StaffReport+Attachments.pdf
CITY OF EDMONDS
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121 5 Avenue North, Edmonds WA 98020
Phone: 425.771.0220 • Fax: 425.771.0221 • Web: www.ci.edmonds.wa.us
DEVELOPMENT SERVICES DEPARTMENT • PLANNING DIVISION
PLANNING DIVISION
FINDINGS, CONCLUSIONS, AND RECOMMENDATION TO THE HEARING EXAMINER
Project:
Premera Blue Cross Temporary Parking Lot at 23320 Highway 99 (CG Zone)
File Numbers:
ADB-08-68 / CU-08-63
Date of Report:
March 24, 2009
Staff Contact:
____________________________
Gina Coccia, Associate Planner
Public Hearing:
Thursday – April 2, 2009 at 3:00 P.M.
Edmonds Public Safety Complex: Council Chambers
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Avenue North, Edmonds WA 98020
250 5
I.SUMMARY OF PROPOSED ACTION:
Premera Blue Cross has submitted applications for design (ADB-08-68) and conditional use permit
(CU-08-63) review of a proposed temporary parking lot project on a vacant site owned by
Community Health Center of Snohomish County at 23320 Highway 99 in the General Commercial
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(CG) zone. The Premera campus is located at 6909 220 Street SW in Mountlake Terrace
approximately 1.3 miles northeast of this site. They are currently in the process of constructing a new
parking garage on their campus, which will temporarily displace several employee parking stalls.
This Edmonds site will accommodate approximately 120-140 new parking stalls and will allow
employees to park here during business hours and be shuttled to the Premera campus – and as soon as
their garage is completed, this site will no longer be used by Premera. Temporary parking lots require
conditional use permit approval, so a consolidated design review and conditional use permit have
been applied for (ADB-2008-68/CU-2008-63).
There are ten attachments to this report. Attachments 1 and 2 indicate the zoning and aerial view of
this site. Attachment 3 is the land use application, and attached to it is an authorization letter by the
owner. Attachment 4 is the applicant’s criteria statement, which provides information on their
proposal and addresses why they feel a temporary parking lot is justified in this location. Attachment
5 is a letter from the applicant and includes supplemental information. Attachment 6 is the
applicant’s “site plan” (the site plan that will be required to be submitted for the building permit
application will need to show additional information including property line location, topography,
impervious surface calculations, existing and proposed fences, drawn to scale, etc.). Attachment 7
shows lighting specifications proposed with this project. Attachment 8 includes the State
Environmental Policy Act (SEPA) determination, environmental checklist, and comment letter from
PUD. Attachment 9 includes comments from the city’s technical review committee. Attachment 10
shows the public notice information. The following is staff’s analysis of the project.
Premera Temporary Parking Lot
ADB-2008-68 / CU-2008-63
II.FINDINGS & ANALYSIS:
A.GENERAL INFORMATION:
1.Owner:
Kenneth M. Green representing Community Health Center of Snohomish County
(Attachment 3).
2.Applicant:
Gerry Riddle representing Premera Blue Cross (Attachment 3).
3.Contact:
Architect Dough Mitchell representing Madsen Mitchell Evenson & Conrad
(Attachment 3).
4.Tax Parcel Numbers:
00-5767-000-020-03 and 00-5767-000-021-04 (Attachment 3).
5.Location:
23320 Highway 99, Edmonds WA 98026 (Attachments 1 and 2).
6.Size:
2.34 acres total between the two parcels (Attachment 2).
7.Zoning:
General Commercial (CG), subject to ECDC 16.60 (Attachment 1).
8.Proposed Use:
Temporary parking lot for Premera employees (Attachment 4).
9.Existing Use:
Vacant (Attachment 2).
B.REVIEW PROCESS:
Consolidated design review and conditional use permit. For this project, staff reviews the design
of the proposal and the proposed use and makes a recommendation to the Hearing Examiner on
whether the proposal is consistent with the zoning ordinance and the City’s Comprehensive Plan.
The Hearing Examiner makes the final decision on both the design and the conditional use
permit.
C.SEPA THRESHOLD DETERMINATION:
Review under the State Environmental Policy Act (SEPA) was required because over 20
(temporary) parking stalls are proposed. A Determination of Nonsignificance (DNS) was by
issued on January 8, 2009 and no comments or appeals were received by the January 22, 2009
deadline. Snohomish County PUD #1 issued a standard comment letter that confirmed that, “the
District presently has sufficient electric system capacity to serve the proposal,” but that, “the
existing District facilities in the local area may require upgrading,” and to contact them for
information about specific electric service requirements. Both the City and the applicant have
complied with SEPA requirements (Attachment 8).
D.NOTICE:
A “Notice of Application” and “Notice of Hearing” were published in the Herald Newspaper, and
posted at the subject site, as well as the Public Safety Complex, Community Development
Department, and the Library (Attachment 10). Notices were also mailed to owners and residents
within 300 feet of the site. The City has complied with the noticing provisions of ECDC 20.91
(Public Hearings and Notice).
E.NATURAL ENVIRONMENT:
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1.Topography:
The site slopes slightly upwards (approximate 8%) from east to west.
2.Soils:
According to the Soil Survey of Snohomish County Area, Washington, this site
consists of “Alderwood-Urban land complex, 2 to 8 percent slopes” and“Alderwood-Urban
land complex, 8 to 15 percent slopes” (Map Unit Symbols 5 and 6).
3.Critical Areas:
It was determined that there are no critical areas on or adjacent to this
property (files CRA-2006-0040 and CRA-1999-0289).
4.Wildlife:
None noted upon site visit.
5.Vegetation:
The site is mostly free of vegetation, with the exception of some bushes and
trees around the perimeter, as shown in the aerial photos (Attachments 2 and 6).
6.Shoreline:
This project is not within State Shoreline jurisdiction.
F.NEIGHBORHOOD CHARACTERISTICS:
This property is located on Highway 99 in the General Commercial (CG) zone. The site is
surrounded by commercial development, except for the Multiple Residential (RM-1.5) property
to the west.
G.TECHNICAL REVIEW COMMENTS:
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ADB-2008-68 / CU-2008-63
This application was reviewed and evaluated by the City’s Fire Department, Engineering
Division, Building Division, Parks and Recreation Department, and the Public Works
Department. The Public Works Department noted that they must “follow city storm water runoff
control standards” and the Engineering Division noted that “oil/water separators will be reviewed
with the building permit.” The Building Division notes “see pre-application meeting comments
date 5/27/08” (Attachment 9). A building permit will be required for the proposed improvements
and these items will be reviewed and addressed during the building permit process.
H.COMPREHENSIVE PLAN:
The Comprehensive Plan designation for this site is “Corridor Development.” An excerpt of
goals and policies from the City of Edmonds Comprehensive Plan related to this project are
shown below:
B.4. The design and location of all commercial sites should provide for convenient and safe
access for customers, employees and suppliers.
B.5. All commercial developments should be carefully located and designed to eliminate the
adverse impacts of heavy traffic volume and other related problems on surrounding land
uses.
(2008 Comprehensive Plan, pages 55-56)
No new buildings are proposed and the existing access points will not change. Premera
employees and the shuttle busses will access the site from the existing driveways. Because the
site will still be accessed from Highway 99, there should not be any adverse impacts of heavy
traffic volume on surrounding land uses. The proposal is temporary in nature, which will not
interfere with the overall goals and policies of the Comprehensive Plan.
1.Design Objectives for Site Design:
“The development of parking lots, pedestrian walkways
and landscaping features is an integral part of how a building acts with its site and its
surrounding environment. Good design and site planning improves access by pedestrians,
bicycles and automobiles, minimizes potential negative impacts to adjacent development,
reinforces the character and activities within a district and builds a more cohesive physical
environment.” (page 74)
Fourteen different objectives for site design are discussed in the Comprehensive Plan. Not
every objective necessarily applies to every project; and, some objectives may be more
important than others for a particular project.
a.Vehicular Access:
The site is accessed from Highway 99 which is considered a
“Principal Arterial.”
b.Location and Layout of Parking:
Approximately 120-140 parking stalls proposed over
the span of the entire site.
c.Pedestrian Connections Offsite:
There is an existing sidewalk along Highway 99.
d.Weather Protection:
None proposed.
e.Signage:
None proposed, but the applicant has indicated the desire for low entry signs
that would designate this site as Premera parking only. ECDC 20.60.045 provides
requirements for freestanding signs and sign permits are required for all new signs.
f.Lighting:
The applicant’s site plan indicates two existing light poles near the sidewalk on
the east side of the site and calls for five additional new light poles (Attachments 6 and
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7). It has been indicated that cut off luminaries will be used to minimize glare, and that
the existing trees along the west property line will be retained, which will also help to
reduce off-site glare. The lighting will be reviewed with the building permit application.
ECDC 16.60.030.C.3 regulates lighting in the CG zone and requires that they be shielded
away from adjacent parcels.
g.Site Utilities, Storage, Trash and Mechanical:
None proposed.
h.Significant Features:
There are no significant features on the site; the site is vacant.
i.Landscape Buffers:
The applicant states that they will construct a landscape buffer
along Highway 99, but it is not indicated on the documents submitted. Objective
“C.14.c” states landscape buffers should “reduce harsh visual impact of parking lots and
cars.” As conditioned, the proposal should meet this criterion.
As conditioned, the proposal is consistent with the above policies and goals in the Comprehensive
Plan.
I.PUBLIC CONCERNS:
The public hearing has been scheduled for review by the Hearing Examiner on Thursday, April 2,
2009 at 3:00 PM in the Council Chambers at the Public Safety Complex. The notice for the
public hearing was issued Thursday, March 19, 2009.
One question was raised verbally by Mr. Tom Jeffers, who has asked to become a party of record.
He was wondering if the applicant was proposing any additional landscaping along the west
property line to serve as screening for the condos to the west. The applicant intends to keep the
existing landscaping along the west, which appears to consist of a few alders. I drove up behind
the site to gain the perspective of the condos. There is an existing 6’ sight-obscuring fence
between these properties and the change in elevation makes the temporary parking lot site less
visible from the west. A 7,670 square foot health center was proposed at this location a few years
ago (ADB-2006-0043) and the project was required to add landscaping pursuant to ECDC 20.13.
No building permits were filed for this project, so the design review approval appears to have
expired. Nonetheless, the parking lot proposed is temporary and no buildings are proposed so
neighbors should know that when a more permanent commercial use is inevitably proposed for
this location (the height limit in this zone is currently 60 feet), permanent site improvements
(including new landscaping) will be required. To date, no written public comments have been
received. Public comments can be received up until the close of the hearing.
J.APPLICABLE CODES:
1.ECDC 16.60 (CG – General Commercial)
The site is located in the General Commercial (CG) zone and is subject to the requirements of
ECDC 16.60. The only structures proposed are five new light poles (Attachment 6), which
appear to meet setbacks in their location – details were submitted (Attachment 7).
Commercial parking lots are a permitted primary use requiring a conditional use permit.
The CG zone requires design review by staff for projects remaining under the height limit.
The proposal remains under the height limit and the design review is incorporated into this
staff report. The CG zone provides specific design standards (ECDC 16.60.030) – the
applicable items are discussed below.
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Pursuant to ECDC 16.60.030.A.2.a, a 4’ landscape buffer is required along the eastern
property line – this requirement can be satisfied by “sprucing up” the existing landscaping
bed with low native bushes and ground cover.
Pursuant to ECDC 16.60.030.A.1.f, Type I landscaping (10 feet in width) is required along
the western property line – this requirements can be satisfied by keeping the existing trees
and vegetation in tact as indicated by the clearing limits (Attachment 6).
Pursuant to ECDC 16.60.030.A.1.k, when no setback is required, Type III landscaping 3 feet
in width and continuous in length is required between uses in the same zone. This
requirement can be satisfied by keeping the existing vegetation in tact along the north and
south property lines as indicated by the clearing limits (Attachment 6).
Pursuant to ECDC 16.60.030.C.3.a, all lighting shall be shielded and directed away from
adjacent parcels – this may be achieved through lower poles at the property lines and/or full
“cut off” fixtures, as indicated by the applicant. Pole height shall be a maximum of 14 feet,
although bollards are preferred.
The applicant will prove that all development standards are met through the building permit
process.
2.ECDC 17.50.090 (Temporary Parking Lots)
Pursuant to ECDC 17.50.090.A, a conditional use permit is required to construct or maintain
a temporary parking lot in any commercial zone. The applicant has applied for a
consolidated design review / conditional use permit for the proposed temporary parking lot
(ADB-2008-68 / CU-2008-63). The Hearing Examiner will issue the decision on the
temporary parking lot use.
3.ECDC 20.13 (Landscaping Requirements)
ECDC 20.13.020.C states that existing vegetation that contributes to the attractiveness of the
site should be retained. The applicant has stated that Type IV landscape buffers will be
constructed along Highway 99 and that the existing perimeter landscaping will remain intact
– this is also indicated on the aerial, which shows that the project limits are set back from the
western fence. This permit is for the temporary use of the site, so requiring full compliance
with ECDC 20.13 would be unreasonable – and it is important to note that the hearing
examiner has the authority to modify landscaping requirements (ECDC 20.13.000).
Type IV landscaping is intended to provide visual relief where clear sight is desired and this
would typically be required for parking lots abutting streets (ECDC 16.60.030.A.2.a). The
landscaping would be 4 feet wide and run the length of the eastern property line (except for
the width of the driveways for ingress/egress). Type I landscaping would be normally
required along the property line adjacent to the RM-zoned property to the west in order to
provide a dense sight barrier between the two uses. There is already a sight-obscuring fence
along the west property line and there is some existing vegetation and trees that currently
screen the property from the vacant lot.
Staff has added recommended conditions of approval that would require the existing western
landscaping to be kept intact and for the eastern landscaping along Highway 99 to be
enhanced, as proposed. With conditions, the proposal appears to meet the intent of the
landscaping chapter, which strives to enhance the landscaping within the City of Edmonds.
4.ECDC 20.12 (District-Based Design Review)
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ECDC 16.60.030 allows staff to administratively review the design of applications in the CG
zone that remain under the height limit. The CG zone is considered a special design review
“district,” and thus “District-Based” design review (ECDC 20.12) is required. Pursuant to
ECDC 20.12.030.B.2, the following two findings must be made:
a.Zoning Ordinance
– That the proposal meets the bulk and use requirements of the
zoning ordinance, including the guidelines and standards contained in the relevant zoning
classification(s).
b.Design Guidelines
– That the proposal meets the relevant district-specific design
objectives contained in the comprehensive plan.
See section II.J of this report for a discussion on how this proposal meets the requirements of
the zoning ordinance. See section II.H of this report on how the proposal meets specific
design objectives of the Comprehensive Plan.
5.ECDC 20.05 (Conditional Use Permits)
ECDC 20.05.010 contains the review and approval criteria for Conditional Use Permits.
According to the aforementioned code section, “No Conditional Use Permit may be approved
unless all of the findings in this section can be made.” The findings are as follows:
a. That the proposed use is consistent with the Comprehensive Plan.
Section II.H of this report lists Comprehensive Plan goals and policies and discusses how
this project appears to be consistent with the Comprehensive Plan.
b. 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.
Section II.J of this report discusses several codes in the zoning ordinance, specifically the
General Commercial (CG) requirements, landscaping requirements, design review
requirements, conditional use permit requirements, and temporary parking lot
requirements. Building permits are required for this proposal, so compliance with the
zoning ordinance will be thoroughly reviewed with their building permit application.
c. 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.
An environmental checklist was submitted that examined the potential for any probable
significant adverse environmental impacts for this proposal (Attachment 8) and none
were discovered. With conditions, and through the building permit process, it appears
that this proposal will not be significantly detrimental. The engineering division noted
that a Traffic Impact Analysis was not required for this project, because it was
determined that the project will not create detrimental traffic impacts.
d. 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 conditional use permit may or may not be used by a subsequent user of the
same property.
The temporary parking lot is for Premera employees only and no arguments have been
submitted that expresses an interest in the permit being personal to the applicant/owner or
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running with the land. Staff sees no reason why this permit would need to be transferred
to another entity – the review is only for the proposal at hand (Premera’s temporary use
of the site during business hours) and if the property changed hands or another entity
wanted to use the site for parking, then there should be another CUP review in order to
determine if there are any impacts. If the applicant/owner wished to use this site as a
permanent commercial parking lot, then many additional improvements would be
required by the various Edmonds Community Development Codes.
III.CONCLUSIONS:
A.COMPREHENSIVE PLAN COMPLIANCE:
The project, because it is temporary in nature, does not appear to be inconsistent with the goals
and policies of the Comprehensive Plan.
B.GENERAL COMMERCIAL (CG) ZONE COMPLIANCE (ECDC 16.60):
Thorough review of CG zone requirements will be confirmed through the building permit review
process – especially the new lighting. The CG zone expresses a preference for low bollard
lighting as opposed to tall pole lighting (ECDC 16.60.030.C.3.c). With conditions, the
application at hand appears to satisfy the requirements of the CG zone.
C.TEMPORARY PARKING LOT COMPLIANCE (ECDC 17.50.090):
Temporary parking lots require design review and conditional use permit approval. By the filing
and review of the application at hand, the proposal appears to comply with the temporary parking
lot chapter.
D.DESIGN REVIEW COMPLIANCE (ECDC 20.12):
The project requires “district-based” administrative design review by staff, and through the
consolidated review process, recommendations have been made to the Hearing Examiner for a
decision. The project has been reviewed against the design guidelines in the Comprehensive Plan
as well as the design standards in the CG zone.With conditions, the project appears to comply
with the design review chapter.
E.CONDITIONAL USE PERMIT COMPLIANCE (ECDC 20.05):
With conditions, and through the building permit review process, it appears that this proposal will
not be significantly detrimental. Section II.J.5 (above) discusses conditional use permit criteria
and compliance. Staff concludes that this proposal appears to comply with this chapter of the
code.
F.LANDSCAPING COMPLIANCE (ECDC 20.13):
Type I landscaping would normally be required along the western property line and Type IV
landscaping would normally be required along the east property line. Type III landscaping would
normally be required along the north and south property lines. The existing western landscaping
is doing a decent job of screening, and because no new buildings are proposed, will remain intact
as shown on the clearing limits of Attachment 6. Additional Type IV landscaping could be
established along the eastern property line – this would need to be low (less than three feet in
height for visibility) native drought-tolerant shrubs and ground cover that would beautify, soften,
and enhance the area near the streetscape. A landscape plan will need to be submitted for review
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with the building permit in order to ensure compliance with the code – this will need to show
more than the “site plan” submitted by the applicant (Attachment 6); landscape plans are required
to show the entire extent of the property and need to show existing landscaping to be retained, as
well as the size, type, spacing, quantity and location of proposed new plantings. With conditions
and modifications to the landscape chapter, this proposal appears to comply with the landscaping
requirements of the code, particularly considering the parking lot is temporary in nature.
IV.RECOMMENDATIONS:
The applicant should be aware that they must apply for and obtain all necessary permits, and that 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. Based
APPROVAL
on the analysis and attachments to this report, staff recommends of the design and
conditional use permit for the Premera Temporary Parking Lot to the Hearing Examiner, files
ADB-2008-68 / CU-2008-63
, with the following conditions:
1.A landscaping plan shall be required with the building permit, which will show the
existing landscaping to be retained as well as the size, type, spacing, quantity and
location of proposed new plantings.
2.The existing landscaping along the west property line shall be retained and shall be a
minimum of 10-feet in width in order to maintain screening from the adjacent Multiple
Residential (RM) zone.
3.The existing landscape bed along the east property line shall be maintained and be
supplemented by the addition of low (native) drought tolerant bushes and ground cover.
This street frontage landscaping shall be a maximum of 3-feet in height and a minimum
of 4 feet in width and continuous in length except where ingress/egress is proposed.
4.The existing landscaping along the north and south property lines shall be retained and
shall be a minimum of 3-feet in width and continuous in length in order to provide a
buffer between properties in the same zone.
5.New lighting details shall be reviewed with building permit application for the parking
lot paving/striping. Short lighting bollards are preferred over the tall light poles
(ECDC 16.60.030.C.3.c).
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V.PARTIES OF RECORD:
Kenneth M. Green, Executive Director City of Edmonds Planning Division
Community Health Center City of Edmonds Engineering Division
City of Edmonds Public Works Department
PO Box 13060
City of Edmonds Building Division
Everett WA 98206
Gerry Riddle
Doug Mitchell, AIA, LEED-AP
Premera Blue Cross
Madsen Mitchell Evenson & Conrad, PLLC
PO Box 3048
216 North Howard – Skywalk Level
Spokane WA 99202
Spokane WA 99201
Tom Jeffers
Scott Rivas
Edmonds Landscaping, Inc.
DCI Engineers
th
Avenue West
22319 76
601 W. Riverside – Suite 600
Edmonds WA 98026
Spokane WA 99201
VI.ATTACHMENTS:
1.
Zoning and vicinity map
2.
Aerial photo map
3.
Land use application and authorization letter
4.
Applicant’s criteria statement
5.
Applicant’s supplemental information letter
6.
Applicant’s “site plan”
7.
Lighting specifications
8.
SEPA documents
9.
Technical review comments
10.
Public notices
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Unincorporated
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City of
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W
RM-1.5
RS-8
Zone
Zone
RM-2.4
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Attachment 1
Premera / CommunityHealth Center
TemporaryParking Lot
Vicinity Map
File Number CU-2008-63
0100200Feet
23320 Highway 99 (CG Zone)