HomeMy WebLinkAboutCOW 2019-06-24 Item 3 - Public Hearing - Ordinances Updating the Shoreline Master ProgramCOUNCIL AGENDA SYNOPSIS
Initials
Meeting Date
Prepared 6:),
Ma Or',1 review
Council review
06/24/19
MD
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08/12/19
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NFORMATION
ITEM No.
3 & 4.A.
STAFF SPONSOR: JACK PACE
ORIGINAL AGENDA DATE: 6/24/19
AGENDA ITEM Trill_ Periodic Update of the Shoreline Master Program and Regulations
C \TI,GORY D1,1CleSS1011
6/24/19
E Motion
1lItg Date
[I] Resolution
Mfg Date
Ej Ordinance
Mfg Date
E Bid Award
Mt, Date
11 Public Hearing
E Other
Mtg Date
illtg Date
AN Date 6/24/19
SPONSOR CONY1C7/ llayOr EHR II D CD Elinante JFzn E TS FjP&R EPolue
flPIF Court
SPONSOR'S The City and Washington Department of Ecology are conducting a joint review process for
summ,\Ry the mandated periodic update of Tukwila's Shoreline Master Program and implementing
regulations. The PC has forwarded a recommended draft of the changes to Council. The
Council is being asked to hold a public hearing on the recommendations, review any
additional public comments, give staff direction on further changes and adopt new
ordinances.
RI;vii;WI'D BY El C.O.W. Mtg
E1 Trans &Infrastructure
DATE: 2/12/19,
W, CDN Comm
E Finance Comm. El Public Safety Comm.
El Parks Comm. Elli Planning Comm.
COMMInEE CFIAIR: QUINN
fl Arts Comm.
6/11/19
RECOMMENDATIONS
SPoNsoit/ADmiN
COMMITTEE
Department of Community Development
Unanimous Approval; Forward to Committee of the Whole
COST IMPACT / FUND SOURCE
ExIINirIuRi Ri,QUIRFI) AMOUNT BUDGETED APPROPRIATION REQUIRED
$24,750 $4,750 $
Fund Source: DOE GRANT $20,000, PROFESSIONAL SERVICES BUDGET
Comments:
MTG. DATE
RECORD OF COUNCIL ACTION
6/24/19
MTG. DATE
ATTACHMENTS
6/24/19
Informational Memorandum dated 6/11/19
Minutes from the Community Affairs and Parks Committee meeting of 6 19
*Please Bring Binder Distributed Separately*
1
2
City of Tukwila
Allan Ekberg, Mayor
UNFOR ATUONAK E OR/ANDUU
TO: Community Development and Neighborhoods
FROM: Jack Pace, DCDDirector
BY: Nmra/Gi$doff, Deputy DCDDinector
CC: Mayor Ekberg
DATE: June 11,2019
SUBJECT: Shoreline Master Program Update
ISSUE
The City of Tukwila is required to periodically update its Shoreline Master Program and
associated regulations for compliance with changes to the Shoreline Management Act,
Department ofEcology guidelines, and legislative rules.
BACKGROUND
The Green/Duwamish River flows over 93 miles from the Cascade Mountains to Elliott Bay.
Approximately 13 miles of the river meanders through Tukwila's industrial district, urban center
and residential neighborhoods. The river system has undergone extensive changes over the
years as the population has increased dramatically, forests have been logged, levees have been
built, streams and rivers rerouted, and freeways, homes, shopping and manufacturing centers
constructed. As the impacts of human development have been recognized, State and Federal
agencies have developed regulations that require local jurisdictions to provide better
protection for remaining habitat, to control the collected storm water flowing directly into the
river, and to identify and restore areas where habitat restoration can succeed. This took on new
urgency when salmon were listed under the Federal Endangered Species Act in 1999.
The Green/Duwamish River in Tukwila is categorizedasaShoreline of the State. |nresponse to
the State Shoreline Management Act (SMA) and Federal requirements, Tukwila has adopted
three documents related to the river — the Shoreline Master Program (SMP), Shoreline Element
in the City's Comprehensive Plan, and zoning regulations in TIVIC Chapter 18.44 Shoreline
Overlay.
Most construction, grading or clearing within 200 feet landward of the ordinary high water
mark (OHWM) requires a Shoreline Substantial Development Permit which is reviewed by the
Washington State Department of Ecology after issuance by the City. The City's shoreline
development regulations balance economic interests, flood control, and residential
development with enhancement and stewardship of the ecological functions of the river.
The City of Tukwila completed a comprehensive update to its Shoreline Master Program in
2009, with additional revisions made in 2011.VVashington state law requires jurisdictions to
INFORMATIONAL MEMO
Page 2
SMAand Department ofEcology guidelines and legislative ru|es.Thecurrentupdateisdueon
June 30,2019.
SHORELINE MASTER PROGRAM PERIODIC UPDATE
This update process isbeing undertaken jointly with the Department ofEcology using the joint
review process. By coordinating closely with DOE from the start we will streamline the review
timeline and ensure that we are addressing all required topics. The current update will focus
• Reviewing relevant legislative updates since 2OO9and incorporating anyapp|icab|e
amendments per the Gap Analysis Report(evai|ab|eontheShore|ineK4anaggnnentpage
ofthe City vvebsitg).
• Ensuring consistency with recently adopted regulations for critical areas and flood hazard
areas.
• Streamlining and eliminating duplication inthe documents.
• Addressing alimited number ofpolicy questions.
This periodicupdatemiUnot:
• Re-evaluate the ecological baseline which was established as part of the 2009
comprehensive update.
• Extensively assess no net loss criteria other than to ensure that proposed amendments do
not result indegradation ofthe baseline condition.
~ Change shoreline jurisdiction orenvironment designations.
PUBLIC OUTREACH
Staff began implementing the Public Outreach Plan with an all -city mailing advertising an open
house last October in addition tomentions in the citywide 3tnrnnxvater mailer, the September
2018 eHazelnut newsletter, and on the City's web site. The PC hearing was advertised through
an additional postcard to property owners and tenants within the shoreline jurisdiction and
email notices tointerested parties and agencies with 'jurisdiction.
Staff developed a set of proposed edits to the SMP and TMC Chapter 18.44 and released them
as public review drafts on the City's web site. The changes include the mandatory consistency
updates, housekeeping changes tostreamline the document, and staffsrecommended policy
changes. The PC reviewed these, held a public hearing, considered the public comments and
forwarded their recommended versions on to the City Council. Staff then conducted SEPA
environmental review and issued a Determination of Non -Significance for the update. These
materials are available onthe Shoreline Management page ofthe City'sxvebsite,
httg»://wv«xv.tuhvvUavva.Aox/departmentg/cmmnrnunity-deve|nprnent/shnreUne-manage,nent/
DISCUSSION
The main areas of change are listed below.
ftitysmre\CityQommon\CounGilAgenda ItemsOCID\Shomline Updme\SmPCouncil Info Memo 6-1149,docx
INFORMATIONAL MEMO
Page 3
ComsistencV with State Regulations
As documented in the Gap Analysis report there are areas where the City's regulations do not
reflect recent changes to State law. These include updates to definitions, new shoreline
exemptions, and updated references toRCVVand VVAC sections. These changes are mandatory
for consistency across jurisdictions. The proposal also includes language for revisions and time
extensions for issued shoreline permits in accordance with State requirements.
Streamlining/Eliminating Duplication
The current SIVIP includes policies and regulations that were subsequently also adopted into the
Comprehensive Plan and Zoning Code. This duplication has given rise to inconsistencies and
requires duplicate amendments whenever changes are made. The proposal is to create a multi-
partSIVIP that spans these documents and includes the Shoreline Element and Chapter 18.44 by
reference without repeating policy orregulation language.
The current Chapter 18.44 Shoreline Overlay duplicates the environmental regulations found in
Chapter 18.45 Sensitive Area Ordinance for sensitive areas within the shoreline jurisdiction.
After discussion with our DOE reviewer the proposal is to eliminate this duplication, reference
the regulations in lB,45that are currently being updated, and add additional language about
applicability and limitations of that chapter. This does mean that adoption of the environmental
regulation update will need to occur concurrently with the adoption of the shoreline update.
Another proposal is to combine the shoreline use matrix and narrative list of uses into a single
table for clarity. Similarly, the narrative discussion of shoreline buffers has been put into a
table. Tree protection standards and penalties for tree unauthorized removal are proposed to
be updated to match the standards required outside of the shoreline under the new Tree
Ordinance. During review of the Critical Areas update the PC recommended some additional
consistency edits to how trees and vegetation are regulated under shoreline, critical areas,
landscape and tree chapters. Staff is proposing some additional edits to the PC recommended
SK4Pinsection I8.44.O50toaddress that issue.
Renumbering
Some of the code sections in TIVIC 18.44 are quite long and therefore code citations can be 4 or
5 layers deep. This can be confusing and hard to use. Staff proposes to break up some of these
long sections and renumber in the final ordinance format after the policy work is completed on
the strikeout/underline version.
Additional FlexibUitVfor Levee Profile
The current SIVIP contains a minimum levee profile with a mid -slope bench that is required
throughout the City. In practice this has not always been the chosen solution for a given
location and has required a shoreline variance even for designs with better environmental
performance. The proposal is to retain the minimum levee profile as an example but allow
flexibility to address site conditions and environmental opportunities without the variance
process as long as criteria such as an overall 2,5:1 river bank slope (red line below) and native
plantings are met.
\kcitysmrekCity CommonkCouncil Agenda ltems=DkShomlineUpdam\SMpCouncil Info Memo 6-1149.docx
INFORMATIONAL MEMO
Page 4
Typical Shoreline Buffer inLeveed Areas -Width Will Vary
-
Reconfigured Levee
*8,
"
' Maintenance Easement
UUM
° Reconfigured Slope averages 2.51 with bench
Additional F|embi|itvfor BooduvaU$
This update iShappening alongside acUscussionaboutfloodprotectonnleasuresintheLovver
Green River Corridor Flood Hazard Management Plan. There are multiple alternatives under
consideration including the question ofwhether future levees should bebuilt toprotect against
SOOyear rather than 1OOyear flood events. This could require levees tobebetween 3.5and 5.5
feet higher, which requires between 20 and 30 additional feet of width with a front and back
slope ofatleast 2.5:1oradding 3.5to5.5feet ofheight tn aflood wall configuration without
the need for onadditional 2Oto3Ofeet ofwidth.
141
Vegetated Bench
Willows
/Existing Levee
Ordinary High
Water Mark
oHWM
ki'
The current Flood Control District access road standard is 15', not the 10' built into our current
buffer calculation so the total width of the levee footprint could increase by up to 35 feet.
Allowing aoalternative flood wall configuration tosubstitute for the back slope, especially
where site constraints exist, would reduce the width needed and lessen the impact on adjacent
property owners. Levees are so expensive to build and the consequences of a levee failure are
so significant that the need to allow site specific design solutions may be desirable to reach life
safety and economic goals.
Increased Height Incentives
The proposal is to provide increased building height incentives for property owners who
provide shoreline restoration or shoreline public access above that required by code. The PC
opted to increase the current shoreline foot height limit from 4Sto65feet and allow another
15 foot increase on properties that restore shoreline buffers or build shoreline public access
amenities. These incentives would not allow heights greater than that permitted by the
underlying zoning district.
Non -Conforming Structures
in response to a public comments the PC recommends removing the cost limitation on
alterations orimprovements to non -conforming structures within the shoreline buffer ifthe
buffer covers most of the parcel. If a non -conforming structure is demolished the footprint may
beincorporated into anadjacent parking lot.
8dtyoma$QtyC*mmon\Counci|Agenda |mmdoC0Shure|ineUpcate\@MPCouncil Info Memo 0'11-19.docx
INFORMATIONAL MEMO
Page 5
FINANCIAL IMPACT
No direct impacts are expected due to these changes, The Department of Ecology has provided
Tukwila with a $20,000 grant to offset the cost of hiring a consultant to assist with the update.
RECOMMENDATION
The Council is being asked to hold a public hearing on the proposed changes at the June 24th
Committee ofthe Whole meeting. Staff will then return with acomment matrix for the City
Council to review at the July 8 Committee of the Whole and revised ordinances at the July 15
Regular Meeting.
ATTACHMENT
A. Summary of Recommended Shoreline Edits
The separately distributed binders also contain:
1. An annotated, strikeout/underline version of Chapter 18.44 showing the bulk of the
proposed changes
2. Aclean version ofChapter 1l44
3. A clean version of the SMP (strikeout/underline is available on the City's Shoreline
Management website) containing an explanation of where the goals, policies and
regulations for the shoreline are located
4. A matrix showing the PC's responses to the public comments on the SMP and TIVIC
18.44
5. Initial Determination letter from DOE
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Description
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Consistency Updates
Update dollar thresholds, update State Code references, update definitions
(dewe|opmentflnodm/ay)'reference new exemptions inVVA[ update history of
SIVIP, reference rather than repeat Comprehensive Plan policies
Critical Areas
Replace with areference tothe City-wide critical area regulationsinl8/45which
will beupdated tpreference 2Ol4wetland rating system, JO11federal
delineation manual and buffers tumeet Dept. ofEcology guidance, wetland
mitigation banking
Levee Profile
Allow flexibility inthe City's preferred levee profile including use offlnodwa|gto
allow for varying site conditions and 500-year flood protection.
S�
Description
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Housekeeping
Add purpose and applicability section tnthe Chapter, streamline for usability,
remove duplication
Permitted Uses
Remove the use list and replace it with a use matrix for greater consistency
between shoreline environments
Recreational Structures
Remove lS'height and ZSSFarea limit tPallow more flexibility, greater usability
Commercial Fences
increase allowed height [nshoreline from 4to6feet for safety and security
Shoreline Buffers
Place written standards into atable for ease ofuse
Consistency Updates
Add references to the Shoreline Design Guidelines, updated tree protection
regulations, updated tree removal penalties, align inconsistent definitions,
clarify that consistency with the SN1Aand VVACbrequired
Mitigation Monitoring
Require Syears ofmaintenance and monitoring for plant survival in mitigation
projects, 3 years survival for tree replacement
Vegetation Management
Clarify that removal ufinvasive species prnoxious weeds isexempt from
permitting, limit pruning and topping
Trail Width
Standard for 14'trail with 2'shoulders is inconsistent with County and City Park
standards which require 12'vxith %'shou|deo
Overwater Structures
Require proof of submittal rather than approval for state and federal permits
and ademonstrated need for any new docks.
Bridges
Clarify that bridges are regulated asnvemvaterstructures
Shore|ineRededgnadnn
include aprocess tochange ashoreline environment designation
Permit Revisions
Include aprocess toreview changes tpshoreline permits
Permit Timelines
Amend toinclude areference toVyA[l73'Z7-090for time extensions
Non-conformities
Clarify use regulations per new VVACsection, nolimit onrepairs tonon-
conforming buildings where most ofsite iswithin shoreline buffer
Height Incentives
Increase building height limit from 45'to 65' and increase incentive for shoreline
restoration orpublic access from 1SV6to15'
10
City of Tukwila
City Council Community Development & Neighborhoods Committee
COMMUNITY DEVELOPMENT & NEIGHBORHOODS COMMITTEE
Meeting Minutes
June 11, 2019 - 5:30 p.m. - Hazelnut Conference Room, City Hall
Councilmembers: De'Sean Quinn, Chair; Dennis Robertson, Verna Seal
Staff: David Cline, Jack Pace, Brandon Miles, Minnie Dhaliwal, Robert Eaton, Tracy
Gallaway, Nora Gierloff, Laurel Humphrey
CALL TO ORDER: Chair Quinn called the meeting to order at 5:30 p.m.
I. PRESENTATIONS
II. BUSINESS AGENDA
A. Shoreline Master Program Ordinances
Staff is seeking Council approval of ordinances that will update the Shoreline Master
Progam and associated regulations in accordance with the Shoreline Management Act,
Department of Ecology (DOE) guidelines, and legislative rules. Tukwila has adopted three
policy documents related to the Green/Duwamish River, which is categorized as a Shoreline
of the State: Shoreline Master Program, Shoreline Element of the Comprehensive Plan, and
zoning regulations in TMC Chapter 18.44 Shoreline Overlay. State law requires cities to
periodically review and update their SM Ps every eight years. Staff has coordinated closely
with the DOE with the focus on relevant legislative updates, ensuring consistency with
critical areas and flood hazard regulations, streamlining and eliminating duplication, and
addressing a limited number of policy questions. The process has included public outreach,
Planning Commission public hearing and recommendations, SEPA review, and DOE review.
Committee members and staff reviewed the matrix of Planning Commission
recommendations. Staff will incorporate public comment given at the June 24 Public
Hearing into a comment matrix for further review by the Committee or by the full Council,
which will be determined on the 24th. Chair Quinn suggested clarity around sequencing of
the process and emphasizing the DOE comments. He also requested input by an attorney
specializing in this area. FORWARD TO JUNE 24, 2019 COMMITTEE OF THE WHOLE.
B. Lodging Tax Applications
1. Staff is seeking Council approval of a lodging tax funding request from the City of
Tukwila for $40,000 for the Southcenter Art Development Phase I project. This will
initially focus on Baker Boulevard between Westfield Southcenter and the rive and will
include project development for permanent art options and street/sidewalk painting to
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