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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 April 3, 2018 Page 1 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 Edmonds City Council Approved Minutes April 3, 2018 Page 2 • 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 Edmonds City Council Approved Minutes April 3, 2018 Page 3 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 Edmonds City Council Approved Minutes April 3, 2018 Page 4 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 Edmonds City Council Approved Minutes April 3, 2018 Page 5 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 Edmonds City Council Approved Minutes April 3, 2018 Page 6 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 Edmonds City Council Approved Minutes April 3, 2018 Page 7 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. Edmonds City Council Approved Minutes April 3, 2018 Page 8 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 Edmonds City Council Approved Minutes April 3, 2018 Page 9 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 Edmonds City Council Approved Minutes 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. r DAVID O. EARLING, MAYOR 'S : - S PASSEY, CITY_CLUW Edmonds City Council Approved Minutes April 3, 2018 Page 17 ;.; ,:; . �� �:: .._ ... ........ �:::::... ... ...... ���a N.... ..-...::: �:�:; �: ... ...... ::: ... ... �� e ti .: