanded over time
in order to achieve greater countywide representation. The 2024 update of these countywide
planning policies has been overseen by the GMSC, and federally recognized Indian Tribes were
invited to participate in review of the countywide planning policies.
In a planning process over five meetings in 2024, the GMSC reached a recommendation for
updating the Countywide Planning Policies for the first time since the early 1990s, citing the local
need for the siting of special purpose housing such as emergency housing and shelters.
Permanent supportive housing to ensure such housing can be accommodated is identified as one
of the priorities. The inclusion of the CBV into the Port Townsend UGA would maximize the
funding opportunity in order to have the proper infrastructure to connect to the City of Port
Townsend’s sewer system. The anticipated funding allocated to install a large onsite septic
system per Condition #38 of ZON2022-00152 would be used elsewhere to better serve the
project.
The countywide policies establish the foundation for determining consistency of individual plans
with each other and with the tenets of the Growth Management Act, as well as a mechanism to
coordinate the provision of public facilities and services throughout the community. These
policies encompass broad concepts encouraging flexibility and innovation in meeting the goals
and intent of the Growth Management Act.
Jefferson County, City of Port Townsend, and other stakeholders are supportive of the CBV. Policy
#1 of the 2024 update of the Countywide Planning Policies addresses the policies on UGAs. It
contains the criteria on UGA boundaries amendment, such change “shall only occur after the
zoning and land use that ensues urban patterns and densities is identified, and capital facilities
plan is updated and adopted assuring adequate urban service to support the additional area”.
Policy #6 of the countywide policies addresses affordable housing. One of the policies is to update
the housing and land use elements of comprehensive plans to include assessment of land
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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available and the process of siting special purpose housing to ensure such housing can be
accommodated.
See the following sections to further elaborate on how CBV and the surrounding publicly-owned
property fits the required criteria to be incorporated into the Port Townsend UGA.
Environmental Information:
CBV has an existing land use and zoning designation of Rural Residential (“RR”) 1:20 (one dwelling
unit per 20 acres). The parcel is not designated as agriculture, forest, or mineral resource lands.
Only slight landslide hazard area and susceptible aquifer recharge areas are mapped as critical
areas. Slight landslide hazard area is not regulated under the County’s Critical Areas Ordinance.
The proposed impervious areas related to CBV are limited, and the likelihood of negatively
affecting infiltration, runoff, recharge, or long-term aquifer sustainability is minimal. That is to
say, the mapped critical areas would not make the site unsuitable for urban development.
Cumulative Impact Analysis:
Pursuant to JCC 18.450.080(1)(b), the Planning Commission and the Board of County
Commissioners shall develop findings and conclusions that consider specific criteria. Those
criteria, and staff evaluations, follow.
Cumulative Impact Analysis - UGA Comprehensive Plan & UDC Amendments to Amend
the Port Townsend Urban Growth Area, including the Caswell-Brown Village property
UDC/JCC Criterion Staff Evaluation
Is growth and development as envisioned in
the Comprehensive Plan occurring faster or
slower than anticipated, or is failing to
materialize?
Growth is occurring as anticipated in the
Comprehensive Plan.
Has the capacity of the county to provide
adequate services diminished or increased?
The County and City of Port Townsend
coordinate with providing services to people
experiencing homelessness. The capacity to
do so has recently diminished. The American
Legion Hall had limited space and is now no
longer available as a long-term facility.
Development of Caswell-Brown Village
(“CBV”) has increased overall capacity,
though this is now the only facility. Better
use can be made of the property if City
sewer service could be provided.
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Is sufficient urban land designated and
zoned to meet projected demand and need?
The inclusion of CBV in the Port Townsend
UGA would allow sewer service be provided,
eliminating the need of a Large Onsite
Sewage System (“LOSS”). This will better
meet demand.
Are any of the assumptions upon which the
Jefferson County Comprehensive Plan is
based no longer valid, or is new information
available that was not considered during
the adoption process or any annual
amendments of the Jefferson County
Comprehensive Plan?
There are no invalid assumptions. The
Comprehensive Plan is being updated to
reflect updated information and new state
laws.
Does the proposed amendment reflect the
current widely held values of the residents
of Jefferson County?
Yes. Facilities for housing and human
services have been valued in the County.
UGA boundary discussions have occurred
since enacting Growth Management Act.
Do changes in county-wide attitudes
necessitate amendments to the goals of the
plan and the basic values embodied within
the Comprehensive Plan Vision Statement?
No. The proposal is supported by the
Comprehensive Plan.
Do changes in circumstances dictate a need
for amendment?
Yes. Circumstances will require additional
temporary housing. The UGA expansion
would amend the Comprehensive Plan.
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Do inconsistencies exist between the
Comprehensive Plan and the GMA or the
Comprehensive Plan and the County-wide
Planning Policy for Jefferson County?
No. There are no inconsistencies in relation
to this proposal.
Have circumstances related to the proposed
amendment and/or the area in which it is
located substantially changed since the
adoption of the Jefferson County
Comprehensive Plan?
CBV would need to spend program dollars
for large septic capacity. If the City can
provide sewer service, those program
dollars can be used for expanding other
needed services to better serve the clients
at CBV.
The proposed text amendment meets
concurrency requirements for
transportation and does not adversely
affect the adopted level of service
standards for other public facilities and
services (e.g., sheriff, fire and emergency
medical services, parks, fire flow, and
general governmental services);
There are no transportation capacity issues
with this project. In fact, the site is situated
within a walking distance to other public
facilities and services, but not limited to
sheriff, fire and emergency, medical, parks,
public transit, and general governmental
services.
The proposed text amendment is consistent
with the goals, policies and implementation
strategies of the various elements of the
Jefferson County Comprehensive Plan;
Yes, the proposal is supported by the
Comprehensive Plan goals and policies,
particularly the Housing Element.
The proposed text amendment will not
result in probable significant adverse
impacts to the county’s transportation
network, capital facilities, utilities, parks,
and environmental features that cannot be
mitigated, and will not place
uncompensated burdens upon existing or
planned service capabilities;
The amendment would result in better use
of services and does not have any significant
environmental impacts.
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In the case of a text amendment to the Land
Use Map, that the subject parcels are
physically suitable for the requested land
use designation and the anticipated land
use development, including, but not limited
to, the following:
A. Access;
B. Provision of utilities; and
C. Compatibility with existing and planned
surrounding land uses.
Parcel currently under review is well-
situated for its intended purpose. The CBV is
in proximity to the city and services.
The proposed text amendment will not
create a pressure to change the land use
designation of other properties, unless the
change of land use designation for other
properties is in the long-term best interests
of the county as a whole;
No. The current land use designation for
CBV is RR 1:20, and is in the County’s
ownership. Adjacent parcels proposed for
inclusion in the Port Townsend UGA are all
publicly-owned with proposed public
purpose uses. Changing the land use
designation for other properties is not
required.
The proposed text amendment does not
materially affect the land use and
population growth projections that are the
bases of the Comprehensive Plan;
No. Land use and population are not
materially affected.
If within an unincorporated urban growth
area (UGA), the proposed text amendment
does not materially affect the adequacy or
availability of urban facilities and services
to the immediate area and the overall UGA;
The proposal does not materially affect the
adequacy or availability of urban facilities
and services to the immediate area and
overall UGA. Beyond those as proposed and
approved under the County’s conditional
use permit, CBV is not expected to
experience any additional development for
the foreseeable future. It will not increase
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the Port Townsend Urban Growth Area, including the Caswell-Brown Village property
UDC/JCC Criterion Staff Evaluation
pressure to urbanize rural or natural
resources lands
The proposed amendment is consistent
with the Growth Management Act (chapter
36.70A RCW), the County-Wide Planning
Policy for Jefferson County, any other
applicable inter-jurisdictional policies or
agreements, and any other local, state or
federal laws.
Yes. The proposal is consistent with CP, CPP,
and GMA.
Please provide an explanation of why the
amendment is being proposed.
There is an overriding public interest
demonstrating a public benefit beyond the
inclusion of the CBV and the surrounding
parcels into the Port Townsend UGA. It is
related to protecting public health, safety,
and welfare; enabling more cost-effective,
efficient provision of sewer and water; and
enabling the locally adopted Comprehensive
Plan and Countywide Planning Policies to
more effectively meet the GMA goals and is
authorized under state law.
Of note, in order to qualify for Connecting
Housing to Infrastructure (“CHIP”) Grant
funding through WA Department of
Commerce, the project site must be fully
inside an UGA boundary. CHIP funding
would enable CBV eligibility for sewer
extension. Jefferson County and the City of
Port Townsend have been collaborating and
performing work to make this endeavor
possible. If the opportunity for CHIP funding
for the sewer connection is missed,
Jefferson County may have a situation
where the interim emergency shelter will
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close and the new shelter will have a funding
gap to open. The impact on our unsheltered
population would be devastating.
Supplemental Sheet for Non-Project Actions:
The following environmental analysis is presented in the format of the Non-Project Action
Supplemental Sheet to the Environmental Checklist developed by the Department of Ecology
pursuant to the State Environmental Policy Act (“SEPA”).
Question #1. How would the proposal be likely to increase discharge to water; emissions to air;
production, storage, or release of toxic or hazardous substances; or production of noise?
Development standards in both the Jefferson County Code and the Port Townsend City Code are
sufficient to address stormwater, noise, and waste disposal.
Question #2. How would the proposal be likely to affect plants, animals, fish, or marine life?
The Caswell-Brown Village operates under a county stormwater permit. Vegetation is preserved
as screening.
Question #3. How would the proposal be likely to deplete energy or natural resources?
The Caswell-Brown Village site is area already planned for emergency, transient, and permanent
supportive housing. It is connected to a public water system. Sanitary sewer would be provided
by an established City of Port Townsend utility when a funding source is secured to
extend/upgrade the necessary infrastructure. There will be no significant depletion of energy or
natural resources.
Question #4. How would the proposal be likely to use or affect environmentally sensitive areas
or areas designated (or eligible or under study) for governmental protection, such as parks,
wilderness, wild and scenic rivers, threatened or endangered species habitat, historic or
cultural sites, wetlands, floodplains, or prime farmlands?
The mapped environmentally sensitive areas are not subject to regulation under the County’s
Critical Areas Ordinance. There are no areas designated or eligible for governmental protection.
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Question #5. How would the proposal be likely to affect land and shoreline use, including
whether it would allow or encourage land or shoreline uses incompatible with existing plans?
CBA was permitted under a County conditional use permit. It is a compatible land use outside of
shoreline jurisdiction. Sewer extension into the general vicinity of CBV might encourage
appropriate urban growth in the immediate area, as envisioned and planned.
Question #6. How would the proposal be likely to increase demands on transportation or public
services and utilities?
The scale of the project would not significantly increase transportation or public service demand.
Bus service already is nearby and is accessible to the people housed at the CBV. The parcel is
served by a public water supply and is in the City’s sewer service area. The City of Port Townsend
has indicated that it has the capability to serve the CBV with the system improvement upgrade.
Question #7. Identify, if possible, whether the proposal may conflict with local, state, or federal
laws or requirements for the protection of the environment.
There are no known conflicts with local, state, or federal laws or requirements.
Staff Recommendation:
Staff supports the inclusion of the Caswell-Brown Village (“CBV”) and surrounding publicly-
owned parcels, totaling 32.72 acres, into the Port Townsend UGA so that urban services (i.e.,
sewer) can be provided to this public purpose facility. The proposal would also match existing
land use to the updated land use map for both County and City. Existing public facilities include
the City’s regional stormwater facility and a new substation as proposed by the Public Utility
District No. 1 of Jefferson County (“PUD”).
Exhibit to Proposed Amendment 2 – Comprehensive Plan Amendatory Language
Proposal to expand the Port Townsend Urban Growth Area boundary to include publicly-owned
parcels for public purpose use, including the Caswell-Brown Village for housing services.
Strikethrough denotes a deletion; underline denotes an addition.
Jefferson County Comprehensive Plan Page 1-26:
Urban Growth Area Designations
The Port Hadlock/Irondale Urban Growth Area is planned for urban residential, urban
commercial, urban industrial, Both Rural and Urban Zones apply per the Land Use and Zoning
map. Rural zones apply until urban wastewater services are available, and then Urban zones
apply. See Section 1.4 for additional discussion.
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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The unincorporated Port Townsend Urban Growth Area is planned for public purpose facilities,
such as emergency shelters, transitional housing, emergency housing, and permanent supportive
housing. Urban Growth Area – Public Facilities district applies to the unincorporated Port
Townsend Urban Growth Area per the Land Use and Zoning map.
Page 1-26:
EXHIBIT 1-15A Unincorporated Port Townsend Urban Growth Area Land Use & Zoning
Designations
Land Use Designation Description of Zoning
Districts & Location
Principal
Land Use
Public Facilities Public Facilities (UGA-P) comprise 32.72 acres,
including open space areas, the Caswell-Brown
Village, the Port Townsend Regional Stormwater
Facility, and a future electrical substation as
proposed by the Public Utility District No. 1 of
Jefferson County.
Public and
Institutional
Page 1-34:
Urban Growth Areas & Services
Policies on Urban Growth Areas describe using the OFM to develop a joint County-City of Port
Townsend population forecast that would be used in capital facility and service plans.
Additionally, the policies describe sizing the urban growth area based at least on the low forecast
or if capital facilities are sufficient based on a medium or high projection.
Sizing of Urban Growth Areas is to be based primarily on adequate supply of developable land to
accommodate the joint population forecast, and including land for residential, commercial, and
industrial uses. The Urban Growth Area boundaries may be revised to accommodate special
purpose housing, provided an assessment of available land indicates that revision is necessary to
accommodate housing to all economic segments of the population, reduce displacement risk,
and undo identified racially disparate impacts.
Page 1-112
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Urban Growth Areas
Municipal & Unincorporated
The GMA authorizes the designation of Urban Growth Areas in RCW 36.70A.110 to include cities
and other areas characterized by urban growth or adjacent to such areas. Urban Growth Areas
are intended to accommodate a projected population growth for the next twenty years. The GMA
specifies that future growth should, first, be located in areas that already have public facilities
and service capacity and, second, in areas where such services, if not already available, are
planned.
In Jefferson County, there are two Urban Growth Areas:
▶ City of Port Townsend Municipal Urban Growth Area (Municipal and Unincorporated); and
▶ Port Hadlock/Irondale Unincorporated Urban Growth Area.
The City of Port Townsend is subject to its own Comprehensive Plan and development regulations
affecting urban growth and the provision of public facilities and services within the City of Port
Townsend. The unincorporated portion of the Port Townsend UGA is subject to the Jefferson
County Comprehensive Plan and implementing regulations. Joint planning between the County
and City is encouraged, particularly for those areas that may be annexed into the City of Port
Townsend at some point in the future.
The Irondale-Port Hadlock Urban Growth Area is an unincorporated Urban Growth Area, located
approximately 5 miles south of the City of Port Townsend, adjacent to Port Townsend Bay. This
unincorporated Urban Growth Area is subject to the Jefferson County Comprehensive Plan and
implementing regulations.
An Urban Growth Area defines where urban developments will be directed and supported with
typical urban public facilities and services, such as storm and sanitary sewer systems, domestic
water systems, fire and police protection services, and public transit services. Urban growth areas
enable new development to locate close to vital capital facilities and urban services or "infill" in
existing urbanizing areas. Urban Growth Areas enable fiscal resources associated with capital
facilities and urban services to be operated more cost-effectively.
The Port Hadlock/Irondale Urban Growth Area is an unincorporated Urban Growth Area, located
approximately 5 miles south of the City of Port Townsend, adjacent to Port Townsend Bay. This
unincorporated Urban Growth Area is subject to the Jefferson County Comprehensive Plan and
implementing regulations.
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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An Urban Growth Area defines where urban developments will be directed and supported with
typical urban public facilities and services, such as storm and sanitary sewer systems, domestic
water systems, fire and police protection services, and public transit services. Urban growth areas
enable new development to locate close to vital capital facilities and urban services or "infill" in
existing urbanizing areas. Urban Growth Areas enable fiscal resources associated with capital
facilities and urban services to be operated more cost-effectively.
The Urban Growth Area is an area where urban public facilities and services are available or are
planned. Provision of urban public facilities and services may be available through several service
providers, such as Jefferson County, the JPUD, or some other entity such as a sewer and water
district.
Port Townsend Urban Growth Area
Background
The construction of an emergency shelter and permanent support housing is a verified
community need. It remains one of the biggest issues facing our community. The COVID-19
pandemic exacerbated the housing emergency issues, and the County Commissioners began
crisis planning by identifying locations within the county and near services to house those
individuals who were experiencing homelessness. With American Rescue Plan funding, the
County purchased the Mill Road site and several other contiguous parcels to the south as a unit.
OlyCAP leases a site from the County, offering the local unhoused population a temporary place
to stay while working to find permanent housing. OlyCAP named the new location the Caswell-
Brown Village, in remembrance of two people who died while experiencing lack of shelter or
supportive services. The Caswell-Brown Village (“CBV”) on Mill Road refers to the combined 50-
bed emergency shelter with permanent supportive housing and a 40-lot park consisting primarily
of recreational vehicles and tiny shelters to provide housing for persons experiencing housing
insecurity. It will be a continuum of care housing facility operated by OlyCAP on a long-term lease
with the County.
Jefferson County has collaborated with the City of Port Townsend on a modification to the Port
Townsend UGA, something that has not happened since the original establishment of the UGA
boundary (coincident with the City’s municipal boundary) in the years following the adoption of
GMA. The area proposed to be included within the Port Townsend UGA is characterized by urban
growth. Either the subject parcels themselves already contain urban-style development or they
are located in close proximity to urban development, and by either measure, the subject area is
appropriate for urban growth. The growth pattern on or near these lands makes the parcels
incompatible with the primary use of land for the production of food, other agricultural products,
or fiber, or the extraction of mineral resources, rural uses, rural development, and natural
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resource lands designated pursuant to RCW 36.70A.170. The parcels are located in close
proximity to urban services, including but not limited to the City’s regional stormwater system,
sanitary sewer system, domestic water system, street cleaning services, fire and police protection
services, public transit services, healthcare and medical services, and other public utilities
associated with urban areas and normally not associated with rural areas.
In 2024, Jefferson County and the City of Port Townsend completed a joint housing allocation
using Method C of the model provided by the State Department of Commerce, called the Housing
for all Planning Tool (“HAPT”). There are no other suitable alternative sites within the existing
Port Townsend city limits to accommodate a similar facility. Incorporating CBV into the Port
Townsend UGA boundary addresses recent legislation that amended GMA to require local
governments, when completing the periodic update of comprehensive plans, to accommodate
housing affordable to all economic segments of the population, reduce displacement risk, and
undo identified racially disparate impacts.
The City of Port Townsend is progressing to complete the City’s General Sewer Plan (“GSP”)
update in 2025. The plan update provides planning level analysis of the City’s Wastewater
Treatment Plant, Biosolids Facility, and sewer collection system. The updated GSP includes a
projected capital investments analysis and operational projection necessary for the next 20 years.
An updated rate study was developed to pay for the infrastructure investment identified in the
capital analysis to ensure adequate funds to operate the sewer system. The GSP is under review
by the Washington State Department of Ecology. Following Ecology’s review and approval, the
final adoption will be incorporated into the City’s 2025 periodic update.
Jefferson County Public Utility District No. 1 (“PUD”) is working to address power capacity and
reliability issue in the Port Townsend area. PUD believes the solution to these issues is to build
another electrical sub-station that are adjacent to existing PUD power lines. In looking for suitable
location, the PUD identified two county-owned parcels, which were purchased as a unit when
establishing CBV at its current location. The County and the PUD are currently working on
documentation to effectuate the sale.
The 32.72-acre unincorporated Port Townsend UGA comprises all publicly-owned parcels. The
re-designation of the land use and zoning maps would eliminate the potential segmentation of
the required urban services and facilities, but also ensure that future connections/expansions of
these services were possible.
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Land Use Map & Zoning Designations
The Land Use and Zoning Map, adopted as a part of this element, is the graphic representation
of the densities and intensities of use and the goals, policies, and strategies contained within this
plan.
Land use and zoning designation is as follows:
Public facilities (“UGA-P”) comprise 32.72 acres, including open space areas, the Caswell-Brown
Village, the Port Townsend Regional Stormwater Facility, and a future electrical substation as
proposed by the Public Utility District No. 1 of Jefferson County.
Page 1-125
Urban Growth Area Goals & Policies
The goals and policies of the Urban Growth Area element provide direction for the development
of the Port Townsend Unincorporated Urban Growth Area and the Jefferson’s County’s Port
Hadlock/Irondale Unincorporated Urban Growth Area. They outline specific criteria for urban
development, incorporating issues and opportunities identified by County residents in the public
Urban Growth Area planning process.
Page 1-130
Policy LU-P-33.6 In addition to the LOS adopted for public facilities in the Capital Facilities
and Utilities Element of this Comprehensive Plan, adopt Urban LOS standards for the
following capital facilities and public services in the Port Hadlock/Irondale Unincorporated
Urban Growth Area:
a. On-Site Septic Sewage Treatment and Disposal: Per Jefferson County Code Chapter
8.15 (On-Site Sewage Disposal Systems)
Sanitary Sewer: Per the adopted City of Port Townsend General Sewer Plan and the Port
Hadlock/Irondale Urban Growth Area General Sewer Plan and Port Hadlock Wastewater Facility
Final Design.
Page 8-3
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EXHIBIT 8-1 Capital Facilities & Public Services Provided
Capital Facility &
Service Topic
Providers Serving Unincorporated
Territory Guiding Plans
Sewer Port Hadlock/Irondale UGA –
Jefferson County
Port Ludlow – Olympic Water and
Sewer
Unincorporated Port Townsend
UGA
Port Hadlock Wastewater
System: Urban Growth
Area Sewer Facility Plan,
2008 and Port Hadlock
UGA Sewer Facility Plan
Update, 2021
Design Plans &
Specifications, 2013
Port Townsend General
Sewer Plan (pending final
adoption in 2025)
Page 8-32
Policy CF-P-9.1 Utilize the following siting criteria as the basis for siting new essential public
facilities or for the expansion of existing essential public facilities:
a. Proximity to major transportation routes and essential infrastructure;
b. Land use compatibility with surrounding areas;
c. Potential environmental impacts by the facility as well as to the facility, including siting
considerations regarding effects of climate change;
d. Effects on resource and critical areas;
e. Proximity to Urban Growth Areas
f. Public costs and benefits including operation and maintenance;
g. Current capacity and location of equivalent facilities; and,
h. The existence, within the community, of reasonable alternatives to the proposed activity.
i. Other criteria as determined relevant to the specific essential public facility, or criteria
developed with Port Townsend (municipal and unincorporated) or the Port Hadlock/Irondale
unincorporated Urban Growth Area community.
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Proposed Amendment 4: Proposed Amendment 4: Review of Land Use and Zoning in the
Jefferson County Airport Essential Public Facility (AEPF)
Applicant: The Port of Port Townsend
Location: This proposed amendment will change the zoning and overlay designation of parcels,
or portions of parcels:
1. Addition to AEPF: APN 001332013 & 001332017, currently zoned RR-5, to be zoned EPF-A;
2. Expansion of Airport Overlay III (which currently consists of 24-acre APN 001331005): APN
001332013 & 001332017 (AEPF addition parcels); portions of the following parcels that are
currently in the AEPF: APN 001284006 NE corner of AEPF, north of Airport Road, and
portions of parcels outside of the FAA building restriction zone: APN 001332004 (a portion
of parcel west of SR20 and portion east of SR20), APN 001332001; APN 001331017; APN
001331012; APN 001331018 (entire); and APN 001331016.
General Description:
The AEPF is currently ca. 316 acres. The Port of Port Townsend proposes to expand the AEPF by
12 acres by adding two 6-acre parcels (APN 001332013 and APN 001332017) to the southwest
boundary (Figure 3), as well as expand the 24-acre Airport Overlay III within the resulting AEPF
zone from 24 acres to ca. 73.5 acres total (Figure 4). There are two distinct portions to the
expanded overlay: 1) a 6.5-acre area in the northeast corner of the AEPF, north of Airport Road,
and 2) the main overlay area south of the FAA building restriction line (identified as Airport
Overlay I). The proposed expansion of the AEPF has been accepted by the FAA as an amendment
to the Airport Layout Plan (“ALP”) as required by FAA. An update to the Airport Master Plan is
anticipated in 2025. A 3.38-acre portion of parcel APN 001334004 (“RR-10”) located below the
AEPF and connecting to Four Corners Road, was originally planned to be part of the AEPF
expansion, but will be acquired by the Port of Port Townsend for access to the AEPF and Airport
Overlay III and remain with rural residential zoning. No development would occur on this access
parcel except utilities and access.
Pursuant to JCC 18.15.453(1) the purpose of the Airport Overlay III is to provide a limited
opportunity for rural scale non-aviation-related industrial uses that contribute to the long-term
financial viability of the AEPF and to enhance the economic vitality and quality of life for the
citizens of Jefferson County. The JCIA light industrial manufacturing park has alternately been
referenced as the Airport Light Industrial Park (“ALP”), or JCIA Rural Light Industrial Park. The
purpose of the expansion of Airport Overlay III is to provide additional land for Light
Industrial/Manufacturing uses to provide additional economic growth opportunities, and
ultimately, add employment opportunities in the area.
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Comprehensive Plan Proposed Amendatory Language:
1. Amend Exhibit 1-8 Land Use/Zoning Map to reflect 12-acre addition to the AEPF (zone EPF-
A). (Figure 3.)
2. Amend the relevant portion of Exhibit 1-11, “Summary of Land Use & Zoning Designations”,
Page 1-20, to read as follows:
Land Use/Zoning
Designation
Criteria for designation Principal
Land Use
INDUSTRIAL
Light Industrial/
Manufacturing
(LI/M)
⇒ Quilcene Industrial Area
⇒ Eastview Industrial Plat
⇒ (JCIA LI/M Overlay III, consisting of 24 acres,
Assessor’s Parcel No. 001-331-005 in the
AEPF
Light Industrial
3. Amend Exhibit 1-20, “Location of Rural Industrial Lands”, Page 1-83, to accurately depict
the location and extent of the JCIA LI/M Overlay. (Figure 4.)
4. Amend the map, “Jefferson County International Airport – Non-Aviation Related Light
Industrial/Manufacturing Overlay”, Page 1-91, to accurately depict the expanded location
and extent of the JCIA LI/M Overlay. (Figure 4.)
5. Amend the first paragraph under the heading “Air, Waterborne, & Freight Travel”, Page
6-7, to read as follows:
The Jefferson County International Airport (“JCIA”) is owned and operated by the Port of Port
Townsend. It is situated about four miles southwest of the City of Port Townsend on about 316
acres. Its runway is about 3,000 feet in length, and over 107 aircraft are based there. The Airport
is designated as a General Aviation (GA) airport by the FAA’s National Plan of Integrated Airport
Systems (“NPIAS”). In 2010, the total flight operations equaled approximately 58,030, a small
percentage of which are were air taxi and commuter service and the majority of which are were
general aviation flights,. Airport use is anticipated to increase in the future. The Port’s current
Airport Master Plan Update (July, 2014) identifies an expansion plan to meet a 2.8% growth rate
for its 107 based aircraft and to stay within FAA requirements for safety and efficient airside and
landing facilities. The Port will apply applies for airport development grants for eligible
components of its preferred airport layout plan. Ancillary uses of the facility which attracts public
interest and increases use in at the airport includes businesses and organizations such as an aero
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museum, a flight instruction school, airplane mechanics, an airplane restoration school,
restaurant, and 24 acres areas designated in 2009 (Ord. No. 11-1215-09) for non-aviation-related
light industrial/manufacturing development. The airport is designated and zoned as an Essential
Public Facility by Jefferson County. Some airport master plan recommendations address height,
noise, and other factors. (Port of Port Townsend, 2014) The FAA-approved Airport Master Plan
describes the Port’s goals and objectives for the future maintenance, modernization, and/or
expansion of the facility. It is a guidance document that outlines key planning and development
issues and provides recommendations on a wide range of issues (e.g., building heights, noise,
etc.). The Port is initiating a process to update the Master Plan in 2025.
6. Amend the second and third paragraphs under the heading “Industrial & Manufacturing
Businesses”, Page 7-20, to read as follows:
Industrial sites in Jefferson County include the Port of Port Townsend, Port Townsend Industrial
Park (which has become a commercial and business park), Glen Cove, Eastview, Quilcene
Industrial Area, the Irondale/Port Hadlock UGA, the Port Townsend Paper Company, 24 acres at
a Rural Light Industrial Park at the Jefferson County International Airport, and Resource Based
Industrial zoned sites.
In addition to the industrial sites described above, the light industrial manufacturing park at the
Jefferson County International Airport, also known as the Airport “JCIA Rural Light Industrial
Park” also allows non-aviation related industrial and manufacturing uses. In 2009, the County
approved a rezone of 24 acres from rural residential to Airport Essential Public Facility capable of
supporting up to ten small to medium sized low impact, non-aviation-related light
industrial/manufacturing businesses. As of 2017 the site requires a Binding Site Plan, clearing and
installation of infrastructure before any business operations. Compliance with all applicable
provisions of the Jefferson County Code (“JCC”), including but not limited to Chapters 18.20,
18.30, and 18.35 JCC and the development standards established for the Airport Overlay III in JCC
18.15.453 and JCC 18.35.460, together with relevant provisions of the FAA-approved Airport
Master Plan, is required prior to development within the Rural Light Industrial Park. This will
ensure installation of all necessary infrastructure and utility improvements to support
development and use, as well as implementation of low impact development techniques.
Unified Development Code Proposed Amendatory Language
1. Amend Article III-A, “Jefferson County Airport Essential Public Facility District”, JCC
18.15.1110 “Designated”, to read as follows:
The Jefferson County International Airport (“JCIA”) is a general purpose, public aviation airport
that provides recreational, business, flight training, charter and air taxi services and other uses.
The airport essential public facility district designation (see the official Jefferson County
Comprehensive Plan land use designations map) shall apply to the following:
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(1) Parcels designated as an airport essential public facility on the official Jefferson County
Comprehensive Plan land use designations map;
(2) Any parcel or parcels (a) subsequently acquired by the Port in accordance with the
provisions of the approved JCIA master plan and depicted on the Airport Layout Plan (ALP)
Map of the FAA-approved Airport Master Plan; or (b) currently owned by the Port, which
are approved for inclusion in the airport essential public facility district through the
Jefferson County Comprehensive Plan text and land use amendment process, or any other
applicable process. [Ord. 8-06 § 1]
2. Amend Article III-A, “Jefferson County Airport Essential Public Facility District”, JCC
18.15.453 “Airport Overlay III”, to read as follows:
(1) Purpose. The purpose of the Airport Overlay III is to provide a limited opportunity for rural
scale non-aviation-related industrial uses that contribute to the long-term financial
viability of the AEPF and to enhance the economic vitality and quality of life for the citizens
of Jefferson County.
(2) Overlay Map. Jefferson County will prepare and maintain an Airport Overlay III map that
identifies the parcels located within the overlay.
(3) Permitted, Conditional and Prohibited Uses. Notwithstanding the permitted, conditional
and prohibited use limitations set forth in JCC 18.15.1112 through 18.15.1114, the
following uses shall be permitted within the Airport Overlay III designation:
(a) Non-aviation-related light industrial/manufacturing.
(4) Development Standards. In addition to the standards for new development in the AEPF
district set forth in JCC 18.15.1124 through 18.15.1132, the following provisions shall
apply:
(a) Impervious Surface Coverage, Building Dimension and Height Restrictions.
(i) Total impervious surface coverage shall not exceed 25 percent.
(ii) No structure shall exceed 10,000 square feet in size.
(iii) Notwithstanding JCC 18.15.1130, in no instance may structures exceed
35 feet in height.
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(b) Vegetation Retention and Perimeter Buffering. Existing vegetation should be
maintained to the maximum extent practicable in order to reduce soil erosion, provide
habitat for wildlife, screen light industrial uses from view, and maintain the
predevelopment hydrologic regime. Additionally, the Port shall maintain a minimum 50-
foot-wide buffer along the outer perimeter of each ownership parcel (i.e., not leasehold
parcels created through a future binding site plan process) within the overlay to screen
industrial uses from view and maintain the unincorporated rural aesthetic values of the
locale.
(c) Low Impact Development (“LID”). Development occurring within the Airport Overlay
III shall incorporate low impact development practices to the maximum extent feasible.
The most recent edition of the Low Impact Development Technical Guidance Manual for
Puget Sound (May 2005), developed by the Puget Sound Action Team in collaboration
with the Washington State Department of Ecology, shall be used as a primary source by
the county in reviewing and mitigating development occurring within the overlay district.
[Ord. 11-09 § 2 (Att. B)]
(5) Other Regulations. Parcels within the JCIA-III overlay are subject to all applicable
provisions of JCC Title 18, as well as regulations and restrictions established by the FAA (e.g.,
Building Restriction Lines (“BRLs”) and Object Free Areas (“OFAs”)).
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Figure 3. Addition to AEPF (grey with crosshatch)
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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Figure 4. Areas added to Airport Overlay III
Review of Airport Overlay III as modified:
Zoning south of the proposed Airport Overlay III is primarily RR-10, with the immediate area west
of SR 20 zoned RR-5. The area between the AEPF and Four Corners Neighborhood/Visitor
Crossroads (“NC”)
Jefferson County already allows the Rural Residential zone to abut the LI/M JCIA-III zone, which
the proposed amendment will not alter. The existing buffers outlined in the UDC for the LI/M
JCIA-III zone are not changed by this amendment, which will preserve the interface between
these two zones. Additionally, there will be opportunities for review and conditioning of specific
project proposals within this area. If it is determined that additional conditioning is needed for
development on one of these specific parcels, these conditions can be added at the project
permitting stage.
These properties currently allow uses which would require the use of septic systems. Any future
inclusion of these parcels in the JCIA-III zone would not change the need to develop a septic
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system. Future development on these parcels by The Port of Port Townsend would include on-
site or community septic. The UDC requires that development in the Airport Overlay III adheres
to Low Impact Development standards, which means that stormwater would be dealt with on
site. The continued operation of the existing airport is likely to be the principal adverse noise
impact in the area, although air traffic noise is intermittent and light industrial and manufacturing
noise may be more continuous in nature. The development of future Light Industrial and
Manufacturing facilities will be accompanied by the 50-foot-wide minimum buffers required of
each parcel in the Airport Overlay III area. This buffer will also mitigate the impacts from any
future light pollution.
Four Corners Neighborhood/Visitor Crossroads (“NC”) Limited Area of More Intensive Rural
Development (“LAMIRD”) is situated south of the AEPF generally at the intersection of Four
Corners Road (S. Discovery Road on the west side of the intersection) and SR 20. The area
between the AEPF and Four Corners NC is characterized by residential uses, including Moore’s
Mobile Manor residential park, and the Jefferson Transit facility.
Cumulative Impact Analysis:
Pursuant to JCC 18.450.080(1)(b), the Planning Commission and Board of County Commissioners
shall develop findings and conclusions that consider specific criteria. Those criteria, and staff
evaluations, follow.
Cumulative Impact Analysis - Jefferson County Airport Light
Industrial/Manufacturing Overlay Expansion
UDC/JCC Criterion Staff Evaluation
Is growth and development as envisioned in the
Comprehensive Plan occurring faster or slower
than anticipated, or is failing to materialize?
The growth rate in the County is occurring
slower than anticipated. The projected growth
rate in the 2018 Comprehensive Plan for the
County was 0.98% per year. The realized
population growth rate for 2022-2023 was
merely 0.22%. Since 2010, the average growth
rate has only been 0.1% in the County. Allowing
additional land for Light
Industrial/Manufacturing uses will provide
additional economic growth opportunities.
Has the capacity of the county to provide
adequate services diminished or increased?
County continues to be equipped to provide the
same levels of service that were available when
the comprehensive plan was passed in 2018.
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The county has planned to provide more
services to some areas such as the Irondale and
Port Hadlock Urban Growth Area.
Is sufficient urban land designated and zoned to
meet projected demand and need?
This Proposed Amendment is related to rural
land. This Proposed Amendment requests a new
mechanism be created to add parcels to the
Jefferson County International Airport Overlay
III (“JCIA-III”), which is a part of the Essential
Public Facilities- Airport (“EPF-A”) designation,
which is under the general comprehensive plan
category of Essential Public Facilities. Creating a
new mechanism to add parcels to this overlay
zone will help the airport meet projected job
needs. The Port of Port Townsend anticipates
that additional JCIA-III parcels will create
industrial jobs by allowing non-aviation uses as
part of the expanded EPF-A zone.
Are any of the assumptions upon which the
Jefferson County Comprehensive Plan is based
no longer valid, or is new information available
that was not considered during the adoption
process or any annual amendments of the
Jefferson County Comprehensive Plan?
Underlying assumptions have changed since the
Comprehensive Plan was last written. While the
demand for employment continues, several
business owners in the surrounding area are
struggling due to rising lease costs. This
amendment would allow the airport to create
industrial and aviation-compatible lands to
preserve existing and create new employment
opportunities.
Does the proposed amendment reflect the
current widely held values of the residents of
Jefferson County?
Jefferson County residents value jobs that allow
them to live where they work. Increasing the
land available for industrial and manufacturing
uses will have two benefits immediately felt by
residents: land available for local businesses to
rent, and an increase in the job capacity for the
area. This Proposed Amendment will ultimately
add employment opportunities to the area.
Do changes in county-wide attitudes
necessitate amendments to the goals of the
plan and the basic values embodied within the
Comprehensive Plan Vision Statement?
A change in county-wide attitude has not
necessitated an amendment to the goals of the
plan or the basic values. This Proposed
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Amendment aligns with the goals and values of
the plan.
Do changes in circumstances dictate a need for
amendment?
As property values in the county have increased,
rental costs for businesses surrounding the
Airport have increased. Port-owned light
industrial/manufacturing-zoned parcels would
provide additional means for economic growth.
Future additions to this overlay will provide a
mechanism for continued economic growth and
greater access to appropriately zoned land for
local businesses.
Do inconsistencies exist between the
Comprehensive Plan and the GMA or the
Comprehensive Plan and the County-wide
Planning Policy for Jefferson County?
This Proposed Amendment does not seek to
rectify any inconsistencies between the
Comprehensive Plan and the GMA or the
Comprehensive Plan and the County-wide
Planning Policies for the county.
Have circumstances related to the proposed
amendment and/or the area in which it is
located substantially changed since the
adoption of the Jefferson County
Comprehensive Plan?
Circumstances related to the proposed
amendment and/or the area in which it is
located have changed since the adoption of the
Jefferson County Comprehensive Plan. While
the demand for employment continues, several
business owners in the surrounding area are
struggling due to rising lease costs. This
amendment would allow the airport to create
industrial and aviation-compatible lands to
preserve existing and create new employment
opportunities.
The proposed text amendment meets
concurrency requirements for transportation
and does not adversely affect the adopted level
of service standards for other public facilities
and services (e.g., sheriff, fire and emergency
medical services, parks, fire flow, and general
governmental services);
Transportation Impacts: While it is likely that
both Four Corners Rd and SR 20 have existing
capacity for increased traffic volume, future
capacity concerns lie with intersection level of
service and appropriate roadway access to SR 20
(12-acre addition to AEPF). Project-level
considerations would require review with
WSDOT involvement. Traffic analysis was done
for the 24-acre Airport Overlay III site in 2009,
finding a possible increase of 49 average daily
trips on Four Corners Road per 100 employees.
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At this phase of review, there is no expected
exceedance of roadway level of service, or in the
demand for other public facilities and services
resulting from this Proposed Amendment. Any
project action resulting from this proposed
change would be reviewed for transportation,
public facility, and services concurrency
requirements using the appropriate processes.
The proposed text amendment is consistent
with the goals, policies and implementation
strategies of the various elements of the
Jefferson County Comprehensive Plan;
This proposed amendment is consistent with the
following Comprehensive Plan Goals:
LU-G-5: “Identify and designate lands for both
public purposes, public facilities, and essential
public facilities,”
ED-G-3: “Support Jefferson County’s industries
that leverage existing strengths, advantages,
and potential in the following areas… Port-
related economic development,”
ED-P-3.1 Support the efforts of the Port of Port
Townsend in diversifying the Jefferson County
International Airport (“JCIA”) to provide for a
broader number of trades, manufacturing, and
services. This may include but is not limited to,
the siting of appropriately scaled aviation and
non-aviation-related industrial/manufacturing
activities in the Airport Essential Public Facilities
District.
CF-G-9: “Regulate the siting of essential public
facilities consistent with the GMA and to meet
public service needs,”
CF-G-10, “Ensure the continued viability of the
Jefferson County International Airport as a
transportation hub,”
CF-G-11, “Ensure continuation of the airport as
a safe and efficient essential public facility,”
The proposed text amendment will not result in
probable significant adverse impacts to the
This Proposed Amendment will result in
increased capital facility capacity and will not
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county’s transportation network, capital
facilities, utilities, parks, and environmental
features that cannot be mitigated, and will not
place uncompensated burdens upon existing or
planned service capabilities;
have adverse impacts on the transportation
network, utilities, parks, and environmental
features that cannot be mitigated. Any project
action resulting from this proposed non-project
change would be reviewed for adverse impacts
to these facilities using the appropriate review
process.
In the case of a text amendment to the Land Use
Map, that the subject parcels are physically
suitable for the requested land use designation
and the anticipated land use development,
including, but not limited to, the following:
A. Access;
B. Provision of utilities; and
C. Compatibility with existing and planned
surrounding land uses.
Access to all the parcels within the maximum
extent proposed for the light
industrial/manufacturing overlay is provided by
existing roads. Utilities are currently available on
many of the sites. Any potential future site
improvements required to provide sufficient
access and utility provision will be coordinated
with the county.
The land use surrounding the EPF-A area is
currently all rural residential, limited to a density
of five acres per dwelling unit or ten acres per
dwelling unit. These rural residential parcels
currently border Airport Overlay III and EPF-A
properties. The proposed additions to the EPF-A
and Airport Overlay III would not change the
compatibility with the planned surrounding land
uses. There are Jefferson Transit bus stops both
northbound and southbound along SR 20 within
the AEPF.
The proposed text amendment will not create a
pressure to change the land use designation of
other properties, unless the change of land use
designation for other properties is in the long-
term best interests of the county as a whole;
The proposed text amendment would not create
a pressure to change the land use designation of
any other properties. The land use designation
changes are limited to the parcels in question for
this Proposed Amendment.
The proposed text amendment does not
materially affect the land use and population
growth projections that are the bases of the
Comprehensive Plan;
The proposed text amendment would not
materially affect the land use and population
growth projections that are the bases of the
comprehensive plan.
If within an unincorporated urban growth area
(UGA), the proposed text amendment does not
materially affect the adequacy or availability of
The proposed amendment is not within an
unincorporated UGA, and thus it does not
materially affect the adequacy or availability of
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urban facilities and services to the immediate
area and the overall UGA;
urban facilities and services to the immediate
area and the overall UGA.
The proposed amendment is consistent with the
Growth Management Act (chapter 36.70A
RCW), the County-Wide Planning Policy for
Jefferson County, any other applicable inter-
jurisdictional policies or agreements, and any
other local, state or federal laws.
The proposed amendment is consistent with the
Growth Management Act, countywide planning
policies for Jefferson County, and all other
applicable inter-jurisdictional, local, state, or
federal laws or policies. Additionally, creating
these economic development opportunities will
implement the goals of the Comprehensive Plan
as currently adopted.
Please provide an explanation of why the
amendment is being proposed.
The Port's mission is to build and maintain
infrastructure that sustains economic vitality in
the community. The Non-Aviation Light
Industrial/Manufacturing overlay provides local
businesses with an opportunity for growth and
to create more jobs. Incorporating more land
into this zone will allow higher job-dense land
uses than their current designations within the
RR-5/ RR-10 zoning districts.
Supplemental Sheet for Non-Project Actions:
The following environmental analysis is presented in the format of the Non-Project Action
Supplemental Sheet to the Environmental Checklist developed by the Department of Ecology
pursuant to the State Environmental Policy Act (“SEPA”).
Question #1. How would the proposal be likely to increase discharge to water; emissions to
air; production, storage, or release of toxic or hazardous substances; or production of noise?
Increases in discharges, emissions, production, storage, or release of toxic or hazardous
substances are not likely to result from the adoption of this proposed Comprehensive Plan
amendment. Existing policies and regulations at the county and state level are designed to reduce
discharges to water and impacts on the natural environment. In addition, individual projects in
this area are required to connect to the Quimper public water system and receive septic approval,
as well as comply with the policies and regulations of the county’s municipal code and
development standards. Air emissions are also regulated by the Puget Sound Clean Air Agency.
Storage and handling of any chemicals regulated by the Occupational Safety and Health
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Administration (“OSHA”). Emissions will be reviewed at the time of the subsequent permit
applications.
Proposed measures to avoid or reduce such increases are:
• Jefferson County Code and associated development regulations (title 18 JCC)
• Jefferson County Code Health and Safety (title 8 JCC)
• Jefferson County Code Buildings and Construction (title 15 JCC)
The proposed code amendment does not alter codes regulating water, air, and noise
pollution. Therefore, there are no anticipated impacts nor mitigation measures proposed.
Question #2. How would the proposal be likely to affect plants, animals, fish, or marine life?
None anticipated. There are no direct impacts on plants, animals, fish, or marine life from the
proposed amendment. All new development shall demonstrate compliance with the County’s
critical areas regulations in chapter 18.22 JCC prior to permit approval.
Proposed measures to protect or conserve plants, animals, fish, or marine life are:
• Future development is required to meet the County’s adopted critical areas
regulations which include impacts to steep slopes, wetlands, and fish and
wildlife habitat.
• In addition, projects that impact wetlands or marine/fresh waters are subject
to the permitting requirements of the Corp of Engineers, Department of Fish
and Wildlife and the Department of Ecology.
Question #3. How would the proposal be likely to deplete energy or natural resources?
This project is a non-project action. The proposed amendment will not impact energy or
natural resources. All subsequent development will be subject to compliance with the JCC.
Proposed measures to protect or conserve energy and natural resources are:
• None at this time. Future developments will be reviewed on a case-by-case basis for
compliance with county building codes, critical area protection standards, and state
energy codes.
Question #4. How would the proposal be likely to use or affect environmentally sensitive areas
or areas designated (or eligible or under study) for governmental protection, such as parks,
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wilderness, wild and scenic rivers, threatened or endangered species habitat, historic or
cultural sites, wetlands, floodplains, or prime farmlands?
Due to soils and subsurface conditions the proposed area Airport Overlay III area is underlain by
designated “Special Aquifer Recharge Protection Areas” (“SARPA”) and SARPA- “Susceptible”.
There are protection standards in chapter 18.22 JCC that will apply to development to protect
water quality. Much of the Airport Overlay III area is designated as “Seismic Soil” which may
require special building codes for protections against liquefaction. Considering the application
of existing development code provisions to all developments, the proposed amendment will not
have deleterious effects on critical areas, historic of cultural resources, prime farmlands, parks,
or scenic corridors. There is therefore no net loss of ecological functions and values, or loss of
agricultural, historic, or cultural, or recreational resources due to the proposed action.
Proposed measures to protect such resources or to avoid or reduce impacts are:
• See response above. State law requires protection of cultural sites and critical areas.
Future developments will be reviewed on a case-by-case basis for compliance with county
and state codes.
Question #5. How would the proposal be likely to affect land and shoreline use, including
whether it would allow or encourage land or shoreline uses incompatible with existing plans?
The Proposed Amendment will change the permitted, conditional, and non-permitted uses on
several parcels near the airport. However, future development proposals stemming from the
amendment will not be incompatible with existing plans because this is a direct amendment to
the Comprehensive Plan and UDC. Land use on the parcels receiving a zoning and overlay change
may shift to more aviation facilities and non-aviation-related light manufacturing and industrial
use. All future developments will be reviewed on a case-by-case basis for compatibility with
permitted, conditional, and non-permitted land uses.
The Port’s mission is to build and maintain infrastructure that sustains long-term economic
vitality of the community and make investments in infrastructure that will support the creation
of jobs.
Proposed measures to avoid or reduce shoreline and land use impacts are:
• None at this time. All future developments will be reviewed for consistency with the land
use code (title 18 JCC).
Question #6. How would the proposal be likely to increase demands on transportation or public
services and utilities?
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Road access to the AEPF addition parcels to the west will likely be from SR 20, and internal
connectivity within the expanded Airport Overlay III roadway system is anticipated, allowing
traffic to also use the Four Corners Road access. There is existing road access from the AEPF
addition parcels to SR 20 ca. 1,360 feet north of the intersection of Four Corners Road and SR 20.
There be a need for additional traffic/access modifications or analysis. Washington State
Department of Transportation (“WSDOT”) will need to provide review or updated road access
permit at the time of project-specific development.
Road access to the AEPF via Four Corners Road is being developed for the existing 24-acre Airport
Overlay III through APN 001334004. Four Corners Road is a county owned and designated “minor
collector”, connecting SR 19 (a.k.a. Airport Cutoff Road), designated “minor arterial”, with SR 20,
designated “highway”. The Four Corners access parcel is no longer being proposed to be added
to the AEPF. The thought being, there will be no Light Industrial/manufacturing intensity of use
on this parcel and therefore does not need to be within the AEPF or FAA Airport Layout Plan. The
Port of Port Townsend plans to provide landscaping and access development that fits within local
conditions.
Evaluation at this phase as a non-project action is done with incomplete information which would
be provided at a project action phase. It is likely that detailed transportation analysis of SR 20
access, roadway level of service, and intersection level of service, would accompany project-
specific proposals. This phase of the Proposed Amendment does not demonstrate an impact on
transportation or public services and utilities. All future development will be reviewed on a case-
by-case basis for significant impacts to transportation or public services and utilities.
Proposed measures to reduce or respond to such demand(s) are:
• None at this time. All future developments will be reviewed for potential significant
impacts to transportation or public services and utilities and may have to comply with
mitigation policies.
Question #7. Identify, if possible, whether the proposal may conflict with local, state, or federal
laws or requirements for the protection of the environment.
The proposed amendment will not affect any local, state, or federal laws. Future developments
will be required to meet all county, state, and federal laws applicable to environmental
protection requirements.
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FUTURE ANALYSIS AND PUBLIC REVIEW PROCESS
The proposed UDC text amendment removes the requirement of a Binding Site Plan (“BSP”). A
BSP requires public notice (a comment period) and is an appropriate land division process for the
Port of Port Townsend at the existing 24-acre site. But a BSP may not be applicable to other
development proposals elsewhere in the expanded Airport Overlay III. The site planning and
development for the existing 24-acre parcel will be through a permit process that includes public
notice and comment. There is some concern that an appropriate level of public participation be
part of future development proposals in the overlay. Because the anticipated scale and intensity
of development and use of future proposals within the expanded Airport Overlay III are currently
unknown, it is not known if the applicable permit process would trigger a public comment period
or SEPA review.
If development plans do not exceed adopted thresholds, the project would be categorically
exempt and SEPA would not be triggered. Public notice is provided for Type II through Type V
approval processes. A Type I process with SEPA review also triggers a public notice requirement.
Type I alone, such as minor site development and a building permit, does not have a public notice
requirement. A definite public notice process is not certain to solicit public input on the potential
wider impacts of the rural light industrial park development within Airport Overlay III.
Other Potential Avenues to Address Identified Public Process and Area-Wide Impact Concerns:
Airport Master Planning/Industrial Site Readiness Grant Planning Process: The Port of Port
Townsend will be conducting an update to the Airport Master Plan in 2025. The concept-level
planning being advanced under the Industrial Site Readiness Grant between now and the end of
June 2025 may be conducted as part of the Master Plan Update process. The Master Planning
process will be a public process, involving agencies and citizens, and will offer a full and fair
opportunity for any concerns regarding Overlay-III uses south of the BRL to be identified and
addressed.
Development Agreement: Another potential mechanism to provide an opportunity for public
input on the proposed expansion to the Overlay-III/rural light industrial park is a Development
Agreement under JCC 18.40.820 et seq. These are discretionary, and under the County’s code,
would be processed as a Type V permit (Planning Commission public hearing/recommendation;
Board decision) – even though the decision is considered to be “administrative” rather than
“legislative”. This mechanism could provide an avenue to outline the maximum scope of impacts
anticipated, and would also serve to vest future development and use to the current code
requirements for an agreed upon period of time. In addition to requiring Planning Commission
recommendation and approval by the County Commission, the Port of Port Townsend would also
need to obtain authorization from the Port Commission to enter into a Development Agreement
for the rural light industrial park.
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Staff Recommendation
The Staff Recommendation in the September 4, 2024 Staff Report is not changed. Staff
recommends adoption with the findings of this Supplement.
4. Attachments
Comment Record:
Only one comment, the comment below, was received during the hearing process.
PORT OF PORT TOWNSEND Requested Changes to Proposed Amendatory Ordinance
(Appendix D, Exhibit 1 – Proposed Amendments to CP and Ch.18.15 JCC) Entered as Testimony by Eric Toews, Port Deputy Director, Planning Commission Public Hearing, September 18, 2024 AIRPORT OVERLAY AMENDMENTS Comprehensive Plan Proposed Amendatory Language Amend the relevant portion of Exhibit 1-11, “Summary of Land Use & Zoning Designations”, Page 1-20, to read as follows:
Land Use/Zoning
Designation
Criteria for designation Principal
Land Use
INDUSTRIAL
Light Industrial/
Manufacturing
(LI/M)
⇒ Quilcene Industrial Area
⇒ Eastview Industrial Plat
⇒ (JCIA LI/M Overlay III, consisting of 24 acres,
Assessor’s Parcel No. 001-331-005 in the AEPF
Light Industrial
Amend Exhibit 1-20, “Location of Rural Industrial Lands”, Page 1-20, to accurately depict the location and extent of the JCIA LI/M Overlay: [RESERVED - PLEASE SEE INFORMATIONAL EXHIBIT “B” - ATTACHED] [Please note: Two graphics have been provided (see attached) to assist the Planning Commission in its deliberations: 1) Exhibit “A”, “Conversion from RR-5 to EPF-A”, depicting the requested expansion to the essential public facility land use designation and zoning; and 2) Exhibit “B”, “Conversion to Overlay III”, depicting the proposed expansion to the Overlay III within the bounds of the expanded AEPF designation/zone. These are intended to serve as a guide to the preparation of formal exhibits to be included within the Plan/Code.] Amend the map, “Jefferson County International Airport – Non-Aviation Related Light Industrial/Manufacturing Overlay”, Page 1-91, to accurately depict the expanded location and extent of the JCIA LI/M Overlay:
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[RESERVED - PLEASE SEE INFORMATIONAL EXHIBIT “B” - ATTACHED] Amend the first paragraph under the heading “Air, Waterborne, & Freight Travel”, Page 6-7, to read as follows: The Jefferson County International Airport (JCIA) is owned and operated by the Port of Port Townsend. It is situated about four miles southwest of the City of Port Townsend on about 316 acres. Its runway is about 3,000 feet in length, and over 107 aircraft are based there. The Airport is designated as a General Aviation (GA) airport by the FAA’s
National Plan of Integrated Airport Systems (NPIAS). In 2010, the total operations equaled approximately 58,030, a small percentage of which are were air taxi and commuter service and the majority of which are were general aviation flights,. Airport use is anticipated to increase in the future. The Port’s current Airport Master Plan Update (July, 2014) identifies an expansion plan to meet a 2.8% growth rate for its 107 based aircraft and to stay within FAA requirements for safety and efficient airside and landing facilities. The Port will apply applies for airport development grants for eligible components of its preferred airport layout plan. Ancillary uses of the facility which attracts public
interest and increases use in at the airport includes businesses and organizations such as an aero museum, a flight instruction school, airplane mechanics, an airplane restoration school, restaurant, and 24 acres areas designated in 2009 (Ord. No. 11-1215-09) for non-aviation-related light industrial/manufacturing development. The airport is designated and zoned as an Essential Public Facility by Jefferson County. Some airport master plan recommendations address height, noise, and other factors. (Port of Port Townsend, 2014) The FAA-approved Airport Master Plan describes the Port’s goals and objectives for the future maintenance, modernization, and/or expansion of the facility.
It is a guidance document that outlines key planning and development issues and provides recommendations on a wide range of issues (e.g., building heights, noise, etc.). The Port is initiating a process to update the Master Plan in 2025. Amend the second and third paragraphs under the heading “Industrial & Manufacturing Businesses”, Page 7-20, to read as follows:
Industrial sites in Jefferson County include the Port of Port Townsend, Port Townsend Industrial Park (which has become a commercial and business park), Glen Cove, Eastview, Quilcene Industrial Area, the Irondale/Port Hadlock UGA, the Port Townsend Paper Company, 24 acres at a Rural Light Industrial Park at the Jefferson County International Airport, and Resource Based Industrial zoned sites. In addition to the industrial sites described above, the light industrial manufacturing park at the Jefferson County
International Airport, also known as the Airport “JCIA Rural Light Industrial Park” also allows non-aviation related industrial and manufacturing uses. In 2009, the County approved a rezone of 24 acres from rural residential to Airport Essential Public Facility capable of supporting up to ten small to medium sized low impact, non-aviation-related light industrial/manufacturing businesses. As of 2017 the site requires a Binding Site Plan, clearing and installation of infrastructure before any business operations. Compliance with all applicable provisions of the Jefferson County Code (JCC), including but not limited to Chapters 18.20 and 18.30 JCC and the development standards established for the Airport Overlay III in JCC 18.15.453, together with relevant provisions of the FAA-approved Airport Master Plan, is required prior to development within the Rural Light Industrial Park. This will ensure installation of all necessary infrastructure and utility improvements to support development and use, as well as implementation of low impact development techniques. Unified Development Code Proposed Amendatory Language Amend Article III-A, “Jefferson County Airport Essential Public Facility District”, JCC 18.15.1110 “Designated”, to read as follows: The Jefferson County International Airport (JCIA) is a general purpose, public aviation airport that provides recreational, business, flight training, charter and air taxi services and other uses. The airport essential public facility
Jefferson County 2024 Comprehensive Plan Amendment Supplemental Staff Report & SEPA Addendum October 10, 2024
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district designation (see the official Jefferson County Comprehensive Plan land use designations map) shall apply to the following: (1) Parcels designated as an airport essential public facility on the official Jefferson County Comprehensive Plan land use designations map;
(2) Any parcel or parcels (a) subsequently acquired by the Port in accordance with the provisions of the approved JCIA master plan and depicted on the Airport Layout Plan (ALP) Map of the FAA-approved Airport Master Plan; or (b) currently owned by the Port, which are approved for inclusion in the airport essential public facility district through the Jefferson County Comprehensive Plan text and land use amendment process, or any other applicable process. [Ord. 8-06 § 1] Amend Article III-A, “Jefferson County Airport Essential Public Facility District”, JCC 18.15.453 “Airport Overlay III”, to read as follows: (1) Purpose. The purpose of the Airport Overlay III is to provide a limited opportunity for rural scale non-aviation-related industrial uses that contribute to the long-term financial viability of the AEPF and to enhance the economic vitality and quality of life for the citizens of Jefferson County.
(2) Overlay Map. Jefferson County will prepare and maintain an Airport Overlay III map that identifies the parcels located within the overlay. (3) Other Regulations. Parcels within the JCIA-III overlay are subject to all applicable provisions of JCC Title 18, as well as regulations and restrictions established by the FAA (e.g., Building Restriction Lines (BRLs)
and Object Free Areas (OFAs)).