HE staff report.pdf1215th Avenue North, Edmonds WA 98020
Phone: 425.771.0220 • Fax: 425.771.0221 • Web: www.edmondswa
DEVELOPMENT SERVICES DEPARTMENT • PLANNING DIVISION
PLANNING DIVISION
REPORT & RECOMMENDATION TO THE HEARING EXAMINER
Project: Former Woodway High School Field Improvements — Phase 1
Requested Permits: PLN20140065 (Design Review)
PLN20140066 (Height variance for ball control fencing in the RS -8 zone)
PLN20140067 (Conditional use permit for bleachers, playfield lighting,
and ball control fencing height in the OS zone)
PLN20150009 (Height variance for light poles in the RS -8 zone)
PLN20150013 (Height variance for light poles in the OS zone)
Date of Report: M rch , 25
Staff Contact:
Mike Clugston, AICP, Associate Planner
Public Hearing: March 26, 2014 at 3:00 P.M.
Edmonds Public Safety Complex: Council Chambers
250-5 th Avenue North, Edmonds, WA 98020
I. SUMMARY OF PROPOSAL AND PROCESS
The Edmonds School District, in cooperation with Verdant Healthcare and the City of
Edmonds, is proposing to upgrade the existing athletic fields at the former Woodway
High School at 23200 100th Avenue West. The first phase of this three-phase project
involves installing two new synthetic turf fields together with catch fencing, backstops,
bleachers, dugouts and lights. The project site is split -zoned between Open Space (OS)
and Single -Family Residential (RS -8). The existing school buildings, parking areas and
vehicular circulation patterns will remain unchanged.
The design review, conditional use permit, and variance reviews are considered Type III -
B decisions under Section 20.01.003 of the Edmonds Community Development Code
(ECDC) and all five permits have been consolidated for review pursuant to ECDC
20.01.002.B. When public projects involving variances are consolidated, the
Architectural Design Board (ADB) reviews the proposed development at a public
meeting and makes a recommendation to the Hearing Examiner. The Hearing Examiner
then holds a public hearing and makes a further recommendation to the City Council.
The Council, in accordance with ECDC 17.00.030.C, finally holds a closed -record review
Former Woodway High School Field Improvements
PLN20140065-0067,PLN2015009 & PLN20150013
Page 1 of 21
of the project and makes the final decision on the consolidated proposal per ECDC
20.01.002.C.
The Architectural Design Board held a public meeting and reviewed the design of the
proposed redevelopment on March 4, 2015 and recommended approval with conditions
(Attachments 10 and 11).
It should be noted that the original conditional use permit for light pole height in the OS
zone (PLN20150008) was withdrawn by the School District when City staff realized the
height of the proposed poles in question was taller than what the code allowed through
a conditional use permit. The School District subsequently applied for a variance for
light pole height in the OS zone (PLN20150013). The design of the project and lights has
not changed from what was recommended for approval by the Architectural Design
Board, only the type of permit that the Hearing Examiner will review.
As described in this report, the Design Board recommended approval of the project's
design with conditions; staff recommends approval of the associated conditional use
permits and variances with conditions.
II. ATTACHMENTS
1. Land use applications and project narratives
2. Photos of similar sites and photosimulations of the Phase 1 proposal
3. November 18, 2014 plans (cover sheet, drainage and grading, elevations)
4. Zoning map
5. Aerial photo
6. Correspondence and public notice documentation for design review meeting
7. Technical comments
8. January 20, 2015 plans (revised site plan, concession stand plan, electrical site plan,
light pole elevations and light spill plan)
9. February 12, 2015 revised project site plan with parking counts
10. ADB staff report
11. ADB recommendation (draft minutes of March 4, 2015 meeting)
12. OS zone light pole height variance plans
13. Marked up Sheet E-1.0 showing split zoning
14. Edmonds School District SEPA checklist and Determination of Nonsignificance
15. Public notice documentation for Hearing Examiner hearing
16. Edmonds School District letter March 17, 2015
17. Edmonds School District letter March 17, 2015
18. Public comments
III. SEPA THRESHOLD DETERMINATION
Acting as lead agency, the Edmonds School District issued a Determination of
Nonsignificance on February 27, 2015 (Attachment 14). The School District has received
a number of comments regarding the project and has indicated that the issue of field
infill material will be addressed by the District as part of its decision-making process
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 2 of 21
(Attachment 16). Those comments are outside of the scope of the land use permit
reviews that are the subject of this staff report as noted in the Public Comments section
below on page 17 of this report.
IV. PUBLIC HEARING NOTICE
A "Notice of Public Hearing" for permits PLN20140067 — 0069 and PLN20150009 was
published in the Herald Newspaper, posted at the subject site, as well as the Public
Safety Complex, Community Development Department, and the Library on March 12,
2015. Notice of the public hearing was also mailed to property owners within 300 feet
of the site.
Because permit PLN20150008 was withdrawn and PLN20150013 was applied for after
the design review meeting on March 4, a separate "Notice of Application and Public
Hearing" for PLN20150013 was published in the Herald Newspaper, posted at the
subject site, as well as the Public Safety Complex, Community Development
Department, and the Library on March 12, 2015. Notice of the public hearing was also
mailed to property owners within 300 feet of the site (Attachment 15).
The City has complied with the noticing provisions of ECDC 20.03.
V. ZONE DISTRICT REQUIREMENTS — ECDC 16.65 (OS zone) and ECDC 16.20 (RS -8 zone)
As noted previously, the subject site is split -zoned between Open Space (OS) and
Residential Single Family (RS -8) (Attachments 4 and Attachment 13). It should be noted
that there are only use requirements in the OS zoning code but not site development
standards; the OS zoning language references the Public (P) zone for related use and site
development standards.
1. Open Space (OS) zone.
a. Use.
Playgrounds or playfields are a permitted use, provided they are developed
on previously cleared land in accordance with the requirements of the Public
(P) zone in Chapter 16.80 ECDC. [ECDC 16.65.010.A.4] The proposed project
involves replacing existing grass playfields with artificial turf playfields and is
therefore a permitted use.
ii. New bleachers, playfield lighting and structures over 25 feet in height require
a conditional use permit in the P zone. [ECDC 16.80.010.C.3 & C.4] The
School District has applied for a conditional use permit for bleachers,
playfield lighting, and ball control fencing approximately 30 feet tall through
permit PLN20140067.
b. Site development standards. The OS zone does not contain development
standards but references those in the Public (P) zone in Section 16.80.030 ECDC.
L Minimum setbacks. A minimum landscaped setback of 20 feet shall be
maintained from a public street or other property lines, except that a setback
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 3 of 21
of 25 feet shall be maintained for all structures, structured play areas and
structured athletic fields from adjacent residentially zoned properties. These
setbacks shall be fully landscaped. [ECDC 16.80.030.A]
The proposed improvements are already buffered by an existing forested
area which varies between about 50 feet and 200 feet in width (Attachment
3, cover sheet).
ii. Height. The maximum height of a building in this zone shall be 25 feet, unless
a conditional use permit has been obtained, except that the height of schools
shall be governed by ECDC 17.100.050(1). A conditional use permit for
additional height may permit structures up to a maximum height of 60 feet.
[ECDC 16.80.030.13]
ECDC 16.80.010.C.4 indicates that structures between 25 feet and 60 feet in
height — such as the proposed ball control fencing — require a conditional use
permit. Structures greater than 60 feet in height — such as the light poles —
require a variance. A conditional use permit and a variance are part of this
review (PLN20140067 and PLN20150013, respectively). For a CUP in the OS
zone, the specific conditional use permit criteria in ECDC 16.80.020 must be
considered along with those of ECDC 20.05. The variance must be analyzed
against the criteria in ECDC 20.85 — see Sections VII and VIII for analysis of the
conditional use permit and variance.
c. Lot coverage. The maximum lot coverage by buildings and other structures shall
not exceed 35 percent unless a conditional use permit has been obtained. [ECDC
16.80.030.C]
There is currently no structural lot coverage in the OS -zoned portion of the site.
The new playfields will have several small metal bleachers for spectators. These
will result in some structural lot coverage but it will be negligible relative to the
several -acre project site.
d. Signs. All signs shall be subject to ADB approval. Signs shall be kept to a
minimum size, which is compatible with the surrounding neighborhood and uses,
while providing adequate visibility. [ECDC 16.80.030.D]
No signs have been proposed in the OS -zoned portion of the site.
Landscaping. Site landscaping is reviewed against the requirements of ECDC
20.13. [ECDC 16.80.030.E]
As noted in the staff report to the ADB (Attachment 10, page 6), few landscaping
changes are proposed for the project, none on the OS -zoned portion of the site.
The existing forested buffer around the larger site will remain.
f. Parking. All regional public facilities shall comply with the minimum off-street
parking requirements contained in ECDC 17.50.030.
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 4 of 21
1. All on-site parking lots shall be screened from adjacent residential
properties with a solid wall or sight -obscuring fence not less than six feet in
height. Such walls or fences may be built progressively as the parking
facilities are installed. Landscaping shall be installed in accordance with ECDC
20.13.025.
2. Regional public facilities shall submit a transportation management plan
for approval by the city. The plan shall address the following: traffic control,
parking management, mitigation measures for overflow parking into
adjoining residential areas, and traffic movement to the nearest arterial
street. [ECDC 16.80.030.F]
By definition, the existing school site is not a regional public facility (ECDC
21.85.033). No new parking is proposed for the project in the OS -zoned portion
of the site while the existing parking is located on the portion of the site zoned
RS -8 (Attachment 5). See Section VII of this report for how the parking
requirements in ECDC 17.50 are satisfied.
g. Orientation to Transportation Facilities. All regional public facilities must be
located adjacent to or within 500 feet of a principal or major arterial street.
[ECDC 16.80.030.G]
The existing school site is not a regional public facility. The site is adjacent to
100th Avenue South which is minor arterial street. Edmonds Way (SR -104), a
major arterial, is approximately 630 feet to the north. The access road to the
school site is a signalized intersection on 100th Avenue South.
h. Transit. All regional public facilities shall be located within 1,500 feet of an
existing transit center. At least one on-site transit stop or station shall be
required. The transit stop or station shall include a turnout of suitable size and
location to accommodate public buses. [ECDC 16.80.030.H]
The existing school site is not a regional public facility. There are Community
Transit bus lines on both 100th Avenue South and Edmonds Way (SR -104).
i. Lighting. All exterior lighting shall be arranged and directed so as to direct the
light away from adjacent residential uses. [ECDC 16.80.030.1]
All lights proposed for the project will be on tall poles which will allow the lights
to be directed more steeply downward into the site. Shielded fixtures will be
used (Attachments 8 and 12). This arrangement will result in very low light spill
at the site boundaries of less than 1 foot candle measured at 3 feet above the
ground (Sheet SPL -1.0, Attachment 8).
Screening. Electrical substations, water/sewer pump stations, sewage treatment
facilities, solid waste facilities, commuter parking lots, and maintenance and
storage yards shall be adequately screened from adjacent residential properties
with a solid wall or sight -obscuring fence not less than six feet in height.
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 5 of 21
Landscaping shall be provided in accordance with Chapter 20.13 ECDC. [ECDC
16.80.030.1]
The existing school site is not one of the listed facilities and none of the facilities
is proposed for the OS -zoned portion of the site. The site is screened by the
forested buffer.
2. Residential Single Family (RS -8) zone.
a. Use. High schools are a primary use requiring a conditional use permit subject to
the requirements of ECDC 17.100.050(G) through (R). [ECDC 16.20.010.A.4]
"High schools shall be permitted as a conditional use in all zones." [ECDC
17.100.050.G.3]
A conditional use permit was issued by Snohomish County in 1965 for the
existing high school buildings and playfields (CU -20-65). The site was annexed by
the City of Edmonds in 1983. A new conditional use permit is not required to
update the playfields; however, separate land use permits are required for new
elements of the project within the RS -8 zone (height variances for ball control
fencing and light poles).
b. Setbacks. "For purposes of this section, setback distance shall be measured from
any building located upon the school site, except that accessory buildings and
recreation structures (such as storage sheds, utility sheds, equipment storage
sheds, ball field nets or backstops, bleachers, and similar structures) shall comply
with the setback requirements of the underlying zone." [ECDC 17.100.050.H]
The minimum setback noted in the above subsection is 25 feet from all
residential and nonresidential property lines, but only for buildings. In this case,
the recreation structures like fencing, backstops, bleachers and lights must meet
the requirements of the underlying RS -8 zone. For this project, there is no
setback from the OS zone line split but there would be a 7.5' side setback from
the north and south property lines in accordance with RS -8 zone requirements.
In any event, the proposed structures more than meet all setbacks given the
presence of the wide forest buffer at the edge of the site.
Height. "The maximum building height for schools shall not exceed the
maximum height for the zone in which the school is located, except:
1. That in residential zones or any zone in which a structure 35 feet in height
is not a permitted use, that portion of the structure or a separate structure
that serves as an auditorium, gymnasium, or swimming pool, may be
permitted to a maximum building height of 35 feet with a conditional use
permit; and
2. Provided that the maximum building height for any other portion of the
entire structure may be increased above the maximum(s) provided in this
Former Woodway High School Field Improvements
PLN20140065-0067,PLN2015009 & PLN20150013
Page 6 of 21
section, also subject to conditional use permit approval, to a maximum of 35
feet." [ECDC 17.100.050.1]
The proposed taller structures in the RS -8 zoned portion of the project are not
buildings but rather ball control fencing and light poles.'The usual maximum
height for accessory structures in the RS -8 zone is 15 feet (ECDC 16.20.050.13).
Variances for the height of the proposed fencing and lights are a related part of
this review (PLN20140066 and PLN20150009, respectively).
d. Sidewalks. "Sidewalks shall be provided along all street frontages to ensure safe
walking paths for children walking to and from the school buildings and site. The
requirement for off-site walking paths shall be reviewed on a site-specific basis as
part of the applicable SEPA or site plan review." [ECDC 17.100.050.J]
Existing sidewalks are located along 100th Avenue North and the site is
connected to those by a stairway east of the school buildings. No changes are
proposed to these features.
e. Playgrounds and Playfields. "The following standards shall apply to playgrounds
and playfields, where provided:
1. Primary school playgrounds and playfields shall be located on-site.
2. High school playfields and sports fields may be located off-site;
provided, that they are located reasonably near the school site and are
accessible by sidewalks or other safe walking paths.
3. Where playgrounds or playfields are immediately adjacent to
residential properties, they shall be adequately screened with a fixed wall
or fencing at least six feet in height.
4. All playgrounds and playfields shall be landscaped in a manner
consistent with the primary use of such areas and further in accordance
with the landscaping standards contained in Chapter 20.12 ECDC." [ECDC
17.100.050.K]
Only a small portion of the project will be located within the RS -8 zone
(Attachment 13) and the playfields will not be immediately adjacent to other
residentially zoned properties due to the surrounding forest buffer (Attachments
4 and 5).
f. Portables. Not applicable to this project. [ECDC 17.100.0501]
g. Parking. The following parking standards shall apply to schools:
1. Primary schools shall provide a minimum of 11 spaces for each 100
students as determined from the design capacity as determined in
accordance with subsection H of this section. Primary schools shall designate
nondedicated parking areas on-site to accommodate "special event" parking
on-site.
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 7 of 21
2. All on-site parking lots shall be screened from adjacent residential
properties with a solid wall or sight -obscuring fence not less than six feet in
height. Such walls or fences may be built progressively as the parking
facilities are installed. Landscaping shall be installed in accordance with ECDC
20.12.025.
3. High schools shall submit a transportation management plan for approval
by the city. The plan shall address the following: traffic control, parking
requirements and management, mitigation measures for overflow parking
into adjoining residential areas, and traffic movement to the nearest arterial
street. [ECDC 17.100.050.M]
No changes are proposed to the existing parking areas and access — see Section
VII of this report for how the proposed playfield upgrade satisfies the parking
requirements in ECDC 17.50.
Orientation to Transportation Facilities. "Primary schools may be located on non -
arterial streets. High schools shall be located adjacent to or within 500 feet of a
principal or minor arterial street." [ECDC 17.100.050.N]
The project site is adjacent to 100th Avenue South which is minor arterial street.
Edmonds Way (SR -104), a major arterial, is approximately 630 feet to the north.
The access road to the school site is a signalized intersection on 100th Avenue
South.
i. Transit. "High schools shall provide for at least one public transit stop or station.
The transit stop or station shall include a turnout of suitable size and location to
accommodate public buses." [ECDC 17.100.050.0]
There are existing Community Transit bus stops on 100th Avenue South, just east
of the site.
j. Signage. "All signage shall be erected and maintained in compliance with
Chapter 20.60 ECDC." [ECDC 17.100.050.13]
No signage was proposed with the project. A building permit is required for
signs.
k. Secondary Uses. Not applicable to this project. [ECDC 17.100.050.Q]
I. Governing Law. "In the event that any provision of this section directly conflicts
with any -state or federal law or regulation, the provisions of such law or
regulation shall control." [ECDC 17.100.050.R]
There is no indication that the proposed field upgrade project will conflict with
any state or federal law.
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 8 of 21
VI. DESIGN REVIEW — ECDC 20.10
PLN20140065 — Design review for Phase 1, Former Woodway High School Field
Improvements
The Architectural Design Board held a public meeting and reviewed the design of the
proposed field redevelopment on March 4, 2015 and unanimously recommended
approval of the project with the following conditions (Attachment 11):
1. THE APPLICANT MUST APPLY FOR AND OBTAIN ALL NECESSARY PERMITS. THE
APPLICATION IS SUBJECT TO THE REQUIREMENTS IN THE EDMONDS COMMUNITY
DEVELOPMENT CODE, AND IT IS UP TO THE APPLICANT TO ENSURE COMPLIANCE
WITH THE VAROUS PROVISIONS CONTAINED IN THESE ORDINANCES.
2. THE APPLICANT SHALL WORK WITH STAFF TO IDENTIFY AN APPROPRIATE SPECIES OF
TREE FOR THE ENTRY DRIVE ADJACENT TO THE FIELDS.
3. THE APPLICANT SHALL GIVE SERIOUS CONSIDERATION TO THE LOCATION OF THE
DOUBLE GATE SO AS TO NOT NEED TO RELOCATE IT ONCE SUBSEQUENT PHASES OF
THE PROJECT ARE IMPLEMENTED.
Conditions #1 and #2 were proposed by staff (Attachment 10, page 7) and Condition #3
was added by the Design Board when they noticed that access to the 12' double rolling
gate on the east side of the fields would be somewhat obstructed by the concession
stand should that feature be built in the future (Attachment 3, Sheet F-1.1 and
Attachment 8). All three conditions are recommended in this report which the Hearing.
Examiner may include, eliminate or amend.
VII. CONDITIONAL USE PERMITS — ECDC 20.05
PLN20140067 — Conditional use permit for bleachers, playfield lighting, and ball control
fencing over 25 feet tall in the OS zone
According to ECDC 16.80.010.C.3, bleachers and playfield lighting require a conditional
use permit. Similarly, structures over 25 feet in height require a conditional use permit
per ECDC 16.80.010.C.4. As proposed, the ball control fencing in the Open Space zoned
portion of the project will be 30 feet tall (Attachment 3, Sheets F-2.5 and F-2.6) and
therefore requires a conditional use permit. In addition to the regular conditional use
permit criteria in ECDC 20.05, the specific criteria in ECDC 16.80.020 must also be
considered.
Pursuant to ECDC 20.05.010, a conditional use permit may not be approved unless
all of the following findings can be made:
A. That the proposed use is consistent with the Comprehensive Plan.
The proposed ball control fencing, bleachers and playfield lighting are consistent
with the larger project and the Comprehensive Plan. As noted in the staff report
to the Architectural Design Board, the playfield upgrade project was included in
the Parks, Recreation and Open Space (PROS) Plan adopted by City Council in
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 9 of 21
February 2014 (Attachment 10, page 3). This Plan is adopted by reference in the
Comprehensive Plan and specifically includes Objective 2.E which describes the
project:
"Implement previous community process to work with the Edmonds
School District to redevelop the Former Woodway High School site into a
regional sports and recreation asset with adult soccer/multi-sports turf
fields, providing for year-round recreation options and serving a growing
community. Involve the community in design development." [Chapter 4:
Action Plan, page 4-4]
In addition, staff feels that the proposal is consistent with the design guidance
found in the Community Culture and Urban Design Element. Refer to Section G
of Attachment 10 (pages 3 — 7) for further discussion on how this proposal is
consistent with the Comprehensive Plan.
B. Zoning Ordinance. That the proposed use, and its location, is consistent with the
purposes of the zoning ordinance and the purposes of the zone district in which
the use is to be located, and that the proposed use will meet all applicable
requirements of the zoning ordinance.
As described in this report, the project will meet the requirements of the OS
zone. Bleachers, playfield lighting and additional height for the ball control
fencing would be allowed if the conditional use permit is granted.
For the bleachers, playfield lighting and ball control fencing in the OS -zoned
portion of the site, the Hearing Examiner must consider the following specific
criteria for conditional use permits found in ECDC 16.80.020:
A. Impact of the proposal on the visual and aesthetic character of the
neighborhood;
The ball control fencing and bleachers in the OS -zoned portion of the
project will have minimal impact on the visual and aesthetic character of
the neighborhood. The 30' tall fencing will be much shorter than the
trees in the surrounding forest buffer and the size of the bleachers is
negligible compared with the scale of the project.
The playfield lighting would alter the visual and aesthetic character of the
area. Changing from otherwise dark fields to lit fields at night will be
seen from the surrounding area because some sky glow would be
created. However, the site is screened by the existing forest buffer and
the use of taller light poles and cut-off fixtures are proposed to minimize
off-site light spill to the immediate surrounding properties. As noted in
the associated light spill plan (Attachment 8, Sheet SPL -1.0), light
intensity near ground level is proposed to be less than 1 foot-candle at
the site boundary. While there will be a change from existing conditions,
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 10 of 21
playfield lighting at a school site would not seem out of place in a built -
out city environment.
B. Orientation of facilities to developed or undeveloped residential areas,
The proposed ball control fencing, bleachers and playfield lighting in the
OS zone will be set back between 100 and 200 feet from the nearest
property line and will be screened by the forest buffer.
C. Preservation of natural vegetation and/or other natural features;
Neither the forest buffer nor the slopes surrounding the site will be
impacted by the installation of the ball control fencing, bleachers or
playfield lighting. The fencing and bleachers will be installed around the
updated playfields on the existing level portion of the site.
D. Hours of operation; performance standards; conformance of the proposal
with the city's noise ordinance;
The City of Edmonds Parks & Recreation Department will be responsible
for scheduling use of the playfields for non -school activities. They have
indicated that the fields will not be used for non -school activities during
the regular school day (a condition to this effect is proposed). As a result,
the approximate hours of operation could include Monday — Friday, 5
p.m. to 10 p.m., Saturday and Sunday, 9 a.m. to 10 p.m., year-round. This
intensity is in keeping with the use envisioned in the PROS Plan of 2014.
The property performance standards in Chapter 17.60 apply to this parcel
as they do with all parcels in the City. ECDC 17.60.030.13 pertains
specifically to lighting and states:
External lights shall be shielded, trained or directed in a manner
which minimizes glare onto adjacent property or passing traffic.
Arc welding, acetylene torch cutting or similar processes shall be
performed so as not to be seen from any point beyond the outside
of the property. Any lighting on a sports field or court shall be
turned off by an automatically timed mechanism no later than
10:15 p.m. Field or court lighting fixtures shall minimize scattering
of light beyond the field or court being illuminated.
As noted previously, all field lighting would be located on tall poles and
directed downward onto the fields and use shielded fixtures to minimize
scattering (Attachments 8 and 12). An automatic timer that shuts lights
off at 10:15 p.m. will be required (a condition is proposed).
Lastly, according to the noise abatement and control standards in
Chapter 5.30 of the Edmonds City Code: "Sounds originating from
officially sanctioned parades and other events to which the general public
is solicited to attend without charge and sounds originating from league
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 11 of 21
or school sponsored athletic events" are exempt from the provisions of
the noise abatement chapter at all times. [ECC 5.30.100.G]
E. Ability of the proposal to provide for adequate on-site parking; and traffic
impacts of the proposal on the neighborhood.
Regarding parking, for different uses on the same site (school, playfields),
ECDC 17.50.030.0 indicates that the number of parking stalls must be the
sum of the requirements for the different uses.
As shown on Attachment 9, there are currently 307 parking stalls on the
site. For the school use, 102 parking stalls are required (1 stall per
daytime employee per ECDC 17.50.020.C.6). For the playfield use, the
requirement for outdoor places of public assembly in ECDC 17.50.020.C.1
applies. This parking requirement indicates: "Outdoor places of public of
assembly, including stadiums and arenas require one parking space per
eight fixed seats or per 100 square feet of assembly area, whichever is
greater." Using the fixed seat method, 42 parking stalls would be
required for the playfields. However, using the assembly area method,
137 stalls would be required based on an estimate of where spectators
would most likely congregate around the fields. Summing the 137 stalls
for playfield use and the 102 stalls for school use equals 239 stalls, 68 less
than the 307 existing stalls on the site.
As noted previously, there is no change proposed to vehicular access on
the site. Cars will continue to enter and exit the site using the signalized
intersection at 100th Avenue West. The existing access north of the site
onto 102nd Place West will remain closed off with a locked gate,
accessible only by emergency vehicles (Attachment 9).
C. Not Detrimental. That the use, as approved or conditionally approved, will not be
significantly detrimental to the public health, safety and welfare, and to nearby
private property or improvements unless the use is a public necessity.
The bleachers, ball control fencing, and playfield lighting will reflect a change
from what is existing on the site but these features, including the lighting, will
not be significantly detrimental to the public health, safety and welfare nor to
nearby private property or improvements. The existing forested area will
continue to buffer the larger site from the surrounding neighborhoods while the
field improvements themselves will more effectively serve a larger portion of the
public.
D. Transferability. The hearing examiner shall determine whether the conditional
use permit shall run with the land or shall be personal. If it runs with the land
and the hearing examiner finds it in the public interest, the hearing examiner
may require that it be recorded in the form of a covenant with the Snohomish
County auditor. The Hearing Examiner may also determine whether the
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 12 of 21
conditional use permit may or may not be used by a subsequent user of the same
property.
The Applicant requested that the conditional use permit be personal to the
owner/applicant, Edmonds School District (Attachment 1).
2. With conditions, staff feels the proposal is consistent with the conditional use
criteria for approval listed ECDC 20.05 and in ECDC 16.80.020.
Vlll. VARIANCES — ECDC 20.85
The applicant applied for three variances related to Phase 1 of the field improvements:
PLN20140066 — Height variance for ball control fencing up to 30 feet in the RS -8 zone
PLN20150009 — Height variance for light poles up to 90 feet in the RS -8 zone
PLN20150013 — Height variance for light poles up to 90 feet in the OS zone
A variance to any requirement in Titles 16 and 17 of the Edmonds Community
Development Code (except use and procedural requirements) may be approved when
the following findings can be made:
A. Special Circumstances. That, because of special circumstances relating to the
property, the strict enforcement of the zoning ordinance would deprive the owner
of use rights and privileges permitted to other properties in the vicinity with the
same zoning.
1. Special circumstances include the size, shape, topography, location or
surroundings of the property, public necessity as of public structures and uses
as set forth in ECDC 17.00.030 and environmental factors such as vegetation,
streams, ponds and wildlife habitats.
2. Special circumstances should not be predicated upon any factor personal to
the owner such as age or disability, extra expense which may be necessary to
comply with the zoning ordinance, the ability to secure a scenic view, the
ability to make more profitable use of the property, nor any factor resulting
from the action of the owner or any past owner of the same property,
B. Special Privilege. That the approval of the variance would not be a grant of
special privilege to the property in comparison with the limitations upon other
properties in the vicinity with the same zoning;
C. Comprehensive Plan. That the approval of the variance will be consistent with
the comprehensive plan;
D. Zoning Ordinance. That the approval of the variance will be consistent with the
purposes of the zoning ordinance and the zone district in which the property is
located;
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 13 of 21
E. Not Detrimental. That the variance as approved or conditionally approved will
not be significantly detrimental to the public health, safety and welfare or
injurious to the property or improvements in the vicinity and same zone,
F. Minimum Variance. That the approved variance is the minimum necessary to
allow the owner the rights enjoyed by other properties in the vicinity with the
same zoning.
Because the three variances are for public structures proposed by a public agency
(Edmonds School District), the process language in ECDC 17.00.030.0 applies:
All public structures and uses built or altered by the city or any other public
agency shall comply with this zoning ordinance. Where it is a public necessity to
build, or alter, a structure or use in a location or in a manner not complying with
this zoning ordinance, a variance may be considered. In this case, the action of
the hearing examiner shall be a recommendation to the city council.
As noted previously, the Hearing Examiner will review the three variances against the
criteria in ECDC 20.85 and make a recommendation to the City Council who will make
the final decision on the variances as well as the associated design review and
conditional use permit.
Staff Analysis:
PLN20140066 — Height variance for 30 foot tall ball control fencing in the RS -8 zone
1. Special circumstances. Playfields, parks and open spaces are a public necessity in
any city but particularly in a developed area like Edmonds. The City Council
recognizes this and adopted the updated Parks, Recreation and Open Space (PROS)
Plan in February 2014 which included the Former Woodway playfield upgrade
project. Specifically, Objective 2.E states:
"Implement previous community process to work with the Edmonds School
District to redevelop the Former Woodway High School site into a regional
sports and recreation asset with adult soccer/multi-sports turf fields,
providing for year-round recreation options and serving a growing
community. Involve the community in design development." [Chapter 4:
Action Plan, page 4-4]
2. Special privilege. A height variance for ball control fencing based on public necessity
would not constitute special privilege. Ball control fencing of a similar height shown
on Sheets F-2.5 and F-2.6 of Attachment 3 is proposed for the OS -zoned portion of
the site (through permit PLN20140067) and exists at athletic fields on the Edmonds-
Woodway High School campus as well as Meadowdale High School, the new
Lynnwood High School, and other sports field installations throughout the Puget
Sound (Attachment 17 —fence letter).
3. Comprehensive plan. The proposed ball control fencing is consistent with the larger
project and the Comprehensive Plan. As noted above, the playfield upgrade project
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 14 of 21
was included in the Parks, Recreation and Open Space (PROS) Plan adopted by City
Council in February 2014, which is adopted by reference in the Comprehensive Plan.
In addition, staff feels that the proposal is consistent with the design guidance found
in the Community Culture and Urban Design Element; refer to Section G of
Attachment 10 (pages 3 — 7) for further discussion on how the proposal is consistent
with the Comprehensive Plan.
4. Zoning ordinance. The maximum height for accessory structures in the RS -8 zone is
15 feet. Approval of the subject variance would allow ball control fencing up to 30
feet tall as shown on Sheets F-2.5 and F-2.6 of Attachment 3.
5. Not detrimental. Ball control fencing up to 30 feet in height would not be
significantly detrimental to the public health, safety and welfare or injurious to the
property or improvements in the vicinity and same zone (Attachment 17). The
fencing in the RS -8 zoned portion of the project would match that proposed for the
OS -zoned portion of the site and the entire site will continue to be screened by the
forested buffer.
6. Minimum variance. Variable fence and netting height up to 30 feet is designed to
maximize safety and effectiveness (Attachment 17).
PLN20150009 — Height variance for 90 foot tall light poles in the RS -8 zone
1. Special circumstances. Playfields, parks and open spaces are a public necessity in
any city but particularly in a developed area like Edmonds. The City Council
recognizes this and adopted the updated Parks, Recreation and Open Space (PROS)
Plan in February 2014 which included the playfield upgrade project. Specifically,
Objective 2.E states:
"Implement previous community process to work with the Edmonds School
District to redevelop the Former Woodway High School site into a regional
sports and recreation asset with adult soccer/multi-sports turf fields,
providing for year-round recreation options and serving a growing
community. Involve the community in design development." [Chapter 4:
Action Plan, page 4-4]
2. Special privilege. A height variance for light poles based on public necessity would
not constitute special privilege. Light poles of a similar height exist at athletic fields
on the Edmonds-Woodway High School campus as well as Meadowdale High School,
the new Lynnwood High School, and other sports field installations throughout the
Puget Sound.
3. Comprehensive plan. The proposed light poles are consistent with the larger project
and the Comprehensive Plan. As noted above, the playfield upgrade project was
included in the Parks, Recreation and Open Space (PROS) Plan adopted by City
Council in February 2014, which is adopted by reference in the Comprehensive Plan.
In addition, staff feels that the proposal is consistent with the design guidance found
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 15 of 21
in the Community Culture and Urban Design Element. Refer to Section G of
Attachment 10 (pages 3 — 7) for further discussion on how this proposal is consistent
with the Comprehensive Plan.
4. Zoning ordinance. The maximum height for accessory structures in the RS -8 zone is
15 feet. Approval of the subject variance would allow light poles up to 90 feet tall as
shown on Attachments 8 and 12.
5. Not detrimental. Light poles up to 90 feet tall would not be significantly detrimental
to the public health, safety and welfare or injurious to the property or
improvements in the vicinity and same zone. The poles in the RS -8 zoned side of the
project would be similar to those proposed for the OS -zoned portion of the site and
the whole site will continue to be screened by the forested buffer. The taller light
poles and cut-off light fixtures will minimize light spill which reduces the impact to
neighboring properties. As noted in the associated light spill plan (Attachment 8,
Sheet SPL -1.0), light intensity near ground level is proposed to be less than 1 foot-
candle at the site boundary.
6. Minimum variance. The light poles on the RS -8 portion of Phase 1 range between 60
and 90 feet in height (Attachments 8 and 12). While lower towers could be used,
the School District indicated that more light towers would then be required. Each of
those lower towers would then not be able to direct the light down as steeply,
increasing light throw off site. As a result, to minimize the number of lights used and
light spill off the site, light poles ranging between 60 and 90 feet would appear the
minimum necessary for this project.
PLN20150013 — Height variance for 90 foot tall light poles in the OS zone
1. Special circumstances. Playfields, parks and open spaces are a public necessity in
any city but particularly in a developed area like Edmonds. The City Council
recognizes this and adopted the updated Parks, Recreation and Open Space (PROS)
Plan in February 2014 which included the playfield upgrade project. Specifically,
Objective 2.E states:
"Implement previous community process to work with the Edmonds School
District to redevelop the Former Woodway High School site into a regional
sports and recreation asset with adult soccer/multi-sports turf fields,
providing for year-round recreation options and serving a growing
community. Involve the community in design development." [Chapter 4:
Action Plan, page 4-4]
2. Special privilege. A height variance for light poles based on public necessity would
not constitute special privilege. Light poles of a similar height exist at athletic fields
on the Edmonds-Woodway High School campus as well as Meadowdale High School,
the new Lynnwood High School, and other sports field installations throughout the
Puget Sound.
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 16 of 21
3. Comprehensive plan. The proposed light poles are consistent with the larger project
and the Comprehensive Plan. As noted above, the playfield upgrade project was
included in the Parks, Recreation and Open Space (PROS) Plan adopted by City
Council in February 2014, which is adopted by reference in the Comprehensive Plan.
In addition, staff feels that the proposal is consistent with the design guidance found
in the Community Culture and Urban Design Element. Refer to Section G of
Attachment 10 (pages 3 — 7), for further discussion on how this proposal is
consistent with the Comprehensive Plan.
4. Zoning ordinance. The maximum height for structures in the OS zone (P zone, by
reference) is 25 feet, or 60 feet through a conditional use permit. Approval of the
subject variance would allow light poles up to 90 feet tall as shown in Attachments 8
and 12.
5. Not detrimental. Light poles up to 90 feet tall would not be significantly detrimental
to the public health, safety and welfare or injurious to the property or
improvements in the vicinity and same zone. The poles in the OS zoned side of the
project would be similar to those proposed for the RS -8 zoned portion of the site
and the site will continue to be screened by the forested buffer. The taller light
poles and cut-off light fixtures will minimize light spill which reduces the impact to
neighboring properties. As noted in the associated light spill plan (Attachment 8,
Sheet SPL -1.0), light intensity near ground level is proposed to be less than 1 foot-
candle at the site boundary.
6. Minimum variance. The light poles on the OS portion of Phase 1 range between 70
and 90 feet in height (Attachment 8, Sheet SPL -1.0). While lower towers could be
used, the School District indicated that more light towers would then be required.
Each of those lower towers would then not be able to direct the light down as
steeply, increasing light throw off site. As a result, to minimize the number of lights
used and light spill off the site, light poles ranging between 70 and 90 feet would
appear the minimum necessary for this project.
IX. PUBLIC COMMENTS
As of the date of this report, 42 comments have been received from 40 separate
commenters (Attachment 18). A number of the comments were in support of the field
upgrade project as a whole but did not address individual elements of the project in
reference to the land use permits. Others addressed possible health effects of crumb
rubber infill for the turf fields. As noted in the SEPA discussion on page 2 of this report,
the choice of infill material is part of the School District's review process and not the
City's review of the five land use permits. All commenters will become parties of record
to the City Council's decision on the land use permits but only those comments
specifically pertaining to the land use permits will be addressed in this section.
The comments about the five land use permits addressed three main concerns: lighting
and noise as well as access and parking. Stormwater management was also mentioned
Former Woodway High School Field Improvements
PLN20140065-0067,PLN2015009 & PLN20150013
Page 17 of 21
but that is addressed as part of the building permit and must comply with the
requirements of ECDC 18.30 — Stormwater Management.
Noise
The noise abatement and control standards in Chapter 5.30 of the Edmonds City Code
state: "Sounds originating from officially sanctioned parades and other events to which
the general public is solicited to attend without charge and sounds originating from
league or school sponsored athletic events" are exempt from the provisions of the noise
abatement chapter at all times. [ECC 5.30.100.G] No sound amplification has been
proposed.
Li htin
As described in Sections VII and VIII of this report, playfield lighting does satisfy the
requirements for a conditional use permit in the OS zoned portion of the project. The
proposed light pole height variances also satisfy the criteria for variance requests.
Changing from otherwise dark fields to lit fields at night will be seen from the
surrounding area because some sky glow would be created. However, the site is
screened by the existing forest buffer and the use of taller light poles and cut-off fixtures
are proposed to minimize off-site light spill. As noted in the associated light spill plan
(Attachment 8, Sheet SPL -1.0), light intensity near ground level is proposed to be less
than 1 foot-candle at the site boundary.
Access and Parkin
As noted previously, there is no change proposed to vehicular access to the site. Cars
will continue to enter and exit the site using the signalized intersection at 100th Avenue
West. The existing access north of the site onto 102"d Place West will remain locked and
only accessible to emergency vehicles (Attachment 9). There is existing signage on
102nd Place West restricting parking within portions of that right-of-way.
There is also no change proposed to parking because the existing parking meets the
requirements found in Chapter 17.50 ECDC as is described in Section VII (page 12).
There are currently 307 parking stalls on the site (Attachment 9). Of those, 137 stalls
are required for the playfield use and 102 are required for the school use. The 239
required stalls are 68 less than the 307 stalls currently provided at the site.
X. CONCLUSION AND RECOMMENDATION
Based on the analysis in and the attachments to this report, staff feels the proposal is
consistent with the conditional use approval criteria in ECDC 20.05.010 and ECDC
16.80.020, and the variance criteria of ECDC 20.85. The design of the site and proposed
structures are consistent with the design standards in ECDC 20.11 and the Urban Design
Element in the Comprehensive Plan. Therefore, the Hearing Examiner should
recommend that the City Council APPROVE the design review (PLN20140065),
conditional use permit (PLN20140067), and variances (PLN20140066, PLN20150009 &
Former Woodway High School Field Improvements
PLN20140065-0067,PLN2015009 & PLN20150013
Page 18 of 21
PLN20150013) associated with Phase 1 of the Former Woodway High School Field
Improvements with the following conditions:
1. The ball control fencing in the OS and RS -8 zoned portions of the project site may be
a maximum of 30 feet in height as shown on Sheets F-2.5 and F-2.6 of Attachment 3.
2. The light poles in the OS and RS -8 zoned portions of the project site may be a
maximum of 90 feet in height as shown in Attachments 8 and 12.
3. An automatic timer that turns the field lights off at 10:15 p.m. is required.
4. Fields shall not be scheduled for non -school activities during regular school hours.
5. The Applicant shall give serious consideration to the location of the double gate so
as to not need to relocate it once subsequent phases of the project are
implemented.
6. The Applicant must apply for and obtain all necessary permits. This application is
subject to the requirements in the Edmonds Community Development Code. It is up
to the Applicant to ensure compliance with the various provisions contained in these
ordinances.
7. The conditional use permit shall be personal to the Edmonds School District and is
not transferable.
8. Subsequent phases of this project will require separate land use permitting
processes as necessary.
XI. PARTIES OF RECORD
Tonya Arico
tonyaarico@gmail.com
Brian Baird and Rachel Nugent
brianbairdphd@gmail.com
Greg Boland
greg@harborsquare.com
Jennifer Carrigan
jecarrigan@gmail.com
Tim Crosby
timcrosby@comcast.net
JC Delalla
jcdellalla@comcast.net
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 19 of 21
Kelly Armentrout
jkarmentrout@icloud.com
Leslie Bloomer
leslie.bloomer@seattle.gov
Steve Calandrillo
scalandrillo@hotmail.com
Cadence Clyborne
cadence.kerr@hdrinc.com
Dona DeGroat
dona.degroat@seattlechildrens.org
Brandie Giles
brandiegiles@gmail.com
Michael and Nikki Glaros Cheryl Grambihler
nglaros@hotmail.com rcgrambihler@frontier.com
Eric Grant Deb, Jasmine & Eliana Harrick
grant6pack@yahoo.com debharrick@comcast.net
Tod Harris Linda Hoverson
tod@outlook.com linda.hoverson@gmail.com
Gary Krohn Ross Kruse
garykrohn@aol.com krusehouse@frontier.net
Cordelia and Joy McCullough-Carranza Maryls McDonald
joymariemc@gmail.com marlysonthemove@hotmail.com
Barbara McGuire Jennifer McLaughlin
babmcguire@comcast.net jenniferm@edmondsumc.org
Angela Michael Stanley Petersen
abis.michael@gmail.com pete@superior-marine.com
Margaret Pinson Cindy Raven
maggiepinsonl2@gmail.com reverence4life@comcast.net
Paul Richards Kevin Samione
edmondslibrarian@hotmail.com kjsamione@gmail.com
Jeff and Sophia Sargent Scott Schafer
jeffsarge33@gmail.com schafer_s@yahoo.com
Lane Seeley Kate Smith
seelel@spu.edu smithfamily5@gmail.com
Ben Stuenzi Matthew Tillman
brstuenzi@comcast.net matthewtillman0429@hotmail.com
Marci Villanueva Shaela Welsh
espressogal@comcast.net shaelamw@aol.com
Amelie Whitesell James Willcox
amicat7@comcast.net james@liveinlanguages.com
Former Woodway High School Field Improvements
PLN20140065-0067, PLN2015009 & PLN20150013
Page 20 of 21
City of Edmonds Matt Finch
121-5 th Ave N Edmonds School District
Edmonds, WA 98020 20420 68th Ave. W
Lynnwood, WA 98036
Bob Harding
D.A. Hogan & Associates
119 —1St Ave. S, Suite 110
Seattle, WA 98104
Former Woodway High School Field Improvements
PLN20140065-0067,PLN2015009 & PLN20150013
Page 21 of 21