HomeMy WebLinkAbout11-08 - Ord. Adopting Chapter XI Shelton Urban Growth Area Plan of the Mason County Comprehensive Plan0
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WH R FAS, t'�e Mason CountPanning Advisory leLd a pubi is Workshop on
August 20, 200 % and two pubic hearings on September ` 7 and October ` 5, 200/
about the proposed Sheon rban G rowth Area P3 tan (Chapter XD) of the
Comprehensive P.,an, and passed a motion to recommend approvasaid
Subarea Pan; and
WIH. EAS, baS,ed upon the Staff Report, :he proposed revisions to the Mason
County Co prohersive °an, and pubic testimony, the Mason County Board of
Commissioners has approved the finding of fact to support its decision as
AA AC HM F N7 A.
NOW HfEEREF O R F, E 1 HfRE 3 O t ABN I, d Mason County Board of
Commissioners hereby approves and A DOP ITS Chapter XD (Shelton Jrban G
Area Plan) of the Mason Courty Comprehensive Plan as described by
ATTACHMENT B.
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this 15 day o
oard of Commissione-rs
January, 2C
Mason County, Washington
AD J LSu a
Rebecca So aogers, Clerk of the Board
ting Attorney
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BOARD Cac COUNTY COMM SS ONERS
MASON _COUNTY, WiSHDNGTON
Tien Sheldon, Chair
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Under consideration in tre S'�eton urban GGrcwt'n Area (UGA) Dian is a
comprehensive ana ysis of the She 5tor UGA incuding sections on:
dercgrapiics➢ land capacity, transportation, pubic services and
annexation, future and use, and LGA goa,s and poides. The an aso
includes a LL a tore Land Use Map and a Land Capacity a la,ysis as prepared
by Jones Et StoKes, private consul to nto
2. The Shetor „GA plan and attachments were prepared by ,he City of
She :ton i n acco
rdance with a Memorandum o Unders'tanding aoopted by
the County oy Ap
it 15, 2003 wherein it was agreed the City would tame
the ,ead in preparing these documents in coordination with the CCoun-Iyo
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Based on the contributions of the City o' She :on aid Mason County
Staff, in the preparation of the Shelton Urban Growth Area Pan and
attachments, the Board of County Commissioners fins she proposed
update to the Comprehensive ? an (Chapter XD Shelton Ur an Growth
Area Pan) sham be adopted as part of the current Mason County
Comprehensive Plan
Chair, Mason Courty 3oard of
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Under corsideraborn in the She,ton bar Growth Area CUGA) °an is a
coriprehensive analysis of the Sbet to.n ,,GA i'cudirg sections on:
demographics, and capaci :y9 transportation, pubic services ano
a
iexatio , f J1urc taro] use, and UG
irc,jdes a h uture
,,se Map and a
by Jones Et Stokes, private consu,tanto
the
gcas and poicies0
he
„an ads
and Capacity ana,ysis as prepared
he She nor UGA Pyan and attachments were prepared by the CV y of
re ton in acco rdarce witr a Memorandum of Unders andirg adopted by
he C*unty o Apri, `5, 2003 wherein t was agreed the Ci,y wou,d take
ead in preparing these documents in coordinatioi wit Lhe Coun'yo
30 - he City of She
Comprehensive
ton ;adopted a She
P
:or Urban Growth Area Nan into its
an on December ° 7, 2007.
�o Baseo ohthe contributions of the City of Shelton and Mason County
Staff, it the preparation of the Shelton Urban Growth Area Plan and
attachments, the Board of County Commissioners finds the prposed
update to the Comprehensive Pan ,Chapter )(D She5ton Urban Growth
Area Nan) shall be adopted as par: of the current Mason Courty
Comprehensive Plan
r
Chair, Maso i County Board of
CCommissioners
ate: /Hs/ zoo -I
XI. Shelton Urban Growth Area Plan Mason County Comprehensive Plan
XI Shelton Urban Growth Area Plan
Introduction
The Shelton Urban Growth Area (UGA) Plan has been prepared as a subarea plan pursuant to
the Growth Management Act (GMA). The purpose of this UGA Plan is to establish guiding
goals and policies for future development within the Shelton UGA. Goals and policies contained
in this UGA Plan address land use, population growth transportation, annexation, and
interjurisdictional coordination.
The Shelton UGA is the area immediately outside of the Shelton City limits located within
u nincorporated Mason County. The City of Shelton and Mason County have been planning in
the UGA for over 10 years. Under the Washington State Growth Management Act (GMA),
counties, in consultation with cities, may designate areas abutting municipal limits,
characterized by urban growth and able to be served, as UGAs. In 1995/1996, the City of
Shelton and Mason County first established an UGA around the City in accordance with the
principles of the GMA. The boundaries of the UGA were based upon an assessment of the
anticipated population growth, existing urbanized character, natural and manmade
topographical constraints, infrastructure availability and the community s vision for growth.
Description of UGA
The Shelton UGA is a part of the larger Shelton community, but is distinct in its own right. The
Shelton UGA and the Shelton City limits share an interdependent transportation network, school
district/utility districts, and a regional economic role. However, the UGA has its own unique
characteristics. The UGA is characterized by its residential development pattern, developed at
u rban densities, but located within partially developed areas. Natural features such as the
creeks and the presence of old growth trees also help to define the character of the UGA. The
presence of essential public facilities such as Sanderson Field, other Port of Shelton properties,
and the presence of traditional forest industries such as finished forest products all contribute to
the economic base of the region.
In the past, Mason County's Comprehensive Plan designated Shelton's UGA as an "Urban
Area". Previous land use designations did not break down this Urban" designation further.
However, Mason County s Comprehensive Plan has consistently contained general goals and
policies for the Shelton UGA.
The Shelton UGA Plan now provides area -specific goals and policies, and a more detailed
Future Land Use Map identifying a variety of residential, commercial and industrial uses
reflecting current land uses and the future vision for the area. This UGA Plan is incorporated
into the Mason County Comprehensive Plan and the City of Shelton Comprehensive Plan
Relationship to Existing Comprehensive Plan
In 2003, the City commenced its Comprehensive Plan update. Associated with this planning
effort, the City and County executed a Memorandum of Understanding, which authorized the
City to take the lead in preparing a plan for the UGA, one that is compatible with the City's
u pdated Comprehensive Plan and development regulations.
ATTACHMENT B
This UGA Plan augments the other chapters of the Mason County and City of Shelton
Comprehensive Plans and addresses the Shelton UGA in greater detail. Other Comprehensive
P lan Elements provide the general goals and policies for land use, transportation economic
development etc. for the UGA. However, policies in the UGA Plan are intended to address
unique characteristics or issues relevant to the UGA.
The UGA Plan is designed to implement the 2003 Memorandum of Understanding between the
City of Shelton and Mason County to establish a joint planning process for Shelton's UGA.
S pecific benefits of this joint planning effort between the City and County include:
• To serve as an informational resource for the City and County staff, elected officials,
residents, property owners, and business owners;
• To plan for orderly growth and development;
• To facilitate the cost-effective extension of services;
• To identify UGA specific goals and policies;
• To provide greater predictability to property owners on the future use and enjoyment of their
property;
• To provide a framework to guide future annexation decisions and extension of public
services.
To implement the goals policies, and recommended actions of this plan, the City and County
have incorporated the UGA plan into their Comprehensive Plans. The County will then revise
and implement development regulations for the UGA consistent with the City of Shelton's
regulations.
UGA Population Profile
In order to plan for future population growth in the UGA, it is important to understand the current
population characteristics The UGA population in 2004 was estimated by Mason County to be
approximately 2,553 persons''2.
P opulation Characteristics
According to 2000 census data, the average age of residents in the UGA is 36 years old, with
the average male resident about one and a half years older than the average female.
Approximately 30 percent of the population in the UGA are children (under age 18).
Approximately one -eighth of the UGA population is age 65 or older.
Based on the 2000 Census data, roughly approximated to the UGA boundaries, a majority of
the population is white. A minority of the population identify with other races. Results show:
• White-88.6%
• Black or African American-0.4%
1The Mason County Comprehensive Plan 2005 edition estimated populations based on 2004 Mason County
Assessor's data for residential parcels located within the 1995 Shelton UGA boundary. Total number of residential
parcels (with an improved value of more than $20,000) was multiplied by an estimated 2.5 persons per household.
2 Based on Census 2000 data at a block level there would be about 3,118 persons. However, this is an estimate, as
census block boundaries do not match exactly with UGA boundaries.
12.17.07 2
• American Indian and Alaska Native 2.8%
® Asian-1.3%
• Native Hawaiian and Other Pacific Islander-0.4%
® Other single race-3.8%
• Two or more races 2.8%
The U.S. Census Bureau considers Hispanic or Latino origin an ethnicity, not a race and
reports statistics on these populations separately. As a result, Hispanics or Latinos may belong
to any race or combination of races. Results for the UGA show approximately 6.7 percent of the
residents to be of Hispanic or Latino origin
Housing and Household Characteristics
According to the 2000 census, the average household size in the UGA is 2.71 persons per
household, while the average family size is 2.98 persons per family. As of 2000, approximately
1,285 households reside in the UGA, of which 967 are families.
Approximately 1,388 housing units are within the UGA, of which 103 are vacant. Almost two-
thirds of the housing units are owner -occupied while the remaining third are rentals.
Population Forecast
The population projections used by Mason County are in the range of the State Office of
Financial Management projection ranges, which for the intermediate series projected growth of
21,299 persons between 2005 and 2025, and which for the high series projected growth of
36,538 persons between 2005 and 2025. Mason County's estimate of net new growth
countywide equals 31,299. Mason County has estimated that 33% of this future growth in
population will be located within the Shelton UGA, which includes land within the Shelton City
limits Therefore by 2025, 10,500 new people are expected located in the Shelton UGA.
Table XI-1 summarizes the population projections for the Comprehensive Plan through the year
2025. Shelton City limit population projections have been projected to 2025 to maintain
consistency with Mason County's Comprehensive Plan horizon year.
Table XI-1 : Summary of Population Forecast
2000
Census
2004
Estimate
2025
(Net
Projection
increase)
Current
City
Limits
8,422
8,695
Urban
Growth
Area
(UGA)
3,118*
2,553**
City
2025)
+
UGA
Growth
Target
(Net
10,500
City
+
UGA
12,055
11,248
21,748
Total
* Based on Census 2000 data at a block level there would be about 3,118 persons. However, this is an estimate, as
census block boundaries do not match exactly with UGA boundaries.
** The Mason County Comprehensive Plan 2005 edition, estimated populations based on 2004 Mason County
Assessor's data for residential parcels located within the 1995 Shelton UGA boundary. Total number of residential
parcels (with an improved value of more than $20 000) was multiplied by an estimated 2 5 persons per household.
Source Mason County Comprehensive Plan 2006; Jones & Stokes
12.17.07
3
Land Capacity Analysis
A land capacity analysis was prepared for both the City of Shelton and the Shelton UGA to
identify the amount of residential commercial and industrial land available to accommodate the
projected population growth. This exercise was conducted to determine whether the UGA is
adequately sized to accommodate population projections through 2025. The analysis looked at
the vacant and potentially redevelopable areas (land not developed to full potential) For
residential capacity, the total vacant and underdeveloped acres were discounted for critical
areas such as wetlands, streams, and steep slopes rights -of -way and public purpose lands,
and market factors (i.e. not all property owners would want to sell or develop) These acres
were then multiplied by a density factor of 4 dwelling units/acre in the unincorporated UGA and
5.4 dwelling units per acre in the City limits It should be noted that a capacity analysis may
make adjustments or discounts to the amount of available land, but does not estimate the time
or rate that growth will occur, only the capacity of the land for additional development. The
market demand for homes and potential commercial/industrial development interest will in part
determine the timing and rate of growth within the 20-year planning period for the UGA
A summary of the results of the UGA Land Capacity Analysis and policy discussion is included
below.
Residential Growth
The Shelton UGA was sized in the 1995 City of Shelton Comprehensive Plan and the 1996
Mason County Comprehensive Plan for a net increase in 6,476 persons between 1995 and
2014. In 2004 the City of Shelton adopted a Comprehensive Plan update, which estimated a
net increase in UGA population of 1,514 by 2023 based on a 2% growth rate. In 2005, Mason
County adopted new population projections and allocated 33% of future growth within the
Shelton UGA. This UGA Plan addresses projected UGA growth by 2025 and land use plans,
and includes adjustments in future land use designations and the sizing of the UGA boundary
as appropriate to meet the projected population increase of 10,500 new residents by 20253. A
land capacity analysis is included in Appendix A.
Consistent with GMA provisions regarding UGA s zing, the designated UGA is to include
densities sufficient to permit the urban growth projected to occur in the community for the 20-
year planning period. Population targets are formally designated by Mason County in
accordance with the GMA. UGAs may also include greenbelts and open space areas, including
lands useful for recreation, wildlife habitat, trails and connection of critical area habitat. Typically
this will include public properties but may include private properties that are unique, recognizing
that any such designations need to provide for reasonable use of private property.
Further, GMA describes the phasing of growth. Communities are to promote growth first in
areas already characterized by urban growth that have adequate existing public facility and
service capacities, second in areas already characterized by urban growth that will be served
adequately by a combination of both existing and future public/private facilities and services,
and third in the remaining portions of the UGAs.
Western Washington Growth Management Hearings Board (WWGMHB) cases have generally
held that UGAs should be sized to match the population allocations projected for a community.
3 A planning level capacity analysis in Appendix A shows a capacity within 1 % of the 10,500 growth target assuming
revised UGA boundaries.
12.17.07
4
The WWGMHB has acknowledged that there may be unique cases in determining UGA
boundaries
Commercial/Industrial Growth
In 2006, a Mason County Industrial Needs Analysis was prepared for the Mason County
Economic Development Council that looked at the industrial land needed to sustain economic
development in Mason County through 2025. The analysis projected a need for 1,790 gross
acres of land designated for industrial use throughout Mason County and identifies a great need
for 20 — 40 acre sized parcels —both leased and purchased. Minus already designated
industrial land as of the date of the Industrial Needs Analysis there is an unmet countywide
n eed for about 804 additional vacant industrial acres.4
The Shelton UGA Plan could help meet the unmet demand by providing 677 gross
redevelopable acres. Considering there is less desire or ability to redevelop, one could count
the net redevelopable acres as helping meet the demand. This would equal 203 acres The
City of Shelton and Mason County may consider additional areas for industrial use within the
demand analysis.
The City of .Shelton 1995-2014 Comprehensive Plan had estimated a need for 378.7 gross
acres of commercial land. A new commercial land demand analysis has not been prepared for
the 2025 horizon. The number of gross vacant commercial/mixed use acres in the City limits
and unincorporated UGA equals 233, and the number of redevelopable acres equals 172. The
n et vacant/redevelopable acres combined equals only about 157. This does not include the
"commercial/industrial" acres that were counted as "industrial" above.
The results of the employment capacity analysis are that the industrial and commercial buildable
acres could support between 3,500 and 6,400 jobs.
Shelton serves as the major community in south Mason County. The Industrial Land Needs
Analysis for Mason County identified a high retail leakage to other areas — only 54% of
residents' retail spending occurs in Mason County. By bringing in more family wage industrial
jobs, and reducing out -commuting, more retail dollars may be spent locally than spent in
Olympia or elsewhere. Please see Appendix A The City of Shelton and Mason County may
consider additional areas for commercial use to meet community needs
UGA Land Use Analysis
This UGA Plan is intended to accommodate forecasted growth as well as to meet the
community vision for the Shelton UGA. The UGA Plan recognizes the existing land use
character, demand for commercial services, the need for an employment base and locations for
public services One of the first steps in the UGA Plan preparation was to conduct a land use
analysis in the UGA. The purpose of the land use analysis was to highlight the existing land use
and regulatory framework for the Shelton UGA Utilizing Mason County Assessor s data and
GIS analysis, a series of maps were developed to understand existing conditions in the UGA.
4 The Industrial Land Needs Analysis assumed 872 acres of land 3 acres or greater were designated as Industrial in
S helton. Based on the current land capacity analysis for the December 2007 Future Land Use Map, the number of
gross vacant industrial acres equals about 848 rather than 872. That would mean that the new net land demand
n eed Countywide would be about 828 acres rather than 804.
12.17.07
5
The results of this land use analysis are described in the Shelton Urban Growth Area Subarea
Plan Preliminary Land Use Analysis (Jones & Stokes, August 2004), and summarized below.
This information was then used as the baseline conditions assessment to inform subsequent
stages of analysis such as the Land Capacity Analysis, refinements to the UGA boundaries and
land use designations and the development of land use goals and policies specific to Shelton's
U GA The land use analysis evaluated existing land use patterns, compared the land use
designations prepared for the 1995 City of Shelton Comprehensive Plan to existing land use,
reviewed and evaluated the UGA boundaries, confirmed land use designation boundaries, and
evaluated the potential for land use incompatibilities as the UGA urbanizes over time.
Existing Land Use Patterns and Distribution
The predominant character of the UGA consists of single-family residential development, and
commercial and industrial uses that are located at major intersections and along arterial
roadways and highways, interspersed with vacant/undeveloped land.
A detailed review of existing land uses and future land use and zoning was conducted to
determine if adjustments to the basic land classification system were necessary in portions of
the UGA. One of the first steps in the land use analysis was to compare the current use of land
in the UGA with the land use designations the City of Shelton applied to the UGA in 1995.
Airport/Land Use Compatibility
The Port of Shelton has completed an Airport Master Plan for Sanderson Field (TRA BV, 1997).
The Master Plan identifies on -site and off -site land use, noise, and other issues Federal
thresholds for noise are not exceeded in off -property areas. Mason County and the City of
S helton have adopted airport overlay zoning regulations addressing land uses and densities
n ear the airport. The UGA Plan also classifies that land east of the Airport to Shelton Springs
Road as Industrial, Mixed Use, and Public/Open Space to improve airport/land use
compatibility. UGA policies (UGA2b) below also address compatibility.
N onconforming Uses
Cottage Industries (Home Occupations)
Mason County allows for more intense home occupations by special use permit (e.g. home
occupations requiring parking — called cottage industries), whereas this process is not available
in the City of Shelton Although residential properties with a cottage industry/special use permit
would be allowed as a pre-existing non -conforming use if annexed to the City, there could be
potential future land use conflicts associated with incompatible land uses over time as infill and
increased urban densities occur within residential areas UGA policies (UGA2c & 2d) address
County/City procedures, grandfathering (i.e allowance of legal nonconforming uses), and
buffering next to Tess intense uses.
P re-existing, Non -conforming Uses
A comparison of existing land uses (current use) to future land use designations identified in the
City of Shelton's 1995 plan indicate that there would be a limited number of non -conforming
u ses once under the City's jurisdiction (Jones & Stokes, August 2004). Based on the 1995 land
u se plan, there would be limited cases of residential uses in industrially designated areas and
commercial/industrial uses in residentially designated areas. For the most part the future land
12.17.07
6
u se designations for the UGA resolves the nonconformities applying land classes that match
groupings of nonconforming uses. In some cases there are isolated residential or commercial
u ses in land use classes that promote the opposite uses. UGA policies (UGA2c & 2d) address
grandfathenng (i.e. allowance of legal nonconforming uses) of these uses.
Gateways
The Future Land Use Map (Figure XI-1) identifies three gateway locations that provide an
important first impression for visitors to the community. The gateway corridors are located
along Highway 101 and on SR-3 at the north and south entrances to City limits. These three
gateway locations either extend into the UGA or represent the approach into the City limits and
provide the opportunity to create the feeling of entering a distinct, unique place. UGA policy
(UGA 2a) addresses the landscaping and buffers associated with these gateway locations in the
U GA.
Critical Areas
Environmentally sensitive areas in the UGA include wetlands, streams and lakes, fish and
wildlife habitat conservation areas, aquifer recharge areas, frequently flooded areas, and
geologic hazard areas. These areas are shown on Shelton Comprehensive Plan maps, and.
more currently in "Shelton Critical Areas Ordinance Best Available Science Review and
Recommendations for Code Update" prepared in 2006. Generalized countywide critical area
inventories are included in Mason County Comprehensive Plan Chapter IV, Land Use. Most of
the critical areas within the UGA tend to be located along the major creeks and water bodies in
the UGA such as John's Creek, Mill Creek, Goldsborough Creek, and Oakland Bay.
S horelines of the State
S horelines of the State are defined as streams with flows great than 20 cubic feet per second
(cfs) and lakes greater than 20 acres in size. Shorelines of the State within the UGA include:
• Mill Creek;
• John's Creek;
• Goldsborough Creek;
• Oakland Bay*
• Island Lake.
Frequently Flooded Areas
Frequently flooded areas (100-year floodplain) are primarily associated with Shorelines of the
State such as John's Creek, Mill Creek, Goldsborough Creek, and Oakland Bay. Properties
adjacent to Coffee Creek are also located within the 100-year floodplain.
Wetlands
Known wetlands are located throughout the UGA and tend to be associated with creeks,
springs, and lakes.
Geologically Hazardous Areas
Geologically Hazardous Areas/Seismic Hazard Areas, areas with the highest susceptibility to
soil liquefaction are located in northwest portions of the UGA-in the vicinity of John's Creek in
12.17.07
7
the southwest portions of the UGA near Coffee Creek, and in an area which trends. SW to NE
between Island Lake and Goose Lake. Steep slopes (greater than 15%) are predominantly
located in the vicinity of creek channels -such as Goldsborough Creek.
Aquifer Recharge Areas
Aquifer Recharge Areas are areas that have a critical recharging effect on aquifers
(groundwater) used for potable or drinking water. These areas are vulnerable to contamination
that would affect the potability of the water. A Class I Extremely Critical Aquifer Recharge Area
is located in the northern half of Shelton and the Shelton UGA.
Critical Area Regulations
There are similarities between the City and County's critical areas regulations; however there
are some differences in how the City regulations are more specific to particular locations e.g.
stream reaches. Interjurisdictional policies (UGA6a & UGA6b) would guide the application of
regulations, future permitting activities, and potential future regulation amendments.
UGA Critical Areas Policies
The critical areas goals and policies in the Shelton Comprehensive Plan (Chapter II -Land Use)
and Mason County Comprehensive Plan (Chapters III-5 and IV-4) address critical areas in the
UGA. No additional policy language regarding the protection of critical areas in the UGA are
included in this UGA Plan. Coordination of critical areas regulations and development review
would support Interjurisdictional Coordination policies UGA6a & UGA6b.
Transportation Facilities
Functional Classification
Roadways located within the UGA have been identified in the City's and County's functional
classification systems and are summarized in Table XI-2:
12.17.07 8
Table XI-2: Summary of Roadway Functional Classifications in the Shelton UGA
City
Classifications
Comprehensive
Plan
Functional
Mason
Functional
County
Classifications
Comprehensive
Plan
Freeways
State
Route
U.S.
101
U.S.
State
101
3
Highway
Highway
Route
Principal
Arterial.
State
Railroad
Avenue
3
(Olympic
South)
Route
Highway
Minor
Arterials
John's
Brockdale
Prairie
Road
Road
Major
Collector
Major
Collector
Shelton
Lake
Norcliff
Boulevard
Springs
Johns
Brockdale
Shelton
Prairie
Matlock
Avenue
Road
Road
Road
Road
Road
Railroad
Cloquallum
Arcadia
Road
Road
Minor
Collector
Minor
Collector
State
102
State
Shelton
Shelton
Valley
Springs
102
Road
Road
Route
Route
Future roadways are shown on Shelton Comprehensive Plan Figures 18 and 19, indicating
areas where new functionally classified roadways are recommended under projected future
conditions. Future roadways are recommended in the UGA where development of sizeable
undeveloped properties are located. Mason County's Comprehensive Plan Figures VIII-5-2
identifies potential new roadways.
Traffic Volumes
Mason County conducted a transportation analysis for its 2005 Comprehensive Plan Update.
For the transportation analysis zones encompassing the City of Shelton and the Shelton UGA,
the County reviewed a low growth and a high growth scenario, assuming 5,187 new persons by
2025 on the low end and 12 814 new persons by 2025 on the high end. Shelton's population
target is 10,500 within the range.
The City of Shelton conducted additional transportation analysis for the UGA Plan similar to the
methods used for the City limits. Volumes are expected to increase between 3 and 4 percent
annually dependent on the roadway and the potential future land use (see City of Shelton's
Comprehensive Plan, Transportation Element).
Last, the City is preparing a model to help refine traffic projections for the City limits and Shelton
UGA and to determine impact fees. In the future the City and County may conduct additional
modeling. Once that information is available it can be incorporated into the City and County
Comprehensive Plans as needed.
12.17.07 9
Level of Service Policy Analysis
The City's level of service standard (LOS) is LOS D. For purposes of the UGA Plan, eleven
intersections were studied in the UGA including:
• E Wallace Kneeland Boulevard and Olympic Highway N
• E Wallace Kneeland Boulevard and N Shelton Spring Road
• N Shelton Spring Road /W Alpine Way and N 13th Street
• E Wallace Kneeland Boulevard and N 13th Street
• E Batstone Cutoff Road and E Brockdale Road
• E Shelton Spring Road and E Island Lake Drive
• E Shelton Spring Road and US 101
• W Sanderson Way and US 101
• W Dayton Airport Road/SR 102 and US 101
• Shelton -Matlock Road and US 101 Northbound Ramps
• Shelton -Matlock Road and US 101 Southbound Ramps
Results of the LOS analysis for intersections in the UGA include:
• Existing LOS 2007: Under existing conditions, all studied intersections operate at LOS D or
better, with the exception of the stop controlled intersection at N Shelton Spring Road/W
Alpine Way and N 13th Street. The westbound approach on W Alpine Way is operating at
LOS F during the PM peak hour.
• Future LOS 2013: LOS at the intersection of N Shelton Spring Road/W Alpine Way and N
13th Street, which was identified as an existing deficiency, would degrade to poorer
conditions with increased future volumes.
• Future LOS 2025: The projected increases in traffic volumes would result in five additional
intersections exceeding the LOS standard: E Wallace Kneeland Boulevard and Olympic
Highway N; E Wallace Kneeland Boulevard and N 13th Street; E Batstone Cutoff Road and
E Brockdale Road* and Shelton -Matlock Road and US 101 Southbound and Northbound
Ramps. However, US 101 is a Highway of Statewide Significance (HSS) within the City and
thus is exempt from the City LOS standards.
The City of Shelton Transportation Element identifies improvements to deficient intersections to
allow the adopted LOS standard to be met. These improvements include added turn lanes or
signals depending on the locations.
LOS analyses were also performed on all Mason County Major and Minor Collectors in the 2005
Mason County Comprehensive Plan Update. Collectors were projected to operate at LOS B or
LOS C or better.
The City and County will consider an appropriate LOS standard for the UGA. The mechanism
for implementing this level of service standard is through a joint agreement between the City
and County, whereby the City and County would agree to apply the same level of service
standards for the UGA (See policies UGA3b and policies UGA6a and 6b.) The LOS standards
could be revisited when additional transportation modeling is complete.
12.17.07 10
UGA Public Services and Annexation
S ervice Providers in UGA
Water
The City of Shelton owns and operates a water system serving the customers within the existing
City boundary, and within a limited portion of the UGA on an emergency basis. Other water
systems serving the UGA include:
•
•
P ort of Shelton, Sanderson Field
P ort of Shelton, Johns Prairie
Other Class A Water Systems:
* Cherry Park
* Island Lake Manor
* Parkwood
* Rae Lake
* Springwood
Four Smaller Water Systems.
* Airport Grocery
* Hidden Haven Mobile Home Park
* PJ's Store
* Evergreen Mobile Estates
Beyond the UGA but related to essential public facilities, the Washington State Patrol and the
Washington Corrections Center have additional water rights/systems.
Currently, most water is generally provided by private wells within the UGA. However, the
Regional Water and Sewer Plan as most recently amended in 2005 and 2006 is a plan
designed to implement a regional system for potable water in the UGA. The regional water
service area includes the Shelton City limits and the Shelton UGA, the Washington State Patrol
Academy, and the Department of Correction's Washington Correction Center facility to the west.
Class A water systems are not included in the regional water plans, but the four smaller water
systems noted above are anticipated to be connected to the City water system some day. The
City of Shelton will act as the regional purveyor of water to the other regional partners, who will
be wholesale customers. The Port of Shelton is no longer involved as a regional partner, but will
someday become a retail customer, and its future needs have been anticipated in the regional
water plans.
In combination with the population forecasts, estimates of water production needs were used to
project the future source requirements for the City of Shelton and for the Regional Water
System partners, including residential and non-residential demand. In addition growth was
estimated for the Port of Shelton Sanderson Field and Johns Prairie sites, as well for the UGA
generally The water system plan projections assume that the average day demand will
increase by 2% per year through the year 2023. Based on these assumptions, the projected
water supply needs for all Regional Water System partners for maximum year peak day
demand, will be 6.4 million gpd (7.37 gpm peak hour demand) by 2023. Based on the new
population projections assigned to the City of Shelton by Mason County, the combined City and
U GA population is expected to increase at a 3% growth rate by the year 2025. At the year
2023, based on a 2% growth rate, the City and UGA population would equal approximately
17,913 persons. At a 3% growth rate, the population level assumed to be reached by the year
12.17.07
11
2023 (17,913) would instead be reached in 2018. The 2025 population for the City and UGA is
anticipated to equal 21,748.
To avoid a supply shortage in the future the City of Shelton will either need to increase source
capacity or decrease system demands. Additionally, the water projections identified above do
not account for savings due to water reuse It was noted in the 2005 Water Comprehensive
Plan Amendment that utilization of reclaimed water and water conservation will allow Regional
Water System partners to serve additional demand beyond the projections reported above,
while not exceeding water use projections. Water reuse is planned in Shelton sewer plans (see
below). Monitoring of actual usage, Water Plan updates to new horizon years and population
projections (for example, establishing a new 6-year and 20-year horizon) together with
conservation and water reuse are anticipated to assist in meeting revised growth levels for the
City of Shelton and the Shelton UGA
At this time, the water system planning efforts effectively result in three tiers of water system
improvement or expansion:
• Tier 1: City Limits
• Tier 2: System Extension to Regional Partners (State essential public facilities)
• Tier 3: UGA land not otherwise served by Class A systems
The extension to Regional Partners beyond the UGA can help facilitate future system expansion
to other UGA locations. Further, with the utility plans in place accommodating growth projected
to 2018 (at an annual rate of 3%) there is opportunity to prepare more specific utility plans to
serve other locations in the UGA prior to additional demand occurring. Last, as mentioned
above, water conservation and water re -use can help meet revised growth levels.
The Shelton Water Comprehensive Plan (2002) and the Water Comprehensive Plan
Amendment and Project Report for the Shelton Area Regional Water System (2005) and their
subsequent updates, are incorporated by reference into the City of Shelton Comprehensive
P lan.
S ewer
The City of Shelton provides wastewater collection and treatment services for the residents,
commercial establishments, and industries in its current service area. The service area is
currently set at the City limits; however, future service areas have been formally acknowledged
in sewer plans from 1994 forward, including the November 2001 Shelton Area Water and Sewer
Regional Plan as supplemented by the December 2005/April 2006 Shelton Regional Sewer
P lan Wastewater Facility Plan, which together serve as the current plan and which are
incorporated by reference. No known sewer districts lie within the boundaries of the Shelton
U GA Wastewater in the Shelton UGA is generally treated by private septic systems. Other
wastewater treatment facilities in the Shelton vicinity are beyond the UGA but serve an essential
public facility: Washington Corrections Center. Sewer system plans anticipate that the regional
sewer system will include the City of Shelton, Washington State Patrol, and Washington
Corrections Center. The Port is no longer involved as a regional partner but will someday
become a retail customer and its future needs have been anticipated in the plan.
In order to mitigate the existing problems and meet the 20-year demand, the City of Shelton
Comprehensive Sewer Plan and amendments contain recommended projects and funding plans
to be implemented within the City's Capital Facilities Plan. Projects that eliminate existing
12.17.07
12
deficiencies will be weighted higher on the inventory lists. Twenty-year population projections
are similar to those identified for water system plans. Therefore, infiltration/inflow (1/1)
improvements monitoring of actual flows, sewer plan updates to new horizon years and
population projections, together with conservation and water reuse are anticipated to assist in
meeting revised growth levels for the City and the Shelton UGA. When the City's treatment
plant was constructed the engineers designed the plant to be easily expanded to meet future
treatment needs of Shelton. In addition, the City of Shelton is planning a satellite wastewater
reclamation plant in the vicinity of the Washington Corrections Center, Washington State Patrol,
and Port of Shelton. Design criteria for the satellite facility include that it must be expandable in
modules.
The tiering discussion under "Water" above applies as well to the issue of "Sewer" service.
S olid Waste
The Mason County Solid Waste Management Plan was adopted by the County Commissioners
in 1992 and provides the guidance for solid waste County Solid Waste Facility northwest of
S helton. The refuse is then exported to the regional landfill located in Klickitat County. Mason
County Garbage is responsible for the collection of recyclable materials. Recyclable materials
include newspaper, magazines, mixed paper, cardboard, tin cans aluminum cans and glass.
Mason County Garbage delivers the recyclables to All Star Recycling, located in Olympia, for
processing and marketing.
Fire Protection Services
Two fire districts provide the majority of the fire protection services for the UGA: Fire District #11
and Fire District #5. Fire District #11 provides fire protection services to the northern portion of
the Shelton UGA. This relatively small fire district (9 square miles) focuses its services on the
area immediately around the City of Shelton. Fire District #5 provides fire protection services to
the northeastern portion of the UGA, serviced by Station 510 (John's Prairie). The small areas
of unincorporated UGA to the south and southwest of the City are covered by Fire District #16
(southwest of the city), Fire District #13 (north of the junction of Highway 3 and Highway 101),
and Fire District #4 (east of Highway 3).
P olice Services
P olice services within the Shelton UGA are provided by the Mason County Sheriff's Office. The
Mason County Sheriffs Office is a full service Sheriff's Department with 41 Commissioned
Officers, 22 Corrections Officers and 11 civilian personnel. These officers respond to law
enforcement needs throughout the UGA.
Emergency Medical Services (EMS)
Fire districts/departments are generally the "first responders" to an EMS call. Within the Shelton
U GA, the fire districts that serve the UGA provide emergency medical services Mason County
Medic One also responds to calls within the Shelton UGA. These Mason County EMS agencies
provide Advanced Life Support (ALS) and Basic Life Support (BLS) level care as well as
transport to a Level 4 Trauma Center at Mason General Hospital.
12.17.07
13
Electrical, Telecommunication, and Natural Gas Services
S ublic Utility District (PUD) #3 provides electrical and telecommunication services within
S helton s UGA. The PUD is currently building a fiber optic backbone. Services that are provided
on the PUD 3 backbone include high-speed Internet service, networking and data services for
business, security monitoring, and telephone service. Future services may include cable and
high definition television programming, and video conferencing. Other communication service
providers include Qwest, Hood Canal Communications, and ComCast. Qwest offers wholesale
and retail broadband DSL services in the Shelton area, as well as a full -range of telephone and
cellular services throughout the County Hood Canal Communications and ComCast provide
telecommunication services and fiber optics.
Cascade Natural Gas provides natural gas to the Shelton area. The customer service center in
Aberdeen serves Shelton area customers.
Essential Public Facilities
RCW 36.70A.200 states that essential public facilities are "those facilities that are typically
difficult to site, such as:
• Airports,
• State education facilities
• State or regional transportation facilities as defined in RCW 47.06.140,
• State and local correctional facilities,
• Solid waste handling facilities,
• In -patient facilities including substance facilities, mental health facilities, group homes, and
• Secure community transition facilities as defined in RCW 71.09.020."
Essential public facilities can be government owned and operated facilities, or privately owned
facilities that are regulated by public entities This definition is not considered to be all-inclusive,
but provides examples of facilities that are difficult to site. No local comprehensive plan or
development regulation may preclude the siting of essential public facilities
S helton's UGA and land west of the UGA contain several essential public facilities including
highways of statewide significance such as Highway 101 and SR-3, and the Port of Shelton
Sanderson Field. The Department of Corrections Washington Corrections Center and the
Washington State Patrol Academy are essential public facilities located just outside of the UGA,
but within the City's Regional Water and Sewer Plan service boundaries. The City of Shelton's
Comprehensive Plan (Chapter II -Land Use Element) and Mason County's Comprehensive Plan
(Chapter VI, Capital Facilities Element) address essential public facilities.
Annexation
For purposes of efficient services, coordinated land planning and development, and unity
between economically and socially related areas citizens, property owners, and the City of
S helton may desire annexation. As noted above the GMA provides for coordinated UGA
planning between counties and cities with the intent that urban and urbanizing areas ultimately
be served by municipalities. In the GMA framework, annexations may occur only within a
jurisdiction s designated UGA. By addressing the Shelton City limits and the Shelton UGA in the
S helton Comprehensive Plan, and by addressing the Shelton UGA in the Mason County
Comprehensive Plan, the City and the County are responding to the GMA framework to manage
12.17.07
14
growth, provide efficient services, and plan for the community needs of the broader Shelton
community.
The methods of annexation applicable to the Shelton UGA include:
•
The Election Method, Initiated by Ten Percent Petition, is initiated by the collection of
signatures from qualified electors in the area proposed for annexation equal to ten percent
of the number of voters in the last general election in that area. This method would require
an election by the residents of the area being considered for annexation. This method could
be used to annex portions of or all of the UGA at a time.
The Election Method, Initiated by Resolution, may be initiated by city commission
resolution. This method would require an election by the residents of the area being
considered for annexation. This method could be used to annex portions of or all of the UGA
at a time
In May 2003, legislation became effective which adopted a new "Petition Method of
Annexation." Under the law, the annexation petition must be signed by property owners
(owning a majority of the area) and by registered voters (a majority in the area). If there are
no registered voters (vacant, commercial, or industrial property, or property that has
residents but no registered voters), then only owners of a majority of the area need sign.
This method could be used to annex portions of or all of the UGA at a time.
The Sixty Percent Petition Annexation Method is initiated by the collection of signatures from
the owners of property representing not less than ten percent of the assessed value of the
property for which annexation is sought. If the legislative body of the city accepts the 10
percent petition, then petitioners must collect petition of the owners of at least 60 percent of
the property value in the area, computed according to the assessed valuation of the property
for general taxation purposes. A public hearing is held before a decision is made by the city
legislative body. This is the most frequently used method of annexing unincorporated
territory for code cities.
Unincorporated Island Annexation. Annexation statutes provide for an abbreviated
procedure to annex unincorporated islands or pockets of property within a city. When there
is an unincorporated area (1) containing less than 100 acres of which at least 80 percent of
the boundaries are contiguous to a city or (2) of any size and having at least 80 percent of
the boundaries contiguous to a city if the area existed before June 30, 1994 and the city was
planning under the Growth Management Act as of that date, the city commission may initiate
annexation proceedings by resolution. However, annexation by this method is potentially
subject to a referendum election within the unincorporated territory.
Annexation for municipal purpose where a code city may by majority vote of the city
commission, annex territory outside its limits for any municipal purpose, if the territory is
owned by the city. This may be done regardless of whether the territory is contiguous or
noncontiguous.
As indicated in the methods above, annexation is largely a citizen/property owner driven
process. The City of Shelton intends to promote a smooth transition from Mason County to City
of Shelton administration, upon approval of annexation petitions.
Key issues for the City of Shelton will be the feasibility of providing services to areas that
request annexation and the coordination with the County as areas transition to the City. UGA
policies (UGA5a-5f) address annexation and coordination between the City of Shelton and
Mason County.
12.17.07 15
Coordinated Development Review
One of the key implementation goals for the UGA Plan is to develop a coordinated development
review process between the City and County for the UGA. The 2003 Memorandum of
U nderstanding that County staff, upon adoption of the UGA Plan, will apply the City's land use
designations when reviewing land use and development proposals in the UGA. This approach
will help to minimize future land use conflicts for permitted projects in the UGA. Goals and
policies provide direction on this coordinated development review process with the ultimate
objectives being:
Provide a predictability and timeliness and use process for property owners
Facilitate land use compatibility
Implement the Memorandum of Understanding between the City and County
UGA Boundaries and Land Use Designation
S plit Parcels
In general, the Shelton UGA boundary tends to follow property lines, streams, and major rights -
of -way. As adopted in 1995 there were approximately 50 parcels split by Shelton's UGA
boundary. Split parcels are typically found in instances where a parcel has a creek running
through the property, such as John's Creek along the northern UGA boundary and Mill Creek to
the south, where the creek is used to delineate the UGA boundary. This UGA plan adjusts the
U GA boundary and removes split parcels from within the eastern, southern, western and
northwestern UGA boundaries and includes several split parcels within the UGA boundaries.
Remaining split parcels tend to be associated with the John's Creek centerline to the north
based on property owner interest and the existing development pattern as well as along the rail
lines and Oakland Bay. Removing split parcels together with other UGA boundary adjustments
reflecting UGA population sizing and public input resulted in a net decrease of 108 acres within
the UGA.5
Although most of the 1995 Plan land use designations followed property lines and major rights
of way, there are instances where the prior plan did not such as along John's Prairie Road and
the Matlock Interchange vicinity The 2007 UGA Plan generally adjusted future land use
designations to be consistent with property lines. In a few instances on large parcels there may
be more than one land use designation that follow straight lines that are easily identified and
scaled.
Future Land Use Designations for the UGA
Future Land Use designations in the UGA are based on the results of the land capacity
analysis, the findings from the Shelton Urban Growth Area Subarea Plan Preliminary Land Use
Analysis (Jones & Stokes August 2004), and public input during the preparation of the UGA
P lan. The UGA Plan incorporates revisions to the City of Shelton's original 1995 land use
designations, and the revised Plan is intended to meet the following objectives:
• Tie land use designations to parcel boundaries.
• Find the best match between how property owners and their neighbors use land and future
land use plans.
5 Acres are based on the December 2007 future land use map.
12.17.07
16
• Avoid small pockets of isolated land uses as a result of the revisions.
Compared to the 1995/96 UGA boundary originally approved by Mason County, this UGA Plan
includes adjustments to the UGA boundary from the, by removing several split parcels by either
locating them completely inside or outside the UGA. This was done after considering the
following issues:
•
•
•
•
Presence of critical areas -exclude areas where critical areas may prevent urban levels of
development;
Resource Lands -avoid including County designated resource lands, e.g. agriculture;
Results of the land capacity analysis in order to appropriately size the UGA.
Existing commercial/industrial uses -include commercially/industnally developed land similar
in nature to portion of the same property inside the UGA;
An evaluation of land uses in the vicinity of Sanderson Field;
The ability to extend services to the area within the 20-year planning horizon.
The Future Land Use Map (Figure XI-1) incorporates the updated UGA Boundary and Land Use
designations. These 2007 revisions to the Future Land Use Map aim to provide for future
growth while maintaining and enhancing the character and quality of existing residences,
industries, and natural areas that define the UGA.
Urban Growth Area Goals & Policies
The following UGA goals and policies are in addition to the goals and policies contained in other
chapters of the Comprehensive Plan, and are specific to the unique circumstances of the UGA.
As appropriate, the UGA Plan goals and policies shall be applied together with other
Comprehensive Plan goals and policies.
U rban Growth Area Land Use
U GA Goal 1: Provide for orderly growth in Shelton's UGA.
P olicy UGA1a. Land use policies and regulations shall accommodate a residential growth
target of approximately 10,500 additional persons within the City and UGA boundary by 2025,
as established in the Countywide Planning Policies.
P olicy UGA1 b. The UGA shall include land sufficient to accommodate commercial uses
serving local and regional populations, including retail, service, financial, and institutional uses
of small medium, and large sizes.
P olicy UGA1c. The UGA shall designate land suitable for industrial purposes, sufficient in acres
and parcel sizes to accommodate small to large industrial uses. Such uses shall be sited and
designed to be compatible with adjacent non -industrial uses while meeting employer needs.
P olicy UGA1d. The UGA designations shown on the official Land Use Map (Figure XI-1)
includes enough land to provide the capacity to accommodate growth expected over the 20-
year planning period. These lands should include only those lands that meet the following
criteria.
a. Are characterized by urban development, which can be efficiently and cost effectively
served by urban governmental services within the next 20 years;
12.17.07
17
c i t 1 ` 1 - c v a t 1
•
•
•
R R N II id 41
!refVas ::▪ :
..:.....:▪ .
Future Land Use
ommerci*l
oornmercisl - Targeted for
Potential Residential Rezone
Goer nercial/Residential Valley
Commercial/Residential - Goose Lake
L�oW (Intensity Commercial
Professional Office/Residential
Mixed Usage
Downtown
111111 Medical / Educational
Low Intensity Mixed Use
Neighborhood Residential
oornnneroial/Industrial
Industrial
Piblip I ands/Open Space
Qateway Qorridor Overlay
• / RQads
—46.,ir Railroads
ea
RarQSs
0 city of Shelton Limits
?OW VQA1
IIJGA effective upon Mason County Approval
$ourto: City of Shelton Planning Department (2002).
City of Shelton 1995 Comprehensive Plan,,
Mason County 61$ 12006).
Projection: Washington State Plane
Zonje; South Zone
Oatutp: NADB$
lgnjts , Peet VS
N
A
2,000 p 2,000 4,0
"WWII! Sorter (.x mugy
jj i1.7ifh'!l"
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10
5 Jones & Stokes
., (mow.-,4 .,.{�j^� I.
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ail yip. Psi! •, • ,
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b. Greenbelts and open space in the UGA including lands useful for recreation, wildlife
habitat, trails, and connection of critical areas consistent with GMA requirements
and in a manner recognizing reasonable use of private property;
c. Are not unincorporated agricultural or forestry lands of long term commercial
significance designated through Mason County Comprehensive Plan or the
Countywide Planning Policies process.
P olicy UGA1 e. Areas with significant environmental hazards, unique or fragile ecosystems of
high rank, order, and function, or long-term infrastructure limitations, may be further protected
beyond the application of development regulations through low -density zoning
P olicy UGA1f. Parcels which are split by the UGA boundary line should be redesignated to
either all urban or all rural unless the parcel is split to recognize unique physical and
environmental features, or the requirements of interlocal agreements, or other County or City
plans.
Land Use Compatibility
U GA Goal 2: Protect and enhance the character, quality and function of development in
the UGA while accommodating future growth
P olicy UGA2a. The City, in consultation with Mason County, the Port and WSDOT, shall
establish landscape standards and buffers for designated Gateway areas that emphasize the
importance of retaining existing trees as key elements of Shelton's character.
P olicy UGA2b. The City and County should ensure plans and regulations address, where
appropriate, compatibility issues including height hazards, safety and noise that can affect the
long-term viability of Sanderson Field. Through the airport overlay zone adopted by the City
and the County, allow compatible uses, buildings, or activities in the vicinity that do not present
safety problems to normal airport operations or that would not be sensitive to noise from the
Airport operations.
P olicy UGA2c. The City should work with the County to develop standards for unincorporated
land within the UGA that will require buffering of cottage uses next to less intense properties,
such as landscaping fencing, setbacks or a combination of approaches. The City should
recognize cottage industries permitted in the UGA as grandfathered uses when annexed. The
County should consider applying the City's home occupation standards to land within the
S helton UGA.
P olicy UGA2d. The City shall recognize legally established residences in commercial/industrial
zones, and legally established commercial/industrial uses in residential zones as grandfathered
(nonconforming) uses when annexed.
U rban Growth Area Transportation
U GA Goal 3: Establish• a safe, coordinated, and linked multimodal transportation system
to service local and area -wide travel needs.
P olicy UGA3a. As appropriate, subsequent transportation modeling should jointly be conducted
by the County and the City, to identify current traffic levels, identify recommended
improvements, and address future levels of service.
12.17.07
18
P olicy UGA3b. To address traffic concerns and mitigation, the City and County should jointly
determine an appropriate LOS standard as part of an interlocal agreement. The City and County
may revisit standards upon the completion of additional traffic analyses.
P olicy UGA3c. To the greatest extent possible, given topographic and environmental
constraints, future functionally classified roadways should attempt to provide a grid system to
facilitate an interconnected system of streets in the UGA.
U rban Growth Area Services Provision
The following goals and policies for future annexations and the provision of services in the UGA
provide direction regarding utility extension and the circumstances in which it will occur. This will
help to facilitate a seamless transition of services in the UGA if and when properties become
annexed to the City.
U GA Goal 4: Provide effective, efficient, and quality capital facilities and public services
at the level necessary to meet community needs and support allowed growth.
P olicy UGA4a. The County and City should coordinate with service and utility providers to
ensure UGA services support planned growth, meet desired customer service needs, and result
in a comparable community system in the greater Shelton area.
P olicy UGA4b. The City and County should coordinate with local Fire Districts, to ensure
adequate fire and emergency response in the UGA.
P olicy UGA4c. The City's level of service standards for sewer and water service should be
applied to the UGA once services are extended into the UGA. Sewer and water improvements
and services should be consistent with the Regional Water and Sewer Plans identified in the
City of Shelton Comprehensive Plan Utilities Element as amended over time.
P olicy UGA4d. In consultation with the Mason County Sheriff's Department, the City should
ensure adequate police services are provided within the UGA.
P olicy UGA4e. To avoid City assumption of nonconforming infrastructure, a coordinated Capital
Improvement Program and maintenance plan should be prepared between the City and County.
S uch a program should be developed prior to annexation required to meet levels of service are
implemented concurrent with new development. When considering annexation proposals that
have significant existing nonconforming infrastructure, the City should consider service delivery
and revenue enhancement options.
P olicy UGA4f. The City will consider extension of water and sewer services outside City limits
based on criteria including, but not limited to the following:
• The lands to be served must be, either:
• Inside the City s UGA, or
• Intended to service essential public facilities, or
• In rural areas only in limited circumstances when shown necessary to protect basic
public health and safety and the environment and when such services are financially
supportable at rural densities and do not permit urban development, consistent with
State law.
12.17.07
19
• Extension of services to Regional Plan Partners is to be accomplished in accordance with
Regional Water and Sewer Plans and agreements.
• Land owners requesting water and/or sewer service outside the City limits are to sign a
utility extension agreement that addresses the following:
• Costs of design, engineering, construction, and inspection of extension as paid by the
owner;
• Easements and permits to be secured and obtained by the owner,
• Dedication of capital facilities to the City;
• Connection charges paid by the owner;
• Agreement by the owner not to protest annexation;
• Connection to both sewer and water services;
• Waiver of right to protest local improvement district
• Development of property to conform to City code when developing or redeveloping the
property subject to the agreement; and
• Remedies that may be required due to noncompliance with the terms of the agreement.
Annexation
U GA Goal 5: Provide a framework for processing annexation requests.
P olicy UGA5a. The City should use, but is not limited to, the following factors in determining the
specific location of an annexation proposal boundary:
• The annexation boundary, where appropriate, should adjust any impractical or irregular
boundaries created in the past.
• The annexation boundary should, where appropriate, provide a contiguous and regular
boundary with current City limits.
• The annexation boundary, where appropriate, should be drawn along property lines and/or
existing or future right-of-way boundaries. Annexation boundaries, where possible, should
not be drawn along right-of-way centerlines.
• UGA roadways contiguous to a proposed annexation area should not be included within the
proposed annexation boundary, unless the roadways are contiguous to current City limits
• When a proposed annexation includes portions of a natural lake, the annexation boundary
should be modified to include or exclude the entire lake area from the proposed annexation.
If more than 50 percent of lakefront property is included in an annexation proposal, then the
annexation boundary should include the entire lake if less than 50 percent of the lakefront
property is part of the annexation proposal, then the lake should be excluded.
P olicy UGA5b. The City should process annexation requests in accordance with review criteria.
Review criteria should include, but are not limited to:
• Areas to be annexed are included in the Shelton UGA.
• The annexation proposal should create and/or preserve logical service areas. Annexations
generally should not have or create abnormally irregular boundaries that are •difficult to
serve.
• The annexation proposal should use physical boundaries, including but not limited to bodies
of water, highways, and land contours as noted in Policy UGA5a.
P olicy UGA5c. The City should give priority consideration to annexation proposals that are
financially self-sufficient or those where the fiscal impact can be improved. The City should
develop a variety of service delivery or revenue enhancement options to increase the feasibility
of annexation.
12.17.07 20
Policy UGA5d. The City may request a fiscal analysis of the annexation proposal by annexation
proponents.
P olicy UGA5e. Upon annexation, the City shall require properties to assume zoning consistent
with the UGA Plan Land Use Map, as adopted or as amended where appropriate.
P olicy UGA5f. Where appropriate, the City and/or County should allow development
agreements in the UGA that are consistent with the approved UGA Plan.
Interjurisdictional Coordination
P GA Goal 6: Coordinate UGA planning efforts with Mason County and other neighboring
jurisdictions and agencies.
P olicy UGA6a. Following the approval and adoption of this plan, the City of Shelton and Mason
County shall enter into an agreement that details the process and expectations for coordinated
development review in the UGA. Topics may include but are not limited to: land use and
development regulations, public service delivery responsibilities, infrastructure standards,
procedures and fees and other relevant topics.
P olicy UGA6b. The City of Shelton and Mason County should conduct a regulatory consistency
analysis with County and City regulations. The City and County should jointly determine which
regulations apply to lands and development in the UGA and apply regulations consistently.
12.17.07
21
Appendix A: Land Capacity
jones&Stokes
Memorandum
•
Date: November 27, 2007
To: Steve Coins, Community Development Director, City of Shelton
From: Lisa Grueter, Senior Planner
cc:
Subject: Land Capacity Analysis Update
The Shelton Urban Growth Area (UGA) Plan includes a land capacity analysis intended to help
understand the population and employment capacity of the City and its UGA. This memo
presents the results of the residential and employment capacity analysis for the Shelton UGA
including the City limits.
Residential Capacity Analysis
The Residential Capacity analysis estimates vacant and redevelopable acres (see Attachment A
for a map), and then applies discounts for critical areas, rights of way, and market factors. Net
acres are multiplied by observed densities (5.4 du/ac City; 4 du/ac UGA), and then multiplied by
a household size similar to the US Census. See Attachment B for a description of the discount
factors.
This method resulted in a capacity of within 1% of the target as shown in Attachment C
(essentially 10,400 as rounded). This planning level population capacity estimate would
essentially meet the recently approved population target of 10,500 net new persons assigned in
the Mason County Comprehensive Plan, 2005, applicable to the City plus its UGA.
Employment Capacity
Gross and net vacant and redevelopable acres are estimated similar to the method described by
for the residential capacity analysis. For purposes of confirming the employment capacity of the
UGA, we have researched the recent Mason County Economic Development Council's June 2006
Mason County Industrial Land Needs Analysis. We have also reviewed current commercial jobs
based on the 2004 County Business Patterns and 2002 Economic Census information available
through the US Census Bureau. The updated land capacity analysis is provided in Attachment C.
11820 Northup Way, Suite E300 • Bellevue, WA 98005-1946 • Tel. 425.822.1077 • Fax 425 822.1079
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Our review of existing studies and our land capacity analysis shows the following:
Industrial
•
The Countywide Industrial Land Need Analysis indicates the demand for vacant industrial
property countywide exceeds the supply — about 804 additional vacant gross acres are needed
to meet the demand countywide. The Industrial Land Needs Analysis assumed 872 acres of
land 3 acres or greater were designated as Industrial in Shelton. Based on the current land
capacity analysis for the November 2007 proposed land use plan, the number of gross vacant
industrial acres equals about 848 rather than 872, which is similar but lower. That would
mean that the new net land demand need Countywide would be about 828 acres rather than
804.
There is still an unmet need for vacant industrial acres countywide. If, however, accounting
for redevelopable/underdeveloped industrial and commercial/industrial land, then the Shelton
UGA plan could help meet the unmet demand by providing 677 gross redevelopable acres.
Considering there is less desire or ability to redevelop, one could count the net redevelopable
acres as helping meet the demand. This would equal 203 acres.
The results show that the City's UGA is not oversized for industrial purposes. The demand
analysis may mean that the City can consider additional areas for industrial uses provided it
does not substantively affect the ability to meet residential population targets. It may also
mean that the combined "commercial/industrial" designated land is more likely to be
developed for industrial purposes if the industrial land demand matches the countywide
study.
To estimate the number of industrial employees for purposes of environmental and traffic
analysis, we may use the Industrial Land Needs Analysis assumption of 4 employees per
acre'. Applying this factor to gross vacant acres (minus roads), the City could expect about
2,500 jobs. Applying this number to both vacant and redevelopable/underdeveloped acres
(vacant and redevelopable acres minus roads), Shelton may expect 4,600 industrial jobs. This
latter number would be above the countywide forecast of 3,370 additional jobs by 2025,
Commercial
•
The number of gross vacant commercial/mixed use acres in the City and UGA equals 233,
and the number of redevelopable acres equals 172. The net vacant/redevelopable acres
combined equals only about 157. This does not include the "commercial/industrial" acres
that were counted as "industrial" above.
A commercial demand analysis is not available for Shelton or Mason County. However, in a
similar study for Longview, Washington, estimated to grow by 9,200 persons over the next
1 Assumes roads are deducted, but no other factor is deducted.
Shelton Land Ca pacrtbd
wl '
e s d
,p;t .y_�htii
twenty years, a need for 800,000 new square feet of local and regional com ercia_ use was
estimated tO ie NL1se 100 acres. It should. be noted that Longview serves as a
retail hub of a
four county area.
Shelton does serve as fie major community in south Mason County. 1 _ie Industrial Land
Needs Analysis for Mason County does identify that there is a hi , retail leakage to other
areas — only 54% of presidents' retail spending occurs in Mason County. By bringing in more
family wage industrial jobs, a.nd reducing out -commuting, more retail dollars may be spent
locally than spent in Olympia or e_sewhere.
The total employment in the Shelton Zip Code of a111 sectors equals about 7,768 according to
2004 Zip Code information. The number of retail trade businesses in the Shelton Zip Code
(98584) currently eepais 84 according to the 2004 County Business Patterns information
availa�Nle through the US Census Bureau. Half of these businesses have between 1 and 4
employees. Eight one of the businesses have 19 or less employees. Total employment
numbers are not available for the city limits due to data suppression by the Census of some
information; roughly the number !nber of trade and service employees equaled about 2,1 ± 3 as of
2002. ' he number of retail frade businesses (only) in the City equaled about 52, with those
businesses typically having four or fewer employees and the vast majority less than 19 jobs.
The number of acres in "trade and services" according to the Aason County Assessor inn the
City limits equals approximately 345 (based on parcels). Calculating the'amber ofretaiand
made employees estimated in the 2002 Economic Census (2113) and dividing by the number
of "trade and service acres" results hi approximately 6.12 employees per acre.
The results show that the City 's UGA is not oversized for industrial purposes. The demand
analysis may mean that the City can consider additional areas for industrial uses provided it does
not substantively affect the ability to meet residential population targets. Future industrial
employment could equal 2,500 to 4,600 jobs.
The land capacity analysis snows that based on applying the 6.12 commercial employees per acre
the range of future employment would equal 9604,900 depending on if the employment rate is
applied to net versus gross acres. Given the typical low number of jobs per retail business
described above, it is likely that the future commercial jobs will occur towards the lower end of
the range.
Total industrial plus commercial employment is estimated at 3,500 to 6,400.
`The number of industrial and commercial jobs on the lower end vould add about 45% more jobs
?bove the year 2004 Zip Code total of 7,768. On the upper end, the number of new jobs wound be
82% above the 2004 Zip Code total. It is more likely that -Lie total will be towards the lower end
or middle of the range given the cou n Twide industrial jobs forecast ni the ► ndusmaii Land Needs
Study and given the current relatively tow number of employees per commercial business.
t3irt icon Laid Capacity "Vember 217 2001
Attachment A: Vacant and Redevelopable Lands Map
�S
4f.481: r1 Land Capacity
6
November 27, 2007
Oakland `,
Bav •�
Roads
Railroads
Streams
Parcels
City of Shelton Limits
LGA effective upon Mason County Approval
Vacant/Undeveloped and
Redevelopable/Underdeveloped Land
Source: City of Shelton Planning Department (2002).
City of Shelton 1995 Comprehensive Plan,
Mason County GIS (2006).
Projection: Washington State Plane
Zone: South Zone
Datum: NAD83
Units: Feet US
2,000 0 2,000 4,000
Feet
,o 55 k Jones & Stokes
i • - . i i il'
Attachment B. Land Capacity Assumptions November 2007
Data
Source
Assumptions
A.
Base Acreage
of
UGA
GIS
Total
Land
Acreage
Use
Analysis
of
current
by
land
UGA
use
boundary
designation.
from
UGA
Subarea
Plan
B.
Vacant
Lands
GIS
Source:
2006,
Generally,
property
analysis
Mason
is
excludes
included,
by
County
land
lands
however.
use
Assessor's
that
designation.
have
Parcel
$0
land
Data,
value;
2004,
Kneeland
updated
C.
Redevelopable/Underdeveloped
Lands
GIS
For
exceed
value
For
than
property
Generally,
commercial/industrial
residential
the
<
improvement
0.5
minimum
is
included,
(some
excludes
consider
King
lot
lands
value
size
however.
County
residential
properties
allowable
that
or
where
jurisdictions
have
parcels
run
in
$0
the
the
land
a
improvement
query
that
NR
use
value.
zone.
are
this
where
3
Kneeland
approach).
x's
value/land
land
greater
value
D.
Critical
Areas
GIS
Use
critical
areas
calculations
for
UGA.
Deductions
for
creeks,
rivers,
total
percent
wetlands,
of
critical
lakes,
areas
and
geologically
to
each
land
hazardous
use
category.2
areas.
Apply
the
E.
Roads/Other
Public
Lands
discount
factor
combined.
Use
a
discount
factor
of
25%
for
ROW
and
"other
public
lands"
F.
Market
Factor
discount
factor
lands.
Use
a
discount
factor
of
25%
for
vacant
and
50%
for
redevelopable
G.
Total
Developable
Area
Addition
of
net
vacant
and
net
redevelopable
acres
H.
Residential
Housing
Adjustments
Densities
Observed
plats
Residential
in
Neighborhood
densities
(NR)
zone.
in
recent
For
the
UGA
density,
assume
the
density
of
the
Oak
Park
subdivision
These
for
densities.
redevelopable
For
Street/Brockdale
Housing
the
a
conservative
are
City
units
both
(about
density
future.
were
lands
less
Rd),
4
assumption
adjusted
du/acre,
assume
than
so
at
as
about
the
to
the
near
maximum
to
avoid
5.4
that
remove
Springfield
Brockdale
du/acre.
still
double
looks
densities
existing
counting
Park
at
Road).
urban
dwellings
plat
of
the
between
(N
level
13111
NR
on
zone,
existing
Mixed
development.
-use
and
categories
Given
no
allow
market
both
commercial
experience
and
with
new
residential
mixed
-use
developments
outside
of
Downtown,
a conservative
assumption
is
2 For purposes of the Capacity Analysis, critical areas include: areas of greater than 15% slope, areas of high potential of soil liquefaction, NWI
wetlands, FEMA 100-year floodplain, Puget Sound (buffered 200 feet), lakes (buffered 200 feet) and streams (buffered 200 feet) Minimum
Mapping Unit: Fragments or segments of land use resulting in polygons smaller than 0.01 acre were included into adjacent larger land use
polygons. Many of these critical areas overlap one another.
Sate nogg, Land Carres ti.'gy
$ ultJ 2 tl� i1� ! c i i; o a
Data
Source
Assumptions
that
as
The
commercial
10-20%
NR
zone
of
as
uses.
Mixed
adopted
Use
by
land
the
may
City
develop
Code
allows
with
residential
for
commercial
as
well
uses
industries
percent
conservative
such
by
uses
conditional
of
in
the
in
the
assumption
the
land
unincorporated
future.
may
use
permit.
be
was
used
1-2%
UGA,
Given
for
commercial
of
it
the
NR
is
prior
anticipated
land
interest
might
uses.
that
develop
in
A
cottage
a
small
for
I.
Persons
per
household
US
Census
The
2.49
of
the
average
in
land
Mason
capacity
household
County.
analysis.
size
A
rate
in
the
of
2.5
City
was
of
Shelton
assumed
was
for
2.52
the
purposes
in
2000
J.
Commercial/Industrial
Capacity
Mason
Development
County
Council
Economic
and
Vacant
above.
and
Employees
under
developed
per
acre
acres
are
4
per
are
acre
calculated
for
industrial
as
described
and
6.12
2002
US
Economic
Census
per
based
June
acre
2006
on
for
the
Mason
commercial.
Mason
County
County
The
Industrial
Economic
industrial
Land
employees
Development
Needs
Analysis.
per
Council's
acre
The
are
commercial
Census
service
Employees
use
to
jobs
more
acres
per
employees
divided
closely
according
acre
by
are
match
per
an
to
applied
acre
approximate
the
Industrial
Mason
is
to
based
gross
Land
County
estimate
on
acres
Needs
2002
Assessor
minus
of
Analysis.
US
trade
roads/public
Economic
records.
and
SheenLand Capacity
November 21 9001
Attachment C: Land Capacity Analysis —November 2007
Shelton Lana Cap2chy
4
ovem be r27,
City of Shelton
Land Capacity Analysis: Proposed Land Use Plan
April 17, 2007; updated November 27, 2007
A;
Cnfticit ,feat
Vacant Lands
Commercial Designated Lands
Industrial Designated Lands
commercialfnduShlal Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
pabi$Jndelt levetoped,Lands ,
Commercial Designated Lands
Industrial Designated Lands
Commercial/Industrial Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
scourttfatt
Commercial Designated Lands
Industrial Designated Lands
Commercial/Industrial Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
Redevelopable/Underdeveloped Lands
Commercia! Designated Lands
indusiral Designated Lands
CommerciaMndustrtal Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
R4actstIP
Vacant Lands
Commercial Designated Lands
Industrial Designated Lands
Commercial/ndustrial Designated Lands
Multi -Use Designated Lands
Residential Designated Lends
Redevelopable/Underdeveloped Lands
Commercial Designated Lands
IndusinalDesignated Lands
Commercial/Industna! Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
Vacant Lands
Vacant Lands
Redevelopable Lands
Commercial Designated Lands
industrial Designated Lands
Commercial/Industrial Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
Redevelopable/Underdeveloped Lands
Commercial Designated Lands
Industrial Designated Lands
Commerial/lndustriai Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
Commercial Designated Lands
Industrial Designated Lands
Commercial/Industrial Designated Lands
Multi -Use Designated Lands
Residential Designated Lands
Discount Factors
City
Area
Calculations
(in acres)
10
10
331
30
843
83
22
67
980
a
8
265
24
675
139
67
18
0
53
735
6
6
199
18
506
104
50
13
0
40
1
551
4
5
149
14
380
52
25
7
0
20
1
29
11
149
34
380
UGA
Area
Calculations
(in acres)
12
346
161
181
1,128
16
644
11
7
39
1,462
10
277
129
145
903
573
13
515
8
5
31
,096
7
207
96
108
677
430
10
386
6
4
23
822
5
156
72
81
508
215
5
193
3
2
12
10
349
76
83
519
Total
Area
Calculations
(In acres)
22
356
492
211
1,972
890'
99
666
11
73
41
2,442
17
285
394
169
1,577
712
80
533
8
59
33
13
214
295
127
1,183
60
400
6
44
1,374
10
160
221
95
887
267
30
200
3
22
12
40
360
225
117
899
t:dpacrity
Dwellings: April 2007 Future Land Use
Unadjusted dwellings
Deduction for existing homes on redevelopable
properties
Deduction for potential commercial uses in NR
zone
Addition of residential in mixed use zones
EstlmatedDwel ling Total with Adjustments
Estimated veragepersons per household..
Population: Unadjusted April 2007 Future Land
Use
Population: Adjusted April 2007 Future Land Use
Rounded Population
irr mgciaittndUstrial Capacity
Employment April 2007 Future Land Use
Commercial Designated Lands
Industrial Designated Lands
Total Employment: Low Range
Rounded: Low
Total Employment High Range
Rounded: High
Discount Factors
assumes 5.4 du/ac for City
and 4.0 du/ac for UGA
actual
1 % of NR land
20% of mixed use land
2.5 persons/household
2.5 persons/household
net acres * 6.12 emp/ac
gross acres minus
roads/public lands * 6.12
emp/ac
gross vacant acres minus
roads/public lands *4
emp/ac 1,025
gross vacant and
redevelopable acres minus
roads/public lands * 4
emp/ac 1,093
1,410
City
Area
Calculations
(in acres)
2,052
-19
-21
36
2,049
5,131
5,123
385
870
UGA
Area
Calculations
(in acres)
2,078
-32
-21
67
2,092
5,194
5,229
Total
Area
Calculations
(in acres)
4,130
-51
-41
103
4,141
10,325
10,351
10,400
573 957
990 1,860
1,519 2,545
3,482 4,575
2,092 3,502
1,963 4,472
3,500
6,435
6,400
Notes. Area calculations are approximate based on the City of Shelton GIS. Data is subject to errors and omissions. Area calculations include critical
areas. Area calculations include parcels bisected by the UGA boundary. Vacant land calculations for the NR and I zones in the UGA also include parcels
that have a current use code (from assessor's data) as a designated forest land tax classification, but which are not currently being used for resource
extraction and do not have a primary use on site.
2