2024-09-17 Council Special Packet1.
2
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OF BbMG
ti Agenda
Edmonds City Council
1,00
SPECIAL MEETING NOTICE
CITY COUNCIL CONFERENCE ROOM
121 - 5TH AVENUE N, EDMONDS, WA 98020
SEPTEMBER 17, 2024, 7:00 PM
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CALL TO ORDER
AUDIENCE COMMENTS
COUNCIL BUSINESS
1. Discussion of Future Property Tax Levy Implications of an RFA Annexation (60 min)
2. Updated Approach to Draft Comprehensive Plan (30 min)
ADJOURNMENT: 8:30 PM
Edmonds City Council Agenda
September 17, 2024
Page 1
3.1
City Council Agenda Item
Meeting Date: 09/17/2024
Discussion of Future Property Tax Levy Implications of an RFA Annexation
Staff Lead: City Council
Department: City Council
Preparer: Beckie Peterson
Background/History
In 2010, the City of Edmonds contracted fire and emergency medical services (EMS) with Snohomish Fire
District 1. This contract was revised in 2017.
In 2017, Snohomish Fire District 1 and City of Lynnwood formed a new Regional Fire Authority (RFA);
South Snohomish County Regional Fire Authority.
In 2022, Amendment 1 to the Revised ILA between the City of Edmonds and South County Fire was
signed. This increased staffing to address the Neighboring Unit Utilization Factor and Transport Balance
Factors which were out of balance. This increased staffing resulted in higher contract rates, and
contract payment adjustments were applied retroactively to the implementation date.
In July, 2023 Council approved a budget amendment for $1.5 million, anticipating contract adjustment
costs that included adjusted labor rates once a collective bargaining agreement was executed by the
RFA and IAFF Local 1828.
September 2023, Council passed Resolution 1531, requesting information about annexation into the
South Snohomish County Regional Fire Authority. This resolution did not meet the legal requirements to
initiate RFA action for the annexation process.
November 2023, Council contracted the services of Fitch and Associates to study the feasibility of fire
and emergency service alternatives.
December 20, 2023, South County Fire notified the City of Edmonds via two letters dated December 19,
2023, emailed to Mayor Nelson and councilmembers, of its intention to terminate the interlocal
agreement for fire and emergency medical services as of December 31, 2025.
April 24, 2024 - Fitch and Associates submitted their final report, City of Edmonds Emergency Services
Analysis.
May 7, 2024 - Public Hearing on options for City of Edmonds Fire/EMS Services.
May 28, 2024 - Council adopted Resolution 1547, stating their preferred alternative for fire and
emergency medical services was joining the RFA via annexation, and authorizing the mayor to pursue
Packet Pg. 2
3.1
next steps regarding this alternative.
June 3, 2024 - Revised Final Fitch Report received.
June 11, 2024 - Council passed Resolution 1549, expressing the intent to pursue the benefits of receiving
fire and emergency medical services from the South Snohomish County Regional Fire Authority via
annexation.
June 18, 2024 - Mayor Rosen received a letter from the South County Fire Board of Commissioners in
response to questions posed to Fire Chief Bob Eastman regarding contract options.
August 16, 2024 - Council discussion during the Budget Retreat regarding the General Property Tax Levy
for 2026 if Edmonds joins the RFA via Annexation.
September 10, 2024 - Edmonds City Council Public Hearing on Future Property Tax Levy Implications of
an RFA Annexation. Council discussion followed. Minutes pending, video is available on city website.
Recommendation
Discuss and consider a motion of Council's specific intent to use its property taxing authority if RFA
annexation is placed on the ballot and passes in 2025.
Narrative
The specific question and decision for Council: If the City of Edmonds joins the RFA via annexation in
2026, should the Edmonds City Council change the amount levied for the General Property Tax for
2026?
This Council decision is relevant to the future consideration of RFA Annexation, both for future Council
decisions and Edmonds voter decisions. It is also relevant to the development of the city's biennial
budget, which includes 2025 and 2026.
Under the current contract, the City of Edmonds pays South County Fire RFA to provide Fire/EMS
services. Property owners indirectly fund contract costs out of the taxes they pay to the city, including a
voter approved EMS levy and a city general property levy. In 2024, the contract cost is $11,514,637.
The city revenue that covers the contract expense is the voter -approved EMS levy $4,349,145, EMS
Transport Fees $1,200,000, and General Fund $5,965,492. (SCF Letter dated February 6, 2024) In 2025,
the contract cost is estimated to be 5% higher. The contract with South County Fire terminates on
December 31, 2025.
If Edmonds annexes into the RFA, Edmonds would no longer fund Fire/EMS from the city budget and
would no longer collect an EMS levy. City property owners would pay the RFA directly through Fire/EMS
levies and a benefit charge. If Edmonds annexes into the RFA by way of a public vote in 2025, the RFA
levy and benefit charges would begin January 1, 2026.
Each year, the City Council determines the amount of general property taxes that will be levied the
following year. These general property taxes go into the city's General Fund. If annexation is approved
in 2025 and RFA levy/benefit charges begin in 2026, what will the city do with the money it has been
spending from the General Fund on fire and EMS? In 2024, this amount is $5,965,492.
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3.1
From Mayor Rosen, during June 4 Special Meeting/ Council Study Session: "I would suggest that is a
decision you need to make before you go to the voters. It is a decision that the Council will make to
keep some, none or all. It is a council decision that would be part of the ask to the voters."
Scenario 1 "All": The City of Edmonds maintains the amount of general property taxes levied, and
retains the dollars in its General Fund that paid for the fire contract, a total of $5,965,492.
Scenario 2 "None": The City of Edmonds reduces its general property tax levy by $5,965,492, the
amount currently funding the fire contract.
Scenario 3 "Some": The City of Edmonds reduces its general property tax levy by a specific absolute
dollar amount.
Pros and cons:
Per the several meetings and reports, the City's budget gap is in excess of $20M, way in excess of the
amount that can be met by cuts of services and spending alone making some revenue change a given.
On the other hand, there are benefits to keeping the issues of fire service completely separate from the
fiscal emergency.
Council Decision:
As the RFA annexation consideration process moves forward, it is recommended that the City Council
make a public statement about how it would intend to use its property taxing authority if RFA
annexation is placed on the ballot and passes in 2025. The mayor has spoken of this property tax levy
decision as the "some, none, or all" choice. The question really pertains to the taxes that would be
collected in 2026. It is assumed here that the maximum legal levy amount would be collected in 2025.
Below are three possible motions that could be adopted by the council to correspond with the
shorthand of "some, none, or all":
•(Scenario 1) "All" - I move that we direct the city attorney to draft a resolution stating that the city
council intends to levy the maximum allowable levy amount for collection in 2026.
•(Scenario 2) "None" - I move that we direct the city attorney to draft a resolution stating that the
city council intends to levy the maximum allowable levy amount minus $5,965,492 for collection in
2026.
•(Scenario 3) "Some" - I move that we direct the city attorney to draft a resolution stating that the
city council intends to levy the maximum allowable levy amount, minus $ (under the "some"
option, this blank should be filled in with an amount stated as an absolute dollar value in an amount less
than $5,965,492, e.g., $1,000,000) for collection in 2026.
In all three of these options, the phrase "maximum allowable levy amount" should be understood as
depending upon a number of factors, including, but not limited to, the possibility that voters could
approve a levy lid lift in 2025 at a separate election than the election for RFA annexation, which would
increase the maximum allowable levy amount.
Attachments:
September 10, 2024 Public Hearing presentation slides
Board Communication to the City of Edmonds 6.18.24
Edmonds Fire EMS Cost Comparison SCF 2.6.2024
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3.1.a
"Council Decision related to
Future Property Tax Levy
Implications of an RFA
Annexation"
Edmonds City Council Public Hearing
September 10, 2024
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3.1.a
The specific
question for
discussion:
If the City of Edmonds joins the RFA
via annexation in 2026, should the
Edmonds City Council change the
amount levied for the General
Property Tax for 2026?
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3.1.a
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"I would suggest that is a decision you need to make before you go to the
voters. _ __ a decision that the Council will make to o
keep some, none or all. It is a council decision that would be =
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part of the ask to the voters:"
Mayor Mike Rosen, June 4, 2024
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3.1.a
Why is
this
decision
important
NOW ?
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^ December 2023 —South County Fire provides notice of intent to terminate
• Fire/ EMS contract with City of Edmonds (Fire/EMS services) effective
ai�
December 2025
Ah
June 2024 —Council passes
Resolution
#1547 identifying joining the RFA
4NA
by annexation as preferred
alternative
for Fire/EMS services
al June 2024 —Council passes Resolution #1549 initiating the
42M process/requesting annexation to the RFA
August/September 2024 — RFA Plan and pre -annexation plan under
091 discussion.
� October 2024 (anticipated) —South County Fire Commissioners will
• consider resolution amending RFA Plan and grant the request of the city
ma to annex.
i* December/January (anticipated) —
Council will consider approving RFA plan and pre -annexation
agreement
Public Hearing
Council will consider resolution placing annexation on ballot
April 22, 2025 — Special Election
regarding RFA Annexation
Simple majority of Edmonds registered voters
required for approval
Annexation would take effect no later than
August 1, 2025
January 1, 2026 -Edmonds property owners would begin paying
RFA levy/benefit charges.
Annual process wherein the City Council
determines the taxes that will be levied U to the voter -approved level + 1%
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for the following year.
Ah November 2024 — Public Hearing/Ordinance for the 2025 General Property Tax
4%Uh Levy
Ah November 2025 —Public Hearing/Ordinance for the 2026 General Property Tax
'%hk Levy
3.1.a
Fire/EMS
Contract
Under the current contract:
• Edmonds pays the RFA to provide
fire/EMS.
• Property owners indirectly fund
contract costs out of the taxes
they pay to the city, including a
voter approved EMS levy and city
general property tax levy.
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3.1.a
Fire/EMS Contract - 2024
2024 Fire Service Contract Expense $11.5M
City EMS Levy I I General Fund
$4.35 M $1.2 M $6M
Transport Fees
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3.1.a
Fire/EMS Contract - 2025
2025 Fire Service Contract Expense $12. 1 M (assuming 5%)
City EMS Levy I I General Fund
$4.4 M $1.2 M $6.5M
(assuming +1%) Transport Fees
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3.1.a
Fire/EMS Contract - 2026
2026 Fire Service Contract Expense
City EMS Levy
General Fund
$4.44 M $1.2 M $13.9M
(assuming +1%) Transport Fees
$19.5 M (SCF letter 6/18/2024)
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3.1.a
Fire/EMS Contract 2024 — 2026
2024 Fire Service Contract Expense $11.5M
City EMS Levy I I General Fund
$4.35 M $1.2 M $6M
Transport Fees
2025 Fire Service Contract Expense $12. 1 M (assuming 5%)
City EMS Levy I I General Fund
$4.4M $1.2M $6.5M
(assuming +1%) Transport Fees
2026 Fire Service Contract Expense $19.5 M (SCF letter 6/18/2024)
City EMS Levy I I General Fund
$4.44 M $1.2 M $13.9M
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Fire/EMS Contract 2024 — 2026 Funding
2024 Fire Service Contract Expense $11.5M
City EMS Levy I I General Fund
$4.35 M $1.2 M $6M
Transport Fees
Funded with ARPA
2025 Fire Service Contract Expense $12. 1 M (assuming 5%)
City EMS Levy I I General Fund
$4.4M $1.2M $6.5M
(assuming +1%) Transport Fees
2026 Fire Service Contract Expense $19.5 M (SCF letter 6/18/2024)
City EMS Levy I I General Fund
$4.44 M $1.2 M $13.9M
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3.1.a
If RFA
Annexation
- 2026
If Edmonds annexed into the RFA:
• Edmonds would no longer fund
Fire/EMS out of its city budget and
would no longer collect an EMS
levy.
• City property owners would pay
the RFA directly through Fire/EMS
levies and a benefit charge.
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3.1.a
If RFA Annexation 2026
2024 Valuations
$0 No fire service contract expense to City of Edmonds
�$6M - $6+.5M (General Fund previously applied
Ito
$0
$0
Fire Service Contract)
No City EMS Levy
No Transport Fees
Edmonds property owners pay RFA directly
$19.5* Min RFA general levy, RFA EMS levy, RFA benefitch arge (*2024 figures from SCF letter2/6/2024)
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3.1.a
If RFA Annexation 2026 - Taxpayer Impact
LL
2024 Valuations0
O
Annexation taxpayer cost impact on an average home (SCF Fire letter dated February 6, 2024) o
• Scenario
1 "All":
The
City of Edmonds retains the dollars in its general fund
t at
paid
or
t e
fire
contract,
a
total
of
$5,965,492.
• Scenario 2 "None": The City of Edmonds reduces its general fund levy by
$-5-,965,492, the amount currently funding the fire contract.
• Scenario 3 "Some": The City of Edmonds reduces its general property tax
levy by a different specific absolute dollar amount.
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If RFA Annexation 2026 - Taxpayer Impact
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2024 Valuations0
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Calculations Based on a 2,000 sq. ft. home with $836,183 AV
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General/Fire Benefit Total Annual
Levy EMS Levy Charge Increase Monthly Q
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Scenario 1: City does not reduce general levy $ 1,303.36 $ 290.72 $ 71.64 $ 809.24 $67.44
a
Scenario 2: $5,965,637 general levy reduction $ 978.46 $ 290.72 $ 71.64 $ 484.33 $40.36 N
0
(SCF Fire Letter dated February 6, 2024) L
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3.1.a
DS
id
S:
• Per the several meetings and
reports, the City's budget gap is in
excess of $20M, way in excess of
the amount that can be met by
cuts of services and spending
alone making some revenue
change a given.
• On the other hand, there are
benefits to keeping the issues of
fire service completely separate
from the fiscal emergency.
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3.1.a
The specific
question for
this Public
Hearing:
If the City of Edmonds joins the RFA
via annexation in 2026, should the
Edmonds City Council change the
amount levied for the General
Property Tax for 2026?
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3.1.b
SOUTH COUNTY FIRE
12425 Meridian Ave S., Everett WA 98208
tel (425) 551-1200 • fox (425) 551-1249
www.southsnofire.org
Mayor Mike Rosen
City of Edmonds
121 5th Ave. N
Edmonds WA 98020
June 18, 2024
Mayor Rosen,
South County Fire has been providing high -quality fire and emergency medical services to the people of
Edmonds since Jan. 1, 2010, and we hope to continue that service long into the future.
The Board of Commissioners is committed to achieving parity with all served by the RFA paying at the
same rate for the same service. As you know, our current contract with Edmonds has not kept pace with
growing call volumes and expenses. As a result, Edmonds now pays the equivalent of 71 cents/$1,000
AV, which is substantially less than what residents of the RFA pay ($1.24/$1,000 AV).
This is not sustainable or fair to our taxpayers. For the Board of Commissioners to consider a long-term
contract, the city's cost would be set at a rate no lower than that paid by RFA property owners. As an
example, under these terms, the City of Edmonds would have paid just under $19.5 million in 2024.
Washington courts have held that RCW 43.09.210 prevents one government entity from receiving
services from another at a reduced cost. Any future interlocal agreement for services would be structured
to maintain rate parity for RFA taxpayers over the term of the contract.
Contracting would mean:
• The city would continue to pay contract costs out of its general fund.
• The contract rate would be no lower than that paid by RFA property owners.
• Edmonds residents would not have a vote on RFA funding measures that would impact the
contract rate. Under annexation, city residents would vote on all RFA ballot measures.
• The city would retain pension liabilities. Under annexation, this would transfer to the RFA.
• Transport fees would not be remitted to the city.
We believe annexation provides the most cost-effective way to fund and maintain high -quality fire and
EMS to the people of Edmonds now and going forward. Annexation would give Edmonds residents a vote
on RFA ballot measures and direct representation on the Board of Commissioners.
I hope this provides clarity for you and the council. We value our partnership and look forward to working
with the City of Edmonds on finding a path forward that will allow us to continue to serve your residents
with high quality fire and emergency medical services.
Sinc rely, /
_ G
Jim Kenny
Board Chair
SERVING SOUTH SNOHOMISH COUNTY • BRIER • EDMONDS • LYNNWOOD • MILL CREEK • MOUNTLAKE TERRACE
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3.1.c
SOUTH COUNTY FIRE
12425 Meridian Ave 5., Everett WA 98208
tel (425) 551-1200 • fax (425) 551-1249
www.southsnofire.org
February 6, 2024
To: Mayor Mike Rosen, City of Edmonds
From: Fire Chief Thad Hovis / AC Bob Eastman, South County Fire
Edmonds Fire/EMS Cost Comparison
This comparison looks at the Fire/EMS costs in Edmonds under the current contract and if the city was part of
the regional fire authority (RFA) using 2024 data from the Snohomish County Assessor's office.
Annexation into the RFA would change the way Edmonds residents pay for fire and EMS.
Under the current contract:
• Edmonds pays the RFA to provide fire/EMS.
• Property owners indirectly fund contract costs out of the taxes they pay to the city, including a voter -
approved EMS levy and city general property levy.
If Edmonds annexed into the RFA:
• Edmonds would no longer fund fire/EMS out of its city budget and would no longer collect an EMS levy
• City property owners would pay the RFA directly through fire/EMS levies and a benefit charge.
Since neither model funds fire/EMS based solely on property taxes, we used 2024 county tax data to calculate
the equivalent levy rate per $1,000 of assessed property value to compare what Edmonds residents are
indirectly paying for fire/EMS under the current contract to what they would pay in the RFA.
• Edmonds residents pay the equivalent of $0.75 per $1,000 of assessed property value under the current
contract.
• RFA residents pay the equivalent of $1.29 per $1,000 of assessed property value.
Under the Current Contract:
The 2024 fire/EMS contract cost is $11,514,637.
City revenue sources that cover the contract expense:
• Voter -approved EMS Levy $ 4,349,145
• EMS Transport Fees $ 1,200,000
• General Fund $ 5,965,492
See Appendix Afar detail on City of Edmonds 2024 property tax collection
City property owners pay an equivalent levy rate of $0.75 per $1,000 of assessed value.
SERVING SOUTH SNOHOMISH COUNTY • BRIER • EDMONDS • LYNNWOOD • MILL CREEK • MOUNTLAKE TERRACE
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3.1.c
With Annexation:
The total cost for fire/EMS in Edmonds in 2024 would be $19,472,764, an increase of $7,958,127 above the
contract cost.
RFA property owners pay the equivalent of $1.29 per $1,000 of assessed value.
Edmonds property owners would pay the RFA:
• A fire levy of $0.82/$1,000 AV
• An EMS levy of $0.35/$1,000 AV
• A benefit charge based on structure size and use
See Appendix 8 for detail on RFA 2024 property tax collection
The City of Edmonds would no longer:
• Collect the city EMS levy of $0.28/$1,000 AV
• Pay Sno911 for fire dispatch
Annexation taxpayer cost impacts on an average home
This evaluates the tax impacts on the average homeowner in Edmonds. The average assessed value and size of a
home in Edmonds was not available from the Snohomish County Assessor. This data looks at costs associated
with a 2,000-square-foot home valued at $836,183 (Zillow average home value for Edmonds). The city's EMS levy
would be replaced by the RFA's EMS levy.
Here are two possible scenarios:
Scenario 1: The City of Edmonds retains the dollars in its general fund that paid for the fire contract, a total of
$5,965,492.
Scenario 2: The City of Edmonds reduces its general fund levy by $5,965,492, the amount currently funding the
fire contract.
Calculations Based on a 2,000 sq. ft. home with $836,183 AV
General/Fire
EMS
Benefit
Total Annual
levy
Levy
Charge
Increase Monthly
Scenario 1: City does not reduce general levy 1303.36
290.72
71.64
809.24 67.44
Scenario 2: $5,965,637 general levy reduction 978.46
290.72
71.64
484.33 40.36
See Appendix C for supporting information
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3.1.c
Appendix A
The City of Edmonds 2024 property tax collected based on the Snohomish County Assessor:
• 2024 assessed value $15,352,931,155
• 2024 General levy $11,376,608 @ mill rate/Levy rate of $0.74100563111
• 2024 EMS Levy $4,349,145 @ mill rate/levy rate of $0.28327782858
Appendix B
The RFA 2024 property tax collection based on the Snohomish County Assessor:
• 2024 Assessed value $59,924,440,250
• 2024 Fire levy $49,000,000 @ mill rate/Levy rate of $0.81769641561
• 2024 EMS Levy $20,834,575 @ mill rate/levy rate of $0.34768076531
• 2024 Benefit Charge $7,764,590
Appendix C
2024 property taxes in the City of Edmonds (not specific to fire/EMS costs):
2024 General levy $619.62 @ mill rate/Levy rate of $0.74100563111
2024 EMS Levy $236.87 @ mill rate/levy rate of $0.28327782858
2024 total property tax $856.49
2024 RFA property taxes and benefit charge if the city annexed in 2024:
• 2024 Fire levy $683.74 @ mill rate/Levy rate of $0.81769641561
• 2024 EMS Levy $290.72 @ mill rate/levy rate of $0.34768076531
• 2024 Benefit Charge $71.64
• 2024 total property tax $974.47 plus the benefit charge ($1,046.11)
2024 property taxes if annexed into the RFA to include City property tax:
• 2024 General levy $619.62 @ mill rate/Levy rate of $0.74100563111
• 2024 Fire levy $683.74 @ mill rate/Levy rate of $0.81769641561
• 2024 EMS Levy $290.72 @ mill rate/levy rate of $0.34768076531
• 2024 Benefit Charge $71.64
This is if the city retains the dollars in the general fund that paid for the fire contract. The total collected in
property taxes to include the benefit charge would be $1665.72 which would be an increase of $809.24 dollars.
To break this down further the actual increase for the cost of Fire and Emergency Medical Services is $484.33, as
$324.90 is dollars that were retained by the city that was used to pay for the contract (equivalent to
$0.388557203818191 per thousand).
If the city reduced the general levy the amount being used for the contract would result in the following:
2024 General levy $294.71 @ mill rate/Levy rate of $0.352448427
2024 Fire levy $683.74 @ mill rate/Levy rate of $0.81769641561
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3.1.c
• 2024 EMS Levy $290.72 @ mill rate/levy rate of $0.34768076531
• 2024 Benefit Charge $71.64
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3.2
City Council Agenda Item
Meeting Date: 09/17/2024
Updated Approach to Draft Comprehensive Plan
Staff Lead: Shane Hope
Department: Planning & Development
Preparer: Scott Passey
Background/History
The Edmonds Comprehensive Plan Update process has come a long way in terms of identifying
background information and suggesting alternatives for the City's future growth, economic vitality, and
environmental quality. However, with various issues that were raised during this process and with the
leaving of the former Planning and Development Director, the acting Planning and Development
Director finds that the current process needs to be paused just a bit, so that the material can be
reviewed and some adjustments made. This affects both the content of the draft Comprehensive Plan
material and the schedule.
Many of the content changes being drafted now are intended to: (a) Remove items that have been
labeled "policies" but would better be considered "action steps" and handle them in a different way; (b)
Adjust or drop some potential goals and policies that are either more detailed than necessary for a
broad Comprehensive Plan or that are not appropriate at this time to be included in a draft
Comprehensive Plan Update. Regardless, much of the background data and basic alternatives that were
discussed previously are expected to be the same in the publication of a draft Comprehensive Plan. All
due speed by staff is being given to this drafting effort, with the accompanying recognition that the state
deadline for completing the Comprehensive Plan Update is December 31, 2024. Upon issuance of the
draft Plan, it will be further considered by the public. The draft will then be further refined and the City
Council will consider adoption of a final Comprehensive Plan, including any other changes.
Staff Recommendation
For information only.
Narrative
At the City Council's meeting, the acting Planning and Development Director will provide more
information about the Update status and respond to questions and comments from the Council.
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