HomeMy WebLinkAboutCOW 2011-07-25 Item 4C - Ordinances - Shoreline Master ProgramCO t Ncm AGENDA SYNOPSIS
Initials ITEM
ICAS NUMBER: 11 -064
AGI?ND ITL;M TI1'LL
Meeting Date
Prepared by Mayors review
6/27/11
CL
c
7/25/11
CL
8/01/11
CL
ITEM INFORMATION
STAFF SPONSOR: JACK PACE
Council revieW
ORIGIN;U., AGF.NDi\ DATli:: 6/27/11
Department of Ecology (Ecology) Required Changes to Tukwila Shoreline Master
Program (SMP)
C r1".GORY Discussion Motion Resolution Ordinances BidAavard Public Hearing IVorkSession
Altg Date 6- 2717 -25 Alt g Date Mtg Date A'Ltg Date B /1/11 [lltg Date [l.ftg Date 6- 27/7 -25 Mt Date 5/11/11
SPO NSOR Council Mayor HR DCD Finance .Fire IT P &R Police PI-V
SPONSOR'S Ecology is requiring changes to the City's SMP, adopted 12- 14 -09, and implementing
SUMM; \RY regulations before the SMP can receive state approval. The required changes include
adding: more detailed mapping, a use matrix, an aquatic shoreline environment, sign
standards; modifying certain permitted uses; and clarifying building height standards. A
public hearing was opened on 6 -27 -11 continued to 7 -25 -11 for testimony on the
required changes; after the hearing is closed, staff requests direction on next steps.
RI Xii ;1 vr-,D BY COW Mtg. CA &P Cmte F &S Cmte Transportation Cmte
Utilities Cmte Arts Comm. Parks Comm. Planning Comm.
DATE: 05 -11 -11 WORK SESSION COMMITTEE CHAIR:
RECOMMENDATIONS:
SPONSOR /ADMIN. Department of Community Development
COMMITTEE Consensus to Move Forward to Public Hearing
COST IMPACT FUND SOURCE
EXPI NDITURE REQUIRED AMOUNT BUDGETED APPROPRIATION REQUIRED
$N /A
Fund Source:
Comments:
MTG. DATE
5/11/11
6/27/11
7/25/11
MTG. DATE
7/25/11
8/01/11
RECORD OF COUNCIL ACTION
Council Work Session on Ecology Required and Recommended Changes to SMP
Public Hearing on SMP ordinances; Council continued Public Hearing to7/25/11
ATTACHMENTS
Informational Memorandum dated 7/20/11
Issues Raised at 6/27/11 Public Hearing, with 3 attachments
Errata Sheet
Housekeeping Items
Please bring packet materials from 5/11/11 Council Work Session 6127111 C.O. W,
27
W
City of Tukwila
Jim Haggerton, Mayor
INFORMATIONAL MEMORANDUM
TO: Mayor Haggerton
Members of the City Council
FROM: Jack Pace, Director, Department of Community Development
DATE: July 20, 2011
SUBJECT: Council Public Hearing on Ecology Required and Recommended
Revisions to City Adopted Shoreline Master Program
ISSUE
Should the City adopt new ordinances incorporating the Department of Ecology required and
some recommended changes to the Shoreline Master Program?
BACKGROUND
Adoption of a local jurisdiction's shoreline master program is a joint effort between that
jurisdiction and the Washington Department of Ecology (DOE). After a multi -year process, the
Tukwila City Council adopted a new Shoreline Master Program (SMP) on December 14, 2009.
The SMP was then submitted to the Department of Ecology for its review and approval on
January 22, 2010.
The Department of Ecology conducted its own review process on the City's SMP and then
notified the City of required and recommended changes to the SMP in order to receive state
approval. These changes are generally technical in nature. The City Council held a work
session on May 11, 2011 to review the required and recommended changes. Staff
provided the following materials for that work session:
A Summary of Required Changes to Council Adopted Shoreline Master Program;
A copy of the Department of Ecology Correspondence and Attachments;
A Matrix Comparing the Tukwila Shoreline Master Program with the Ecology Required and
Recommended Changes; and
A copy of the December 14, 2009 Council Adopted Shoreline Master Program with Staff
Recommended Ecology Required and Recommended Changes Incorporated.
A public hearing was opened on June 27, 2011 on four draft ordinances that would incorporate
the Ecology required and some recommended changes. The required and recommended
changes are the same changes that were reflected in the materials the Council received for the
May 11, 2011 work session. One letter was received for the record and three individuals
testified. The public hearing was continued to July 25, 2011. One additional public comment
has been received, and is included in the Council packet.
CL Page 1 of 2 07/20/2011 10:04:00 AM
W: \Long Range Projects \Shoreline \Council Review 2\ Council Info Memo 5 -4 -11
29
July 25, 2011 City Council Public Hearing
Informational Memo
July 20, 2011
DISCUSSION
After the public hearing is closed, the Council has several options:
1. Set a date to adopt all of the Ecology required and some of the recommended changes
to the City's SMP; or
2. Reject the Ecology required and recommended changes to the City's SMP; or
3. Propose alternative language to the Ecology required changes.
Any action other than accepting all of Ecology's required changes will necessitate another round
of review by the Department of Ecology and possibly another public hearing on any additional
proposed changes to the SMP and its implementing regulations.
One approach to addressing corrections to the SMP that go beyond those required by Ecology,
is to accept the Ecology required changes, and then start implementing the SMP. Over the next
year, staff will keep track of items that may need to be adjusted or clarified. These could then
be put together as housekeeping amendments to the SMP to be brought back to the Council.
These housekeeping items include such issues as allowing live aboards under certain
circumstance. A preliminary list of housekeeping items is attached to this memo.
RECOMMENDATION
Hold the continued public hearing on the four new ordinances, close the public hearing and then
provide direction to staff on which, if any, of the options identified above the Council wishes to
take. Forward this item to the August 1, 2011 Regular Meeting for Council action.
ATTACHMENTS
Summary of Issues Raised at 6 -27 -11 Public Hearing and Staff Response with 3
attachments: 10 -6 -09 Memo from Kenyon Disend; 7 -12 -11 Comments received from
Joseph and Richard Desimone; 7 -19 -11 Desimone proposed language revisions
Errata Sheet
Preliminary List of Housekeeping Items Identified To -Date
CL Page 2 of 2 07/20/2011 10:09:00 AM
W: \Long Range Projects \Shoreline \Council Review 2 \Council Info Memo 6 -22 -11
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.s
ATTACHMENT A TO ISSUE SUMMARY
Michael R. Kenyon
Bruce L Disend
Shelley M. Kerslake
Sandra S. Meadowcroft
Kari L Sand
Chris D. Bache
Margaret J. King
Bob C.Sterbank
Steve 1. Victor
Renee G.Walls
Sara B. Springer
TO: Jim Haggerton, Mayor
Members of the City Council
Rhonda Berry, City Administrator
FROM: Shelley Kerslake, City Attorney
Kari Sand, Assistant City Attorney
DATE: October 6, 2009
RE: Shoreline Master Plan Non conformities and Banking Regulations
As currently proposed, the City's Shoreline Master Plan "SMP update may cause some
existing structures along the Green/Duwamish River to obtain non conforming status under local
zoning regulations. Potentially affected property owners have raised concerns that this non-
conforming status will adversely affect their ability to use their real property as collateral to
obtain credit or loans from banks and other lenders.
I. QUESTION PRESENTED
Whether non conforming status adversely affects a property owner's ability to use his or
her real property as collateral to obtain credit or loans from banks and other lenders.
II. ANALYSIS
To determine whether banks are less inclined to extend credit or issue loans against non-
conforming structures, we inquired at numerous local lending institutions. Most banking
officials we contacted indicated that it is difficult to generalize in this context; however, in terms
of procedure, most banks establish their own set of underwriting guidelines that are reviewed and
updated regularly, typically quarterly. Over the past year, due to the weakened economy, most
underwriting guidelines have steadily tightened, resulting in more stringent loan qualification
criteria and procedures.
There are numerous criteria that banks consider when evaluating loan applications, such
as, the creditworthiness of the applicant, loan -to -value ratios, and whether the applicant has an
established lending history with the bank. Certain "anomalies," such as a non conforming
structure, may fall outside of a bank's loan underwriting guidelines. This does not necessarily
mean, however, that a bank will reject the loan application. The bank may require a zoning
Kenyon Disend, PLLC I The Municipal Law Firm I I I Front Street South I Issaquah,WA 98027 -3820 I Tel: (425) 392 -7090 I Fax: (425) 392 -7071 I www.kenyondisend.com
41
opinion letter, which Tukwila planning staff prepare upon request, to address underwriting
concerns. Examples of underwriting concerns include whether a non conforming structure is
allowed to rebuild after a catastrophic event (e.g., a fire), and whether any timing, square footage
limitations or other zoning restrictions apply in the event of a rebuild scenario. These letters
assist the lender in assessing the risks associated with a particular loan application and are just
one of many factors considered.
III. CONCLUSION
The "bottom line" is that it appears there is no "one- size fits -all" answer in the lending
world, and each bank will apply its own set of criteria based upon a careful review of the unique
facts and circumstances presented by an individual borrower. Thus, creating non conforming
structures through City regulation is not a blanket hindrance to financing. If that were the case,
cities would never change their codes to create non conformities.
Should you have further questions regarding this topic, I may be reached at (206) 433-
1846 or skerslake(u,ci.hikwila.wa.us.
1 There was some testimony at the public hearing regarding a question on loan applications asking whether the
property was conforming or not. No bank confirmed that this was an issue at the application stage. Rather, the
banks indicated that the conformity they were looking at was whether the loan was a jumbo loan or a "conforming
loan."
-2-
F:\APPSICMTUKW1LAWemol EM0 SMP Update Nonconforming structures.doc/MS110 /06104
42
Attachment B Joe Desimone 07/12/11 mtg
With City Staff RECEIVED
SUMMARY OF PROPOSED SMP AMENDMENTS 'JUL 14 2 011'
COMMUNITY
DEVELOPMENT
Modification of Water Oriented Use Preference for Commercial/Industrial Properties
North of 126th: Properties north of 1 -5 that devoted to commercial /industrial uses are not
appropriate for water enjoyment uses. The following amendment provides for consistency
between uses as provided for in Tukwila comprehensive plan policies 11.1.4, 11.1.5. The
amendment also meets the requirement under county planning policy LU -52, b, which
discourages incompatible uses in areas that have been designated manufacturing and Industrial,
centers, MIC
Amend note 8 in the Shoreline Use Matrix, Section 8.3, as follows:
Nonwater oriented uses may be allowed as a permitted use where
the City determines that water dependent or water enjoyment use
of the shoreline is not feasible due to the configuration of the
shoreline and water body except that for industrial/commercial
properties north of 1 -5. the City need only demonstrate that water
dependent uses are not feasible.
Buffer Reduction for Habitat Restoration and Public Shoreline Access: Shoreline properties
with habitat restoration projects or which provide enhanced public shoreline access would be
eligible for a 35% buffer reduction.
Amend Table 3 and Section 7.7 and 7.8 to add the following:
The Planning Director may reduce the standard stream buffer on a
case -by -case basis by up to 35% on a shoreline property on which
a habitat restoration project has been completed or on which the
property owner provides public access that exceeds the public
access standards and incentives in Section 11. So long as the
reduced buffers do not cause any net loss to shoreline functions
and values.
Buffer Reduction for Narrow Properties: Shoreline parcels that would lose a substantial
proportion of their area to the expanded buffers in the SMP would be allowed a 35% buffer
reduction.
Amend Table 3 and Section 7.7 and 7.8 to add the following:
The Planning Director may reduce the standard buffer on a case
by -case basis on non levied properties by up to 35% on a shoreline
parcel in the buffer area exceeds one -third of the total area of the
43
parcel. So long as the reduced buffers do not cause any net loss to
shoreline function and values.
Use of Zoning Code Definition of Accessory Use: The DOE adds a definition of accessory use
that is different than the one in the zoning code. This proposed amendment would replace the
DOE definition with the Tukwila zoning code definition for accessory uses. This amendment
provides for consistency for the definition of Accessory uses within Tukwila's codes
Amend the definition of "Accessory Use" in Section 3 as follows:
Accessory use: An accessory use is a use assoeiated with the
incidental and subordinate to the principle use and located on the
same lot or in the same buildina as the principal use.
use ust. in aa4ffe and eempatible i44th uses in the
inunediate viEinity.
Parking as a Permitted Use: The DOE required use matrix limits parking areas in
commercial /industrial shoreline environments to the minimum necessary to support permitted or
conditional uses. The proposed amendment would restore parking area uses as permitted by the
underlying commercial /industrial zoning.
Amend the Shoreline Use Matrix, Section 8.3, by removing the use category "Parking
Accessory" from the Use Matrix.
Extension of Time to Obtain Permits to Reconstruct Non Conforming Structure
Accidentally Destroyed. The nonconforming uses and structures can be vacant for up to 24
months whereas for a structure that is accidentally destroyed, a permit application must be filed
within 12 months. Economic conditions may require a longer time period for applying for
reconstruction permits. The proposed amendment would make all time periods consistent at 24
months.
Amend Section 14.5(B)(2) as follows:
Should such structure be destroyed by any accidental means the
structure may be reconstructed to its original dimensions and
location on the lot provided application is made for permits within
tN 24 months of the date the damage occurred and all
reconstruction is completed within two years of permit issuance. In
the event that the property is redeveloped, such redevelopment
must be in conformity with the provisions of this SMP.
Attachment C 07/19/11
Desimone Proposed Language Revisions RECEIVED
SUMMARY OF PROPOSED SMP AMENDMENTS JUL' 1 9 2011
COMMUNITY
DEVELOPMENT
Modification of Water- Oriented Use Preference for Commercial/Industrial Properties
North of 126th: Properties north of I -5 that devoted to commercial /industrial uses are not
appropriate for water enjoyment uses. The following amendment provides for consistency
between uses as provided for in Tukwila comprehensive plan policies 11.1.4, 11.1.5. The
amendment also meets the requirement under county planning policy LU -52, b, which
discourages incompatible uses in areas that have been designated manufacturing and Industrial,
centers, MIC
Amend note 8 in the Shoreline Use Matrix, Section 8.3, as follows:
Nonwater- oriented uses may be allowed as a permitted use where
the City determines that water dependent or water enjoyment use
of the shoreline is not feasible due to the configuration of the
shoreline and water body, except that for industrial /commercial
properties north of I -5, the City need only demonstrate that water
dependent uses allowed by the underlining zoning are not feasible.
Buffer Reduction for Habitat Restoration and Public Shoreline Access: Shoreline properties
with habitat restoration projects or which provide enhanced public shoreline access would be
eligible for a 35% buffer reduction.
Amend Table 3 and Section 7.7 and 7.8 to add the following:
The Planning Director may reduce the standard stream buffer on a
case -by -case basis by up to 35% on a shoreline property on which
a habitat restoration project has been completed or on which the
property owner provides public access that exceeds the public
access standards and incentives in Section 11.
So long as the reduced buffers do not cause any net loss to
shoreline functions and values and that the buffer reductions will
not result in any adverse impacts to river. If the existing buffer is
vegetated a buffer enhancement plan may be required to
demonstrate how functions and values of the buffer and river will
be improved. If the buffer is not vegetated or has been disturbed
the enhancement plan shall be required to show how the measures
will improve and enhance the buffers function and values while
providing additional protection to the river. All enhancement plans
are subject to approval of the planning director.
Buffer Reduction for Narrow Properties: Shoreline parcels that would lose a substantial
proportion of their area to the expanded buffers in the SMP would be allowed a 35% buffer
reduction.
Amend Table 3 and Section 7.7 and 7.8 to add the following:
The Planning Director may reduce the standard buffer on a case
by -case basis on non levied properties by up to 35% on a shoreline
parcel in the buffer area exceeds one -third of the total area of the
parcel. So long as the reduced buffers do not cause any net loss to
shoreline function and values and that the buffer reductions not
result in any adverse impacts to the river. If existing buffer is
vegetated a buffer enhancement plan shall be required to
demonstrate how functions and values of the buffer and river shall
be improved. If the buffer is not vegetated or has been disturbed
the enhancement plan shall be required to how the measures will
improve and enhance the buffers functions and values while
providing additional protection to the river. All enhancement plans
are subject to approval of the planning director.
Use of Zoning Code Definition of Accessory Use: The DOE adds a definition of accessory use
that is different than the one in the zoning code. This proposed amendment would replace the
DOE definition with the Tukwila zoning code definition for accessory uses. This amendment
provides for consistency for the definition of Accessory uses within Tukwila's codes
Amend the definition of "Accessory Use" in Section 3 as follows:
Accessory use: An accessory use is a use asseeiatea wit the
incidental and subordinate to the principle use and located on the
same lot or in the same building as the princival use.
use atufe an d at ibl e the
Parking as a Permitted Use: The DOE required use matrix limits parking areas in
commercial /industrial shoreline environments to the minimum necessary to support permitted or
conditional uses. The proposed amendment would restore parking area uses as permitted by the
underlying commercial /industrial zoning.
Amend the Shoreline Use Matrix, Section 8.3, by removing the use category "Parking
Accessory" from the Use Matrix.
Extension of Time to Obtain Permits to Reconstruct Non Conforming Structure
Accidentally Destroyed. The nonconforming uses and structures can be vacant for up to 24
months whereas for a structure that is accidentally destroyed, a permit application must be filed
within 12 months. Economic conditions may require a longer time period for applying for
.N
reconstruction permits. The proposed amendment would make all time periods consistent at 24
months.
Amend Section 14.5(B)(2) as follows:
Should such structure be destroyed by any accidental means the
structure may be reconstructed to its original dimensions and
location on the lot provided application is made for permits within
tw elve 2) 24 months of the date the damage occurred and all
reconstruction is completed within two years of permit issuance. In
the event that the property is redeveloped, such redevelopment
must be in conformity with the provisions of this SMP.
47
W
Errata Sheet
Document Page Correction
SMP 37 Stn bullet duplicates the 7tn bullet
delete 7 bullet.
SMP 75 Use Matrix Commercial, Water
Oriented Uses, Aquatic
Environment Should be an "X"
in this column, not a "P"
Ordinance Revising 5 Same correction as above
TMC 18.44, Shoreline
Overlay District
50
SMP HOUSEKEEPING ITEMS
ITEM DOCUMENT PAGE CORRECTION EXPLANATION
Definitions
FIRM maps
SMP, Section 3
18.06
SMP, Section 4
11
Revise definition of
"accessory use" to
match definition in
zoning code.
Correct text to
reflect current status
of new FIRM
(Flood Insurance
Rate Maps)
21
Remove reference to
moving cross valley
levee in Tukwila
South area
Correct Table 2 to
reflect the addition of
an Aquatic
Environment and its
applicability to
Tukwila
The definition
required by Ecology
goes beyond the
typical definition of
an accessory use
the SMA does not
define accessory use
nor does the WAC
implementing the
SMA.
Technical correction:
FEMA has delayed
adoption of new
Flood Insurance
Rate Maps, so text
should be revised to
be more general in
its reference to the
FIRM.
Technical correction:
Cross valley levee is
not being moved
south to S. 200
street.
Technical correction:
The text in the table is
incorrect since one of
the Ecology required
changes is to add an
Aquatic Environment
to the City's SMP.
Technical correction:
Adding a bullet will
correctly identify the
shoreline
environments in the
City's SMP.
This will remind users
of the SMP of the
shoreline variance
process.
Flood text
Table 2
Section 7.4
Sections 7.7 and 7.8
SMP, Section 4 22
SMP, Section 7 52
SMP, Section 7
SMP, Section 7
53
70 and 72
CPL Page 1 of 3
W: \Long Range Projects \Shoreline \SMP Housekeeping -Post Ecology Approval
Add bullet "Aquatic
Environment" to list
of shoreline
environments in
Tukwila
Add sentence that
acknowledges that the
shoreline variance
process is available
for properties that due
to unusual shape or
configuration cannot
meet specific SMP
07/20/20119:15:43 AM
51
ITEM
Use Matrix
Use Matrix
Use Matrix
Use Matrix
Use Matrix
Permitted Uses
Buffer
SMP, Section 8, 75
18.44.030 N/A
SMP, Section 8 75
TMC 18.44.030 N/A
SMP, Section 8 75
SMP (Sections 8.4,
8.6, 8.8) and
TMC 18.44
Aquatic Environment SMP, Section 8.7
78, 81, 83
N/A
86
CPL Page 2 of 3
W: \Long Range Projects \Shoreline \SMP Housekeeping -Post Ecology Approval
52
ION
bulk, dimensional or
performance
standards.
Under Commercial,
Aquatic Environment
change the "X" to "P"
to permit water
oriented uses in the
Aquatic Environment
Same correction as
above
Revise or remove
footnote 8 from
Permitted Use
categories
Commercial and
Industrial in the
Urban Conservancy
Environment
Same correction as
noted above
Remove reference to
footnote 5 from the
Aquatic Environment,
Essential Public
Facility (Nonwater
Dependent)
Permit recreational
structures larger than
25 sq. ft.
Remove the
prohibition for live
aboards from the
Aquatic Environment
EXPLANATION
This corrects a
typographical error.
ClarifvinR lanl?ualae:
The character of the
Urban Conservancy
Environment is such
that establishing water
oriented uses is
difficult (over
steepened banks or
levees, non navigable
waters) so applying
the test of this
footnote does not
make sense.
Same explanation as
noted above rg
Typo ay hical error:
Footnote 5 states a
use is permitted only
if it is water
dependent by
definition a non -water
dependent essential
public facility is not
water dependent,
therefore application
of this footnote is
incorrect.
25 sq. feet is not large
enough for some
structures that want to
locate in the buffer,
such as a viewing
platform.
TVD0araDhical error:
The prohibition on
live aboards conflicts
with the Use Matrix,
07/20/20119:15:43 AM
SMP HOUSEKEEPING ITEMS
DOCUMENT PAGE CORRECT
SMP HOUSEKEEPING ITEMS
ITEM
Environmentally
Sensitive Areas
Within the Shoreline
Jurisdiction
Public Access
Nonconforming
Structures
DOCUMENT
SMP, Section 10 and
TMC 18.44
SMP, Section 11 and
TMC 18.44
SMP, Section 14.5
C.2.
TMC 18.44
PAGE
SMP 113 -135
SMP 142
SMP 161
CPL Page 3 of 3
W: \Long Range Projects \Shoreline \SMP Housekeeping -Post Ecology Approval
CORRECTION
Housekeeping
corrections to make
this section consistent
with the City's SAO.
Section 11.5 D 1.
Replace "significant"
with the word
"substantial" which is
the correct word to
use per RCW
90.58.320
Revise 14.5 C.2. to
read as follows:
For a nonconforming
structure, special
economic
circumstances prevent
the lease or sale of
said structure within
24 months, or the
aonlication for a
bLiildina nermit within
12 months for
structures destroyed
by anv accidental
means. and
EXPLANATION
which permits live
aboards. The intent
was to permit live
aboards under certain
circumstances,
applying the standards
found in Section
9.9.12 E.
Technical correction:
The City's SAO was
revised by the Council
in 2010 the
environmental
regulations in the
SMP should match
those applied to other
areas of the City.
TVDOSraUhical error:
This is a wording
error from the
Department of
Ecology's required
changes text.
Adding this language
would recognize that
due to special
economic
circumstances it may
not be possible to
apply for a building
permit within 12
months of a
nonconforming
structure being
destroyed. The
applicant would be
required to restore or
enhance the shoreline
buffer in return for
receiving a time
extension.
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