20180403 City CouncilEDMONDS CITY COUNCIL APPROVED MINUTES
April 3, 2018
ELECTED OFFICIALS PRESENT
Michael Nelson, Mayor Pro Tem
Kristiana Johnson, Councilmember
Adrienne Fraley-Monillas, Councilmember*
*(participated by phone)
Thomas Mesaros, Councilmember
Diane Buckshnis, Councilmember
Dave Teitzel, Councilmember
Neil Tibbott, Councilmember
ELECTED OFFICIALS ABSENT
Dave Earling, Mayor
ALSO PRESENT
Noal Leonetti, Student Representative
CALL TO ORDERIFLA,G SALUTE
STAFF PRESENT
Phil Williams, Public Works Director
Patrick Doherty, Econ. Dev & Comm. Serv. Dir,
Shane Hope, Development Services Director
Rob Chave, Planning Manager
Rob English, City Engineer
Ed Sibrel, Capital Project Manager
Rosa Fruehling-Watson, City Attorney's Office
Scott Passey, City Clerk
Jerrie Bevington, Camera Operator
Jeannie Dines, Recorder
The Edmonds City Council meeting was called to order at 7:00 p.m. by Mayor Pro Tern Nelson in the
Council Chambers, 250 51h Avenue North, Edmonds. The meeting was opened with the flag salute.
2. ROLL CALL
City Clerk Scott Passey called the roll. All elected officials were present with the exception of Mayor
Earling.
APPROVAL OF AGENDA
COUNCIL PRESIDENT PRO TEM BUCKSHNIS MOVED, SECONDED BY COUNCILMEMBER
TEITZEL, TO APPROVE THE AGENDA IN CONTENT AND ORDER. MOTION CARRIED
UNANIMOUSLY.
4. APPROVAL OF CONSENT AGENDA ITEMS
COUNCIL PRESIDENT PRO TEM BUCKSHNIS, MOVED, SECONDED BY COUNCILMEMBER
TIBBOTT, TO APPROVE THE CONSENT AGENDA. MOTION CARRIED UNANIMOUSLY. The
agenda items approved are as follows:
APPROVAL OF COUNCIL MEETING MINUTES OF MARCH 27, 2018
2. APPROVAL OF CLAIM CHECKS
Edmonds City Council Approved Minutes
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5. PRESENTATIONS
1. CEMETERY HOARD ANNUAL REPORT
Jerry Janacek, Chair, Cemetery Board, explained the Cemetery Board is an advisory committee
comprised of local volunteers who organize two public events each year, the Memorial Day observation
and the Walk Back in Time open house, celebrated on the third Thursday of July. In addition to the 7 board
members, there are at least 100 volunteers on Memorial Day and 5-6 volunteers for the Walk Back in Time.
A special volunteer at the Memorial Day annual ceremony was Olivia Olson, the VFW essay winner in
2017 and will be again in 2018. Another special volunteer is Dale Hoggins who has been involved in
planning the 2017 and 2018 Memorial Day ceremonies and since 2014 has been involved in discussions
regarding the future location of the memorial monument that was recently moved to the Edmonds Memorial
Cemetery.
Chair Janacek highlighted the Board's 2017 accomplishments:
• Mapping project
o Sustainable partnership with Western Washington University
o Developed new marker system that allows family members to locate a grave site
• City completed sidewalk and fencing on the north side of cemetery
o Allows citizens to safely walk along the north side of cemetery
o Improvement made via removal of stumps, fixing tilting grave markers and cleaning up parts
of the cemetery
Relocated memorial monument to cemetery
o Board Member Betty Lou Gaeng has written extensively about the monument in a book,
"Etched in Stone."
o A special dedication of the monument will occur at this year's Memorial Day ceremony
Everyone is invited to attend the Memorial Day ceremony; Mayor Earling will provide comments during
the ceremony. This year's ceremony will honor veterans of the wars in Afghanistan and Iraq. More than
750 veterans are buried in the Edmonds Cemetery. The Board welcomes donations; during the past year, a
local citizen, Carolyn Henry, donated a bench in memory of her husband and a son who are buried at the
cemetery.
Chair Janacek expressed appreciation for the work of City staff including Cindi Cruz, Rich Lindsay and
Cliff Edwards, the Cemetery Sexton. One of example of his dedication, Mr. Sexton volunteers to be present
into the late hours on Halloween, keeping roving bands of "what do we do now" teenagers from causing
damage in the cemetery. The Board will be looking at expanding the columbarium and will be talking with
city staff and citizens about the City's vision 2020 project. Eventually the existing columbarium, the first
of three phases, will be filled and the Board would like to have it expanded.
Councilmember Mesaros complimented the Cemetery Board for their leadership and the other volunteers
who work on Memorial Day. As a veteran, Memorial Day is an inspiring event that the citizens enjoy. Chair
Janacek commented 500-600 people often attend the event.
2. UPDATE OF EDMONDS STREET WATERFRONT CONNECTOR PROJECT
Public Works Director Phil Williams introduced Capital Projects Manager Ed Sibrel. Mr. Sibrel explained
this is one of three briefings during the course of this project. The project is currently in design development.
He reviewed:
• Purpose and Need
o Map of waterfront and surrounding area
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• Unreliable access to the entire waterfront area by emergency responders
■ Ferry loading and unloading
■, Access to the waterfront area by people driving, walking or biking
• Ferry, rail and bus connections
o Map identifying high tide line, highly protected area, project site, railroad, parking, ferry dock,
railroad crossing, pedestrian walkway, emergency vehicle route to waterfront
o Provide reliable and efficient access to the waterfront for emergency responders
• Between 2010 and 2015, there were 277 emergency 911 calls, 171 required basic life
support and 72 required advance life support, 14 fires, 8 water rescues, and 40-50 marine
rescue boat responses.
• Typical three minute response time increases to over 30 minutes when a blockage occurs
o Create a continuous pedestrian walkway along the waterfront
o Help pedestrians, bicycle riders and emergency responders avoid street -level conflicts with
BNSF rail lines
o Be designed using community input and inspiration
o Access issues are a critical element for the Edmonds Street Waterfront Connector
Rich Schaefer, Tetra Tech, reviewed:
• Map of 51 Initial Concepts
• Edmonds Waterfront -at -Grade Cross Analysis
o Held 4 public meetings (in -person and online) attended by over 750 community members
o Held 21 Advisory Task Force meetings
o Gave 4 City Council briefings
o Received 124 written comment cards, emails or surveys with over 450 specific points of
feedback
o Featured in 42 local media articles
0 51 initial concepts narrowed to 11 alternatives explored in-depth to reach recommended
solution
Alternatives Evaluation Summary Matrix
o How the 11 alternatives addressed:
• Emergency access by foot
■ Emergency vehicle access
• Emergency vehicle access and ferry load/offload
o Edmonds Street Overpass selected as recommended alternative, now called the Edmonds Street
Waterfront Connector
Aerial image of project site
o Edmonds Street intersection with Sunset Avenue
o Challenge is to come off that intersection with bridge over the railroad providing enough
clearance to meet the railroad's requirements, turn south parallel to the beach trying to not
encroach on the beach any more than necessary and landing near the restroom in Brackett's
Landing North Park
o Goal: Avoid building a bridge any higher than necessary
Project schedule
o Continuing broad engagement
o Evaluate six concepts, reduce to two and make a recommendation by end of summer
Bridge experiential elements
o Entrance
o Spanning Structure
o Landing area
Concept 01 — Sculptural Column Bridge
o Integration of natural form — Connections to the Sound
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o Girder structure below deck
o Distinct overlooks
• Concept 02 — Driftwood Bridge
o Re-creation of the Edmonds bluff — Spirit of Place
o Form is driven by key views of the water and mountains
o Low to moderate expense girder structure
• Concept 03 — Kelp Ribbon Bridge
o Form inspired by kelp beds & sea grass
o Girder (large beam structure) with sinuous alignment
o More frequent columns, thinner structural depth
• Concept 04 — Intersecting Wave Bridge
o Form derived from waves
o Steel through girder — structure above walkway
• Concept 05 — Boats in the Harbor Bridge
o Plays off marina forms & traditional fishing structures
o Truss — long span steel structure — moderate economy
• Concept 06 — Cast Net Bridge
o Singular element
o Form inspired by fishing net hoops
o Steel arch — long main span — moderate expense
• How we will evaluate alternatives
o Landing experience
o Visual
o Reliable emergency access
o Pedestrian user experience
o Bicycle user experience
o Cost
o Neighborhood compatibility
Mr. Sibrel commented a project of this size includes heavy-duty funding responsibilities. At approximately
$30 million, this will be the largest public works project Edmonds has ever undertaken and will require
securing outside funding. Typically projects of this type receive up to 80% of funding from outside funding
sources. He reviewed the funding outlook:
Overall Project Cost Estimate $29,885,000
Current Commitments
•Washington State $ 7,200,000
*City, BNSF, Sound Transit, Port of
Edmonds, Community Transit $480,000
Funding, Gap $22,205,000
Outstanding Funding Applications
+INFRA Grant $16,926,000
•FMSIB Grant $3,000,000
Councilmember Johnson recalled before the first phase began, there was a great deal of discussion about
the need. She understood the need was pedestrian access and fire/first aid. Now the needs include ferry boat
offloading and the possibility that an incident would require direct access. She requested the evaluation
differentiate between the basic need and the full-blown need. A pedestrian bridge would not cost $30
million but that much may need to be spent to address all the needs that have been described. For example,
what would be needed just to get bicycle, pedestrians and first aid trucks over the overpass and possibly
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consider rotating a fire truck to a temporary location. She wanted to be able to look at a total project and
alternative costs. Although staff indicates funding may be available, as a policy and decision -making board,
the Council needs to understand the cost relative to the components and needs of the project.
Mr. Williams responded staff and the consultants will do their best to develop information to answer that
question. With regard to aid cars, one of the services this project seeks to provide is to get aid cars on the
other side of the tracks in an emergency. The difference in loading, structural members, permitting, design
costs, etc. to accommodate an aid car versus a fire truck is a very small, subtle difference in terms of cost.
A pedestrian bridge would certainly be less expensive, but the primary purpose is to get an aid car across
the tracks. A structure that would accommodate an aid car would also allow pedestrians and bicycles to
cross.
Council President Pro Tem Buckshnis agreed this began as emergency access for pedestrians; there was
never discussion of aid cars or ferry loading/offloading. She agreed with Councilmember Johnson about
differentiating between the two. She noted the Port of Everett is constructing a pedestrian bridge to Grand
Avenue Park and wanted to know the cost of that project.
Councilmember Buckshnis commented the public comments included in the packet indicate a lot of people
are not in support of the project; she did not support it due to the funding and felt something cheaper could
be done on the other side. As the project will help WSDOT and BNSF, she suggested they should provide
more funding. Mr. Williams answered there is an expectation that BNSF will participate in funding; exactly
how much, how they will value the project and what improvements they will realize, are unknown. There
is a typical practice that up to 5% of project costs could be paid for by BNSF, but they generally only
participate if the project grade separates a crossing which this project does not propose to do; Dayton and
Main will remain at -grade crossings. BNSF has shown considerable interest in the project and have
provided some funding for phases 1 and 2, knowing there would not be grade separation of any crossings.
The stage is set to ask BNSF to consider assisting with funding. He anticipated the $6 million provided by
the State was due in part to the benefit the project will provide to ferries. He acknowledged the project
would not provide grade -separated crossing but when a problem occurs, a ferry could be offloaded and
possibly the next ferry loaded. If the emergency will last longer than one boat, he anticipated ferry service
would be halted.
Council President Pro Tem Buckshnis commented loading/offloading of ferries was never conceived which
she opined would further congest that area. She inquired about the environmental impact of the overpass
on the dive park and the beach. Mr. Williams referred to the map that identified property that be used
landward of the Ordinary High Water Mark (OHWM) and the highly protected area waterward of the
OHWM and explained construction could occur waterward of the OHWM but the cost of permitting,
mitigation, etc. begin to increase. The hope is to be able to build this without encroaching into that area
which should have no impact on the dive park. The overpass may provide dive park users an easier way to
reach the park.
Council President Pro Tem Buckshnis asked if the project will affect the parking lot. Mr. Williams answered
Brackett's North has limited parking; the parking will not be increased. As vehicles would not be using the
overpass, he did not expect the project to exacerbate the parking issue. Mr. Sibrel commented if the design
process finds the project will impact the park in any way, the City is required to mitigate those impacts.
Councilmember Teitzel noted the presentation referred to aid car access for emergencies on the waterfront,
however, it is possible a fire truck could be dispatched. He asked if the connector would be robust enough
to accommodate a fire truck. Mr. Sibrel answered yes. Councilmember Teitzel anticipated a scenario where
there were pedestrians on the overpass to include possibly people in wheelchairs when a fire truck was
dispatched over the connector. He asked if there would be enough room for a person in a wheelchair to get
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safely out of the way. Mr. Sibrel said the intent is to design the bridge to accommodate that; the roadbed
will be 16 feet wide, the largest fire truck is 10 feet wide. There are also plans to incorporate pedestrian
landings on the way down as well as some type of advance warning so that if a fire or aid truck is dispatched,
pedestrians would be provided some advance warning.
Councilmember Teitzel said in reviewing the citizen input regarding the designs, most express a preference
for a low -profile bridge. However, some of the designs displayed include masts 20-30 feet tall which he
found contrary to the public input. Mr. Schaefer explained the concepts were developed prior to public
meetings. The intent was to develop a wide range of ideas that included different structural concepts,
features and impressions. The concepts elicited exactly what they wanted to hear — preferences and dislikes.
He agreed most people do not want an iconic structure but something subtler.
Councilmember Fraley-Monillas asked when public hearings at the Council would occur. She understood
there have been public meetings and Planning Board interactions but she recalled being told it would come
to the Council for a public hearing. Mr. Williams referred to the schedule and the blue diamond in August
2018 when a preferred alternative would be selected. The schedule also includes City Council updates in
June and July. The intent would be to bring the project to Council and seek an endorsement of a
recommendation or modified recommendation from the Council in early August.
Councilmember Fraley-Monillas asked if it would be up to the City Council to direct staff to have a public
hearing at the Council level. Mr. Williams said this schedule does not incorporate a public hearing per se;
when the Council is considering a recommendation on an alternative, there would be opportunity for public
comment or a public hearing. Councilmember Fraley-Monillas requested a public hearing be scheduled.
Councilmember Fraley-Monillas anticipated the citizens will reach a good decision regarding the design.
She was very concerned about the streets in that area and the neighbors and has spoken to a number of them
who have concerns. Their concerns are alleviated if the overpass will only be used in emergent situations.
She recalled the crossings had been closed twice in five years for suicides on the tracks. The citizens living
in that area understand they may have cars through their neighborhood if something that tragic occurred.
However, there is concern that the overpass would be used in instances such as a long train delaying the
ferry. She asked if the overpass would be opened to ferry unloading for emergent purposes only.
Mr. Williams answered it would only be used for emergent purposes; a long or slow train not be a reason
to open the structure to onload or offloading. Use by the ferry would be for an accident such as
Councilmember Fraley-Monillas described, a train/vehicle accident, something that would stall a train and
block the two crossings for an extended period of time. He anticipated if a ferry was already on its way
from the Kingston dock, it would dock and the vehicles would be offloaded utilizing personnel to direct
traffic as there is no signal system. Depending on the length of the blockage, there would be 240 cars
waiting to load which could also be done but would be less likely. After that, WSF has no interest in
continuing service in that manner and would discontinue the Edmonds -Kingston run until the issue was
resolved. The ability to offload and possibly load one ferry still provides value to WSF.
Mr. Williams explained the other use by public services is 24/7 access for emergency vehicles. Regardless
of the presence of a train, emergency vehicles would come directly west from the downtown fire station to
access the waterfront for calls originating on the waterfront.
Councilmember Fraley-Monillas said she did not think neighbors would object to that. If the priority during
a blockage is first response, she anticipated response could be delayed while a ferry was being
offloaded/loaded. Mr. Williams agreed if an aid car used the structure, traveled south through Brackett's
North parking lot to a response further south such as Senior Center or Marina Beach Park, it would intersect
offloading ferry traffic. WSF has personnel who stop ferry traffic to allow pedestrians to cross and
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anticipated they would do the same for an aid car or the second person in an aid car could get out and stop
traffic. Councilmember Fraley-Monillas commented it was difficult to visualize it all that happening at
same time although fortunately there are not a lot of emergency calls on the waterfront due to the limited
population. Mr. Williams commented there were 277 emergency responses over a five-year period and 40-
50 Marine One responses which equates to approximately twice a week response to the waterfront on
average.
Councilmember Tibbott expressed appreciation for the work that has been done, noting he learned a lot
from the public comments and the responses provided tonight. He noted the public expressed a desire for a
subtle design that preserve views, goes below the bluff as soon as possible, has a pedestrian/bicycle amenity
for views over Puget Sound and a waterfront walkway attraction. He asked if consideration had been given
to developing a written policy prior to full construction related to criteria for using the ramp. Mr. Williams
said that has not been done yet. He asked if Councilmember Tibbott's question was getting a permit to use
the structure for an event. Councilmember Tibbott clarified his question was related to how frequently it
would be used for offloading/loading ferries. His understanding was that would be a fairly rare occurrence
and on those rare occurrences, it would be one round trip to alleviate a situation, possibly once a year. He
asked if it would be sensible to have a written policy so the City, WSF, BNSF, etc. know the expectations.
Mr. Williams agreed it may be beneficial to describe the circumstances under which it would be used and
ask all the relevant parties to agree. Mr. Schaefer said the process has included the Police Department, Fire
Department, WSF, etc. and the creation of a list of operation rules which could be fleshed out and vetted
with all the stakeholders.
Councilmember Tibbott envisioned using the bridge and not having to navigate Main Street could save an
emergency vehicles 1-2 minutes to reach the waterfront. He relayed his understanding the Brackett's
Landing North restroom would be replaced. Mr. Williams answered that is likely but will be determined
once a concept is selected and detailed design begins. The space for the landing is approximately where the
restrooms are. The restrooms are old and need to be replaced anyway. A few creative ideas have been
developed with regard to how to rearrange the park to create the same amount of park space and not take
up prime space with restrooms. Councilmember Tibbott summarized there would be no fewer parking
spaces but no more parking and if the restroom were eliminated, it would be replaced. Mr. Williams agreed.
Councilmember Tibbott observed the INFRA and FMSIB grants are federal grants that the City's federal
lobbyist is assisting with. Mr. Sibrel agreed. Councilmember Tibbott observed those grants are dedicated
to transportation and crossing projects like this and cannot be used for housing or to improve a park. Mr.
Sibrel agreed.
Councilmember Tibbott commented even though the project is expensive, it is significant less than other
cities have spent recently on 2-lane elevated bridges over the railroad tracks. This is an elegant solution to
a potentially difficult situation. If the City is able secure federal grants to meet that need, it is a viable
solution. He preferred the subtle designs that used natural materials and make the structure more interesting
and part of a waterfront walkway connectivity that would be very interesting to the City.
Councilmember Johnson referred to Mr. Williams' comment that the intent was for the overpass to be a
24/7 emergency access, commenting that was the first time she has heard that and did not think the Council
had agreed to that. She acknowledged this was a very exciting project, a chance of a lifetime to manage a
multi -dimensional project and Tetra Tech and Parametric have done other large complex projects, but the
planning assumptions seem to be missing. The expectation that this is 24/7 lights and sirens access to the
waterfront may not be compatible with the community values. It may be appropriate for advanced life
support or during a blockage, but it was never the City Council's intent that this be full-time emergency
access. The initial intent was pedestrian and emergency access but that has morphed. She suggested the
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expectations, planning assumptions, expected contributions, etc. of the stakeholders and administrative
members of the City be written down and verified to ensure a smooth process.
Councilmember Mesaros commented it would be helpful have someone from South Snohomish County
Fire & Rescue make a presentation to the Council regarding how they currently access the waterfront, how
that would change with the new emergency access and whether it was important to have 24/7 access. He
assumed they currently travel down Edmonds, turn left on Sunset Avenue and turn right on Dayton or Main
depending on the location of the emergency. The connector would actually limit emergency vehicles in the
public area; instead of going down Sunset, etc. and disturbing more people, emergency vehicles would use
the flyover. Mr. Williams agreed the Fire Department could be invited to make a presentation or to provide
a memo. Councilmember Mesaros preferred a presentation in the event Councilmembers had questions. He
noted there was adequate time to have that discussion as a preferred alternative will not be selected until
August.
Council President Pro Tern Buckshnis agreed with Councilmember Johnson, the Council was never told
the overpass would be used 24/7 by emergency vehicles. She commented the people on Sunset and 2"d
Avenue have already put up with what has gone on recently and she wanted more details and plans so the
Council is aware rather than surprised.
6. AUDIENCE COMMENTS
Luke Distelhorst, Edmonds, President, Friends of the Edmonds Library, asked for a show of hands of
those in the audience who were present in support of the Edmonds Library; numerous people raised their
hands. He was recently disappointed to see certain Edmonds officials seeking to erode public support for
the Sno-Isle levy proposition. Spreading confusion in the minds of Edmonds voters jeopardizes crucial
services not only in our community, but also the other 22 branch locations throughout Snohomish and Island
counties. The Edmonds branch and the services it provides are not only inseparable from the larger whole
the Sno-Isle Libraries System, they cannot be replicated or valued independently. For instance, 20% of the
items checked out at the Edmonds Library come from other branches. At the core of the Sno-Isle library
services is the mission of serving all citizens; to provide a community doorway to reading, resources, and
lifelong learning, and a center for people, ideas, and culture. At the Edmonds Library you will see students
collaborating, babies and toddlers at story times with their parents, people of all ages at STEM, arts, culture,
and business programs, and of course everyday citizens utilizing a wide range of free resources that the
library provides. You would also see the evolving role that libraries play in our community. Addressing
socio-economic disparity and serving a range of demographic groups with composure, libraries and their
staff are on the front line of engaging the widest range of citizens. The Sno-Isle system is a source of
empowerment to diverse groups in our community. No matter your background or the state of your bank
account, every person has equal access to all the resources and learning opportunities of public libraries.
Failing to support our public libraries will disproportionately affect some of our most vulnerable citizens.
Mr. Distelhorst continued, the Edmonds Library and its staff are top notch. The library has more programs,
new equipment and resources, and an excellent location to tie into the city's thriving arts and entertainment
scene, which contributes $50 million dollars per year in economic impact to our community. The Sno-Isle
levy proposition has received YES endorsements from Congressman Rick Larsen, the mayors of Mukilteo,
Arlington, Stanwood, Coupeville and Darrington; five Snohomish County Council Members, including the
Edmonds representative; the Island County Commission chair, various state and city council representatives
and the YMCA and United Way of Snohomish County. In this context, he found the public silence of
Edmonds city councilmembers troubling and requested councilmembers publicly express their support for
our excellent library system, the vital services it provides in our communities, and the Sno-Isle levy
proposition.
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Tom Mayer, Edmonds, explained the purpose of his comments was to respond to statements made by
Councilmember Teitzel and Finance Director James in a recent edition of My Edmonds News. According
to several sources, his home's value was approximately double of an average home value in Edmonds; he
assumed that meant he paid about twice as much in property taxes as the average homeowner. In the words
of Councilmember Teitzel, he was a victim of his own success. If he pays twice as much, should he expect
twice as much city services, or pay half as much for Parks & Recreation program fees; no, that was not
what he expected. Citizens live in a country that believes in promoting the general welfare as stated in the
preamble of the constitution; the public library is a wonderful example of promoting the general welfare.
He was supportive of his tax dollars being used to help children in Darrington learn to love books and
reading at their library's preschool story hours, to enable students of all ages in Oak Harbor to gain access
to library research and materials, or to make computers available to senior citizens in Edmonds unable to
afford their own. Those who are paying more to help our less fortunate neighbors should feel privileged; it
is the price of living in an enlightened and compassionate society.
Carmen Rumbaut, Edmonds, expressed support for the Sno-Isle Library levy as a library is one of greatest
gifts a community can give to its self. She also supported relooking at the use of single use plastic straws,
explaining plastic straws are difficult to recycle because they are so tiny. Recycling centers use conveyor
belts and air to sort materials, plastic straws are lost in that process which is why they are not recyclable.
All the plastic ever made is still around, it does not biodegrade, it only gets broken into only smaller bits
and people end up breathing and eating plastic. A 2014 French study found oysters have a lower
reproductive rate when exposed to plastic in the water and a 2014 University of Glasgow study found crabs
take in microplastics through respiration that end up being retained in their bodies for up to 3 weeks.
Burning plastic creates toxic dioxides. Seattle's ban on plastic straws included a voluntary strawless month
in September 2017 in which 200 retailers participated. According to Strawlessoceans.org, that month
permanent removed 2.3 million single use plastic straws. Even starting with that in Edmonds would be a
great help.
Dianna Maish, Edmonds, expressed her support for the levy. Councilmember Teitzel, Chair of the Council
Finance Committee, raised three questions regarding the Sno-Isle Edmonds Library, 1) taxes collected for
the library exceed Sno-Isle's investment in the library, 2) the library location at 651 Main Street may not
be the highest and best use of the site and a Highway 99 location has been mentioned, and 3) the library
may be obsolete over time. She offered a different perspective on these concerns. With regard to taxes
collected, everyone pays taxes for services they not use such as schools, medic and fire response, road
repairs on street they do not drive; however, those services add to the overall value of the quality of the
community. The library levy is proportionate to individual property taxes and the property values in
Edmonds are generally higher than more rural areas. The total levy amounts for property owners are slight
given the value. A property accessed at $500,000 pays $190/year for Sno-Isle; with passage of the levy,
that will increase to $235 or an increase in 2019 of only $45/year. This will allow the Edmonds Library to
continue the level of service patrons now enjoy, maintain hours of operation, retain excellent staff, sustain
the cost of new materials, technical upgrades, and routine maintenance on the facility. Second, the highest
and best use of the property is more than the financial profitability, tax proceeds and zoning. She questioned
how the value of the experience of individual attention to patrons' needs, face-to-face support and a public
space for bringing people together could be determined. Edmonds prides itself on its walkability, links to a
variety of amenities. She summarized there is no possibility of the library becoming obsolete; it is much
more than circulating materials.
Emily Paynich, Edmonds, expressed support for the Sno-Isle library levy, commenting her family are
lifelong library fans and use the library several times a month. She requested a show of support from the
City Council to continue the gem of the community center that is the library. As a member of the Edmonds
Neighborhood Action Coalition (ENAC), she expressed support for Edmonds continuing to be a leader in
environmental causes. Edmonds was the first city to ban single use plastic bags and suggested the City
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continue to show its leadership by banning plastic straws and possibly plastic utensils. She submitted a
flyer that could be provided to neighborhood restaurants who may be amenable to make this position change
for the environment and encourages them to learn the facts about plastic straws, the impact they have on
the delicate ecosystem and alternatives.
Audrey Paynich, Edmonds, a student at Edmonds Heights K-12, who was doing a project on marine
pollution, explained it is a very big issue. The ecosystem is very important with its trees, oceans and
waterways, but they are being polluted by straws and utensils. Plastics degrade into microplastics which
are eaten by animals and people who eat animals also then eat microplastic. If Edmonds would become
straw free, it would be very helpful to everyone.
Laurel Ehrlich, Edmonds, a member of ENAC, a volunteer for the climate change and environment group,
and representing the campaign, The Last Straw in Edmonds. There is too much plastic in the waters; straws
are always in the top ten of items found in beach cleanups. Straws are an easy item to do without and there
are plastic straw alternatives including straws made from bamboo or metal. Before moving to Edmonds,
she volunteered hundreds of hours for the National Marine Mammals Stranding Network in the Florida
Keys where she saw firsthand what happens to marine wildlife when plastic ends up in the water. They
rescued manatees entangled in plastic fishing line, rescued stranded dolphins and whales and as a
photographer on the necropsy team, she witnessed large amount of plastic in whales' stomachs. She recalled
a photo of a turtle having a plastic straw removed from its nostril; over 50% of all sea turtles have been
found to have ingested some type of plastic. Critically endangered resident orcas need clean, trash -free
waters to survive. Deceased orcas have been found with stomachs full of plastic causing them to starve to
death. Eight million tons of plastic are dumped in our oceans every year. By 2050 there will be more plastic
in the oceans than fish. Banning plastic straws may seem like a small gesture, but it is a start. After educating
everyone about plastic straws and reducing their use, Edmonds can tackle another plastic problem and
develop a solution to single use plastic water bottles. She suggested visitors could be provided a reusable
water bottle with Edmonds' logo and local business sponsors and the City locate water bottle filling stations
in the downtown area. She urged the City to follow the lead set by the Strawless in Seattle campaign
sponsored by LonelyWhale.org and help Edmonds be a true environmental leader.
Chris Walton, Edmonds, expressed support for the Edmonds Library and the Sno-Isle levy and concurred
with the previous speakers' comments. As a senior citizen living on fixed income, he totally supported the
possibility he may have to pay even more taxes due to the incredible importance of the library to the
community. Next, he referred to the recent cost estimate for the senior center that was about $6 million
higher than expected. He was in total support of the redevelopment of the senior center but that increase
seems extraordinarily large, making him question the bidding process and whether adequate consideration
was given in the bids for normal cost increases. That and seeing what has happened in Seattle with the
streetcar project, he feared the Edmonds connector project, currently estimated at $30 million, would
increase to $40-50 million.
7. PUBLIC HEARING
PUBLIC HEARING ON PLANNING BOARD RECOMMENDATION TO AMEND ECDC
23.40.220(C)(8): ALLOWED ACTIVITIES
Planning Manager Rob Chave explained the allowed activities section of the code includes a provision for
doing invasive species removal to protect and/or restore critical areas. The code currently includes a
threshold, if the removal of invasive species exceeds 1500 square feet in a 3-year period, a consultant study
is required. Due to a concern raised by the Council that this requirement could be a detriment/barrier to
community groups or non -profits doing restoration work, it was forwarded to the Planning Board for
consideration and recommendation. The Planning Board's recommendation was to add the following
provision to the vegetation removal section:
Edmonds City Council Approved Minutes
April 3, 2018
Page 10
"For activities intended to protect or restore habitat in wetlands or fish and wildlife habitat
conservation areas, vegetation removal under this section may exceed the 1,500 square foot limitation
if..
i. The activity is proposed and managed by a non-profit or other organization, approved by the
Ciiy, that has demonstrated expertise and experience in the restoration or invasive removal
activity; and,
ii. The project sponsor provides a specific proposal identifying the scope and location of the
project, provides for project supervision, and includes a monitoring and inspection schedule
acceptable to the City and approved by the appropriate City department. "
Mr. Chave explained this allows an organization that has done this type of work in the past, can demonstrate
they know what they're doing and that they have a plan for what they are doing, to do a
restoration/enhancement activity without hiring a consultant. This amendment gives the City the
opportunity to encourage appropriate restoration projects and provides assurance it will be done right. After
the public hearing, staff recommends the Council direct the City Attorney to an draft ordinance for approval
on the Consent Agenda.
Mayor Pro Tern Nelson opened the public participation portion of the public hearing.
Joe Scordino, Edmonds, said he has been working with students at Edmonds-Woodway High School who
have done restoration projects in Edmonds. He approached the City Council last September to point out the
problem with the ordinance and their ability to do a restoration on private property. The 1500 square foot
in 3 years threshold was restrictive and raised concern about their ability to continue restoration efforts and
build on the community effort that began on the Holy Rosary project. He would like to see that continue in
Edmonds, it raises environmental consciousness as well as awareness of how activities on their property
affects steams. His earlier request to the Council was for an exemption to the restriction because 1500
square feet every 3 years was constraining. He described having to replot the location of invasive vegetation
removal, first due to a hornet's nest, again when volunteers wanted to remove invasive vegetation close to
the hornet's nest and again when a volunteer was stung. The concern that prompted the existing language
seems to be erosion, steep slopes, etc. A better way may be to amend the ordinance so that allowed activity
is only for the purpose of habitat restoration along streams and wetlands which negate concerns about steep
slopes and to make the removal threshold per year.
Hearing no further comment, Mayor Pro Tern Nelson closed the public hearing.
Council President Pro Tern Buckshnis asked where the 1500 square foot threshold came from. Mr. Chave
said the consultants who prepared the critical area update were doing a number of ordinances and the
provision in Seattle made sense to them so they suggested it for Edmonds.
COUNCILMEMBER BUCKSHNIS MOVED, SECONDED BY COUNCILMEMBER TIBBOTT, TO
DIRECT THE CITY ATTORNEY TO DRAFT AN ORDINANCE.
Councilmember Johnson thanked the public, staff and Planning Board for proposing a code change that
will facilitate restoration projects and will ensure they are done by an agency that will oversee the work.
She recalled two sites that would benefit from this change, Holy Rosary and removal of purple loosestrife
in the marsh.
Councilmember Teitzel supported this change to remove barriers to restoration. He referred to
23.40.220(C)(8)(a), "The removal of the following vegetation with hand labor and hand-held equipment
when the area of work is under 1,500 square feet in area..." and questioned the term hand-held equipment.
For example, a rototiller is operated using ones' hands but he assumed that was not the intent of "hand-held
Edmonds City Council Approved Minutes
April 3, 2018
Page l 1
equipment". Mr. Chave said the intent was wheeled equipment, etc. Councilmember Teitzel suggested
changing hand-held to hand tools.
Councilmember Teitzel envisioned restoration work in a 200-foot section of Shell Creek and part of it
includes a slope of over 30 degrees down to the stream. He asked whether City staff would visit the
restoration site before work began and flag the area where restoration could occur outside the steep slope.
Mr. Chave answered staff would check if a steep slope land hazard area was present to ensure the right area
for restoration has been identified.
Councilmember Tibbott appreciated the work done by staff and the Planning Board. If this work is
supervised as prescribed in the packet, he asked why restoration of 3,000 square feet or even 5,000 square
feet per year would not be allowed as long as it is supervised by an organization that is an expert in that
activity. Mr. Chave said this provision provides the ability to go above 1500 square feet but does not
describe an upper limit. Councilmember Tibbott expressed support for that. He asked if there were any
other exceptions in addition to steep slopes. Mr. Chave said rather than identifying exceptions, the
amendment states the only vegetation removal allowed is to protect or restore habitat in wetlands or fish
and wildlife habitat conservation areas which means it could not be done on steep slopes, earth subsidence
zones, liquefaction areas, earthquake hazard areas, etc.
COUNCIL PRESIDENT PRO TEM BUCKSHNIS MOVED, SECONDED BY COUNCILMEMBER
TEITZEL, TO AMEND 23.40.220(8)(a) TO READ, "THE REMOVAL OF THE FOLLOWING
VEGETATION WITH HAND LABOR AND HAND TOOLS FOR THE PURPOSE OF HABITAT
RESTORATION WHEN THE AREA OF THE WORK IS UNDER 1500 SQUARE FEET IN AREA
PER YEAR. AMENDMENT CARRIED UNANIMOUSLY.
MAIN MOTION AS AMENDED CARRIED UNANIMOUSLY.
Mayor Pro Tem Nelson declared a brief recess.
8. STUDY ITEMS
1. PRESENTATION OF FIVE CORNERS UPDATE FEASIBILITY AND PLANNING
BOARD RECOMMENDATION
Development Services Director Shane Hope explained this project goes back more than 10 years when the
City undertook an effort for Westgate and Five Corners. Several years ago, a decision was made to proceed
with Westgate first because the Five Corners roundabout had not been completed. Councilmember Johnson
and others have encouraged staff to look at Five Corners again. When this issue was raised at a previous
Council meeting, she questioned the feasibility of taking this project up again. The City engaged a
consultant, Heartland, on a limited basis to look at key sites to identify whether it was feasible to proceed
and if it did not seem feasible, how else it could be it feasible. The Council packet includes the Planning
Board minutes and their recommendation to move forward as well as a summary of the vision behind the
original concept for Five Corners and the Economic Development Commission's memo recommending the
Council move forward. She sought the Council's input on the priority of this effort, commenting it could
not be done immediately due to other existing priorities. She summarized a lot of work would be required
to develop a final code and the public process especially due to the length of time since this has been
discussed.
Chris Fiori, Principal and Project Director, Heartland, explained Heartland is a real estate advisor,
investor and brokerage firm; this analysis focused on financial economics and does not address the broader
planning policy considerations related to a rezone. He reviewed:
• Project Overview:
Edmonds City Council Approved Minutes
April 3, 2018
Page 12
o Context:
• The City of Edmonds is considering a form -based code for the Five Corners area
• Five Corners area has potential to add increased density and additional housing with newer
building stock.
• Goal: explore the feasibility of redevelopment of four sites within current market
conditions under draft code.
Property Overview (four of five corners investigated)
o NW Quadrant— 8401 Main Street
• BARC facility
• 1.66 Acres
o NE Quadrant — 8325 212" St SW
• Edmonds Veterinary
■ 0.9 acres
o SE Quadrant — 8330 212th St SW
■ Calvary Chapel
• 0.99 acres
o SW Quadrant - 8400-8416 Bowdoin Way
• Five Corners Retail Plaza
• 0.82 acres
Methodology
o Feasibly of Redevelopment form developer's perspective
• Developer analyzes project specific returns to make "go/no-go" decision
• Residual Land Value ("RLV"):
■ Amount the developer can afford to pay for the "land"
• Assuming the developer maximizes allowed buildable square feet, the total value of
developed project is set
• Any additional project costs push down the residual land value, while additional
entitlements can increase it
o Redevelopment occurs went the residential land value is higher than the value of the site's
current use
Draft Form -Based Code Assumptions
0 75% site area developable
o Maximum height of four stories (three stories residential over one story retail)
o Parking Minimums — 1 Stall/Residential Unit + 1 Stall/500 square foot retail
0 15% units affordable at 80% AMI
o Average unit size = 600 SF (20% of units < 900 SF, no units over 1,600 SF)
Flexible Form -Based Code Assumptions
1. Maximum height of five stories (four stories residential over one story retail)
2. Parking Minimums — 0.5 Stalls/Residential Unit + 1 Stall/500 square foot retail
3. Combined maximum height of five stories and parking minimums of 0.5 stall/residential units
Findings
o Existing buildings on the four tested sites in the Five Corners area are currently 100% occupied
with relatively high market rents.
■ Current zoning prohibits multi -family or buildings with heights over 25 feet
o The new draft Form -Based Code for Five Corners increases development capacity enough to
make redevelopment financially feasible.
o Additional enhancements to the code would increase redevelopment value.
• For medium-sized and large sites, decreasing required parking minimums provides the
highest lift to land value
• For small sites, allowing an extra floor of building height provides the most additional
value.
Edmonds City Council Approved Minutes
April 3, 2018
Page 13
A combination of decreased parking minimums and an extra floor of building height would
provide the highest additional value for all sites.
• Bar graph of All Properties Scenarios: Comparative Performance Summary for BARC, Edmonds
Veterinary, Cavalry Chapel and Four Corners Plaza comparing value in use, draft form -based code,
flexible height, flexible parking, flexible height plus parking
As an example, he reviewed their analysis of the BARC site:
• 1.66 acres
• Land Value Under Current Use —$65 Per Square Foot
• Land Value Under Draft Form -Based Code —$95 Per Square Foot
• Flexible Height
o Land Value Under Flexible Form -Based Code —$120 Per Square Foot
• Flexible parking
o Land Value Under Flexible Form -Based Code —$172 Per Square Foot
• Flexible Height & Parking
o Land Value Under Flexible Form -Based Code —$219 Per Square Foot
• Comparative Performance of five scenarios
He noted there have not been any direct conversations with any of the property owners.
Council President Pro Tern Buckshnis commented whenever she hears about flexible parking, she, like
Planning Board Member Cloutier, thinks of Seattle who is now looking at requiring zero parking. In Seattle,
people live and work in close proximity; Edmonds does not have mass transit, so she is cautious about
flexible parking. Without a mechanism get people to commuter rail, light rail or Swift, not providing
parking could be problematic. She likes form -based code and hopes BARC remains for a long time due to
the need in the animal community. Ms. Hope said flexible parking was only a concept that was considered.
Councilmember Mesaros was glad flexible parking had been considered as an option when reviewing
concepts. He recalled visiting Chicago in the past for business and buildings often had no parking. Larger
cities, including Seattle, encourage walking and public transportation so they discourage parking. Edmonds
does not have infrastructure. The BARC site has some rental income from a coffee stand, but the majority
of the site is owner occupied. He commented the existing owner may be able to expand the development
under the current code and expand the revenue it generates.
Councilmember Teitzel was excited about Five Corners' future and the opportunities. He is also a proponent
of form -based code as a way to reinvigorate the area. On a tour of the BARC facility today, Dr. Chelsey
said their business is booming; they draw clients from as far as Bellingham, Tacoma and Kitsap County.
He envisioned for the foreseeable future that building would not be redeveloped. With regard to transitions,
he recalled discussions during the Highway 99 Subarea plan about building as tall as five stories next to
single family. He asked how transition would be handled in the Five Corners neighborhood where there are
single family homes close to the roundabout. Ms. Hope recalled transition was provided in the draft concept;
buildings rapidly step down from the higher heights.
Councilmember Johnson was familiar with Five Corners as it has been her neighborhood. She suggested
there was an opportunity to look at parking needs as an areawide issue as there may be excess parking at
the BARC site and the churches, possibly stalls could be rented out. She anticipated it would be challenging
to redevelop the SW quadrant and accommodate the parking needs for residential; parking across the street
in a flexible arrangement could be possibility.
Councilmember Fraley-Monillas said her issue with parking in this area is that it abuts residential and the
goal should be to keep cars out of the neighborhood. She agreed it would be the most difficult to provide
Edmonds City Council Approved Minutes
April 3, 2018
Page 14
an adequate level of parking in the SW quadrant. She asked why the fifth arm of Five Corners was not
included and if it was because the lot was so small. Ms. Hope answered the intent to was limit the analysis
and these four were good examples to determine the feasibility. If redevelopment is feasible for the other
four quadrants, it would be feasible for the dry cleaner site.
With regard to the priority of this effort, Councilmember Mesaros sensed that although this is not the City's
number 1 priority, it should be moved forward on a good basis. He suggested staff keep moving forward,
keep the Council informed and use the Planning Board as appropriate to keep this project alive and moving
forward. He commented it would be interesting to hear the property owners' thoughts. As was learned with
Westgate, some properties will redevelop faster and others will take 15-20 years even though the code was
changed.
Councilmember Johnson asked how this could be moved forward expeditiously. Ms. Hope said even
moving expeditiously, it could not begin for several months due to other projects underway. Depending on
circumstances it could take a few months or a year to complete. Councilmember Johnson asked if writing
form -based code would involve the Green Futures Lab. Ms. Hope explained similar to Westgate, their basic
work would be used to develop the code. They provided good concepts, but they are not accustomed to
writing code. Councilmember Johnson observed that would be the most time-consuming piece. Ms. Hope
agreed writing the code and the public process are time consuming. Councilmember Johnson summarized
even moving expeditiously would take a year or more. Ms. Hope agreed.
Councilmember Teitzel echoed Councilmember Mesaros' comment, to move ahead as there are
opportunities but it should not be the City's top priority. That area has languished for some time and it is in
need of improvement, aesthetically and functionally.
Mayor Pro Tern Nelson summarized the Council's input was to proceed at a moderate pace.
9. MAYOR'S COMMENTS
Mayor Pro Tem Nelson announced his appointment of Kimberly Koenig to the Economic Development
Commission. With regard to citizens' comment on the library and wanting to hear from Council, he relayed
his support for the Edmonds Library which is a wonderful resource. He recalled when he was in middle
school, he was challenged playing the trumpet, so much that he practiced in his mom's car. When he was
no longer allowed in the band, he was assigned to become library aid and spent a lot of time in the library.
He summarized the library is a vital place for the community gather, learn and share and he fully supports
it.
10. COUNCIL COMMENTS
Councilmember Johnson said she loves the Edmonds Library and is a proud member of the Friends of the
Edmonds Library. Due to the ground swell in the community and world, next week in committee, the
Council will discuss plastic straws. Alternatives to plastic straws would move the zero -waste policy further
ahead and she was happy to hear the citizens' comments tonight regarding that issue.
Councilmember Teitzel said he also is a strong supporter of the Edmonds Library. Living in Edmonds since
1987, his two daughters were often in the library. He is a proud holder of a Sno-Isle library card and checks
out materials fairly often. His sole concern as the chair of the Finance Committee was the library's funding
model. Edmonds property values have increased rapidly over the past 10-15 years and the level of subsidy
Edmonds citizens contribute to the Sno-Isle is disproportionate. Edmonds is the only city creating a subsidy
to Sno-Isle. His concern has nothing to do about the quality of service. Relative to moving the library, he
said there is no effort to move the library. The City Council has an obligation to look 10-15 years in the
future and how demographics and population distribution are changing. The Highway 99 Subarea Plan
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April 3, 2018
Page 15
anticipates substantial population growth which prompted the question of whether the library's current
location was sufficient to serve a changing distribution of population in the future. He summarized it is a
blue-sky question, there are no plans to move the library.
Councilmember Teitzel reported on the Cedar Creek Memory Care open house; it is a fabulous facility for
those with Alzheimer's and memory challenges and he encouraged the public to schedule a tour. The 54,000
square foot facility opens in April, has 80 beds, 50% have been leased to patients.
Councilmember Teitzel relayed his plans to meet with the Mayor's Climate Protection Committee on
Thursday to discuss single use plastic straws with the goal of bringing a resolution to the City Council soon.
He reported the Homelessness Task Force received four responses to the RFP; the task force will meet on
Friday to discuss the responses and consider next steps.
Councilmember Tibbott relayed his support of the library, an amenity the City and his family use a great
deal. He questions whether the levy is the appropriate next step for funding the Sno-Isle library system but
he is supportive of the Edmonds Library and wants to see it continue. He trusts Edmonds citizens will study
and do their due diligence on the levy and its impacts on their family. He recalled not long ago the library
was run by the City and was not part of the Sno-Isle system; those days may need to be recalled going
forward.
Councilmember Tibbott relayed having a conversation with a restaurant owner in the City who asked his
opinion on a plastic straw and utensil ban; the owner's concern was how fast they could make a transition
and the cost. This restaurant owner felt there was a lot of support for reducing that kind of waste.
Councilmember Tibbott recognized his wife, Margaret, a high school teacher at Mountlake Terrace High
School, who was selected staff member of month.
Councilmember Fraley-Monillas said this will be the last meeting she participates in by phone; she will
return next week. With regard to straws, she pointed out in addition to businesses, a ban would also affect
the school district and the hospital. She suggested it would be nice to get businesses to volunteer to use
compostable straws.
With regard to the library, Councilmember Fraley-Monillas said citizens were responding to the comments
of one Councilmember and explained one Councilmember can technically say or question anything they
wish but it takes four votes to do anything. Just because a Councilmember says something does not
necessarily mean that is what the City will do.
Council President Pro Tern Buckshnis said she loves libraries so much she has a library in her house. She
loves books and grew up going to a library. This is an emotional issue to a lot of people and she agreed with
the comment that if her tax dollars helped Reading with Rover in Darrington, she was supportive.
Councilmember Buckshnis reported Councilmember Teitzel, who has been spearheading the plastic straw
issue, will bring a resolution to the Mayors Climate Protection Committee on Thursday at 8:45 a.m. in the
Fortner Room; meetings are open to the public. She noted Seattle did not enforce their ban for 3 years; she
anticipated if the Council passed a resolution, a long period of time would be provided before enforcement.
She agreed with Councilmember Fraley-Monillas that a ban would impact more than just businesses. On
Thursday night at 6:00 p.m. the Davies Resource Group will make a presentation to the Tree Board on the
Urban Forestry Management Plan.
Councilmember Mesaros endorsed the Sno-Isle Library levy and said it was important for the community
to support the quality the library has provided in the past and will continue to provide. With regard to a
library on Highway 99, his first thought when he saw that was there would be a second library in Edmonds.
Edmonds City Council Approved Minutes
April 3, 2018
Page 16
The City does not control the library but could endorse having a second library on Hwy 99 as Edmonds is
the third largest city in Snohomish County. An entirely new community will be developed on Highway 99
in the future and they will want those services. With regard to plastic straws, he was glad to see that issue
was moving forward, finding it long overdue and an issue that would make a big impact.
Student Representative Noal Leonetti voiced his appreciation for the library; as a high school student, he
has spent many nights studying there, loved going there as a kid and was grateful for everything the library
provides. He voiced his strong support for banning straws and other plastics in Edmonds, commenting the
impact that plastics have on the marine system is frightening. This issue will continue in the future and it
will be his generation's responsibility to solve the problem. He recalled hearing comments from the
community about banning Styrofoam in Edmonds which was also something he supported although he was
unsure there had been any action taken. Taming Bigfoot just finished its third month and the public is
invited to the final ceremony on April 23.
11. CONVENE IN EXECUTIVE SESSION REGARDING PENDING OR POTENTIAL LITIGATION
PER RCW 42.30.110(1)(i)
This item was not needed.
12. RECONVENE IN OPEN SESSION. POTENTIAL ACTION AS A RESULT OF MEETING IN
EXECUTIVE SESSION
This item was not needed.
13. ADJOURN
With no further business, the Council meeting was adjourned at 9:34 p.m.
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DAVID O. EARLING, MAYOR
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Edmonds City Council Approved Minutes
April 3, 2018
Page 17
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