HomeMy WebLinkAboutCAP 2007-08-28 COMPLETE AGENDA PACKET Distribution:
City of Tukwila P. Carter S. Kerslake
y V. Griffin G. Labanara
t a Community Affairs and P. Linder K. Matej
X. Mullet C.O'Flaherty
May
i�z Parks Committee y
R. Berry J. Pace
190a Pam Linder, Chair E. Boykan D. Speck
Pam Carter J. Cantu R. Still
B. Fletcher CC File (cover)
Dennis Robertson K. Fuhrer B. Miles
V. JessoD C. Lumb
AGENDA
Tuesday, August 28, 2007
Conference Room #3; 5 PM
ITEM ACTION TO BE TAKEN Page
1. PRESENTATION(S)
2. BUSINESS AGENDA
a. Comprehensive Plan Amendments; a. Forward to 9/10 C.O.W. Pg. 1
Jack Pace, Acting Community Development and 9/17 Regular
Director
b. Consultant Contract for Shoreline Master b. Forward to 9/10 C.O.W. Pg.39
Program Update; Caro /Lumb, SeniorPianner and 9/17 Regular
c. Sign Code Update Timeline Briefing; c. Forward to 9/4 Regular for Pg.47
Brandon Mlles, Assistant Planner briefing to whole Council
3. ANNOUNCEMENTS
4. MISCELLANEOUS
Next Scheduled Meeting: Tuesday, September 11, 2007
The City of Tukwila strives to accommodate those with disabilities.
Please contact the City Clerk's Office at 206 433 -1800 for assistance.
To:
From:
Subj ect:
Date:
City of Tukwila
Steven M. Mullet} Mayor
Department of Community Development
Steve Lancaster, Director
Community Affairs and Parks Committee ~
Jack Pace, Acting Director, Department of Community Development '\\
1) Request"Emergency" status of proposed Comprehensive Plan ame \ ment
(Sabey MIC/H to LI) and
2) Proposed Comprehensive Plan Amendment
August 28, 2007
BACKGROUND
The City of Tukwila received two applications for Comprehensive Plan amendments prior
to the December 31, 2006 deadline. The Tukwila City Council held a public meeting on the
applications on March 5, 2007, and fonvarded the applications to the Tukwila Planning
Commission for a hearing that was held on March 22, 2007. In late March, Open Frame
filed an appeal ofthe environmental determination ofthe amendment request pertaining to
the future Transit Center location in the Tukwila Urban Center. As the SEP A appeal
proceeds independently, the applications are ready to be scheduled for Council hearing and
action.
On August 13,2007, the City of Tukwila received an application from the Sabey
Corporation for a Comprehensive Plan amendment and Rezone from
Manufacturing/Industrial Center-Heavy (MIC-H) to Light Industrial (LI), on immediately
south of Boeing Field. The location and project area are shown in Attachments A and B.
The applicant requests that the Comprehensive Plan amendment request be considered as an
"emergency" and reviewed in 2007 with the amendments that are currently under
consideration, rather than waiting until 2008 for a new amendment cycle. The Washington
Growth Management Act stipulates that jurisdictions may amend their Comprehensive
Plans no more frequently than once per year unless it is an emergency as defmed by the
jurisdiction. TMC 18.80.020 (Attachment C) describes the docketing procedure, including
the criteria for the emergency amendment.
The City Council will be requested to take two actions associated with the request from the
Sabey Corporation, including:
1) First, to determine whether or not to accept the proposed change as an
emergency and consider it in 2007, along with two applications currently in the
process, or to hold the application for consideration until 2008, and;
2) Second, if the City Council accepts the "emergency" amendment, to decide
whether or not to forward the application to the Planning Commission for further
consideration.
Rf 08/20/2007
E:\COMP PLAN AMEND 2006-200T\SabevCAP-8.28.07.doc
6300 Southcenter Boulevard, Suite #100 · Tukwila, Washington 98188 · Phone: 206-431-3670 · Fax: 206-431-3665
It should be noted that the City Council will not be deciding on the merits ofthe request at
this point. Rather, it would decide whether or not to refer the request to the Planning
Commission for further review and a recommendation.
If the Council decides to forward the application to the Planning Commission, the Planning
Commission would hold a hearing on the new amendment request in October, 2007. The
proposal would then join up with two existing amendment requests that have been on hold
at the Planning Commission level. After Planning Commission review, the City Council
would hold a public hearing and take action prior to December 31, 2007.
DISCUSSION: "Emereency" Amendment
The Washington Growth Management Act stipulates that jurisdictions may amend their
Comprehensive Plans no more frequently than once per year unless it is an emergency as
defined by the jurisdiction. TMC 18.80.020 (Attachment C) describes the docketing
procedure, including the criteria for the emergency amendment.
An emergency amendment is a proposed change or revision that requires "expeditious"
action to address one of more of the following criteria:
1) Preserve the health, safety or welfare of the public;
2) Support the social, economic or environmental well-being of the City;
3) Address the absence of adequate and available public facilities or services;
4) Respond to decisions by the Central Puget Sound Growth Management Hearings
Board, the state or federal courts, or actions of a state agency or the legislature.
The applicant requests that the amendment be handled as an "emergency" and reviewed in
2007 with the existing amendment requests based on the need to act expeditiously to support
the economic well-being ofthe City. Attachment D discusses the applicant's Finding of
Emergency, including an economic study prepared by ECONorthwest.
Although the applicant has asked that this request be considered as an "emergency" in order
to have it reviewed in 2007, the proposed amendment only needs to "catch up" with the
other amendments that are on hold at the Planning Commission level. The Council could do
this by adding the application to the existing docket. Since the City Council has not yet
acted on the Comprehensive Plan and Rezone applications for 2007, the Council could
decide to have the new application go through review and then make a decision on all three
amendments by the December 31, 2007 deadline.
As noted in the application, the property is split between Tukwila and Seattle. Taking
action to review the amendment in 2007 will ensure that Tukwila's review is coordinated
\vith Seattle, and is not delayed by Seattle's process. Finally acting to review the proposed
"emergency" amendment in 2007 will allow the City Council to review all three existing
applications in a comprehensive manner.
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08/20/2007
RECOMl\1Ej\T))ATION: "Emen!:ency" Amendment
Staff recommends considering the proposed amendment as an "emergency" and including it
in the review process for 2007.
Staff requests that the CAP forward the issue of whether the proposed amendment is an
"emergency" to the COW for a briefing on September 1 0, 2006, and to the Regular Meeting
on September 17, 2007 for a decision on whether to include it in the 2007 review process.
DISCUSSION: Proposed Amendment ReQuest
The applicant proposes a Comprehensive Plan amendment and rezone to redesignate
approximately 36.5 acres ofland in the Tukwila Manufacturing/Industrial Center from
Manufacturing Industrial Center -Heavy (MICIR) to Light Industrial (Ll). Located
immediately south of Boeing Field, the site is currently occupied by the Associated Grocers
warehouse and distribution center. The 64 acre Associated Grocers project area is split
between Tukwila and Seattle, with approximately 57% (36.5 acres) in Tukwila, and 43%
(27.22 acres) in Seattle. lfthe Comprehensive Plan amendment and Rezone are approved,
the property would remain split between Seattle and Tukwila. The applicant has been
coordinating future development of the property between Tukwila staff and Seattle staff.
Once Associated Grocers' lease ends, the applicant intends to redevelop the site into a
mixed use development. Although at a conceptual stage, Attachment E shows that the
development would be likely to include approximately 700,000square feet of office use,
550,000 square feet of retail use, 80,000 square feet of hotel/lodging, 60,000 square feet of
entertainment (theatre) use, and 100, 000 square feet of light industrial use, such as
warehousing and manufacturing. By changing the designation from Manufacturing-
Industrial Center/-Heavy (M/IC-H) to Light Industrial (LI), property would be removed
from the Manufacturing Industrial Center, but could be developed in a wider range of uses.
Under the Ll zoning, future development could include varied development, including more
retail and office, than under MIC-H. Future development on the property would generate
jobs and tax revenue, as well as improve the overall appearance of the area. It could also
produce additional traffic impacts, and possibly increase pressure on remaining industrial
lands to convert to commercial uses. Depending on what is developed on the site, it could
compete with future development opportunities in the Tukwila Urban Center.
RECOMl\1ENDATION: Proposed Amendment ReQuest
Staff requests that the CAP forward consideration of the proposed Comprehensive Plan
amendment and Rezone from MIC-H to Ll to the COW for a briefing on September 10,
2006, and to the Regular Meeting on September 17, 2007 to take comments in a public
meeting.
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3
08/2012007
Afterwards, the City Council will determine \vhether to forward the application to the
Planning Commission for further review in 2007. It should be noted that the City Council
will not be deciding on the merits of the request at this point. Rather, it would decide
whether or not to refer the request to the Planning Commission for further consideration.
After a Planning Commission hearing and recommendation, all three amendment requests
would come back to the City Council for public hearing and a decision before December 31,
2007.
ATTACHMENTS
Attachment A:
Attachment B:
Attachment C:
Comprehensive Plan/Zoning Code Amendment Map
Comprehensive Plan/Zoning Code Amendment Aerial
1MC 18.80 Amendments to the Comprehensive Plan and
Development Regulations
Findings of Emergency (Sabey Corporation, 8/13/07)
Conceptual Site Plan
Attachment D:
Attachment E
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Attachment A
Attachment B
Comprehensive Plan Amendment
LO7-066
Rezone L07-067
Proposed Rezone and Comprehensive Plan Amendment from MIC/H to LI
TUKWILA MUNICIPAL CODe
ATTACHMENT C
Chapter 18.80
AMENDMENTS TO THE
COMPREHENSIVE PLAN AND
DEVELOPMENT REGULATIONS
Sections:
18.80.010 Application
18.80.015 Documents to be Submitted with
Application
18.80.020 Docket
18.80.030 Notice and Comment
18.80.040 Staff Report
18.80.050 Council Consideration
18.80.060 Council Decision
18.80.010 Application
Any interested person (including applicants, citi-
zens, Tukwila Planning Commission, City staff and
officials, and staff of other agencies) may submit an
application for an amendment to either the compre-
hensive plan or the development regulations to the
Department of Community Development. Such
applications are for legislative decisions and are not
subject to the requirements or procedures set forth in
TMC Chapters 18.104 to 18.116. In addition to the
requirements of TMC 18.80.015, the application shall
specify, in a format established by the Department:
1. A detailed statement of what is proposed
and why;
2. A statement of the anticipated impacts of
the change, including the geographic area affected and
the issues presented by the proposed change;
3. An explanation of why the current
comprehensive plan or development regulations are
deficient or should not continue in effect;
4. A statement of how the proposed
amendment complies with and promotes the goals and
specific requirements of the Growth Management Act;
5. A statement of how the proposed
amendment complies with applicable Countywide
Planning Policies;
6. A statement of what changes, if any,
would be required in functional plans (Le., the City's
water, sewer, storm water or shoreline plans) if the
proposed amendment is adopted;
7. A statement of what capital improvements,
if any, would be needed to support the proposed
change, and how the proposed change will affect the
capital facilities plans of the City; and
8. A statement of what other changes, if any,
are required in other City codes, plans or regulations to
implement the proposed change.
fOrd. 1770352, 1996j Ord. 175831[part), 1995)
18.80.015 Documents- to be Submitted with
Application
A. Applications for amendments to the compre-
hensive plan or development regulations shall provide
the following documents in such quantities as are
specified by the Department:
1. An application form provided by the
Department.
2. King County Assessor's map(s) which
show the location of each property within 300 feet of
the property which is the subject of the proposed
amendment.
3. Two sets of mailing labels for all property
owners and occupants (businesses and residents) ,
including tenants in multiple occupancy structures,
within 300 feet of the subject property.
4. A vicinity map snowing the location of the
site.
5. A surrounding area map showing compre-
hensive plan designations, zoning designations, shore-
line designations, if applicable, and existing land uses
within a 1000 foot radius from the site's property lines.
6. A site plan, including such details as may
be required by the Department.
7. A landscaping plan, including such details
as may be required by the Department.
8. Building elevations of proposed structures,
including such details as may be required by the
Department.
9. Such photo material transfer or photostat of
the maps, site plan and building elevation, including
such details as may be required by the Department.
10. Such other information as the applicant
determines may be helpful in evaluating the proposal,
including color renderings, economic analyses, photos,
or material sample boards.
B. The Department shall have the authority to
waive any of the requirements of this section for
proposed amendments which are not site specific or
when, in the Department's discretion, such informa-
tion is not relevant or would not be useful to considera-
tion of the proposed amendment
fOrd. 1770 353, 1996)
18.80.020 Docket
A. The Department shall maintain a docket of all
proposed changes to the Comprehensive Plan and
development regulations that are submitted.; If eIther
the DepartIIient or the Council determines that a pro-
posed cl1ange may be an emergency, the Department
shall prepare the staff report described below and
forward the proposed change to the Council for
immediate consideration, subject to the procedural
requirements for consideration of amendments. An
emergency amendment is a proposed change or
revision that necessitates expeditious action to address
one or more of the following criteria:
h.:_....... I_...........,,,nn.c:
TITLE 18 - ZONING
1. Preserve the health, safety or welfare of
the public.
2. Support the social, economic or environ-
mental well-being of the City.
3. Address the absence of adequate and avail-
able public facilities or services.
4. Respond to decisions by the Central Puget
Sound Growth Management Hearings Board, the state
or federal courts, or actions of a state agency or the legis-
lature.
B. Non-emergency changes shall be compiled and
submitted to the Council for review on an annual basis
in March so that cumulative effects of the proposals can
be determined. Proposed changes received by the
Department after January 1 of any year shall be held
over for the following year's review, unless the Coun-
cil or the Department determines the proposed change
may be an emergency.
(Ord. 2071 91,2004; Ord. 1770954, 1996;
Ord. 175891(part), 1995)
18.80.030 Notice and Comment
The docket of proposed changes shall be posted in
the offices of the Department and made available to any
interested person. At least four weeks prior to the
Council's annual consideration of the changes proposed
on the docket, the City shall publish a notice in a
newspaper of general circulation in the City, generally
describing the proposed changes including areas
affected, soliciting written public input to the
Department of Community Development on the
proposed changes, and identifying the date on which
the Council will consider the proposed changes.
(Ord. 1758 91 (part), 1995)
18.80.040 Staff Report
A; At least two weeks prior to Council
consideration of any proposed amendment to either
the comprehensive. plan or development regulations,
the Department shall prepare and submit to the
Council a staff report which addresses the following:
1. the issues set forth in this chapter;
2. impact upon the Tukwila Comprehensive
Plan and zoning code;
3. impact upon surrounding properties, if
applicable;
4. alternatives to the proposed amendment;
and
5. appropriate code citations and other
relevant documents.
B. The Department's report shall transmit a copy
of the application for each proposed amendment, any
written comments on the proposals received by the
Department, and shall contain the Department's
recommendation on adoption, rejection or . deferral of
each proposed change.
(Ord. 175891(part), 1995)
18.80.050 Council Consideration
A. The City Council shall consider each request
for an amendment to either the comprehensive plan or
development regulations at a public meeting, at which
the applicant will be allowed to make a presentation.
Any person submitting a written comment on the
proposed change shall also be allowed an opportunity
to make a responsive oral presentation. Such oppor-
tunities for oral presentation shall be subject to reason-
able time limitations established by the Council.
B. The Council will consider the following in
deciding what action to take regarding any proposed
amendment:
1. Is the issue already adequately addressed
in the Comprehensive Plan?
2. If the issue is not addressed in the
Comprehensive Plan, is there a public need for the
proposed change?
3. Is the proposed change the best means for
meeting the identified public need?
4. Will the proposed change result in a net
benefit to the community?
C. Following Council consideration as provided
by TMC 18.80.050A and 18.80.050B, the City Council
shall take action as follows:
1. refer the proposed amendment to the
Planning Commission for further review and a
recommendation to the City Council;
2. defer further Council consideration for one
or more years to allow the City further time to evalu-
ate the application of the existing plan or regulations; or
3. reject the proposed amendment.
(Ord.. 185691, 1998; Ord. 1770955, 1996;
Ord.. 1758 91 (part), 1995)
18.80.060 Council Decision
Following receipt of the Planning Commission's
recommendation on a proposed amendment referred
to the Commission, the City Council shall hold a
public hearing on the proposal, for which public notice
has been provided as required under the Public Notice
of Hearing chapter of this title. Following the public
hearing, the City Council may:
1. adopt the amendment as proposed;
2. modify and adopt the proposed amendment; or
3. reject the proposed amendment.
(Ord.. 185692, 1998; Ord. 175891(part), 1995)
D.....a 1 A 1 I,lJ:;
ATTACHMENTD
S~BEY
COR POK_i:.T~ON
August 13,2007
VIA HAND DELNERY
City Council
City of Tukwila
6200 Southcenter Boulevard
Tukwila, W A 98188
Re: Sabey Corporation Comprehensive Plan Amendment
Finding of Emergency
Dear Councilmembers:
In January of2007, The Sabey Corporation ("Sabey") agreed to acquire the 65-acre property that
comprises the Associated Grocers distribution facility in north Tukwila. Although bidders from
elsewhere in the United States and around the globe pursued this site, we prevailed in the
competition based on our history, understanding and confidence in the future of the City of
Tukwila Perhaps uniquely among the group of bidders, we recognized the prominent position
this site plays as a gateway to Tukwila. And certainly we were alone among the bidders in
understanding the role of this site in the City's long-standing efforts to improve the Highway
99/Tukwila International Blvd. corridor. These factors suggested a different future for the site
than for heavy industrial uses - its current zoning designation. We recognized that a change in
the designated land use for the property would bring it into conformity with the City's broader
planning efforts for North Tukwila, as outlined in the 1995 Comprehensive Plan.
Though we recognized that such changes are necessary, we could not put the property under
contract - and thereafter close on its purchase -- until after the close of the application process
for the 2007 docket of Comprehensive Plan amendments. For this reason, we were not able to
file such an application within the nonnal time period. But the City and State Codes provide for
"emergency" exceptions to this filing period, and we are writing today to request that the City
Council review and approve such an emergency endorsement of this application so it may
proceed forward this fall with the other 2007 Comprehensive Plan amendments on the docket.
The site uniquely straddles the boundary between Tukwila and Seattle. The location ofthis
boundary is a historical relic, and does not reflect good land use planning. The bifurcation of
this larger site between two jurisdictions will hinder the opportunity to develop this site for the
benefit of the City of Tukwila. The differing regulatory frameworks in Tukwila and Seattle pose
challenges to coordinated redevelopment. While this property is Tukwila's northern gateway,
occupying a landmark position at the head of the Highway 99/Tukwila International Boulevard
corridor, it is effectively an island for the City of Seattle, separated by Boeing Field and
Interstate 5 from the rest of the City. The City of Seattle has more important sites and issues to
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12201 Tukwila International Blvd. 4th Floor
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206/281-8700 main line
206/282-9951 fax line
CONSTRUCTION / ,~RCHiTECTURE
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Tukwila City Council
August 13,2007
Page 2 of7
deal with than this island property at the southern extremity of its municipal boundary. Simply
stated, the redevelopment ofthis site may be a higher priority for Tukwila than for Seattle.
Hence, we request that the City of Tukwila take a leadership role in the land use planning for the
total development in order to insure this unique opportunity.
The City Council has not yet acted on the 2007 Comprehensive Plan Amendment docket. Thus,
there is an opportunity to fold this proposed amendment in with the current process, and still
allow the City Council to consider the entire group of amendments comprehensively. Webster's
defines an "emergency" as "an unforeseen combination of circumstances that calls for immediate
action." This is such a case. Failure to advance the planning process by Emergency Measures on
the Comprehensive Plan Amendment will relinquish key decisions to the City of Seattle, and
force the project to work through what may be a two-year timeline with the City of Seattle.
Therefore, we are asking that you please take action to place this Comprehensive Plan
amendment on the 2007 docket by using your right under law as outlined in the emergency
action provision of the Tukwila Code. Since the other amendments on the 2007 docket remain
pending before the Council, the inclusion of this one will still permit the City to view the
amendments together per state policy.
For your reference, I have attached a more comprehensive statement in support of this request.
Thank you for your consideration of this request.
Sincerely,
SABEY CORPORATION
4~<-<- ~~ ~ '
DavidA. Sabey I'UB#
Enclosures
cc: Hon. Steven Mullet
Jack Pace
Tukwila City Council
August 10, 2007
Page 3 of7
REQUEST
The Sabey Corporation ("Applicant") has filed an application for a Comprehensive Plan
amendment and rezone to remove an approximately 36acre parcel south of Boeing Field in the
City of Tukwila (shown on Exhibit A) from the Greater Duwamish Manufacturing-Industrial
Center (MIC). Sabey has also filed a companion application for a rezone of this property to a
Light Industrial ("Lr') designation. Sabey requests that the City consider the Comprehensive
Plan amendment on its 2007 docket.
BACKGROUND
The property is a portion of a larger, 65-acre site that serves as the principal distribution center
for Associated Grocers. Of this larger site, approxiniately 29 acres is located in the City of
Seattle. Hence, as a site split between two jurisdictions, it faces a unique set of regulatory
challenges in the redevelopment process.
The site also holds a unique geographic position at the northern gateway to Tukwila's Highway
99 corridor - the northern entrance to the City. Associated Grocers will be relocating from this
site at the end of its current lease term, which offers the City the first opportunity in decades to
reposition the land use for this gateway location. In many respects, the success of the significant
work the City has undertaken in the last 10 years to remake International Boulevard is ultimately
dependent upon the establishment ofthis northern gateway.
But the bifurcation of this larger site between two jurisdictions may hinder the realization of this
opportunity. The differing regulatory frameworks in Tukwila and Seattle pose challenges to
coordinated redevelopment. And while this property is Tukwila's northern Gateway, occupying
a landmark position at the head of the Highway 99 corridor, it is effectively an island for the City
of Seattle, separated by Boeing Field and Interstate 5 from the rest of the City. The impetus for
capturing the redevelopment opportunity at this site must be driven by the City of Tukwila.
A window of opportunity for such redevelopment exists in the market today. The existing
warehouse distribution center use on the property is in decline, development to the south, west
and east of the property in the City of Tukwila is tending toward light industrial and commercial
uses, the property is well-served by transportation infrastructure, and the property is adjacent to a
potential light rail station. Market conditions are favorable.
Redevelopment of the property would provide significant benefits to the City of Tukwila. The
redevelopment ofthe property will further the City's goals and policies as reflected in the
Comprehensive Plan. In addition, the redevelopment ofthe property would greatly enhance the
aesthetic qualities of the site, which is situated in a highly visible location at the northern
gateway to the City. Redevelopment would also provide employment opportunities to City
residents. Additionally, the City would receive substantial increased tax revenue from
redevelopment.
Tukwila City Council
August 10, 2007
Page 4 of7
The late filing of the Comprehensive Plan amendment application was unavoidable. The subject
property did not become available for purchase until after the December 2006 deadline for
Comprehensive Plan amendments had passed. However, if the Sabey waits until 2008 to begin
pursuing land use entitlements for the property, the window of opportunity for redevelopment
may have passed. Favorable market conditions may no longer exist.
Due to the complexities of the land use permitting for this site, the timing of the City of Tukwila
action's on the Comprehensive Plan amendment is crucial. Since, the property is located
partially within the City of Tukwila and partially within the City of Seattle, any development
must obtain land use approvals from both jurisdictions. The Comprehensive Plan amendment
and rezone by the City of Tukwila is the first step in the land use permitting process. Ultimate
redevelopment will depend, however, on the successful entitlement of the site in both Tukwila
and Seattle. Because ofthe importance of this site to the City of Tukwila - a keystone site at the
northern gateway of the City - we believe it is critical that the City ofTukwila take the first step
in the entitlement process. As an island property to the City of Seattle, and given the scope and
complexity of other land use issues faced by Seattle, this site will attract less focus and attention
in the Seattle process, which is not in the interest ofthe City of Tukwila Thus the City of
Tukwila should take the lead this year on the redesignation of this site. However, if the City of
Tukwila does not act on the Comprehensive Plan amendment application as part of the 2007
docket, then in order for Tukwila to continue to take a leadership role in this redevelopment
effort, the City of Seattle process will be delayed by one to two years, due to the permitting time
frames of the City of Seattle. Hence, action on this Comprehensive Plan amendment by the City
ofTukwila should occur in 2007.
Even though the Comprehensive Plan application was filed after the December 2006 deadline,
the City Council has yet to act on the docket of amendments for this year. Thus, inclusion of this
amendment in this year's docket will allow the City to review all such Comprehensive Plan
amendment applications at the same time.
For these reasons, an emergency exists. The City Council should consider the Comprehensive
Plan amendment on its 2007 docket, concurrent with other pending applications.
DISCUSSION
City Code and State Law Requirements
TMC 918.80.0lD provides:
A. The Department shall maintain a docket of all proposed changes to the
Comprehensive Plan and development regulations that are submitted. If either the
Department or the Council determines that a proposed change may be an emergency, the
Department shall prepare the staff report described below and forward the proposed
Tukwila City Council
August 10, 2007
Page 5 of7
change to the Council for immediate consideration, subject to the procedural
requirements for consideration of amendments. An emergency amendment is a proposed
change or revision that necessitates an expeditious action to address one or more of the
following criteria:
I. Preserve the health, safety or welfare of the public.
2. Support the social, economic or environmental well-being of the City.
3. Address the absence of adequate and available public facilities or services.
4. Respond to decisions of by the Central Puget Sound Growth Management Hearings
Board, the state or federal courts, or actions of a state agency or the legislature.
B. Non-emergency changes shall be compiled and submitted to the Council for review
on an annual basis in March so that cumulative effects of the proposals can be.
determined. Proposed changes received by the Department after January 1 of any year
shall be held over for the following year's review, unless the Councilor the Department
determines the proposed change may be an emergency.
Only one of these criteria must be met in order to establish an emergency. TMC ~18.80.010.
This provision implements the Growth Management Act ("GMA") requirement that
comprehensive plans be amended no more than once a year, with some exceptions. RCW
36.70A.130(2)(a).
An Emergency Exists As Dermed by Code
The proposed comprehensive plan amendment qualifies as an emergency under TMC 18.80.010.
Under that section, only one of the listed criteria must be met in order for an emergency to exist.
Here, the proposed Comprehensive Plan amendment will support the social, economic and
environmental well-being of the City.
Social and Economic Well-Being
Furtherance of Economic Development Goals
The proposed Comprehensive Plan amendment will allow the redevelopment ofthe subject
property under the LI zoning designation. Redevelopment of the subject property will further the
economic development goals ofthe City as reflected in its Comprehensive Plan. Under
Comprehensive Plan Policy 2.1.10, the City should consider land use changes for warehouses if
there is a change in sales tax sourcing rules. The property is currently occupied with a
warehouse and distribution use. Changes in State sales tax sourcing rules have recently
occurred. Specifically, in March 2007, the Legislature passed legislation allowing the State to
join the Streamlined Sales Tax Project, which it did in July 2007. Under prior law, the
jurisdiction where a product originates receives the sales tax. With the recent change, the
Tukwila City Council
August 10, 2007
Page 6 of7
jurisdiction where the product is delivered receives the tax. Accordingly, land use changes are
appropriate under Policy 2.1.10.
The proposal is also consistent with a number of other goals and policies of the Economic
Development element of the Tukwila Comprehensive Plan. Comprehensive Plan Goal 2.1
promotes "continuing enhancement of the community's economic well-being." Policy 2.1.12
calls for the City to "[p ]romote Tukwilaas a regional crossroads for commerce." The
redevelopment of the subject site will further these goals by bringing new businesses to the City.
Furtherance of Community Image Goals
The proposal will further Community Image goals and policies of the Comprehensive Plan,
including Comprehensive Plan Goal 1.3 (identifiable boundaries for Tukwila) and Policy 1.3.1
(develop a set of gateways). The property has a highly visible location at the northern boundary
to the City. The redevelopment of this site - for the first time in 50 years - will trigger the City's
design review process, and ensure that new structures at the site will be of a high quality and will
respond to and reinforce the gateway attributes of the property. As a result, the prominence and
aesthetic qualities of the site will be enhanced significantly. Such enhancement will be critical to
the long-term success of the City's determined efforts to reposition the Highway 99 corridor.
The property will serve as the northern gateway to the City and the entry to the redeveloped
International Boulevard corridor.
Furtherance of Transportation Corridors Goals
The proposal will further Transportation Corridor Goal 8.1 (transportation corridors that are
functional, attractive and diverse). The redevelopment ofthe property will enhance the aesthetic
qualities ofthe transportation corridors that form its boundaries, including Airport Way S., E.
Marginal Way, S. Norfolk St., and S. Boeing Access Road. The project will provide any traffic
improvements required by the City in connection with project development. Furthermore, the
site is located adjacent to a potential Link Light Rail station, providing possible connectivity to
all points on the light rail network.
City Revenue
Additionally, the redevelopment of the property will result in substantial additional tax revenue
to the City of Tukwila. Please see the attached report from ECONorthwest regarding these
potential fiscal impacts.
Environmental Well-Being
Any development on the site would comply with all applicable environmental regulations. In
addition, prior to development, specific development plans would be subject to environmental
review under the State Environmental Policy Act.
Tukwila City Council
August 10, 2007
Page 7 of7
Conclusion
For these reasons, the proposed Comprehensive Plan amendment constitutes an emergency as
that term is defined under TMC ~18.80.01O.A.2. We request that the City Council take action to
place this proposed Comprehensive Plan amendment on the 2007 docket.
GMA Requirements Are Met
If the Council agrees to consider the proposed Comprehensive Plan amendment on the 2007
docket, it will be considered along with other applications on the docket. The Council will take
action on all pending applications at the same time. Accordingly, the requirement of the Growth
Management Act that the comprehensive plan be amended once a year is satisfied. RCW
36.70A.130(2)(a).
CONCLUSION
An emergency exists justifying the consideration of the proposed Comprehensive Plan
amendment on the 2007 docket. Accordingly, the City Council should consider the proposed
amendment in 2007 rather than delaying consideration of this application until next year.
L:\MH GeneraIITerrplates\Letter.do!
ECONorthwest
ECONOMICS' FINANCE' PLANNING
Phone' (541) 687-0051
FAX · (541) 344-0562
info@eugene.econw.com
Suite 400
99 W. 10th Avenue
Eugene. Oregon 97401.3001
Other Offices
Portland · (503) 222.6060
Seattle · (206) 622-2403
August 9,2007
TO:
FROM:
SUBJECT:
Mikel Hansen
Terry Moore, Bob Parker, and Beth Goodman
ANALYSIS OF IMPACTS OF A COMPREHENSIVE PLAN
AMENDMENT AND ZONE CHANGE AT THE ASSOCIATED GROCERS
SITE
SUMMARY
Sabey Corporation is submitting an application for a Comprehensive Plan Amendment and
zoning change on the 64-acre Associated Grocers site. The analysis in this memorandum
supports that application by addressing specific questions that the City has raised about the
proposed changes. This section (two pages) summarizes our answer to those questions; the
memorandum that follows this summary provides supporting data and analysis.
CONTEXT
The subject property is in Tukwila's Manufacturing Industrial Center (MIC). Its plan designation
and zoning is MIC/H (Heavy Industrial). Sabey Corporation is requesting a change to Light
Industrial (LI), which would allow for the development of office, commercial, and retail space as
well as other light industrial uses. Sabey Corporation is planning to develop the property for
office, retail, and light industrial.
The City of Tukwila is concerned that the type of development proposed for the subject property
could (1) discourage or be incompatible with existing uses in the MIC, (2) increase pressure for
conversions from heavy industrial to commercial land, (3) decrease the amount of land available
for industrial growth, and (4) compete or take market share for retail and commercial
developments in Tukwila's Urban Center.
IMPACTS TO INDUSTRIAL LAND
1. Will the proposed Comprehensive Plan Amendment significantly impact future
industrial development on parcels near the subject property in the MIC? No. The
majority of land near the subject property is already being used for commercial or light
industrial uses.
2. Will the proposed uses on the subject property be compatible with existing and
expected industrial uses in the MIC? Yes. Regional trends and local forecasts indicate
that manufacturing employment is growing slowly or decreasing. Official regional, long-
term employment forecasts suggest the majority of employment that Tukwila can expect ;c>~r:r-n!;:01l
.: [....,..,.......... '-~.J
err\.' .:-)~ -~'f ;?(\:'-'JfLl;
~4UG 1 3 2007.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 2
in the future is Professional and Business Services and other types of employment that
use office space. Boeing Field and Boeing properties separate the subject property from
the heaviest industrial uses in the MIC.
3. Is granting the Comprehensive Plan Amendment likely to increase demand for
conversion from industrial to commercial uses on areas adjacent to the subject
property? Maybe, especially south of the subject site. That land is currently being used,
however, for commercial and light industrial purposes. The pressure for conversion of
this land to commercial uses is more likely to be affected by regional land prices for
industrial land and employment trends than changes to the subject property.
4. Does the proposed development negatively impact the City's policy to have adequate
land for industrial growth? Yes and no. Changing the zoning on the proposed
development clearly reduces the amount of landfor some industrial uses (the property is
roughly 4% of the industrial land in Tukwila), and allows the option to develop more of
the land for office and retail uses. But the market trends have been clear for a while: land
on and around the subject property is not being used much by heavy industry, and the
subject property is now used for light industrial and commercial purposes. There is a
reasonable, but not definitive, argument that the change in designation will have little
impact on the long-run viability of industrial uses in Tukwila given market forces and the
way the MIC/H zone is defined and implemented.
IMPACTS TO THE URBAN CENTER
1. How will the uses on the subject site be similar and different from- the uses in the
Tukwila Urban Center? The uses in the Tukwila Urban Center include a regional mall,
high-density residential development, and a large mixed-use development. The uses on
the subject site will be a smaller-scale mixture of retail, commercial, and light industrial
uses. Most of the uses will primarily serve people working on or near the site, visitors
wanting to stay near Sea-lac International Airport, and people living relatively near the
subject site.
2. To what extent will the commercial and retail uses in the proposed development
compete with commercial and retail uses in the Tukwila Urban Center and other
developments within the City? There is no question that the proposed uses will compete
with development in other areas of Tukwila: that is the nature of all types of
development, and especially retail. The broader question is whether enough demand
exists to support all of the existing and proposed developments.in Tukwila, including
development on the subject property. PSRC forecasts strong employment growth in
Tukwila for sectors that use office space. Population growth, coupled with increases in
disposable income, will create demand for additional retail space.
3. What is the market area for the proposed development compared to the Tukwila
Urban Center? The development concept includes two primary uses: employment
(office and some industrial) and retail. The employment uses will draw workers from
throughout the region. The retail uses will draw from a smaller market area. Since the
mix of retailers is not yet specified, we cannot say definitively exactly what the market
area will be.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 3
INTRODUCTION
BACKGROUND
Sabey Corporation contracted with ECONorthwest to analyze the impacts of a Comprehensive
Plan Amendment and zoning change on the 64-acre Associated Grocers distribution site, located
in north Tukwila and south Seattle. The subject property is located in Tukwila's
Manufacturing/Industrial Center (MIC) The ManufacturinglIndustrial Center (MIC) is an area
designated in Tukwila's comprehensive plan as a manufacturing center. It includes land zoned
for Manufacturing Industrial Center/Heavy Industrial (MIC/H) and Manufacturing Industrial
Center/Light Industrial (MIC/L). The subject property is zoned MIC/H.
Figure 1 shows that the subject property is located between Airport Way, Norfolk Road, East
Marginal Way, the Duwamish River and the Boeing Access Road. The property is separated
from other properties in the MIC by these roads, except along the northwestern edge of the
property, which is adjacent to a credit mUon.
Figure 1. Subject property and immediate transportation access
Source: Johnson Gardner memorandum "Draft Economic and Market Trends Shaping Industrial Land
Need in the Duwamish COrridor," May 10,2007
Fifty-five acres of the 64-acre site are occupied by the Associated Grocers headquarters and
distribution facility, a light-industrial use that has existed in the heavy-industry zone for the past
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 4
50 years. Associated Grocers is considering changing the location of its facility; it is unclear
whether they will continue using the site for more than two to four years.
Sabey Corporation is seeking a Comprehensive Plan Amendment and zoning change on the
property to bring the zoning in line with historical and likely future uses. The current plan
designation is for heavy industrial uses MIC/H on the portion of the site in Tukwila and IG2 on
the portion of the site in Seattle). Sabey Corporation is requesting a change in plan designation
and zoning to Light Industrial, LI. The purposes and uses permitted in these zones are described
in Tukwila's zoning ordinance:
. ManufacturinglIndustrial Center Heavy (MICIH) District "...is intended to provide a
major employment area containing heavy or bulk manufacturing and industrial uses,
distributive and light manufacturing and industrial uses, and other uses that support those
industries. This district's uses and standards are intended to enhance the redevelopment
of the Duwarnish Corridor." The district allows a wide range of uses and building types:
manufacturing, heavy-metal processing, rock crushing and asphalt or concrete
manufacturing, offices associated with permitted uses, warehouse and distribution
facilities, storage facilities, hotels and motels, and restaurants.
. Light Industrial (LI) District"... is intended to provide areas characterized by
distributive and light manufacturing uses, with supportive commercial and office uses."
The district allows a wide range of uses and building types: manufacturing (similar to
manufacturing permitted in MIC/H), many types of office, medical and dental
laboratories and offices, retail sales, warehouse and distribution facilities, storage
facilities, hotels and motels, and restaurants.
Sabey Corporation is considering redeveloping the site for commercial and light-industrial uses.
Table I shows Sabey Corporation's concept of the possible uses on the site. The majority of the
uses would be office and retail, with a small amount of other commercial and light-industrial
uses. Although the Sabey Corporation does not have definite plans for the components of the
development, it hopes to develop a mixed-use center that provides opportunities for working,
recreation ahd socialization, and shopping in the same area. The development is likely to be
pedestrian-oriented and incorporate open space. The site is currently served by bus and
SoundTransit may develop the proposed light rail and commuter train station at the Boeing
Access Road. Plans to develop this station have been deferred by Sound Transit until financing is
available for the station.
Table 1. Conceptual development types
on the Associated Grocers site
Est. Size
(Square feet)
700,000
550,000
100,000
80,000
60,000
1,490,000
Possible Use
Office
Retail
Light Industrial
Hotel
Theatre
Total
Percent
47%
37%
7%
5%
4%
100%
Source: Sabey Corporation model of possible uses
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 5
Previous studies documented regional economic trends in support of the proposed amendments. 1
A Johnson Gardner study made the following findings about regional economic trends:
. The subject property has unique qualities that support the change in uses, including the
site's size, visibility, multiple modes of access, nearby industries, and the potential for
growth in King County.
. Growth in manufacturing, particularly heavy-industrial activity, will be stagnant over the
medium- and long-term periods in King County and the Puget Sound region.
. The combination of increasing costs of industrial land and outflow of traditional heavy
industry create disadvantages for future use of the subject property by a new
manufacturer or other fIrm that needs traditional industrial space.
. Forecasts and plans by the State of Washington, the Puget Sound Regional Council, and
the Prosperity Partnership expect heavy industry to continue to be important to the
regional economy but expect a long-term decline in heavy manufacturing and are
planning to encourage growth in technical and scientific industries.
. The current zoning of the property (MIC/H) creates barriers to redeveloping the subject
property for uses compatible with the expected regional growth in high-tech, scientific,
research, and commercial services industries.
PURPOSEOFTHEMEMORANDUM
This memorandum provides supporting documentation to Sabey Corporation's application for a
Comprehensive Plan Amendment and zoning change on the subject property. It addresses
specific questions pertaining to the potential impacts of a Comprehensive Plan Amendment and
zoning change on the subject site. In short, the purpose of this memorandum is to describe local
industrial, commercial, and retail land-use trends that affect future uses of the site, and how (and
whether) the Comprehensive Plan Amendment would impact the city's planning efforts.
The City of Tukwila is concerned about the impact of the proposed Comprehensive Plan
Amendment on existing industrial land and existing and planned commercial uses within its city
limits. The City is especially interested in the potential impacts of the proposed Comprehensive
Plan Amendments on the Tukwila Manufacturing/Industrial Center (MIC) and the Tukwila
Urban Center (TUC), as well as strategies to mitigate any potential impacts. Specifically, the
City is concerned about:
. How the proposed Comprehensive Plan Amendment may impact industrial land near the
subject property in the MIC
. Whether the proposed Comprehensive Plan Amendment may encourage other property
owners to apply for conversion of industrial land to commercial land
. Compatibility between the proposed uses on the subject property and uses on surrounding
industrial lands
I Johnson Gardner memorandum "Draft Economic and Market Trends Shaping Industrial Land Need in the Duwamish Corridor,"
May 10, 2007
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 6
. How the potential commercial development on the subject site will effect other
commercial uses in Tukwila
ORGANIZATION OF THE MEMORANDUM
The remainder of the memorandum is organized as follows:
. Framework for evaluation summarizes the procedures and criteria for amending
Tukwila's Comprehensive Plan and Zoning Code that are addressed in this memorandum.
. Analysis provides answers for each of the questions presented in the Framework section.
SCOPE OF THE EVALUATION
Sabey Corporation has applied for a Comprehensive Plan Amendment on the subject property.
Tukwila has procedures and criteria for amending its comprehensive plan and Zoning Code,
which note that "The burden of proof to demonstrate that a change to the Comprehensive Plan or
Zoning Code is warranted lies solely upon the proponent.,,2 An application to amend Tukwila's
Comprehensive Plan must address the criteria specified by the City in its "Application for a
Comprehensive Plan Amendment."
This memorandum is not the Sabey Corporation's application, which is being submitted
separately and addresses all of the criteria. Rather, this memorandum supports that application by
addressing in more detail the following criteria for the Comprehensive Plan Amendment:
. Explain why the proposed change is the best means for meeting identified public need
and describe other options for meeting the public need.
. Explain why the proposed change will result in a net benefit to the community or the type
of benefit that can be expected.
. Describe the anticipated impacts of the change, including the geographic area affected
and the issues presented by the proposed change.
. Explain why the current comprehensive plan or development regulations are defective or
should not continue in effect.
. Describe how the proposed amendment complies with applicable Countywide Planning
Policies.
. Describe what changes would be required in the Zoning Code.
In addition to requesting a change in the Comprehensive Plan, Sabey Corporation will also need
to request a change to Tukwila's Zoning Code. An application to amend Tukwila's Zoning Code
must address criteria presented in the application for a Zoning Code Amendment. This
memorandum addresses the following criteria for the Zoning Code Amendment:
. Show that the proposed amendment to the zoning map is consistent with the goals,
objectives, and policies of the comprehensive plan.
2 From the City of Tukwila "Comprehensive Plan Amendments" application.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 7
. Show that the proposed amendment to the zoning map is consistent with the scope and
purpose of this title and the description and purpose of the zone classification applied for.
. Demonstrate that there are changed conditions since the previous zoning became
effective to warrant the proposed amendment to the zoning map.
. Describe how the proposed amendment to the zoning map will be in the interest of
furthering public health, safety, comfort, convenience and general welfare, and will not
adversely affect the surrounding neighborhood, nor be injurious to other properties in the
vicinity in which the subject property is located.
In meetings between staff at the Sabey Corporation and the City prior to the submission of the
Sabey Corporation's application, City staff identified several concerns regarding the impacts of
the proposed Comprehensive Plan Amendment. This memorandum addresses concerns the City
raised about the proposed Comprehensive Plan Amendment.
. What are the potential impacts of the proposed Comprehensive Plan Amendment
on industrial land in the Manufacturing/Industrial Center? This section will address
the affect that the proposed Comprehensive Plan Amendment may have on industrial land
in the MIC, including compatibility issues and increases in pressure to convert land from
industrial to commercial uses. It will discuss possible strategies for mitigating these
impacts.
. What are the potential impacts of the proposed Comprehensive Plan Amendment
on uses in Tukwila's Urban Center? This section will address the impact of the
proposed amendment and development on existing commercial and retail uses in
Tukwila's Urban Center. It will discuss possible strategies for mitigating these impacts.
The analysis section of this memorandum addresses these broad questions, and several related
ones.
ANAL YSIS
ECO staff worked With City staff to understand the key issues and analysis required to support
the Comprehensive Plan Amendment. This section provides analysis of the two broad questions
posed above. The analysis is separated into two parts: impacts of the proposed Comprehensive
Plan Amendment on industrial; and impacts of the proposed Comprehensive Plan Amendment
on other commercial uses in Tukwila.
POTENTIAL IMPACTS OF THE PROPOSED COMPREHENSIVE PLAN
AMENDMENT ON INDUSTRIAL LAND IN THE MANUFACTURING/INDUSTRIAL
CENTER
The City of Tukwila is concerned about the potential impacts of the proposed Comprehensive
Plan Amendment on industrial land in the City's Manufacturing/Industrial Center (MIC). The
City's questions are:
1. Will the proposed Comprehensive Plan Amendment significantly impact future industrial
development on parcels near the subject property in the MIC?
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 8
2. Will the proposed uses on the subject property be compatible with existing and expected
industrial uses in the MIC?
3. Is granting the Comprehensive Plan Amendment likely to increase demand for
conversion from industrial to commercial uses on areas adjacent to the subject property?
4. Does the proposed development negatively impact the City's policy to have adequate
land for industrial growth?
5. How can the impacts of the Comprehensive Plan Amendment be mitigated?
The following analysis addresses these questions. The conclusions at the end of this section
provides answers to the questions.
Industrial land availability in Tukwila
Table 2 shows land uses in Tukwila by plan designation and zoning. The City has designated
1,436 acres-more than one-quarter of the City's land-for industrial uses; 1, 168-acres are in the
MIC/H zone. An additional 753 acres (14% of the City's land) is in zones that allow a mixture of
commercial and industrial uses, and 1, 144-acres (21 % of the City's land) are in commercial
zones.
The proposed Comprehensive Plan Amendment would change 64 acres of MIC/H land to LI.
The City only has 20 acres currently in the LI zone.
Table 2. Land by zoning district, gross acres, Tukwila, 2007
Zone
Industrial
Manufacturing Industrial Center/Heavy Industrial (MIC/H)
Heavy Industrial (HI)
Manufacturing Industrial Center/Light Industrial (MIC/L)
Light Industrial (L1)
Mixed Commercial and Industrial
Commercial Light Industrial (CILI)
Tukwila Valley South (TVS)
Commercial
Tukwila Urban Center (TUC)
Regional Commercial (RC)
Regional Commercial Mixed Use (RCM)
Office (0)
Neighborhood Commercial Center (NCC)
Mixed Use Office (MOU)
Residential Commercial Center (RCC)
Residential
Low Density Residential (LDR)
High Density Residential (HDR)
Medium Density Residential (MDR)
Total
Acres
1,436
1,168
144
105
20
753
472
281
1,144
853
80
77
53
52
21
8
2,049
1,797
161
91
5,383
Percent
27%
22%
3%
2%
0%
14%
9%
5%
21 %
16%
1%
1%
1%
1%
0%
0%
38%
33%
3%
2%
100%
Source: City of Tukwila, 2007
Sabey Corporation Comprehensive Plan Amendment
Table 3 shows the distribution of land uses within the Manufacturing/Industrial Center in
Tukwila in 2005, the City's key industrial zone. The majority of the land (913 acres) is
developed. Other uses include the King County International Airport (175 acres) and vacant land
(134 acres). The subject property is 64 acres and represents about 5% of the land within the MIC.
Table 3. Land uses in the Manufacturing
and Industrial Center, Tukwila, 2005
Acres Percent
Developed Land 913 72%
Airport 175 14%
Vacant Land 134 11%
Water 34 3%
Right -of -Way 16 1%
Total 1,272 100%
Source: Tukwila Comprehensive Plan, 2005 and
Tukwila City staff, 2007
According to Tukwila City staff, vacant land is defined a
s land having an improvement value of less than $5,000.
Table 4 shows the distribution of employment for firms located in the Manufacturing/Industrial
Center in 2005. About 85% of the more than 18,000 employees in the Center were employed by
firms needing industrial land, including processing firms (including manufacturing) and
wholesale firms.
Table 4. Employment in the Manufacturing
and Industrial Center, Tukwila, 2005
Employees Percent
Processing 13,845 76%
Professional Office 1,887 10%
Wholesale 1,644 9%
Other 453 2%
Retail 362 2%
Total 18,191 100%
Source: Tukwila Comprehensive Plan, 2005
August 9, 2007 Page 9
In 2007, Associated Grocers employed about 750 people at the subject property, approximately
4% of the employment in the Center. About 400 of the jobs (53 of the jobs were in
distribution and 350 of the jobs (47 were office related. These categories of employment do
not precisely match the categories presented in Table 4. The distribution employees are probably
covered under "Wholesale" in Table 4 and the office- related employees are probably accounted
for in "Professional Office in Table 4.
The data presented in this section suggest that the proposed change in plan designation on the
subject property would affect about 6% of the land area and about 4% of the employment in the
MIC. The amount of land zoned in the City Light Industrial (LI) would increase from 20 -acres to
84- acres.
Granting the Comprehensive Plan Amendment would result in a change in the composition of
economic activity on the site, possibly increasing economic activity on the subject property. The
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 10
existing use of the subject property is light industrial and commercial in nature, and has no heavy
industrial component. Sabey Corporation is proposing to increase the share of office and retail
jobs and decrease the share of light industrial employment. Assuming the subject site is
developed as proposed by Sabey Corporation in Table 1, the subject property may have 2,500 or
more employees, more than three-quarters of which would be office jobs. 3
Changes in employment and demand for industrial land
A key question is how the Comprehensive Plan Amendment will affect employment and demand
for industrial land. External but important to this question are regional employment trends that
will shape demand for land and built space in the MICIH zone. The Johnson Gardner
memorandum documents the projected change in payroll employment in King County. It states
that the Washington Employment Security Department projected that the sectors that will add the
most employment in King County over the next ten-years are industries that traditionally use
office space. These industries are expected to account for nearly 69% of new job growth in the
County. Professional and Business Services are expected to lead job growth and Manufacturing
fIrms are expected to account for only 2% of new jobs.
Table 5 shows the Washington Employment Security Department projection of job growth in
Manufacturing industries for the 2004 to 2014 period. The industries that are projected to add the
most jobs are Aerospace (3,000 new jobs), Nonmetallic Mineral Products (1,300 new jobs), and
Food Manufacturing (1,200 new jobs). The industries that are projected to loose the most jobs
are Printing and Related Support (-700 jobs) and Paper and Paper Products (-200 jobs).
3 The estimate of 2,500 employees is based on the amount of space by type that the Sabey Corporation is considering building on
the subject property (shown Table 1) and the employment densities presented on page 45 of the Puget Sound Regional Council's
document "Industrial Land Supply and Demand in the Central Puget Sound Region,"
Sabey Corporation Comprehensive Plan Amendment
August9,2007
Page 11
Table 5. Manufacturing employment forecast, King County, 2004-2014
Estimated Employment Change 2004 to 2014
Industry 2004 2009 2014 Number Percent AAGR
Manufacturing 103,500 115,000 110,400 6,900 7% 0.6%
Durable Goods 76,700 87,600 83,200 6,500 8% 0.8%
Aerospace 37,300 45,000 40,300 3,000 8% 0.8%
Nonmetallic Mineral Products 3,100 4,000 4,400 1,300 42% 3.6%
Wood Products 1,300 1,800 1,800 500 38% 3.3%
Machinery 5,200 5,700 5,700 500 10% 0.9%
Fabricated Metal Products 6,100 6,700 6,500 400 7% 0.6%
Electrical Equipment and Appliances 1,700 1,900 2,000 300 18% 1.6%
Misc. Manufacturing 5,500 5,500 5,800 300 5% 0.5%
Computer and Electronic Products 9,100 9,400 9,300 200 2% 0.2%
Furniture & Related Prod. 2,600 2,700 2,800 200 8% 0.7%
Primary Metals 900 900 800 -100 -11% -1.2%
Other Transportation Equipment 3,900 4,000 3,800 -100 -3% -0.3%
Non Durable Goods 26,800 27,400 27,200 400 1% 0.1%
Food Manufacturing 12,200 13,000 13,400 1,200 10% 0.9%
Chemicals 1,800 2,000 2,000 200 11% 1.1%
Petroleum & Coal Prod. 200 200 200 0 0% 0.0%
Plastics & Rubber Prod. 3,100 3,100 3,100 0 0% 0.0%
Textile & Apparel 2,200 2,400 2,100 -100 -5% -0.5%
Paper & Paper Prod. 2,000 1,800 1,800 -200 -10% -1.0%
Printing & Related Support 5,300 4,900 4,600 -700 -13% -1.4%
Source: Washington Employment Security Department
The Puget Sound Regional Council (PSRC) projects employment for small areas in the Puget
Sound Region. Table 6 shows the PSRC's long-term forecast for employment in the Tukwila
Forecast Analysis Zones (FAZ) for the 2000 to 2040 period. The PSRC projects that the Tukwila
FAZs will add about 27,500 jobs over the 40-year period. The forecast shows that the majority of
new jobs will be in Services, including Finance and Insurance and Real Estate. Employment in
Manufacturing is forecast to decline by more than 3,600 jobs. Employment in Wholesale Trade,
Transportation Services, Communications, and Utilities (WTCU) is forecast to grow by more
than 1,800 jobs. Some or most of the employment growth in WTCU sectors will choose to locate
on industrial land.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 12
Table 6. Employment forecast, Tukwila FAZs, 2000-2040
2000
2040
Change
Number
Percent
Total
MFG WTCU Retail FIRES Gov/ED Emp.
11,369 6,302 11,226 13,113 2,278 44,288
7,761 8,147 12,460 41,267 2,199 71,834
-3,608 1,845 1,234 28,154
-32% 29% 11% 215%
-79 27,546
-3% 62%
Source: Puget Sound Regional Council
Notes: The PSRC uses Census tracts as the geographic basis of the Forecast Analysis Zones (FAZ).
The Census tracts do not generally follow political boundaries. As a result, the forecast in Table 6 may
include areas outside of Tukwila and/or may exclude areas inside the city limits. Table 6 includes the
South Tukwila and North TukwilalRiverton FAZs
MFG is manufacturing
WTCU includes wholesale trade, transportation services, communications, and utilities
FIRES includes finance and insurance, real estate, and services
Gov/ED includes govemment and education
The predicted employment shifts are already beginning to take place. According to Tukwila's
Comprehensive Plan, Boeing controls 750 acres within the ManufacturingJIndustrial Center.
With the move of their corporate headquarters out the region, Boeing is in the process of
converting its facilities into an aerospace research and development engineering campus,
including office, laboratory, and manufacturing space. According to staff with the City of
Tukwila, Boeing's current activities within the MIC are predominantly light industrial in nature,
including manufacturing airplane components from carbon fiber, assembling plane parts that
were manufactured elsewhere, and software development for research and development. Boeing
is likely to have low to moderate growth on its land within the MIC.
The PSRC employment forecasts suggest that employment in manufacturing in Tukwila will
decrease throughout the 2000-2040 planning horizon. The MIC/H zone primarily targets
manufacturing. Declining manufacturing employment strongly suggests declining demand for
land and built space. The proposed Comprehensive Plan Amendment recognizes these trends and
would provide land for the office and retail sectors where PSRC projects most of the
employment growth will occur.
Potential impacts of the Comprehensive Plan Amendment on land near the
subject property in the MIC
The subject property is located on the eastern edge of the MIC. It is bounded by East Marginal
Way S and the Duwamish River on the west, Norfolk Road and Boeing Field on the north,
Airport Way on the east, and the Boeing Access Road to the south. The property is located near
the southern edge of properties zoned MIC/H, and the freeway borders the property to the east.
The only parcel that the subject site is directly adjacent to is a credit union, to the north. Other
surrounding uses include Boeing facilities, a restaurant, and the Museum of Flight. Existing uses
near the subject property are light industrial and commercial in nature, rather than heavy
industrial.
Thus, several conditions suggest that the change in use at the subject property would not
necessarily cause other properties in the MIC area to become less desirable for the kinds of uses
allowed in the MIC:
. The subject property is at the edge of the MIC, not in the center
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 13
. The subject property is bounded mainly by roads, which reduce direct impacts on
surrounding property. Where it touches other parcels, the uses are already commercial (a
credit union, a restaurant, and the Museum of Flight), not industrial.
. Independent of the MIC/H designation, the de facto land uses in the MIC/H area would
be better characterized as Light Industrial, and would not conflict with LI uses. The
majority of the current uses on land within the MIC can be described as light industrial,
as defined in the Tukwila Comprehensive Plan. There is comparatively little heavy
industrial activity on land in the MIC in Tukwila. The closest large-scale heavy industrial
activity is Delta Marine, a ship building firm located along the west side of Duwamish
River outside of Tukwila.
. Boeing controls most of the land in the MIC/H (approximately 750 acres) and, thus,
largely has control of its own destiny. Boeing's use of its facilities within the MIC have
changed substantially over the past fifteen years. It has already shifted most of its
properties to the Light Industrial end of allowable uses in the MIC/H. It may choose to
continue that trend, but it is unlikely to be forced in that direction by a rezoning of the
subject property to LI. Its current uses are not only compatible with but may be possibly
enhanced by the type of development proposed on the subject site.
The proposed Comprehensive Plan Amendment for the subject property is a symptom of the
increasing importance of services that require office space, such as Professional and Technical
Services, in the regional and local economy. Granting the proposed Comprehensive Plan
Amendment on the subject property will not change long-term decline in the demand for heavy-
industrial uses, employment, and land. Denying the proposed Comprehensive Plan Amendment,
however, could result in the long-term underutilization or even disuse (if Associated Grocers
relocates) of the subject property.
A key concern of the City is whether this Comprehensive Plan Amendment will lead to other
proposed Comprehensive Plan Amendments in the MIC/H resulting in a "domino" effect in the
area. Our evaluation is that the Comprehensive Plan Amendment on the subject site will not
itself, result in such an effect. First, the site is relatively isolated from other sites in the area.
Second, the development concept would support many existing uses in the area. Third, while
manufacturing employment is projected to decline, there will still be a projected 7,800
manufacturing jobs in the Tukwila area in 2040.
However, if the PSRC's employment forecast for the Tukwila FAZs is correct, the trends
towards decreasing manufacturing employment may result in lower demand for industrial land
and an increase in the pressure to convert heavy industrial land to light industrial or commercial
uses. According to the PRCS's forecast Tukwila will experience changes in the composition of
its workforce, most notably a decrease in manufacturing employment. The result of this change
may be a decrease in the demand for industrial land, especially heavy industrial land.
Change of employment and land uses in the MIC
The shift from heavy industrial uses to light industrial and commercial uses in the portion of the
MIC near the subject site, including Boeing's land, has already occurred without Comprehensive
Plan Amendments. The regional employment trends discussed above and in the Johnson Gardner
study describe trends away from heavy industrial employment in the region and in Tukwila. The
types of firms that are most likely to be attracted to the region require commercial office or
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 14
campus-style development, including high-tech, scientific, research, and other "creative"
industries.
Aside from the subject property, the non-Boeing land that is most likely to be under pressure to
convert from heavy industrial to commercial uses are the parcels south of the subject site, east of
the Duwamish River between Tukwila International Boulevard, East Marginal Way South, and
Interstate 5. The existing uses on these sites are largely commercial in nature, including office
buildings and a hotel.
It may be that allowing the subject property to convert from a designation of heavy industrial to
light industrial will increase pressure on these parcels to convert to commercial uses. On the
other hand, some of the existing uses are commercial. Allowing the conversion of the subject
property may create an opportunity to develop a commercial and light industrial gateway into
Tukwila, encouraging redevelopment of existing commercial and industrial uses.
Mitigating the impacts of the Comprehensive Plan Amendment
One of the City's concerns is the conversion of industrial land to commercial uses. We have
noted that broader forces than local zoning are driving such conversions. The state projects that
future employment growth in Manufacturing--especially heavy manufacturing-will be stagnant
and that the majority of employment growth will be in Services--especially Professional and
Business Services. The PSRC's forecast of employment in Tukwila shows that these trends are
expected to impact Tukwila. Thus, two reinforcing economic factors are reinforcing changes in
local land markets:
. Manufacturing is growing slowly if at all. And the growth that is occurring is looking
more and more like the kinds of activities that would be called Light Industrial: flex-
space in business parks that mix office and manufacturing / assembly uses.
. Professional services are growing rapidly. Those uses need office space. Office space can
be stacked, so it can have more employment density. It does not conflict with surrounding
amenity (like industrial uses can): it seeks surrounding amenity (especially professional
and retail services). It can afford to pay two, three, or four times as much for land as
manufacturing and warehousing, which are land intensive.
The result is that in metropolitan areas around the country, former industrial land near
rejuvenating downtowns is converting to commercial uses. It is not that manufacturing would not
like to have that land-it would. Rather, it is that it cannot afford to pay the prices that
commercial uses can pay and still be profitable. Manufacturing moves farther out, abetted by
cheaper land that is still well served by highways.
If future Comprehensive Plan Amendments are a concern to the City, the City can slow the
conversion of land in the MIC to light industrial and commercial uses by identifying the key
industrial sites and adopting more aggressive policies to preserve these sites.
CONCLUSION: IMPACTS TO INDUSTRIAL LAND
1. Will the proposed Comprehensive Plan Amendment significantly impact future
industrial development on parcels near the subject property in the MIC? No. The
Sabey Corporation Comprehensive Plan Amendment
August9,2007
Page 15
majority of land near the subject property is already being used for commercial or light
industrial uses.
2. Will the proposed uses on the subject property be compatible with existing and
expected industrial uses in the MIC? Yes. Regional trends and local forecasts indicate
that manufacturing employment is growing slowly or decreasing. Official regional, long-
term employment forecasts suggest the majority of employment that Tukwila can expect
in the future is Professional and Business Services and other types of employment that
use office space; Boeing Field and Boeing properties separate the subject property from
the heaviest industrial uses in the MIC.
3. Is granting the Comprehensive Plan Amendment likely to increase demand for
conversion from industrial to commercial uses on areas adjacent to the subject
property? Maybe, especially south of the subject site. That land is currently being used,
however, for commercial and light industrial purposes. The pressure for conversion of
this land to commercial uses is more likely to be affected by regional land prices for
industrial and employment trends than changes to the subject property.
4. Does the proposed development negatively impact the City's policy to have adequate
land for industrial growth? Yes and no. Changing the zoning on the proposed
development clearly reduces the amount of landfor some industrial uses (the property is
roughly 4% of the industrial land in Tukwila), and allows the option to develop more of
the land for office and retail uses. But the market trends have been clear for a while: land
on and around the subject property is not being used much by heavy industry, and the
subject property is now used for light industrial and commercial purposes. There is a
reasonable, but not definitive, argument that the change in designation will have little
impact on the long-run viability of industrial uses in Tukwila given market forces and the
way the MIC/H zone is defined and implemented.
POTENTIAL IMPACTS OF THE PROPOSED COMPREHENSIVE PLAN
AMENDMENT ON USES IN TUKWILA'S URBAN CENTER
The City of Tukwila is concerned about the potential impacts of the proposed Comprehensive
Plan Amendment on existing commercial uses in the City's Urban Center. The City staff asked
ECO to address the following questions:
1. How will the uses on the subject site be similar and different from the uses in the Tukwila
Urban Center?
2. To what extent will the commercial and retail uses in the proposed development compete
with commercial and retail uses in the Tukwila Urban Center and other developments
within the City?
3. What is the market area for the proposed development compared to the Tukwila Urban
Center.
Proposed uses compared to other commercial uses in Tukwila
The Comprehensive Plan Amendment proposes a mix of uses for the subject property:
. 700,000 square feet of office development
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 16
. 550,000 square feet of retail development, plus an 80,000 square foot hotel and a 60,000
square foot theater
. 100,000 square feet of light-industrial development
These uses amount to approximately 1.49 million square feet of built space on the site. A key
question is: To what extent will the conceptual mix of uses compete with other commercial
centers in Tukwila? In other words, the City's concern is whether the proposed Comprehensive
Plan Amendment would draw demand for development in other areas of Tukwila to the subject
property. Such an outcome could be inconsistent with several of the City's ongoing planning
efforts.
Tukwila's Urban Center has more than 850 acres. Some of the development efforts going on in
Tukwila's Urban Center include:
. The Southcenter Mall, which has 1.3 million square feet of occupied retail space and is
completing a 400,000 square foot addition, which is 95% leased. In addition, the former
Mervyn's site is being redeveloped, adding 50,000 square feet to create a site with
100,000 square feet of retail space. Southcenter Mall is a regional retail center that
attracts shoppers from around the region and as far away as Alaska.
. The South Center Square, which is a new retail development south of the Southcenter
Mall with big box development and smaller stores. Its 200,000 square feet of retail space
is 90% leased. South Center Square will provide additional regional draw that
complements the existing retail development at Southcenter Mall.
. Residential development in Tukwila Urban Center, which will include high-density,
multi-family residential developments of up to five stories over ground floor retail on the
eastern edge of the Urban Center. Three-hundred condominiums are already being
developed. The residential development will change the uses in Tukwila's Urban Center
from an entirely retail and commercial area to more of a mixed-use area.
Table 7 presents an estimate of need for commercial and industrial built space based on the
PRCS's forecast for employment in the Tukwila area for 2000 to 2040.4
Table 7 shows that the Tukwila area will need the most built space (9 million square feet) for
Finance and Insurance, Real Estate, and other Services. Employment in these sectors requires
office space. Tukwila will have a need for about 2.2 million square feet of additional retail space.
As a regional center for retail, Tukwila is likely to have additional demand for retail space
because people from the Seattle region (and further) come to Tukwila to shop. Tukwila is likely
to have demand for about 1.6 million square feet of built space for the Warehousing,
Transportation, Communications, and Utilities sectors. These sectors typically require industrial
land.
Table 7 shows the demand for built space for Manufacturing decreasing by about 2.1 million
square feet and Government and Education decreasing slightly.
4 The estimate is based the employment densities presented on page 45 of the Puget Sound Regional Council's document
"Industrial Land Supply and Demand in the Central Puget Sound Region." The estimates for need for built space were developed
by multiplying the change in employment by the number of square feet needed per employee by each type of employment.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 17
Table 7. Estimated need for
commercial and industrial
built space to accommodate
new employment, Tukwila
area, 2000 to 2040
Type of
employment
FIRES
Retail
WTCU
Gov/Ed
Manufacturing
Total
Needed space
(square feet)
9,150,050
2,149,628
1,610,685
(25,675)
(2,117,896)
14,441,512
Source: PSRC Employment Forecast, 2000
to 2040; Metro "puget Sound Regional Council's
document "Industrial Land Supply and Demand
in the Central puget Sound Region"; ECONorthwest
Comparison of the market area of the proposed use and other commercial
development
A "primary market area" is generally considered the area in which most of the demand (typically
around 70%) for a product will originate. The extent of a market area for retail businesses
depends on the products or services they offer and the location of competing businesses. People
will not typically drive past one convenience store to get to a similar store in a different area, but
they will travel farther for a special service or niche product that cannot be easily obtained
elsewhere. Thus, the primary market area for a convenience store is the surrounding
neighborhood, while the primary market area for a specialty retailer can extend for miles and
could include the entire metropolitan Seattle region. In a downtown area it is common to see
retail businesses that sell a wide variety of products and services that have local or regional
market areas, depending on the type of product sold and the location and quality of competitive
businesses offering the same product.
Tukwila already understands the regional nature of its retail market area: Tukwila is a retail
destination for much of the Seattle metropolitan area, due to the concentration of retail in
Southern Tukwila, especially Westfield's Southcenter Mall, which is the hrrgest indoor mall in
Washington State and attracts over 11 million visitors each year. The market area includes not
only the residents of Tukwila, therefore, but also residents of the Seattle metropolitan area and
beyond.
The question for the City of Tukwila is how having a secondary retail location north of the
Southcenter area would compete with other developments within the City. This section addresses
that question.
In Tukwila, the subject property would compete primarily with the Southcenter Mall and South
Center Square. Regionally, the site would also compete with other commercial areas in the
Seattle area that are either in the planning stages or have already developed. Because Tukwila
has much faster north-south traffic flows than east-west traffic flows, the area of competition
extends farther to the north and south than it does to the east and west. Areas of potential
competition include:
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 18
. The Landing (2 miles from Tukwila). The Landing is a mixed-use development under
development in Renton, south of Lake Washington. When completed in 2008, The
Landing will include about 600,000 square feet of retail space and 990 residential units.
. Kent Station (6 miles from Tukwila). Kent Station, developed in 2005-2006, includes
470,000 square feet of office, retail, entertainment, and education space and a 30,000
square foot civic plaza.
. Factoria Mall (8 miles from Tukwila). Factoria Mall, approximately 510,000 square feet
of retail space, is planning the Factoria Town Square addition to add 685 housing units
and 151,000 square feet of retail space.
. Downtown Seattle (10 miles from Tukwila). The downtown has extensive office and
retail space including City Centre, Pacific Place, and Westlake Center.
. Bellevue Square (14 miles from Tukwila). The Bellevue Square Mall is upgrading to
include 2,500,000 square feet of hotel, office, and retail space; it currently is 1,300,000
square feet. The Bellevue is a 130,000 square foot high-end retail development currently
being constructed next door.
. Bellevue Place (14 miles from Tukwila). Bellevue Place has 500,000 square feet of
office, retail, restaurant, and hotel space, and is currently constructing a 351-room
addition to the hotel.
. Lincoln Square (14 miles from Tukwila). Lincoln Square is a 1.4 million square foot
office, retail (310,000 square feet), hotel, and 148-room residential tower development
currently expanding to include a 525,000 square foot office tower to house the corporate
headquarters of Eddie Bower.
. The Bravern (14 miles from Tukwila). The Bravem is a 1,600,000 square foot
development in Bellevue that will include retail, office, and condominiums, scheduled to
open in 2009.
. Bellevue Crossroads (15 miles from Tukwila). Bellevue Crossroads is a 550,000 square
foot retail development in East Bellevue.
It is likely that the subject property will attract a market primarily made up of light industrial and
office employees, rather than the larger metropolitan market captured by the Southcenter retail
cluster.
ECONorthwest's report "Tukwila Urban Center Market Analysis" (2002) forecast demand for
built space in Tukwila's Urban Center to 2020. The report focused on demand for built space in
Tukwila's Urban Center, not the entire City of Tukwila. The report forecast the following
demand for the types of space:
. Retail. The report forecast demand for between 1.5 million square feet to 3.8 million
square feet of additional retail in Tukwila by 2020. The report said that demand for retail
space in Tukwila would depend on three future conditions: (1) population in the retail
market area, (2) consumer spending trends, and (3) the degree to which the Tukwila
Urban Center maintains its market share of regional retail demand. The report said that
regional competition could result in a decrease in demand for retail space in the Tukwila
Urban Center.
Sabey Corporation Comprehensive Plan Amendment
August 9, 2007
Page 19
. Office. The report forecast demand for about 1 million square feet of office space in
Tukwila's Urban Center by 2020. At the time the report was written, the central Puget
Sound market area had suffered setbacks in demand for office space.s
. Light Industrial and Warehouse. The report forecast need for approximately 600,000
square feet of new light industrial and warehouse space in Tukwila to 2020. This estimate
is dependent on the availability of light industrial land and the extent to which higher-
value retail uses compete for available land in the Urban Center.
Since the completion of this report in 2002, Tukwila and surrounding cities have experienced
retail and commercial development, as well as substantial residential development. Tukwila's
Urban Center has continued to be a regional retail draw because (1) the economy has been
relatively good, and (2) property owners and developers, such as Westfield, have invested in new
development in the Urban Center. Tukwila's Urban Center is still among the strongest regional
retail centers but that other retail developments (Renton, Seattle, Bellevue, and elsewhere) keep
adding competing retail.
Overall, retail development on the subject property and other retail development in progress in
Tukwila will almost certainly increase retail sales in Tukwila as a whole. How that increase gets
distributed within Tukwila's subareas is complex. In theory, changes in retail activity in Tukwila
could be explained through competition and market capacity, which might show economic
activity in Tukwila's Urban Center decreasing, or through market synergies and complements,
which might show economic activity in Tukwila's Urban Center increasing. Whether retail sales
in Tukwila's Urban Center will be the same, greater, or less than they would have been in the
absence of Tukwila South or the development of the subject property is a question beyond the
scope of this analysis. Notwithstanding these caveats, the type and scope of retail development at
the subject property will certainly not be the cause of a collapse at Tukwila Urban Center, but it
will probably compete with Tukwila's Urban Center for some business.
Role of the proposed development in the community
The Associated Grocers site will playa very different role in the community than does the
Southcenterl Tukwila Urban Center area. The Southcenter area has been nationally marketed as a
retail destination; it receives over 11 million visitors every year. It is located at a highly-
trafficked interstate intersection, and is near to the Sea- Tac International Airport. Southcenter is
known for its shopping, restaurants, and is beginning to develop nearby high-density multi-
family residential development as well.
The proposed zone change would result in intensification of employment on the subject site and
creation of an employment center, and to a lesser extent, a retail center. The majority of the
Associated Grocers site is proposed office and light industrial space, and the retail and hotel
space will complement that development, but not create a new retail destination for the larger
metropolitan market that comes to Southcenter. Because of the scale of the proposed retail uses,
5 Since the completion of this report, demand for office space in the Puget Sound Region has increased. According to C.B.
Richard Ellis, the Regional office vacancy rate in second quarter 2007 was 10.5%, down from approximately 17% in second
quarter 2003. The second quarter 2007 vacancy rate in downtown Seattle was 8.6% and 5.1 % in Bellevue's central business
district.
Sabey Corporation Compre.hensive Plan Amendment
August 9, 2007
Page 20
the primary market area would be much smaller than those of Southcenter and the Tukwila
Urban Center. Given the amount of employment in the area, demand would primarily come from
workers in the district.
The Associated Grocers site is likely to form a type of transition or buffer zone between the
heavy industrial land uses in northern Tukwila and the residential and retail areas in central and
southern Tukwila. The light industrial and office uses can buffer the existing residential area
from industrial uses, and the commercial and entertainment uses can attract residents on evenings
and weekends to an area of the city that is primarily occupied during daytime hours. The
commercial and entertainment uses will act as a gateway to the residential part of Tukwila, but
the development includes no residential units.
CONCLUSION: IMPACTS TO THE URBAN CENTER
1. How will the uses on the subject site be similar and different from the uses in the
Tukwila Urban Center? The uses in the Tukwila Urban Center include a regional mall,
high-density residential development, and a large mixed-use development. The uses on
the subject site will be a smaller-scale mixture of retail, commercial, and light industrial
uses. Most of the uses will primarily serve people working on or near the site, visitors
wanting to stay near Sea-Tac International Airport, and people living relatively near the
subject site.
2. To what extent will the commercial and retail uses in the proposed development
compete with commercial and retail uses in the Tukwila Urban Center and other
developments within the City? There is no question that the proposed uses will compete
with development in other areas of Tukwila: that is the nature of all types of
development, and especially retail. The broader question is whether enough demand
exists to support all of the existing and proposed developments in Tukwila, including
development on the subject property. PSRC forecasts strong employment growth in
Tukwila for sectors that use office space. Population growth, coupled with increases in
disposable income, will create demand for additional retail space. The retail development
at the subject property is one-quarter of the size of the development proposed in Tukwila
South, which means that it will compete less both in scale, type, and proximity with the
Tukwila Urban Center.
3. What is the market area for the proposed development compared to the Tukwila
Urban Center? The development concept includes two primary uses: employment
(office and some industrial) and retail. The employment uses will draw workers from
throughout the region. The retail uses will draw from a smaller market area. Since the
mix of retailers is not yet specified, we cannot say definitively exactly what the market
area will be.
STATE OF WASHINGTON DEVELOPMENT
DEPARTMENT OF ECOLOGY
Northwest Regional Office 0 3190 160th Avenue SE 0 Bellevue, Washington 98008 -5452 e (425) 649 -7000
July 26, 2007
Rebecca Fox
City of Tukwila
6300 Southcenter Blvd.
Tukwila, WA 98188
Dear Rebecca,
As per your request, I have enclosed a copy of Ecology's Administrative Requirements
for Recipients of Grants and Loans, 2005, also known as the "Yellow Book I hope that
you are able to utilize this to answer any eligibility questions you may have as you
continue through the application process. Also, remember that I am always available to
assist you with any questions or concerns you may have while filling out your
application. You may contact me by phone at (425) 649 -7056 or by email at
chro461(a ecv.wa. aov.
Sincerel
Enclosure
Christopher M. Pierc(
Environmental Planner Grant Officer
Solid Waste and Financial Assistance Program
RECEIVED
Attachment E
Marginal Way
8.8.2007
FULLER SEARS
41(Well-4 5.4p.r
CONCEPTUAL SITE PLAN
SOUTH SEATTLE SITE
altOtitr ;;;IRL&I
"1,0Villlsyorno,
,V.P001
01j r
oI 44Eitierdr.
SECONDARY CIRCULATION
SABEY CORP.
PRIMARY CIRCULATION
PERIMETER ROADWAYS
MIXED USE SCHEME*
OFFICE 700,000 S.F.
RETAIL 550,000 S.F.
HOTEL 80,000 S.F.
THEATER 60,000 S.F.
LT. INDUSTRIAL 100,000 S.F.
THIS IS A CONCEPTUAL SITE
PLAN FOR A NON-PROJECT
ACTION. INTERNAL
CIRCULATION, BUILDING SIZE
AND LOCATIONS, AND TYPE
AND SQUARE FOOTAGE OF
PROPOSED USES MAY VARY
FROM THOSE SHOWN WITH
DEVELOPMENT AND REVIEW
OF PROJECT-LEVEL PLANS.
City of Tukwila
Steven M. Mullet, Mayor
Department of Community Development
Steve Lancaster, Director
INFORMATION MEMO
To:
From:
Date:
Subject:
Community Affairs and Parks Committee Members f
Jack Pace, Acting Director, Department of Community Developmen
August 15,2007
Renew Consultant Contract for Shoreline Master Program Update
ISSUE
Approve the continued use ofESA Adolfson consulting firm to assist the Department of
Community Development with the update of the Tukwila Shoreline Master Program
(SMP).
BACKGROUND
The City applied for and received a 2005-2007 Grant of $65,000 from the Washington
State Department of Ecology to assist in the update of the City's Shoreline Master
Program. Ofthe initial grant award, almost $48,000 was used for consultant services,
with the remainder used to support in-house staff. The City has been awarded an
additional $38,000 in grant funds for 2007-2008 to assist in the completion of the SMP,
which is now due to Ecology by June 30, 2008.
DISCUSSION
ESA Adolfson was hired in 2006 to assist DCD staff with the update of its Shoreline
Management Program (SMP). The consultants have provided a number of products, as
specified in the first contract, that are part of the SMP update - Inventory and
Characterization Report, Restoration Plan, and a Cumulative Impacts Analysis. They also
were actively involved in the preparation of a Staff Draft Shoreline Management
Program, which was submitted to the Department of Ecology on June 29, 2007, as
required by the City's contract agreement with Ecology.
The City has received additional funding of$38,000 from Ecology to complete the
update of its SMP. The majority of the additional funding, $31,000, with a contingency
of $4,000, has been allocated for consultant services. This will allow ESA Adolfson to
attend public meetings, Planning Commission and City Council meetings to provide
technical support to staff as we move into the public review phase of the project. Some
of the monies will be used for ESA Adolfson to assist staff with any needed revisions to
the Staff Draft SMP once comments are received from Ecology.
CL Page 1 of2 08!14120071:l5:00PM
q:\2005 Shoreline Grant\ Consultant Contract\2007-2008 Contract\8-28-07 CAP Memo.doc
6300 Southcenter Boulevard, Suite #100 . Tukwila, Washington 98188 · Phone: 206-431-3670 · Fax: 206-431-3665
Community Affairs and Parks Committee
Consultant for Shoreline Master Program Update
August 15,2007
RECOMMENDATION
Forward the request for consultant approval to the September 10,2007 Committee of the
Whole meeting for its review and approval for placement on the Consent Agenda for the
City Council meeting on September 17, 2007.
Attachment: 2007-2008 ESA Adolfson Contract
CL Page 2 of2
q:\2005 Shoreline Grant\Consultant Contract\2007-2008 Contract\8-28-07 CAP Memo.doc
08/14/2007 1: 15:00 PM
Contract No.
CONTRACT FOR SERVICES
This Agreement is entered into by and between the City of Tukwila, Washington, a noncharter optional
municipal code city hereinafter referred to as lithe City", and ESA Adolfson, hereinafter referred to as
"the Contractor", whose principal office is located at 5309 Shilshole Ave. N.W.. Suite 200. Seattle.
WA 98107.
WHEREAS, the City has determined the need to have certain services performed for its
citizens but does not have the personnel or expertise to perform such services; and
WHEREAS, the City desires to have the Contractor perform such services pursuant to
certain terms and conditions; now, therefore,
IN CONSIDERATION OF the mutual benefits and conditions hereinafter contained, the
parties hereto agree as follows:
1. Scope and Schedule of Services to be Performed bv Contractor. The Contractor
shall perform those services described on Exhibit A attached hereto and incorporated herein by this
reference as if fully set forth. In performing such services, the Contractor shall at all times comply
with all Federal, State, and local statutes, rules and ordinances applicable to the performance of such
services and the handling of any funds used in connection therewith. The Contractor shall request and
obtain prior written approval from the City if the scope or schedule is to be modified in any way.
2. Compensation and Method of Payment. The City shall pay the Contractor for
services rendered according to the rate and method set forth on Exhibit B attached hereto and
incorporated herein by this reference. The total amount to be paid shall not exceed $35.000.00.
3. Contractor Bude:et. The Contractor shall apply the funds received under this
Agreement within the maximum limits set forth in this Agreement. The Contractor shall request prior
approval from the City whenever the Contractor desires to amend its budget in any way.
4. Duration of Agreement. This Agreement shall be in full force and effect for a period
commencing July L 2007 .and ending June 30. 2008 unless sooner terminated under the provisions
hereinafter specified.
5. Independent Contractor. Contractor and City agree that Contractor is an
independent contractor with respect to the services provided pursuant to this Agreement. Nothing in
this Agreement shall be considered to create the relationship of employer and employee between the
parties hereto. Neither Contractor nor any employee of Contractor shall be entitled to any benefits
accorded City employees by virtue of the services provided under this Agreement. The City shall not
be responsible for withholding or otherwise deducting federal income tax or social security or
contributing to the State Industrial Insurance Program, or otherwise assuming the duties of an
employer with respect to the Contractor, or any employee of the Contractor.
6. Indemnification. The Contractor shall indemnify, defend and hold harmless the City,
its officers, agents and employees, from and against any and all claims, losses or liability, including
attomey's fees, arising from injury or death to persons or damage to property occasioned by any act,
omission or failure of the Contractor, its officers, agents and employees, in performing the work
required by this Agreement. With respect to the performance of this Agreement and as to claims
against the City, its officers, agents and employees, the Contractor expressly waives its immunity
under Title 51 of the Revised Code of Washington, the Industrial Insurance Act, for injuries to its
employees, and agrees that the obligation to indemnify, defend and hold harmless provided for in this
paragraph extends to any claim. brought by or on behalf of any employee of the Contractor. This
waiver is mutually negotiated by the parties. This paragraph shall not apply to any damage resulting
from the sole negligence of the City, its agents and employees. To the extent any of the damages
referenced by this paragraph were caused by or resulted from the concurrent negligence of the City, its
agents or employees, this obligation to indemnify, defend and hold harmless is valid and enforceable
only to the extent of the negligence of the Contractor, its officers, agents, and employees.
7. Record Keepine: and Reportine:.
A. The Contractor shall maintain accouilts and records, including personnel,
property, financial and programmatic records which sufficiently and properly reflect all direct and
indirect costs of any nature expended and services performed in the performance of this Agreement
and other such records as may be deemed necessary by the City to ensure the performance of this
Agreement.
CL Page I of2
Q;\2005-2006 Shoreline Grant\Con,ultant Contract\Adolfson-Contract2.doc
0810212007 12:51:00 PM
Contract for Services
Shoreline Master Program Update
B. These records shall be maintained for a period of seven (7) years after
termination hereof unless permission to destroy them is granted by the office of the archivist in
accordance with RCW Chapter 40.14 and by the City.
8. Audits and Inspections. The records and documents with respect to all matters
covered by this Agreement shall be subject at all times to inspection, review or audit by law during the
performance of this Agreement.
9. Termination. This Agreement may at any time be terminated by the City giving to
the Contractor thirty (30) days written notice of the City's intention to terminate the same. Failure to
provide products on schedule may result in contract termination.
10. Discrimination Prohibited. The Contractor shall not discriminate against any
employee, applicant for employment, or any person seeking the services of the Contractor to be
provided under this Agreement on the basis of race, color, religion, creed, sex, age, national origin,
marital status or presence of any sensory, mental or physical handicap.
11. AssiP11ment and Subcontract. The Contractor shall not assign or subcontract any
portion of the services contemplated by this Agreement without the \vritten consent of the City.
12. Entire A2l"eement. This Agreement contains the entire Agreement between the
parties hereto and no other Agreements, oral or othenvise, regarding the subject matter of this
Agreement, shall be deemed to exist or bind any of the parties hereto. Either party may request
changes in the agreement. Proposed changes which are mutually agreed upon shall be incorporated by
written amendments to this Agreement.
13. Notices. Notices to the City of Tukwila shall be sent to the following address:
City Clerk
City ofTukwila
6200 Southcenter Blvd.
Tukwila, Washington 98188
Notices to the Contractor shall be sent to the address provided by the Contractor upon the
signature line below.
14. Applicable Law; Venue; Attornev's Fees. This Agreement shall be governed by
and construed in accordance with the laws of the State of \Vashington. In the event any suit,
arbitration, or other proceeding is instituted to enforce any term of this Agreement, the parties
specifically understand and agree that venue shall be properly laid in King County, Washington. The
prevailing party in any such action shall be entitled to its attorney's fees and costs of suit.
DATED this
day of
,20_
CONTRACTOR: F5.J-II2JJCFS cJA:J
BY'~~~
Title: fiJ,,:-U my- &~~
Printed Name: /..'/oyd Sf:./~I1~r-'
I
CITY OF TUKWILA
Mayor, Steven M. Mullet
ATTEST/AUTHENTICATED:
Jane E. Cantu, CMC, City Clerk
ADDRESS: s.3 0 ? :;h, l sk.~ /!at IJ/U
:;~
C;;~ t/Z/4-
~08
0/ J>/d 7
APPROVED AS TO FORM:
Office of the City Attorney
BY:
CL Page 2 of2
Q;\2005-2006 Shoreline Granl\Consultanl Contract\Adolfson Contract2.doc
08/0212007 12:5 \:00 PM
EXHIBIT A - SCOPE OF WORK
ESA ADOlFSON
City of Tukwila
SHORELINE MASTER PROGRAM UPDATE
The following tasks are numbered according to the City's Scope of Work for the
Shoreline Master Program Update, as defined by the Department of Ecology Grant
Contract (SMA Grant Agreement No.G0600234). This scope of work includes all tasks
specified in the grant with anticipated consultant involvement. The total amount of the
work shall not exceed $35,000 unless the Contract and Scope of Work are amended.
Task 3:
Citizen Involvement I Public Process
At the direction of City staff, support City staff in preparation for and
presentation of materials to the public and elected officials.
Anticipated meetings include:
. Targeted Public Outreach Meetings with Citizens, Affected
Landowners: up to 3 meetings
. Planning Commission: up to 5 meetings (see Task 12 below)
. City Council Committee meetings or Council meetings: up to 5
total (see Task 13 below)
The project manager will attend all meetings (13 total). The project
principal in charge will attend up to 3 meetings total.
Assumptions
for Task 3:
Each meeting scoped at 7 hours per staff, comprised of 1.5 hr
preparation, 1.5 hr travel, 2 hrs meeting attendance/participation, 2
hr follow-up.
Due Date:
Public Meetings will begin in the Fall; Planning Commission and
City Council meetings will take place in 2008.
Task 11:
Revisions to Staff Draft of SMP
At the direction of City staff, support City staff in review, evaluation,
and preparation of revised SMP based on comment from Ecology,
the public, stakeholders, and elected officials throughout the public
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G:\ENVIR iMP ACTS\2006 Projects\26114 _ Tukwila SMP\Contractual\Contract\2007 _08_ contract\FinalfromCarolWear 3 Final Scope of
Work.doc
Exhibit A - Scope of Work
Tukwila Shoreline Master Program Update
Year 3
review/adoption process. Elements may include revision and/or
development of new policies and regulations. City staff support will
be used, in coordination with consultant staff, to develop any new
maps needed for the SMP using the City's GIS database as well as
revising maps as needed.
Assumptions
for Task 11:
City staff will direct Adolfson for support on specific elements at
their discretion, within the hours and budget specified for the task.
Due Date:
Revisions to Staff Draft are anticipated to occur in the First Quarter of Year 3
of the Grant (July 1-September 30, 2007), however the time frame depends on
when comments are received from Ecology.
Task 12:
Planning Commission Review of Staff Draft of SMP
As noted under Task 3 above, provide support to City staff in their briefing
of the Planning Commission on staff draft SMP and development
regulations, attend at least one public work shop and one public hearing
for public comment, assist staff in revising draft documents based on
Planning Commission direction. Consultant support also will be provided
by preparation of issue papers as needed during Planning Commission
review of the staff draft SMP.
Assumptions
for Task 12:
Due Date:
Attendance at up to 5 meetings is anticipated. Each meeting
scoped at 7 hours per staff, comprised of 1.5 hr preparation, 1.5 hr
travel, 2 hrs meeting attendance/participation, 2 hr follow-up.
Completion of Planning Commission review is anticipated by
March 31, 2008
Task 13:
City Council Review of Planning Commission Recommended
SMP and Adoption of final SMP and Implementing Regulations
As noted under Task 3 above, provide support to City staff in their
briefing of City Council on Planning Commission recommended
draft SMP and development regulations, attend at least one public
work shop and one public hearing for public comment, assist staff
in revising documents based on Council direction and assist staff in
preparing documents for final adoption by Council during yearly
cycle of amendments to Tukwila Comprehensive Plan. Consultant
CL Page 2 of 3 08/02120075:38:00 PM
G:\ENVIR IMP ACTS\2006 Projects\26114 _ Tukwila SMP\Contractual\Contract\2007 _08_ contractlFinalfromCarol\Y ear 3 Final Scope of
Work.doc
Exhibit A - Scope of Work
Tukwila Shoreline Master Program Update
Year 3
support also will be provided by preparation of issue papers as needed
during Council review of the Planning Commission recommended SMP.
Assumptions
for Task 13:
Attendance at up to 5 meetings is anticipated. Each meeting
scoped at 7 hours per staff, comprised of 1.5 hr preparation, 1.5 hr
travel, 2 hrs meeting attendance/participation, 2 hr follow-up.
Due Date:
June 30, 2008
Task 14:
Additional Support
This task shall operate as a contingency fund for work that exceeds
what is anticipated to be needed and is budgeted for the tasks
scoped above. Work performed under this task must be authorized
specifically by City staff.
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Work.doc
7/24/2007
EXHIBIT B: BUDGET - TUKWlLA SMP UPDATE
-- -- - - -- - - - .- .
Task.3 - Citizen.lhVolvemerWfRlIblicProcess
- - . -
T.aSK 1t-RevIsionstoStaffDraft'SMP'
Task '12~ Plannirig.ConirriiSSlonReview- ......
'Task.X.~Addition;iISuppClrt.....
T()TAl..PRO~Ee"f;._C()sr,~.;,;
..
-
Task Budget
$3,000.00
~'$18JOOO;OO
'$5,000;00
. .$5,000,00
$4,000.00
-- . -..
$'35,000:.00
City of Tukwila
Steven M. Mulle0 Mayor
Department of Community De1Ielopment
Steve LancasteT; Director
TO:
Mayor
Community Affairs and park~
Jack Pace, Acting Director \
Brandon Miles, Assistant Plann
From:
RE:
Sign Code Update
DATE:
August 20, 2007
BACKGROUND
As part of the 2007 budget the Mayor and City Council allocated $45,000 for the update
ofthe City's sign code. Planning staffhas begun the preliminary work and is ready to
proceed with the update.
The City's existing sign code was written in 1982. Throughout the years there have been
piecemeal changes to the sign code to address specific areas of interest, such as signs at
public facilities; standards for electronic and animated signs; and signage at the mall.
However, no comprehensive update has occurred. The landscape of the City has changed
significantly since 1982. The City concluded several large annexations including the
annexation of Tukwila International Blvd and the Manufacturing Industrial Center areas.
Additionally, the City is completing the Tukwila Urban Center plan which will allow a
development pattern that would have unique sign needs not easily addressed in the City's
existing Sign Code.
Additionally, the City's sign code needs to be examined to ensure compliance with the
legal limitations placed on City's ability to regulate signs.
Some specific items with the sign code that should be examined with an update:
1. Are signage needs different in the various zones of the City? For example, should
the City have different standards for signs within the TUC compared to standards
in the MIC?
2. Should comer parcels be allocated more signs than they are currently permitted?
Currently, a comer parcel is permitted to have one freestanding sign. However,
comer parcels have multiple entrances from two public streets, perhaps additional
signage is warranted.
3. Does the City want to prohibit animated and electronic signs?
Created by B. Miles
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6300 Southcenter Boulevar~ Suite #100 · Tukwila, Washington 98188 · Phone: 206-431-3670 · Fax: 206-431-3665
4. How should temporary displays and signage be regulated?
These are just few items that need to be examined with the sign code update.
DISCUSSION
Planning staff envisions a grassroots process in updating the sign code. Any update of
the sign code should involve City residents, property owners, and business owners.
Planning Staff proposed a minimum of three public workshops to address signage issues
within the City. These public workshops would be in addition to the required public
hearings before the Planning Commission and City Council.
Planning staff proposes the creation of a sign code committee to work on the specific
details of the new sign code. The sign code committee will be present at the public
workshops and will prepare a draft sign code which will be presented to the City Council
for consideration.
The make-up of the sign code committee could include the following:
· Two City Council persons
· Two Planning Commission members (selected by Mayor and Council
President)
· Two Tukwila Business/Property owners (selected by the Mayor)
· One Tukwila resident (selected by the Mayor)
All meetings ofthe sign code committee will be open to the public.
In October, Planning staff would like to conduct a workshop with the City Council and
the Planning Commission to conduct a visual use survey of some of the issues related to
signage within the community. It would be useful to see examples of signage in other
communities. The workshop will also allow planning staff and those members of the
City Council and Planning Commission that will be assigned tothe Sign Code
Committee the opportunity to gauge important issues and concerns of other Council
members and Planning Commission members related to the sign code update. The
workshop will occur on a separate night from regular City Council meetings.
Preliminary Schedule
The following is a tentative schedule of the sign code update:
September 3, 2007-BriefCity Council on the proposed update schedule and if approved,
request volunteers from City Council members to serve on the sign code committee.
September 27, 2007-BriefPlanning Commission on the proposed update and request
volunteers to serve on the sign code committee
Created by B. Miles
H:\Sign Code Update\MEMOS\CAP, 2007.08.07.doc
Page 2 of3
October 17, 2007 -Hold joint meeting of the City Council and the Planning Commission
to hold a visual use survey of signage issues (Dinner will be served).
October 24, 2007 -Hold a public open house for residents, business owners, and property
owner to solicit comments on sign issues related to the community.
November `07- February -Sign code Committee workshops and public open houses.
February `08 -Staff prepares draft Sign Code
February `08 -Draft is presented to Sign Code Committee
March `08 -CAP and COW are briefed
April `08- Planning Commission is briefed, Public Hearing held
May '08- Regular City Council meeting, public hearing, possible adoption
NEXT STEP
Staff recommends that the matter be referred to the September 3, 2007 meeting for
consideration.
Created by B. Miles
HASign Code Update \MEMOS \CAP, 2007.08.07.doe Page 3 of 3