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HomeMy WebLinkAboutCOW 2007-09-10 Item 4B - Discussion - Emergency Comprehensive Plan Amendment and Rezoning Request from Sabey Corporation COUNCIL AGENDA SYNOPSIS 4.1 Initials ITEM NO. o 10 1 1 Meninx Date P are b Mayor's review oun review 1 09/10/07 I RF 1 ./i.L -E 1 ���i V Pd1 I 1 09/17/07 1 RF u 4, b ITEM INFORMATION CAS NUMBER: 07-105 f ORIGINAL AGENDA DATE: SEPTEMBER 10, 2007 AGENDA ITEM TILE Sabey Corp. "Emergency" Comprehensive Plan amendment and rezone request- Change Manufacturing /Industrial Center -Heavy (M /IC -H) to Light Industrial (LI) south of Boeing Field CATEGORY Discussion Motion Resolution Ordinance Bid Award Public Hearing Other A4tg Date 09/10/07 Mtg Date 09/17/07 Mtg Date Aft Date Mtg Date Mt Date Mtg Date SPONSOR Council Mgyor Adrn Svcs 2 DCD Finance Fire Legal P&R Police PW SPONSOR'S The Sabey Corporation has submitted an application for a Comprehensive Plan map change SUMMARY and rezone from Manufacturing /Industrial Center -Heavy (MIC -H) to Light Industrial (LI) for 36.5 acres, located south of Boeing Field at the Associated Grocers site. The applicant wants this issue to be considered an "emergency" and reviewed in 2007 with the current applications, rather than waiting until 2008. The Council will decide whether to 1)consider the matter an "emergency;" 2) forward issue to Planning Comm. to review. REVIEWED BY COW Mtg. CA &P Cmte FNS Cmte Transportation Cmte Utilities Cmte Arts Comm. Parks Comm. Planning Comm. DA 1'E: 08/28/07 RECOMMENDATIONS: SPONSOR /ADMIN. Consideration COM4ITIEE Unanimous Approval; Forward to Committee of the Whole COST IMPACT FUND SOURCE EXPENDITURE REQUIRED AMOUNT BUDGETED APPROPRIATION REQUIRED Fund Source: Comments: MTG. DATE RECORD OF COUNCIL ACTION 09/10/07 MTG. DATE ATTACHMENTS 9/10/07 Staff Report to the Council with Attachments A through H Attachment C of above report is a copy of the CAP minutes of August 28, 2007 Cit of Tukwila vi �1 k a 0 Steven M. Mullet, Mayor Department of Community Development �1�� ]n f Steve Lancaster Director 190 TB STAFF REPORT TO THE CITY COUNCIL MEETING DATE: September 17, 2007 NOTIFICATION: Notice published in the Seattle Times, 9/6/07 Notice of application (mailing site posting), 8/30/07 FILE NUMBER: L07 -066 (Comprehensive Plan Amendment) L07 -067 (Rezone) APPLICANT: Mikel Hansen/Sabey Corporation REQUEST: 1) Emergency Amendment Consideration 2) Change Comprehensive Plan/Zoning Map from Manufacturing Industrial Center/Heavy (MIC -H) to Light Industrial (LI) LOCATION: 3301 S. Norfolk St., and 10230 E. Marginal Way S.6550 and 6542 Southcenter Boulevard COMPREHENSIVE PLAN DESIGNATION: Manufacturing /Industrial Center —Heavy (M/IC -H) ZONE DESIGNATION: Manufacturing/Industrial Center —Heavy (M/IC -H) STAFF: Rebecca Fox ATTACHMENTS: A. Project Map B. Aerial Map C. CAP minutes (8/28/07) D. TMC 18. 80.020— Docketing Procedure E. Findings of Emergency (8/13/07) F. ECONorthwest Study (8/9/07) G. Comprehensive Plan Amendment application H. Rezone application Rf 1 8/27/2007 Q: \COMP PLAN AMEND 2006 20071 SABEY CCstaffreport-- 9.10.07-- ##3.doc 6300 Southcenter Boulevard, Suite #100 Tukwila, Washington 98188 Phone: 206 431 -.mm P2v. 2nA -4a1 ?��C FINDINGS DISCUSSION 2007 Process to Date The City of Tukwila received two applications for Comprehensive Plan amendments prior to the December 31, 2006 deadline. The Tukwila City Council held a public meeting on the applications on March 5, 2007, and forwarded the applications to the Tukwila Planning Commission for a hearing that was held on March 22, 2007. Proiect History On August 13, 2007, the City of Tukwila received an application from the Sabey Corporation for a Comprehensive Plan amendment and Rezone from Manufacturing/Industrial Center —Heavy (MIC -H) to Light Industrial (LI), on 36.5 acres immediately south of Boeing Field. (Attachments A and B) The CAP was briefed on August 28, 2007, and the issue was forwarded to the City Council. (Attachment C) The applicant requests that the Comprehensive Plan amendment request be considered as an "emergency" and reviewed in 2007 with the amendments that are currently under consideration, rather than waiting until 2008 for a new amendment cycle. The Washington Growth Management Act stipulates that jurisdictions may amend their Comprehensive Plans no more frequently than once per year unless it is an emergency as defined by the jurisdiction. After holding a public meeting and taking comments, the City Council will be requested to take two actions associated with the request from the Sabey Corporation, including: 1) First, to determine whether or not to accept the proposed change as an emergency and consider it in 2007, along with two applications currently in the process, or to hold the application for consideration until 2008, and; 2) Second, if the City Council accepts the "emergency" amendment, to decide whether or not to forward the application to the Planning Commission for further consideration. The City Council will not decide on the merits of the request at this point. Rather, it is asked to decide whether or not to refer the request to the Planning Commission for further review and a recommendation. If the Council decides to forward the application to the Planning Commission, staff will prepare a report, and the Planning Commission would hold a hearing on the new amendment request on October 25, 2007. The proposal would then join up with two existing amendment requests that have been on hold at the Planning Commission level. Rf 2 08/27/2007 Q: \COMP PLAN AMEND 2006- 2007 \SABEY CCstaffreport-- 9.10.07-- #3.doc After Planning Commission review, the City Council would hold a public hearing and take action prior to December 31, 2007. 1) BACKGROUND:Reauest for Emeraencv" Amendment The applicant requests that the amendment be handled as an "emergency" and reviewed in 2007 with the existing amendment requests based on the need to act expeditiously to support the economic well -being of the City. "EMERGENCY" AMENDMENT CRITERIA The Washington Growth Management Act stipulates that jurisdictions may amend their Comprehensive Plans no more frequently than once per year unless it is an emergency as defined by the jurisdiction. TMC 18.80.020 (Attachment D) describes the docketing procedure, including the criteria for the emergency amendment. Per TMC 18.80.020, an emergency amendment is a proposed change or revision that requires "expeditious" action to address one of more of the following criteria: 1) Preserve the health, safety or welfare of the public; 2) Support the social, economic or environmental well -being of the City; 3) Address the absence of adequate and available public facilities or services; 4) Respond to decisions by the Central Puget Sound Growth Management Hearings Board, the state or federal courts, or actions of a state agency or the legislature. Attachment E and F are the applicant's "Findings of Emergency" and an economic study by ECONorthwest. The "Findings" support considering the proposed amendment as an emergency based on Criterion #2 above to "Support the social, economic or environmental well -being of the City. The primary justification includes: recent changes in sales tax sourcing rules that allow sales tax to accrue to the jurisdiction where a product is delivered, rather than the jurisdiction where it is purchased; economic benefits of prompt action including employment opportunities and new development; importance of coordinating land use approvals with Seattle, and the benefits to Tukwila in taking a timely lead in this endeavor. Although the applicant has asked that this request be considered as an "emergency" in order to have it reviewed in 2007, the proposed amendment only needs to "catch up" with the other amendments that are on hold at the Planning Commission level, rather than being reviewed in an entirely new process. The Council could do this by adding the application to the existing docket. Since the City Council has not yet acted on the Comprehensive Plan and Rezone applications for 2007, the Council could decide to have the new application go through review and then make a decision on all three amendments by the December 31, 2007 deadline. Rf 3 08/27/2007 Q:\COMP PLAN AMEND 2006- 20071SABEY CCstaffreport-- 9.10.07-- #3.doc CONCLUSIONS Emergency Amendment The recent changes in sales tax sourcing rules that allows sales tax to accrue to the jurisdiction where a product is delivered, rather than the jurisdiction where it is purchased. This change supports prompt the consideration of this request since it addresses the loss of warehousing/distribution income and employment. As noted in the application, the property is split between Tukwila and Seattle. Considering the proposed amendment in 2007 will ensure that Tukwila's review is coordinated with Seattle, and is not delayed by Seattle's process. Since no action has been taken on Comprehensive Plan amendments yet this year, the proposal could be added to the existing amendments and a coordinated decision could be made on all three before December 31, 2007. Recommendation "Emergency" Amendment Staff recommends considering the proposed amendment as an "emergency" and including it in the review process for 2007. Alternatives for Action In making a threshold decision, the Council will not address the substance of the request at this point. Rather, the City Council will decide whether to forward the request to the Planning Commission for further consideration. The City Council's threshold alternatives include the following: Refer the proposal as is to the Planning Commission for further review; Modify the proposal and refer it to the Planning Commission for further review Defer consideration until a late time; Reject the proposal 2) BACKGROUND: Request for Amendment from M C-H to LI The Sabey Corporation proposes to amend the Comprehensive Plan and Zoning map designations on approximately 36.5 acres in the Tukwila Manufacturing/Industrial Center immediately south of Boeing Field from Manufacturing/Industrial Center —Heavy (MIIC -H) to Light Industrial (LI). (Attachment G and Attachment H). Tukwila's Manufacturing/Industrial Center is one of four such centers confirmed by King County's County Wide Planning Policies. The applicant has recently acquired the property which has been the Associated Grocers warehouse and distribution center for many years. Associated Grocers is relocating, and the applicant wishes to redevelop the property for light industrial and non industrial uses. An LI Comprehensive Plan and zoning designation would permit a broader range of uses than currently permitted in the MIC/H zone. SEPA review and a traffic study were prepared based on a development scenario that could include approximately 700, 000 square feet of office development, 550, 000 square Rf 4 08/27/2007 Q: \COMP PLAN AMEND 2006 2007 \SABEY CCstaffreport-- 9.10.07-- #3.doc feet of retail development; 80, 000 square feet of lodging (hotel), 60, 000 square feet of entertainment use (theatre), and 100, 000 square feet of warehousing and manufacturing. (p. 5, Attachment G) Vicinitv /Site Information The entire property is approximately 64 acres in area, and is split between Tukwila and Seattle, with the majority (approximately 57% or 36.5 acres) in Tukwila, and the remainder (approximately 43% or 27.5 acres) in Seattle. If the proposal is approved, the property would remain divided between Tukwila and Seattle. The property is located on the eastern edge of Tukwila's Manufacturing/Industrial Center, and is immediately south of Boeing Field. The entire property is well served by roads, and bounded by S. Norfolk Street on the north, Airport Way on the east, E. Marginal Way S. on the west. Direct access to I -5 is available via the Boeing Access Road at the south end. In general, the portion of the property that is located in Tukwila occupies the western part of the property. Surrounding Uses within 1, 000 feet are: North Boeing Field and other Boeing properties, restaurant South —Light industrial, commercial office uses East—Railroad tracks, Airport Way S. and I -5 West —E. Marginal Way, Duwamish River, restaurant and commercial THRESHOLD REVIEW CRITERIA The following should be used in deciding whether to forward the request to the Planning Commission for further study, rather than on the substance of the request. 1) Describe how the issue is addressed in the Comprehensive Plan. If the issue is not adequately addressed, is there a need for it? Comprehensive Plan policies balance support for the Manufacturing Industrial Center and industrial uses with Tukwila's overall goals for continued economic development and well- being. Recent changes in sales tax sourcing support transitioning from warehouse to other uses. The MIC seen as the focus of significant industrial activity. Goal 11.1 (Manufacturing/Industrial Center); Support for existing industrial activities in the Manufacturing /Industrial Center and development of industrial activity in order to maximize the employment and economic benefits to the people of Tukwila and the region, while minimizing impacts on residential neighborhoods. Rf 5 08/27/2007 Q: \COMP PLAN AMEND 2006- 2007 \SABEY CCstaffreport-- 9.10.07-- #3.doc The MIC zones are intended primarily for industrial uses or activities that support these uses. Policies protect the land resource, allowing it to be used effectively to generate its potential of high -wage jobs and public revenue: Policy 11.1.5: Allow uses that are commonly associated with manufacturing and industry, including those directly supporting such activity, such as offices and laboratories, while prohibiting unrelated uses. Allowing a broader range of uses, including light industrial and commercial, that can be developed under the Light Industrial zoning generally supports a varied and healthy economy for Tukwila: Goal2.1 Continuing enhancement of the community's economic well -being The City should consider land use changes for warehouses if a there is a change in sales tax sourcing rules. This change has occurred. Under prior law, the jurisdiction where a product originates receives the sales tax. With the change that went into effect in July, 2007, the jurisdiction where the product is delivered receives the tax. Policy 2.1.0: Consider a moratorium and /or land use change for warehouses if there is a mandated change in sales tax sourcing rules. 2) Impacts The City of Tukwila is especially interested in the potential impacts that this action could have on existing and future land use and development in the Manufacturing/Industrial Center (WIC) and in the Tukwila Urban Center (TUC). At Tukwila's request, the applicant hired ECONorthwest to prepare an analysis of possible impacts (Attachment F). If the City Council decides to forward the request to the Planning Commission for further review, the following may be discussed in more detail including the impacts of: Less land for the heaviest industrial uses in MIC -H; More retail and office due to the wider range of uses allowed in LI; Jobs and tax revenue to increase, as well as improvement the overall appearance of the area; Possible additional traffic impacts; Possible increased pressure on MIC uses that wish to remain or more pressure on industrial lands to convert to commercial uses; Depending on future development at the site, there could be possible competition for Tukwila Urban Center, or additional services to the project area itself. Rf 6 08/27/2007 Q: \COMP PLAN AMEND 2006- 2007 \SABEY CCstaffreport-- 9.10.07-- #3.doc 3) Is the proposed change the best means for meeting the identified public need? What other options are there for meeting the identified public need? The proposal acknowledges recent changes in sales tax revenue sourcing by seeking to redevelop a 64 -acre property (including 36.5 acres in Tukwila) that is transitioning away from warehouse to proposed office, hotel, entertainment and retail use. The mixture of non warehouse uses would compensate for the loss of sales tax revenue from the warehouse and help recoup direct sales tax income for Tukwila. Redevelopment in the LI zone would provide a range of additional employment opportunities, depending on the mixture of uses that located in the project. Other options for providing additional light industrial and commercial activity and employment opportunities would be to locate these uses in existing the LI zones in different areas of the city, or in other zones where they are already allowed, such as the Commercial/Light Industrial zone or Tukwila Urban Center (TUC). 4) Will the proposed change result in a net benefit to the community? If not, what result can be expected and why? Redesignating and rezoning the Associated Grocers site presents opportunities for a development project in a large and important location at the northern boundary of Tukwila. New construction will meet current standards, including landscaping and frontage improvements, and will result in a more attractive site than what is currently there. Designating the property as LI shifts its redevelopment options away from both the land intensive warehousing /distribution activities that are currently on the site, and the heavy manufacturing that is permitted in the WIC-H. LI allows supportive commercial and light industrial uses, and would provide a transition to more commercial development that exists or is planned farther to the south. Existing warehousing and office jobs will be replaced new jobs in the office and service sectors. CONCLUSIONS Considering the proposal in 2007 would allow the City of Tukwila to act in a timely way to coordinate development review with the City of Tukwila. Effective July 2007, changes to state law mean that warehouses produce less sales tax revenue for Tukwila than previously. Having the 64 -acre site under control by one owner, presents an opportunity for light industrial redevelopment at a visible location. This may include a combination of office, hotel, retail, entertainment, and warehouse /distribution. Jobs will be created. The site is somewhat separate from much of the MIC, and other heavy industrial uses. The proposal removes land that could be used by heavy industry, and could increase pressure on the remaining lands to convert to commercial use. Depending on the mix of uses, redevelopment in the project area might have some limited effects on redevelopment in the Tukwila Urban Center. Rf 7 08/27/2007 Q: \COMP PLAN AMEND 2006- 2007 \SABEY CCstaffreport-- 9,10.07-- #3.doc RECOMMENDATIONS Proposed Amendment Request Staff recommends forwarding the request to the Planning Commission for further consideration. ALTERNATIVES FOR ACTION In making its threshold decision, the Council will not address the substance of the request at this point. Rather, the City Council will decide whether to forward the request to the Planning Commission for further consideration. The City Council's threshold alternatives include the following: Refer the proposal as is to the Planning Commission for further review; Modify the proposal and refer it to the Planning Commission for further review Defer consideration until a late time; Reject the proposal If the proposal is referred to the Planning Commission, the Planning Commission will consider the proposal's merits, and could: Recommend approval; Modify the proposal Recommend denial After Planning Commission review, the proposal will return to the City Council for a public hearing and decision prior to December 31, 2007 along with the two existing Comprehensive Plan amendment requests. Rf 8 08/27/2007 Q: \COMP PLAN AMEND 2006 2007 \SABEY CCstaffreport-- 9.10.07-- i#3.doc F 1 ham `,9-'C:%t p j e f o .Z 1i0,..r: M 1C /H 0 City of 'Tukwila 1 a- Comp Plan Amendment TUK ILA SEATTLE t L07 -066 Rezone L07 -067 N Proposed Rezone `s, Comp Plan Amendment from MIC1H to LI 4 MICIH to LI H i i Project Area ll _____I 111 0 �i/ GIS WO iG Tukwila 1° =100' I 1 a, (1) ✓L J t MIC /HW �j 5 "4?„ft S 04 St f=r. Tv 3.W. WW.;'4..V 1*-'-:K7. *X-7,Y.. 3 n :1 i: v.: 'iEOFF: 7Y-;;').K. i "ii 71 tO 1 T rip: VW/ AM -xi iii VA Y sT v i Ai, f 4 q /AWAKE.ig� r, co fill AS A M 1 C/H t M 1 C/H 1 4i Boeing Access Rd 1 I 0 Ez7 c_s 11 4 D MI I MIC/H 3 /H illi o cl Attachment A m i y r: F "i+ S tzvei, a� y 42}$, `-r t r y Awie 11G ry s Come 6C s 1 z ezo �zOne s e .0 k.., t r Co ip tCIM{ to iti i �f- A s: q sue_: r t_ a :mss\ j i t- i {41C3 a- 1?' 47 .r K .Y.Y �S t.cz v .z 3g i ices- r i l f f 4 J r�.r .fad/ s N y x i/ is L L. .A., .-_,,--_-..-_--,._,:i:-._%,- -4 4 i -1 :=Y A-;" 7 ,4- S ft,... V- -'-0 G 6t y A Y S Y I r� 5 a c `t e: „._,N, yv r F9 a 1 1 x i- ti b jf �{y y `f ti e E. i e i re' qy e may V --g r s s I ti �4 I ;ter r ;-,,s_:-..-..--,:-.,. M ti ws t- "sy� y(� K r' ter a a -y o r a h-•. ,a.,,,7.,''‘ Y iii -z r J en s_ Y p {torc m ATTACHMENT C t r-14"-: City of Tukwila 1 0 'c �vil/` y_ O 2 Community Affairs Parks Committee i`sos COMMUNITY AFFAIRS AND PARKS COMMITTEE Meeting Minutes August 28, 2007- 5:00 p.m. PRESENT Councilmembers: Verna Griffin (sitting in for Pam Linder, Chair), Pam Carter and Dennis Robertson Staff: Jack Pace, Carol Lumb, Brandon Miles, Derek Speck, Rhonda Berry and Kimberly Matej Guests: Chuck Parrish and Mikel Hansen, Sabey Corporation CALL TO ORDER: Verna Griffin called the meeting to order at 4:57 p.m. I. PRESENTATIONS No presentations. II. BUSINESS AGENDA A. Comprehensive Plan Amendments Staff provided a brief background and summary of the current Comprehensive Plan amendment process. According to the Washington State Growth Management Act, jurisdictions may not amend their Comprehensive Plans more than once a year. The City currently has two applications for Comprehensive Plan amendments that are under consideration. On August 13, 2007, the City received a request from the Sabey Corporation for a Comprehensive Plan amendment. The deadline for amendment applications was December 31, 2006; however, this application can be considered an "emergency" request and proceed through the normal process as the existing two Comprehensive Plan amendment applications. Staff further explained that the review process for the Plan amendments is not yet complete, and this application is not interrupting the process. This application would merely need to join the existing two in the review process. Staff supports consideration of this amendment request in the 2007 review process. Full Council will be asked to determine if the amendment should be considered in 2007 with the other existing amendments, and if the amendment should be forwarded to the Planning Commission for further review. The Committee was reminded that their recommendation is merely on process at this time and not on the merits of the actual amendment application. UNANIMOUS APPROVAL. FORWARD TO SEPTEMBER 10 COW FOR DISCUSSION. B. Consultant Contract for Shoreline Master Program Update In 2005 -07, the City was awarded $65,000 in grant funding from the Washington State Department of Ecology for work relative to the City's Shoreline Master Program Update. The Depai'went of Ecology has identified that it is taking grant recipients longer to complete projects than originally anticipated and has decided to add a third year to grant funding. Staff reported that an additional $38,000 has been received from the Depaitment of Ecology for project completion as part of the third year funding. Originally, staff expected that some City funds would be required to continue the use of ESA Adolfson to finish the project, but with the third year grant monies, the project's consultant costs will be offset through the grant monies. TUKWILA MUNICIPAL CODE ATTACHMENT D Chapter 18.80 18.80.015 Documentsto be Submitted with AMENDMENTS TO THE Application COMPREHENSIVE PLAN AND A. Applications for amendments to the compre- DEVELOPMENT REGULATIONS hensive plan or development regulations shall provide the following documents in such quantities as are Sections: specified by the Department: 18.80.010 Application 1. An application form provided by the 18.80.015 Documents to be Submitted with Department. Application 2. King County Assessor's map(s) which 18.80.020 Docket show the location of each property within 300 feet of 18.80.030 Notice and Comment the property which is the subject of the proposed 18.80.040 Staff Report amendment. 18.80.050 Council Consideration 3. Two sets of mailing labels for all property 18.80.060 Council Decision owners and occupants (businesses and residents) including tenants in multiple occupancy structures, within 300 feet of the subject property. 18.80.010 Application 4. A vicinity map showing the location of the Any interested person (including applicants, citi- site. zens, Tukwila Planning Commission, City staff and 5. A surrounding area map showing compre- officials, and staff of other agencies) may submit an hensive plan designations, zoning designations, shore application for an amendment to either the compre- line designations, if applicable, and existing land uses hensive plan or the development regulations to the within a 1000 foot radius from the site's property lines. Department of Community Development. Such 6. A site plan, including such details as may applications are for legislative decisions and are not be required by the Department. subject to the requirements or procedures set forth in 7. A landscaping plan, including such details TMC Chapters 18.104 to 18.116. In addition to the as may be required by the Department. requirements of TMC 18.80.015, the application shall 8. Building elevations of proposed structures, specify, in a format established by the Department: including such details as may be required by the 1. A detailed statement of what is proposed Department. and why; 9. Such photomaterial transfer or photostat of 2. A statement of the anticipated impacts of the maps, site plan and building elevation, including the change, including the geographic area affected and such details as may be required by the Department. the issues presented by the proposed change; 10. Such other information as the applicant 3. An explanation of why the current determines may be helpful in evaluating the proposal, comprehensive plan or development regulations are including color renderings, economic analyses, photos, deficient or should not continue in effect; or material sample boards. 4. A statement of how the proposed B. The Department shall have the authority to amendment complies with and promotes the goals and waive any of the requirements of this section for specific requirements of the Growth Management Act; proposed amendments which are not site specific or 5. A statement of how the proposed when, in the Department's discretion, such informa- amendment complies with applicable Countywide tion is not relevant or would not be useful to considera- Planning Policies; tion of the proposed amendment. 6. A statement of what changes, if any, (Ord. 1770 §53, 1996) would be required in functional plans (i.e., the City's water, sewer, storm water or shoreline plans) if the 18.80.020 Docket proposed amendment is adopted; A. The Department shall maintain a docket of all 7. A statement of what capital improvements, proposed changes to the Comprehensive Plan and if any, would be needed to support the proposed development regulations that are submitted. If either change, and how the proposed change will affect the the Department or the Council determines that a pro capital facilities plans of the City; and posed change may be an emergency, the Department 8. A statement of what other changes, if any, shall prepare the staff report described below and are required in other City codes, plans or regulations to forward the proposed change to the Council for implement the proposed change. immediate consideration, subject to the procedural (Ord. 1770 §52, 1996; Ord. 1758 §1(part), 1995) requirements for consideration of amendments. An emergency amendment is a proposed change or revision that necessitates expeditious action to address one or more of the following criteria: Dine 152_1 1d Printed January 2006 TITLE 18 ZONING I. Preserve the health, safety or welfare of 18.80.050 Council Consideration the public. A. The City Council shall consider each request 2. Support the social, economic or environ- for an amendment to either the comprehensive plan or mental well -being of the City. development regulations at a public meeting, at which 3. Address the absence of adequate and avail the applicant will be allowed to make a presentation. able public facilities or services. Any person submitting a written comment on the 4. Respond to decisions by the Central Puget proposed change shall also be allowed an opportunity Sound Growth Management Hearings Board, the state to make a responsive oral presentation. Such oppor- or federal courts, or actions of a state agency or the legis- tunities for oral presentation shall be subject to reason lature. able time limitations established by the Council. B. Non emergency changes shall be compiled and B. The Council will consider the following in submitted to the Council for review on an annual basis deciding what action to take regarding any proposed in March so that cumulative effects of the proposals can amendment: be determined. Proposed changes received by the 1. Is the issue already adequately addressed Department after January 1 of any year shall be held in the Comprehensive Plan? over for the following year's review, unless the Coun- 2. If the issue is not addressed in the cil or the Department determines the proposed change Comprehensive Plan, is there a public need for the may be an emergency. proposed change? (Ord 2071 §J, 2004; Ord. 1770 §54, 1996; 3. Is the proposed change the best means for Ord. 1758 §1(part), 1995) meeting the identified public need? 18.80.030 Notice and Comment 4. Will the proposed change result in a net benefit to the community? The docket of proposed changes shall be posted in C. Following Council consideration as provided the offices of the Department and made available to any by TMC 18.80.050A and 18.80.050B, the City Council interested person. At least four weeks prior to the shall take action as follows: Council's annual consideration of the changes proposed 1. refer the proposed amendment to the on the docket, the City shall publish a notice in a Planning Commission for further review and a newspaper of general circulation in the City, generally recommendation to the City Council; describing the proposed changes including areas 2. defer further Council consideration for one affected, soliciting written public input to the or more years to allow the City further time to evalu- Department of Community Development on the ate the application of the existing plan or regulations; or proposed changes, and identifying the date on which 3. reject the proposed amendment. the Council will consider the proposed changes. (Ord. 1856 §1, 1998; Ord. 1770 §55, 1996; (Ord. 1758 §1(part), 1995) Ord 1758 §1(part), 1995) 18.80.040 Staff Report 18.80.060 Council Decision A. At least two weeks prior to Council Following receipt of the Planning Commission's consideration of any proposed amendment to either recommendation on a proposed amendment referred the comprehensive plan or development. regulations, to the Commission, the City Council shall hold a the Department shall prepare and submit to the public hearing on the proposal, for which public notice Council a staff report which addresses the following: has been provided as required under the Public Notice 1. the issues set forth in this chapter; of Hearing chapter of this title. Following the public 2. impact upon the Tukwila Comprehensive hearing, the City Council may: Plan and zoning code; 1. adopt the amendment as proposed; 3. impact upon surrounding properties, if 2. modify and adopt the proposed amendment; or applicable; 3. reject the proposed amendment. 4. alternatives to the proposed amendment; (Ord. 1856 §2, 1998; Ord. 1758 §1(part), 1995) and 5. appropriate code citations and other relevant documents. B. The Department's report shall transmit a copy of the application for each proposed amendment, any written comments on the proposals received by the Department, and shall contain the Department's recommendation on adoption, rejection or deferral of each proposed change. (Ord. 1758 §1(part), 1995) Page 18 --135 S 4BEY ATTACHMENT E COR?ORATION August 13, 2007 VIA HAND DELIVERY City Council City of Tukwila 6200 Southcenter Boulevard Tukwila, WA 98188 Re: Sabey Corporation Comprehensive Plan Amendment Finding of Emergency Dear Councilmembers: In January of 2007, The Sabey Corporation "Sabey") agreed to acquire the 65 -acre property that comprises the Associated Grocers distribution facility in north Tukwila. Although bidders from elsewhere in the United States and around the globe pursued this site, we prevailed in the competition based on our history, understanding and confidence in the future of the City of Tukwila. Perhaps uniquely among the group of bidders, we recognized the prominent position this site plays as a gateway to Tukwila. And certainly we were alone among the bidders in understanding the role of this site in the City's long standing efforts to improve the Highway 99 /Tukwila International Blvd. corridor. These factors suggested a different future for the site than for heavy industrial uses its current zoning designation. We recognized that a change in the designated land use for the property would bring it into conformity with the City's broader planning efforts for North Tukwila, as outlined in the 1995 Comprehensive Plan. Though we recognized that such changes are necessary, we could not put the property under contract and thereafter close on its purchase until after the close of the application process for the 2007 docket of Comprehensive Plan amendments. For this reason, we were not able to file such an application within the normal time period. But the City and State Codes provide for "emergency" exceptions to this filing period, and we are writing today to request that the City Council review and approve such an emergency endorsement of this application so it may proceed forward this fall with the other 2007 Comprehensive Plan amendments on the docket. The site uniquely straddles the boundary between Tukwila and Seattle. The location of this boundary is a historical relic, and does not reflect good land use planning. The bifurcation of this larger site between two jurisdictions will hinder the opportunity to develop this site for the benefit of the City of Tukwila. The differing regulatory frameworks in Tukwila and Seattle pose challenges to coordinated redevelopment. While this property is Tukwila's northern gateway, occupying a landmark position at the head of the Highway 99 /Tukwila International Boulevard corridor, it is effectively an island for the City of Seattle, separated by Boeing Field and Interstate 5 from the rest of the City. The City of Seattle has more important sites and issues to REAL ESTATE DEVELOPMENT Sabey Corporation 206/281 -8700 main linE CONSTRUCTION ARC l j :C T U 12201 Tukwila International Blvd, 4th Floor 206/282 -9951 fax line INVESTMENTS Seattle, Washington 98168 5121 www, sabey.com Tukwila City Council August 13, 2007 Page 2 of 7 deal with than this island property at the southern extremity of its municipal boundary. Simply stated, the redevelopment of this site may be a higher priority for Tukwila than for Seattle. Hence, we request that the City of Tukwila take a leadership role in the land use planning for the total development in order to insure this unique opportunity. The City Council has not yet acted on the 2007 Comprehensive Plan Amendment docket. Thus, there is an opportunity to fold this proposed amendment in with the current process, and still allow the City Council to consider the entire group of amendments comprehensively. Webster's defines an "emergency" as "an unforeseen combination of circumstances that calls for immediate action." This is such a case. Failure to advance the planning process by Emergency Measures on the Comprehensive Plan Amendment will relinquish key decisions to the City of Seattle, and force the project to work through what may be a two -year timeline with the City of Seattle. Therefore, we are asking that you please take action to place this Comprehensive Plan amendment on the 2007 docket by using your right under law as outlined in the emergency action provision of the Tukwila Code. Since the other amendments on the 2007 docket remain pending before the Council, the inclusion of this one will still permit the City to view the amendments together per state policy. For your reference, I have attached a more comprehensive statement in support of this request. Thank you for your consideration of this request. Sincerely, SABEY CORPORATION David A. Sabey /3!4 Enclosures cc: Hon. Steven Mullet Jack Pace Tukwila City Council August 10, 2007 Page 3 of 7 REQUEST The Sabey Corporation "Applicant has filed an application for a Comprehensive Plan amendment and rezone to remove an approximately 36acre parcel south of Boeing Field in the City of Tukwila (shown on Exhibit A) from the Greater Duwamish Manufacturing Industrial Center (MIC). Sabey has also filed a companion application for a rezone of this property to a Light Industrial "LI designation. Sabey requests that the City consider the Comprehensive Plan amendment on its 2007 docket. BACKGROUND The property is a portion of a larger, 65 -acre site that serves as the principal distribution center for Associated Grocers. Of this larger site, approximately 29 acres is located in the City of Seattle. Hence, as a site split between two jurisdictions, it faces a unique set of regulatory challenges in the redevelopment process. The site also holds a unique geographic position at the northern gateway to Tukwila's Highway 99 corridor the northern entrance to the City. Associated Grocers will be relocating from this site at the end of its current lease term, which offers the City the first opportunity in decades to reposition the land use for this gateway location. In many respects, the success of the significant work the City has undertaken in the last 10 years to remake International Boulevard is ultimately dependent upon the establishment of this northern gateway. But the bifurcation of this larger site between two jurisdictions may hinder the realization of this opportunity. The differing regulatory frameworks in Tukwila and Seattle pose challenges to coordinated redevelopment. And while this property is Tukwila's northern Gateway, occupying a landmark position at the head of the Highway 99 corridor, it is effectively an island for the City of Seattle, separated by Boeing Field and Interstate 5 from the rest of the City. The impetus for capturing the redevelopment opportunity at this site must be driven by the City of Tukwila. A window of opportunity for such redevelopment exists in the market today. The existing warehouse distribution center use on the property is in decline, development to the south, west and east of the property in the City of Tukwila is tending toward light industrial and commercial uses, the property is well served by transportation infrastructure, and the property is adjacent to a potential light rail station. Market conditions are favorable. Redevelopment of the property would provide significant benefits to the City of Tukwila. The redevelopment of the property will further the City's goals and policies as reflected in the Comprehensive Plan. In addition, the redevelopment of the property would greatly enhance the aesthetic qualities of the site, which is situated in a highly visible location at the northern gateway to the City. Redevelopment would also provide employment opportunities to City residents. Additionally, the City would receive substantial increased tax revenue from redevelopment. Tukwila City Council August 10, 2007 Page4of7 The late filing of the Comprehensive Plan amendment application was unavoidable. The subject property did not become available for purchase until after the December 2006 deadline for Comprehensive Plan amendments had passed. However, if the Sabey waits until 2008 to begin pursuing land use entitlements for the property, the window of opportunity for redevelopment may have passed. Favorable market conditions may no longer exist. Due to the complexities of the land use permitting for this site, the timing of the City of Tukwila action's on the Comprehensive Plan amendment is crucial. Since, the property is located partially within the City of Tukwila and partially within the City of Seattle, any development must obtain land use approvals from both jurisdictions. The Comprehensive Plan amendment and rezone by the City of Tukwila is the first step in the land use permitting process. Ultimate redevelopment will depend, however, on the successful entitlement of the site in both Tukwila and Seattle. Because of the importance of this site to the City of Tukwila a keystone site at the northern gateway of the City we believe it is critical that the City of Tukwila take the first step in the entitlement process. As an island property to the City of Seattle, and given the scope and complexity of other land use issues faced by Seattle, this site will attract less focus and attention in the Seattle process, which is not in the interest of the City of Tukwila. Thus the City of Tukwila should take the lead this year on the redesignation of this site. However, if the City of Tukwila does not act on the Comprehensive Plan amendment application as part of the 2007 docket, then in order for Tukwila to continue to take a leadership role in this redevelopment effort, the City of Seattle process will be delayed by one to two years, due to the permitting time frames of the City of Seattle. Hence, action on this Comprehensive Plan amendment by the City of Tukwila should occur in 2007. Even though the Comprehensive Plan application was filed after the December 2006 deadline, the City Council has yet to act on the docket of amendments for this year. Thus, inclusion of this amendment in this year's docket will allow the City to review all such Comprehensive Plan amendment applications at the same time. For these reasons, an emergency exists. The City Council should consider the Comprehensive Plan amendment on its 2007 docket, concurrent with other pending applications. DISCUSSION City Code and State Law Requirements TMC §18.80.010 provides: A. The Department shall maintain a docket of all proposed changes to the Comprehensive Plan and development regulations that are submitted. If either the Department or the Council determines that a proposed change may be an emergency, the Department shall prepare the staff report described below and forward the proposed Tukwila City Council August 10, 2007 Page 5 of 7 change to the Council for immediate consideration, subject to the procedural requirements for consideration of amendments. An emergency amendment is a proposed change or revision that necessitates an expeditious action to address one or more of the following criteria: 1. Preserve the health, safety or welfare of the public. 2. Support the social, economic or environmental well -being of the City. 3. Address the absence of adequate and available public facilities or services. 4. Respond to decisions of by the Central Puget Sound Growth Management Hearings Board, the state or federal courts, or actions of a state agency or the legislature. B. Non emergency changes shall be compiled and submitted to the Council for review on an annual basis in March so that cumulative effects of the proposals can be determined. Proposed changes received by the Department after January 1 of any year shall be held over for the following year's review, unless the Council or the Depai taient determines the proposed change may be an emergency. Only one of these criteria must be met in order to establish an emergency. TMC 18.80.010. This provision implements the Growth Management Act "GMA requirement that comprehensive plans be amended no more than once a year, with some exceptions. RCW 36.70A.130(2)(a). An Emergency Exists As Defined by Code The proposed comprehensive plan amendment qualifies as an emergency under TMC 18.80.010. Under that section, only one of the listed criteria must be met in order for an emergency to exist. Here, the proposed Comprehensive Plan amendment will support the social, economic and environmental well -being of the City. Social and Economic Well -Being Furtherance of Economic Development Goals The proposed Comprehensive Plan amendment will allow the redevelopment of the subject property under the LI zoning designation. Redevelopment of the subject property will further the economic development goals of the City as reflected in its Comprehensive Plan. Under Comprehensive Plan Policy 2.1.10, the City should consider land use changes for warehouses if there is a change in sales tax sourcing rules. The property is currently occupied with a warehouse and distribution use. Changes in State sales tax sourcing rules have recently occurred. Specifically, in March 2007, the Legislature passed legislation allowing the State to join the Streamlined Sales Tax Project, which it did in July 2007. Under prior law, the jurisdiction where a product originates receives the sales tax. With the recent change, the Tukwila City Council August 10, 2007 Page 6 of 7 jurisdiction where the product is delivered receives the tax. Accordingly, land use changes are appropriate under Policy 2.1.10. The proposal is also consistent with a number of other goals and policies of the Economic Development element of the Tukwila Comprehensive Plan. Comprehensive Plan Goal 2.1 promotes "continuing enhancement of the community's economic well- being." Policy 2.1.12 calls for the City to "[p]romote Tukwila as a regional crossroads for commerce." The redevelopment of the subject site will further these goals by bringing new businesses to the City. Furtherance of Community Image Goals The proposal will further Community linage goals and policies of the Comprehensive Plan, including Comprehensive Plan Goal 1.3 (identifiable boundaries for Tukwila) and Policy 1.3.1 (develop a set of gateways). The property has a highly visible location at the northern boundary to the City. The redevelopment of this site for the first time in 50 years will trigger the City's design review process, and ensure that new structures at the site will be of a high quality and will respond to and reinforce the gateway attributes of the property. As a result, the prominence and aesthetic qualities of the site will be enhanced significantly. Such enhancement will be critical to the long -term success of the City's determined efforts to reposition the Highway 99 corridor. The property will serve as the northern gateway to the City and the entry to the redeveloped International Boulevard corridor. Furtherance of Transportation Corridors Goals The proposal will further Transportation Corridor Goal 8.1 (transportation corridors that are functional, attractive and diverse). The redevelopment of the property will enhance the aesthetic qualities of the transportation corridors that form its boundaries, including Airport Way S., E. Marginal Way, S. Norfolk St., and S. Boeing Access Road. The project will provide any traffic improvements required by the City in connection with project development. Furthermore, the site is located adjacent to a potential Link Light Rail station, providing possible connectivity to all points on the light rail network. City Revenue Additionally, the redevelopment of the property will result in substantial additional tax revenue to the City of Tukwila. Please see the attached report from ECONorthwest regarding these potential fiscal impacts. Environmental Well -Being Any development on the site would comply with all applicable environmental regulations. In addition, prior to development, specific development plans would be subject to environmental review under the State Environmental Policy Act. Tukwila City Council August 10, 2007 Page 7 of 7 Conclusion For these reasons, the proposed Comprehensive Plan amendment constitutes an emergency as that term is defined under TMC §18.80.010.A.2. We request that the City Council take action to place this proposed Comprehensive Plan amendment on the 2007 docket. GMA Requirements Are Met If the Council agrees to consider the proposed Comprehensive Plan amendment on the 2007 docket, it will be considered along with other applications on the docket. The Council will take action on all pending applications at the same time. Accordingly, the requirement of the Growth Management Act that the comprehensive plan be amended once a year is satisfied. RCW 36.70A.130(2)(a). CONCLUSION An emergency exists justifying the consideration of the proposed Comprehensive Plan amendment on the 2007 docket. Accordingly, the City Council should consider the proposed amendment in 2007 rather than delaying consideration of this application until next year. L:VMH GeneraNTemplates\Letter.doi ATTACHMENT F ECONorthwest ECONOMICS FINANCE PLANNING Phone (541) 687 -0051 Suite 400 Other Offices FAX (541) 344 -0562 99 W. 10th Avenue Portland (503) 222 -6060 info@eugene.econw.com Eugene, Oregon 97401 -3001 Seattle (206) 622 -2403 August 9, 2007 TO: Mikel Hansen FROM: Terry Moore, Bob Parker, and Beth Goodman SUBJECT: ANALYSIS OF IMPACTS OF A COMPREHENSIVE PLAN AMENDMENT AND ZONE CHANGE AT THE ASSOCIATED GROCERS SITE SUMMARY Sabey Corporation is submitting an application for a Comprehensive Plan Amendment and zoning change on the 64 -acre Associated Grocers site. The analysis in this memorandum supports that application by addressing specific questions that the City has raised about the proposed changes. This section (two pages) summarizes our answer to those questions; the memorandum that follows this summary provides supporting data and analysis. CONTEXT The subject property is in Tukwila's Manufacturing Industrial Center (MIC). Its plan designation and zoning is MIGH (Heavy Industrial). Sabey Corporation is requesting a change to Light Industrial (LI), which would allow for the development of office, commercial, and retail space as well as other light industrial uses. Sabey Corporation is planning to develop the property for office, retail, and light industrial. The City of Tukwila is concerned that the type of development proposed for the subject property could (1) discourage or be incompatible with existing uses in the MIC, (2) increase pressure for conversions from heavy industrial to commercial land, (3) decrease the amount of land available for industrial growth, and (4) compete or take market share for retail and commercial developments in Tukwila's Urban Center. IMPACTS TO INDUSTRIAL LAND 1. Will the proposed Comprehensive Plan Amendment significantly impact future industrial development on parcels near the subject property in the MIC? No. The majority of land near the subject property is already being used for commercial or light industrial uses. 2. Will the proposed uses on the subject property be compatible with existing and expected industrial uses in the MIC? Yes. Regional trends and local forecasts indicate that manufacturing employment is growing slowly or decreasing. Official regional, long- term employment forecasts suggest the majority of employment that Tukwila can expect t US 3 2g �v� Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 2 in the future is Professional and Business Services and other types of employment that use office space. Boeing Field and Boeing properties separate the subject property from the heaviest industrial uses in the MIC. 3. Is granting the Comprehensive Plan Amendment likely to increase demand for conversion from industrial to commercial uses on areas adjacent to the subject property? Maybe, especially south of the subject site. That land is currently being used, however, for commercial and light industrial purposes. The pressure for conversion of this land to commercial uses is more likely to be affected by regional land prices for industrial land and employment trends than changes to the subject property. 4. Does the proposed development negatively impact the City's policy to have adequate land for industrial growth? Yes and no. Changing the zoning on the proposed development clearly reduces the amount of land for some industrial uses (the property is roughly 4% of the industrial land in Tukwila), and allows the option to develop more of the land for office and retail uses. But the market trends have been clear for a while: land on and around the subject property is not being used much by heavy industry, and the subject property is now used for light industrial and commercial purposes. There is a reasonable, but not definitive, argument that the change in designation will have little impact on the long -run viability of industrial uses in Tukwila given market forces and the way the MIC/H zone is defined and implemented. IMPACTS TO THE URBAN CENTER 1. How will the uses on the subject site be similar and different from the uses in the Tukwila Urban Center? The uses in the Tukwila Urban Center include a regional mall, high- density residential development, and a large mixed -use development. The uses on the subject site will be a smaller -scale mixture of retail, commercial, and light industrial uses. Most of the uses will primarily serve people working on or near the site, visitors wanting to stay near Sea -Tac International Airport, and people living relatively near the subject site. 2. To what extent will the commercial and retail uses in the proposed development compete with commercial and retail uses in the Tukwila Urban Center and other developments within the City? There is no question that the proposed uses will compete with development in other areas of Tukwila: that is the nature of all types of development, and especially retail. The broader question is whether enough demand exists to support all of the existing and proposed developments in Tukwila, including development on the subject property. PSRC forecasts strong employment growth in Tukwila for sectors that use office space. Population growth, coupled with increases in disposable income, will create demand for additional retail space. 3. What is the market area for the proposed development compared to the Tukwila Urban Center? The development concept includes two primary uses: employment (office and some industrial) and retail. The employment uses will draw workers from throughout the region. The retail uses will draw from a smaller market area. Since the mix of retailers is not yet specified, we cannot say definitively exactly what the market area will be. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 3 INTRODUCTION BACKGROUND Sabey Corporation contracted with ECONorthwest to analyze the impacts of a Comprehensive Plan Amendment and zoning change on the 64 -acre Associated Grocers distribution site, located in north Tukwila and south Seattle. The subject property is located in Tukwila's Manufacturing/Industrial Center (MIC) The Manufacturing/Industrial Center (MIC) is an area designated in Tukwila's comprehensive plan as a manufacturing center. It includes land zoned for Manufacturing Industrial Center/Heavy Industrial (MIC/H) and Manufacturing Industrial Center/Light Industrial (MIC/L). The subject property is zoned MIC/H. Figure 1 shows that the subject property is located between Airport Way, Norfolk Road, East Marginal Way, the Duwamish River and the Boeing Access Road. The property is separated from other properties in the MIC by these roads, except along the northwestern edge of the property, which is adjacent to a credit union. Figure 1. Subject property and immediate transportation access •��i v =mil t..- ,..4.- w KingAuitt'' Internationa Airport T max_ v 1/,- a: i ter. 4 t.. T E S it 1 °St- f �b 599 N Source: Johnson Gardner memorandum 'Draft Economic and Market Trends Shaping Industrial Land Need in the Duwamish Corridor," May 10, 2007 Fifty -five acres of the 64 -acre site are occupied by the Associated Grocers headquarters and distribution facility, a light industrial use that has existed in the heavy industry zone for the past Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 4 50 years. Associated Grocers is considering changing the Iocation of its facility; it is unclear whether they will continue using the site for more than two to four years. Sabey Corporation is seeking a Comprehensive Plan Amendment and zoning change on the property to bring the zoning in line with historical and likely future uses. The current plan designation is for heavy industrial uses MIC/H on the portion of the site in Tukwila and IG2 on the portion of the site in Seattle). Sabey Corporation is requesting a change in plan designation and zoning to Light Industrial, LI. The purposes and uses permitted in these zones are described in Tukwila's zoning ordinance: Manufacturing/Industrial Center Heavy (MIC/H) District "...is intended to provide a major employment area containing heavy or bulk manufacturing and industrial uses, distributive and light manufacturing and industrial uses, and other uses that support those industries. This district's uses and standards are intended to enhance the redevelopment of the Duwamish Corridor." The district allows a wide range of uses and building types: manufacturing, heavy -metal processing, rock crushing and asphalt or concrete manufacturing, offices associated with permitted uses, warehouse and distribution facilities, storage facilities, hotels and motels, and restaurants. Light Industrial (LI) District "...is intended to provide areas characterized by distributive and light manufacturing uses, with supportive commercial and office uses." The district allows a wide range of uses and building types: manufacturing (similar to manufacturing permitted in MIC/H), many types of office, medical and dental laboratories and offices, retail sales, warehouse and distribution facilities, storage facilities, hotels and motels, and restaurants. Sabey Corporation is considering redeveloping the site for commercial and light industrial uses. Table 1 shows Sabey Corporation's concept of the possible uses on the site. The majority of the uses would be office and retail, with a small amount of other commercial and light industrial uses. Although the Sabey Corporation does not have definite plans for the components of the development, it hopes to develop a mixed -use center that provides opportunities for working, recreation and socialization, and shopping in the same area. The development is likely to be pedestrian- oriented and incorporate open space. The site is currently served by bus and SoundTransit may develop the proposed light rail and commuter train station at the Boeing Access Road. Plans to develop this station have been deferred by Sound Transit until financing is available for the station. Table 1. Conceptual development types on the Associated Grocers site Est. Size Possible Use (Square feet) Percent Office 700,000 47% Retail 550,000 37% Light Industrial 100,000 7% Hotel 80,000 5% Theatre 60,000 4% Total 1,490,000 100% Source: Sabey Corporation model of possible uses Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 5 Previous studies documented regional economic trends in support of the proposed amendments.' A Johnson Gardner study made the following findings about regional economic trends: The subject property has unique qualities that support the change in uses, including the site's size, visibility, multiple modes of access, nearby industries, and the potential for growth in King County. Growth in manufacturing, particularly heavy industrial activity, will be stagnant over the medium- and long -term periods in King County and the Puget Sound region. The combination of increasing costs of industrial land and outflow of traditional heavy industry create disadvantages for future use of the subject property by a new manufacturer or other firm that needs traditional industrial space. Forecasts and plans by the State of Washington, the Puget Sound Regional Council, and the Prosperity Partnership expect heavy industry to continue to be important to the regional economy but expect a long -term decline in heavy manufacturing and are planning to encourage growth in technical and scientific industries. The current zoning of the property (MIC/H) creates barriers to redeveloping the subject property for uses compatible with the expected regional growth in high -tech, scientific, research, and commercial services industries. PURPOSE OF THE MEMORANDUM This memorandum provides supporting documentation to Sabey Corporation's application for a Comprehensive Plan Amendment and zoning change on the subject property. It addresses specific questions pertaining to the potential impacts of a Comprehensive Plan Amendment and zoning change on the subject site. In short, the purpose of this memorandum is to describe local industrial, commercial, and retail land -use trends that affect future uses of the site, and how (and whether) the Comprehensive Plan Amendment would impact the city's planning efforts. The City of Tukwila is concerned about the impact of the proposed Comprehensive Plan Amendment on existing industrial land and existing and planned commercial uses within its city limits. The City is especially interested in the potential impacts of the proposed Comprehensive Plan Amendments on the Tukwila Manufacturing/Industrial Center (MIC) and the Tukwila Urban Center (TUC), as well as strategies to mitigate any potential impacts. Specifically, the City is concerned about: How the proposed Comprehensive Plan Amendment may impact industrial land near the subject property in the MIC Whether the proposed Comprehensive Plan Amendment may encourage other property owners to apply for conversion of industrial land to commercial land Compatibility between the proposed uses on the subject property and uses on surrounding industrial lands I Johnson Gardner memorandum "Draft Economic and Market Trends Shaping Industrial Land Need in the Duwamish Corridor," May 10, 2007 Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 6 How the potential commercial development on the subject site will effect other commercial uses in Tukwila ORGANIZATION OF THE MEMORANDUM The remainder of the memorandum is organized as follows: Framework for evaluation summarizes the procedures and criteria for amending Tukwila's Comprehensive Plan and Zoning Code that are addressed in this memorandum. Analysis provides answers for each of the questions presented in the Framework section. SCOPE OF THE EVALUATION Sabey Corporation has applied for a Comprehensive Plan Amendment on the subject property. Tukwila has procedures and criteria for amending its comprehensive plan and Zoning Code, which note that "The burden of proof to demonstrate that a change to the Comprehensive Plan or Zoning Code is warranted lies solely upon the proponent. An application to amend Tukwila's Comprehensive Plan must address the criteria specified by the City in its "Application for a Comprehensive Plan Amendment." This memorandum is not the Sabey Corporation's application, which is being submitted separately and addresses all of the criteria. Rather, this memorandum supports that application by addressing in more detail the following criteria for the Comprehensive Plan Amendment: Explain why the proposed change is the best means for meeting identified public need and describe other options for meeting the public need. Explain why the proposed change will result in a net benefit to the community or the type of benefit that can be expected. Describe the anticipated impacts of the change, including the geographic area affected and the issues presented by the proposed change. Explain why the current comprehensive plan or development regulations are defective or should not continue in effect. Describe how the proposed amendment complies with applicable Countywide Planning Policies. Describe what changes would be required in the Zoning Code. In addition to requesting a change in the Comprehensive Plan, Sabey Corporation will also need to request a change to Tukwila's Zoning Code. An application to amend Tukwila's Zoning Code must address criteria presented in the application for a Zoning Code Amendment. This memorandum addresses the following criteria for the Zoning Code Amendment: Show that the proposed amendment to the zoning map is consistent with the goals, objectives, and policies of the comprehensive plan. 2 From the City of Tukwila "Comprehensive Plan Amendments" application. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 7 Show that the proposed amendment to the zoning map is consistent with the scope and purpose of this title and the description and purpose of the zone classification applied for. Demonstrate that there are changed conditions since the previous zoning became effective to warrant the proposed amendment to the zoning map. Describe how the proposed amendment to the zoning map will be in the interest of furthering public health, safety, comfort, convenience and general welfare, and will not adversely affect the surrounding neighborhood, nor be injurious to other properties in the vicinity in which the subject property is located. In meetings between staff at the Sabey Corporation and the City prior to the submission of the Sabey Corporation's application, City staff identified several concerns regarding the impacts of the proposed Comprehensive Plan Amendment. This memorandum addresses concerns the City raised about the proposed Comprehensive Plan Amendment. What are the potential impacts of the proposed Comprehensive Plan Amendment on industrial land in the Manufacturing/Industrial Center? This section will address the affect that the proposed Comprehensive Plan Amendment may have on industrial land in the MIC, including compatibility issues and increases in pressure to convert land from industrial to commercial uses. It will discuss possible strategies for mitigating these impacts. What are the potential impacts of the proposed Comprehensive Plan Amendment on uses in Tukwila's Urban Center? This section will address the impact of the proposed amendment and development on existing commercial and retail uses in Tukwila's Urban Center. It will discuss possible strategies for mitigating these impacts. The analysis section of this memorandum addresses these broad questions, and several related ones. ANALYSIS ECO staff worked with City staff to understand the key issues and analysis required to support the Comprehensive Plan Amendment. This section provides analysis of the two broad questions posed above. The analysis is separated into two parts: impacts of the proposed Comprehensive Plan Amendment on industrial; and impacts of the proposed Comprehensive Plan Amendment on other commercial uses in Tukwila. POTENTIAL IMPACTS OF THE PROPOSED COMPREHENSIVE PLAN AMENDMENT ON INDUSTRIAL LAND IN THE MANUFACTURING/INDUSTRIAL CENTER The City of Tukwila is concerned about the potential impacts of the proposed Comprehensive Plan Amendment on industrial land in the City's Manufacturing/Industrial Center (MIC). The City's questions are: 1. Will the proposed Comprehensive Plan Amendment significantly impact future industrial development on parcels near the subject property in the MIC? Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 8 2. Will the proposed uses on the subject property be compatible with existing and expected industrial uses in the MIC? 3. Is granting the Comprehensive Plan Amendment likely to increase demand for conversion from industrial to commercial uses on areas adjacent to the subject property? 4. Does the proposed development negatively impact the City's policy to have adequate land for industrial growth? 5. How can the impacts of the Comprehensive Plan Amendment be mitigated? The following analysis addresses these questions. The conclusions at the end of this section provides answers to the questions. Industrial land availability in Tukwila Table 2 shows land uses in Tukwila by plan designation and zoning. The City has designated 1,436 acres —more than one quarter of the City's land —for industrial uses; 1,168 -acres are in the MIC/H zone. An additional 753 acres (14% of the City's land) is in zones that allow a mixture of commercial and industrial uses, and 1,144 -acres (21% of the City's land) are in commercial zones. The proposed Comprehensive Plan Amendment would change 64 acres of MIC/H land to LI. The City only has 20 acres currently in the LI zone. Table 2. Land by zoning district, gross acres, Tukwila, 2007 Zone Acres Percent Industrial 1,436 27% Manufacturing Industrial Center/Heavy Industrial (MIC /H) 1,168 22% Heavy Industrial (HI) 144 3% Manufacturing Industrial Center /Light Industrial (MIC/L) 105 2% Light Industrial (LI) 20 0% Mixed Commercial and Industrial 753 14% Commercial Light Industrial (C/LI) 472 9% Tukwila Valley South (TVS) 281 5% Commercial 1,144 21% Tukwila Urban Center (TUC) 853 16% Regional Commercial (RC) 80 1% Regional Commercial Mixed Use (RCM) 77 1% Office (0) 53 1% Neighborhood Commercial Center (NCC) 52 1% Mixed Use Office (MOU) 21 0% Residential Commercial Center (RCC) 8 0% Residential 2,049 38% Low Density Residential (LDR) 1,797 33% High Density Residential (HDR) 161 3% Medium Density Residential (MDR) 91 2% Total 5,383 100% Source: City of Tukwila, 2007 Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 9 Table 3 shows the distribution of land uses within the Manufacturing/Industrial Center in Tukwila in 2005, the City's key industrial zone. The majority of the land (913 acres) is developed. Other uses include the King County International Airport (175 acres) and vacant land (134 acres). The subject property is 64 acres and represents about 5% of the land within the MIC. Table 3. Land uses in the Manufacturing and industrial Center, Tukwila, 2005 Acres Percent Developed Land 913 72% Airport 175 14% Vacant Land 134 11% Water 34 3% Right -of -Way 16 1% Total 1,272 100% Source: Tukwila Comprehensive Plan, 2005 and Tukwila City staff, 2007 According to Tukwila City staff, vacant land is defined a s land having an improvement value of less than 55,000. Table 4 shows the distribution of employment for firms located in the Manufacturing/Industrial Center in 2005. About 85% of the more than 18,000 employees in the Center were employed by firms needing industrial land, including processing firms (including manufacturing) and wholesale firms. Table 4. Employment in the Manufacturing and Industrial Center, Tukwila, 2005 Employees Percent Processing 13,845 76% Professional Office 1,887 10% Wholesale 1,644 9% Other 453 2% Retail 362 2% Total 18,191 100% Source: Tukwila Comprehensive Plan, 2005 In 2007, Associated Grocers employed about 750 people at the subject property, approximately 4% of the employment in the Center. About 400 of the jobs (53 of the jobs were in distribution and 350 of the jobs (47 were office related. These categories of employment do not precisely match the categories presented in Table 4. The distribution employees are probably covered under "Wholesale" in Table 4 and the office- related employees are probably accounted for in "Professional Office in Table 4. The data presented in this section suggest that the proposed change in plan designation on the subject property would affect about 6% of the land area and about 4% of the employment in the MIC. The amount of land zoned in the City Light Industrial (LI) would increase from 20 -acres to 84- acres. Granting the Comprehensive Plan Amendment would result in a change in the composition of economic activity on the site, possibly increasing economic activity on the subject property. The Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 10 existing use of the subject property is light industrial and commercial in nature, and has no heavy industrial component. Sabey Corporation is proposing to increase the share of office and retail jobs and decrease the share of light industrial employment. Assuming the subject site is developed as proposed by Sabey Corporation in Table 1, the subject property may have 2,500 or more employees, more than three- quarters of which would be office jobs. Changes in employment and demand for industrial land A key question is how the Comprehensive Plan Amendment will affect employment and demand for industrial land. External but important to this question are regional employment trends that will shape demand for land and built space in the MIC/H zone. The Johnson Gardner memorandum documents the projected change in payroll employment in King County. It states that the Washington Employment Security Department projected that the sectors that will add the most employment in King County over the next ten -years are industries that traditionally use office space. These industries are expected to account for nearly 69% of new job growth in the County. Professional and Business Services are expected to lead job growth and Manufacturing firms are expected to account for only 2% of new jobs. Table 5 shows the Washington Employment Security Department projection of job growth in Manufacturing industries for the 2004 to 2014 period. The industries that are projected to add the most jobs are Aerospace (3,000 new jobs), Nonmetallic Mineral Products (1,300 new jobs), and Food Manufacturing (1,200 new jobs). The industries that are projected to loose the most jobs are Printing and Related Support -700 jobs) and Paper and Paper Products -200 jobs). 3 The estimate of 2,500 employees is based on the amount of space by type that the Sabey Corporation is considering building on the subject property (shown Table 1) and the employment densities presented on page 45 of the Puget Sound Regional Council's document "Industrial Land Supply and Demand in the Central Puget Sound Region." Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 11 Table 5. Manufacturing employment forecast, King County, 2004 -2014 Estimated Employment Change 2004 to 2014 Industry 2004 2009 20141 Number Percent AAGR Manufacturing 103,500 115,000 110,400 6,900 7% 0.6% Durable Goods 76,700 87,600 83,200 6,500 8% 0.8% Aerospace 37,300 45,000 40,300 3,000 8% 0.8% Nonmetallic Mineral Products 3,100 4,000 4,400 1,300 42% 3.6% Wood Products 1,300 1,800 1,800 500 38% 3.3% Machinery 5,200 5,700 5,700 500 10% 0.9% Fabricated Metal Products 6,100 6,700 6,500 400 7% 0.6% Electrical Equipment and Appliances 1,700 1,900 2,000 300 18% 1.6% Misc. Manufacturing 5,500 5,500 5,800 300 5% 0.5% Computer and Electronic Products 9,100 9,400 9,300 200 2% 0.2% Furniture Related Prod. 2,600 2,700 2,800 200 8% 0.7% Primary Metals 900 900 800 -100 -11% -1.2% Other Transportation Equipment 3,900 4,000 3,800 -100 -3% -0.3% Non Durable Goods 26,800 27,400 27,200 400 1% 0.1% Food Manufacturing 12,200 13,000 13,400 1,200 10% 0.9% Chemicals 1,800 2,000 2,000 200 11% 1.1% Petroleum Coal Prod. 200 200 200 0 0% 0.0% Plastics Rubber Prod. 3,100 3,100 3,100 0 0% 0.0% Textile Apparel 2,200 2,400 2,100 -100 -5% -0.5% Paper Paper Prod. 2,000 1,800 1 ,800 -200 -10% -1.0% Printing Related Support 5,300 4,900 4,600 -700 -13% -1.4% Source: Washington Employment Security Department The Puget Sound Regional Council (PSRC) projects employment for small areas in the Puget Sound Region. Table 6 shows the PSRC's long -term forecast for employment in the Tukwila Forecast Analysis Zones (FAZ) for the 2000 to 2040 period. The PSRC projects that the Tukwila FAZs will add about 27,500 jobs over the 40 -year period. The forecast shows that the majority of new jobs will be in Services, including Finance and Insurance and Real Estate. Employment in Manufacturing is forecast to decline by more than 3,600 jobs. Employment in Wholesale Trade, Transportation Services, Communications, and Utilities (WTCU) is forecast to grow by more than 1,800 jobs. Some or most of the employment growth in WTCU sectors will choose to Iocate on industrial land. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 12 Table 6. Employment forecast, Tukwila FAZs, 2000 -2040 Total MFG WTCU Retail FIRES Gov /ED Emp. 2000 11,369 6,302 11,226 13,113 2,278 44,288 2040 7,761 8,147 12,460 41,267 2,199 71,834 Change Number -3,608 1,845 1,234 28,154 -79 27,546 Percent -32% 29% 11% 215% -3% 62% Source: Puget Sound Regional Council Notes: The PSRC uses Census tracts as the geographic basis of the Forecast Analysis Zones (FAZ). The Census tracts do not generally follow political boundaries. As a result, the forecast in Table 6 may include areas outside of Tukwila and/or may exclude areas inside the city limits. Table 6 includes the South Tukwila and North Tukwila/Riverton FAZs MFG is manufacturing WTCU includes wholesale trade, transportation services, communications, and utilities FIRES includes finance and insurance, real estate, and services Gov /ED includes govemment and education The predicted employment shifts are already beginning to take place. According to Tukwila's Comprehensive Plan, Boeing controls 750 acres within the Manufacturing/Industrial Center. With the move of their corporate headquarters out the region, Boeing is in the process of converting its facilities into an aerospace research and development engineering campus, including office, laboratory, and manufacturing space. According to staff with the City of Tukwila, Boeing's current activities within the MIC are predominantly light industrial in nature, including manufacturing airplane components from carbon fiber, assembling plane parts that were manufactured elsewhere, and software development for research and development. Boeing is likely to have low to moderate growth on its land within the MIC. The PSRC employment forecasts suggest that employment in manufacturing in Tukwila will decrease throughout the 2000 -2040 planning horizon. The MIC/H zone primarily targets manufacturing. Declining manufacturing employment strongly suggests declining demand for land and built space. The proposed Comprehensive Plan Amendment recognizes these trends and would provide land for the office and retail sectors where PSRC projects most of the employment growth will occur. Potential impacts of the Comprehensive Plan Amendment on land near the subject property in the MIC The subject property is located on the eastern edge of the MIC. It is bounded by East Marginal Way S and the Duwamish River on the west, Norfolk Road and Boeing Field on the north, Airport Way on the east, and the Boeing Access Road to the south. The property is located near the southern edge of properties zoned MIC/H, and the freeway borders the property to the east. The only parcel that the subject site is directly adjacent to is a credit union, to the north. Other surrounding uses include Boeing facilities, a restaurant, and the Museum of Flight. Existing uses near the subject property are light industrial and comrnercial in nature, rather than heavy industrial. Thus, several conditions suggest that the change in use at the subject property would not necessarily cause other properties in the MIC area to become less desirable for the kinds of uses allowed in the MIC: The subject property is at the edge of the MIC, not in the center Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 13 The subject property is bounded mainly by roads, which reduce direct impacts on surrounding property. Where it touches other parcels, the uses are already commercial (a credit union, a restaurant and the Museum of Flight), not industrial. Independent of the MIC/H designation, the de facto land uses in the MIC/H area would be better characterized as Light Industrial, and would not conflict with LI uses. The majority of the current uses on land within the MIC can be described as light industrial, as defined in the Tukwila Comprehensive Plan. There is comparatively little heavy industrial activity on land in the MIC in Tukwila. The closest large -scale heavy industrial activity is Delta Marine, a ship building firm located along the west side of Duwamish River outside of Tukwila. Boeing controls most of the land in the MIC/H (approximately 750 acres) and, thus, largely has control of its own destiny. Boeing's use of its facilities within the MIC have changed substantially over the past fifteen years. It has already shifted most of its properties to the Light Industrial end of allowable uses in the MIC/H. It may choose to continue that trend, but it is unlikely to be forced in that direction by a rezoning of the subject property to LI. Its current uses are not only compatible with but may be possibly enhanced by the type of development proposed on the subject site. The proposed Comprehensive Plan Amendment for the subject property is a symptom of the increasing importance of services that require office space, such as Professional and Technical Services, in the regional and local economy. Granting the proposed Comprehensive Plan Amendment on the subject property will not change long -term decline in the demand for heavy industrial uses, employment, and land. Denying the proposed Comprehensive Plan Amendment, however, could result in the long -term underutilization or even disuse (if Associated Grocers relocates) of the subject property. A key concern of the City is whether this Comprehensive Plan Amendment will lead to other proposed Comprehensive Plan Amendments in the MIC/H resulting in a "domino" effect in the area. Our evaluation is that the Comprehensive Plan Amendment on the subject site will not itself, result in such an effect. First, the site is relatively isolated from other sites in the area. Second, the development concept would support many existing uses in the area. Third, while manufacturing employment is projected to decline, there will still be a projected 7,800 manufacturing jobs in the Tukwila area in 2040. However, if the PSRC's employment forecast for the Tukwila FAZs is correct, the trends towards decreasing manufacturing employment may result in lower demand for industrial land and an increase in the pressure to convert heavy industrial land to light industrial or commercial uses. According to the PRCS's forecast Tukwila will experience changes in the composition of its workforce, most notably a decrease in manufacturing employment. The result of this change may be a decrease in the demand for industrial land, especially heavy industrial land. Change of employment and land uses in the MIC The shift from heavy industrial uses to light industrial and commercial uses in the portion of the MIC near the subject site, including Boeing's land, has already occurred without Comprehensive Plan Amendments. The regional employment trends discussed above and in the Johnson Gardner study describe trends away from heavy industrial employment in the region and in Tukwila. The types of firms that are most likely to be attracted to the region require commercial office or Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 14 campus -style development, including high -tech, scientific, research, and other "creative" industries. Aside from the subject property, the non Boeing land that is most likely to be under pressure to convert from heavy industrial to commercial uses are the parcels south of the subject site, east of the Duwamish River between Tukwila International Boulevard, East Marginal Way South, and Interstate 5. The existing uses on these sites are largely commercial in nature, including office buildings and a hotel. It may be that allowing the subject property to convert from a designation of heavy industrial to light industrial will increase pressure on these parcels to convert to commercial uses. On the other hand, some of the existing uses are commercial. Allowing the conversion of the subject property may create an opportunity to develop a commercial and light industrial gateway into Tukwila, encouraging redevelopment of existing commercial and industrial uses. Mitigating the impacts of the Comprehensive Plan Amendment One of the City's concerns is the conversion of industrial land to commercial uses. We have noted that broader forces than local zoning are driving such conversions. The state projects that future employment growth in Manufacturing—especially heavy manufacturing —will be stagnant and that the majority of employment growth will be in Services especially Professional and Business Services. The PSRC's forecast of employment in Tukwila shows that these trends are expected to impact Tukwila. Thus, two reinforcing economic factors are reinforcing changes in local land markets: Manufacturing is growing slowly if at all. And the growth that is occurring is looking more and more like the kinds of activities that would be called Light Industrial: flex space in business parks that mix office and manufacturing assembly uses. Professional services are growing rapidly. Those uses need office space. Office space can be stacked, so it can have more employment density. It does not conflict with surrounding amenity (like industrial uses can): it seeks surrounding amenity (especially professional and retail services). It can afford to pay two, three, or four times as much for land as manufacturing and warehousing, which are land intensive. The result is that in metropolitan areas around the country, former industrial land near rejuvenating downtowns is converting to commercial uses. It is not that manufacturing would not like to have that land —it would. Rather, it is that it cannot afford to pay the prices that commercial uses can pay and still be profitable. Manufacturing moves farther out, abetted by cheaper land that is still well served by highways. If future Comprehensive Plan Amendments are a concern to the City, the City can slow the conversion of land in the MIC to light industrial and commercial uses by identifying the key industrial sites and adopting more aggressive policies to preserve these sites. CONCLUSION: IMPACTS TO INDUSTRIAL LAND I. Will the proposed Comprehensive Plan Amendment significantly impact future industrial development on parcels near the subject property in the MIC? No. The Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 15 majority of land near the subject property is already being used for commercial or light industrial uses. 2. Will the proposed uses on the subject property be compatible with existing and expected industrial uses in the MIC? Yes. Regional trends and local forecasts indicate that manufacturing employment is growing slowly or decreasing. Official regional, long- term employment forecasts suggest the majority of employment that Tukwila can expect in the future is Professional and Business Services and other types of employment that use office space. Boeing Field and Boeing properties separate the subject property from the heaviest industrial uses in the MIC. 3. Is granting the Comprehensive Plan Amendment likely to increase demand for conversion from industrial to commercial uses on areas adjacent to the subject property? Maybe, especially south of the subject site. That land is currently being used, however, for commercial and light industrial purposes. The pressure for conversion of this land to commercial uses is more likely to be affected by regional land prices for industrial and employment trends than changes to the subject property. 4. Does the proposed development negatively impact the City's policy to have adequate land for industrial growth? Yes and no. Changing the zoning on the proposed development clearly reduces the amount of land for some industrial uses (the property is roughly 4% of the industrial land in Tukwila), and allows the option to develop more of the land for office and retail uses. But the market trends have been clear for a while: land on and around the subject property is not being used much by heavy industry, and the subject property is now used for light industrial and commercial purposes. There is a reasonable, but not definitive, argument that the change in designation will have little impact on the long -run viability of industrial uses in Tukwila given market forces and the way the MIC/H zone is defined and implemented. POTENTIAL IMPACTS OF THE PROPOSED COMPREHENSIVE PLAN AMENDMENT ON USES IN TUKWILA'S URBAN CENTER The City of Tukwila is concerned about the potential impacts of the proposed Comprehensive Plan Amendment on existing commercial uses in the City's Urban Center. The City staff asked ECO to address the following questions: 1. How will the uses on the subject site be similar and different from the uses in the Tukwila Urban Center? 2. To what extent will the commercial and retail uses in the proposed development compete with commercial and retail uses in the Tukwila Urban Center and other developments within the City? 3. What is the market area for the proposed development compared to the Tukwila Urban Center. Proposed uses compared to other commercial uses in Tukwila The Comprehensive Plan Amendment proposes a mix of uses for the subject property: 700,000 square feet of office development Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 16 550,000 square feet of retail development, plus an 80,000 square foot hotel and a 60,000 square foot theater 100,000 square feet of light industrial development These uses amount to approximately 1.49 million square feet of built space on the site. A key question is: To what extent will the conceptual mix of uses compete with other commercial centers in Tukwila? In other words, the City's concern is whether the proposed Comprehensive Plan Amendment would draw demand for development in other areas of Tukwila to the subject property. Such an outcome could be inconsistent with several of the City's ongoing planning efforts. Tukwila's Urban Center has more than 850 acres. Some of the development efforts going on in Tukwila's Urban Center include: The Southcenter Mall, which has 1.3 million square feet of occupied retail space and is completing a 400,000 square foot addition, which is 95% leased. In addition, the former Mervyn's site is being redeveloped, adding 50,000 square feet to create a site with 100,000 square feet of retail space. Southcenter Mall is a regional retail center that attracts shoppers from around the region and as far away as Alaska. The South Center Square, which is a new retail development south of the Southcenter Mali with big box development and smaller stores. Its 200,000 square feet of retail space is 90% leased. South Center Square will provide additional regional draw that complements the existing retail development at Southcenter Mall. Residential development in Tukwila Urban Center, which will include high density, multi family residential developments of up to five stories over ground floor retail on the eastern edge of the Urban Center. Three- hundred condominiums are already being developed. The residential development will change the uses in Tukwila's Urban Center from an entirely retail and commercial area to more of a mixed -use area. Table 7 presents an estimate of need for commercial and industrial built space based on the PRCS's forecast for employment in the Tukwila area for 2000 to 2040. Table 7 shows that the Tukwila area will need the most built space (9 million square feet) for Finance and Insurance, Real Estate, and other Services. Employment in these sectors requires office space. Tukwila will have a need for about 2.2 million square feet of additional retail space. As a regional center for retail, Tukwila is likely to have additional demand for retail space because people from the Seattle region (and further) come to Tukwila to shop. Tukwila is likely to have demand for about 1.6 million square feet of built space for the Warehousing, Transportation, Communications, and Utilities sectors. These sectors typically require industrial land. Table 7 shows the demand for built space for Manufacturing decreasing by about 2.1 million square feet and Government and Education decreasing slightly. 4 The estimate is based the employment densities presented on page 45 of the Puget Sound Regional Council's document "industrial Land Supply and Demand in the Central Puget Sound Region." The estimates for need for built space were developed by multiplying the change in employment by the number of square feet needed per employee by each type of employment. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 17 Table 7. Estimated need for commercial and industrial built space to accommodate new employment, Tukwila area, 2000 to 2040 Type of Needed space employment (square feet) FIRES 9,150,050 Retail 2,149,628 WTCU 1,610,685 Gov /Ed (25,675) Manufacturing (2,117,896) Total 14,441,512 Source: PSRC Employment Forecast, 2000 to 2040; Metro "Puget Sound Regional Council's document "Industrial Land Supply and Demand in the Central Puget Sound Region ECONorthwest Comparison of the market area of the proposed use and other commercial development A "primary market area" is generally considered the area in which most of the demand (typically around 70 for a product will originate. The extent of a market area for retail businesses depends on the products or services they offer and the location of competing businesses. People will not typically drive past one convenience store to get to a similar store in a different area, but they will travel farther for a special service or niche product that cannot be easily obtained elsewhere. Thus, the primary market area for a convenience store is the surrounding neighborhood, while the primary market area for a specialty retailer can extend for miles and could include the entire metropolitan Seattle region. In a downtown area it is common to see retail businesses that sell a wide variety of products and services that have local or regional market areas, depending on the type of product sold and the location and quality of competitive businesses offering the same product. Tukwila already understands the regional nature of its retail market area: Tukwila is a retail destination for much of the Seattle metropolitan area, due to the concentration of retail in Southern Tukwila, especially Westfield's Southcenter Mall, which is the largest indoor mall in Washington State and attracts over 11 million visitors each year. The market area includes not only the residents of Tukwila, therefore, but also residents of the Seattle metropolitan area and beyond. The question for the City of Tukwila is how having a secondary retail location north of the Southcenter area would compete with other developments within the City. This section addresses that question. In Tukwila, the subject property would compete primarily with the Southcenter Mall and South Center Square. Regionally, the site would also compete with other commercial areas in the Seattle area that are either in the planning stages or have already developed. Because Tukwila has much faster north -south traffic flows than east -west traffic flows, the area of competition extends farther to the north and south than it does to the east and west. Areas of potential competition include: Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 18 The Landing (2 miles from Tukwila). The Landing is a mixed -use development under development in Renton, south of Lake Washington. When completed in 2008, The Landing will include about 600,000 square feet of retail space and 990 residential units. Kent Station (6 miles from Tukwila). Kent Station, developed in 2005 -2006, includes 470,000 square feet of office, retail, entertainment, and education space and a 30,000 square foot civic plaza. Factoria Mall (8 miles from Tukwila). Factoria Mall, approximately 510,000 square feet of retail space, is planning the Factoria Town Square addition to add 685 housing units and 151,000 square feet of retail space. Downtown Seattle (10 miles from Tukwila). The downtown has extensive office and retail space including City Centre, Pacific Place, and Westlake Center. Bellevue Square (14 miles from Tukwila). The Bellevue Square Mall is upgrading to include 2,500,000 square feet of hotel, office, and retail space; it currently is 1,300,000 square feet. The Bellevue is a 130,000 square foot high -end retail development currently being constructed next door. Bellevue Place (14 miles from Tukwila). Bellevue Place has 500,000 square feet of office, retail, restaurant, and hotel space, and is currently constructing a 351 -room addition to the hotel. Lincoln Square (14 miles from Tukwila). Lincoln Square is a 1.4 million square foot office, retail (310,000 square feet), hotel, and 148 -room residential tower development currently expanding to include a 525,000 square foot office tower to house the corporate headquarters of Eddie Bower. The Bravern (14 miles from Tukwila). The Bravern is a 1,600,000 square foot development in Bellevue that will include retail, office, and condominiums, scheduled to open in 2009. Bellevue Crossroads (15 miles from Tukwila). Bellevue Crossroads is a 550,000 square foot retail development in East Bellevue. It is likely that the subject property will attract a market primarily made up of light industrial and office employees, rather than the larger metropolitan market captured by the Southcenter retail cluster. ECONorthwest's report "Tukwila Urban Center Market Analysis" (2002) forecast demand for built space in Tukwila's Urban Center to 2020. The report focused on demand for built space in Tukwila's Urban Center, not the entire City of Tukwila. The report forecast the following demand for the types of space: Retail. The report forecast demand for between 1.5 million square feet to 3.8 million square feet of additional retail in Tukwila by 2020. The report said that demand for retail space in Tukwila would depend on three future conditions: (1) population in the retail market area, (2) consumer spending trends, and (3) the degree to which the Tukwila Urban Center maintains its market share of regional retail demand. The report said that regional competition could result in a decrease in demand for retail space in the Tukwila Urban Center. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 19 Office. The report forecast demand for about 1 million square feet of office space in Tukwila's Urban Center by 2020. At the time the report was written, the central Puget Sound market area had suffered setbacks in demand for office space. Light Industrial and Warehouse. The report forecast need for approximately 600,000 square feet of new light industrial and warehouse space in Tukwila to 2020. This estimate is dependent on the availability of light industrial land and the extent to which higher value retail uses compete for available land in the Urban Center. Since the completion of this report in 2002, Tukwila and surrounding cities have experienced retail and commercial development, as well as substantial residential development. Tukwila's Urban Center has continued to be a regional retail draw because (1) the economy has been relatively good, and (2) property owners and developers, such as Westfield, have invested in new development in the Urban Center. Tukwila's Urban Center is still among the strongest regional retail centers but that other retail developments (Renton, Seattle, Bellevue, and elsewhere) keep adding competing retail. Overall, retail development on the subject property and other retail development in progress in Tukwila will almost certainly increase retail sales in Tukwila as a whole. How that increase gets distributed within Tukwila's subareas is complex. In theory, changes in retail activity in Tukwila could be explained through competition and market capacity, which might show economic activity in Tukwila's Urban Center decreasing, or through market synergies and complements, which might show economic activity in Tukwila's Urban Center increasing. Whether retail sales in Tukwila's Urban Center will be the same, greater, or less than they would have been in the absence of Tukwila South or the development of the subject property is a question beyond the scope of this analysis. Notwithstanding these caveats, the type and scope of retail development at the subject property will certainly not be the cause of a collapse at Tukwila Urban Center, but it will probably compete with Tukwila's Urban Center for some business. Role of the proposed development in the community The Associated Grocers site will play a very different role in the community than does the Southcenter/ Tukwila Urban Center area. The Southcenter area has been nationally marketed as a retail destination; it receives over 11 million visitors every year. It is located at a highly trafficked interstate intersection, and is near to the Sea -Tac International Airport. Southcenter is known for its shopping, restaurants, and is beginning to develop nearby high density multi- family residential development as well. The proposed zone change would result in intensification of employment on the subject site and creation of an employment center, and to a lesser extent, a retail center. The majority of the Associated Grocers site is proposed office and light industrial space, and the retail and hotel space will complement that development, but not create a new retail destination for the larger metropolitan market that comes to Southcenter. Because of the scale of the proposed retail uses, 5 Since the completion of this report, demand for office space in the Puget Sound Region has increased. According to C.B. Richard Ellis, the Regional office vacancy rate in second quarter 2007 was 10.5 down from approximately 17% in second quarter 2003. The second quarter 2007 vacancy rate in downtown Seattle was 8.6% and 5.1% in Bellevue's central business district. Sabey Corporation Comprehensive Plan Amendment August 9, 2007 Page 20 the primary market area would be much smaller than those of Southcenter and the Tukwila Urban Center. Given the amount of employment in the area, demand would primarily come from workers in the district. The Associated Grocers site is likely to form a type of transition or buffer zone between the heavy industrial land uses in northern Tukwila and the residential and retail areas in central and southern Tukwila. The light industrial and office uses can buffer the existing residential area from industrial uses, and the commercial and entertainment uses can attract residents on evenings and weekends to an area of the city that is primarily occupied during daytime hours. The commercial and entertainment uses will act as a gateway to the residential part of Tukwila, but the development includes no residential units. CONCLUSION: IMPACTS TO THE URBAN CENTER 1. How will the uses on the subject site be similar and different from the uses in the Tukwila Urban Center? The uses in the Tukwila Urban Center include a regional mall, high- density residential development, and a Large mixed -use development. The uses on the subject site will be a smaller -scale mixture of retail, commercial, and light industrial uses. Most of the uses will primarily serve people working on or near the site, visitors wanting to stay near Sea -Tac International Airport, and people living relatively near the subject site. 2. To what extent will the commercial and retail uses in the proposed development compete with commercial and retail uses in the Tukwila Urban Center and other developments within the City? There is no question that the proposed uses will compete with development in other areas of Tukwila: that is the nature of all types of development, and especially retail. The broader question is whether enough demand exists to support all of the existing and proposed developments in Tukwila, including development on the subject property. PSRC forecasts strong employment growth in Tukwila for sectors that use office space. Population growth, coupled with increases in disposable income, will create demand for additional retail space. The retail development at the subject property is one- quarter of the size of the development proposed in Tukwila South, which means that it will compete less both in scale, type, and proximity with the Tukwila Urban Center. 3. What is the market area for the proposed development compared to the Tukwila Urban Center? The development concept includes two primary uses: employment (office and some industrial) and retail. The employment uses will draw workers from throughout the region. The retail uses will draw from a smaller market area. Since the mix of retailers is not yet specified, we cannot say definitively exactly what the market area will be. 6 siaT g t RECEIV LG ice 1689 STATE OF WASHINGTON COMMUNITY ENT DEPARTMENT OF ECOLOGY OE'dELGP Northwest Regional Office 9 3190 160th Avenue SE 0 Bellevue, Washington 98008 -5452 0 (425) 649 -7000 July 26, 2007 Rebecca Fox City of Tukwila 6300 Southcenter Blvd. Tukwila, WA 98188 Dear Rebecca, As per your request, I have enclosed a copy of Ecology's Administrative Requirements for Recipients of Grants and Loans, 2005, also known as the "Yellow Book I hope that you are able to utilize this to answer any eligibility questions you may have as you continue through the application process. Also, remember that I am always available to assist you with any questions or concerns you may have while filling out your application. You may contact me by phone at (425) 649 -7056 or by email at chro4610,ecv.wa. 2ov. Sincerel /4 s. Christopher M. Pier Environmental Planner Grant Officer Solid Waste and Financial Assistance Program Enclosure it ATTACHMENT G qs CITY OF TUKWILA �r- y tz COMPREHENSIVE y Department of Community Develo f, 6300 Southcenter Boulevard, Tukwila, WA 9878 PLAT 410 Telephone: (206) 431 -3670 FAX 206 43L�=3665 t) ;l, z.: E -mail: tukplan@ci.tukwila.wa.us AMENDMENTS 1908 APPLICATION FOR STAFF USE ONLY Permits Plus Type: P -CPA Planner: gebeccA, F& x I File Number: e e0/06 1.f?7 'D6 L Application Complete (Date: Project File Number: Application Incomplete (Date: Other File Numbers: NAME OF PROJECT/DEVELOPMENT: Sabev Comprehensive Plan Amendment and Rezone LOCATION OF PROJECT/DEVELOPMENT: Give street address or, if vacant, indicate lot(s), block and subdivision, access street, and nearest intersection. 3301 S. Norfolk St., Seattle, WA 98118 and 10230 E. Marginal Way S., Seattle, WA 98118. The property is bounded by E.Margirial Way, S. Norfolk St.. Airport Way S. and Boeing Access Road. The property is located in Seattle and Tukwila, with the majority of the property located in Tukwila. LIST ALL TAX LOT NUMBERS (this information may be found on your tax statement). See attached DEVELOPMENT COORDINATOR The individual who: has decision making authority on behalf of the owner /applicant in meetings with City staff, has full responsibility for identifying and satisfying all relevant and sometimes overlapping development standards, and is the primary contact with the City, to whom all notices and reports will be sent. Name: Mikel Hansen. Sabey Corporation Address: 12201 Tukwila International Blvd., 4 Floor, Tukwila, WA 98168 Phone: 206 277 -5249 FAX: 206 -282 -9951 E -mail: mikelh(a,sabev.com l: \my does \AG Site CompPlanChg- 06- 07.doc August 13, 2007 i 0323049024 Associated (past of) S. iv. rf• Grocers Property 0003400042 Boundary 0003400046 0003400049 II 00034000/5 0003400041 I n es 4 'fl i.200 9D/ 0423049101 rr e 0423049102 C (D 0323049024 to IS 0 .I 0423049015 ci Q 0423049099 0323049062' 9. Seattle t 0323049048 0323049128 u 1 a kP v 2304906. 0323049080 ?�p D Q 0323049045 V 2304907 0 1 o D o0 D' 1 N 13 o 2304407► N 6 ?D 0323049061 m 2304907 1111 0 0 A 1 0323049028 0323049058 0 Scale in Feet 325 (approximate) S Boeing Rd. AG Grocers Site Seattle, Washington DRAFT Tax Lot Parcel Numbers SA13- 029-00 FIGURE 3 February 2007 Ref: Tax Lot Cornbined.cdr Dalton, Olmsted Fuglcvand, Inc. z >- 0 I- ~ W II:: ..I W Z l- ll. l:l ~ 0 Q II:: iii W<Il ll. W <Ill- Z I- Cl 0(- U l:l ..Ii!: W W Z -..I ""l Z 3:>- C) III ~I- :I 0 :1_ W <Il N I-U .... CO I 0- s- () (f\ tD ::> ~ ~ ~ ~ C; ';:; t. c:D ~; ~~ ~~ ~-~ Cl)U X OM OMR 413-1 c. 2 7A II LPIEN1/4 =XX 4 CITY OF TUKWILA AREA 1,438,912 SF Ali 3301 NORFOLK ST. SABEY PROPERTY CITY OF TUKWILA AND CITY OF SEATTLE ZONING AREAS i a e.r. A r 4' 4.1 N rel L4 1•■•1 1-•-•1 >4 r.,.) 4- 4. ET," Li L'.. E._, v) v) v) c 7 D u 0 0 ,__4 z v) v) ,4H Z 41 c." 0. Os c c) ,4 0 r) 0 0 0 P.-■ 0-4 0 P-4 1 0 14 <;"re t VD WZ 0.)Cf)0C1)Z 0 I■1 0 0 Z ,...t V•1 i En Z E:: U <C Z Z W Z 0 14 cn v.1 '1 -..z x4 0 cr) M E C) u) F 0 z E-4 3 4.] 4 0 p c) c) y Cie? D C4 d r2t W i-- A 4 41 0 En 2, w g 0 g Z E-4 1-1 g CI 41 U c4 c 'vo' ef 0 0, rip at CO 74,-"A 4 WI t I 7 i 7 ...{e.„. 9) XI 4 •-t t i i -N-, 1 I N f I: 3 I! r yf F,;%fi C7) r =f. .i.. 4 i V-: 1.1 i` I i: .-_-,-:__L A a, 11--- i s H a U I+ it',, 1.. 4 vl X I W C` C/) e 1 30 ighi;PI Cl W V 00 00 'C M -.I st 4 a •=k k.1 Z 4i 5 .�J '9s CITY OF TUKWILA i Z Department of Community Development 1 1 jr, 6300 Southcenter Boulevard, Tukwila, WA �I r 1 -i J 98188 N 1 4'07' Z Telephone: (206) 431 -3670 FAX (206) 431 -3665 ik E mail: tuktlan©ci.tukwila.wa.us 1908 AFFIDAVIT OF OWNERSHIP AND HOLD HARMLESS PERMISSION TO ENTER PROPERTY STATE OF WASHINGTON ss COUNTY OF KING The undersigned being duly sworn and upon oath states as follows: 1. lam the current owner of the property which is the subject of this application. 2. All statements contained in the applications have been prepared by me or my agents and are true and correct to the best of my knowledge. 3. The application is being submitted with my knowledge and consent. 4. Owner grants the City, its employees, agents, engineers, contractors or other representatives the right to enter upon Owner's real property, located at 3301 South Norfolk. St., Seattle, WA 98118 for the purpose of application review, for the Limited time necessary to complete that purpose. 5. Owner agrees to hold the City harmless for any loss or damage to persons or property occurring on the private property during the City's entry upon the property, unless the loss or damage is the result of the sole negligence of the City. 6. Non responsiveness to a City information request for ninety (90) or more days, shall be cause to cancel the applications) without refund of fees. EXECUTED at Seattle (city), WA (state), on August 9 .2007 Print Name James N. Harmon, Treasurer of Sabey Corp., Manager of 3301 South Norfolk LLC Address 12201 Tukwila International Blvd.. 4th Fl. Seattle, WA 98168 Phone Number 206 -281 -8700 y�� Signature �'I r2Tt On this day personally appeared before me J ames N �k`larmon Y P Y aPP� to me known to be the individual who executed the foregoing instrument and acknowledged that he/she signed the same as his/her voluntary act and deed for the uses and purposes mentioned therein. SUBSCRIBED AND SWORN TO BEFORE ME ON THIS 9th DAY OF August 20 07 /h0i'i NOTARY PUBLI in an or the State of Washington WRY A. NALL STATE OF WASHINGTON Seattle residing at NOTARY —PUBLIC My Commission expires MY COMMISSION EXPIRES 12 -19.09 on 12/1/9/09 P \Planning Forms \Applications \ZoneChng- 6- 06.doc December 4, 2006 C q s CITY OF TUKwTT.4 k Department of Community Development Q l at.: 4 93008 0 Southcenter Boulevard, Tukwila, WA 1 t '�%4► O 206 431 3665 0 t. el Telephone: (206) 431-3670 FAX (206) Email: tuknlan @ci.tukwila.wa.us 1908 AFFIDAVIT OF OWNERSHIP AND HOLD HARMLESS PERMISSION TO ENTER PROPERTY STATE OF WASHINGTON ss COUNTY OF KING The undersigned being duly sworn and upon oath states as follows: 1. I am the current owner of the property which is the subject of this application. 2. All statements contained in the applications have been prepared by me or my agents and are true and correct to the best of my knowledge. 3. The application is being submitted with my knowledge and consent. 4. Owner grants the City, its employees, agents, engineers, contractors or other representatives the right to enter upon Owner's real property, located at 10230 East Marginal Wav South. Seattle. WA 98118 for the purpose of application review, for the limited time necessary to complete that purpose. 5. Owner agrees to hold the City harmless for any loss or damage to persons or property occurring on the private property during the City's entry upon the property, unless the loss or damage is the result of the sole negligence of the City. 6. Non responsiveness to a City information request for ninety (90) or more days, shall be cause to cancel the appiication(s) without refund of fees. EXECUTED at Seattle (city), WA (state), on August 9 ,2007 Print Name James N. Harmon, Treasurer of Sabey Corp., Manager of 10230 East Marginal Way LLC Address 12201 Tukwila International Blvd. ,4th Fl. Seattle, WA 98168 Phone Number 206-281 -8700 Signature On this day personally appeared before me James N. armon to me known to be the individual who executed the foregoing instrument and acknowledged that he/she signed the same as his/her voluntary act and deed for the uses and purposes mentioned therein. SUBSCRIBED AND S WORN TO BEFORE ME ON THIS 9th DAY OF August 2007 MARY A. HALL rat. STATE OF WASHINOTyN NOTARY PUBLIC i' and f the State of Washington NOTARY per residing at S eattle COMMSSION EXPOte$ 12.10,4a My Commission expires on 12 19 09 P: \Planning r-orms\ Applications \CompPlanChg-6- 06.doc December 2006 1 NOHlNIHSVM'VlIl/1)!fU NOll~OdlJOO A3BVS AH:l3dOCld A38\fS .L33C1.LS >llO::lClON S ~088 NVld :WS 3N0Z3~ ONV .lN3V10N3VfV NVld 3A1SN3H3~d;100 ~ I I " I I e.:v7'0i~~ 1!lZ-~.g~'S"e,\\~ ~~'a.';.JCJ.ea.AP~h\0l91 'QNI S3J..'fJOOSSVa......... SNVA3 OlAV. ~ I~~ ) ,/ , z , ,,, / / >- / ". 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COMPREHENSIVE PLAN AMENDMENT CRITERIA (TMC 18.80.010 and 18.80.050) Comprehensive Plan Amendment Criteria (TMC 18.80.010) The application shall specify, in a format established by the Depai latent: 1. A detailed statement of what is proposed and why. Comprehensive Plan Amendment and Rezone, The proposal is to remove an approximately 65 -acre parcel south of Boeing Field in the City of Tukwila (see aerial photograph submitted concurrently with this application)) from the Greater Duwamish Manufacturing Industrial Center (MIC /H) and redesignate the site as Light Industrial ("LT). The proposal requires an amendment to the comprehensive plan land use map and a rezone. Potential Future Development. The proposal will allow the future development of the property with LI uses. The LI zone permits a broader range of uses than currently permitted in the MIC /H zone. These uses include office, retail, lodging, entertainment and light industrial warehouse and manufacturing uses. While project -level plans have not been prepared, it is anticipated that a mix of these uses will be developed on the property. A likely development scenario includes approximately 700,000 square feet of office development, 550,000 square feet or retail development; 80,000 square feet of lodging (hotel), 60,000 square feet of entertainment (theater) use, and 100,000 square feet of light industrial uses such as warehousing and manufacturing, although these figures may vary once project -level plans are developed. See conceptual site plan submitted concurrently with this application.. 2. A statement of the anticipated impacts of the change, including the geographic area affected and the issues presented by the proposed change. The proposal will result in the following positive impacts to the City. Economic redevelopment. The property has been used as the Associated Grocers' warehouse and distribution center for the past 50 years. Associated Grocers is relocating from the site, however, providing the opportunity for a new use of the property. An economic study prepared for the proposal (ECONorthwest 2007) shows that there is an existing demand for the range of uses proposed under the LI zoning. Redevelopment of the site with a range of LI uses would provide additional employment opportunities in the City of Tukwila as well as significant tax revenue to the City. In addition, under Comprehensive Plan Policy 2.1.10, the City should consider land use changes for warehouses if there is a change in sales tax sourcing ru I NG s 3 7007 Changes in State sales tax sourcing rules have recently occurred. Specifically, in March 2007, the Legislature passed legislation allowing the State to join the Streamlined Sales Tax Project, which it did in July 2007. Under prior law, the jurisdiction where a product originates receives the sales tax. With the recent change, the jurisdiction where the product is delivered receives the tax. Accordingly, land use changes from the existing MIC /H uses (warehouse and distribution) are appropriate under Policy 2.1.10. Aesthetics. The property is located at the northern boundary of the City of Tukwila, at the City limits between the major transportation corridors of Airport Way S. and E. Marginal Way. See aerial photograph. Due to its historic and current use as a warehouse and distribution center, the property is developed with older warehouse buildings and surface parking. See aerial photograph. Development of the property with new buildings designed to house office, retail, lodging, entertainment and light industrial (warehouse and manufacturing) uses will greatly enhance the aesthetic qualities as well as the prominence of the property. New buildings developed on the property will be required to meet the requirements of the current code for the LI zone, including landscaping and setback requirements that will enhance the property's aesthetic qualities. In addition, while development under the MIC /H zone is exempt from design review, future development of the property under the LI zone will be subject to design review. This will ensure the property's function as a significant entry point to the City, as well as general quality of design, will be considered. Transportation. The Cities of Seattle and Tukwila have long had plans to improve the operational and aesthetic characteristics of both Airport Way S. and E. Marginal Way. The redevelopment of the property under the LI zone will further these goals by improving the aesthetic quality of development on the property adjacent to these roadways and by providing f rontage improvements as required by the City code. In addition, the transportation analysis for project -level proposals will ensure that access is appropriately located and that all transportation improvements required as a result of the development of the property will be accomplished. In addition, the property served by Metro transit. The property is also near a potential future light rail location. The uses proposed for the property under the LI zone will bring employees and customers to the property who would be likely to utilize Metro transit and a potential future light rail station.. In contrast, heavy manufacturing uses under the current zoning are more likely to require automobile and truck use. Industrial lands. The ECONorthwest report demonstrates that the proposal will not significantly impact future industrial development on parcels near the property in the MIC. The property is physically separated from industrial land to the north (in the City of Seattle) by Boeing and Boeing Field. Marginal Way, and 2 the Duwamish River, lie to the west and 1-5 lies to the east. Properties to the south in Tukwila are predominantly in light industrial and commercial uses. Due to the property's physical isolation (by Boeing -owned land, roadways and the River) from areas of heavy industrial use, the proposal will not significantly impact future industrial development on parcels near the property in the MICs. Tukwila Urban Center. The ECONorthwest report also shows that the proposal will not adversely affect commercial development in the urban center. As indicated in the report, the scale of development anticipated for the property under the LI zone will serve the local market area, rather than the regional market served by the uses in Tukwila Urban Center. Accordingly, the project will not result in adverse impacts to the urban center. Environmental impacts. Future development of the site would undergo project specific review and mitigation to ensure that the proposal does not result in significant adverse environmental impacts. In addition, development under the LI zone would generally be anticipated to have less impact to the environment than development under the MIC/Hzone, since heavy industrial uses typically generate more noise, dust and pollutants than light industrial, office and retail uses. 3. An explanation of why the current comprehensive plan or development regulations are deficient or should not continue in effect. The current MIC/H designation and zoning for the property should not continue in effect. This designation and zoning was placed on the property under very different circumstances than exist today. At that time, the Associated Grocers use was active and showed no indication of relocating. The MIC /H designation and zoning reflect that historic use. Now, circumstances have changed dramatically. The City has a historic opportunity to allow redevelopment of the property, due to the imminent relocation of Associated Grocers and favorable market conditions for development. In addition, development to the south of the property in Tukwila is trending toward light industrial and commercial uses. See ECONorthwest (2007). The City should not lose this opportunity by adhering to a designation and zone that was placed on the property in response to conditions that no longer exist. 4. A statement of how the proposed amendment complies with and promotes the goals and specific requirements of the Growth Management Act. Urban growth. The Growth Management Act "GMA') encourages compact urban growth in areas served by urban infrastructure. RCW 36.70A.020(1), (2). The proposal will further these goals by allowing development of the property, which is located in an urban area and well served by existing infrastructure, under the LI zone. The MIC /H use that currently occupies the property is relocating. Development in the vicinity of the property is trending towards light 3 industrial and commercial development. Accordingly, redevelopment of the property under the LI zone is appropriate. Economic development. GMA encourages economic development. RCE 36.70A.020(5). Redevelopment of the site with a range of LI uses will meet an existing demand for these uses in the City. This development will provide additional employment opportunities in the City of Tukwila as well as significant tax revenue to the City. ECONorthwest (2007). The Growth Management Act also requires that the future land use map be consistent with the rest of the comprehensive plan. RCW 36.70A.070. Here, under Comprehensive Plan Economic Development Policy 2.1.10, the City should consider land use changes for warehouses if there is a change in sales tax sourcing rules. Such a change has occurred. Under prior law, the jurisdiction where a product originates receives the sales tax. With the recent change, the jurisdiction where the product is delivered receives the tax. Accordingly, land use changes from the existing uses (warehouse and distribution) are appropriate under Policy 2.1.10. The proposal renders the future land use map consistent with this policy. The proposal is also consistent with Comprehensive Plan Economic Goal 2.1, which calls for continuing enhancement of the community's economic well being. The proposal meets this goal by meeting an existing demand in the City for the range of uses that can be developed under the LI zoning but which are not available under the existing MIC/H zoning, including office, retail, and entertainment uses. ECONorthwest (2007). City boundaries. The proposal is also consistent goals and policies of the Tukwila Comprehensive Plan calling for the development of identifiable City boundaries. Goal 1.3 provides, `Identifiable boundaries for Tukwila so that residents, workers, and visitors know they are entering the City." Redevelopment of the property with LI uses will be subject to design review. This process will ensure that the property's function as a significant entry point to the City, as well as general quality of design, will be considered Transportation corridors. In addition, Comprehensive Plan Goal 8.1 encourages "transportation corridors that are functional, attractive and diverse along their lengths both for the people who live along them, raveling through them and those traveling to visit these areas." Development under the LI zone will further this goal by improving the aesthetic quality of development on the property adjacent to these roadways and by providing frontage improvements as required by the City code. 5. A statement of how the proposed amendment complies with applicable Countywide Planning Policies. 4 The proposal complies with applicable Countywide Planning Policies "CPPs'). CPP LU -26 provides that lands within Urban Growth Areas "UGAs') shall be characterized by urban development. The proposal provides for urban development in the UGA. As previously discussed, the MIC /H use that currently occupies the property is relocating. Development in the vicinity of the property is trending towards light industrial and commercial development. Accordingly, redevelopment of the property under the LI zone is appropriate. LU -28 provides that growth should be directed fist to centers and urbanized areas with existing infrastructure capacity. The property is an urbanized area with existing infrastructure capacity. In addition, an economic study prepared for the proposal shows that the proposal will not adversely affect the Tukwila Urban Center. ECONorthwest (2007). The CPPs address initial designation of Manufacturing Industrial Centers "MIC') and activities within them (LUST -62) but do not address removal of properties from the MIC. With regard to development outside of centers, the CPPs provide: A variety of land uses and concentrations of growth occur within the Urban Growth Area and outside of Urban Centers and Manufacturing /Industrial Centers. Local land use plans will be responsible for the designation, character, and utilization of Urban Areas outside of Centers." CCPs §III.F. Accordingly, the CCPs do not constrain the City's ability to remove the property from the MIC based on local circumstances. FW-34 provides that `All jurisdictions shall act to increase work training and job opportunities for all residents and communities." The proposal would allow the development of the property under the LI zone, providing job opportunities to Tukwila residents and residents of other jurisdictions in the region. There is an existing demand for the types of uses that could be developed under the LI zone, but which are precluded by the MIC /H zone. Redevelopment of the property under the LI zone would meet this demand. ECONorthwest (2007). ED -3 provides that "/J/urisdictions' comprehensive plans shall include economic development policies. These policies shall address the local economic concerns of each jurisdiction within the context of a regional economic development strategy." The Tukwila Comprehensive Plan includes an Economic Element. As previously discussed, the proposal is consistent with the goals and policies of this Element, particularly with Goal 2.1 (enhancement of community's economic well being) and Policy 2.1.10 (consider land use changes for warehouses if there is a change in sales tax sourcing rules). 5 6. A statement of what changes, if any, would be required in functional plans (i.e., the City's water, sewer, storm water or shoreline plans) if the proposed amendment is adopted. The proposal is not anticipated to affect the City's functional plans. The property is adequately served by existing water, sewer and stormwater infrastructure. Only a small portion of the property (approximately one acre) is within the shoreline area and no changes to shoreline plans are required for the proposal. Project specific utility improvements may be required in connection with project level review. 7. A statement of what capital improvements, if any, would be needed to support the proposed change, and how the proposed change will affect the capital facilities plans of the City. No capital improvements are anticipated in connection with this plan -level action. The proposal is not anticipated to affect the City's capital facilities plans. Project specific utility and transportation improvements may be required in connection with project -level review. 8. A statement of what other changes, if any, are required in other City codes, plans or regulations to implement the proposed change. The proposal requires a rezone of the property to LI. Additional Comprehensive Plan Amendment Criteria (TMC 18.80.050.B) The Council will consider the following in deciding what action to take regarding any proposed amendment: 1. Is the issue already adequately addressed in the Comprehensive Plan? The proposal to redesignate and re zone the property LI is not currently addressed in the Comprehensive Plan. The existing Comprehensive Plan designation for the property is MIC /H. The applicant is seeking a Comprehensive Plan amendment to change the land use designation to LI concurrent with an application to rezone the property to LI. The proposal is supported by numerous goals and policies of the Comprehensive Plan, as discussed previously. 2. If the issue is not addressed in the Comprehensive Plan, is there a public need for the proposed change? There is a public need for the proposed change. As previously discussed, the business that has occupied the property (Associated Grocers' warehouse and distribution center) for the past 50 years is relocating. This presents an opportunity for redevelopment of the property consistent with market demand and 6 development trends in the area. The proponent is proposing a rezone of the site to LI. While project -level plans have not been prepared, it is anticipated that a mix of uses allowed in the LI zone will be developed on the property, including office, retail, lodging, entertainment and light industrial warehouse and manufacturing uses. This development will meet an identified market demand for these types of uses in the City. ECONorthwest (2007). In addition, the redevelopment of the site will meet the need identified in the City Comprehensive Plan for development of identifiable City boundaries, improvements to the aesthetic qualities of the site, and improvement to the adjacent major transportation corridors of Airport Way S. and E. Marginal Way. These factors are discussed in more detail above. 3. Is the proposed change the best means for meeting the identified public need? Yes. Redevelopment of the property under the current land use designation and zoning would not meet the need for office, retail, entertainment and light industrial uses that has been identified, since these uses are not allowed in the MIC/Hzone. ECONorthwest (2007). Further, due to the nature of heavy industrial uses, the fact that uses in the MIC/Hzone are not required to undergo design review, and the reduced code requirements for items such as landscaping as compared to the LI zone„ redevelopment of the property with heavy industrial uses would not meet the City's goals relating to development of identifiable City boundaries, aesthetic improvements and improvements to major transportation corridors. Further, other zoning designations would not be as appropriate as the LI zone. While the LI zone accommodates a wide range of uses, it is an industrial zone. Accordingly, the LI zone provides a transition between heavy industrial uses and the light industrial and commercial uses developing to the south. Other available zones (such as commercial zones) would not be as well suited to this location as they do not provide this transition. 4. Will the proposed change result in a net benefit to the community? Yes. As discussed in detail previously, the proposal will provide economic development, assist in creating an identifiable northern City boundary, aesthetic improvements and transportation corridor improvements. These are all significant benefits to the community. 7 46//f2 /F 46 ATTACHMENT H f %g J wt1.-a;wq CITY OF TUKWILA A' Z' Department of Community Development ZO '�NG EODE ;1 f f 1 6300 Southcenter Boulevard, Tukwila, WA 98188 I i p Telephone: (206) 431-3670 FAX (206) 431 -3665 AMENDMENTS tp i f� E- mail tukplan@citukwila.wa.us 1908 APPLICATION FOR STAFF USE ONLY Permits Plus Type: P -ZCA Planner:' eLcA CJ I File Number: L.-1 0 '7 Application Complete (Date: I Project File Number: Application Incomplete (Date: I Other File Numbers: I NAME OF PROJECT/DEVELOPMENT: Sabev Comprehensive Plan Amendment and Rezone LOCATION OF PROJECT/DEVELOPMENT: Give street address or, if vacant, indicate lot(s), block and subdivision, access street, and nearest intersection. 3301 S. Norfolk St., Seattle, WA 98118 and 10230 E. Marginal Way S., Seattle, WA 98118. The property is bounded by E.Marainal Way, S. Norfolk St., Airport Wav S. and Boeing Access Road. The property is located in Seattle and Tukwila, with the majority of the property located in Tukwila. LIST ALL TAX LOT NUMBERS (this information may be found on your tax statement). See attached DEVELOPMENT COORDINATOR The individual who: has decision making authority on behalf of the applicant in meetings with City staff, has full responsibility for identifying and satisfying all relevant and sometimes overlapping development standards, and is the primary contact with the City, to whom all notices and reports will be sent. Name: Mikel Hansen Address: 12201 Tukwila International Blvd., 4 Floor, Tukwila, WA 98168 Phone: 206 277 -5249 FAX: 206 -282 -9951 E -mail: mikelhc sabbev..ccom 2 Signature: S'_ /4,..,,,,,,,,_,,,—, Date: Aueust 2007 'Amy does \AG Site \ZeneChng- 12 -06.doc August 13, 2007 A. COMPREHENSIVE PLAN DESIGNATION: Existing: MIC/H Proposed: LI B. ZONING DESIGNATION: Existing: MIC/H Proposed: LI C. LAND USE(S): Existing: light industrial (warehouse distribution), office Proposed: light industrial, office, retail, lodging, entertainment (for proposed changes in land use designations or rezones) FJ L- \my does \AG Site \ZoneChng- 12- 06.doc August 13, 2007 > z e Ii: ~ W W ..I II. Z l- e C) li Q a: iii II. W WVl Z l- e Vll- 4- IJ C) ..I::!: W W z -:i .., 3:> C) III Z ~ e lll:1- W Vl ~- N I-IJ -' I -> r- Q --....... C IV) '- \;() " '" v'") '::> .,,) <:.L / ',.. ~; ~~ ~~ ....... ~ r:}ju A---oUte- 0 (11 0323049024 Associated (pact °f) S. N. rf 1. Grocers Property 0003400042 Boundary 0003400046 0003400049 .V 11 0 0003400015 0003400041 00034 4� b ‘300s 0423049101 A ik 0423049102 C (D 0323049024 N a Q th u 0423049015Q. e 0. t 7 �1 0423049099 032304906 Seattle 0 to 0323049048 0323044128 Q 42304906• 0323049080 0 ��t H04907. as 0323049045 f O 0 0 0 ?x, N 73 0 Q 304907' N ?p ?V 0 i 323049061 2304907 0 0 1 0323049028 0323049058 m a 0 Scats in Feet 325 (approximate) S 008jng Rd. AG Grocers Site Seance, Washington DRAFT Tax Lot Parcel Numbers SAES- 029-00 FIGURE 3 February 2007 Ref: Tax Lot Combined.Cdr Dalton, Olmsted Fuglcvand. Inc. M VI= COINER 41 te lt% 1°f65' ITY OF SEATTLE 1 LE AREA 1,265,135 SF E 9 ,c M uEE 1 /4x41014 CITY OF TUKWILA AREA 1,438,912 SF 3301 NORFOLK ST. SABEY PROPERTY CITY OF TUKWILA AND CITY OF SEATTLE ZONING AREAS N ;4 [zw 4-; H E.. (7) 41.( w cii rriv) 4. �:v) v4)U 0 >"O ry >Z oo 04 ZH14 s 088 QO q a. Z g O Z o Z a C.) 0= Z�wr O¢ U d Z Z Z O W C w a V A v) a; <O wx W O wa w� wza0acn H O v a w z 0 U d w x, v�Z Z O a Ww H O a H a, QUQ¢ rig wQO z a, R rW a W o J U A vg s. W co En a i t G4. 1 t '`.;.:e-"'..- [t i W i i Ete a H V 9 A H 0.4 .x' r f -g t fc :ry -t U O i- L is s s. C/1 yy 1�F Y O r r w .iiofd 'S N w s oc)a ci 0 1 R 2 a v z At ZONING CODE AMENDMENT CRITERIA (TMC 18.34.020) Each determination granting a rezone shall be supported by written findings and conclusions, showing specifically that all of the following conditions exist: 1. The proposed amendment to the Zoning Map is consistent with the goals, objectives, and policies of the Comprehensive Plan. An amendment to the Comprehensive Plan to redesignate the property from MIC/H to LI is proposed concurrent with this rezone request. With this amendment, the Comprehensive Plan land use map and the zoning will be consistent. In addition, the proposal is consistent with numerous goals and policies of the Comprehensive Plan. This is discussed in detail in connection with the discussion of compliance with the Comprehensive Plan amendment criteria (page four). This discussion is incorporated here by reference. 2. The proposed amendment to the Zoning Map is consistent with the scope and purpose of TMC Title 18, "Zoning Code," and the description and purpose of the zoning classification applied for. The purpose of the LI zone is to `provide areas characterized by distributive and light manufacturing uses, with supportive commercial or office uses." TMC 18.32.010. The permitted uses in the LI zone are identified in TMC 18.21.020. These uses include various uses traditionally considered "light industrial," including but not limited to warehouse and manufacturing. The uses permitted outright in the LI zone also include office, retail, lodging, and entertainment uses, among others. Since these uses are allowed outright in the LI zone, they are by definition "light industrial" uses under the Tukwila Municipal Code. While project -level plans have not been prepared, it is anticipated that a mix of these uses will be developed on the property. Accordingly, the proposal to rezone the properly to LI for future development consistent with the purpose of the LI zone. 3. There are changed conditions since the previous zoning became effective to warrant the proposed amendment to the Zoning Map. The changed circumstances are discussed in detail in connection with the Comprehensive Plan amendment criteria. This discussion is incorporated by reference. The most immediate change is the relocation of the Associated Grocers' warehouse and distribution center, which has occupied the property for 50 years. The relocation of this use presents the City with the opportunity to consider the most appropriate use of the property in light of its location, existing nearby development, and market demand. 1 As discussed in connection with the Comprehensive Plan amendment, the property is located at the northern boundary of the City between two major transportation corridors that are targeted for improvement. Redevelopment of the site under the LI zone will enhance the role of the property as the northern entry point to the City and will provide for improvements to the adjacent transportation corridors in the forrn of aesthetic improvements and any project specific transportation mitigation that may be required. In addition, also as discussed in connection with the Comprehensive Plan amendment, development in the vicinity of the property in Tukwila is tending towards light industrial and commercial uses. See ECONorthwest (2007). This is a change in circumstances that the City should consider in evaluating the appropriate zoning for the property. Finally, also as discussed in connection with the Comprehensive Plan amendment, there is presently a market demand for LI uses. ECONorthwest (2007). The City should consider this factor- in rendering a decision regarding the appropriate zoning of the property. 4. The proposed amendment to the Zoning Map will be in the interest of furtherance of the public health, safety, comfort, convenience and general welfare, and will not adversely affect the surrounding neighborhood, nor be injurious to other properties in the vicinity in which the subject property is located. The benefits to the public associated with the proposal have been discussed in connection with the Comprehensive Plan amendment. In addition, analysis shows that the proposal will have no significant adverse impacts on either future industrial development on parcels near the property in the MIC or on the Tukwila Urban Center. ECONorthwest (2007). Accordingly, the proposed amendment is in the public interest and will not adversely affect the surrounding neighborhood or be injurious to other properties in the vicinity. 2 , '" '. } NOHlNIHSIIM '\Il/f,\}{n.1 NOU\Il!OdHO:J A38\1S AH:l3dO~d A38VS 1.33~l.S >llO=:l~ON S ~088 N\I1d 3.1IS 3N0Z3H ON\! .lN3V>10N3,'/V N\I1d 3I\lSN3H3Hd,~O:J ~-m-9.t ~-kI ? I I I I I I a ~!)li$~,\~":iI " 8 OO<:$iI'"-s.a.'tJ(].&i!I'......-~.,.\cz:9~ ~~ a C\J "QHI S3l.'ltfIOOSS'V'o",-y g SN',^3 CiA.... a U I ~~ a ;;:~~ U If) N .. CI ~~ <( ~ ~.ti~ C QQQ Q ~"'~.......wo--\_~___~~"'r:JXY."~~r.'_"\,,,,_ -"'1rJu.'n'Fl' n i i ,~I/ , j /1 ......................-t, : ../ ~ ( i / /1 I ! , I / , \ ~-1 ~ /i (- ---- ~) L./ /' I -~'. \! :" , i ; <; \ i ~~ g -- I ,.- c...s ~ti. "'fu~ w :.) 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