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2022-04-27 Planning Board Packet
C)p E 04 � O Planning Board Remote Zoom Meeting Agenda 121 5th Ave. N. Edmonds, WA 98020 www.edmondswa.gov Michelle Martin 425-771-0220 Wednesday, April 27, 2022 7:00 PM Virtual Online Meeting Remote Meeting Information Join Zoom Meeting: https://edmondswa- gov.zoom.us/j/88526558062?pwd=YUtoNGFFQ210Q2U5SDdwRUFadX15dz09 Meeting ID: 885 2655 8062. Passcode: 598700 Call into the meeting by dialing: 253-215-8782 Land Acknowledgement for Indigenous Peoples We acknowledge the original inhabitants of this place, the Sdohobsh (Snohomish) people and their successors the Tulalip Tribes, who since time immemorial have hunted, fished, gathered, and taken care of these lands. We respect their sovereignty, their right to self-determination, and we honor their sacred spiritual connection with the land and water. 1. Call to Order Attendee Name Present Absent Late Arrived 2. Approval of Minutes A. Generic Agenda Item (ID # 6367) Approval of Minutes Background/History N/A Staff Recommendation Approval of minutes from April 13th meeting. ATTACHMENTS: • PB220413d (PDF) Planning Board Page 1 Printed 412212022 Remote Zoom Meeting Agenda April 27, 2022 3. Announcement of Agenda 4. Audience Comments 5. Administrative Reports A. Generic Agenda Item (ID # 6372) Edmonds Waterfront Issues Study Background/History See narrative. Staff Recommendation N/A ATTACHMENTS: • Edmonds Waterfront Key Findings and Recommendations Memo 6. Public Hearings 7. Unfinished Business 8. New Business 9. Planning Board Extended Agenda A. Generic Agenda Item (ID # 6371) Extended Agenda Background/History N/A Staff Recommendation Review Extended Agenda ATTACHMENTS: • April 22, 2022 Extended Agenda (PDF) 10. Planning Board Chair Comments 11. Planning Board Member Comments 12. Adjournment (PDF) Planning Board Page 2 Printed 412212022 2.A Planning Board Agenda Item Meeting Date: 04/27/2022 Approval of Minutes Staff Lead: Kernen Lien Department: Planning Division Prepared By: Michelle Martin Background/History N/A Staff Recommendation Approval of minutes from April 13th meeting. Narrative Draft meeting minutes attached. Attachments: PB220413d Packet Pg. 3 2.A.a CITY OF EDMONDS PLANNING BOARD Minutes of Webinar Meeting April 13, 2022 Vice Chair Pence called the virtual meeting of the Edmonds Planning Board to order at 7:00 p.m. LAND ACKNOWLEDGEMENT FOR INDIGENOUS PEOPLES We acknowledge the original inhabitants of this place, the Sdohobsh (Snohomish) people and their successors the Tulalip Tribes, who since time immemorial have hunted, fished, gathered, and taken care of these lands. We respect their sovereignty, their right to self-determination, and we honor their sacred spiritual connection with the land and water. a� Board Members Present Staff Present Roger Pence, Vice Chair Kernen Lien, Interim Planning Division Manager o Todd Cloutier Angie Feser, Parks, Recreation & Cultural Services Director Judi Gladstone 'o L Mike Rosen �- Q. Lily Distelhorst (student rep) a Board Members Absent Alicia Crank, Chair (excused) Matt Cheung (excused) Richard Kuehn (excused) READING/APPROVAL OF MINUTES MOTION MADE BY BOARD MEMBER GLADSTONE, SECONDED BY BOARD MEMBER ROSEN, TO APPROVE THE MINUTES OF MARCH 23, 2022 AS PRESENTED. MOTION PASSED 3-0 WITH BOARD MEMBER CLOUTIER ABSTAINING. ANNOUNCEMENT OF AGENDA THERE WAS UNANIMOUS CONSENT TO APPROVE THE AGENDA AS PRESENTED. AUDIENCE COMMENTS Natalie Seitz stated she is looking forward to hearing more about the acquisition program. She also offered congratulations to whoever will be joining them on the Planning Board. Peter Steinbeck stated he was just observing the meeting to learn about local planning activities and topics. Planning Board Meeting Minutes April 13, 2022 Pagel of 5 Packet Pg. 4 2.A.a ADMINISTRATIVE REPORTS A. Parks, Recreation, Cultural Arts & Human Services Department — Q 1 Update Parks, Recreation, Cultural Arts & Human Services Director Angie Feser gave an overview of the department's Q1 activities including: Administration/Park Planning/Projects; Parks Maintenance; Programming — Recreation, Environment Education & Cultural Arts; Human Services; and upcoming work. Administration/Park Planning: • 2022 Parks, Recreation, and Open Space (PROS) Plan — Director Feser expressed appreciation to the Planning Board for their hard work on this topic. Council held their public hearing(s) in March, and staff and the consultant are working on a revision at the request of the Council. • Francis Anderson Center (programs/rentals) — The Center opened up for business again on March 16. Tenant lease agreements have been renewed. • Agreements — Concessionaires and Special Events agreements have been finalized. • Civic Park Project — This project was updated on March 1. Due to rain, there have been 30+ "no work" N days. The budget is within allocation so far. The Civic Arts project is also associated with this project. Director Feser reviewed aerial images of the project from pre -construction to present. The Yost infiltration project is a mitigation project associated with this site. Due to groundwater limiting stormwater detention at Civic Park, this project will detain stormwater through infiltration within the ° same Shell Creek Watershed. The City will be going out to bid in May for the Yost infiltration project o with construction happening hopefully over the summer. a • Land Acquisition a • Brackett's Landing North restroom repair/upgrade is finished. M • Greenhouse — A variance application has been submitted. o • Yost Pool Replaster- The bid is completed, and contractor has been selected. N • Parks Maintenance Operations Assessment has been selected. a • Beautification Program — 88 flower baskets, 74 corner parks —These are all adopted out. Parks Maintenance: • Yost Pool — The pool operated through the winter with Cascade Swim Club. Staff replaced the chlorine injector. • Seasonal/FTE staff recruitment • Volunteer projects • Bench Replacement/Table refurbishment • Highway 99 Project • Tree Removals Recreation Programming: • New PT staff for Francis Anderson Center • Reservations are active — 13 0 shelter rentals, field rentals (1700 hours), gym rental (300 hours) • Branding/marketing guide put together by the recreation team • Communication enhancement — Facebook, newsletter (new) • Summer Camp — reinstated for 2nd-6d' grades for 10 weeks • Programs — pickleball league, fitness/wellness classes, gymnastics program Planning Board Meeting Minutes April 13, 2022 Page 2 of 5 Packet Pg. 5 2.A.a • Environmental Educations — 3 ranger naturalists, Salmon Safe Certification project, Environmental Resources Portal Cultural Arts Division: • Best Book Poster Program/Exhibit • On the Fence Exhibits (4 new) • Summer Concerts (19) with some new locations • 4th Avenue Cultural Grant Corridor grant • Highway 99 Gateway project design • Public Art projects — Floretum Club 100t' Anniversary and Civic Art Project Human Services: • Homelessness Task Force Recommendation • Urgent Needs Program/Care Kits (50) • Homelessness Assessment Report — updated • ARPA Funding — reopening grant portal, ordinance revisions, and potential allocations by Council • Snohomish County — south county housing enhancement • Connected 42 individuals with needed services • Maintain long-term motel vouchers (5) for emergency shelter o Upcoming in Q2: ° a • Civic Park construction will continue. a • 2022 PROS Plan adoption hopefully in May • Parks small capital projects • Yost Bridge repair N • Recreation and Cultural Arts Program a • Special Event Support • Human Services Program expansion Comments/Questions: Board Member Gladstone asked about hours for the Kids Camp this year. Director Feser explained they have been extended somewhat beyond 10-3 although she was not sure of the exact times. In addition to that, more hours have been added at the beginning and the end to accommodate working families. Board Member Gladstone asked about some art the Planning Board had commented on for Veterans Plaza. Director Feser replied that they have decided not to move forward with that sculpture in that location. Vice Chair Pence asked if the Human Services staff person could be part time at the new office up on SR 99. Director Feser stated they have had some conversation about that. Staff is also asking for Council to approve this part time position going to full time. She envisioned the person having some office hours up on Highway 99 in that new office. Vice Chair Pence asked if there are any counts on how many visits the CRAZE newsletter has generated for the website. Director Feser wasn't sure, but noted they distributed 25,000 newsletter pieces. She thought that they Planning Board Meeting Minutes April 13, 2022 Page 3 of 5 Packet Pg. 6 could possibly track how people are getting to the website and the registration system. She remarked they have discovered that a lot of times people register on the phone with staff assistance, but then when they come back to the system they go straight online to register. Board Member Gladstone raised a question about how the City is addressing populations that don't necessarily have regular access to the internet. Director Feser explained that was one of the reasons they mailed out the mailer with basic information so people can pick up the phone and work through the system without internet access. There will also be computer workstations at the neighborhood office on Highway 99. Board Member Rosen thanked Director Feser for the report and all the work done by staff as they have navigated through these past couple years. He asked why there was a three-month delay in hiring the planner position. Director Feser explained the position was originally approved in the 2022 budget. Council decided to do a budget amendment process early in the year and pulled 35 items out of the budget to revisit. The park planner position was one of those items and was not approved until early March. She expects they will be able to start recruitment next week and have someone hired by July. B. Parkland Acquisition Presentation Director Feser gave an overview of land acquisition covering 2021 acquisitions, acquisition methods, confidentiality, the acquisition process, and post -acquisition work. She stated that the acquisition of land for conservation of natural resources has been a priority of the Mayor and hers since she arrived at the City. The draft PROS Plan includes three recommendations that touch on land acquisition. She explained that in 2021 they discovered that there are 20 acres of tideland (I 100 linear feet of shoreline and beach) that the City has had a use deed to since 1968. The Shirley Johnson property was donated in 2021 with the purposes of being used as a park and/or a community garden. Acquisition methods for property include purchase, donations, conservation programs (Transfer of Development Rights (TDRs), Public Benefits Rating System (PBRS), Conservation Futures Grant Program), and other (public easement, lease, land trade, dedication, concomitant agreement, partnerships, eminent domain/condemnation). Director Feser reviewed situations when confidentiality is required surrounding land acquisition when it would put the city at a disadvantage if the information was known publicly. In these cases, the topics are discussed during City Council's executive sessions. Once that happens, the topic cannot be discussed again publicly unless the Council approves making it public. She then reviewed the evaluation criteria used for property acquisition and the rest of the land acquisition process. Comments/Questions Vice Chair Pence asked about the use of eminent domain. Director Feser explained that eminent domain is rarely used for parks, but generally for things like utilities, streets, right-of-way, etc. Vice Chair Pence then commented that the code governing the Planning Board states that the Board shall advise the Mayor and City Council on all matters related to the acquisition and development of all city parks and recreation facilities. It has been his perception on the three years he has been on the Board that they have not been doing that. He asked if there is a way the Planning Board could be more aligned with what the code seems to be saying. Director Feser thought that "advising on land acquisition" was subject to interpretation. Her understanding is that they do that regularly; for example, last month the Board suggested that the Council should Planning Board Meeting Minutes April 13, 2022 Page 4 of 5 Packet Pg. 7 2.A.a look at acquiring South County Park. Vice Chair Pence commented that his understanding of the code is not just high-level comments. He suggested that the Planning Board can hold executive sessions like the Council does to address confidential issues. Director Feser suggested having the City Attorney look at this topic if the Planning Board wants to look at this further. Vice Chair Pence did not think that was necessary unless other Board Members requested it. Board Member Gladstone asked if there was a way the Board could get regular general updates on the property acquisition process without violating the confidentiality aspect. Director Feser indicated she could do that. Board Member Gladstone then asked for clarification about one of the evaluation criteria points regarding the property characteristics and scope. Director Feser replied generally and indicated she could follow up with more information about this. Board Member Gladstone expressed an interest in learning more about the evaluation criteria. Board Member Rosen also expressed interest in this. Board Member Rosen asked if there is a metric to determine a goal for acquiring land. Director Feser explained the criteria was developed before the PROS Plan. She thought it would be good to look at the criteria again now that the PROS Plan is done and incorporate the goals, objectives, and key recommendations into the criteria. a� Board Member Gladstone asked how partnerships and other agreements fit into overall planning and dedication of resources and priorities. Director Feser explained that the flexibility of the PROS Plan combined with the evaluation criteria makes the City ready to take advantage of opportunities when they come up. Getting the 0 PROS Plan done will help feed the evaluation criteria for land acquisition. 'o L Q PLANNING BOARD EXTENDED AGENDA a The extended agenda was discussed. PLANNING BOARD CHAIR COMMENTS None PLANNING BOARD MEMBER COMMENTS Board Member Gladstone thanked Director Feser for her presentations today and requested a tour of some of the parks and where work is being done. Board Member Rosen concurred with Board Member Gladstone's comments and thanked Vice Chair Pence for leading the meeting. Board Member Cloutier thanked Director Feser for the presentations. Student Representative Distelhorst thanked Director Feser for the insightful presentation. ADJOURNMENT: The meeting was adjourned at 8:38 p.m. Planning Board Meeting Minutes April 13, 2022 Page 5 of 5 Packet Pg. 8 5.A Planning Board Agenda Item Meeting Date: 04/27/2022 Edmonds Waterfront Issues Study Staff Lead: Kernen Lien Department: Planning Division Prepared By: Kernen Lien Background/History See narrative. Staff Recommendation N/A Narrative The purpose of this project was to identify strategic updates and high-level recommendations to be considered in the 2024 Edmonds Comprehensive Plan update to reflect new information about waterfront uses, needs, and issues. The Edmonds Crossing project, which proposed to relocate the Edmonds ferry terminal to the south end of the waterfront, is not recognized in the Washington State Ferries 2040 Long Range Plan and the Washington State Department of Transportation has made no recent efforts to advance it. The City's long-range planning efforts have been relying upon the Edmonds Crossing project for decades; the Comprehensive Plan currently includes 30 references and eight pages devoted to the project. The Edmonds Crossing project's effective cancellation also impacts future ownership and uses of key properties, restoration and enhancement of the Edmonds Marsh, transportation planning, and several other infrastructure and planning issues. This Waterfront Issues Project is intended to be the initial step in identifying needs and opportunities to incorporate into the Comprehensive Plan for the 2024 update. MAKERS architecture and urban design, with the help of Leland Consulting and The Watershed Company, conducted a thorough review of existing plans and studies, held numerous conversations with City staff, led an online open house/webinar with 37 participants, and interviewed nine stakeholder groups to gain a better understanding of the waterfront's current context, issues, and opportunities. Based on the project team's findings and discussions, the top preliminary recommendations include: Create a new vision for the waterfront (Recommendation 11.A). Addressing the effective cancellation of Edmonds Crossing is not as simple as deleting its name from the Comprehensive Plan, because the plan heavily relies upon the project for land use assumptions and resolving the at -grade railroad crossing conflicts. As part of the 2024 Comprehensive Plan update, the City should engage the public to craft an updated vision for the Downtown Waterfront area. The vision should clearly articulate the community's desires around land use and character within the framework of market realities and trends. The future use of the Unocal Property and Packet Pg. 9 5.A planning for sea level rise should be special considerations in the visioning. See related Recommendations 1.13, 2.A, 5.A, and 3.C. Recognize and support the Edmonds ferry terminal's current location (Recommendation 2.A). Develop new and more specific land use and transportation policies that recognize the existing ferry terminal and guide the City's approach to planning around the terminal. Prioritize Edmonds Marsh and Willow Creek restoration (Recommendation 4.A-B). Continue planning and funding of the Edmonds Marsh and Willow Creek restoration project, including refined cost estimates, design, and flood mitigation planning. If the Unocal Property is acquired by the City, update the design of Willow Creek to optimize ecological outcomes. Plan for improved emergency management of the waterfront (Recommendation 7.C). Street closures due to train crossings are a continued problem, and emergency service west of the tracks remains at risk of disruption. In coordination with other jurisdictions, this issue requires further study and possible improvements involving capital facilities investments or new transportation infrastructure. Emergency management planning must be conducted collaboratively with organizations such as the Port of Edmonds, BNSF Railway, Washington State Ferries, Snohomish County, and Snohomish County Fire District No. 1. The full Edmonds Waterfront Issues Study Key Findings and Recommendations Memo is attached. Consultants and staff will present the complete findings at the Planning Board meeting and discuss next steps. Attachments: Edmonds Waterfront Key Findings and Recommendations Memo Packet Pg. 10 5.A.a Edmonds Waterfront Issues Study Key Findings and Recommendations Memo April 22, 2022 Executive Summary The purpose of this project was to identify strategic updates and high-level recommendations to be considered in the 2024 Edmonds Comprehensive Plan update to reflect new information about waterfront uses, needs, and issues. The Edmonds Crossing project, which proposed to relocate the Edmonds ferry terminal to the south end of the waterfront, is not recognized in the Washington State Ferries 2040 Long Range Plan and the Washington State Department of Transportation has made no recent efforts to advance it. The City's long-range planning efforts have been relying upon the Edmonds Crossing project for decades, the Comprehensive Plan currently includes 30 references and eight pages devoted to the project. 0 500 1,Oo, Feet Figure 1 - Overview of key properties and projects in the Edmonds waterfront study area (MAKERS) The Edmonds Crossing project's effective cancellation also impacts future ownership and uses of key properties, restoration and enhancement of the Edmonds Marsh, transportation planning, and several other infrastructure and planning issues. shows the general relationship between key sites, features, and projects in the waterfront study area. City of Edmonds I Development Services, Planning Division Page 1 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 11 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo This Waterfront Issues Project is intended to be the initial step in identifying needs and opportunities to incorporate into the Comprehensive Plan for the 2024 update. MAKERS architecture and urban design, with the help of Leland Consulting and The Watershed Company, conducted a thorough review of existing plans and studies, held numerous conversations with City staff, led an online open house/webinar with 37 participants, and interviewed nine stakeholder groups to gain a better understanding of the waterfront's current context, issues, and opportunities. The findings are organized by sections 1-11 pertaining to each issue or project. Based on the project team's findings and discussions, the top preliminary recommendations in this memo include: Create a new vision for the waterfront (Recommendation 11.A). Addressing the effective cancellation of Edmonds Crossing is not as simple as deleting its name from the Comprehensive Plan, because the plan heavily relies upon the project for land use assumptions and resolving the at -grade railroad crossing conflicts. As part of the 2024 Comprehensive Plan update, the City should engage the public to craft an updated vision for the Downtown Waterfront area. The vision should clearly articulate the community's desires around land use and character within the framework of market realities and trends. The future use of the Unocal Property and planning for sea level rise should be special considerations in the visioning. See related Recommendations 1.13, 2.A, 5.A, and 3.C. Recognize and support the Edmonds ferry terminal's current location (Recommendation 2.A). Develop new and more specific land use and transportation policies that recognize the existing ferry terminal and guide the City's approach to planning around the terminal. Prioritize Edmonds Marsh and Willow Creek restoration (Recommendation 4.A-B). Continue planning and funding of the Edmonds Marsh and Willow Creek restoration project, including refined cost estimates, design, and flood mitigation planning. If the Unocal Property is acquired by the City, update the design of Willow Creek to optimize ecological outcomes. Plan for improved emergency management of the waterfront (Recommendation 7.C). Street closures due to train crossings are a continued problem, and emergency service west of the tracks remains at risk of disruption. In coordination with other jurisdictions, this issue requires further study and possible improvements involving capital facilities investments or new transportation infrastructure. Emergency management planning must be conducted collaboratively with organizations such as the Port of Edmonds, BNSF Railway, Washington State Ferries, Snohomish County, and Snohomish County Fire District No. 1. Several technical studies are recommended to support comprehensive planning and economic development. Refer to the recommendation number to find information on each study. Study Recommendation Number Ferry traffic study 2.6 Unocal Property real estate appraisal 3.A Federal Railroad Administration quiet zone application 6.6 Hotel feasibility study 11.6 Comprehensive parking study of the Downtown Waterfront area 11.H Figure 2 - List of recommended studies City of Edmonds I Development Services, Planning Division Page 2 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 12 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Introduction Project Purpose The Edmonds Crossing project, which proposed to relocate the Edmonds ferry terminal to the south end of the waterfront, is no longer active. The City's long-range planning efforts have been relying upon the Edmonds Crossing project for decades. This change affects future ownership and uses of key properties; it also relates to restoration and enhancement of the Edmonds Marsh. The City undertook this project as a first step in examining the implications of this change at a fairly high level for the purpose of updating the Comprehensive Plan for the 2024-2044 planning period. This project also considered other major properties, infrastructure, and environmental elements in the study area. Memo Overview This memo contains the key findings, relevant Comprehensive Plan Policies, and preliminary recommendations for the 11 waterfront issues studied: Section 1 —The status of Edmonds Crossing.........................................................................................4 Section 2 — Ferry operations on the Edmonds -Kingston route.....................................................12 Section 3 — Unocal Property cleanup, property rights, and future land use ............................15 Section 4 — Edmonds Marsh and Willow Creek restoration efforts.............................................19 Section 5 — Flooding and sea level rise potential impacts..............................................................24 Section 6 — Railroad double -tracking project impacts and planning considerations ........... 27 Section 7 — Waterfront emergency access next steps......................................................................29 Section 8 — Edmonds Station access and improvements...............................................................34 Section 9 — Bus service improvements and light rail connections..............................................35 Section 10 — Port of Edmonds projects and properties...................................................................37 Section 11 — Land use and economic development opportunities............................................38 Section12 —Sources .....................................................................................................................................45 The key findings and facts in this memo were developed from the project's background research and public outreach efforts. Many of the facts are pulled from existing public documents and studies and from stakeholder interviews conducted with property owners, transportation agencies, and environmental interests. Stakeholders interviewed were the Washington State Department of Transportation (WSDOT) and Washington State Ferries (WSF), Sound Transit, Community Transit, BNSF Railway, Port of Edmonds, Tulalip Tribes, Save Our Marsh, JSH Properties, and Lund Consulting representing Chevron/Unocal. Following each set of findings, the consultant team's recommendations to address the major issues are listed. Most recommendations relate to updating the Comprehensive Plan, while some recommendations are for City -led actions and studies. City of Edmonds I Development Services, Planning Division Page 3 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 13 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 1 - Edmonds Crossing Key Findings The Edmonds Crossing project originated in the 1990s when Washington State Ferries (WSF) proposed a vehicle loading bridge over the Main Street railroad crossing. The City objected to that design, and a concept for a new ferry terminal on the south part of the waterfront was developed as an alternative. It would be located on the Unocal Property adjacent to the Edmonds Marsh (see Section 3) and on land occupied by the Port of Edmonds and Marina Beach Park. Conceptually, major elements of the Edmonds Crossing project would consist of a three -slip ferry dock, large vehicle holding areas, surface and structured parking, a new/relocated Edmonds Station and bus transit center, pedestrian access across the railroad tracks, daylighting of Willow Creek, and stormwater treatment. The project's most advanced milestone was a Final Environmental Impact Statement (FEIS) published in 2004. ,a � oad ■ ti xl�O ■ v+oar wr R'" one roue remo.eai Figure 3 - Edmonds Crossing "preferred alternative" from the 2004 FEIS Today, the Edmonds Crossing project, as originally envisioned and planned for, is effectively cancelled with no signs of life. This is evidenced by: • Edmonds Crossing has had no major plans, designs, cost estimates, or other project documentation published since the FEIS was released nearly 20 years ago • The Edmonds Crossing project is not included in the WSF 2040 Long Range Plan (published 2019) • WSDOT has no staff assigned to work on the project • WSDOT has no funding for the project, nor did the Legislature include the project in its major 2022-2038 transportation funding package (known as Move Ahead Washington) City of Edmonds I Development Services, Planning Division Page 4 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 14 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo • WSDOT has not identified any further transportation need for the Unocal Property beyond the agency's original intent to use the property for Edmonds Crossing, and the Legislature's official stance is that the City of Edmonds should be able to purchase the Unocal Property for the purpose of rehabilitating near -shore habitat for salmon (read more in Section 3) The WSF Long Range Plan says, "Edmonds multimodal terminal improvements are proposed in the long term." WSF staff have confirmed these improvements are undefined, they do not include the Edmonds Crossing project, and no alternative terminal relocation schemes are planned. The scope of the "multimodal terminal improvements" will be determined later in a community planning process. City staff report that ferry traffic issues associated with the existing terminal remain unresolved. Relevant Comprehensive Plan Excerpts, Policies and Recommendations Addressing the effective cancellation of Edmonds Crossing is not a simple task. The Land Use Element heavily relies upon the project for assumptions and planned actions in the Downtown/Waterfront Activity Center, and it has no policies on the existing ferry terminal. Therefore, each recommendation of Section 1 carefully considers how Edmonds Crossing should be unwrapped from the Comprehensive Plan. Unlike the other sections of this memo, here each relevant Comprehensive Plan passage is listed and immediately followed by an associated recommendation. Some passages are abbreviated for brevity, and the full Comprehensive Plan should be referred to for complete context. See Section 2 on Ferry Service for related recommendations. Land Use Element Downtown/Waterfront Activity Center Plan Content (page 44): A number of public plans and projects have been taking shape in recent years, and these could have a profound impact on the future of the city's downtown/waterfront area. Some of these ongoing activities include... • Transportation planning to accommodate ferry traffic, including options for a reservation system, additional parking for ferry users, and the possible Edmonds Crossing multimodal project. The latter project would move the existing ferry terminal at the base of Main Street to a new multimodal transportation center at Pt. Edwards. Recommendation 1.A. Update the bullet point to reference the existing Edmonds ferry terminal and remove reference to Edmonds Crossing. Considering adding a reference to WSF's future undefined multimodal terminal improvements at the existing ferry terminal, potential changes to holding lanes, and the planned three -boat service (see Section 2 for additional ferry information and recommendations). Downtown/Waterfront Vision (page 44). Taken together, the goals and policies for the Downtown/Waterfront Activity Center present vision for Edmonds downtown/waterfront. By actively pursuing the ferry terminal's relocation, the City has set upon an ambitious and exciting course. It is a course that holds promise for the downtown/waterfront, but it is one that will require concerted action by the entire community, including local, state and federal public officials, business groups and citizens. While the challenges presented in this effort are substantial, the possible rewards are even greater, for with its existing physical assets, future opportunities and the energy of its citizens, Edmonds has the potential to create one of the region's most attractive and vital city centers in the midst of magnificent shoreline setting. City of Edmonds I Development Services, Planning Division Page 5 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 15 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Recommendation 1.113. Remove the Edmonds Crossing reference and update this Downtown Waterfront vision in a community engagement process as part of the 2024 Comprehensive Plan update. Since the Edmonds Crossing project is inactive, the updated vision should clearly articulate the community's desires for the area and reorient the community's desires for how the existing ferry terminal is integrated into the Downtown Waterfront. For further guidance on updating the vision, please see related Recommendations 3.C. and I I.A. Downtown/Waterfront Activity Center (page 45). Components of the overall vision for the downtown/waterfront area include: The Edmonds Crossing multimodal transportation center provides convenient transportation connections for bus, ferry, rail, auto and bicycle riders and makes Edmonds an integrated node in the regional transportation system. The new terminal reduces negative impacts to downtown Edmonds while still providing a link between the terminal and downtown Edmonds. The project provides the community with varied transportation resources and an economic stimulus to the larger community. Downtown is extended westward and connected to the shoreline by positive mixed -use development as well as by convenient pedestrian routes. Redevelopment of the holding lanes and SR-104 is pursued after the ferry terminal relocates to Point Edwards. Recommendation 1.C. Remove the Edmonds Crossing reference and update the Downtown Waterfront vision per Recommendation I.B. The update should consider that "negative impacts to downtown Edmonds" are currently undefined and possibly unresolved by the continuation of ferry operations in the current configuration. See also Recommendation 2.13 for a ferry traffic study, Downtown/Waterfront Activity Center Goal B (page 46). B.7 Future development along the waterfront should support the continuation and compatible design of three regional facilities: Edmonds Crossing at Pt. Edwards; the Port of Edmonds; and the regional parks, beaches and walkways making up the public shoreline. Recommendation 1.113. Replace the Edmonds Crossing reference with the existing Edmonds ferry terminal. Clearly define what "compatible design" means for the existing terminal or remove that from the goal. See also Recommendation 2.13 for a ferry traffic study. Downtown/Waterfront Activity Center Goal C (page 47). Continue to plan for and implement the Edmonds Crossing multimodal transportation center at Point Edwards - pursuing the design, permitting, land acquisition and development of the project, as resources allow. The completion of Edmonds Crossing will help address the competing needs of three regional facilities (transportation, parks and open space - including the Edmonds Marsh, and the Port of Edmonds) while providing opportunities for redevelopment and linkage between downtown Edmonds and its waterfront. C.1 Utilize the Point Edwards site to its best community and regional potential by developing a multimodal transit center with compatible development in the surrounding area. In addition to the regional benefits arising from its multi modal transportation function, an essential community benefit is in removing intrusive ferry traffic from the core area which serves to visually and physically separate downtown from the waterfront. City of Edmonds I Development Services, Planning Division Page 6 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 16 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo C.2 When feasible, establish a Point Edwards multimodal transportation center which provides convenient transportation connections for bus, ferry, rail, auto, pedestrians and bicycle riders and makes Edmonds an integrated node in the regional transportation system. The new terminal should be planned to reduce negative impacts to downtown Edmonds - such as grade separation/safety concerns and conflicts with other regional facilities - while providing the community with unique transportation resources and an economic stimulus to the larger community. C.3 Extend Downtown westward and connect it to the shoreline by encouraging mixed -use development and pedestrian -oriented amenities and streetscape improvements, particularly along Dayton and Main Streets. Development in this area should draw on historical design elements found in the historic center of Edmonds to ensure an architectural tie throughout the Downtown Area. Pursue redevelopment of SR-104 and the existing holding lanes once the ferry terminal moves to Point Edwards. C.4 Improve traffic conditions by removing ferry traffic impacts from the downtown core. Recommendation 1.E. Revise goal C and subgoals C.1, C2., and C.4 to acknowledge the continued existence of the ferry terminal in its current location. The issues of Downtown ferry traffic, the railroad crossings, and multimodal transportation are addressed in other recommendations (respectively, see Sections 2, 6-7, and 8-9). Most of subgoal C.3 could potentially be retained as a higher -level Downtown/Waterfront Area goal since it does not necessarily rely upon Edmonds Crossing to be achieved. An updated Downtown Waterfront vision is needed per Recommendations 1.13, 3.C, and I I .A. To replace subgoal C.4, the updated visioning process should evaluate the extent of ferry traffic impacts on the downtown core and be addressed by the vision (see Recommendation 2.13 regarding a ferry traffic study). Downtown/Waterfront Activity Center Goal H (page 49). H.1 Improve and encourage economic development opportunities by providing space for local businesses and cottage industries and undertaking supporting public improvement projects. Of particular significance is the enhancement of economic development opportunities resulting from the Edmonds Crossing project and the enhancement of Edmonds as an arts and water -oriented destination. Recommendation 1.F. Update this goal to explain how the "enhancement of Edmonds as an arts and water -oriented destination" will occur with the existing ferry terminal in place. Downtown/Waterfront Activity Center Multi -modal Transportation (page 49). Primary goals of the City's Downtown Waterfront Plan include integrating the downtown core with the waterfront improving pedestrian access and traffic circulation, and encouraging mixed -use development. Current conditions limit the cty's ability to achieve these plan goals by making it difficult to move between the two areas, thereby minimizing the value of the shoreline as a public resource and amenity while adversely affecting the potential for redevelopment including greater public use. City of Edmonds I Development Services, Planning Division Page 7 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 17 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo - P U 6 E T s o v N O ' �� ��'r Bracxell't Cencnle Pler ((Part e[ EaLI InB Pom, Pbrl /pM laMlnB v�r.�wrvw r.Marurl - q M 17 Figure 15: Integration of the Remaining Ferry Pier Structure into Surrounding Parks (page 49). Recommendation 1.G. Update the Multi -modal Transportation section to acknowledge the existing ferry terminal and update the Downtown Waterfront Vision. See related Recommendations 2.A, 11.A, and I I.G. Consider removing Figure 15 since there are no active plans to alter the ferry terminal or pier structures. Edmonds Crossing subsection (pages 49-55). The full text of these pages is not shown for brevity. Recommendation 1.H. Remove the multi -page Edmonds Crossing subsection. Relocate some of the text from pages 49-55 which remains relevant, as follows. 2075 Alternatives Analysis (page 52) The project remains the City's stated preference to resolve the many conflicts created by the at -grade railroad crossings at Dayton and Main Streets. Recommendation 1.1. In the Downtown/Waterfront Activity Center section of the Land Use Element and in the Transportation Element, integrate a new preference to resolve the at -grade railroad crossing conflicts. See Sections 6 and 7 for further information and recommendations. Also, update the Downtown Waterfront vision per Recommendations 1.13 and I I.A. Short Term Actions (page 53).3. Improve the existing downtown rail station between Dayton and Main Streets in order to better accommodate inter -city passenger and commuter rail service, including provisions for bus and commuter traffic as well as pedestrian connections to the waterfront and downtown. During the short term planning period, evaluate the feasibility and benefits of retaining a commuter rail and transit presence downtown after the construction of Edmonds Crossing. Recommendation 1eJ. In the Downtown/Waterfront Activity Center section of the Land Use Element and in the Transportation Element, relocate Short Term Action #3 and integrate the known Edmonds Station access improvements that are planned by Sound Transit (see Section 8). Also update Short Term Action #3 to include bus transit connections to light rail stations (see Recommendation 9.13). City of Edmonds I Development Services, Planning Division Page 8 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 18 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Short Term Actions (page 53) 4. Plan for future joint public/private development of the area between SR-104 and the railroad tracks. Planning activities could potentially include infrastructure planning, property acquisition, parking management development incentives and guidelines or modifications to land use regulations (such as zoning or master planning). Although Amtrak and commuter rail service will be included as a part of the Edmonds Crossing project, the City and transit service providers should examine whether a commuter rail stop can be retained between Dayton and Main Streets in order to provide improved service and stimulate potential redevelopment of the surrounding area. Recommendation 1X Remove the Edmonds Crossing reference. As part of the Downtown Waterfront vision update (see Recommendations 1.13 and 11.A), the community's desires for the area between SR-104 and the railroad tracks should be determined and if a joint public/private development of this area is still relevant. See Section 3 for information and recommendations for the Unocal Property, and Section 11 for details on the current zoning and status of major properties like Harbor Square and Salish Crossing. See Recommendation I I.H regarding a parking study. Short Term Actions (page 53) 5. Upgrade secondary downtown streets for pedestrians. Implement the city's public urban design plan and street tree plan while expanding public amenities and streetscape improvements in areas where these do not already exist. These improvements are particularly needed along Main and Dayton Streets in the area between downtown and the waterfront in order to improve pedestrian connections between downtown and the waterfront area. Pedestrian improvements should be combined with traffic improvement projects where applicable. 6. Continue to promote sustainable shoreline management and public access to the city's beaches, parks, and walkways. 7. Continue implementing a continuous shoreline walkway (boardwalk/esplanade) from Brackett's Landing North to Point Edwards. Work with the Port of Edmonds to integrate recreation and marina functions into the long term plan. 9. Encourage a variety of housing to be developed as part of new development and redevelopment of downtown properties. Housing should be provided to serve a diverse community, including single family homes, multi family apartments and condominiums, housing as part of mixed use developments, and housing connected with live/work developments that could also encourage an arts -oriented community in the downtown area. A special focus for arts -supporting live/work arrangements could be in the corridor and nearby residential areas linking downtown with the Edmonds Center for the Arts. 11. Develop "gateways" at key entrances to the downtown area which enhance the identity and sense of place for downtown. Gateways should signal that visitors are entering downtown Edmonds, and should include elements such as public art landscaping, signage and directional ("way -finding") aids. Recommendation 11. The above short term actions are relevant without the Edmonds Crossing project and could be integrated elsewhere in the Downtown/Waterfront Activity Center section of the Land Use Element, the Housing Element, and the Community Culture & Urban Design Element. City of Edmonds I Development Services, Planning Division Page 9 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 19 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Long Term Actions (page 54) 3. Coordinate circulation and public parking with Port development. 4. Continue to protect and enhance existing wetlands and continue to develop supporting non - intrusive interpretive trails and exhibits to help educate local citizens and visitors about Edmonds' unique ecosystems and natural and cultural history. 5. Continue development of a "necklace" of shoreline parks with improvements, focusing on missing links in the park and walkway system. Retain and expand existing parks, providing linkages whenever property acquisitions or easements become available for public use. 6. Encourage the development of centralized parking facilities as part of redevelopment projects. Under the right circumstances, these types of facilities can provide an efficient mechanism for consolidating expensive parking improvements while freeing up land for more intensive and desirable uses that support local housing, commercial, and pedestrian activities. Public/private partnerships should be explored when the opportunity arises, both in private and public projects (e.g. the commuter rail station downtown). Centralized parking facilities could be built as part of a master -planned mixed -use development. 8. Redevelop the area from the east side of SR-104 to the railroad tracks, from Harbor Square to Main Street according to a mixed use master plan. This area could provide a significant opportunity for public/private partnerships. Under the right circumstances, consolidated parking or a pedestrian/bicycle crossing to the waterfront could be possible as part of a redevelopment project. Every opportunity should be taken to improve the pedestrian streetscape in this area in order to encourage pedestrian activity and linkages between downtown and the waterfront. Uses developed along public streets should support pedestrian and bicycle activity and include amenities such as street trees, street furniture, flowers and mini parks. Main and Dayton Streets should receive special attention for public art or art integrated into private developments to reinforce the visual arts theme for downtown. Redevelopment of this area should also take advantage of the ability to reconfigure and remove the ferry holding lanes paralleling SR-104 once the Edmonds Crossing project is developed. 10. New development and redevelopment in the downtown waterfront area should be designed to meet overall design objectives and the intent of the various 'districts" described for the downtown area. Recommendation 1.M. The above long term actions are relevant without the Edmonds Crossing project and could be integrated elsewhere in the Downtown/Waterfront Activity Center section of the Land Use Element and in the Transportation Element. An updated Downtown Waterfront vison, with community desires about development and redevelopment is need, per Recommendations 1.13, 1.K, and 11.A. See also Section 4 regarding wetlands and Edmonds Marsh, and Recommendations I I.G and I I .H regarding the waterfront walkway and waterfront parking. Master Plan Development planning designation (page 57) The waterfront area south of Olympic Beach, including the Port of Edmonds and the Point Edwards and multi modal developments. This area is recognized by master plans for the Port of Edmonds, Point Edwards, and the Edmonds Crossing project as described in an FEIS issued on November 10, 2004. These areas are also developed consistent with the City's Shoreline Master Program, as it applies. City of Edmonds I Development Services, Planning Division Page 10 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 20 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Recommendation 1.N. Update this this description of the Master Plan Development designation based on the outcome of recommended visioning process for the downtown waterfront and Unocal Property (see the recommendations in Section 3). Transportation Element Policy 6.9 (page 230) Locate and design a multi -modal transportation center and terminal to serve the city's needs with the following elements: • A ferry terminal that meets the operational requirements to accommodate forecast ridership demand and that provides proper separation of automobile, bicycle and walk-on passenger loading, • A train station that meets intercity passenger service and commuter rail loading requirements, and provides the requisite amenities such as waiting areas, storage and bicycle lockers; • A transit center with connections to major regional destinations; • A linkage between stations/terminals that meets the operational and safety requirements of each mode, including a link between the multi -modal station terminal to the business/commerce center in downtown Edmonds; • Safety features that include better separation between train traffic and other modes of travel, particularly vehicle and passenger ferry traffic as well as the general public; and • Overall facility design that minimizes the impact to the natural environment in particular the adjacent marshes. Recommendation 1.0. Edit this policy with the assumption that the City is recognizing and supporting the ferry terminal in its existing location. Incorporate or update policies elsewhere in the plan that refer to all of these objectives. See Recommendation 2.A regarding ferry facilities, Section 8 regarding train service, Section 9 regarding bus service, Section 7 regarding separation between train traffic and other modes of travel, and Section 4 regarding the Edmonds Marsh. Edmonds Crossing Multimodal Facility (page 299) The City is also a partner in the Edmonds Crossing multimodal ferry, bus, and rail facility. Sound Transit is planning to relocate Edmonds station as part of the larger Edmonds Crossing Multimodal project being led by WSDOT. While there is no funding for this relocation, the multimodal facility would be an important transit hub for the city. Recommendation 1.P. Remove the Edmonds Crossing subsection under the "transit" heading Acknowledge the existing ferry terminal through the Comprehensive Plan consistent with the other recommendations of Sections 1 and 2. Interjurisdictional Coordination (page 318) Coordinate with WSDOT and the FHWA to move forward with the Edmonds Crossing Multimodal Project. Recommendation 1.Q. Remove the Edmonds Crossing reference. Coordinate with WSDOT on other ferry terminal and traffic improvements per the recommendations of Section 2. City of Edmonds I Development Services, Planning Division Page 11 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 21 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 2 - Ferry Service Key Findings The Edmonds Ferry Terminal is located at the end of Main Street. Vehicle and foot passenger traffic to and from ferries must cross over railroad tracks at the end of the terminal pier. During regular two -boat service, Edmonds/Kingston ferry route has 25 daily round trips running approximately every 45 minutes (depending on time of day). In 2021, the route carried approximately 3.5 million passengers, which included 1.9 million vehicles. This is up from 2020 but still 15% below pre -pandemic volumes. The route has recently operated with only a single vessel due to ongoing pandemic and crew shortage impacts. n m Bainbridge Island ;1:01 Bremerton �� Everett • Clinton Mukilteo Kingston O O Edmonds s Seattle SERVICE ENHANCEMENTS Route capacity increase O New vessel Q Additional service hours i Increase passenger capacity TERMINAL ENHANCEMENTS Major preservation or improvement Electrification Figure 4 - Summary of planned Improvements to the Edmonds/Kingston route (Washington State Ferries) The route currently uses vessels carrying up to 144 or 188 vehicles. Starting in the 2028-2041 timeframe, Washington State Ferries plans to add a third boat to the route for the purpose of increasing service frequency and capacity. All boats on the service would be the 144-vehicle vessels that can be loaded and unloaded more quickly to meet 30-minute headways. One of the two current service vessels, the Puyallup, is planned to be converted to electric -hybrid propulsion and operate all -electric in 2023. Washington State Ferries has not received any data or plans from BNSF on the double -tracking project and therefore has not performed an analysis of how changes in train traffic will affect ferry operations. In one 30-day period in 2015 Washington State Ferries tracked ten ferry delays (ranging from 3 to 15 minutes each) attributed to railroad crossing issues. See Sections 6 and 7 for further information and recommendations on the train crossings. City of Edmonds I Development Services, Planning Division Page 12 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 22 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo A reservation system for the Edmonds -Kingston route was studied in 2010, and it was determined that all central Puget Sound ferry routes would need to switch to reservations at the same time for the system to be feasible. The Long Range Plan anticipates a further study of Edmonds terminal improvements and what physical changes would be needed to the vehicle holding lanes. The City of Edmonds 2021-2041 Capital Facilities Plan includes a $357,00 project to "Modify existing 3 lane channelization on SR104 to add vehicle storage for ferry users" by 2024. CO N N Relevant Comprehensive Plan Policy y Economic Development Element PolicyA.8 Leverage business opportunities related to travelers to/from Edmonds using the Washington 0 State Ferry system. Transportation Element Policy 6.8 Form a multimodal system that links ferry, rail, bus, auto, and non -motorized travel providing access to regional transportation systems while ensuring the quality, safety, and integrity of local E commercial districts and residential neighborhoods. w Recommendations E See Section 1 on Edmonds Crossing for related recommendations. Recommendation 2.A. Develop new and more specific land use and transportation policies that o recognize the existing ferry terminal and reinforce the City's support for the terminal's current location. Policies should explain the City's stance and strategy around ferry traffic and holding lane configuration, a potential vehicle reservation system, transit and walking/biking connections to the E terminal, and the implications of future three -boat service. 0 Recommendation 2.B. Adopt a new transportation policy that calls for a ferry traffic study to assess a� the impacts of ferry traffic on the Downtown Waterfront. It is currently unclear what, if any, impacts ferry traffic currently has since the SR-104 holding lanes appear to effectively segregate waiting a, vehicles from the local street network and deboarding traffic occurs for 5-10 minutes during peak times. This study is needed to support the update of the Downtown Waterfront vision (per ii Recommendations 1.13 and 11.A). as Y When the City conducts the study, it should direct staff to focus on street intersections to determine if o ferry traffic has any impacts on transit reliability, private property and business access, and the safety and accessibility of pedestrian and bicycle routes between the waterfront and the core business district. The study should also quantify the current number and duration of train crossing closures at Main Street and Dayton Street, with averages developed over several days/weeks and which also consider the peak freight holiday season (see also Section 7 and Recommendation 7.A). ° E The study should be done in time to support the updated Downtown Waterfront vision (see W r Recommendation 11.A). If WSF begins planning for a vehicle reservation system or three -boat service during the 2024 Comprehensive Plan update, the study could potentially incorporate the E considerations of Recommendations 2.0 and 2.D below. v r r Q Recommendation 2.C. If WSF moves to implement a vehicle reservation system, collaborate on joint transportation planning to balance traffic improvements with the mitigation of potential community City of Edmonds I Development Services, Planning Division Page 13 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 23 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo impacts, such as pedestrian safety, vehicle idling, air and water pollution, transit reliability, local business impacts, and local street access. Recommendation 2.113. If WSF moves to implement three -boat service on the Edmonds -Kingston route, the City should evaluate the community impacts and opportunities. In particular, collaboration with WSF is needed to determine whether an additional boat slip, employee parking, or other terminal expansion will be built and where the third boat will be moored overnight. The City should also consider if higher service frequency would necessitate or allow changes to the configuration of holding lanes and how this relates to the current holding lane project in the Capital Facilities Plan. City of Edmonds I Development Services, Planning Division Page 14 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 24 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 3 - Unocal Property Key Findings The Unocal Property is a large irregularly shaped parcel (ID 27032600102400) on the south end of the waterfront. The parcel is 21.31 acres in size. In 2005, the State of Washington signed a purchase and sale agreement with Union Oil Company of California (Unocal), a subsidiary of Chevron, to purchase the Unocal Property in anticipation of the Edmonds Crossing project. Figure 5 - View of the Unocal Property (with approximate boundaries in yellow), cleanup operations, Willow Creek, and stormwater pond. The Edmonds Marsh is at far left. (MAKERS) The property remains contaminated after the shutdown of a bulk fuel terminal in 1991. The Washington State Department of Ecology has been monitoring the cleanup of the site since that time Unocal is using a dual phase extraction system, which is a vacuum pumping technology that removes contaminated ground water, petroleum products, and hydrocarbon vapor from the subsurface. According to an email from the Department of Ecology, the extraction system was installed in December 2017. Under an Interim Action Work Plan, the extraction system is expected to run for six years (until December 2023). At that point, an assessment will determine whether the cleanup goals have been met. If so, an additional two years of "confirmation monitoring" will occur through the end of 2025 to show long term success. If the cleanup goals are not met, then contingency cleanup actions will be taken with an uncertain schedule. The Department of Ecology will soon publish a draft Cleanup Action Plan with more details on these processes, with the public invited to comment. Per the terms of the purchase and sale agreement, the State will be given title to the property once the Department of Ecology has deemed it to be sufficiently cleaned. The City of Edmonds and stakeholders have an interest in the property because it could play a key role in the restoration of Willow Creek and Edmonds Marsh. City of Edmonds I Development Services, Planning Division Page 15 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 25 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo In 2021 the State Legislature approved a proviso that provides the City of Edmonds the right of first purchase at fair market value to acquire property rights for the site: During the 2021-2023 biennium, if the [state transportation] department takes possession of the property situated in the city of Edmonds for which a purchase agreement was executed between Unocal and the department in 2005 (Tax Parcel Number 262703-2-003-0009), and if the department confirms that the property is still no longer needed for transportation purposes, the department shall provide the city of Edmonds with the right of first purchase at fair market value in accordance with RCW 47.12.063(3) for the city's intended use of the property to rehabilitate near -shore habitat for salmon and related species. The end of the 2021-2023 biennium is June 30, 2023. Based on the information above provided by the Department of Ecology, this right will expire before a determination can be made on whether cleanup goals have been met at the property. When WSDOT is given title to the property, they will conduct a public process and determine whether the agency has any further need for the property for a transportation purpose. At this time, WSDOT has not identified any such need beyond the agency's original intent to use the property for the now - inactive Edmonds Crossing project. If the property is deemed surplus, WSDOT will be required to receive fair market value for the property either monetarily or through a land exchange. The WSDOT Real Estate Office will work with stakeholders on how that compensation requirement is met. The Unocal Property has a land use designation of Master Planned Development. The site is zoned Master Plan Hillside Mixed Use (MP2) under a contract rezone signed with Unocal in 2002. The contract rezone is accompanied by a master plan showing two land use alternatives: Alternative One includes the Edmonds Crossing multimodal transportation center and a limited area set aside for mixed -use development; Alternative Two acknowledges the unlikelihood of Edmonds Crossing moving forward, and therefore exclusively includes only mixed -use development. The master plan proposed specific zoning provisions that are still in place under Chapter 16.75 EMC, MP - Master Plan Hillside Mixed -Use Zone, such as permitted uses and dimensional requirements. EMC 16.75.020(D) stipulates that, "(1) No development shall be permitted in an MP1 or MP2 zone unless a master plan has been prepared...", and "(3) All property identified in the master plan shall be developed in a manner consistent with the provisions of the master plan." Therefore, if the Unocal Property retains the MP2 zoning and the property owner desires a different land use type or configuration than that envisioned in the 2002 master plan, a new master plan is required to be approved by the City as a comprehensive plan amendment, a planned residential development, or as a contract rezone. Under the terms of the original contract rezone, the City of Edmonds may initiate a property rezone at any time, or the property owner may amend or terminate the contract using the City's rezoning procedures. Relevant Comprehensive Plan Policy Land Use Element Open Space Goal A. Open space must be seen as an essential element determining the character and quality of the Edmonds environment in accordance with the following policies. A.1. Undeveloped public property should be studied to determine its suitability and appropriate areas designed as open space. City of Edmonds I Development Services, Planning Division Page 16 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 26 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo A.2. All feasible means should be used to preserve the following open spaces: A.2.a Lands which have unique scientific or educational value. A.2.b Areas which have an abundance of wildlife, particularly where there are linked wildlife corridors or habitats of rare or endangered species. A.2.c Natural and green belt areas adjacent to highways and arterials with the priority to highways classified as scenic. A.2.d Areas which have steep slopes or are in major stream drainage ways, particularly those areas which have significance to Edmonds residents as water sheds or natural drainage ways. A.2.f Bogs and wetlands. A.2.h Lands which would have unique suitability for future passive or active recreational use. Open Space Goal B. Edmonds possesses a most unique and valuable quality in its location on Puget Sound. The natural supply of prime recreational open space, particularly beaches and waterfront areas, must be accessible to the public, in accordance with the following policies: B.1 Edmonds saltwater shorelines and other waterfront areas should receive special consideration in all future acquisition and preservation programs. B.2 Wherever possible, provide public access to public bodies of water. Recommendations Recommendation 3.A. The City should retain an outside firm to perform a development feasibility assessment of the Unocal Property to determine its fair market value. The assessment should account for the site's accessibility, presence of critical areas and other ecological features, historic soil and water contamination, proximity to the railroad and other neighboring land uses, and other customary real estate considerations. After completion of the assessment, the City should budget appropriately for the expected fair market value. Recommendation 3.113. The City should exercise its right of first purchase at fair market value on the Unocal Property if it becomes available before June 2023. If this right expires before being exercised, the City should update its 2023 state legislative agenda to include an extension of the right into the 2023-2025 biennium or permanently. This is because the Unocal property cleanup will likely continue past the right's current expiration, and the property's transfer to WSDOT and subsequent availability for purchase has an uncertain schedule. Recommendation 3.C. As part of a cohesive Downtown Waterfront vision and 2024 Comprehensive Plan Update, conduct a public process that determines the community's desired future land use of the Unocal Property. While there is vocal support for the City to acquire the property for the purpose of ecological restoration and wildlife habitat preservation, and the Legislature's understanding of the City's intended use of the property is to rehabilitate near -shore habitat for salmon and related species, this has not been affirmed by official City policy. The current Comprehensive Plan, zoning, and site - specific master plan all assume and allow for the now -inactive Edmonds Crossing project and commercial and mixed -use development. City of Edmonds I Development Services, Planning Division Page 17 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 27 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo The public process could take a variety of forms, such as a communitywide survey and/or one -day charrette. This process should be integrated into the 2024 Comprehensive Plan update and aligned with the visioning for the Downtown Waterfront, consistent with Recommendations 1.13 and 11.A. This recommended public process is expected to result in a redesignating and rezoning of the Unocal Property for open space purposes. If this is the case, the following Recommendations 3.D-F also apply Recommendation 3.113. See Recommendation 3.0 above to determine if this recommendation applies. Consider updating the Comprehensive Plan map to redesignate the Unocal Property from Master Planned Development to Open Space. As documented by the key findings, the Edmonds Crossing project as originally envisioned and planned for is no longer active and there are no alternative development proposals by the property owner. Therefore, the Unocal Property's designation for Master Plan Development is outdated and should be updated. The Open Space designation is appropriate if the City's vision for the property is for ecological restoration and wildlife habitat preservation. The City may adopt findings of fact that the designation change meets Open Space goals and policy because the Edmonds Marsh system and associated uplands property: • provides unique scientific and educational value; • has an abundance of wildlife; • is a scenic natural area adjacent to a highway; • provides major drainage way containing salmonid habitat with significance to Edmonds residents; • consists of wetlands and saltwater estuary; and • already includes passive recreation uses. Lastly, update the Comprehensive Plan's description of the Master Plan Development designation (see Recommendation 1.N). Recommendation 3.E. See Recommendation 3.0 above to determine if this recommendation applies. Consider a City -initiated rezoning of the Unocal Property from Master Plan Hillside Mixed Use (MP2) to Open Space (OS) and prepare a staff report for Planning Board recommendation and City Council approval. The OS zone is appropriate if the City's vision for the property is for ecological restoration and wildlife habitat preservation. The OS zone purpose includes: • "To designate land ... for open space use or which contributes significantly to the open space inventory of the community"; and • "To regulate the use of these lands ... which provide an identifiable link to the city's open space or critical areas inventory." Permitted uses in the OS zone include "conservation areas including forest and wildlife preserves" and "reclamation areas limited to soil, forest, wildlife or watershed." Recommendation 3.F. See Recommendation 3.0 above to determine if this recommendation applies. Prepare an ordinance for the aforementioned Comprehensive Plan amendment and rezone to be adopted simultaneously. This could be integrated into the 2024 Comprehensive Plan update process. City of Edmonds I Development Services, Planning Division Page 18 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 28 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 4 - Edmonds Marsh and Willow Creek Restoration Key Findings The Edmonds Marsh is one of the few urban, tidally -influenced, saltwater estuaries remaining in the Puget Sound area. The marsh is hydrologically connected to Puget Sound through Willow Creek. Before settlement, the marsh was 40 acres and today it is approximately 22 acres. The marsh is publicly accessible on a half -mile of walkways and boardwalks and is popular with bird watchers due to the variety of observed species. Coho salmon and cutthroat trout have a documented presence, and a volunteer -run fish hatchery is located at the southeast area of the marsh. Willow Creek was diverted into an underground pipe in 1962 during the construction of the Port of Edmonds marina, which has since limited fish access to the marsh. The creek currently empties into Puget Sound under Marina Beach Park. The main action needed to restore the Edmonds Marsh is daylighting Willow Creek and improving fish access for juvenile Chinook and other fish species to migrate, rear, and forage in the marsh. The 2016 Parks, Recreation and Open Space Plan estimated a cost of $12 million for the "Daylighting Willow Creek, salmon habitat and stormwater management project." The 2019 Expanded Marsh Concept Design and Hydraulic Modeling study estimated this a cost of $13.6-16.6 million (this estimate does not include additional work outside the scope of that study). City of Edmonds I Development Services, Planning Division Page 19 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 29 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Ipearsection with Dayton St. Outfall Recurrent Flooding onvTarl sT 5� Willow Crock Outfall d WSDOT Stormdrain , / J Outfall �,�'py a °IF ❑ low Creek ID L-D v 4C I— <-- �X J m - PROJECT d O SITE f.ITY PARK 0 Figure 7 - Edmonds Marsh and existing drainage network. The inset photo shows the Willow Creek culvert west of the railroad tracks (Edmonds Parks, Recreation and Open Space Plan). The 2016 Marina Beach Park Master Plan, and subsequent 30% design drawings for the redesigned park, have the creek daylit west of the railroad and emptying into the Puget Sound on the beach. Pedestrian bridges over the creek will discourage human and dog interaction with fish habitat. Reconstruction of the park is estimated to cost $5.6 million. LEGEND PROPDSED FLOOD PROTECTION SfRUCTLPE PROPOSED DAYLIGHT CONTOUR WETLANDRESTORATION RIPARVW BUFFER -- -- — SNCHOMiSH COUNTY CIS PARCELS / UREA. 1.31 ACREB I I DAYLIGHT STREAM I I. .MEANDERING f FISH HABITAT CHANNELAW=M T HAN RETAINING WALL � � AND STREAM CONNECTION EACAVATqLE 7r I r �AT TOE OF SLCPETOE OF SLCPE AREA 274M_RES BNEF RAiWAY eRiTE Figure 8 - Excerpt from October 2019 City Council presentation illustrating daylight alignment alternative #6, 'channel with flood wall or berm" (City of Edmonds) City of Edmonds I Development Services, Planning Division Page 20 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 30 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo East of the railroad, the 2019 study determined that a sinuous channel with a low flow habitat channel, large woody debris, and wetland and riparian buffers will provide beneficial habitat forjuvenile salmon, meet fish -passage criteria, and provide instream and marsh connectivity habitat functions. This channel was illustrated roughly parallel to the railroad tracks (see Figure 8). Stakeholders have expressed interest in moving the creek further away from the railroad tracks than illustrated in conceptual designs. In August 2020, WSDOT communicated to Save Our Marsh that is has no concerns with routing Willow Creek in a new channel across the middle of the Unocal Property if public process, environmental considerations (particularly with regard to remaining contamination), and appropriate compensation lead to that conclusion. The 2019 study considers this possibility, saying: We understand that the City staff and City Council are interested in expanding the Daylight channel and riparian buffer footprint to the fullest extent possible. In this study, the Daylight Project footprint is constrained by the assumption that WSDOT Ferries will use the site for the future Edmonds Crossing ... If the WSDOT Ferries site constraints are later removed, the Daylight Channel alignment can be modified in final design. The one caution with expanding the Daylight Channel is that costs will increase due to increases in excavation, fill, and potential treatment and disposal quantities, as the risks for encountering residual contamination on the site increase with any additional excavation. The 2019 study also found water and sediment quality issues in the marsh and recommends sediment contamination remediation, water quality monitoring, and fecal coliform source studies to restore and improve the marsh health and ecosystem functions. During this project, stakeholders suggested vehicle pollutant runoff from State Route 104 and the Port of Edmonds Harbor Square property are additional challenges to improving the Edmonds Marsh water quality and creating a safe salmon habitat. Relevant Comprehensive Plan Policy See other relevant policies under the Unocal Property section above. Community Sustainability Element Environmental Quality Goal A.1 Ensure that the city's natural vegetation, especially native vegetation, associated with its urban forests, wetlands, and other wildlife habitat areas are protected and enhanced for future generations. Environmental Quality Goal B.1 The City should promote and increase public awareness and pride in its natural areas and wildlife heritage. Special emphasis should be directed toward preserving natural areas and habitats (forests, wetlands, streams and beaches), especially those with native vegetation, that support a diversity of wildlife. Land Use Element Vegetation and Wildlife Goal A. The city should ensure that its woodlands, marshes and other areas containing natural vegetation are preserved... Vegetation and Wildlife Goal B. The city should promote and increase public awareness and pride in its wildlife heritage. Special emphasis should be directed toward preserving the natural habitats (woodlands, marshes, streams and beaches) of the city's wildlife in accordance with the following policies: City of Edmonds I Development Services, Planning Division Page 21 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 31 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo B.1 Establish and maintain a variety of educational and recreational programs and activities for all age levels. B.2 Erect and maintain educational displays that identify some of the more common plants and animals and their ecosystems and habitats, including at streams, beaches, and marshes. B.3 Prevent the unnecessary disturbance of native species and their respective habitats. B.4 Encourage landscaping and site improvement on city -owned property which recognizes value of habitat in overall site design. Community Culture and Urban Design Element Community Culture Goal B. Encourage recreational opportunities. B.1 Encourage public access to significant recreational areas and development of pedestrian friendly connections between areas. B.2 Significant recreational areas would include, but not be limited to: Puget Sound Shorelines, Lake Ballinger, Edmonds Marsh, Yost Park, Lund's Gulch, etc. B.3 Compatible land uses should be made of surrounding areas. B.4 Promote public awareness and recognition of the value of these resources. Utilities Element Storm and Surface Water Management Goal B. To preserve, protect and (where feasible) restore surface water resources to provide beneficial uses to humans, fish, and wildlife. 2016 Parks, Recreation and Open Space Plan Goal 3: Shoreline Use and Access Action plan item 3Y - Develop and implement a master plan to restore the hydrological and ecological connection of Marina Beach Park to the Edmonds Marsh. Goal4: Natural Resource and Habitat Conservation Action plan item 4.1- Consider expanding the function and facilities around the Willow Creek Hatchery to create a more expansive interpretive center that includes the Edmonds Marsh. Recommendations See related recommendations under Section 3 and Section 5. Recommendation 4.A. Continue planning and funding of the Edmonds Marsh and Willow Creek restoration project, including refined cost estimates, engineering, and flood mitigation planning. A collection of projects related to marsh restoration are listed in the Edmonds 2021-2041 Capital Facilities Plan. See also the recommendations regarding flooding and sea level rise in Section 5, and the need to coordinate with a possible Admiral Way overpass under Recommendation TE. Recommendation 4.13. If Edmonds acquires the Unocal Property (see Section 3), update the design options for Willow Creek restoration to fully consider the land, optimize ecological outcomes, and further improve fish habitat. Key considerations include adjacent land uses and potential pollutants, the width of vegetated riparian zones, avoiding potential fish stranding in connected seasonal inundation areas, avoiding residual contamination from site soils, and minimizing additional cost. City of Edmonds I Development Services, Planning Division Page 22 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 32 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Recommendation 4.C. Coordinate with adjacent property owners (Port of Edmonds and WSDOT) on pollutant control to minimize untreated runoff into Edmonds Marsh. This may include capital improvements, enhanced maintenance, orjoint application for grant funding. City of Edmonds I Development Services, Planning Division Page 23 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 33 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 5 - Flooding and Sea Level Rise Key Findings Figure 9 - National Flood Insurance Program Flood Insurance Rate Map showing base flood level in Edmonds (Federal Emergency Management Agency) In Edmonds, sea level rise of 4 inches to 4 feet is expected over the next century, and the intensity of storm surges is expected to increase during this time. Nearly the entire Edmonds waterfront is within the 100-year floodplain. Flood maps were updated by the Federal Emergency Management Agency (FEMA) in June 2020. Base flood elevation (BFE) is the elevation of surface water resulting from a flood that has a one percent chance of equaling or exceeding that level in any given year. The BFE on the Edmonds waterfront is 12 feet above sea level. During a major flood event at BFE, the inundation area would include all waterfront properties along Admiral Way and Railroad Avenue, the ferry terminal, the railroad tracks, Edmonds Station and the transit center, a portion of Edmonds Way/Highway 104, Harbor Square, and part of Salish Crossing. This indicates that a major flood event could pose a risk to human life, property, and the environment. Major flooding would also disrupt a multimodal transportation hub of regional significance. The 2019 Expanded Marsh Concept Design and Hydraulic Modeling study found that without flood mitigation, the Willow Creek daylighting project in combination with extreme king tides, storm surges, and future sea level rise may increase flooding along the railroad, Harbor Square, and State Route 104. City of Edmonds I Development Services, Planning Division Page 24 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 34 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Flood protection berms or floodwalls in these locations will be necessary to reduce flood risks compared to existing conditions. The 2019 study included these elements in the cost estimates, and further noted: We estimated costs for Alternative 6A fflood berms $13.610) and 6B ffloodwalls $16.6M). Flood berms may be feasible but may be more difficult to permit as the floodberms will have increased wetland impacts. Depending on wetland permitting regulations, Project funding sources, and BNSF Railway input, there may be Project regulatory and landowner drivers that could dictate which of these structures is feasible and acceptable, regardless of the Project costs. The Port of Edmonds bulkhead project considered sea level rise during project development. The bulkhead is only being raised six inches to accommodate a grade change. Analysis by the Army Corps of Engineers and the Port determined a taller bulkhead was not necessary because the bulkhead does not support any structures, nor would a taller (and therefore more costly) bulkhead prevent flooding beyond its extents. Relevant Comprehensive Plan and Hazard Mitigation Plan Policy Community Sustainability Element Climate Change Goal C. Assess the risks and potential impacts on both city government operations and on the larger Edmonds community due to climate change. The assessment of risk and potential responses - both in terms of mitigation and adaptation - should evaluate the full range of issues, paying particular attention to those arising from the city's location on Puget Sound. Implementation Action: By 2017, update the City's Hazard Mitigation Plan to reference emerging risks and hazards related to climate change, such as rising sea levels and ocean acidification. Snohomish County Hazard Mitigation Plan, City of Edmonds Annex Table 6-7 Hazard Mitigation Action Plan Matrix. ED-23. Sea level rise mitigation planning, including assessment of risk and strategies to address. Lead department. Development Services, Public Works, Parks and Recreation. Cost. Low. Timeline: Short term. Recommendations Recommendation S.A. Update the Comprehensive Plan with more specific policies that address the City's preparation for and response to future major flooding events and long-term sea level rise in the Downtown Waterfront area. Utilize the latest information on flood levels and sea level rise projections. Sea level rise should be factored into the updated Downtown Waterfront vision (see Recommendation I I .A). Recommendation 5.1113. Using the latest sea level rise projections and FEMA flood data, update the assessment of the physical, economic, and social impacts of long-term sea level rise in the Downtown Waterfront area and the necessary actions or projects to protect lives, public infrastructure, and private property. This may support an update to the 2015 Snohomish County Hazard Mitigation Plan and City of Edmonds Annex. Communicate findings on sea level rise to the Edmonds community. Recommendation 5.C. Continue planning for flood mitigation as an essential component of the Edmonds Marsh and Willow Creek restoration project (see also Recommendation 4.A.). This includes refined cost estimating and determining the preferred location for flood berms and/or floodwalls that most effectively protect lives and property. The construction and operation of flood berms and City of Edmonds I Development Services, Planning Division Page 25 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 35 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo floodwalls should seek to minimize environmental disturbances and takings of private property. Coordinate with BNSF Railway, the Port of Edmonds, and WSDOT on planning, design, and potential cost sharing. Additionally, adequate sizing of the stream crossing near the Puget Sound shoreline would improve hydrologic connections to the marsh and the flood water storage functions it naturally provides. Given the modeled increases in flood event frequency and magnitude, site improvements in floodplains should be scaled accordingly. City of Edmonds I Development Services, Planning Division Page 26 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 36 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 6 - Railroad Double -Tracking Key Findings BNSF Railway owns and operates railroad tracks along the eastern shoreline of Puget Sound, and a single-track segment runs through the Edmonds waterfront. Spurred by the business and operations efficiency needs of freight service and the reliability of passenger service (operated by Sound Transit and Amtrak), BNSF plans to add a second track to this segment. The project is anticipated to begin construction in 2024. According to Sound Transit, a second passenger platform on the west side of Edmonds Station is not planned since passenger service is infrequent and unidirectional. The project will fill the 2-mile gap between other double -track segments roughly between Edmonds Street in the north to Point Wells in the south. The second track will be located 15 feet east of the current track within BNSF right-of-way. Some site work has already occurred to prepare for the project, including embankment work on the west edge of the Edmonds Marsh and stockpiling of ties. BNSF Railway owns the land at the two railroad street crossings in the waterfront area, located at Main Street and Dayton Street, and the City possesses easements for the street crossings. Legal research on case law and property documents determined there is no evidence that the City of Edmonds has acquired fee simple title to the underlying property. BNSF has not shared any project plans with the City. MAKERS conducted a preliminary analysis of physical impacts based on the minimum track clearances for railroads being 8 feet horizontal and 23.5 feet vertical. The analysis shows Railroad Avenue should not be affected by the project. At Edmonds Station the existing ADA wheelchair ramp (mini -high platform) will be removed and the passenger platform and stationhouse at Edmonds Station are likely to remain in place. Figure 10 - Visualization of second railroad track (MAKERS) City of Edmonds I Development Services, Planning Division Page 27 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 37 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo BNSF is not planning any major mitigation work associated with the project. Sound Transit plans to rebuild the wheelchair ramp and make refinements to the existing platform edge, and the agency believes BNSF may provide track protection/flagging during these platform improvements. Relevant Comprehensive Plan Policy Land Use Element Noise Pollution Goal A. A.3 It is the policy of the city to minimize noise created by the railroad. Recommendations See related recommendations under Sections 7 and 8. Recommendation 6.A. Create additional Comprehensive Plan policies in the Transportation Element that support mitigation of railroad traffic and crossing closures. Recommendation 6.B. Apply to the Federal Railroad Administration to establish a full _quiet zone. Wayside horns are currently in place which still have sound impacts on surrounding land uses. A full quiet zone greatly reduces train horns sound impacts in exchange for upgrading the safety of at -grade crossings with additional gates, signals, and other measures. Local jurisdictions usually need to provide funding for the safety upgrades. Applying for a quiet zone requires the assistance of a specialized consultant. Recommendation 6.C. Coordinate with Sound Transit and BNSF to minimize construction impacts from the second track project and to expediate improvements to Edmonds Station that maintain passenger accessibility and capacity. City of Edmonds I Development Services, Planning Division Page 28 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 38 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 7 - Waterfront Emergency Access Key Findings The waterfront and marina area west of the railroad have special emergency access considerations because the train tracks isolate it from the rest of Edmonds. On several occasions, train traffic has delayed ambulances or required first responders to cross through stopped trains on foot to treat/evacuate individuals needing care. In the period July 2010 to December 2015, emergency calls to locations west of the railroad track numbered 277 (including 72 advanced life support calls, 14 fires, and eight water rescues). This is an average of one call per week. Snohomish County Fire District No. 1 also receives 40-50 calls per year that requires accessing their emergency boat that is moored at the Edmonds Marina. Figure 11 - A freight train passing through the Dayton Street crossing (photo by Bill Anderson) Observed and projected train volumes vary widely (see Figure 12). Currently, approximately 40 trains of all kind pass travel through Edmonds daily. Various studies and plans estimate up to 80 trains per day in the future, with freight volumes being highly dependent on economic trends. A related factor is the average length of freight trains, which has been steadily increasing over time nationwide. The number and length of trains has implications for "gate down" time at the Dayton Street and Main Street crossings, which currently average about two minutes per train. In one 30-day period in 2015, Washington State Ferries tracked ten ferry delays ranging from three to 15 minutes, each attributed to railroad crossing issues. City of Edmonds I Development Services, Planning Division Page 29 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 39 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Year Average Daily Trains Sources/Notes Observations 2008 48 Washington State 2010-2030 Freight Rail Plan (2009) 2012 37 2016 Edmonds Waterfront Access Study, page 18, citing 2012 City of Edmonds video recordings Note: This study found average gate down times of 1.33 hours daily and 2.16 minutes per train. 2012 40 Edmonds Resolution No. 1280 (2012) 2014 36-43 2016 Edmonds Waterfront Access Study, pages 1 and 18 Projections/Forecasts 2028 80 Washington State 2010-2030 Freight Rail Plan (2009) 2035 82 PSRC Economic Evaluation of Regional Impacts for the Proposed Gateway Pacific Terminal at Cherry Point (2014) Note: This projection includes 18 trains associated with the cancelled Gateway Pacific Terminal project. 2035 64 Washington State Rail Plan (2014) 2040 44-76 Washington State Rail Plan (2020), range of low/moderate/high growth scenarios Figure 12 - Observed and projected train volumes in Edmonds The 2016 Edmonds Waterfront Access Study presented a near -term recommendation to implement an Edmonds Street Emergency Access Overpass, which was further studied in the January 2019 Edmonds Street Waterfront Connector Alternatives Analysis Report. The concept was a pedestrian -bike bridge that could also be used for emergency vehicle access and ferry loading during train blockages. The Connector project was in early design when, in June 2019, the Edmonds City Council voted to cancel the project due to public opposition to potential impacts to the waterfront's natural features. Reliable emergency access for the waterfront west of the railroad tracks remains unresolved. Relevant Comprehensive Plan Policy Transportation Element Policy5.6 Design streets to accommodate emergency service vehicles. Improve emergency service access to the waterfront especially to west side of train tracks when there is a train crossing. Recommendations See related recommendations under Section 6. Recommendation 7.A. For planning purposes, assume 60-80 trains per day will pass through Edmonds by the end of the 2024-2044 planning period. To better understand current train traffic, perform the ferry traffic study described by Recommendation 2.13. Recommendation 7.113. Update the Comprehensive Plan transportation policy 5.6 to clarify that emergency service access to the waterfront includes considerations for both vehicular and non - vehicular access. Recommendation 7.C. Street closures due to train crossings are a continued problem, and emergency service in the waterfront area west of the railroad tracks remains at risk of disruption. Consider updating the Comprehensive Plan Land Use Element, Community Sustainability Element, City of Edmonds I Development Services, Planning Division Page 30 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 40 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo and Capital Facilities Plan with policies to support enhanced emergency management services in this area. Emergency considerations include fire and medical response, police response, boating and marine incidents, and natural disaster response (such as flooding). Further, the City should take such actions to implement the policies. Emergency management planning and investments must be conducted collaboratively with organizations such as the Port of Edmonds, BNSF Railway, Washington State Ferries, Snohomish County, and Snohomish County Fire District No. 1. Opportunities for capital facilities studies west of the tracks include a new staffed fire station or ambulance/paramedic facility, a staffed police kiosk or mini -precinct, and/or unstaffed storage of emergency response vehicles/equipment (which was considered in the 2016 Edmonds Waterfront Access Study). Transportation options that should be studied include a new pedestrian -only overpass (see Recommendation 7.D) and/or a new vehicular emergency vehicle roadway (see Recommendation 7.E). Recommendation 7.113. Update the Comprehensive Plan Transportation Element and Capital Facilities Plan with policies to support planning, design, and funding of a pedestrian -only overpass across the railroad tracks. Further, the City should take such actions to implement the project. This is consistent with the "near -term" recommendation from the 2016 Edmonds Waterfront Access Study for a midblock pedestrian overpass, estimated to cost $6-8 million (not adjusted for inflation). To minimize costs and aesthetic impacts, the City should plan for the overpass to have a compact footprint with switchback stairs and elevators (no ramps or escalators) and clearances no greater than required by the railroad. There are several opportunities to site the overpass on public property, illustrated conceptually in Figure 13. Planning considerations include span length and subsequent cost, pedestrian safety, ease of use, staging areas for emergency responders, and changes to circulation systems (parking, transit center, sidewalks, etc.) depending on where structures are placed. Figure 13 - Conceptual midblock pedestrian overpass locations, generally on public property, between Dayton Street and Main Street (MAKERS) City of Edmonds I Development Services, Planning Division Page 31 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 41 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Figure 14 - Concept for a midblock pedestrian overpass at Edmonds Station (2016 Edmonds Waterfront Access Study) Recommendation 7.E. If vehicular emergency access remains desirable by the City and emergency response agencies, update the Comprehensive Plan Transportation Element and Capital Facilities Plan to support planning, design, and funding of an emergency vehicle roadway and overpass at the south end of the waterfront. Further, the City should take such actions to implement the project if it acquires the Unocal Property (see Section 3 for related recommendation). An "Admiral Way Overpass" was evaluated in the 2016 Edmonds Waterfront Access Study, receiving positive public feedback and scoring high for human and natural environment criteria, and was screened out after a second level evaluation. The estimated cost is $10 million for the overpass and $25-31 million for the full project (not adjusted for inflation). Cost assumptions could likely be updated around land acquisition needs, new parking, and hazardous material removal. The concept should be revisited because the route could utilize an existing roadway on the Unocal site, and it would not have the aesthetic or environmental concerns that were raised with the Edmonds Street Waterfront Connector. By hugging the base of the hillside below Point Edwards, the route is mostly out of public view, does not occupy a beach shoreline, and it would not be designed for ferry traffic. The route could be open for non -motorized use during non -emergency times, which would enhance pedestrian and bicycle access between the waterfront and residential areas south of Downtown. The design may need to be coordinated with the Edmonds Marsh and Willow Creek restoration (see Recommendations 4.A and 4.B). City of Edmonds I Development Services, Planning Division Page 32 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 42 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Figure 15 - Conceptual route for a vehicular emergency access connection (MAKERS) Q City of Edmonds I Development Services, Planning Division Page 33 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 43 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 8 - Edmonds Station Access Projects and Sound Transit Service Key Findings During regular service, the Sounder North commuter rail line operates eight daily trips from Everett to Seattle with an intermediate stop in Edmonds. Pre -pandemic, the route carried about 1,500 passengers daily. Service has been reduced to four daily trips during the pandemic. Inset Map 13 sq ��o f OP Edmonds Q Station Q c mPsst W Dayton St 0 0 Dayton St Edmonds Station improvements recommended for further study 1. Washington State Ferries parking lot 2. Salish Crossing parking lot 4. Downtown pedestrian lighting improvements 8. Additional bus bays at Edmonds Station 10. Additional on -demand bicycle lockers 11. Wind and rain screening at Edmonds Station 12. Bus transfer timing improvements (not mapped) Figure 16 - Excerpt of planned access projects at Edmonds Station (Sound Transit MAKERS) Sound Transit proposed several Edmonds Station access and mobility improvements in the Sound Transit 3 funding package, which voters approved in 2016. The value of the improvements is estimated at $25 million and includes parking improvements, pedestrian lighting, additional bus bays, bike lockers, and additional weather protection on the station platform. One of the parking improvement projects under consideration is reconfiguring or repainting the WSDOT parking lot on James Street so that it fits more parking spaces. Due to financial challenges, Sound Transit's mobility/access projects around Edmonds Station are delayed by about ten years, with completion expected in 2034 instead of 2024. Relevant Comprehensive Plan Policy Land Use Element Downtown/Waterfront Area Short Term Actions 3. Improve the existing downtown rail station between Dayton and Main Streets in order to better accommodate inter -city passenger and commuter rail service, including provisions for bus and commuter traffic as well as pedestrian connections to the waterfront and downtown... Transportation Element Policy6.8 Form a multimodal system that links ferry, rail, bus, auto, and non -motorized travel providing access to regional transportation systems while ensuring the quality, safety, and integrity of local commercial districts and residential neighborhoods. Recommendations Recommendation 8.A. In the Downtown/Waterfront Activity Center section of the Land Use Element and in the Transportation Element, acknowledge the Edmonds Station access improvements that are planned by Sound Transit and support their implementation as soon as possible. See related Recommendation 6.C. City of Edmonds I Development Services, Planning Division Page 34 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 44 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 9 - Bus Service Key Findings Community Transit operates four bus routes that stop at Edmonds Station. Three of the routes are local and one is an express service to Downtown Seattle. The agency is currently updating its Long Range Plan and network vision, with adoption targeted for late 2022. By 2024, the agency is planning a major service restructure in the area to leverage the new light rail stations opening at the nearby Lynnwood and Mountlake Terrace transit centers. As part of the restructure, local bus service in Downtown Edmonds will increase 30-50%with most lines running every 15 minutes. Additional layover space is necessary to accommodate increased bus service but has not yet been located or designed (Sound Transit proposes new bus bays by the year 2034, see Section 8). Adjacent properties would be most desirable for this purpose and buses cannot be routed across the railroad tracks. The current local routes 116 and 130 connect people in Downtown Edmonds to the transit centers in Lynnwood and Mountlake Terrace. City of Edmonds staff report community interest in improved bus service/speed for these connections. In 2022 Community Transit began construction on a bus rapid transit (BRT) route, known as the Swift Orange Line, running between Edmonds College to Lynnwood, Ash Way, and Mill Creek. The route will open by mid-2024 and connect to the Lynnwood light rail station. Community Transit anticipates a future extension of the Orange Line westward to the vicinity of Downtown Edmonds, possibly using 196th Street. Currently, the extension is conceptual and unfunded, and it requires a BRT-compliant terminal facility. Also, CommunityTransit's draft 2050 Long Range Plan includes a "transit emphasis corridor" along SR-104 between Downtown Edmonds and the Mountlake Terrace light rail station, with potential 15-minute service all day on weekdays. Legend Local Community Transit Routes Express Community Transit Routes Funded Swft orange Line BRT (opening 2024) IIHMA M, Conceptual extenson of Swift Orange Line BRT(unofficial) llllilllluw Conceptual bus transit emphasis corridor 0 downtown Edmonds f�11 Sound Transit light rail route II and stations (opening 2024) Ldmands Station/ a Edmonds College Ferry Terminal Transit Center3v 71 a �ruunl� Ei Phln St o nor, Boer, = dpl%J1NdY D M O N DunrhSr i �IIIIIII���51t11111111111UIIIIIIIINf {{ 244th 51 Aurora Village O Transit Ce Swih Lin Blue Line N h' 101 115 130 King County Metro L4 Figure 17 - Edmonds transit map (Community Transit, MAKERS) 1, 2o4thL. N� 298m sr % Lynnwood Transit Center 2121h S! { era 0��� siJ Mountlake Ier — IIgh School ` = MOUNTLAKE E F 228th St TERRACE INIIII 23sths= — BRIER nuntlake Terrace C�n1r'? SNOH©M KING 511 512 513 Kina County Metro City of Edmonds I Development Services, Planning Division Page 35 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 45 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Relevant Comprehensive Plan Policy Land Use Element Downtown/Waterfront Area Goal B. Continue to plan for and implement improvements in the downtown/waterfront area that resolve safety conflicts while encouraging multi -modal transportation and access to the waterfront. B.3 Provide a more efficient transportation system featuring improved bus service, pedestrian and bicycle routes, and adequate streets and parking areas. Transportation Element Policy 5.77 Encourage the provision of a bus rapid transit system or other high -capacity frequent transit service along SR 704. Policy6.8 Form a multimodal system that links ferry, rail, bus, auto, and non -motorized travel providing access to regional transportation systems while ensuring the quality, safety, and integrity of local commercial districts and residential neighborhoods. Recommendations Recommendation 9.A. Continue discussions with Community Transit and Sound Transit about the location and design of the additional bus bays that are planned at Edmonds Station. Consider a new policy in the Transportation Element that promotes that these new bus bays include a BRT-compliant terminal facility to facilitate future delivery of the Orange Line (e.g., see the transit design guidelines from the National Association of City Transportation Officials). Recommendation 9.13. Consider a new policy in the Transportation Element that promotes City actions to accelerate the delivery of the Swift Orange Line extension to Downtown Edmonds and/or frequent service to the Mountlake Terrace light rail station. The policy should support discussions with WSDOT about options for future bus service enhancements along SR-104 and SR-524. Avenues of City support could include, but are not limited to, City funding for planning and construction, joint grant applications, expedited right-of-way permitting/easements (e.g., for stations), transit spot improvements (e.g., bus lanes and signal priority), and proactive community discussions of preferred alignments. Recommendation 9.C. Continue coordinating with Community Transit generally on bus service revisions and transit facility planning to maximize multimodal connectivity, transit ridership, and pedestrian safety. City of Edmonds I Development Services, Planning Division Page 36 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 46 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 10 - Port of Edmonds Key Findings The Port of Edmonds owns and manages approximately 33 upland acres as well as a small boat harbor and marina, with space for 1,000 boats. A variety of services and marine -related businesses are located on the Port's properties. The Port is rebuilding part of the bulkhead at the marina. The reconstruction is expected to be completed in 2022 and is estimated to cost $15-20 million. The Port's new administration building is in the permitting phase and estimated to be completed by 2024. After this current series of work, the Port of Edmonds does not have plans for major infrastructure or development work. Figure 18 - Port of Edmonds project sites (MAKERS) The Port recently considered building a parking structure at the corner of Admiral Way and Dayton Street. The current surface parking lot there has approximately 100 spaces for a mix of commuters and Port tenants. Due to the site's zoning (Commercial Waterfront with a 30 feet height limit), a parking structure could not be built large enough on the site to create a worthwhile increase in the current number of spaces, so the Port is not proceeding with the concept. Relevant Comprehensive Plan Policy Land Use Element DowntowniWaterfrontArea Long Term Actions. 3. Coordinate circulation and public parking with Port development. Economic Development Element Economic Development Goal A.7 Continue to partner with business leaders, organizations and community members, such as the Port of Edmonds, Edmonds Chamber of Commerce, etc., to leverage business opportunities and to solicit and address feedback to enhance the business environment. Recommendations Recommendation 10.A. As they arise, continue coordinating infrastructure and development planning efforts with the Port of Edmonds. City of Edmonds I Development Services, Planning Division Page 37 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 47 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 11 - Land Use and Economic Development Key Findings Land use and economic development considerations in the waterfront study area include several large properties. One such property is Harbor Square, a commercial site owned by the Port of Edmonds. The site is under a contract rezone dating from 1980 and updated in 1998. The site has several 1-2 story buildings containing a mix of commercial uses, including a hotel, athletic club, retail shops, medical clinics, and professional offices. In 2012 the Port of Edmonds applied for an amendment to the Edmonds Comprehensive Plan to adopt a Harbor Square Redevelopment Plan with a vision for mixed - use development. The redevelopment plan intended to further the Port's statutory directive of "engaging in economic development programs" to benefit constituents of the Port District as well as the overall Edmonds community with an expanded tax base, increased downtown activity, and promotion of transit -oriented development. LEGEND veaiaaacass ane P.r,e IIIII[ Paetl �snorien sbiaCo and O um,gevia,a Reaidenual hliege ....... Primary yetleshan �eu[e � neirge use a • • • • • Am%a^'%s4eel P. ed, Figure 19 - Left. Concept for the 2012 Harbor Square Redevelopment Plan (Port of Edmonds). Right: Harbor Square today, looking north from the Edmonds Marsh (MAKERS). A specific architectural design was not part of the Harbor Square amendment. The Edmonds Planning Board approved the Port's amendment with conditions, and the Edmonds City Council rejected the application due to public opposition to potentially taller buildings on the site and a desire to do a comprehensive review of the entire waterfront area. Today the Port considers Harbor Square to be economically stable and there are no other plans for major improvements or redevelopment. Another major property is the Salish Crossing commercial center. The center is fully leased, and the owner has no plans for major improvements or redevelopment. The non-profit Cascadia Art Museum, located at Salish Crossing, draws approximately 13,000 visitors per year. Harbor Square and Salish Crossing are located between SR-104 and the railroad tracks, which is the area subject to Land Use Element short term action #4 that calls for a joint public/private development and activities such as infrastructure planning, property acquisition, parking management, and City of Edmonds I Development Services, Planning Division Page 38 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 48 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo development incentives and guidelines or modifications to land use regulations (such as zoning or master planning). The Edmonds Waterfront Center, a two-story community facility owned by the non-profit Edmonds Senior Center, opened in July 2021. Along with hosting social, health, and recreation programs and a coffee shop, the venue is available to the public for events. The project also rebuilt a portion of the waterfront walkway. There is an approximately 300-feet long gap in the recreational waterfront walkway that runs between Main Street and Dayton Street. The completion of this "missing link" has been delayed by litigation since at least 2017. The litigation is a result of disagreement between the Ebb Condominium homeowner association and the City of Edmonds about the use of an easement. Following a recommendation by City staff and the Citizens Economic Development Commission, in February 2021 the City Council amended the CW zone to allow hotels. The most likely prospect for a hotel in the study area is limited to adaptive reuse due to limited land availability and the CW zone height limit. Relevant Comprehensive Plan Policy Land Use Element Edmonds Crossing Short Term Actions (page 53) 4. Plan for future joint public/private development of the area between SR-104 and the railroad tracks. Planning activities could potentially include infrastructure planning, property acquisition, parking management development incentives and guidelines or modifications to land use regulations (such as zoning or master planning)... Downtown/Waterfront Districts. In addition to the goals and policies for the downtown/waterfront area, the Comprehensive Plan Map depicts a number of districts in the downtown/waterfront area. These districts are described below. Downtown Mixed Commercial. To encourage a vibrant downtown, first floor spaces should be designed with adequate ceiling height to accommodate a range of retail and commercial uses., with commercial entries at street level. Buildings can be built to the property line. Building heights shall be compatible with the goal of achieving pedestrian scale development. The first floor of buildings must provide pedestrian weather protection along public sidewalks. Design guidelines should provide for pedestrian -scale design features, differentiating the lower, commercial floor from the upper floors of the building. The design of City of Edmonds I Development Services, Planning Division Page 39 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 49 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo interior commercial spaces must allow for flexible commercial space, so that individual business spaces can be provided with individual doorways and pedestrian access directly to the public sidewalk. When the rear of a property adjoins a residentially -designated property, floor area that is located behind commercial street frontage may be appropriate for residential use. Where single family homes still exist in this area, development regulations should allow for 'live-work"arrangements where the house can accommodate both a business and a residence as principal uses. Downtown Mixed Residential. In this area, commercial uses would be allowed but not required (i.e. buildings could be entirely commercial or entirely residential, or anything in between). Height and design of buildings shall conform to the standards of the Downtown Mixed Commercial District. Buildings facing the Dayton Street corridor should provide a pedestrian -friendly streetscape, providing pedestrian amenities and differentiating the ground floor from upper building levels. Downtown Mixed Residential. In this area, commercial uses would be allowed but not required (i.e. buildings could be entirely commercial or entirely residential, or anything in between). Height and design of buildings shall conform to the standards of the Downtown Mixed Commercial District. Buildings facing the Dayton Street corridor should provide a pedestrian-friendlystreetscape, providing pedestrian amenities and differentiating the ground floor from upper building levels. Downtown Master Plan. The properties between SR-104 and the railroad, including Harbor Square, the Edmonds Shopping Center (former Safeway site), and extending past the Commuter Rail parking area up to Main Street. This area is appropriate for design -driven master planned development which provides for a mix of uses and takes advantage of its strategic location between the waterfront and downtown. Any redevelopment in this area should be oriented to the street fronts, and provide pedestrian -friendly walking areas, especially along Dayton and Main Streets. Development design should also not ignore the railroad side of the properties, since this is an area that provides a "first impression " of the city from railroad passengers and visitors to the waterfront. Art work, landscaping, and modulated building design should be used throughout any redevelopment project. Shoreline Commercial. The waterfront, west of the railroad tracks between the public beaches and the Port (currentlyzoned CW). Consistent with the City's Shoreline Master Program, this area should allow a mix of public uses, supporting commercial uses, and water -oriented and water -dependent uses. Building heights shall be compatible with the goal of achieving pedestrian scale development while providing incentives to encourage public view corridors. Roof and building forms should be an important consideration in design guidelines for this area, because of its high sensitivity and proximity to public open spaces. Redevelopment should result in singular, landmark buildings of high quality and sustainable design which take advantage of the visibility and natural environment of their location, and which contribute to the unique character of the waterfront. Pedestrian amenities and weather protection must be provided for buildings located along public walkways and street fronts. Downtown/Waterfront Area Goal A. A.4 Enhance shoreline features to include a full spectrum of recreational activities, park settings, natural features (such as the Edmonds Marsh), and marina facilities. Improve public access to the shoreline and link waterfront features by establishing a continuous esplanade along the shoreline. The esplanade will be constructed over time through public improvements and Shoreline Master Program requirements placed on private development. Downtown/Waterfront Area Short Term Actions 7. Continue implementing a continuous shoreline walkway (boardwalk/esplanade) from Brackett's Landing North to Point Edwards. Work with the Port of Edmonds to integrate recreation and marina functions into the long term plan. Economic Development Element Economic Development Goal B. Revitalize and enhance the city's business districts, balancing the needs for housing, commerce and employment development with neighborhood character, amenities and scale. City of Edmonds I Development Services, Planning Division Page 40 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 50 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo B.4. Continue to foster and enhance the economic vitality of Downtown Edmonds, including retention and growth of existing businesses, attraction of new businesses, and promotion of appropriate in -fill redevelopment... B.6. Promote enhanced connectivity between the Edmonds Center of the Arts and the Downtown business community to maximize synergy and economic impacts. Economic Development Goal E. Expand and enhance the tourism sector to attract outside spending to help fuel the local economy. E.7. Support efforts to enhance the hospitality infrastructure, including potential for an increased number and/or wider range of lodging establishments Downtown... Community Culture and Urban Design Element Urban Design Goal B: Downtown/WaterfrontActivity Center. Design objectives and standards should be carefully crafted for the Down town/Waterfront Activity Center to encourage its unique design character and important place -making status within the city. B.9 Building Height. Create and preserve a human scale for downtown buildings. Building frontages along downtown streetscapes should be pedestrian in scale. Zoning Standards The table below summarizes key zones in the waterfront area. As noted in the recommendations below, the consultant team finds that the building height limits in most zones and the prohibition on residential use in the CW zone are a constraint to economic development on the Edmonds waterfront. Permitted Examples of Major Zones in the Residential Permitted Non - Waterfront Study Area Height Density Limit Uses Residential Uses Commercial Waterfront 30 feet None None Marine -oriented (CW) service, retail, office, hotels General Commercial (CG) 35 feet None None Most non-residential with Harbor Square contract uses rezone ............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... Other Harbor Square contract rezone requirements include minimum 25 feet setbacks from streets and the marsh, required screening of service and storage areas, and requiring all development to receive Architectural Design Board approval. Community Business (BC) 25-30 feet* 3.0 FAR max. Single-family Retail, restaurants, and multifamily offices, services Downtown Mixed 30 feet None Single-family Retail, office, service, Commercial (BD2) and upper -story hotels multifamily Downtown Mixed 30 feet None Residential (BD4) Multi Family (RM-1.5) 25 feet 1,500 sq. ft. lot Single-family None area per unit and multifamily min. Multi Family (RM-2.4) 25-30 feet* 2,400 sq. ft. lot area per unit min. * Maximum height depends on roof design, see Title 16 EMC for details. Figure 21 - Summary of waterfront area zoning standards City of Edmonds I Development Services, Planning Division Page 41 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 51 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Historic Sites Sites on Edmonds Register of Historic Places ..,.,, Rezanes Contract Rezones (contractual requirements apply) Single Family RS-6 Single Family, 6,000,q. ft. fats Multf Family RPh-3 Multi Family, 3,(?m sq. ft. of lot area per unit RM-2.4 Multi Family, 2,400 sq. ft. cf lot area per unit - RM-1.5 Multi Family, 1,500 sq. ft. of lat areo per unit Downtown Business BD1 Downtown Retail Core BD2 Downtown Mixed Commercial BD3 Downtown Convenience Commercal BD4 Downtown Mixed Residential BD5 Downtown Arts Corridor OR Office -Residential Commercial - BC Community Business CG General Commercaf Waterfront - CW Commercrai Waterfront Marina ® MP1 Master Pian Hiilside Mixed Use MPZ Master Plan Hil(ssde Mixed Use Other = P Public Use �'ej OS Open Space 500 300 0 600 1,200 Fcet N W E S A R-t979 4 _ 0 nonds w arsh a¢ i a o 0 �Hin '1' Figure 22 - Excerpt of Edmonds zoning map in the waterfront area (City of Edmonds) Recommendations The consultant team observes that the Edmonds Waterfront and Downtown are special places in Puget Sound. To be sure, there are other waterfront towns, but Edmonds stands out with its historic character, human -scaled development pattern, and walkable waterfront. These attributes appear to drive Edmonds' economic health (and economic development) in as much as people want to live, work, and visit in such a community. Recommendation 11.A. As part of the 2024 Comprehensive Plan update, conduct public A e engagement for the purpose of crafting an updated vision for the Downtown Waterfront area. The vision should clearly articulate the community's desires for the type and intensity of desired land uses for key properties within the framework of current market realities (building height is a significant controversy in the area, but the community's vision for the level of density and vibrancy on the Downtown Waterfront is unclear). Since Edmonds Crossing is inactive, the updated vision should also reorient the community's desires for how the existing ferry terminal is integrated into the Downtown Waterfront. Similarly, the updated vision should explain how the Port of Edmonds, the waterfront parks, the Unocal Property, Edmonds Station, and other major waterfront properties and amenities are best related and planned for in the future. Sea level rise should also be considered. This should include an update to the Downtown Master Plan land use designation and description that currently applies to Harbor Square, Salish Crossing, and the rail/bus transit center (see page 56 of the Comprehensive Plan). See related Recommendations 1.13, 3.C, 5.A, and 11.E. Recommendation 11.113. Based on land use patterns on other Pacific Northwest waterfronts, it is reasonable to believe that there may be demand for new hotel rooms on the Edmonds waterfront. Given the unique potential of a beachfront hotel, the City should adopt Comprehensive Plan policies City of Edmonds I Development Services, Planning Division Page 42 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 52 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo that support working to attract a hotel operator and associated uses (restaurant, water -related, and/or other commercial). Hotels can anchor waterfront destinations and their customers typically have higher spending power than local permanent residents of an area, which will help support nearby commercial space in the area. The City should explore a range of strategies to attract a hotel, including first conducting a hotel feasibility study, developing a targeted incentives package, and identifying and potentially acquiring an appropriate site, among others. Recommendation 11.C. Consider adopting Comprehensive Plan policies and zoning updates that N facilitate allowing a wider mix of land uses of all types in the Commercial Waterfront (CW) zone. As n demand for many office and retail uses ebbs (due to work -from -home and online shopping trends), o greater flexibility is needed for properties to find economically stable and viable uses that will in turn support employment and commercial activity in the waterfront and wider Downtown area. Recommendation 1 LID. The height limitations in the waterfront area (generally three -stories) are � likely to lock most buildings in place as they are today for the coming decades. Given that most o development is likely to take place via adaptive reuse, the City should consider adopting E Comprehensive Plan policies that support an adaptive reuse incentive program, which can provide w technical or financial assistance to property owners for design and engineering assessments; fa4ade, o E systems, or interior improvements; or other building improvements. Good local examples are in Vancouver and Tacoma. 0 Recommendation 11.E. Where new development or adaptive reuse projects are proposed adjacent to the railroad, encourage buildings to incorporate soundproofing that mitigates the impacts of railroad traffic. This could occur through updates to zoning standards, the locally adopted building E code, or education of permitting staff and applicants. Design standards should require that railroad- 0 facing frontages avoid blank walls, however, and should incorporate artwork, landscaping, and modulated building design to provide a welcoming gateway to railroad passengers and visitors. Recommendation 11.F. The height limitations in the waterfront area (generally three -stories) are a, likely to lock most buildings in place as they are today for the coming decades. If the City is interested in encouraging redevelopment or infill development of surface parking lots, consider adopting ii Comprehensive Plan policies that support exploration of the tradeoffs of modest and strategic height or density bonuses in exchange for desired land uses and public benefits/amenities, and which Y consider view corridors. c o Recommendation 11.G. Continue the legal efforts to finish the waterfront walkway. 1= Recommendation 11.H. Conduct a comprehensive parking study of the Downtown Waterfront area between SR-104 and the shoreline to understand current utilization, find opportunities for o consolidated parking and shared parking, and analyze possible changes to parking regulations for off- 'D street and on -street parking. The study should consider differences between residential and non- w r residential uses and the effects of priced parking. The study should include a comparison of the a amount of surface parking between Edmonds and similar downtown waterfronts such as, but not limited to, Anacortes, Port Angeles, Bremerton, Port Townsend, and Kirkland. r Q Recommendation 11.1. Consider changing the Marina Beach Park land use designation from Master Planned Development to Open Space and rezoning it from Commercial Waterfront to Public Use. This would more accurately accommodate the use and purpose of the park as a public recreation site. The City of Edmonds I Development Services, Planning Division Page 43 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 53 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo redesignation and rezoning could potentially occur alongside similar actions for the Unocal Property (see the recommendations in Section 3). City of Edmonds I Development Services, Planning Division Page 44 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 54 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Section 12 - Sources Documents Document No. 8005060198 and Reference No. R-1979-4, Agreement and Covenant Constituting a Contract Rezone, (1998), City of Edmonds and Port of Edmonds. Ordinance No. 3411 and Reference No. R-2002-38, Covenant Regarding Use and Future Development 3 U) (Contract Rezone), (2002), City of Edmonds and Union Oil Company of California. Washington State 2010-2030 Freight Rail Plan (2009), Exhibit 3-12, Washington State Department of r Transportation. o Final Vehicle Reservation System Predesign Study (2010), Washington State Ferries. Edmonds City Council Resolution 1263 (2011). Edmonds City Council Resolution 1280 (2012). c E Memorandum: Cherry Point Coal Export Facility Rail Operations (2012), for City of Edmonds Public w Works by Gibson Traffic Consultants, Inc. E Washington State Rail Plan: Integrated Freight and Passenger Rail Plan 2013-2035 (2014), Figure 4.3, a� Washington State Department of Transportation. o Economic Evaluation of Regional Impacts for the Proposed Gateway Pacific Terminal at Cherry Point (2014), for the Puget Sound Regional Council by The PFM Group, Parametrix, and HR&A Advisors. E E Letter (January 8, 2014), from Washington State Department of Transportation to City of Edmonds. 0 Snohomish County Hazard Mitigation Plan, Volume 2, City of Edmonds Annex (September 2015), a� Snohomish County. Edmonds Parks, Recreation and Open Space Plan (2016), City of Edmonds. S c Letter (March 17, 2017), from Washington State Department of Transportation to City of Edmonds. U- Letter (April 17, 2017), from City of Edmonds to Washington State Department of Transportation. as Y Sea Level Rise in Edmonds, WA: Expected Impacts & Recommended Actions (2017), project report by c ° r- Disaster Reduction and Emergency Planning Studio, ENVS 476, Western Washington University. a New or Expanded Elements of the Port of Edmonds Master: East Side. Harbor Square Redevelopment Plan (2014), Port of Edmonds. o E Edmonds Waterfront Access Study(2016), for the City of Edmonds by Tetra Tech, Inc. w Expanded Marsh Concept Design and Hydraulic Modeling Report(2019), for the City of Edmonds r Public Works Department by Shannon and Wilson, Inc. E 2020 Service Implementation Plan, (November 2019), Sound Transit. Q Washington State Ferries 2040 Long Range Plan (2019), Exhibit 5-6, Exhibit 5-5, Exhibit 5-6, Washington State Department of Transportation. City of Edmonds I Development Services, Planning Division Page 45 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 55 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Washington State Rail Plan 2019-2040 (2020), Washington State Department of Transportation. Marina Beach Park & Willow Creek Daylighting Project (2020), PowerPoint by City of Edmonds Parks, Recreation & Cultural Services. Guide to the Quiet Zone Establishment Process (May 2020), Federal Railroad Administration. https://ra i I roads.d ot.gov/sites/fra.dot.gov/files/2020-05/Qu ietZo neB rochu re.pdf National Flood Insurance Program Flood Insurance Rate Map, panel 1292 of 1575 (revised June 19, 2020), Federal Emergency Management Agency. Comments to Save Our Marsh, document by Washington State Department of Transportation (August 13, 2020). City of Edmonds Comprehensive Plan (November 17, 2020), City of Edmonds. 2021 Session Laws of the State of Washington, Chapter 333, Substitute Senate Bill 5165, Transportation Budget, §213(5). https:Hleci.wa.gov/CodeReviser/documents/sessionlaw/2021 pam4.pdf#page=29 Media Edmonds City Council pulls plug on beleaguered Harbor Square project (October 8, 2013), My Edmonds News. Council votes to kill controversial Edmonds Waterfront Connector project (June 19, 2019), My Edmonds News. Council agrees to zoning change that will allow hotels on Edmonds waterfront (February 9, 2021), My Edmonds News. BNSF Railway confirms plans to double track Edmonds in 2023, but key questions remain (September 6, 2021), My Edmonds News. Video Calls Note: Consultant firm names below are abbreviated. Full names are: MAKERS architecture and urban design; Leland Consulting Group; and The Watershed Company. Video calls with Washington State Department of Transportation and Washington State Ferries, City of Edmonds, and MAKERS (October 12 and November 23, 2021). Video call with Tulalip Tribes, City of Edmonds, MAKERS, and Watershed (October 18, 2021). Video call with Sound Transit, City of Edmonds, and MAKERS (October 17, 2021). Video call with Port of Edmonds, City of Edmonds, MAKERS, and Leland (October 19, 2021). Video call with Community Transit, City of Edmonds, and MAKERS (October 19, 2021). Video call with Save Our Marsh, City of Edmonds, MAKERS, and Watershed (October 19, 2021). Video call with JSH Properties, City of Edmonds, MAKERS, and Leland (October 20, 2021). Video call with BNSF Railway, City of Edmonds, and MAKERS (October 22, 2021). City of Edmonds I Development Services, Planning Division Page 46 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 56 5.A.a Edmonds Waterfront Issues Project - Key Findings and Recommendations Memo Video call with Lund Consulting, City of Edmonds, MAKERS, and Watershed (November 3, 2021). Emails Email from Edmonds staff (October 7, 2021). Email from BNSF (October 15, 2021). 0 Email from Sound Transit (November 24, 2021). a U) w m Email from Washington State Department of Transportation and Washington State Ferries (November y 22 and 23, 2021; February 8, 2022). 0 Email from Long Bay Enterprises Inc. (December 16, 2021). L m Email from Washington State Department of Transportation (February 8, 2022). 0 Email from Community Transit (February 11, 2022). o E Email from Washington State Department of Ecology (April 11, 2022). w Websites 0 E Unocal Edmonds Bulk Fuel Terminal 0178, Washington State Department of Ecology. g https://apps.ecology.wa.clov/cisp/Sitepacle.aspx?csid=5180 0 Edmonds Marsh, City of Edmonds Parks, Recreation & Cultural Services. https:Hedmondswa.gov/services/parks rec/discovery programs/explore discovery places/edmon ds marsh E E Traffic Statistics, Washington State Department of Transportation, Washington State Ferries. 0 https://wsdot.wa.gov/travel/wash i nciton-state-ferries/a bout-u s/wash i ngton-state-ferries- planning/traffic-statistics SalmonScape, Washington Department of Fish and Wildlife. https://apps.wdfw.wa.gov/salmonscape/map.html = ii The Train Horn Rule and Quiet Zones, Federal Railroad Administration Y https://raiIroads.dot.gov/highway-rail-crossing-and-trespasser-programs/train-horn-ruleguiet- zones/train-horn-rule-and-quiet m ca c 0 E w r c m E R r r Q City of Edmonds I Development Services, Planning Division Page 47 Edmonds Waterfront Key Findings and Recommendations Memo_22-0422 Packet Pg. 57 9.A Planning Board Agenda Item Meeting Date: 04/27/2022 Extended Agenda Staff Lead: Kernen Lien Department: Planning Division Prepared By: Kernen Lien Background/History N/A Staff Recommendation Review Extended Agenda Narrative Extended Agenda attached. Attachments: April 22, 2022 Extended Agenda Packet Pg. 58 9.A.a Items and Dates are subject to change PLAHM CoOOARD Extended Agenda April 22, 2022 May 2022 May 11 1. Development Activity Report 2. 2024 Comprehensive Plan Update Scoping 3. Wireless Code Update Introduction May 25 1. Equitable Outreach Plan 2. Salmon Safe Certification June 2022 June 8 1. Wireless Code Update Public Hearing June 22 Pending 1. Implementation / code updates concerning trees and the UFMP For Future 2 Climate Action Plan update and public outreach Consideration 2022 3. Housing policies and implementation (incl Multifamily Design) 4. Comprehensive Plan update preparation and gap analysis 5. Subdivision code updates 6. Community Development Code Amendments / Re -Organization 7. Neighborhood Center Plans & implementation (esp. 5 Corners) 8. Low impact / stormwater code review and updates 9. Sustainable development code(s) review and updates 10. Further Highway 99 Implementation, including: a. Potential for "urban center" or transit -oriented design/development strategies b. Parking standards 11. Parkland Acquisition 12. ADA Transition Plan 13. CIP/CFP r a Packet Pg. 59 items ana t)ates are 9.A.a o change Recurring 1. Election of Officers (1" meeting in December) Topics 2. parks, Recreation & Cultural Services Department Reports & Updates- First meeting after previous quarter (4/13, 7/13, 10/12, 1/11/23) 3. Joint meeting with City Council —April or as needed 4. Development Activity Report Packet Pg. 60