HomeMy WebLinkAboutPlanning 2023-09-28 COMPLETE AGENDA PACKETCity of Tukwila
Allan Ekberg, Mayor
Department of Community Development - Nora Gierloff, AICP, Director
CITY OF TUKWILA
PLANNING COMMISSION (PC)
AGENDA
SEPTEMBER 28, 2023 - 6:30 PM
To Participate in the Virtual Meeting at 6:30 pm:
By Phone: Dial +1 253-292-9750, Access 779 253 241#
Online: To join this meeting virtually please click on Planning Commission on the 9/28/23 calendar
date on the events page located at https://www.tukwilawa.gov/events/
For Technical Support during the meeting, you may call 1-206-433-7155
Join in-person at: 6200 Southcenter Blvd, Council Chambers, Tukwila, WA. 98188
Start time
I. Call to Order 6:30
II. Roll Call 6:32
III. Amendment of the Agenda (if necessary) 6:34
IV. Adoption of Minutes (to be reviewed at next meeting)
V. General Public Comments (acknowledge whether written comments were received) 6:36
VI. Old Business (none)
VII. New Business
1. Economic Development Element — full draft 6:40
2. Utilities Element — full draft 7:15
3. Capital Facilities Element — full draft 8:00
VIII. Director's Report
IX. Adjournment
8:45
8:55
Reminder: Staff is available to address Planning Commissioner questions regarding packets anytime — we
encourage Commissioners to call or email staff by noon on the Tuesday before the Commission
meeting date. Please call or email Commission Secretary Wynetta Bivens, at 206-431-3654 or
Wynetta.Bivens@n,TukwilaWA.gov to be connected with the appropriate staff member. Thank
you!
Tukwila City Hall • 6200 Southcenter Boulevard • Tukwila, WA 98188 • 206-433-1800 • Website: TukwilaWA.gov
City of Tukwila
Allan Ekberg, Mayor
Department of Community Development - Nora Gierloff, AICF, Director
TO: Planning Commission
FROM: Nancy Eklund, AICP, Long Range Planning Manager
DATE: September 12, 2023
SUBJECT: Tukwila 2024-2044 Comprehensive Plan - Draft Economic Development Element
ISSUE
This is a briefing to the Planning Commission on the proposed updates to the Economic Development
Element of the Comprehensive Plan.
BACKGROUND
At the June 8, 2023, Planning Commission Meeting, the City's Economic Development Administrator,
Derek Speck, presented the themes that guided the City's revisions to the Economic Development
Strategy'.
Over the summer, the Economic Development division has continued to refine the Economic
Development Strategy to reflect input from focus groups, interviews, and the Economic Development
Advisory Committee. Staff have incorporated that input into the Economic Development strategy.
The Comprehensive Plan's Economic Development Element correlates closely to the Economic
Development division's Strategy. In addition, the Element has been augmented by the regional policy
guidance required by the Puget Sound Regional Council and the King County Countywide Planning
Policies.
Staff have also reviewed the Implementation Strategies listed in the Economic Development Element of
2015 Comprehensive Plan are updating those to reflect the list of actions needed to implement the 2024
Policies. The final list will be provided to the PC later this year.
RECOMMENDATION
Staff recommends that the Planning Commission consider the draft Economic Development Element
and move it forward to a later date in late winter 2024 when the entire draft Plan (including the
Implementation Strategies) will be available for review, followed by a public hearing.
ATTACHMENTS
A. Economic Development Element (proposed changes integrated)
B. Economic Development Element (strikeout/underline version)
'For previous report, please see attachments to 6/22/23 Planning Commission meeting packet in the digital
records system: http://records.tukwilawa.gov/weblink/1/edoc/392315/Planning%202023-06-
22%20Item%2078%20-%20Economic%20Development%20Engagement%20Themes.pdf
Tukwila City Hall • 6200 Southcenter Boulevard • Tukwila, WA 98188 • 206-433-1800 • Website: TukwilaWA.gov
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
WHAT YOU WILL FIND IN THIS CHAPTER:
• A description of Tukwila's economic setting,
• A discussion of issues that affect economic development in the City, and
• Goals, policies, and strategies for enhancing the community's economic well-being.
PURPOSE
The overriding goal of this element is to enhance the community's economic well-being. The Economic
Development element recognizes the City's economy is strongly and directly influenced by the regional
economy, while it still identifies policies and strategies the City can use to guide our local economy.
The Economic Development element is a key component integrating all elements of the Comprehensive
Plan, suggesting ways in which the City and its partners can use effective economic strategies in order to
achieve the goals of the Plan.
There are four primary ways in which the City can affect local economic activity:
• Land use, transportation, and utility planning that determine, within the local regulation and
infrastructure capacity, the space available for residential and nonresidential development;
• Providing quality public services such as public safety, transportation, and recreation;
• Directly or indirectly influencing private sector decisions as to location, operation, and development
of business real estate, and
• Helping coordinate public and private sector efforts to enhance the employability and job
advancement potential of the residential population.
The City's general approach to enhancing the community's economic well-being can be summarized as
follows:
• Sustain moderate growth in the sectors of retail and entertainment, advanced manufacturing,
aerospace, clean technology, information technology, life -sciences, and tourism
• Attract and retain businesses generating positive financial benefits for the City
• Target family wage and higher salary industries
• Improve and support the opportunities for education, skills training, and job acquisition for all
Tukwila residents
• Provide capacity to meet Tukwila's employment targets as set by the Countywide Planning Policies
• Encourage growth into certain areas through the use of zoning and developmental regulations
• Encourage the retention and growth of existing local businesses, particularly for Black, Indigenous,
and other People of Color, immigrant, refugee, LGBTQIA+, disabled, and women owned businesses
• Encourage entrepreneurs, local startups and businesses to establish in Tukwila
• Provide efficient and timely administration of City services
• Respond to specific requests for assistance from local firms
• Provide quality public services and infrastructure including public safety, transportation, utilities,
and recreation to existing and future needs of the economic sector
• Support job enhancement programs to increase residents' employability through coordination of
private and public sector activities.
The following are potential tools available to the City to enhance economic development in the City:
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
Put sources/explanations for amended texts in footnotes
• Business Improvement Areas (BIAs)
• Local Improvement Districts (LIDs)
• Transportation Benefit Districts
• Tax Increment Financing (TIF)
• Multi -family property tax exemption (MFTE)
• Lodging tax and tourism promotion area (TPA) fees for tourism
• Local, state, and federal government funding and private resources
• Strategic sales of City property
• Use of infrastructure investment
• Funded, staffed, and administered economic development work group
ECONOMIC SETTING
The following statistics help set the background for economic development policies. The Economic
Development Background Memo contains additional supporting information, including employment and
housing growth targets per the Countywide Planning Policies.
POPULATION, INCOME AND REVENUE
The population of Tukwila in 2023 was 22,780, an increase of approximately 3,264 from 2015 (OFM).
The City's daytime population is estimated to be between 150,000 and 170,000. Taxes collected in 2015
were $45.2 million, which are projected to increase to $51.4 million in 2023.
During the same period (2015 to 2023), the assessed valuation of the City grew from $5.00 billion to
$8.98 billion. In 2015, there were 7,832 housing units; by 2023, this number had increased to 9,194
units.
In 2021, the median age of Tukwila residents was 36.1 years; over 11% of all citizens were 65 or older;
and 22.1% of the residents were under 20. In 2021, residents of color were 67.4% of the population.
Foreign -born residents account for 39.2% of the population, and more than 70 languages are spoken in
the Tukwila School District.
The median household income in the City in 2021 was $71,688, up from $45,923 in 2015. While
Tukwila's median household income is still far below King County's median income of $106,326, this
represents a substantial increase, consistent with regional trends.
EMPLOYMENT
In 2015, Tukwila had 2.41 jobs per resident, this number decreased to 2.01 in 2022 with a slight
decrease in total jobs and slight increase in population. This ratio of jobs to residents is extremely high
compared to other King County cities and regionally. There were at least 2,291 licensed businesses of all
types in Tukwila in 2022. The total number of jobs in Tukwila has fluctuated since 2015, with impacts
from COVID-19 seen across almost all sectors. In 2015, the City had approximately 47,000 jobs, whereas,
by 2022 the total number of jobs in the City had fallen 2.4% to just under 46,000, with some rebounding
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
Put sources/explanations for amended texts in footnotes
trend from pandemic impacts. The Service sector composes the largest sector of jobs, with 32% of all
jobs.
Manufacturing is next with 19.1% of jobs in the City. The number of manufacturing jobs has been
decreasing within Tukwila prior to this planning period, reflecting regional trends. Between 2015 and
2022 Tukwila lost almost 2,100 manufacturing sector jobs. This trend likely reflects the diminished
presence of jobs with Boeing and other manufacturing firms in the City's industrial areas.
In 2022, retail accounted for 16.4% of jobs in Tukwila. Warehousing, transportation, and utilities made
up 12.5%.
50000
45000
40000
35000
30000
25000
20000
15000
10000
5000
0
I
Tukwila Covered Employment by Sector, 2015-2022
I I
■ Const_Res
■ FIRE
Manufacturing
■ Retail
■ Services
• WTU
■ Government
2015 2016 2017 2018 2019 2020 2021 2022 ■ Education
Services composed the largest percentage of jobs in 2022, with 32% of all jobs. Manufacturing (19.1%);
Retail (16.4%); and Warehousing, Transportation and Utilities (12.5%) also make up sizable shares of
Tukwila's employment.
The shares of each sector, relative to each other, did not change significantly between 2015 and 2022.
While the number of total jobs within Tukwila fluctuated between 2015 and 2022, most sectors
remained fairly consistent in their share of total jobs. The Manufacturing and Service sectors displayed
the largest decreases, at 4.0% and 1.7% respectively, while other sectors saw slight increases in share,
with the FIRE (finance, insurance, and real estate) sector having the large proportional increase at 2.5%.
SMALL BUSINESS DEVELOPMENT CENTER (SBDC)
The SBDC at Highline specializes in providing business and training services to entrepreneurs and
existing businesses, in order to be successful in today's economy. The center provides:
Knowledgeable, trusted, and confidential one-on-one advice on all aspects of a business.
A link to 23 other SBDC centers in the Statewide network for additional advice.
Guidance on the purchase of an existing business or a franchise.
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
Assistance in finding sources of capital to grow a business.
Ideas about how an established businesses can move to the next level.
Benchmarking a company's performance with others to identify improvement opportunities.
Matching a businessperson with resources to accelerate the success trajectory of a business.
Developing prospect lists through targeted database searches.
Information about training and funding that can assist in growing a business.
ISSUES
There are a number of issues and trends affecting economic development in the City of Tukwila:
Financial Challenges
• Retail Sales Tax: While Tukwila continues to enjoy the dominant role in attracting retail, dining, and
entertainment spending in South King County, sales tax has not grown as fast as inflation. Retail
sales tax in 2022 was only 1.5% above 2019's pre-covid level. Retail and entertainment are still very
strong in Tukwila, but sales tax growth has gone elsewhere due to competition from other retail
centers, the State's change to destination -based sales tax, and consumer demand for online
shopping.
• Property Tax: In 2001 Washington State voters passed an initiative that restricts cities' ability to levy
their annual property tax to only 1% above their prior highest lawful levy. New construction is
added to the tax rolls above the 1% limit, but then becomes part of the taxing district's levy and
grows at a maximum of 1%. This law limits Tukwila's property tax growth and poses challenges for
funding City services when the inflation rate is greater than 1%.
Public Safety and Public Image
• Tukwila has an excellent police department but still faces public safety challenges. Because Tukwila
has millions of square feet of retail and is located at one of the busiest interchanges in the Pacific
Northwest, it is a convenient location for shoplifting, car prowls, and other property crimes. The
public perception of crime is often magnified because security businesses publish crime statistics on
a per capita basis. Tukwila has a much higher crime rate per capita due to the large business sector
and daytime population, compared to its small number of residents. In addition, the region's opioid
and fentanyl crises have further blemished the public's perception of safety in the City.
Other Challenges
• Compared to King County as a whole, Tukwila's population has a significantly lower per capita
income, $36,673 compared to $59,843, and higher poverty rate (12.4% compared to 9.4%) for 2021.
Household median income is also lower than the county median at $71,688 compared to $106,326.
Low per capita and household median incomes relative to the region limit funds available for
Tukwila residents to support basic needs, save for larger purchases, and leaves them more
susceptible to increasing or unexpected costs.
• The Tukwila South area presents a significant opportunity for new development, but it is so large
that it is challenging to find a developer that can make a large enough investment to ensure a
coordinated and cohesive mixed-use development.
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
Put sources/explanations for amended texts in footnotes
• Nearly all of the portion of Tukwila that lies on the valley floor south of 1-405 and east of 1-5 is
protected by the Green River flooding by levees and embankments. The protection system is
working, but maintenance, repairs, and improvements are becoming more complex and expensive,
especially given the challenges of protecting the environment and endangered species in the river
system.
• Housing costs in the Seattle region have increased significantly. This has led to some new single
family and multi -family housing investments in Tukwila but as housing prices increase, the risk of
residential displacement increases.
• Tukwila would like to receive additional office development since it can further support the retail
sector, but the market demand for new office development is very limited. This is, in part, because
office businesses preferred to be in downtown Seattle, Bellevue, or Redmond. Due to the significant
increase in remote work, those office concentrations now have excess capacity.
• Boeing has been downsizing some of their facilities in Tukwila, but there is strong demand for
manufacturing, warehouse, and distribution facilities. ProLogis and Amazon recently opened large,
new facilities in Tukwila's manufacturing and industrial center (MIC).
• The Tukwila International Boulevard neighborhood has an active and entrepreneurial business
community but many of the businesses generate income insufficient to afford to make significant
investments in physical improvements or growth.
GOALS, POLICIES AND STRATEGIES
The following goals and policies provide the pathway how the City can realize its economic development
vision that as a vibrant community with a strong and sustainable economy that celebrates and
empowers its diversity, supports economic prosperity for all residents, and sustains a foundation for
businesses of all sizes.
GOAL 1: A Vibrant, Diverse, and Resilient Economy
Policy 1.1
Policy 1.2
Policy 1.3
Continue to strengthen and balance economic and workforce development with
strategic housing growth in Tukwila to ensure an adaptable and diverse economic base
that leverages Tukwila's many assets and ensures the City's financial stability.
Attract and retain office, research and development, advanced manufacturing,
aerospace, food manufacturing, and life sciences businesses, including those that
provide services for export.'
Encourage commercial and mixed-use development that provides a range of job
opportunities throughout the county to create a closer balance between the locations
of jobs and housing.2
Policy 1.4 Maintain support for and strengthen Tukwila's robust retail, hospitality, and experiential
sectors.
'King County Countywide Planning Policy K_EC-6
2 King County Countywide Policy K_EC-26
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
Put sources/explanations for amended texts in footnotes
Policy 1.5 Evaluate the performance of economic development policies and strategies in
developing businesses and creating middle -wage jobs.'
Policy 1.6 Make local investments to maintain and expand infrastructure and services that support
local and regional economic development strategies. Focus investment where it
encourages growth in designated centers and helps achieve employment targets.'
Policy 1.7
Promote the local workforce through priority hire programs that create middle -wage
employment opportunities, encouraging workforce development partnerships, and
identifying pipeline education or training opportunities.5
Regional Economy
Policy 1.8 Coordinate local and countywide economic policies and strategies with VISION 2050 and
the Regional Economic Strategy. Emphasize support for those industry clusters that are
integral to that strategy.6
Policy 1.9 Prioritize growth of a diversity of middle -wage jobs and prevent the loss of such jobs
from the region.'
Regional Centers
Policy 1.10 Concentrate economic and employment growth in designated regional, countywide, and
local centers through local investments, planning, and financial policies.'
Policy 1.11 Support economic growth that, along with land use planning and infrastructure
development, facilitates Tukwila meeting its designated regional growth targets.
Policy 1.12 Work to reduce the risk of industrial displacement through a variety of anti -
displacement strategies.'
Partnerships
Policy 1.13
Collaborate with the private sector to leverage catalytic development sites.
Policy 1.14 Build and maintain relationships with property owners and businesses.
Site Selection and Development
3 King County Countywide Planning Policy K_EC-4
King County Countywide Policy K_EC-18
'Combined King County Countywide Policy K_EC-13, and PSRC Consistency tool: Economy. "...Expand access to
economic opportunities through actions such as adopting a priority hire ordinance, encouraging workforce
development partnerships, and identifying pipeline education or training opportunities...).
6 King County Countywide Policy K_EC-1 and K_EC-3.
' King County Countywide Policy K_EC-2, in part
$ King County Countywide Policy K_EC-17; this policy requires a strategy
9 PSRC MIC Consistency Tool: Economy, Guidance; this policy requires a strategy
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
Policy 1.15
Policy 1.16
Facilitate redevelopment of contaminated sites through local, county, and state
financing and other strategies that assist with planning, site design, and funding for
environmental remediation.1°
Continue working to achieve the vision in the Tukwila International Boulevard District
and Southcenter District, emphasizing walkability, placemaking, and community
gathering opportunities.
GOAL 2: A Safe, Desirable, and Healthy Community with a Positive Identity
Policy 2.1
Policy 2.2
Policy 2.3
Policy 2.4
Policy 2.5
Policy 2.6
Enhance Tukwila's public safety perceptions and sense of place and support a positive
identity as a city in which to "Live, Work, Stay and Play" — a community of choice for
businesses, residents and visitors with outstanding transportation, quality housing, fun
experiences, amenities, and supportive services.
Improve perceptions of public safety through crime reduction, visible enforcement,
improved communications, and messaging.
Invest in placemaking efforts that stimulate and instill community pride, improve quality
of life, and welcome visitors.
Promote positive aspects of the Tukwila community to the region.
Add to the vibrancy and sustainability of our communities and community health and
well-being by ensuring the provision of safe and convenient access to local services,
neighborhood -oriented retail, purveyors of healthy food (e.g., grocery stores and
farmers markets), and sufficient transportation choices.'
Promote Tukwila's natural environment as a key economic asset and work to improve
access to it as an economic driver. Work cooperatively with local businesses to protect
and restore the natural environment in a manner that is equitable, efficient, predictable,
and complements economic prosperity.12
GOAL 3: Prosperity and Opportunity for Businesses, Workers, and Residents
Policy 3.1
Expand avenues of durable economic success for workers, entrepreneurs, business
owners, and residents in Tukwila, including workforce development, with a focus on
shared prosperity, opportunity, and social responsibility for local communities.
Policy 3.2 Promote the local workforce through priority hire programs that create middle -wage
employment opportunities in historically disadvantaged communities.13
' King County Countywide Policy K_EC-24
11 King County Countywide Planning Policy K_EC-19 (Edited from original)
12 King County Countywide Planning Policy K_EC-20
13 King County Countywide Planning Policy K_EC-13
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
Policy 3.3
Direct investments to community and economic development initiatives that elevate
equitable economic opportunity for those communities most marginalized and
impacted by disinvestment and economic disruptions14.
Workforce Development and Partnerships
Policy 3.4 Improve awareness of, and access to, education and workforce development resources.
Policy 3.5
Facilitate connections between employers and education and workforce development
institutions, seeking to increase graduation rates and develop a highly educated and
skilled local workforce. Align and prioritize workforce development efforts with Black,
Indigenous, and other People of Color communities; immigrant and refugees; and other
marginalized communities.'
Policy 3.6 Act as a resource to residents and workers connecting them to workforce development
organizations.
Policy 3.7
Encourage private, public, and non-profit sectors to incorporate environmental
stewardship and social responsibility into their practices. Encourage development of
established and emerging industries, technologies and services that promote
environmental sustainability, especially those addressing climate change and
resilience.l6
GOAL 4: A Supportive Environment for Business and Entrepreneurs
Policy 4.1 Maintain a strong, supportive environment for local, independent, small, and micro -
businesses and the entrepreneurial ecosystem to ensure they continue to flourish in
Tukwila while attracting new business activities to the City.
Policy 4.2 Where possible, ease regulations that challenge small businesses.
Policy 4.3 Ensure that business and entrepreneurial resources are accessible to all, including
businesses owned by historically marginalized people, refugees, and immigrants.
Policy 4.4 Ensure that Tukwila projects an 'open for business' culture, and help businesses thrive
through:
• Transparency, efficiency, and predictability of local regulations and policies;
• Communication and partnerships between business, government, schools, civic and
community organizations, and research institutions; and
• Government contracts with local businesses.17
14 King County Countywide Planning Policy K_EC-16
is King County Countywide Planning Policy K_EC-12
16 King County Countywide Planning Policy K_EC-21
17 King County Countywide Planning Policy K_EC-5
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
Policy 4.5
Policy 4.6
Policy 4.7
Policy 4.8
Policy 4.9
Foster a broad range of public-private partnerships to implement economic
development policies, programs, and projects, including partnerships with community
groups. Ensure such partnerships share decision-making power with and spread benefits
to community groups.'
Use partnerships to foster connections between employers, local vocational and
educational programs, and community needs.19
Identify, support, and leverage key regional and local assets to the economy, including
assets that are unique to our region's position as an international gateway, such as
major airports, seaports, educational facilities, research institutions, health care
facilities, long-haul trucking facilities, and manufacturing facilities.20
Support the regional food economy including the production, processing, wholesaling,
and distribution of the region's agricultural food and food products to all King County
communities. Emphasize improving access for communities with limited healthy,
affordable, and culturally relevant food options.21
Develop and implement systems that provide a financial safety net during economic
downturns and recovery. Direct resources in ways that reduce inequities and build
economic resiliency for those communities most negatively impacted by asset poverty.22
GOAL 5: A Community that Celebrates and Invites Diversity
Policy 5.1 Foster a business community in Tukwila that welcomes and empowers residential and
business diversity in all its forms while capturing increased market share and building
resilience to economic shocks.
Policy 5.2 Seek to understand the dynamics, needs, and relationships that characterize the
minority and immigrant owned business community in Tukwila.
Policy 5.3 Celebrate the cultural diversity of local communities as a means to enhance social
capital, neighborhood cohesion, the county's global relationships, and support for
cultural and arts institutions.23
Policy 5.4 Promote business diversity by signaling public sector support and ensure public
investment decisions protect culturally significant economic assets and advance the
18 King County Countywide Planning Policy K_EC-8
19 King County Countywide Planning Policy K_EC-9
20 King County Countywide Planning Policy K_EC-10
21 King County Countywide Planning Policy K_EC-11
22 King County Countywide Planning Policy K_EC-27
23 King County Countywide Planning Policy K_EC-14
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ECONOMIC DEVELOPMENT
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
Policy 5.5
Policy 5.6
Policy 5.7
business interests of Black, Indigenous, and other People of Color communities;
immigrant and refugees; and other marginalized communities.24
Eliminate and correct for historical and ongoing disparities in income, employment, and
wealth by building opportunities for Black, Indigenous, and other People of Color;
women; and other intersecting marginalized identities.25.
Promote an economic climate that is supportive of business formation, expansion, and
retention, and that emphasizes the importance of small businesses, locally owned
businesses, women -owned businesses, and businesses with Black, Indigenous, and other
People of Color; immigrant and refugee; LGBTQIA+; disabled; and women -owned or -led
businesses, in creating jobs.26
Stabilize and prevent the economic displacement of small, culturally relevant businesses
and business clusters during periods of growth, contraction, and redevelopment.
Mitigate displacement risks through monitoring and adaptive responses.27
RELATED INFORMATION
King County Countywide Planning Policies (2022)
Vision 2050 (2021)
Economic Development Element Background Memo (when available)
24 King County Countywide Planning Policy K_EC-28
26 King County Countywide Planning Policy K_EC-15
26 King County Countywide Planning Policy K_EC-7
27 King County Countywide Planning Policy K_EC-29
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ECONOMIC DEVELOPMENT
Chapter 2
Existing Comprehensive Plan (with proposed changes)
y Put sources/explanations for amended texts in footnotes
WHAT YOU WILL FIND IN THIS CHAPTER:
• A description of Tukwila's economic setting,
• A discussion of issues that affect economic development in the City, and
• Goals -a+ 4 policies, and strategies for enhancing the community's economic well-being.
PURPOSE
The overriding goal of this element is to enhanceing the community's economic well-being. The
Economic Development element recognizes the City's economy is strongly and directly influenced by the
regional economy, while it still identifies policies and strategies the City can use to affectguide our local
economy. Through policy recommendations, the Economic Development clement identifies a mans
of stimulating economic improvement for business and the community as a whole. It lays out a direction
and strategies for d aling with economic variables and adjusting to economic forces that cannot be
predicted or controlled. ItThe Economic Development element is a key component integrating all
elements of the Comprehensive Plan, suggesting ways in which the City and its partners can use
effective economic strategies in order to achieve the goals of the Plan.
There are three four primary ways in which the City can affect local economic activity can be affected:
• Land use, transportation, and utility planning that determine, within the local regulation and
infrastructure capacity, the space available for residential and nonresidential development;
• Providing quality public services such as public safety, transportation, and recreation;:
• Directly or indirectly influencing private -sector decisions as to location, operation, and development
of business real estate,by maintaining vibrant commercial districts and a supportive regulatory
environment; and
• Helping coordinate public and private sector efforts to enhance the employability and job
progression -dvancement potential of the residential population.
The City's general approach to enhancing eewthe community's economic well-being
The Economic Development clement presents a focused approach to enhancing our City's economic
well being. This approach can be summarized as follows:
• Sustain moderate growth in the sectors of retail and entertainment, advanced manufacturing,
aerospace, clean technology, information technology, life -sciences, and tourism-
• Attract and retain businesses generating positive financial benefits for the City-
• Target family wage and higher salary industries
• Improve and support the opportunities for education, skills training and job acquisition for all
Tukwila residents
• Provide capacity to meet Tukwila's employment targets as set by the Countywide Planning Policies
• Encourage growth into certain areas through the use of zoning and developmental regulations
• Encourage the retention and growth of existing local firms businesses, particularly for Black,
Indigenous, and other People of Color, immigrant, refugee, LGBTQIA+, disabled, and women owned
businesses
• Encourage entrepreneurs, local startups and businesses to establish in Tukwila
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ECONOMIC DEVELOPMENT
Chapter 2
Existing Comprehensive Plan (with proposed changes)
Put sources/explanations for amended texts in footnotes
• Provide efficient and timely administration of City services
The City of Tukwila emphasizes the following activities in order to accomplish it's economic
development goals:
• Responding to specific requests for assistance from local firms
minority , veteran and women owned.
• Expanding efforts to engage with and understand the economic development needs and priorities of
traditionally under represented groups in Tukwila neighborhoods
• Emphasizing business development to encourage existing businesses to expand
• ProvidProvide quality public services and infrastructure including public safety, transportation,
utilities, and recreation to Maintaining public works and utilities so the City's infrastructure can
meet both existing and future needs of the economic sector
• Supporting job enhancement programs to increase residents' employability through coordination of
private and public sector activities.
The following are potential tools available to the City to enhance economic development in the City:
• Industrial revenue bonds for certain areas
• Business Improvement Areas (BIAS)
• Local Improvement Districts (LIDs)
• Transportation Benefit Districts
• Tax Increment Financing (TIF)
• Multi -family property tax exemption (MFTE)
• Lodging tax and tourism promotion area (TPA) fees for tourism
• Targeted Local, state, and federal government ending and private resources
• Targeted local, State and federal funds
• Strategic sales of City property
• Use of infrastructure investment to attract new firms and development to designated areas
• Funded, staffed, and administered economic development work group
• Lodging tax for tourism promotion
In this way, local government can play an important role in the economic vitality of the community. The
policies developed in this element are aimed at implementing that role.
ECONOMIC SETTING
The following statistics help set the background for economic development policies. The Economic
Development Background Memo contains additional supporting information, including employment and
housing growth targets per the Countywide Planning Policies.
POPULATION, INCOME AND REVENUE
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1n 2003, tThe population of Tukwila was 17,270; cstimatcdin 202413 population was
21,5152,78019,210 an increase of approximately /1,5003,264 from 201508 (OFIV . The City's daytime
population is estimated to be between 150,000 te-and 170,000. Taxes collected in 2003 2015 were
estimated to be $28.245.2 million, which are projected to increased to $42451.4 million in 20132023.
During the same period (2015 to 2023), the assessed valuation of the City grew from $35.4.00 billion to
$48.47-98 billion. In 20022015, there were 7,832628 housing units; by 20132023, this number had
increased to 8,0399 194 units.
In 20102021, the median age of Tukwila residents was 33.66.1 years; n arly over 311% of all citizens
were older than 6565 or older; and 2422.1% of the residents were under 2018. _In 20102021, residents
of color were 50.167.4% of the population. Foreign -born residents account for 3649_2% of the
population, and Wore thanevef 70 languages are spoken in the Tukwila School District.
The median household income in the City in 2010 2021 was $11,27171,688, up from $45,923 in 2015.
While Tukwila's median household income is still far below King County's median income of
$66,17'1106,326, this represents a substantial increase, consistent with regional trends.. Adjusting for
inflation, Tukwila's median income fell between 2000 and 2010. Tukwila's 2000 adjusted median income
{in 2010 dollars) was $53,127. Thus, r al median income in the City fell 16.67% from 2000 to 2010.
EMPLOYMENT
In 2000, Tukwila had n Orly three times as many jobs as it had residents, but that number fell to 2.27 in
2010.In 2015, Tukwila had 2.41 lobs per resident, this number decreased to 2.01 in 2022 with a slight
decrease in total jobs and slight increase in population. This ratio of jobs to residents is extremely high
compared to other King County cities and regionally. -There were ever -at least 2,575 291 licensed
businesses of all types in Tukwila in 20132022. The total number of jobs in Tukwila has declined since
2000fluctuated since 2015, with impacts from COVID-19 seen across almost all sectors. In 201588, the
City had approximately 4870007 000 jobs. ,_By 2013,whereas, by 2022 the total number of jobs in the
City had fallen 2.44% to just undereveF 4046,000, with some rebounding trend from pandemic impacts.
The S
composes the largest percentage sector of jobs, with 32% of all jobs.
e€rvice sector
Manufacturing is next with 2-519.1% of jobs in the City. The number of misAanufacturing jobs halve been
decreasing within Tukwila prior to this planning period, reflecting regional trends. Between 2015 and
2022 Tukwila lost almost 2,100 manufacturing sector jobs. In 1991, 56% of all jobs in the City were
e e
0
continues to dccr ase in the City. This trend likely reflects the diminished presence of jobs with Boeing
and other manufacturing firms in the City's industrial areas.
In 20102022, retail accounted for 4416.4% of jobs in Tukwila. Warehousing, transportation, and utilities
made up 12.5%.
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50000
45000
40000
35000
30000
25000
20000
15000
10000
5000
0
I
Tukwila Covered Employment by Sector, 2015-2022
2015 2016 2017 2018
• Const_Res
• FIRE
• Manufacturing
Retail
• Services
• WTU
• Government
2019 2020 2021 2022 • Education
Graphic
Employment within Tukwila is distributed among a number of different sectors. Services composed the
largest percentage of jobs in 20102022, with 32% of all jobs. Manufacturing (19.1%); Retail (4416.4%);
and Warehousing, Transportation and Utilities (12.5%) also make up sizable shares of Tukwila's
employment.
The shares of each sector, relative to each other, did not change significantly between 2000 2015 and
20102022. While the number of total jobs within Tukwila fluctuated between 2015 and 2022, most
sectors remained fairly consistent in their share of total jobs. The Manufacturing and Service sectors
displayed the largest decreases, at X4.0% and 1.7% respectively, while other sectors saw slight
increases in share, with the FIRE (finance, insurance, and real estate) sector a -shaving the large
proportional increase at 2.5%. All sectors, with the exception of Construction, showed slight decreases.
The finance, Insurance and Real Estate (FIRE) sector decreased the most with a 3.7% decrease. Retail
and Manufacturing also saw decreases of 2.3% and 2/1%, respectively.
SMALL BUSINESS DEVELOPMENT CENTER (SBDC)
i•The SBDC at Highline specializes in providing business and training
services to entrepreneurs and existing businesses, in order to be successful in today's economy. The
center provides:
Knowledgeable, trusted, and confidential one-on-one advice on all aspects of your a business.
A link to 23 other SBDC centers in the Statewide network for additional advice.
Guidance on the purchase of an existing business or a franchise.
Assistance in finding the best sources of capital to grow your a business.
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A proven Ideas about how an pathway to br kout growth for established businesses can ready
te-move take their business to the next level.
• Benchmarking your a company's performance with others in your industry to uncover identify
improvement opportunities.
• Matching yea businessperson with resources to hat can best accelerate the success trajectory
of a yep+ -business.
• Developing prospect lists through targeted database searches.
• Information about little known training and funding that can assist in te-growing a your
business.
A_"can do" attitude about anything you need to successfully grow your business
RETAIL SALES
While Tukwila remains a strong attractor of consumer spending, the City has experienced a
significant reduction in taxable retail sales, once adjustments arc made for inflation. When
adjusted for inflation, taxable retail sales in 2013 were lower than they were in 2003. The City's
sales tax decline bean to occur roughly around the late 1990s. Competition for retail sales
among regional retail centers has grown stronger over the last ten years.
ISSUES
Current and existing economic trends suggest a variety of issues and needs forThere are a number of
issues and trends affecting economic development in the City of Tukwila:
Financial Challenges
• Financial Challenges
Retail Sales Tax: While Tukwila continues to enjoy the dominant role in attracting retail, dining, and
entertainment spending in South King County, sales tax has not grown as fast as inflation. Retail
sales tax- in 2022 was only 1.5% above 2019's pre-covid level. Retail and entertainment are still very
strong in Tukwila, but sales tax growth has gone elsewhere due to competition from other retail
centers, the State's change to destination --based sales tax, and consumer demand for online
shopping.
• Property Tax: In 2001 Washington State voters passed an initiative whichthat restricts cities' ability
to levy their annual property tax to only 1% above their prior highest lawful levy. New construction
is added to the tax rolls above the 1% limit, but then becomes part of the taxing district's levy and
grows at a maximum of 1%. This law limits Tukwila's property tax growth and poses challenges for
funding City services when the inflation rate is greater than 1%.
• Public Safety and Public Image
• Tukwila has an excellent police department but still faces public safety challenges. negative public
perceptions of safety. Because Tukwila has millions of square feet of retail and is located at one of
the busiest interchanges in the Pacific Northwest, it is a convenient location for shoplifting, car
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prowls, and other property crimes. The public perception of crime is often magnified because
security businesses publish crime statistics on a per capita basis. Tukwila has a much higher crime
rate per capita due to the large business sector and daytime population, compared to its small
number of residents. In addition, the region's opioid and fentanyl crises haves further blemished the
public's perception of safety in the City.
• Tukwila has an excellent police department but still faces negative public perceptions of safety.
Because Tukwila has millions of square feet of retail and is located at one of the busiest
interchanges in the Pacific Northwest, it is a convenient location for shoplifting, car prowls, and
other property crime. The public perception of crime is often magnified because security businesses,
publish crime statistics on a per capita basis. Tukwila has a much higher crime rate per capita due to
the large business sector and daytime population compared to the small number of residents. Iry
addition, Tukwila faces the same challenges with the region's opioid and fentanyl crises and its
relationship with homelessness and property crimes.
Other Challenges
• Provide access to the regional highway, transit and air transportation system in a way that does not
handicap local property development and redevelopment efforts.
'-Compared to King County as a whole, Tukwila's population has a significantly lower per capita
incomes {$36,673 compared to $59,843, 4 -and higher poverty rate (12.4% compared to 9.34%)
according to Census QuickFacts for 2021. Household median income is also lower than the
county median at $71,688 compared to $106,326. Low per capita and household median incomes
relative to the region limit funds available for Tukwila residents to support basic needs, save for
larger purchases, and leaves them more susceptible to increasing or unexpected costs. Explore
possible City actions to increase the median income of Tukwila's residents, including support for
or low English proficiency communities.
• Establish coordinated transit hubs throughout the City including, but not limited to, the Southcenter
Manufacturing Industrial Center that efficiently mix modes of travel and stimulate development of
real estate associated with transportation facilities.
'nflation adjusted reduction in the City's overall
taxable retail sales.
• The Tukwila South area presents a significant opportunity for new development, but it is so large
that it is challenging to find a developer that can make a large enough investment to ensure a
coordinated and cohesive mixed-use development.
• Nearly all of the portion of Tukwila that lies on the valley floor south of 1-405 and east of 1-5 is
protected by the Green River flooding by levees and embankments. The protection system is
working, but maintenance, repairs, and improvements are becoming more complex and expensive,
especially given the challenges of protecting the environment and endangered species in the river
system.
18
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• Housing costs in the Seattle region have increased significantly. This has led to some new single
family and multi -family housing investments in Tukwila but as housing prices increase, the risk of
residential displacement increases.
• Tukwila would like to receive additional office development since it can further support the retail
sector, but the market demand for new office development is very limited. t,Tthis is, in part,
because office businesses preferred to be in downtown Seattle, Bellevue, or Redmond. Due to the
significant increase in remote work, those office concentrations now have excess capacity.
• Boeing has been downsizing some of their facilities in Tukwila, but there is strong demand for
manufacturing, warehouse, and distribution facilities. ProLogis and Amazon recently opened large,
new facilities in Tukwila's manufacturing and industrial center (MIC).
• The Tukwila International Boulevard neighborhood has an active and entrepreneurial business
community but many of the businesses generate income insufficient to afford to make significant
investments in physical improvements or growth.
Support further enhancement of commercial and residential areas in the City's neighborhoods.
• Foster environmental remediation (brownfield cl anup), land conversion and redevelopment in the
Manufacturing Industrial Center (MIC) and Interurban Avenue areas.
• Incr asc the development, intensity and diversity of uses in the Southccnter area, including the
development of housing and entertainment .
• Develop policies, programs, projects and plans that include input from diverse groups within the
residential and business community, using innovative engagement models such as the Community
Connector Program.
partnerships to promote economic development in the City
• Enhance regional recognition of Tukwila as an economic hub, promoting the success and diversity of
its businesses and focusing on its positive business climate.
• Explore strategies to maintain a favorable and diverse tax base, to support the needs of our daytime
and nighttime populations.
• Meet the needs of our residential neighborhoods while maintaining the economic health of our
business community.
• Ensure that adequate public services arc in place to support existing and proposed commercial,
mixed use and industrial developments.
• Fund infrastructure and services by maintaining a solvent and diversified revenue stream.
VIS GOALS, POLICIES AND STRATEGIES
Vision:The following goals and policies provide the pathway how the City can realize its economic
development vision that as a vibrant community with a strong and sustainable economy that celebrates
and empowers its diversity, supports economic prosperity for all residents, and sustains a foundation for
businesses of all sizes.
GOAL 1: A Vibrant, Diverse, and Resilient Economy
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Policy 1.1
Policy 1.2
Continue to strengthen and balance economic and workforce development with
strategic housing growth in Tukwila to ensure an adaptable and diverse economic base
that leverages Tukwila's many assets and ensures the City's financial stability.
Policy 1.3
Attract and retain office, research and development, hi,advanced manufacturing,
aerospace, food manufacturing, and life sciences businesses, including those that
provide services for export.'
Encourage commercial and mixed-use development that provides a range of job
opportunities throughout the county to create a closer balance between the locations
of jobs and housing.2
Strategy 1.3.4 Promote the Tukwila International Boulevard neighborhood as an authentic,
international district welcoming to visitors.
Policy 1.4 Maintain support for and strengthen Tukwila's robust retail, hospitality, and experiential
sectors.
Policy 1.5 Evaluate the performance of economic development policies and strategies in
developing businesses and creating middle -wage jobs.'
Policy 1.6 Make local investments to maintain and expand infrastructure and services that support
local and regional economic development strategies. Focus investment where it
encourages growth in designated centers and helps achieve employment targets!'
Policy 1.7
Promote the local workforce through priority hire programs that create middle -wage
employment opportunities, encouraging workforce development partnerships, and
identifying pipeline education or training opportunities.'
Regional Economy
Policy 1.8 Coordinate local and countywide economic policies and strategies with VISION 2050 and
the Regional Economic Strategy. Emphasize support for those industry clusters that are
integral to that strategy.6
1 King County Countywide Planning Policy K EC -6
2 King County Countywide Policy K EC -26
3 King County Countywide Planning Policy K EC -4
4 King County Countywide Policy K EC -18
' Combined King County Countywide Policy K EC -13, and PSRC Consistency tool: Economy. "...Expand access to
economic opportunities through actions such as adopting a priority hire ordinance, encouraging workforce
development partnerships, and identifying pipeline education or training opportunities..j.
6 King County Countywide Policy K EC -1 and K EC -3.
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Policy 1.9 Prioritize growth of a diversity of middle -wage jobs and prevent the loss of such jobs
from the region.'
Policy 1C. Collaborate with the private scctor to ensure that catalytic development sites improve the
desirability of living, working, staying and playing in Tukwila.
Regional Centers
Policy 1.10
Concentrate economic and employment growth in designated regional, countywide, and
Policy 1.11
Policy 1.12
local centers through local investments, planning, and financial policies.'
Support economic growth that, along with land use planning and infrastructure
development, facilitates Tukwila meeting its designated regional growth targets.
Partnerships
Policy 1.13
Policy 1.14
Work to reduce the risk of industrial displacement through a variety of anti -
displacement strategies.'
Collaborate with the private sector to ensure thatleverage catalytic development sites.
improve the desirability of living, working, staying, and playing in Tukwila.
Build and maintain relationships wither property owners and businesses.
Site Selection and Development
Policy 1.15 Facilitate redevelopment of contaminated sites through local, county, and state
financing and other strategies that assist with planning, site design, and funding for
environmental remediation.1°
Policy 1.16
Continue working to achieve the vision in the
International Boulevard District and th-e-Southcenter District, with an
e-m-p-hes-i-semphasizing a -walkability, placemaking, and community gathering
opportunities.
Tukwila
GOAL 2: A Safe, Desirable, and Healthy Community with a Positive Identity
Policy 2.1 - _ - _ _ _ - _ _ _ - - - Enhance Tukwila's
public safety perceptions and sense of place and support a positive identity as a city in
which to "Live, Work, Stay and Play" — a community of choice for businesses, residents
King County Countywide Policy K EC -2, in part
8 King County Countywide Policy K EC -17; this policy requires a strategy
9 PSRC MIC Consistency Tool: Economy, Guidance; this policy requires a strategy
10 King County Countywide Policy K EC -24
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Policy 2.2
Policy 2.3
Policy 2.4
and visitors with outstanding transportation, quality housing, fun experiences,
amenities, and supportive services.
Improve perceptions of public safety through crime reduction, visible enforcement,
improved communications, and messaging.
Invest in placemaking efforts that stimulate and instill community pride, improve quality
of life, and welcome visitors.
Promote positive aspects of the Tukwila community to the region.
Policy 2.5
Policy 2.6
Add to the vibrancy and sustainability of our communities and community health and
well-being by ensuring the provision of safe and convenient access to local services,
neighborhood -oriented retail, purveyors of healthy food (e.g., grocery stores and
farmers markets), and sufficient transportation choices.'1
Promote Tukwila's natural environment as a key economic asset and work to improve
access to it as an economic driver. Work cooperatively with local businesses to protect
and restore the natural environment in a manner that is equitable, efficient, predictable,
and complements economic prosperity.'
GOAL 3: Prosperity and Opportunity for Businesses, Workers, and Residents
Policy 3.1 Expand avenues of durable economic success for workers, entrepreneurs, business
owners, and residents in Tukwila, including workforce development, with a focus on
shared prosperity, opportunity, and social responsibility for local communities.
Policy 3.2 Promote the local workforce through priority hire programs that create middle -wage
employment opportunities in historically disadvantaged communities.13
Policy 3.3 Direct investments to community and economic development initiatives that elevate
equitable economic opportunity for those communities most marginalized and
impacted by disinvestment and economic disruptionsl4.
Workforce Development and Partnerships
Policy 3.4 Improve awareness of, and access to, education and workforce development resources.
Policy 3.5 Facilitate connections between employers and education and workforce development
institutions, seeking to increase graduation rates and develop a highly educated and
skilled local workforce. Align and prioritize workforce development efforts with Black,
11 King County Countywide Planning Policy K EC -19 (Edited from original)
12 King County Countywide Planning Policy K EC -20
13 King County Countywide Planning Policy K EC -13
14 King County Countywide Planning Policy K EC -16
22
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#Indigenous, and other People of Color communities; immigrant and refugees; and other
marginalized communities.'
Policy 3.6
Policy 3.7
Ensure Act as a resource to residents and workers connecting them to workforce
development organizations. - - - - - - -
experience and cxpericncc in Tukwila.
Encourage private, public, and non-profit sectors to incorporate environmental
stewardship and social responsibility into their practices. Encourage development of
established and emerging industries, technologies and services that promote
environmental sustainability, especially those addressing climate change and
resilience.l6
GOAL 4: A Supportive Environment for !-Business and Entrepreneurs
Polic 4.1 Maintain a stron: su
Policy 4.2 Where possible, ease regulations that challenge small businesses.
II II
ortive environment for local inde•endent small and micro -
businesses and the entrepreneurial ecosystem to ensure they continue to flourish in
Tukwila while attracting new business activities to the City.
Policy 4.3 Ensure that business and entrepreneurial resources are accessible to all, including
businesses owned by historically marginalized people, refugees, and immigrants.
Policy 4.4 Ensure that Tukwila projects an 'open for business' culture, and help businesses thrive
through:
• Transparency, efficiency, and predictability of local regulations and policies;
• Communication and partnerships between business, government, schools, civic and
community organizations, and research institutions; and
• Government contracts with local businesses.17
Policy 4.5 Foster a broad range of public-private partnerships to implement economic
development policies, programs, and projects, including partnerships with community
15 King County Countywide Planning Policy K EC -12
16 King County Countywide Planning Policy K EC -21
17 King County Countywide Planning Policy K EC -5
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I
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Policy 4.6
Policy 4.7
groups. Ensure such partnerships share decision-making power with and spread benefits
to community groups.18
Use partnerships to foster connections between employers, local vocational and
educational programs, and community needs.19
Policy 4.8
Policy 4.9
Identify, support, and leverage key regional and local assets to the economy, including
assets that are unique to our region's position as an international gateway, such as
major airports, seaports, educational facilities, research institutions, health care
facilities, long-haul trucking facilities, and manufacturing facilities.20
Support the regional food economy including the production, processing, wholesaling,
and distribution of the region's agricultural food and food products to all King County
communities. Emphasize improving access for communities with limited healthy,
affordable, and culturally relevant food options.21
Develop and implement systems that provide a financial safety net during economic
downturns and recovery. Direct resources in ways that reduce inequities and build
economic resiliency for those communities most negatively impacted by asset poverty.22
GOAL 5: A Community that Celebrates and Invites Diversity=
Policy 5.1 Foster a business community in Tukwila that welcomes and empowers residential and
business diversity in all its forms while capturing increased market share and building
resilience to economic shocks.
Policy 5.2 Seek to understand the dynamics, needs, and relationships that characterize the
minority and immigrant owned business community in Tukwila.
Policy 5.3 Celebrate the cultural diversity of local communities as a means to enhance social
capital, neighborhood cohesion, the county's global relationships, and support for
cultural and arts institutions.23
Policy 5.4 Promote business diversity by signaling public sector support and ensure public
investment decisions protect culturally significant economic assets and advance the
18 King Count ry Countywide Planning_Policy K EC -8
19 King County Countywide Planning Policy K EC -9
20 King County Countywide Planning Policy K EC -10
21 King County Countywide Planning Policy K EC -11
22 King County Countywide Planning Policy K EC -27
23 King County Countywide Planning Policy K EC -14
24
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business interests of Black, Indigenous, and other People of Color communities;
immigrant and refugees; and other marginalized communities.24
Policy 5.5
Policy 5.6
Eliminate and correct for historical and ongoing disparities in income, employment, and
wealth by building opportunities for Black, Indigenous, and other People of Color;
women; and other intersecting marginalized identities.25.
Policy 5.7
Promote an economic climate that is supportive of business formation, expansion, and
retention, and that emphasizes the importance of small businesses, locally owned
businesses, women -owned businesses, and businesses with Black, Indigenous, and other
People of Color; immigrant and refugee; LGBTQIA+; disabled; and women -owned or -led
businesses, in creating jobs.26
Stabilize and prevent the economic displacement of small, culturally relevant businesses
and business clusters during periods of growth, contraction, and redevelopment.
Mitigate displacement risks through monitoring and adaptive responses.27
Community 1A/e IL Qeing
GOAL 2.1
promote the community's well being
POLICIES
2.1.1 Develop the tools needed to improve the economic development climate.
2.1.2 Strengthen Tukwila's engagement and partnership with other jurisdictions, educational
2.1.3 Expand access to quality, healthy, affordable and culturally appropriate food and groceries for
Tukwila residents.
24 King County Countywide Planning Policy K EC -28
25 King County Countywide Planning Policy K EC -15
26 King County Countywide Planning Policy K EC -7
27 King County Countywide Planning Policy K EC -29
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2.1.4 Monitor City actions and impacts on the local economy and review economic development
incentives for all sizes of businesses.
2.1.5 Continue to fund economic development staff to serve as a single contact point and information
source for the business community.
2.1.6 Leverage capital improvement funds to encourage in fill, land assembly, redevelopment, and
land conversion for family wage jobs, but only if concurrent with substantial private actions.
2.1.7 Partner with the private sector to fund infrastructure as part of a sub area plan, in order to
encourage redevelopment and as an inducement to convert outdated and underutilized land and
buildings to high valued and/or appropriate land uses.
2.1.8 Consider non financial ways (such as brokering and interlocal agreements) to assist industrial
land owners to comply with State and federal government environmental remediation requirements.
2.1.9 Consider a public private partnership to examine creating a small business incubator space in
the City.
2.1.10 Improve Tukwila's image, participation and influence in regional forums, especially those that
influence Tukwila's future and interests.
2.1.11 Promote understanding of the interdependencies and mutual interests among Tukwila
businesses, residents and the City of Tukwila.
2.1.12 Promote an economic climate that supports business formation, expansion and retention,
emphasizing the importance of the City's entrepreneurs and small businesses in creating jobs.
2.1.13 Seek funds from non City sources for use by the City to directly encourage economic
development.
2.1.14 Design and support human service programs, such as partnerships for interns and job training in
higher wage industries, to enhance the economic well being of the City's residents.
2.1.15 Promote Tukwila as a regional confluence of commerce, housing and entertainment.
2.1.16 Promote and preserve economic use of industrial lands outside the Manufacturing
Industrial Ccntcr (MIC) through appropriate buffering requirements and use restrictions.
2.1.17 Include standards in the development regulations for industrial uses that adequately mitigate
potential adverse impacts on surrounding properties and public facilities and services.
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2.1.18 Actively promote development in the Southcentcr area by supporting existing uses, proactively
developing programs and incentives to attract new businesses, investing in infrastructure and public
amenities, and encouraging business owners and developers to invest in the quality of both the built
and natural environment.
Implementation Strategies
• Develop an Economic Development Plan.
• Consider preparing overall area environmental impact statements for the Interurban/West
• Develop a freight mobility plan that addresses the efficient and safe movement of freight in the
City, while also ensuring that impacts to adjacent land uses arc reduced and, where possible,
eliminated.
with the Comprehensive Plan vision.
brownficld redevelopment and in fill.
• Focus public infrastructure investment to provide capacity in areas targeted for growth.
• Create Local Improvement Districts to finance specific transportation and utility in fill
improvements.
• Identify and eliminate confusing or outdated regulations.
• Encourage redevelopment through an informed business and r al estate community.
• Partner with a broad range of non profits, businesses and public sector agencies to develop a
facility for food related workforce development and entrepreneurship training.
solid waste and energy reduction assistance programs for businesses, property owners and
managers.
• Encourage businesses to incorporate environmental and social responsibilities into their
practices.
community engagement models.
with universities, colleges, community colleges, community based organizations and other third
parties.
• Support the food economy, including production, processing, wholesaling and distribution, as a
- - - -- -- - -- ---- - ----
for the diverse community.
Urban Center.
• Work with local chambers of commerce on business retention, business development, outr ach
and joint efforts to promote the City.
• Collaborate with local school districts to improve the educational opportunities for Tukwila
school children.
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• Consider providing information about City hiring processes and job openings at City sponsored
events and in City communications.
RELATED INFORMATION
King County Countywide Planning Policies (2022)
Vision 2050 (2021)
Economic Development Element Background Memo (when available)
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28
City of Tukwila
Allan Ekberg, Mayor
Department of Community Development - Nora Gierloff, AICP,, Director
TO: Planning Commission
FROM: Nancy Eklund, AICP, Long Range Planning Manager
DATE: September 12, 2023
SUBJECT: Tukwila 2024-2044 Comprehensive Plan — Draft Utilities Element
ISSUE
This is a briefing to the Planning Commission on the proposed updates to the Utilities Element
of the Comprehensive Plan.
BACKGROUND
Public Works, TIS, and Community Development Department Staff have been updating the
Utilities Element. There are only a few changes in this element, largely reflecting updates due
to information being no longer accurate or current, new "best practice" information, and
updated guidance from regional policy document (King County Countywide Planning Policies
and Vision 2050).
Other items to note about the draft element:
• Implementation Strategies - This Element will also contain Implementation Strategies,
however those continue to be refined by the various departments to ensure that they
are consistent with intended work programs by City Departments. The final list will be
provided to the PC later this year.
• This Element is currently #12 in the Comprehensive Plan. Because we are consolidating
the various elements, that numbering has been removed for the draft. When we
finalize the plan, the Element will be renumbered.
• The footnotes in Clean version may be relevant only for the track changes version.
RECOMMENDATION
Staff recommends that the Planning Commission consider the draft Utilities Element and move
it forward to a later date in late winter 2024 when the entire draft Plan (including the
Implementation Strategies) will be available for review, followed by a public hearing.
ATTACHMENTS
A. Utilities Element (proposed changes integrated)
B. Utilities Element (strikeout/underline version)
Tukwila City Hall • 6200 Southcenter Boulevard • Tukwila, WA 98188 • 206-433-1800 • Website: TukwilaWA.gov
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
PURPOSE
The availability and adequacy of utility facilities and services are closely linked to other
comprehensive plan elements and goals. The City of Tukwila provides a range of utility facilities
and services and also relies on other public and private agencies to provide many of these
services.
Sewer, water, surface water management, solid waste, electricity, natural gas and
telecommunications are addressed in this Element. Policies pertaining to utilities and
vegetation are located in the Natural Environment element. The Utilities Element profiles both
City and non -City -owned utilities operating within Tukwila. Sewer and water services are
provided by the City, adjacent municipalities, and special districts. Surface water drainage is
managed locally, but with interjurisdictional and watershed wide cooperative planning and
management. The remaining utilities are provided to residents and businesses through
franchise agreements between the City and service providers.
The Utilities Element establishes a basis for decision-making that is consistent with
Washington's Growth Management Act, the Puget Sound Regional Council's Vision 2050, and
King County's Countywide Planning Policies, including targets for housing units and
employment, which are a basis for determining demand for utility services and infrastructure.
These State and regional requirements are fulfilled by the Utilities Background Report,
Comprehensive Sanitary Sewer Plan, Comprehensive Water Plan, and the Surface Water
Comprehensive Plan. These documents, along with the six-year Capital Improvement Program
and the City of Tukwila budget, are adopted by reference in Tukwila's Comprehensive Plan.
Informational block:
TUKWILA UTILITY PROVIDERS WATER
City of Tukwila
City of Seattle
City of Renton
King County Water District #20
King County Water District #125
Highline Water District
SEWER
City of Tukwila
City of Seattle
City of Renton
Valley View Sewer District
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
SURFACE WATER
City of Tukwila
ELECTRICITY
Puget Sound Energy
Seattle City Light
NATURAL GAS
Puget Sound Energy
REGULATORY REQUIREMENTS
This element is consistent with Washington State GMA, PSRC Vision 2050, and King County
County -wide Planning Policies requirements for utilities planning, based on housing and
employment targets.
These requirements are fulfilled by the following documents:
Utilities Background Report
Comprehensive Sanitary Sewer Plan
Comprehensive Water Plan
Comprehensive Surface Water Management Plan
ISSUES
Several key issues in meeting the utility needs of the City are addressed in this Utilities Element:
Service Extensions. Planned extensions of utility services are based on existing needs, or to
accommodate planned growth or growth targets.
Coordination of Service Providers. The City -managed utilities must coordinate with adjacent
providers that provide utility services to portions of the City. Coordination among Tukwila's
three non -City sewer and five non -City water districts is critical.
Concurrency and Implications for Growth. Utility projects and other capital facilities must be
developed so that improvements are in place by the time they are needed, to address growth
and to accommodate growth targets.
Environmental Sustainability. Utility planning and operations requires compliance with federal
and state laws including the Clean Water Act, NPDES, ESA, State Waste Discharge Permit, and
contribute to watershed -wide restoration efforts to preserve the quality of the natural
environment.
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
Residential Neighborhood and Sub -Area Vitality. City -planned utility improvements and
extensions place priority on improving and sustaining residential neighborhood quality and
livability. Utility investments affect neighborhood quality of life and the ability to realize
established visions for specific sub -areas.
System Rehabilitation, Replacement, and Retrofit. Much of the City's utility infrastructure has
reached or is near its life expectancy. Rehabilitation or replacement of these systems is needed
to ensure their continued reliability. Federal, State and, local polices require utility system
improvements to comply with new regulations.
SYSTEM DESCRIPTIONS
WATER AND SEWER
The City of Tukwila purchases all of its water from the Cascade Water Alliance under a contract
through the year 2064. Tukwila's Comprehensive Water System Plan identifies areas of water
supply and distribution deficiency, and the six-year Capital Improvement Plan proposes
corrective improvements. See Map 12-1.
The Tukwila sewer system is exclusively a collector system with no treatment component. King
County DNRP Wastewater Treatment Division provides Regional wastewater treatment at the
South Treatment Plant in Renton. The Comprehensive Sewer System Plan identifies deficiencies
in the system, and corrective improvements are proposed in the six-year Capital Improvement
Plan. See Map 12-2.
Certain areas of the City are served by other water and sewer providers, which develop their
own plans in coordination with the City of Tukwila.
Tukwila's Comprehensive Water System and Sewer System Plans are adopted by reference as
part of the Comprehensive Plan. Those system plans identify present and future improvements
and establish certain required levels of service and priorities for system improvements. Level of
service standards are also established by applicable Board of Health regulations, the Uniform
Plumbing Code, and the Uniform Fire Code. Consistent with State mandates, Tukwila revises
and updates system plans to assure consistency with the Comprehensive Plan and the Capital
Improvement Program.
SURFACE WATER MANAGEMENT
Tukwila's surface water system consists of both built stormwater drainage infrastructure and
surface waters such as rivers and creeks. All of the city's sub -basins drain to the the
Green/Duwamish River. For locations of surface water management facilities, see Map12-3.
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
The Surface Water Comprehensive Plan contains an inventory of existing facilities and identifies
current system deficiencies and planned improvements. It evaluates the system under present
development conditions and identifies remedies for segments of the system where problems
exist or are likely to develop in the future as a result of growth and development. Proposed
improvements are included in the Six -Year Capital Improvement Program (CIP).
The City reviews and updates its Surface Water Management Plan annually to assure
consistency with this Plan, State and local regulations, the CIP, and other ongoing City planning
processes.
Map 12-1: Water Districts
Map 12-2: Tukwila Sewer System
Map 12-3: Surface Water Management Facilities
Image
TURNING WASTE INTO ENERGY
King County's Cedar Hills Landfill is the destination for much of Tukwila's solid waste.
The landfill has a gas -to -energy project which leads to cleaner air and reductions in greenhouse
gas emissions. In 2021, the landfill generated an average of about 6,500 standard cubic feet per
minute of landfill gas. This gas is transmitted to the Bio Energy Washington (BEW) gas -to -energy
plant and converted into pipeline -quality biogas. The renewable gas produced equals the
amount of energy needed to meet the natural gas needs of over 17,500 homes in King County.
Image source: King County Solid Waste Division
SOLID WASTE
Solid Waste collection, transportation and disposal in Tukwila is governed by State and local
regulations, an interlocal agreement with King County, and collection contracts with solid waste
providers. Through a competitive ten-year contract with the City, as of November 1, 2023,
Recology provides comprehensive garbage, recyclings, and food and yard waste collection
services to residential, multifamily, and commercial customers. Residential garbage collection is
voluntary.
The City's solid waste is ultimately taken to King County's Cedar Hills Landfill for disposal. As
part of the Solid Waste Interlocal Agreement (ILA) with King County, Tukwila and other parties
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
will develop plans and alternatives to waste disposal at Cedar Hills Landfill in advance of its
closure in 2038.
ELECTRIC POWER
Electric power involves both transmission systems and distribution systems. Tukwila's electric
power is provided by Puget Sound Energy, with approximately 3,800 customers, and Seattle
City Light, serving approximately 5,700 residential and 1,000 commercial customers in Tukwila.
Both companies operate under non-exclusive franchise agreements with the City. See Map
12-4.
Electrical Service Providers
Map 12-4: Electric Service Providers
Plans from both Seattle City Light and Puget Sound Energy place a priority on using energy
conservation as a way to increase service capacity. Puget Sound Energy estimates that half of its
long-term need for electric power can be met by energy efficiency and additional wind -power.
The rest is likely to be met with added natural gas-fired resources. To meet future demand,
some new transmission lines and substations will be built in Tukwila, and existing ones rebuilt
and/or maintained. Distribution plans include line and station projects. Future distribution
improvements will be required to meet the demands of Tukwila's projected growth. Seattle City
Light's plans for future distribution capacity include additional feeder capacity that is expected
to meet demand in Tukwila through the year 2031. Seattle City Light intends to meet electrical
load growth through conservation and new generation resources powered by renewable
energy.
NATURAL GAS
Puget Sound Energy, an investor-owned utility, builds, operates and maintains natural gas
facilities serving approximately 3,400 customers in Tukwila. Puget Sound Energy covers virtually
all of Tukwila with their main distribution lines. The utility foresees no difficulties in meeting
future demand during the planning period. No major improvement projects are planned at this
time. For natural gas service areas in Tukwila, see Map 12-5.
TELECOMMUNICATIONS
As telecommunications technologies have evolved, convergence of these technologies has
occurred, resulting in multiple communication services migrating into consolidated networks.
Telecommunications in Tukwila includes both wired and wireless telephone services, cable and
satellite television, and high-speed broadband technology. Through partnerships with
franchised telecommunications companies, internal public works projects and completion of
capital projects, the City has a robust conduit infrastructure that would enable and facilitate
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
future fiber optic connectivity projects benefitting the City, its residents and businesses, and
project partners. The City has joined a connectivity consortium of cities and other public
partners that would construct and maintain a regional fiber-optic telecommunications system.
This fiber-optic system would provide redundancies, enhance communications networks, and
emergency operations.
Natural Gas Provider
Map 12-5: Natural Gas Service
CABLE AND SATELLITE TELEVISION
The City of Tukwila has a non-exclusive franchise agreement with Comcast Corporation to
construct, operate and maintain a cable system in compliance with Federal Communications
Commission (FCC) regulations. Comcast's network provides high-definition television capacity
and high-speed internet access through cable modems, and includes coaxial and fiber optic
cabling systems deployed both underground and overhead using utility poles leased from
power and telephone companies.
Satellite television competes directly with cable television by delivering hundreds of channels
directly to mini -dishes installed in homes and businesses throughout Tukwila.
WIRELINE AND WIRELESS COMMUNICATIONS
Many companies offer telecommunications services including integrated voice and data, and
voice over internet protocol(VoiP) technology. CenturyLink, the Incumbent Local Exchange
Carrier (ILEC), is now joined by several Competitive Local Exchange Carriers (CLECs) in providing
more communications service options to Tukwila residents and businesses.
With expansion of telecommunications infrastructure, new technologies and competition,
telecommunications utilities are expected to meet voice, video and broadband demands during
the planning period.
GOALS, POLICIES AND STRATEGIES
GOAL 1 Utility services and facilities that meet the community's current and
future needs in a safe, reliable, efficient, economic, and environmentally
responsible manner.
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
➢ POLICIES FOR CITY -MANAGED UTILITIES
Service Extensions
Policy 1.1
Policy 1.2
Policy 1.3
Policy 1.4
Ensure that the City of Tukwila utility functional plans and operations meet
applicable federal, State, regional and county requirements and regulations to
address health and safety requirements, address deficiencies, and assure quality
of service.
Require the use of Tukwila's applicable service standards to design and construct
all utility service extensions.
Base the extension and sizing of utility system components on applicable design
standards and Comprehensive Plan development priorities.
Ensure that new development, redevelopment, and other actions within the City
of Tukwila's jurisdiction do not cause significant adverse upstream or
downstream impacts on flooding, erosion, and natural resources within and
outside of Tukwila's jurisdiction.'
Coordination of Service Providers
Policy 1.5 Coordinate with service providers for reliable and cost-effective utility services to
the public.
Policy 1.6
Coordinate with other jurisdictions and agencies in planning and implementing
utility operations, facility additions and improvements located in or affecting
multiple jurisdictions.
Policy 1.7 Participate in the regulation of all water, sewer, and surface water utility services
within the City's boundaries.
Policy 1.8 Allow utility service outside City boundaries only when required by adjustments
to City limits or to provide temporary service due to emergency.
Policy 1.9 Establish and maintain franchises and working agreements with electricity, gas,
sewer, and water utilities currently operating within the City limits, to ensure
that the level of service provided is consistent with the City's requirements and
revitalization plans.
1 Environmental policy
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
Policy 1.10 Allow special-purpose sewer and water districts to continue to operate and serve
Tukwila residents and businesses, when appropriate.
Concurrency and Implications for Growth
Policy 1.11 Schedule and phase utility extensions to occur concurrently with expected
growth and development.'
Policy 1.12
Approve development only if adequate utilities are available when a need is
created for those facilities, or within a reasonable period as required by State
law.
Environmental Sustainability
Policy 1.13 Provide environmentally sound and sustainable operations with cost-effective
methods in water, sewer and surface water management utilities operations.
Policy 1.14 Make conservation and efficiency efforts an integral part of Tukwila's utility
operations and management.3
Policy 1.15 Promote energy efficiency, conservation methods, and sustainable energy
sources in utility operations to support climate change reduction goals.
Policy 1.16
Consider Tukwila's Urban Forest together with other green stormwater
infrastructure systems — during utility planning, design, installation and/or
maintenance — to ensure that trees and water quality are protected.
Policy 1.17 Require water reuse and reclamation, where feasible, especially for high-volume
non- potable water users such as parks, schools, and golf courses.4
Neighborhood and Sub -Area Vitality
Policy 1.18 Give priority to the City's regional growth and manufacturing/industrial centers,
while balancing the needs of residential neighborhoods for City -planned utility
improvements and extensions.
Policy 1.19 Design, construct, and maintain facilities to minimize impacts on adjacent
neighborhoods and businesses.
2 Supporting a PSRC-RGC requirements (Public Services)
3 Partial for King County Countywide Planning Policy K_PF-10
4 King County Countywide Planning Policy, PF -11
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
Water Utility
Policy 1.20 Actively participate in determining a regional solution to Tukwila's water supply
and addressing the potential impacts of climate change and fisheries protection
on regional water resources.5
Policy 1.21
Provide safe, reliably -maintained and sustainable water service for domestic,
commercial, industrial, fire flow and water emergency uses, to meet present and
future needs.6
Equity
Policy 1.22 Promote affordable and equitable access of public services, including drinking water and
telecommunication infrastructure, to provide access to all communities, especially
underserved communities'
Sewer Utility
Policy 1.23 Serve all existing and potential residences and businesses with a sewer utility.
Policy 1.24 Replace failing septic systems within the city with sanitary sewers or alternative
technology that is comparable or better.'
Surface Water Utility
Policy 1.25 Serve all of Tukwila's residences and businesses with a surface water utility.
Policy 1.26 Provide capital, maintenance, education, and enforcement programs as a
function of the surface water utility.
Policy 1.27 Require low impact development techniques including green stormwater
infrastructure for both development and redevelopment projects.
Policy 1.28
Apply an adopted surface water design manual and all appendices as the
minimum requirement for all development projects and other actions that could
cause or worsen flooding, erosion, water quality and habitat problems, for both
upstream and downstream development.
Policy 1.29 Coordinate water quality improvement programs with adjoining jurisdictions
whose surface waters flow into or through Tukwila.
6 King County Countywide Planning Policy K_PF-5
6 King County Countywide Planning Policy K_PF-6
' Vision 2050, MPP -PS -2, PS -16, PS -22
$ MPP -PS -11
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
Policy 1.30
Policy 1.31
Use the Surface Water Fund to retrofit surface water systems to improve water
quality, support forest conservation and restoration, restore aquatic and riparian
habitatand enhance fish passage, by establishing:
• A water quality retrofit program that prioritizes projects based on need,
benefit and other criteria, and takes into account Washington Department
of Ecology's expanded listing of impaired water bodies; and
• A Habitat restoration programs that restore aquatic and riparian habitats and
remove fish barriers. Project priorities are based on on habitat needs,
benefits and other criteria and meet regulatory requirements.
• An urban canopy preservation program that emphasizes supports Citywide
canopy preservation policies and strategies.
Encourage the retention and planting of trees for their beneficial effects on
surface water runoff, including flow attenuation, water quality enhancements and
temperature reduction including through the use of Green Stormwater
Infrastructure, such as rain gardens.
UTILITIES NOT OPERATED BY THE CITY
Aside from water, sewer and surface water management, most utilities serving the residents of
Tukwila are not owned or operated by the City. While the City can provide input on planning
efforts for these utilities, it does not directly control service rates or the exact location of new
infrastructure.
Private utilities are required to obtain any City permits necessary to operate or install
infrastructure within the City and must comply with all applicable City and State regulations.
Image Source: Puget Sound Energy
➢ POLICIES FOR NON -CITY -OWNED UTILITIES
Non -City -owned utilities develop strategic and operational plans with varying degrees of input
and involvement from the City. They set capacity and service levels on an area -wide basis, and
rely on the local government's involvement to ensure that capacity is sufficient.
As a condition of applying for a permit, new development that uses non -City owned water and
sewer utilities is required to obtain a letter of service availability. This letter establishes that
utility service meeting City standards is either available or will be available prior to occupancy.
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
The electric power and natural gas utilities project adequate capacity during the 20 -year
planning period, assuming responsible use of these resources. Electric utility capacity is set
regionally, with Tukwila's needs determined and provided for as part of an area -wide system.
Similarly, natural gas is provided via a regional delivery system.
With new technologies, telecommunications utilities project virtually limitless capacity within
the planning horizon.
Through long-term Interlocal Agreements (ILAs), the solid waste system will continue to be
upgraded to meet Tukwila's current and future needs. The Cedar Hills Landfill expects to reach
full capacity in 2025. The current ILA that expires in 2040 addresses the process that cities and
King County will follow to develop disposal options prior to Cedar Hills Landfill reaching its full
capacity. Tukwila and other suburban cities participate in planning and contribute to reaching
regional goals via their recycling and waste reduction strategies and practices.
General Policies
Policy 1.32 Actively coordinate project implementation with individual utilities, based on
Tukwila's Comprehensive Plan and development regulations.
Policy 1.33 Require new development that uses non -City -owned water and sewer utilities to
obtain a letter of service availability as a condition of receiving a Tukwila permit.
Policy 1.34
Require utilities operating in the right-of-way to obtain a franchise that includes
service levels and requirements meeting Comprehensive Plan forecasts and
other applicable federal, State, and local regulations.
Policy 1.35 Encourage utilities to consolidate facilities, use existing transportation corridors,
and minimize visual impacts of facilities, where technically feasible.
Policy 1.36
Policy 1.37
Encourage communication between the City of Tukwila, the Washington Utilities
and Transportation Commission, and the utilities regarding cost distribution and
rate -setting for existing and proposed facilities and services.
All new electrical and communication facilities shall be constructed
underground, unless specifically exempted by the Tukwila Municipal Code or
determined by the City Council to be financially impractical.
Policy 1.38 If a utility relocation is required by a public works project — such as a street
widening project, utility repairs or upgrades — or any major replacement of aerial
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
facilities, the relocated/replaced facilities shall be underground, unless the City
determines that doing so is not in the best interest of the public.
Policy 1.39 Recognize and support agreements with water purveyors to promote effective
conveyance of water supplies and secure adequate supplies for emergencies.'
Telecommunications
Policy 1.40 Provide telecommunication infrastructure to serve growth and development in a
manner consistent with Tukwila's vision, as outlined in the Comprehensive Plan.
Policy 1.41
Encourage the equitable provision of telecommunication infrastructure and
affordable, convenient, and reliable broadband internet access to businesses,
and households of all income levels, with a focus on underserved areas.'°
Solid Waste Management
Policy 1.42 Reduce the solid waste stream and encourage reuse and recycling.'
Policy 1.43
Policy 1.44
Maintain a comprehensive solid waste management program that includes
environmental responsibility and sustainability, competitive rates, and customer
service excellence for Tukwila's residential, multifamily, and commercial
customers.
As current franchise agreements expire in areas annexed to the City, provide
waste management services that are consistent with that provided to other
areas of the City.12
Policy 1.45 Encourage and actively participate in a uniform regional approach to solid waste
management.
Electric and Gas Utility
Policy 1.46
Reduce the rate of energy consumption, and use efficiency and conservation as a
means to lower energy costs and mitigate environmental impacts associated
with traditional energy supplies.13
9 King County Countywide Planning Policies, K_PF-9 - policy has been pared back from scope of original
10 King County Countywide Planning Policies, PF -17
11 King County Countywide Planning Policies, K_PF-14
12 This is a clarification of the circumstances — it relates to waste disposal in Tukwila South.
13 King County Countywide Planning Policies, K_PF-15
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
Policy 1.47
Policy 1.48
Policy 1.49
Promote use of renewable and alternative energy resources to help meet long-
term energy needs, reduce environmental impacts associated with traditional
energy supplies, and increase community sustainability.l4
Ensure that development regulations are consistent with and do not otherwise
impair fulfilling public service and other obligations imposed by federal and State
law.
Actively support the greenhouse gas reduction policies pertaining to utilities
described in the Natural Environment Element of this Comprehensive Plan
(These policies will be listed as noted below)1s
14 King County Countywide Planning Policies, K_PF-16
15 In the interests of reducing repetitiveness in the Plan, policies pertaining to the reduction of greenhouse gases
have been moved to the Natural Environment element.
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UTILITIES
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition.
RELATED INFORMATION
Utilities Background Report
Tukwila Water Plan
Tukwila Sewer Plan
Tukwila Surface Water Plan
Tukwila Capital Improvement Program (CIP)
Valley View Sewer District
City of Renton Utilities
City of Seattle (Water, Sewer)
Highline Water District
King County Water District #125
King County Water District #20
Puget Sound Energy (Electric, Natural Gas)
Seattle City Light
Waste Management, Inc. (Solid Waste, Recycling)
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added
UTILITIES
Chapter 12
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Existing Comprehensive Plan (with proposed changes)
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PURPOSE
The availability and adequacy of Utility utility facilities and services are closely linked to -the
other
comprehensive plan elements and goals. The City of Tukwila provides a range of utility facilities
and services and also relies on other public and private agencies to provide many of these
services.
Sewer, water, surface water management, solid waste, electricity, natural gas and
telecommunications are addressed in this Element. Policies pertaining to utilities and
vegetation are located in the Natural Environment element. The Utilities Element profiles both
City and non -City -owned utilities operating within Tukwila. Sewer and water services are
provided by the City, adjacent municipalities, and special districts. Surface water drainage is
managed locally, but with interjurisdictional and watershed wide cooperative planning and
management. The remaining utilities are provided to residents and businesses through
franchise agreements between the City and service providers.
The Utilities Element cstablislestablishhes a basis for decision-making that is consistent with
Washington's Growth Management Act, the Puget Sound Regional Council's Vision 2050, and
King County's Countywide Planning Policies, including targets for housing units and
employment, which are a basis for determining demand for utility services and infrastructure.
These State and regional requirements are fulfilled by the Utilities Background Report,
Comprehensive Sanitary Sewer Plan, Comprehensive Water Plan, and the Comprehensive
Surface Water Management Comprehensive Plan. These documents, along with the six-year
Capital Improvement Program and the City of Tukwila budget, are adopted by reference in
Tukwila's Comprehensive Plan.
Informational block:
TUKWILA UTILITY PROVIDERS WATER
City of Tukwila
City of Seattle
City of Renton
King County Water District #20
King County Water District #125
Highline Water District
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UTILITIES
Chapter 12
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Existing Comprehensive Plan (with proposed changes)
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SEWER
City of Tukwila
City of Seattle
City of Renton
Valley View Sewer District
SURFACE WATER
City of Tukwila
ELECTRICITY
Puget Sound Energy
Seattle City Light
NATURAL GAS
Puget Sound Energy
REGULATORY REQUIREMENTS
This element is consistent with Washington State GMA, PSRC Vision 2050, and King County
County -wide Planning Policies requirements for utilities planning, based on housing and
employment targets.
These requirements are fulfilled by the following documents:
Utilities Background Report
Comprehensive Sanitary Sewer Plan
Comprehensive Water Plan
Comprehensive Surface Water Management Plan
ISSUES
Several key issues in meeting the utility needs of the City are addressed in this Utilities Element:
Service Extensions. Planned extensions of utility services are based on existing needneeds, or to
accommodate planned growth or growth targets.
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UTILITIES
Chapter 12
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Existing Comprehensive Plan (with proposed changes)
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explanations of changes as footnotes.
Coordination of Service Providers. The City -managed utilities must coordinate with adjacent
providers that provide utility services to portions of the City. Coordination among Tukwila's
three non -City sewer and five non -City water districts is critical.
Concurrency and Implications for Growth. Utility projects and other capital facilities must be
developed so that improvements are in place by the time they are needed, to mcctaddress
growth and to accommodate growth targets.
Environmental Sustainability. Utility planning and operations requires environmental
compliance with federal and state laws including the protectionClean Water Act, NPDES, ESA,
State Waste Discharge Permit, and contribute to-ai4watershed--wide restoration efforts; to
preserve the quality of the natural environment
vitality.
Residential Neighborhood and Sub -Area Vitality. City -planned utility improvements and
extensions place priority on improving and sustaining residential neighborhood quality and
livability. Utility investments affect neighborhood quality of life and the ability to realize
established visions for specific sub -areas.
System Rehabilitation, Replacement, and Retrofit. Much of the City's utility infrastructure has
reached or is near its life expectancy. Rehabilitation or replacement of these systems is needed
to ensure their continued reliability. Federal, State and, local polices require utility system
improvements to comply with new regulations.
SYSTEM DESCRIPTIONS
WATER AND SEWER
The City of Tukwila purchases all of its water from the Cascade Water Alliance under a contract
through the year 2064. Tukwila's Comprehensive Water System Plan identifies areas of water
supply and distribution deficiency, and the six-year Capital Improvement Plan proposes
corrective improvements. See Map 12-1.
The Tukwila sewer system is exclusively a collector system with no treatment component. King
County DNRP Wastewater Treatment Division provides Regional wastewater treatment at the
South Treatment Plant in Renton. The Comprehensive Sewer System Plan identifies deficiencies
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Chapter 12
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explanations of changes as footnotes.
in the system, and corrective improvements are proposed in the six-year Capital Improvement
Plan. See Map 12-2.
Certain areas of the City are served by other water and sewer providers, which develop their
own plans in coordination with the City of Tukwila.
Tukwila's Comprehensive Water System and Sewer System Plans are adopted by reference as
part of the Comprehensive Plan. Those system plans identify present and future improvements;
and establish certain required levels of service and priorities for system improvements. Level of
service standards are also established by applicable Board of Health regulations, the Uniform
Plumbing Code, and the Uniform Fire Code. Consistent with State mandates, Tukwila revises
and updates system plans to assure consistency with the Comprehensive Plan and the Capital
Improvement Program.
SURFACE WATER MANAGEMENT
Tukwila's surface water drainage system consists of both built stormwater drainage
infrastructure drainage improvements and the natural drainage of the areasurface waters such
as rivers and creeks. Except for a small area in the Ryan Way neighborhood, All of the city's sub -
basins drainage drain to the is ultimately to the Green/Duwamish River. For locations of surface
water management facilities, see Map12-3.
The Comprehensive Surface Water Management Comprehensive Plan contains an inventory of
existing facilities and identifies current system deficiencies and planned improvements. It
evaluates the system under present development conditions and identifies remedies for
segments of the system where problems exist or are likely to develop in the future as a result of
growth and development. Proposed improvements are included in the Six -Year Capital
Improvement Program (CIP).
The City reviews and updates its Surface Water Management Plan annuallyregularly to assure
consistency with this Plan, State and local regulations, the CIP, and other ongoing City planning
processes.
Map 12-1: Water Districts
Map 12-2: Tukwila Sewer System
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UTILITIES
Chapter 12
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explanations of changes as footnotes.
Map 12-3: Surface Water Management Facilities
Image source: King County Solid Waste Division}
TURNING WASTE INTO ENERGY
King County's Cedar Hills Landfill, which is the destination for much of Tukwila's solid waste.r-s
also the site of the nation's third largest landfill gas energy project. Methane gas from garbage
is processed and purified, then sold to Puget Sound Energy power plants to be used to generate
electricity.
The landfill has a gas -to -energy project which leads to cleaner air and reductions in greenhouse
gas emissions. In 2021, the landfill generated an average of about 6,500 standard cubic feet per
minute of landfill gas. This gas is transmitted to the Bio Energy Washington (BEW) gas -to -energy
plant and converted into pipeline -quality biogas. The renewable gas produced equals the
amount of energy needed to meet the natural gas needs of over 17,500 homes in King County.
Converting landfill gas to electricity in this way reduces the landfill's greenhouse gas emissions
and provides additional revenue to the County's Solid Waste Division, keeping disposal rates
low for residents across King County.
Image source: King County Solid Waste Division
SOLID WASTE
Solid Waste collection, transportation and disposal in Tukwila is governed by State and local
regulations, an interlocal agreement with King County, and collection contracts with solid waste
providers. Through a competitive tend+ -year contract with the City, as of November 1, 2023,
Recology provides comprehensive garbage, recyclingyclables, and food and yard_ waste
collection services to residential, multi -family, and commercial customers. Residential garbage
collection is voluntary.
Tukwila has considered implementing mandatory garbage collection to curb illegal dumping,
litter and accumulation of trash/garbage on private property, but garbage collection remains
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Chapter 12
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voluntary. Approximately 75% of Tukwila residents subscribe to curbside garbage services, and
the remaining 25% either self haul to King County's Bow Lake Transfer Station in Tukwila or use
other disposal methods.
The City's solid waste is ultimately taken to King County's Cedar Hills Landfill for disposal. As
part of the Solid Waste Interlocal Agreement (ILA) with King County, Tukwila and other parties
will develop plans and alternatives to waste disposal at Cedar Hills Landfill in advance of its
closure in 2038.
ELECTRIC POWER
Electric power involves both transmission systems and distribution systems. Tukwila's electric
power is provided by Puget Sound Energy, with approximately 3,800 customers, and Seattle
City Light, serving approximately 5,700 residential and 1,000 commercial customers in Tukwila.
Both companies operate under non-exclusive franchise agreements with the City. See Map 12=-
4.
Electrical Service Providers
Map 12-4: Electric Service Providers
Plans from both Seattle City Light and Puget Sound Energy place a priority on using energy
conservation as a way to increase service capacity. Puget Sound Energy estimates that half of its
long-term need for electric power can be met by energy efficiency and additional wind -power.
The rest is likely to be met with added natural gas-fired resources. To meet future demand,
some new transmission lines and substations will be built in Tukwila, and existing ones rebuilt
and/or maintained. Distribution plans include line and station projects. Future distribution
improvements will be required to meet the demands of Tukwila's projected growth. Seattle City
Light's plans for future distribution capacity include additional feeder capacity that is expected
to meet demand in Tukwila through the year 2031. Seattle City Light intends to meet electrical
load growth through conservation and new generation resources powered by renewable
energy.
NATURAL GAS
Puget Sound Energy, an investor-owned utility, builds, operates and maintains natural gas
facilities serving approximately 3,400 customers in Tukwila. Puget Sound Energy covers virtually
all of Tukwila with their main distribution lines. The utility foresees no difficulties in meeting
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UTILITIES
Chapter 12
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future demand during the planning period. No major improvement projects are planned at this
time. For natural gas service areas in Tukwila, see Map 12-5.
TELECOMMUNICATIONS
As telecommunications technologies have evolved, convergence of these technologies has
occurred, resulting in multiple communication services migrating into consolidated networks.
Telecommunications in Tukwila includes both wired and wireless telephone services, cable and
satellite television, and high-speed broadband technology. Through partnerships with
franchised telecommunications companies, internal public works projects and completion of
capital projects, the City has a robust conduit infrastructure that would enable and facilitate
future fiber optic connectivity projects benefitting the City, its residents and businesses, and
project partners. The City has joined a connectivity consortium of cities and other public
partners that would construct and maintain a regional fiber-optic telecommunications system.
This fiber-optic system would provide redundancies, enhance communications networks, and
emergency operations.
Natural Gas Provider
Map 12-5: Natural Gas Service
CABLE AND SATELLITE TELEVISION
The City of Tukwila has a non-exclusive franchise agreement with Comcast Corporation to
construct, operate and maintain a cable system in compliance with Federal Communications
Commission (FCC) regulations. Comcast's network provides high-definition television capacity
and high-speed internet access through cable modems, and includes coaxial and fiber optic
cabling systems deployed both underground and overhead using utility poles leased from
power and telephone companies.
Satellite television competes directly with cable television by delivering hundreds of channels
directly to mini -dishes installed in homes and businesses throughout Tukwila.
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UTILITIES
Chapter 12
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explanations of changes as footnotes.
WIRELINE AND WIRELESS COMMUNICATIONS
Many companies offer telecommunications services including integrated voice and data, and
voice over internet protocoltclephony (VoiP) technology. CenturyLink, the Incumbent Local
Exchange Carrier (ILEC), is now joined by several Competitive Local Exchange Carriers (CLECs) in
providing more communications service options to Tukwila residents and businesses.
With expansion of telecommunications infrastructure, new technologies and competition,
telecommunications utilities are expected to meet voice, video and broadband demands during
the planning period.
GOALS, POLICIES AND STRATEGIES
GOAL 41
Utility services and facilities that meet the community's current and future needs in a
safe, reliable, efficient, economic, and environmentally responsible
manner.
POLICIES FOR CITY -MANAGED UTILITIES
Service Extensions
Policy 1.1 Ensure that the City of Tukwila utility functional plans and operations meet
applicable federal, State, regional and county requirements and regulations to
address health and safety requirements, address deficiencies, and assure quality
of service.
Policy 1.212.1.2 Require the use of Tukwila's applicable service standards to design and
construct all utility service extensions.
Policy 1.312.1.3 Base the extension and sizing of utility system components on applicable
design standards and Comprehensive Plan development priorities.
Policy 1.412.1.1 Ensure that new development, redevelopment, and other actions within
the City of Tukwila's jurisdiction do not cause significant adverse upstream or
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Chapter 12
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downstream impacts on flooding, erosion, and natural resources within and
outside of Tukwila's jurisdiction.1
Coordination of Service Providers
Policy 1.512.1.5 Coordinate with service providers for reliable and cost-effective utility
services to the public.
Policy 1.612.1.6 Coordinate with other jurisdictions and agencies in planning and
implementing utility operations, facility additions and improvements located in
or affecting multiple jurisdictions.
Policy 1.712.1.7 Participate in the regulation of all water, sewer, and surface water utility
services within the City's eventual boundaries.
12.1.8 Consider annexingC
ontinuc •artncrin_
with water and sewer providers, when requests
customers of the Districts.
Policy 1.812.1.9 Allow utility service outside City boundaries only when required by
adjustments to City limits or to provide temporary service due to emergency.
Policy 1.912.1.10 Establish and maintain franchises and working agreements with
electricity, gas, sewer, and water utilities currently operating within the City
limits, to ensure that the level of service provided is consistent with the City's
requirements and neighborhood revitalization plans.
Policy 1.1012.1.11 Allow special-purpose sewer and water districts to continue to operate
and serve Tukwila residents and businesses, when appropriate.
Concurrency and Implications for Growth
i Environmental policy
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UTILITIES
Chapter 12
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explanations of changes as footnotes.
Policy 1.1112.1.12 Schedule and phase utility extensions to occur concurrently with
expected growth and development.
Policy 1.1212.1.13 Approve development only if adequate utilities are available when a need
is created for those facilities, or within a reasonable period as required by State
law.
Environmental Sustainability
Policy 1.1. 12.1.1/1 Provide environmentally sound and sustainable operations with cost-
effective methods in water, sewer and surface water management utilities
operations.
Policy 1.1/112.1.15 Make conservation and efficiency efforts an integral part of Tukwila's
utility operations and management.1
Policy 1.1512.1.16 Promote energy efficiency, conservation methods, and sustainable
energy sources in utility operations to support climate change reduction goals.
Policy 1.1612.1.17 Consider Tukwila's Urban Forest together with other green stormwater
infrastructure systems — during utility planning, design, installation and/or
maintenance — to ensure that trees and water quality are protected.
Policy 1.171.17 Require water reuse and reclamation, where feasible, especially for high-
volume non- potable water users such as parks, schools, and golf courses.4
RESIDENTIAL Neighborhood and Sub -Area Vitality
2 Supporting a PSRC-RGC requirements (Public Services
3 Partial for King County Countywide Planning Policy K PF -10
4 King County Countywide Planning Policy, PF -11
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UTILITIES
Chapter 12
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Add all explanations of changes as footnotes.
Existing Comprehensive Plan (with proposed changes)
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* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add al(
explanations of changes as footnotes.
Policy 1.1812.1.18 Give priority to the City's regional growth and manufacturing/industrial
centers, while balancing the needs of residential neighborhoods for City -planned
utility improvements and extensions.
Policy 1.1912.1.19 Design, construct,, and maintain facilities to minimize impacts on adjacent
neighborhoods and businesses.
Water Utility
Policy 1.2012.1.20 Actively participate in determining a regional solution to Tukwila's water
supply and addressing the potential impacts of climate change and fisheries
protection on regional water resources.s
Policy 1.2112.1.21 Provide safe, reliably -maintained and sustainable water service for
domestic, commercial, industrial, fire flow and water emergency uses, to meet
present and future needs.§
Equity
Policy 1.2212.1.22 Promote affordable and equitable access of public services, including drinking
water and telecommunication infrastructure, to provide access to all communities,
especially underserved communities'
Sewer Utility
Policy 1.2312.1.23 Serve all existing and potential residences and businesses with a sewer
utility.
Policy 1.24 12.1.21 Replace failing septic systems within the city with sanitary sewers or
alternative technology that is comparable or better.8
5 King County Countywide Planning Policy K PF -5
6 King County Countywide Planning Policy K PF -6
' Vision 2050, MPP -PS -2, PS -16, PS -22
8 MPP -PS -11
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UTILITIES
Chapter 12
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Existing Comprehensive Plan (with proposed changes)
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* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add al(
explanations of changes as footnotes.
Surface Water Management Utility
Policy 1.2512.1.25 Serve all of Tukwila's residences and businesses with a surface water
utility.
Policy 1.2612.1.26 Provide capital, maintenance, education and enforcement programs as a
function of the storm and surface water management utility.
Policy 1.2712.1.27 Require )w impact development techniques including green stormwater
infrastructureon site detention or retention and treatment of surface watcrfor
both development and redevelopment projects., Unless a regional facility
benefiting a drainage basin is constructed, or storage is provided in the
Green/Duwamish River for previously treated surface water as documented in
the Surface Water Comprehensive Plan.
Policy 1.2812.1.28 Apply an adopted surface water design manual and all appendices as the
minimum requirement for all development projects and other actions that could
cause or worsen flooding, erosion, water quality and habitat problems, for both
upstream and downstream development.
Policy 1.2912.1.29 Coordinate water quality improvement programs with adjoining
jurisdictions whose surface waters flow into or through Tukwila.
Policy 1.3012.1.30 Use the Surface Water Fund to retrofit surface water systems to improve
water quality, support forest conservation and restoration, restore aquatic and
riparian habitat -and enhance fish passage, by establishing:
•• A water quality retrofit program that prioritizes projects based on need,
benefit and other criteria, and takes into account iipstr am land uses and
Washington Department of Ecology's expanded listing of impaired water
bodies; and
• A fish ..passage Habitat restoration programs that restore aquatic and
riparian habitats and remove fish barriers. Project priorities are based on
prioritizes projects based on habitat needs, benefits and other criteria and
meet and compliance with Washington Department of Fish and Wildlife
rcquirements.regulatory requirements.
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•■ An urban canopy veg n protectioneservation program that emphasizes
supports Citywide canopy preservation policies and strategies.
Policy 1.3112.1.31 Encourage the retention and planting of trees for their beneficial effects
on surface water runoff, including flow attenuation, water quality enhancements
and temperature reduction including through the use of Green Stormwater
Infrastructure, such as rain gardens.
UTILITIES NOT OPERATED BY THE CITY
Aside from water, sewer and surface water management, most utilities serving the residents of
Tukwila are not owned or operated by the City. While the City can provide input on planning
efforts for these utilities, it does not directly control service rates or the exact location of new
infrastructure.
Private utilities are required to obtain any City permits necessary to operate or install
infrastructure within the City and must comply with all applicable City and State regulations.
Image Source: Puget Sound Energy
POLICIES FOR NON -CITY -OWNED UTILITIES
Non -City -owned utilities develop strategic and operational plans with varying degrees of input
and involvement from the City. They set capacity and service levels on an area -wide basis, and
rely on the local government's involvement to ensure that capacity is sufficient.
As a condition of applying for a permit, new development that uses non -City owned water and
sewer utilities is required to obtain a letter of service availability. This letter establishes that
utility service meeting City standards is either available or will be available prior to occupancy.
The electric power and natural gas utilities project adequate capacity during the 20 -year
planning period, assuming responsible use of these resources. Electric utility capacity is set
regionally, with Tukwila's needs determined and provided for as part of an area -wide system.
Similarly, natural gas is provided via a regional delivery system.
With new technologies, telecommunications utilities project virtually limitless capacity within
the planning horizon.
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Chapter 12
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Existing Comprehensive Plan (with proposed changes)
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explanations of changes as footnotes.
Through long-term Interlocal Agreements (ILAs), the solid waste system will continue to be
upgraded to meet Tukwila's current and future needs. The Cedar Hills Landfill expects to reach
full capacity in 2025. The current ILA that expires in 2040 addresses the process that cities and
King County will follow to develop disposal options prior to Cedar Hills Landfill reaching its full
capacity. Tukwila and other suburban cities participate in planning and contribute to reaching
regional goals via their recycling and waste reduction strategies and practices.
General Policies
Policy 1.3212.1.32 Actively coordinate project implementation with individual utilities,
based on Tukwila's Comprehensive Plan and development regulations.
Policy 1.3312.1.33 Require new development that uses non -City -owned water and sewer
utilities to obtain a letter of service availability as a condition of receiving a
Tukwila permit.
Policy 1.3412.1.31 Require utilities operating in the right-of-way to obtain a franchise that
includes service levels and requirements meeting Comprehensive Plan forecasts
and other applicable federal, State, and local regulations.
Policy 1.3512.1.35 Encourage utilities to consolidate facilities, use existing transportation
corridors, and minimize visual impacts of facilities, where technically feasible.
Policy 1.3612.1.36 Encourage communication between the City of Tukwila, the Washington
Utilities and Transportation Commission, and the utilities regarding cost
distribution and rate -setting for existing and proposed facilities and services.
Policy 1.3712.1.37 All new electrical and communication facilities shall be constructed
underground, unless specifically exempted by the Tukwila Municipal Code or
determined by the City Council to be financially impractical.
Policy 1.3812.1.38 If a utility relocation is required by a public works project — such as a
street widening project, utility repairs or upgrades — or any major replacement of
aerial facilities, the relocated/replaced facilities shall be underground, unless the
City determines that doing so is not in the best interest of the public.
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UTILITIES
Chapter 12
Provide references (source, date, page) for all data
Add all explanations of changes as footnotes.
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add all
explanations of changes as footnotes.
Policy 1.391.39 Recognize and support agreements with water purveyors to promote
effective conveyance of water supplies and secure adequate supplies for
emergencies.9
SOLID -WASTE -MANAGEMENT
Telecommunications
Policy 1.4012.1.40 Provide telecommunication infrastructure to serve growth and
development in a manner consistent with Tukwila's vision, as outlined in the
Comprehensive Plan.
Policy 1.414,44 Encourage the equitable provision of telecommunication infrastructure
and affordable, convenient, and reliable broadband internet access to
businesses, and households of all income levels, with a focus on underserved
areas.'°
Solid Waste Management
Policy 1.4212.1.42 Reduce the solid waste stream ;and encourage reuse and recycling.0
Policy 1.4312.1.43 Maintain a comprehensive solid waste management program that
includes environmental responsibility and sustainability, competitive rates, and
customer service excellence for Tukwila's residential, multi -family, and
commercial customers.
Policy 1.4412.1.11 As current franchise agreements expire in areas annexed to the City,
provide Assume greater control over the City's waste management services that
are consistent with that provided to other areas of the City.12in annexed ares
through contracts for services as current franchise agreements expire.
9 King County Countywide Planning Policies, K PF -9 - policy has been pared back from scope of original
10 King County Countywide Planning Policies, PF -17
11 King County Countywide Planning Policies, K PF -14
12 This is a clarification of the circumstances — itthis relates to waste disposal in Tukwila South.
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UTILITIES
Chapter 12
Provide references (source, date, page) for all data
Add all explanations of changes as footnotes.
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add al[
explanations of changes as footnotes.
Policy 1.4512.1.45 Encourage and actively participate in a uniform regional approach to solid
waste management.
Electric and Gas Utility
Policy 1.4612.1.45 Reduce the rate of energy consumption, and use efficiency and
conservation as a means to lower energy costs and mitigate environmental
impacts associated with traditional energy supplies.
Policy 1.4-412.1.47 Promote use of renewable and alternative energy resources to help meet
long-term energy needs, reduce environmental impacts associated with
traditional energy supplies, and increase community sustainability.
Policy 1.4812.1.48 Ensure that development regulations are consistent with and do not
otherwise impair fulfilling public service and other obligations imposed by
federal and State law.
Policy 1.4912.1.49 Actively support the greenhouse gas reduction policies pertaining to
utilities described in the Natural Environment Element of this Comprehensive
Plan (These policies will be listed as noted below)15. else of local, renewable
energy generation techniques for both residential and commercial properties in
combination of rooftop solar power, solar water heating, and utility scale solar
power by 2025.
12.1.46 Actively support conservation techniques and programs for both residential and
commercial properties in Tukwila, with the goal of reducing the total City energy
use by 25% by 2025.
13 King County Countywide Planning Policies, K PF -15
14 King County Countywide Planning Policies, K PF -16
is In the interests of reducing repetitiveness in the Plan, policies pertaining to the reduction of greenhouse gases
have been moved to the Natural Environment element.
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UTILITIES
Chapter 12
Provide references (source, date, page) for all data
Add all explanations of changes as footnotes.
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add al(
explanations of changes as footnotes.
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UTILITIES
Chapter 12
Provide references (source, date, page) for all data
Add all explanations of changes as footnotes.
Existing Comprehensive Plan (with proposed changes)
* Provide references (source, date, page) for all data added
* Footnotes include explanations for why text was changed, as well as references the source of the addition. Add al(
explanations of changes as footnotes.
RELATED INFORMATION
Utilities Background Report
Tukwila Water Plan
Tukwila Sewer Plan
Tukwila Surface Water Plan
Tukwila Capital Improvement Program (CIP)
Valley View Sewer District
City of Renton Utilities
City of Seattle (Water, Sewer)
Highline Water District
King County Water District #125
King County Water District #20
Puget Sound Energy (Electric, Natural Gas)
Seattle City Light
Waste Management, Inc. (Solid Waste, Recycling)
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TO:
FROM:
City of Tukwila
Allan Ekberg, Mayor
Department of Community Development - Nora Gierloff, AICP,, Director
Planning Commission
Nora Gierloff, AICP, Director
Nancy Eklund, AICP, Long Range Planning Manager
DATE: September 13, 2023
SUBJECT: Tukwila 2024-2044 Comprehensive Plan — Draft Capital Facilities Element
ISSUE
This is a briefing to the Planning Commission on the proposed updates to the Capital Facilities
Element of the Comprehensive Plan.
BACKGROUND
Several City Departments/Divisions have been meeting over the last few months to discuss the
policies and inventory content in the Capital Facilities Element. Those meetings have included
representatives from City Administration, Finance, Parks, Public Works, Community Development,
and other City offices.
Changes identified as necessary in the Capital Facilities Element result from the following
circumstances:
• Information is out of date, inaccurate, or no longer represents current City practice, or
• Regional and local policy shifts necessitate modifications to policies (i.e., those required by
the King County Countywide Planning Policies or Vision 2050).
Other items to note about the draft element:
• Implementation Strategies - This Element will contain Implementation Strategies; however
those continue to be refined by the various departments to ensure that they are consistent
with intended City work programs. The final list will be provided to the PC later this year.
• This Element will be renumbered (it is currently Chapter 14) when the Plan is assembled in
total. At that time, policies may also be renumbered to indicate the chapter/element with
which they are associated.
• The "orphaned" footnotes in the Clean version may be relevant only for the Track Changes
version.
RECOMMENDATION
Staff recommends that the Planning Commission consider the draft Capital Facilities Element and
move it forward to a later date in late winter 2024 when the entire draft Plan (including the
Implementation Strategies) will be available for review, followed by a public hearing.
ATTACHMENTS
A. Capital Facilities Element (proposed changes integrated)
B. Capital Facilities Element (strikeout/underline version)
Tukwila City Hall • 6200 Southcenter Boulevard • Tukwila, WA 98188 • 206-433-1800 • Website: TukwilaWA.gov
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
WHAT YOU WILL FIND IN THIS CHAPTER:
A description of how and why capital facilities are planned;
A discussion of the funding methods and challenges facing the City; and
Goals and Policies for providing adequate leitvels of service.
PURPOSE
Growth Management Act Capital Facility Planning Requirements
This element of the Comprehensive Plan presents the goals and policies for Tukwila's Capital
Facilities. Capital Facilities Planning under the Growth Management Act (GMA) requires an
inventory of public facilities and their capacities; establishment of a minimum acceptable level
of service for those facilities; a list of needed capital projects to serve growth and that maintain
the adopted standards; a realistic financing plan; and stipulation that adjustment of the Plan
will occur if funding is inadequate or if growth requires previously unanticipated expansion.
In Tukwila, Capital Facilities are defined as including structures, streets, land, parks, major
equipment and other infrastructure necessary for both general government and enterprise
funds, and that are usually amortized over a long period of time.
In adopting its Comprehensive Plan and the supporting documents, Tukwila makes a
commitment that the land use intensities and pattern of uses are appropriate for the
community and that its adopted levels of service will be met and maintained.
WHY PLAN FOR CAPITAL FACILITIES?
Under GMA, the City is required to include a capital facilities element in its Comprehensive
Plan. The Capital Facilities Element and associated Capital Facilities Plan describe how public
services will be provided and financed. Capital facilities planning also helps the City manage
limited funds, provide the greatest value to City residents and take full advantage of available
funding opportunities.
WHAT IS CONCURRENCY?
"Concurrency" exists when adequate public facilities or services are in place to serve new
development. Specifically pertaining to streets and utilities in Tukwila, concurrency
requirements are intended to prevent new development from outpacing Tukwila's ability to
provide the improvements that are needed to serve the new development. New development's
infrastructure demands can result in congestion or overcrowding that will impact new and
existing residents alike, if improvements are not made in time. Concurrency is often referred to
as a pass -or -fail test for a new development.
The GMA Capital Facilities Plan for Tukwila consists of:
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
1. The Comprehensive Plan Capital Facilities goals and policies;
2. The Capital Facilities Element Background Report, which contains a discussion of the
City's growth targets for the Comprehensive Plan's planning period to 2044;
3. The City's Capital Improvement Program/Financial Planning Model (CIP/FPM), which
includes projects for the six-year period and projects to address community needs and
maintain standards to 2044. The Comprehensive Plan's goals cannot be carried out
unless the supporting infrastructure can be financed. The CIP/FPM addresses how
specific projects and facilities will be financed, and provides a current assessment of the
City's financial capacities and limitations; and
4. The systems plans and their regular updates, such as 1 the Puget Sound Regional Fire
Authority Capital Facilities Plan; the Parks, Recreation and Open Space Plan; the Surface
Water Comprehensive Plan; the Water Plan; the Sewer Plan; and the Transportation
Plan; all of which are adopted by reference as part of this Comprehensive Plan.
Concurrency
A key concept of the GMA and capital facilities planning is concurrency — that specific public
facilities will be available when the impacts of development occur or within ten years of the
development for transportation. Concurrency in Tukwila is supported through policy and
systems planning and implemented in current regulation. Tukwila implements concurrency on
water delivery, sewer collection, and transportation facilities.
Tukwila's public facility needs are served not only by City facilities but also by regional agencies
such as the Washington State Department of Transportation, Sound Transit, King County, and
the Port of Seattle; and by special purpose districts such as Tukwila and Renton School Districts,
King County Library System, and the King County Flood Control, Valley View Sewer, Highline
Water, and the Metropolitan Park Districts. (See also the Utilities Element.) In addition to
maintaining adequate levels of service on City -provided facilities, the City of Tukwila must
coordinate with these special purpose districts and regional providers on Tukwila's growth and
land use planning.
Capital Facility Planning in Tukwila
Capital facilities planning in Tukwila is separated into two categories:
• Capital Project' Funds which include funds for general capital needs such as residential
streets, arterials, buildings, parks and trails, and other improvements.
1 This will no longer be a stand-alone plan as it's being rolled into the Transportation Element.
2 This is the name of the fund.
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
• Enterprise Funds, which include funds for which fees are received in exchange for specific
goods and services. In Tukwila these include water, sewer, surface water, and the Foster
Golf Course.
General Government Facilities
General government facilities are designed, built, and operated for the general public, unlike
enterprise funds, which serve specific fee paying customers. Any person may drive on City
streets, walk on a trail, play in a City park, be served by fire and emergency aid, etc.
Tukwila does capital improvement planning by organizing its general government facilities
needs into similar programmatic categories, which are referred to as funds. There are four
categories of funds3, which illustrate the focus of the City's capital planning and spending. All
phases of a capital project are included in capital planning, from plan and project development,
preliminary engineering, right-of-way acquisition, permitting, construction engineering, to
construction.
• The Residential Streets Program is specifically identified for street improvement in
'residential neighborhoods, and includes lane widening, curbs and gutters, sidewalks,
illumination, and utilities undergrounding. Funding for the program's projects is primarily
through City General revenues, grants, and motor vehicle excise tax.
• The Bridges and Arterial Streets Program is designed to improve mobility within the City and
to correct deficiencies in arterial streets and traffic operations and is the largest category of
spending in the City's Capital Facilities Plan. The dollar size for the current six-year list of
projects is ten times larger than any of the other City program funds. It also complements
the City's Transportation Improvement Program, which is a State requirement. Expenses
supported through this fund include transportation planning, sidewalks, new streets, traffic
control devices, nonmotorized improvements, and lane additions.
In addition to City General revenues, projects in this program are paid for with grants, real
estate excise tax, motor vehicle excise tax, parking tax, developer funds, local improvement
district funds, and impact fees.
• The Parks and Trails Program supports the acquisition and development of land for parks
and recreational facilities, 5including the planning and design costs associated with the
3 This section reflects a restructuring of the funds to programs by the Finance Department.
References to Single Family are being removed from the Plan to recognize recent allowances for higher densities
in traditionally Single family areas.
5 Fisheries projects are now paid for through Surface Water funds in PW.
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
projects. Dollars to pay for these projects come from City funds, grants, real estate excise
tax, excess property tax levy, and impact fees.
678
• The Fire Improvements Program_is designed for major capital fire and aid equipment and
fire stations, and is established to account for revenues from the fire impact fee.
General government sources of revenue for capital expenditures and allocation percentages by
funding category are illustrated in Figure 14-1.
[image]
Figure 14-1: General government sources of capital revenue and expenditures by capital
improvement programming categories
Enterprise Facilities Funds
Enterprise Funds are supported by revenues generated by user fees and charges. Grants and
developer contributions supplement the Water, Sewer and Surface Water Funds, and the
Foster Golf Course is self-supporting. Enterprise funds are used by public agencies to account
for operations that are financed and operated in a manner similar to private business
enterprises. They are established as fully self-supporting operations with revenues provided
primarily from fees, charges, or contracts for services, and require periodic determination of
revenues earned, expenses incurred, and net income for capital maintenance, public policy,
management control and accountability.
In order to provide for the short-term and long-term operating and capital needs of the water,
surface water and sewer utilities, the City evaluates and utilizes a combination of revenue
sources such as utility rates, bonds, loans, grants, developer contributions, Public Works Trust
Fund loans, and local improvement districts (LIDs). An example of enterprise capital sources of
funds and expenditures is illustrated in Figure 14-2.
[Graphic]
Figure 14-2: Enterprise capital sources of funds and expenditures.
6 This was replaced by the Public Safety Plan bonds.
7 This fund is going away because it does not qualify as a capital project fund.
8 This will be true even after annexation into the PSRFA.
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
Water and Sewer Funds
Slightly more than 50 percent of the area of the City is served by Tukwila Water and Sewer
Utilities. With respect to sewer service, the remainder of the City is either not served or served
by other districts. In order to provide infrastructure in the unserved portions of the City,
additional revenue is needed in order to extend service to these areas. Available revenue
sources include local improvement districts, grants, Trust Fund loans, rate increases, customer
contributions, and general fund loans or transfers.
Surface Water Fund
This fund accounts for operations and capital improvements for the management of the City's
storm drainage system and surface waters, including stormwater, flood hazard management
and habitat restoration projects as well as the City's NPDES pollution prevention program.
Surface Water capital projects are required to correct deficiencies and to meet federal, State,
and local laws and priorities. Required infrastructure is paid for by developers, local
improvement districts, and grants, but the largest fund contribution comes from the utility's
ratepayers.
Foster Golf Course
This is a publicly -owned facility funded by operating revenues, primarily user fees but also
general obligation bonds, Councilmanic bonds, and transfers in from the General Fund. The City
has chosen to account for the Golf Course as an enterprise fund for a number of reasons.
Enterprise funds may be used to report any activity for which a fee is charged to users for goods
or services, and the enterprise fund structure provides transparent accounting of costs and
revenues. The Golf Course is expected to meet its capital and operating needs over the 20 -year
planning period, and maintain a rate structure competitive with nearby municipal courses.
Capital improvements will be funded from the above-mentioned revenues. The Golf Course
Enterprise Fund accounts for operation, maintenance, and improvements of the municipal golf
facility. The difference between the Golf Course Enterprise Fund and other utility enterprise
funds is that the Golf Fund serves voluntary customers as opposed to the users of the water,
sewer, and surface water funds, who have no choice in service provider.
Relationship To Other Plans
Capital facility planning is related to a variety of other long-range, sub -area and system plans
adopted by the City. Figure 14-3 illustrates how these various plans are interrelated.
[Graphic]
Figure 14-3: Relationship of Adopted City of Tukwila Planning Documents
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
ISSUES
The following issues are based upon City experiences as well as from likely events that could
impact Tukwila's ability to pay for its future.
Decreases in Capital Spending
Figure 14-4 shows 10 years in operations and maintenance spending versus capital spending.
There is a trend line that shows the increasing percentage of City revenues being spent on
operations and maintenance, and less on capital. In addition, capital projects are being funded
by dedicated revenue sources rather than general operating revenues.
External Forces Reducing Available Local Revenues
The Washington State legislature capped the growth of property tax revenue to no more than
one percent over the previous years' revenues or Implicit Price Deflator9 (IPD), whichever is
lower. The 1% property tax limitation is still the most revenue restrictive element of the general
revenue base. Accordingly, other revenue categories must make up the difference in order to
achieve the overall 3% revenue growth target.
[Graphic]
Figure 14-4: Operations vs. Capital Spending Trend (2003-2012).
Sales tax is the City's largest revenue source. The pandemic that started in early 2020 caused
businesses to close for a few months in the spring 2020. Businesses slowly reopened
throughout the summer months but the effects of businesses being closed significantly reduced
this revenue stream. While sales tax revenue has returned to pre -pandemic levels, increases
have not kept pace with inflation resulting in ongoing expenditures rising faster than ongoing
revenues. Retail sales tax from construction activity is expected to remain relatively strong as a
number of projects are in the pipeline. Additionally, the Washington State Legislature ended
9 Definition for clarity: The implicit price deflator for personal consumption expenditures is a figure compiled by
the federal Bureau of Economic Analysis (BEA) to measure inflation. A few local governments use the implicit price
deflator as an inflation index for certain fees or benefits, although it is more common to use other indexes such as
the Consumer Price Index. But the primary importance of the IPD to local governments in Washington State is that
it can impact how much property tax revenue local governments with a population of 10,000 or more can collect in
the upcoming year, as discussed in the remainder of this page.
Under state law, a local government may not increase its property tax levy more than 1% in a given year (the
"101% limit factor"), plus additional levy amounts generated by new construction, property improvements, and
other "add-ons" listed in RCW 84.55.010, as well as any changes due to new annexations (RCW 84.55.030 and WAC
458-19-035). Jurisdictions may only exceed the 101% limit factor if they have banked capacity available or if voters
have approved a levy lid lift.
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
the payment of Streamlined Sales and Use Tax Agreement mitigation payments to cities hard-
hit by destination -based sales tax. The mitigation payments decline each year and are
scheduled to end in 2026.
WHAT ARE SPECIAL PURPOSE DISTRICTS?
Special Purpose Districts can be created to provide a new service or a higher level of service
than is currently available. Special Purpose Districts can be established for a variety of
purposes, such as agriculture, economic development, education, parks, or environmental
protection. Special Purpose Districts may collect funds within their boundaries to provide
services related to their stated purpose, though funding mechanisms (property tax, fees, etc.)
vary by district.
Levying New Taxes and Fees
There are several ways that the Tukwila community has been able to compensate for the
decrease in revenues.. Beginning in 2006 the City instituted a Utility Tax, which applies to
electric, natural gas and communication sales. The City enacted a solid waste utility tax in 2009
to address revenue shortfalls in certain areas and unexpected costs in other areas. Utility tax
revenues have remained fairly level over the past several years but took a dip in 2020 due to
businesses being closed for a few months. Increases of up to 2.4% are expected in 2023 but,
due to conservation efforts and changes in consumer behavior, no growth is projected for 2024.
The City enacted a business license fee in 2010 which currently is expected to generate
revenues exceeding $3.2 million per year.
In order to continue to provide the same high-level of services in the next biennium and in the
out years, it will be necessary for the City to implement a new revenue stream. The Council
approved a modest business and occupation (B&O) tax to take effect in January 2024. The tax is
levied on businesses that exceed $750 thousand annual gross revenue. In addition to
maintaining the current level of service, this new revenue source will allow the City to hire
frozen commissioned officer police positions within the Police Department.
Real Estate Excise Tax (BEET)
Real Estate Excise Tax (REET) is levied on the sales of real property. The tax is calculated based
on the selling price, including the amount of any liens, mortgages, and other debts given to
secure the purchase. The tax is due at the time of sale and is collected by the County at time of
recording. The City of Tukwila imposes a 0.25% real estate excise tax- known as REET1 or the
"first quarter percent" and an additional 0.25% REET2 tax on the "second quarter percent" with
such proceeds to be used primarily for capital projects and limited maintenance.
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Capital Facilities
Existing Comprehensive Plan (with proposed changes)
Creating More Special Purpose Districts
Forming special purpose districts allows the community to collect additional money for specific
needs, such as for parks. In 2011 a Metropolitan Park District was created with coterminous
boundaries with the City of Tukwila, in order to sustain the operation of the Tukwila Pool.
Beginning in 2013, Tukwila property owners began paying an additional 15 cents per $1,000 of
assessed valuation.
[Graphic]
Levee repair at Lilly Point
Preparing for Disasters and Emergencies
The effects of climate change can be felt throughout the Puget Sound region and can be
categorized into six categories: temperature, precipitation, sea level rise, vegetation change,
ocean acidification and slope stability. We have witnessed firsthand temperatures rising, and
patterns of rain and drought changing. Flooding events will occur with greater frequency, water
levels will rise, and more droughts will occur. Tukwila is already experiencing more severe
weather impacts due to climate change and the opportunity for flooding to occur more often. A
significant water feature of the City is the Duwamish/Green River and its tributaries.
Property owners of the City pay taxes to the King County Flood Control District which manages
the levee system along the Green/Duwamish River. The primary levee located with Tukwila is
the Tukwila 205 Levee which mitigates flood risks to both residents and business along the
Lower Green River. The Tukwila 205 Levee is a 4.3 -mile levee located along the left bank of the
Green River from the southern boundary of the city extending to 1-405. Over the course of the
next 25 years the city in conjunction with the King County Flood Control District is rebuilding
this entire levee system to provide 500 -year level of flood protection plus 3 feet of
freeboard. There are other smaller levees and revetments found throughout Tukwila along the
Green/Duwamish River that mitigate flooding risks. The 205 levee is a prioritized project in the
Regional Hazard Mitigation Plan.
Tukwila is located in a seismic zone and is vulnerable for earthquake or a hazardous substance
release. As one of the responsible public service entities, the ability to support the community
after such an event is paramount . The location and condition of the City's infrastructure to
withstand significant catastrophes, and the presence of a reserve to pay for unexpected events,
must be included in the City's capital planning. The city is in compliance with all regulations to
be eligible for federal and state reimbursement if it experiences a Presidential Declared
Disaster.
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Existing Comprehensive Plan (with proposed changes)
GOALS, POLICIES AND STRATEGIES
These policies are intended to ensure the availability of financing to accomplish the goals
expressed here and in the other elements of the Comprehensive Plan over the next 20 years.
GOAL 1
Public facilities and services that reflect desired levels of quality,
address past deficiencies, and anticipate the needs of growth
through acceptable levels of service, prudent use of fiscal resources,
and realistic timelines.
General Policies
Policy 1.1
The City shall use non -capital and regionally -shared capital options to meet its
public facility needs when there are financial or economies of scale to be gained.
Such options include:
• Contracted services, such as King County Animal Control;
• Cooperative programs with other public entities, such as Valley
Communications for dispatch services and South County Correctional Entity
for jail services, and Cascade Water Alliance for water supply;
• Demand management strategies; and
• Rent or lease options.
Policy 1.2 The City's management of its capital facilities shall follow this order:
1. Regular inspection of systems for evaluation and to ensure conformity with
current safety standards;
2. Prioritizing projects when making improvements, if the public health and
safety is at risk;
3. Preventive maintenance and cost-effective replacement of aging elements;
and
4. Planning for the orderly extension and upgrading of capital systems to
accommodate future growth
Policy 1.3
Policy 1.4
Projects listed to be initiated during the 7-20 year time frame shall be generally
developed, described, estimated, and evaluated using Comprehensive Plan
goals, while projects in the six-year CIP/FPM shall be more specifically described.
The City shall ensure that transportation capital facilities are provided within a
maximum of six years of the occurrence of impacts that will degrade adopted
level of services standards.
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Existing Comprehensive Plan (with proposed changes)
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Policy 1.5
Policy 1.6
Dedicated funding for building needs shall be included in the CIP/FPM.
Continue to fund the correction of residential neighborhood infrastructure
deficiencies, including transportation, surface water, sewer and water, through
interfund loans or general fund transfers, in order to address emergency and
public health and safety issues.
Policy 1.7 No capital improvement projects located outside the city limits shall be approved
without specific City Council approval.
Paying For Facilities
Policy 1.8
Policy 1.9
If the City determines that the public's health, safety, and welfare will be
benefited, or if funding is available through external sources such as
development or grant funds, the City may allocate funding for preliminary
engineering and design of commercial and residential street projects.'
Late -comer agreements shall be considered an acceptable means of funding
capital projects, improvements, and replacements, in whole or in part when
requested by a developer.
Policy 1.10 The City shall initiate property negotiations in all projects with a request for
donation of the property needed for rights-of-way and easements.
Policy 1.11
Policy 1.12
Policy 1.13
Arterial street improvements listed in the six-year CIP/FPM may be funded
through an LID or financing external to the City. The City may use operating
revenues, grants, or bonds, based on health and safety needs or public benefit.
The City may consider paying for local improvement district formation costs in
addition to the preliminary and construction engineering costs, in order to
provide a more timely option for residential street improvements.
The City shall, whenever practical and advantageous, apply for grants, loans, or
other external financing sources. Grant applications for capital facilities shall be
made:
• Only for projects listed in the CIP/FPM, and
• After City Council approval.'
10 Priorities are addressed in the section Prioritizing Facility Construction later in the element.
11 Reflects current practice.
12 These protocols shall be internal Council decisions.
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13
Policy 1.14 Transportation, fire, and parks impact fees shall be collected so that "growth
may pay for growth" and growth -caused improvements may be constructed.
Policy 1.15
Impact fees shall be adjusted periodically based upon an appropriate capital cost
index and/or other relevant data, to ensure that the fees reflect the cost of
planned system improvements related to growth and shall be subject to City
Council approval.
Policy 1.16 The City shall consider issuance of bonds for facilities, if repayment can be made
from revenue allocations and if it is more cost-effective.
Policy 1.17
14
Non -transportation and non-utility capital projects and improvements (i.e.,
parks, trails, City offices) shall be funded by general revenues, impact fees,
grants, or bonds as determined in the biennial CIP/FPM review process.
Facility Construction — Prioritizing, Site Selection, and Design'
Policy 1.18 Provide affordable and equitable access to public services to all communities,
especially the historically underserved. Prioritize investments to address
disparities.l6
Policy 1.19 Capital improvements shall be coordinated, whenever feasible, with related
improvements by other jurisdictions.
Policy 1.20 Transportation improvements shall be coordinated with related improvements
such as utility, landscaping, sidewalks, etc.
Policy 1.21 Capital facility projects shall be prioritized using Comprehensive Plan and
Strategic Plan goals and policies.
Policy 1.22
Prioritize the selection, design, and construction of capital facility projects using
consideration of how these choices reduce greenhouse gas emissions (GHG) and
support state, regional, and local GHG reduction goals17
13 The Council should have flexibility to change their grant procedures without a Comp Plan change.
14 This has been changed by the Council to fund the Public Safety Plan
15 Reflects current practice.
16 King County Countywide Planning Policies, K_PF-2
17 PSRC goals/policies: (MPP -CC -1, CC -3, CC -5, CC -11-12, CC -Action -3)
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Policy 1.23 Prioritize capital facility decisions that require and expand the use of
conservation, alternative energy sources, and energy management technology.18
Policy 1.24
Support coordinated planning for public safety services and programs, including
emergency management, in partnership with communities that have
disproportionately carried the burden of harm from social, or political
d isenfra nch isement.19
Policy 1.25 Establish new or expanded sites for public facilities, utilities, and infrastructure in
a manner that ensures disaster resiliency and public service recovery.20
Financial Planning and Plan Maintenance
Policy 1.26 Capital planning decisions shall be linked to City-wide goals, by tracking actual
growth patterns and evaluating growth targets and level -of -service standards.
Policy 1.27 The CIP/FPM shall be updated biennially and include reviews of forecasts and
actual growth, revenue, and cost totals.
Policy 1.28 Capital Facility policies shall be reviewed biennially during revisions to the
CIP/FPM. Desirable changes shall be implemented during the annual
Comprehensive Plan amendment process.
Policy 1.29
Policy 1.30
Policies and practices of sound governmental budgeting and accounting
principles, revenue diversity, and promoting the economic well-being of the City
shall be used, in order to maintain an AA bond rating or better for the City.
In the event that anticipated funding falls short of meeting existing and/or
anticipated needs, the City shall reassess and revise the following, as needed:
• Funding alternatives; and/or
• The level of service standards of the City.
Enterprise Funds Policies
Policy 1.31 Utility rates and charges shall be structured to ensure adequate infrastructure
development, in addition to compliance with operation, maintenance, and
federal and State requirements.
18 PSRC goals/policies: (MPP -CC -1, CC -3, CC -5, CC -11-12, CC -Action -3)
19 King County Countywide Planning Policy K_PF-26
20 King County Countywide Planning Policy PF -27
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Policy 1.32
Adequate reserved working capital balances shall be maintained for each
enterprise fund's annual expenditures. The fund balance for enterprise funds, at
the close of each fiscal year, shall equal or exceed 20% of the previous year's
revenue, exclusive of significant non-operating, non-recurring revenues such as
real estate sales, transfers in from other funds, or debt proceeds.
Policy 1.33 Rate increases shall be small, applied frequently, and staggered to avoid an
overly burdensome increase and undue impact in any given year.
Policy 1.34
Each enterprise fund shall be reviewed at least biennially and shall have a rate
structure adequate to meet its operations and maintenance and long-term
capital requirements.
Policy 1.35 Rate increases of external agencies (i.e., King County secondary wastewater
treatment fees) shall be passed through to the users of the utility.
Policy 1.36
Policy 1.37
For safety and health reasons, the City shall provide sewers to all residential and
commercial areas in the City's service area by using a combination of operating
revenues, grants, loans, bonds, voluntary local improvement district formations,
and/or interfund loans.
Interfund loans shall be permissible if practical. Interest rates shall be computed
based on the discounted market rate that is based on the US Treasury note
rate(s) corresponding to the term of the loan, in order to adequately
compensate the loaning fund.
Policy 1.38 When there is a general long-term benefit to the respective enterprise fund and
its customers, the City shall use bonded indebtedness as a funding alternative.
Level -of -Service Standards
Policy 1.39 Sufficient system capacity for surface water, water, sewer, and transportation is
required prior to approval of any new development. (Standards for surface
water, water and sewer are codified in the City's Municipal Code, and the
transportation standards are in the Transportation Element of this Plan.) New
development must pass the concurrency tests before development may be
permitted.
Policy 1.40 The City shall monitor the capacity and maintain the water, sewer, surface
water, and transportation systems at the adopted standards.
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GOAL 2 A Capital Improvement Program and facility designs that meet the
broad spectrum of the City's human needs, rather than just
traditional needs such as vehicular and pedestrian circulation,
drinking water distribution, and sewage collection.
Policy 2.1
Policy 2.2
Policy 2.3
Policy 2.4
Policy 2.5
Policy 2.6
Policy 2.7
The City shall recognize and provide for multiple purposes and functions of all
City facilities and, where possible, incorporate the needs of the individual within
the design.
The design of infrastructure improvements shall include conservation of
resources, such as water reuse and energy-efficient electric fixtures, and the use
of local power generation.
The design and location of infrastructure improvement shall consider the impact
of climate change, environmental justice, seismic occurrence, flood risk, and
maintaining the ability to serve the community in the event of a natural or other
21disaster.
Minimizing the costs of maintaining, operating, and other life cycle costs shall be
used as a criterion in the design and funding for any capital facility.
The design and construction of capital projects shall:
• Use best practices for constructing in accordance with crime prevention
through environmental design;
• Create high-quality built places that, as appropriate, are accessible to all;
• Have a strong landscape component;
• Maximize environmental and economic benefits;
• Minimize environmental impacts; and
• Promote public health by providing opportunities for safe and convenient
daily physical activity.
Throughout the City, the focus of capital investments shall be on creating a
connected, dynamic urban environment.
The City, both acting on its own or in coordination with flood protection
partners, shall seek, design, and implement flood hazard reduction projects, that
are long-term and low -maintenance flood hazard management solutions that
21 To account for man-made disasters - huge fires, explosions, etc.
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meet multiple objectives, such as flood hazard protection, flood storage, water
quality, recreation and habitat restoration.
Policy 2.8 Reduce the solid waste stream and encourage reuse and recycling.22
RELATED INFORMATION
Capital Facilities Element Background Report
Capital Improvement Program/Financial Planning Model (CIP/FPM)
Fire Master Plan
Parks, Recreation and Open Space Plan
Surface Water Plan
Water Plan
Sewer Plan
Transportation Background Report
22 King County Countywide Planning Policy, K_PF-14
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WHAT YOU WILL FIND IN THIS CHAPTER:
A description of how and why capital facilities are planned;
A discussion of the funding methods and challenges facing the City; and
Goals and Policies for providing adequate lei+vels of service.
"Tukwila makesacommitmentthatthelanduseintensities and pattern ofusesareappropriatcforthc
community, and that its adopted levels of service will be mct and maintained."
PURPOSE
Growth Management Act Capital Facility Planning Requirements
This element of the Comprehensive Plan presents the goals and policies for Tukwila's Capital
Facilities. Capital Facilities Planning under the Growth Management Act (GMA) requires an
inventory of public facilities and their capacities; establishment of a minimum acceptable level
of service for those facilitiesc community; a list of needed capital projects to serve growth and
that maintain the adopted standards; a realistic financing plan; and stipulation that adjustment
of the Plan will occur if funding is inadequate or if growth requires previously unanticipated
expansion.
In Tukwila, Capital Facilities are defined as including structures, streets, land, parks, major
equipment and other infrastructure necessary for both general government and enterprise
funds, and that are usually amortized over a long period of time.
In adopting its Comprehensive Plan and the supporting documents, Tukwila makes a
commitment that the land use intensities and pattern of uses are appropriate for the
community and that its adopted levels of service will be met and maintained.
WHY PLAN FOR CAPITAL FACILITIES?
Under GMA, the City is required to include a capital facilities element in its Comprehensive
Plan. The Capital Facilities Element and associated Capital Facilities Plan describe how public
services will be provided and financed. Capital facilities planning also helps the City local
jurisdictions manage their limited funds, t -provide the greatest value to their City residents)
and take full advantage of available funding opportunities.
WHAT IS CONCURRENCY?
"Concurrency" exists when adequate public facilities or services are in place to serve new
development. Specifically pertaining to streets and utilities in Tukwila, concurrency
requirements are intended to prevent new development from outpacing Tukwila's ability to
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provide the improvements that are needed to serve the new development. New development's
infrastructure demands can result in congestion or overcrowding that will impact new and
existing residents alike, if improvements are not made in time. Concurrency is often referred to
as a pass -or -fail test for a new development.
The GMA Capital Facilities Plan for Tukwila consists of:
1. The Comprehensive Plan Capital Facilities goals and policies;
2. The Capital Facilities Element Background Report, which contains a discussion of the
City's growth targets for the Comprehensive Plan's planning period to 204434;
3. The City's Capital Improvement Program/Financial Planning Model (CIP/FPM), which
includes projects for the six-year period and projects to address community needs and
maintain standards to 204434. The Comprehensive Plan's goals cannot be carried out
unless the supporting infrastructure can be financed. The CIP/FPM addresses how
specific projects and facilities will be financed, and provides a current assessment of the
City's financial capacities and limitations; and
4. The systems plans and their regular updates, such as the Walk & Roll Non Motorized
Plan'; the Puget Sound Regional Fire Authority Capital FacilitiesMaster Plan; the Parks,
Recreation and Open Space Plan; the Surface Water Comprehensive Plan; the Water
Plan; the Sewer Plan; and the Transportation Plan; the Fire Services Plan; all of which are
adopted by reference as part of this Comprehensive Plan.
Concurrency
A key concept of the GMA and capital facilities planning is concurrency — that specific public
facilities will be available when the impacts of development occur or within ten years of the
development for transportation. Concurrency in Tukwila is supported through policy and
systems planning; and implemented in current regulation. Tukwila implements concurrency on
water delivery, sewer collection, and transportation facilities.
Tukwila's public facility needs are served not only by City facilities but also by regional agencies
such as the Washington State Department of Transportation, Sound Transit, King County, and
the Port of Seattle; and by special purpose districts such as Tukwila and Renton School Districts,
King County Library System, and the King County Flood Control, Valley View Sewer, Highline
Water, and the Metropolitan Park Districts. (See also the Utilities Element.) In addition to
maintaining adequate levels of service on City -provided facilities, the City of Tukwila must
coordinate with these special purpose districts and regional providers on Tukwila's growth and
land use planning.
1 This will no longer be a stand-alone plan as it's being rolled into the Transportation Element.
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Capital Facility Planning in Tukwila
Capital facilities planning in Tukwila is separated into two categories:
• General GovernmentCapital Project' Funds—which include funds for general capital needs
such as residential streets, arterials, buildings, parks and trails, and other improvements.
• Enterprise Funds, which include funds for which fees are received in exchange for specific
goods and services. In Tukwila these include water, sewer, surface water, and the Foster
Golf Course.
General Government FacilitiesFUNDS
General government facilities are designed, built, and operated for the general public, unlike
enterprise funds, which serve specific fee paying customers. Any person may drive on City
streets, walk on a trail, play in a City park, be served by fire and emergency aid, etc.
Tukwila does capital improvement planning by organizing its general government facilities
needs into similar programmatic categories, which are referred to as funds. There are fours+x
categories of funds3, which illustrate the focus of the City's capital planning and spending. All
phases of a capital project are included in capital planning, from plan and project development,
preliminary engineering, right-of-way acquisition, permitting, construction engineering, to
construction.
• The Residential Streets Program Fund is specifically identified for street improvement in
single family 4residential neighborhoods, and includes lane widening, curbs and gutters,
sidewalks, illumination, and utilities undergrounding. Funding for the program's projects is
primarily through City General revenues, grants, and motor vehicle excise tax.
• The Bridges and Arterial Streets Program Fund is designed to improve mobility within the
City and to correct deficiencies in arterial streets and traffic operations ;and is the largest
category of spending in the City's Capital Facilities Plan. The dollar size for the current six-
year list of projects is ten times larger than any of the other City program funds. It also
functions ascomplements the City's Transportation Improvement Program, which is a State
requirement. Expenses supported through this fund itncluded arc transportation planning,
2 This is the name of the fund.
▪ This section reflects a restructuring of the funds to programs by the Finance Department.
4 References to Single Family are being removed from the Plan to recognize recent allowances for higher densities
in traditionally Single family areas.
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sidewalks, new streets, traffic control devices, non -motorized improvements, and lane
additions.
In addition to City general General revenues, projects in this program are paid for with
grants, real estate excise tax, motor vehicle excise tax, parking tax, developer funds, local
improvement district funds, and impact fees and mitigation payments.
• The Parks and Trails Program Fund supports is for the acquisition and development of land
for parks and recreational facilities, and fisheries projects,5 including the planning and
engineeringdesign costs associated with the projects. Dollars to pay for these projects come
from City funds, grants, real estate excise tax, excess property tax levy, and impact fees.
Thc Facilities Replacement Program Fund is for government buildings, such as City Hall. It also
includes the Tukwila Village project, which is an urban renewal/redevelopment project on
Tukwila International Boulevard.
6
Thc General Improvements Fund is designated for maintainancc and repair, and other
miscellaneous minor capital projects not provided for elsewhere. and, for example, included
the emergency levee costs associated with the Howard Hanson Dam repair.
• The Fire Improvements Program Fund is designed for major capital fire and aid equipment
and fire stations, and is established to account for revenues from the fire impact fee.
General government sources of revenue for capital expenditures and allocation percentages by
funding category are illustrated in Figure 14-1.
[image]
Figure 14-1: General government sources of capital revenue and expenditures by capital
improvement programming categories
Enterprise Facilities Funds
5 Fisheries projects are now paid for through Surface Water funds in PW.
6 This was replaced by the Public Safety Plan bonds.
7 This fund is going away because it does not qualify as a capital project fund.
8 This will be true even after annexation into the PSRFA.
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Enterprise Funds are supported by revenues generated by user fees and charges. Grants and
developer contributions supplement the Water, Sewer and Surface Water Funds, and the
Foster Golf Course is self-supporting. Enterprise funds are used by public agencies to account
for operations that are financed and operated in a manner similar to private business
enterprises. They are established as fully self-supporting operations with revenues provided
primarily from fees, charges, or contracts for services, and require periodic determination of
revenues earned, expenses incurred, and net income for capital maintenance, public policy,
management control and accountability.
In order to provide for the short-term and long-term operating and capital needs of the water,
surface water and sewer utilities, the City evaluates and utilizes a combination of revenue
sources such as utility rates, bonds, loans, grants, developer contributions, Public Works Trust
Fund loans, and local improvement districts (LIDs). An example of enterprise capital sources of
funds and expenditures is illustrated in Figure 14-2.
[Graphic]
Figure 14-2: Enterprise capital sources of funds and expenditures.
Water and Sewer Funds
—Slightly more than 50 percent of the area of the City is served by Tukwila Water and Sewer
Utilities. With respect to sewer service, the remainder of the City is either not served or served
by other districts. In order to provide infrastructure in the unserved portions of the City,
additional revenue is needed in order to extend service to these areas. Available revenue
sources include local improvement districts, grants, Trust Fund loans, rate increases, customer
contributions, and general fund loans or transfers.
Surface Water Fund
—This fund accounts for operations and capital improvements for the management of the City's
storm drainage system and surface waters, including stormwater, flood hazard management
and habitat restoration projects as well as the City's NPDES pollution prevention program.
Surface Water capital projects are required to correct deficiencies and to meet federal, State,
and local mandatcslaws and priorities. Required infrastructure is paid for by developers, local
improvement districts, and possibly grants, but the largest fund contribution comes from the
utility's ratepayers.
Foster Golf Course
—This is a publicly -owned facility funded by operating revenues, primarily user fees but also
citizens' general obligation bonds, Councilmanic bonds, and transfers in from the General Fund.
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The City has chosen to account for the Golf Course as an enterprise fund for a number of
reasons. Enterprise funds may be used to report any activity for which a fee is charged to users
for goods or services, and the enterprise fund structure provides transparent accounting of
costs and revenues. The Golf Course is expected to meet its capital and operating needs over
the 20 -year planning period, and maintain a rate structure competitive with nearby municipal
courses. Capital improvements will be funded from the above-mentioned revenues. The Golf
Course Enterprise Fund accounts for operation, maintenance, and improvements of the
municipal golf facility. The difference between the Golf Course Enterprise Fund and other utility
enterprise funds is that the Golf Fund serves voluntary customers as opposed to the users of
the water, sewer, and surface water funds, who have no choice in service provider.
Relationship To Other Plans
Capital facility planning is related to a variety of other long-range, sub -area and system plans
adopted by the City. Figure 14-3 illustrates how these various plans are interrelated.
[Graphic]
Figure 14-3: Relationship of Adopted City of Tukwila Planning Documents
ISSUES
The following issues are based upon City experiences as well as from likely events that could
impact Tukwila's ability to pay for its future.
Decreases in Capital Spending
Figure 14-4 shows 10 years in operations and maintenance spending versus capital spending.
There is a trend line that shows the increasing percentage of City revenues being spent on
operations and maintenance, and less on capital. In addition, capital projects are being funded
by dedicated revenue sources rather than general operating revenues.
External Forces Reducing Available Local Revenues
In 2002 the voters of The Washington State legislature capped the growth of property tax
revenue approved a property tax initiative that limits annual revenues to no more than one
percent over the previous years' revenues or Implicit Price Deflator (IPD), whichever is lower.
9 Definition for clarity: The implicit price deflator for personal consumption expenditures is a figure compiled by
the federal Bureau of Economic Analysis (BEA) to measure inflation. A few local governments use the implicit price
deflator as an inflation index for certain fees or benefits, although it is more common to use other indexes such as
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The 1% property tax limitation is still the most revenue restrictive element of the general
revenue base. Accordingly, other revenue categories must make up the difference in order to
achieve the overall 3% revenue growth target.
[Graphic]
Figure 14-4: Operations vs. Capital Spending Trend (2003-2012).
Sales tax is the City's largest revenue source. The pandemic that started in early 2020 caused
businesses to close for a few months in the spring 2020. Businesses slowly reopened
throughout the summer months but the effects of businesses being closed significantly reduced
this revenue stream. While sales tax revenue has returned to pre -pandemic levels, increases
have not kept pace with inflation resulting in ongoing expenditures rising faster than ongoing
revenues. Retail sales tax from construction activity is expected to remain relatively strong as a
number of projects are in the pipeline. Additionally, the Washington State Legislature ended
the payment of Streamlined Sales and Use Tax Agreement mitigation payments to cities hard-
hit by destination -based sales tax. The mitigation payments decline each year and are
scheduled to end in 2026.
..
cooperate with multiple states and the business community to create a more uniform sales and
use tax structure. Under SSUTA, sales tax sourcing changed from being based on origin of sales
were the largest revenue source for Tukwila, generally over 40% of total revenue. In 2012, sales
tax of $15.0 million accounts for 23% of total revenues. The State established a mitigation fund
to compensate localities that lost revenue from implementation of SSUTA, but it does not
compensate fr.r 100% of the loss, and there is no guarantee that the State wil-1 m ntain the
fund. Since 2009 the City has received about $1.2 million in compensation for lost sales tax
revenues, which would range from a high of $19.4 million in 2007 to a low of
$14.4 million in 2009.
the Consumer Price Index. But the primary importance of the IPD to local governments in Washington State is that
it can impact how much property tax revenue local governments with a population of 10,000 or more can collect in
the upcoming year, as discussed in the remainder of this page.
Under state law, a local government may not increase its property tax levy more than 1% in a given year (the
"101% limit factor"), plus additional levy amounts generated by new construction, property improvements, and
other "add-ons" listed in RCW 84.55.010, as well as any changes due to new annexations (RCW 84.55.030 and WAC
458-19-035). Jurisdictions may only exceed the 101% limit factor if they have banked capacity available or if voters
have approved a levy lid lift.
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HOW DOES THE SSUTA AFFECT LOCAL REVENUE?
The SSUTA was designed in response to Congressional debates about how tax should be
collected for sales made by mail order and on the Internet. Because sales tax is now based on
the destination of the sale, sales tax that was previously collected by Tukwila on products being
shipped out of the city is now being collected by other jurisdictions. Sales tax for products sold
within the city or to customers who pick up their orders in person arc unaffected.
WHAT ARE SPECIAL PURPOSE DISTRICTS?
Special Purpose Districts can be created to provide a new service or a higher level of service
than is currently available. Special Purpose Districts can be established for a variety of
purposes, such as agriculture, economic development, education, parks, or environmental
protection. Special Purpose Districts may collect funds within their boundaries to provide
services related to their stated purpose, though funding mechanisms (property tax, fees, etc.)
vary by district.
Levying New Taxes and Fees
There are several ways that the Tukwila community has been able to compensate for the
decrease in revenues. The City created a Revenue Generating Regulatory License (RGRL), which
is a fee levied on businesses operating within the City,7erFel Beginning in 2006 the City instituted
a Utility Tax, which applies to electric, natural gas and communication sales. The City enacted a
solid waste utility tax in 2009 to address revenue shortfalls in certain areas and unexpected
costs in other areas.; Utility taxe revenues have remained fairly level over the past several years
but took a dip in 2020 due to businesses being closed for a few months. Increases of up to 2.4%
are expected in 2023 but, due to conservation efforts and changes in consumer behavior, no
growth is projected for 2024. _ - - - ' - ' - - - - ' ' - The City enacted a business
license fee in 2010 which currently is expected to generate revenues exceeding $3.2 million per
year.
In order to continue to provide the same high-level of services in the next biennium and in the
out years, it will be necessary for the City to implement a new revenue stream. The Council
approved a modest business and occupation (B&O) tax to take effect in January 2024. The tax is
levied on businesses that exceed $750 thousand annual gross revenue. In addition to
maintaining the current level of service, this new revenue source will allow the City to hire
frozen commissioned officer police positions within the Police Department. relatively new
revenue sources that were cr ted and levied to compensate for the recent changes in the
Real Estate Excise Tax (BEET)
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Real Estate Excise Tax (REET) is levied on the sales of real property. The tax is calculated based
on the selling price, including the amount of any liens, mortgages, and other debts given to
secure the purchase. The tax is due at the time of sale and is collected by the County at time of
recording. The City of Tukwila imposes a 0.25% real estate excise tax- known as REET1 or the
"first quarter percent" and an additional 0.25% REET2 tax on the "second quarter percent" with
such proceeds to be used primarily for capital projects and limited maintenance.
Creating More Special Purpose Districts
Forming special purpose districts allows the community to collect additional money for specific
needs, such as for parks. In 2011 a Metropolitan Park District was created with coterminous
boundaries with the City of Tukwila, in order to sustain the operation of the Tukwila Pool.
Beginning in 2013, Tukwila property owners began paying an additional 15 cents per $1,000 of
assessed valuation. Fire Protection is a topic that has also been discussed as a potential
breakaway service that would benefit from its own taxing authority.
[Graphic]
Levee repair at Lilly Point
Preparing for NATURAL Disasters and Emergencies
The effects of climate change can be felt throughout the Puget Sound region and can be
categorized into six categories: temperature, precipitation, sea level rise, vegetation change,
ocean acidification and slope stability. —
climate of the world is changing. We have witnessed firsthand The climate of the world is
changing. Ttemperatures arising, and patterns of rain and drought are changing. Flooding
events will occur with greater frequency, water levels will rise, and more droughts will occur.
Tukwila is already experiencing more severe weather impacts due to climate change and the
opportunity for flooding to occur more often. - - - - -
potential to become a more regular reality for the City of Tukwila. For Tukwila, Aa significant
water feature of the City is the Duwamish/Green River and its tributaries.
Property owners of the City arc part of thepay taxes to the King County Flood Control District
that which manages the levy levee system that protects the commercial and industrial base of
the Cityalong the Green/Duwamish River.An infrastructure repair and the potential for flooding
caused millions of dollars in unexpected expenses to the City in the last six years. Response to
these changes needs to be regionally collaborative and combined with targeted local efforts.
The primary levee located with Tukwila is the Tukwila 205 Levee which mitigates flood risks to
both residents and business along the Lower Green River. The Tukwila 205 Levee is a 4.3 -mile
levee located along the left bank of the Green River from the southern boundary of the city
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extending to 1-405. Over the course of the next 25 years the city in conjunction with the King
County Flood Control District is rebuilding this entire levee system to provide 500 -year level of
flood protection plus 3 feet of freeboard. There are other smaller levees and revetments found
throughout Tukwila along the Green/Duwamish River that mitigate flooding risks. The 205
levee is a prioritized project in the Regional Hazard Mitigation Plan. -
Tukwila is located in a seismic zone; and is vulnerable for to potential natural and man made
disasters such as an earthquake or a hazardous substance leak. Arelease. As one of the the
responsible public service entitiesy, the ability to support the community after such an event is
of a paramount importancejob. The location and condition of the City's infrastructure to
withstand significant catastrophes, and the presence of a reserve to pay for unexpected events,
must should be a factorinclducdincluded in the City's capital planning of the City. The city is in
compliance with all regulations to be eligible for federal and state reimbursement if it
experiences a Presidential Declared Disaster.
GOALS, POLICIES AND STRATEGIES
These policies are intended to ensure the availability of financing to accomplish the goals
expressed here and in the other elements of the Comprehensive Plan over the next 20 years.
GOAL 441_
Public facilities and services that reflect desired levels of quality, address past
deficiencies, and anticipate the needs of growth through acceptable
levels of service, prudent use of fiscal resources, and realistic
timelines.
General Policies
44Policy T1.1 The City shall use non -capital and regionally -shared capital options to meet its
public facility needs when there are financial or space economies of scale to be
gained. Such options include:
• Contracted services, such as King County Animal Control;
• Cooperative programs with other public entities, such as Valley
Communications for dispatch services and South County Correctional Entity
for jail services, and Cascade Water Alliance for water supply;
• Demand Management management strategies; and
• Rent or lease options.
Policy 44.1.2 The City's management of its capital facilities shall follow this order:
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1. Regular inspection of systems for evaluation and to ensure conformity with
current safety standards;
2. Prioritizing projects when making improvements, if the public health and
safety is at risk;
3. Preventive maintenance and cost-effective replacement of aging elements;
and
4. Planning for the orderly extension and upgrading of capital systems to
accommodate future growth:
Policy 441.3 Projects listed to be initiated during_#e the 7-20 year time frame shall be
generally developed, described, estimated, and evaluated using Comprehensive
Plan goals, while projects in the six-year CIP/FPM shall be more specifically
described.
Policy 14214.4 The City shall ensure that transportation capital facilities are provided within a
maximum of six years of the occurrence of impacts that will degrade adopted
level of services standards.
10
Policy
441.56 Dedicated facility funding and allocation for building needs shall be included
in the CIP/FPM.
Policy 14.1.67 Continue to fund the correction of single family residential neighborhood
infrastructure deficiencies, including transportation, surface water, sewer and
water, through interfund loans or general fund transfers, in order to address
emergency and public health and safety issues.
Policy 44.1.78 No capital improvement projects located outside the city limits shall be approved
without specific City Council approval.
Paying For Facilities
Policy 14.1.81 If the City determines that the public's health, safety, and welfare will be
benefited, or if funding is available through external sources such as
10 Priorities are addressed in the section Prioritizing Facility Construction later in the element.
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development or grant funds, the City may shall funding for preliminary
engineering and design of commercial and residential street projects)'
Policy 14•,1.918 Late -corner agreements shall be considered an acceptable means of
funding capital projects, improvements, and replacements, in whole or in part
when requested by a developer.
Policy 4.41.104 The City shall initiate property negotiations in all projects with a request
for donation of the property needed for rights-of-way and easements.
Policy 14,1.112 Arterial street improvements listed in the six-year CIP/FPM may be
funded through an LID or financing external to the City. The City may participate
osinguse operating revenues, grants, or bonds, based on health and safety needs
or public benefit.
Policy 4.41.124 The City shall may consider paying for local improvement district
formation costs in addition to the preliminary and construction engineering
costs, in order to provide a more timely option for residential street
improvements.
must petition the City for creition of a local improvement district.
for any improvements on private property such as rockeries, paved driveways, or roadside
- - - - - - m e nt for i n'
petition are set forth in State and local law.
Ee - --
Policy 4.41.1_4 The City shall, whenever practical and advantageous, apply for grants,
loans, or other external financing sources. Grant applications for capital facilities
shall be made:
• Only for projects listed in the CIP/FPM, and
• After approvCity Council approvalal of the appropriate Council Committee,
who shall report to the full Council on any pending grant.'
14.1.15 Full Council approval is required for any grant acceptance.13
11 Reflects current practice.
12 These protocols shall be internal Council decisions.
13 The Council should have flexibility to change their grant procedures without a Comp Plan change.
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144,4.147 Transportation, fire, and parks impact fees shall be collected so that "growth
may pay for growth" and growth -caused improvements may be constructed.
Policy 441.158 Impact fees shall be adjusted periodically based upon an appropriate
capital cost index and/or other relevant data, to ensure that the fees reflect the
cost of planned system improvements related to growth_rand shall be subject to
City Council approval.
Policy 441.16 The City shall consider issuance of bonds for facilities, if repayment can
be made from revenue allocations and if it is more cost-effective.
14.1.20 The City shall consider projects identified in the CIP/FPM for general operating
revenues
becomes available.
Policy 141.1724 Non -transportation and non-utility capital projects and improvements
(i.e., new fire station, parks, trails, City offices) shall be funded by general
revenues, impact fees, grants, or bonds as determined in the biennial CIP/FPM
review process.
14.1.22 The first 1/4 cent rel estate transfer tax shall be dedicated to park and open
space land acquisition_. The second % cent tax, along with the parking tax revenues, shall be
used for arterial streets.14
PRIORITIZING -Facility Construction — Prioritizing, Site Selection, and Design
14.1.23 Residential streets with safety issues, high traffic volumes, high pedestrian
- 15
14 This has been changed by the Council to fund the Public Safety Plan
15 Reflects current practice.
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Policy 44.1.18 Provide affordable and equitable access to public services to all
communities, especially the historically underserved. Prioritize investments to
address disparities.16
Policy 44,1.2419 Capital improvements shall be coordinated, whenever feasible, with
related improvements by other jurisdictions.
Policy 441.2-520 Transportation improvements shall be coordinated with related
improvements such as utility, landscaping, sidewalks, etc.
Policy 441.21 Capital facility projects shall be prioritized using Comprehensive Plan and
Strategic Plan goals and policies.
Policy 1.22
Prioritize the selection, design, and construction of capital facility projects using
consideration of how these choices reduce greenhouse gas emissions (GHG) and
support state, regional, and local GHG reduction goals17
Policy 1.23 Prioritize capital facility decisions that require and expand the use of
conservation, alternative energy sources, and energy management technology.18
Policy 1.24
Support coordinated planning for public safety services and programs, including
emergency management, in partnership with communities that have
disproportionately carried the burden of harm from social, or political
disenfranchisement.'
Policy 1.25 Establish new or expanded sites for public facilities, utilities, and infrastructure in
a manner that ensures disaster resiliency and public service recovery.20
Financial Planning and Plan Maintenance
16 King County Countywide Planning Policies, K PF -2
1' PSRC goals/policies: (MPP -CC -1, CC -3, CC -5, CC -11-12, CC -Action -3)
18 PSRC goals/policies: (MPP -CC -1, CC -3, CC -5, CC -11-12, CC -Action -3)
19 King County Countywide Planning Policy K PF -26
20 King County Countywide Planning Policy PF -27
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Policy 44.1.246 Capital planning decisions shall be linked to City-wide goals, by tracking
actual growth patterns and evaluating growth targets and level -of -service
standards.
Policy 441.2827 The CIP/FPM shall be updated biennially and include reviews of forecasts
and actual growth, revenue, and cost totals.
Policy 441.23268 Capital Facility policies shall be reviewed biennially during revisions to the
CIP/FPM. Desirable changes shall be implemented during the annual
Comprehensive Plan amendment process.
Policy 441.2O2g9 Policies and practices of sound governmental budgeting and accounting
principles, revenue diversity, and promoting the economic well-being of the City
shall be used, in order to maintain an A-4AA bond rating or better for the City.
Policy 441.312830 In the event that anticipated funding falls short of meeting existing
and/or anticipated needs, the City shall reassess and revise the following, as
needed:
▪ The land uses in the Comprehensive Plan;
• Funding alternatives; and/or
• The level of service standards of the City.
Enterprise Funds Policies
Policy 44.1.322931 Utility rates and charges shall be structured to ensure adequate
infrastructure development, in addition to compliance with operation,
maintenance, and federal and State requirements.
Policy 44.1.3924 Adequate reserved working capital balances shall be maintained for each
enterprise fund's annual expenditures. The fund balance for enterprise funds, at
the close of each fiscal year, shall equal or exceed 20% of the previous year's
revenue, exclusive of significant non --operating, non-recurring revenues such as
real estate sales, transfers in from other funds, or debt proceeds.
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Policy 14.1.3134 Rate increases shall be small, applied frequently, and staggered to avoid
an overly burdensome increase and undue impact in any given year.
Policy 1441.3246 Each enterprise fund shall be reviewed at least biennially; and shall have
a rate structure adequate to meet its operations &-and maintenance and long-
term capital requirements.
Policy 14.1.3856 Rate increases of external agencies (i.e., King County secondary
wastewater treatment fees) shall be passed through to the users of the utility.
Policy 14.1.3467 For safety and health reasons, the City shall provide sewers to all
residential and commercial areas in the City's service area by using a
combination of operating revenues, grants, loans, bonds, voluntary local
improvement district formations, and/or interfund loans.
Policy 14.1.3&78 Interfund loans shall be permissible if practical. Interest rates shall be
computed based on the discounted market rate that is based on the US Treasury
note rate(s) corresponding to the term of the loan, in order to adequately
compensate the loaning fund.
Policy 441.3689 When there is a general long-term benefit to the respective enterprise
fund and its customers, the City shall use bonded indebtedness as a funding
alternative.
Level -of -Service Standards
Policy 44,1.3794G Sufficient system capacity for surface water, water, sewer, and
transportation is required prior to approval of any new development. (Standards
for surface water, water and sewer are codified in the City's Municipal Code, and
the transportation standards are in the Transportation Element of this Plan.)
New development must pass the concurrency tests before development may be
permitted.
Policy 44.1.3811 40 The City shall monitor the capacity and maintain the water, sewer,
surface water and transportation systems at the adopted standards.
GOAL X42_
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A Capital Improvement Program and facility designs that meet the broad
spectrum of the City's human needs, rather than just traditional
needs such as vehicular and pedestrian circulation, drinking water
distribution, and sewage collection.
POLICIES
Policy 44.2.1 The City shall recognize and provide for multiple purposes and functions 1-n- all
City facilities and, where possible, incorporate the needs of the individual within
the design.
Policy 44.2.2 The design of infrastructure improvements shall include conservation of
resources, such as water reuse and energy-efficient electric fixtures, and the use
of local power generation.
Policy 44.2.3 The design and location of infrastructure improvement shall consider the impact
of climate change, environmental justice, seismic occurrence, flood risk
environmental justice, and maintaining the ability to serve the community in the
event of a natural or other 21disaster.
Policy 44.2.4 Minimizing the costs of maintaining, operating and other life cycle costs shall be
used as a criterion in the design and funding for any capital facility.
Policy 44.2.5 The design and construction of capital projects shall:
• Use best practices for constructing in accordance with crime prevention
through environmental design free environment;
• Create high-quality built places hat, as appropriate, are accessible to all;
• Have a strong landscape component;
• Maximize environmental and economic benefits;
• Minimize environmental costs ; and
• Promote public health by providing opportunities for safe and convenient
daily physical activity.
Policy 442.6 Throughout the City, the focus of capital investments shall be on creating a
connected, dynamic urban environment.
21 To account for man-made disasters - huge fires, explosions, etc.
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Policy 44.2.7 The City, both acting on its own or in coordination with flood protection
partners, shall seek, design, and implement flood hazard reduction projects,
that are permancnt,long-term and
low -maintenance flood protcctionhazard management solutions that meet multiple objectives,
such as flood hazard controlprotection, water supply flood storage, water
quality, recreation and fisheries protcctionhabitat restoration.
Policy 2.8 Reduce the solid waste stream and encourage reuse and recycling.22
RELATED INFORMATION
Capital Facilities Element Background Report
Capital Improvement Program/Financial Planning Model (CIP/FPM)
Walk and Roll Non Motorized Plan
Fire Master Plan
Parks, Recreation and Open Space Plan
Surface Water Plan
Water Plan
Sewer Plan
Transportation Background Report
22 King County Countywide Planning Policy, K PF -14
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