City of Washougal Subarea Plan Summary

City of Washougal

Subarea Plan Summary | June 2017

Contents Introduction 3 Planning Process

Phase 1 Visioning and concept plan development Existing Conditions Employment Land Needs Analysis Visioning and Public Outreach Stakeholder Interviews Technical Advisory Committee City Center Focus Group Vision Workshop Land Use Alternatives Guiding Principles Population Estimates Employment Capacity Strategies to Increase Employment Capacity

Phase 2

3

4 4 4 5 6 6 6 6 6 8 8 10 10 11

12

Implementation 12 Comprehensive Plan and Zoning Amendments 12 Traffic Impact Analysis 14

Conclusion 15

City of Washougal

Introduction In 2015, the City of Washougal began a subarea planning process to assess the appropriate mix of employment and residential lands in the City’s Northwest and Northeast urban growth areas (UGAs). In total, the UGAs comprise approximately 985 acres, 600 acres in the Northwest UGA and 385 acres in the Northeast UGA.

Planning Process

The subarea plan was completed in a two-phase, 16-month process that concluded in February 2017.

This report discusses the subarea planning process and the key findings from both phases.

Phase

1

Phase

2

Visioning and Concept Plan Development | November 2015 - July 2016 • Stakeholder outreach • Community visioning • Existing conditions analyses

Implementation | August 2016 to February 2017 • Traffic impacts analyses • Amendment development • Zoning maps

Phase 1 began with analyses of existing site conditions, including zoning, infrastructure, and traffic capacity, and of employment and residential land needs and capacity throughout the City. Following this, the City hosted a vision workshop that connected the subarea planning process with the community and established a vision for the appropriate type of housing uses and employment opportunities that would serve as the basis for clear and specific recommendations and action items for implementation.

The project team developed concept plans to respond to the community vision and the constraints of the site. The plans were refined with the input of a technical advisory committee (TAC) and preferred alternative plans produced.

During the subarea planning process, the City initiated a development moratorium for the UGAs. Phase 1 concluded with City Council adoption of the preferred alternative plans in July 2016.

Subarea Plan Summary | June 2017

• Land use alternatives • Draft residential regulations • Action plan

• Comprehensive plan maps • Residential development regulations • Adoption

Phase 2 launched with the TAC and the project team developing amendments to the zoning and comprehensive plan maps, and finalizing residential development regulations needed to implement the preferred alternative plans.

Phase 2 included the adoption of the development regulations and map amendments for the portion of the Northwest UGA annexed into the City in 2016. The zoning and comprehensive plan map amendments for the portions of the Northwest and Northeast UGAs still within Clark County will be adopted as those areas are annexed into the City.

The moratorium initiated in Phase 1 to complete the subarea plan and ensure the realization of the community’s vision was lifted with the approval of the comprehensive plan and zoning map amendments for the Washougal portion of the UGAs. Phase 2 concluded with City Council adoption of the map amendments and development regulations in February 2017.

3

PHASE 1

Visioning and Concept Plan Development The subarea planning process began with an analysis of existing site conditions in the Northwest and Northeast UGAs and an employment land needs analysis that assessed the general supply and demand of employment and residential lands in Washougal, including the UGAs.

Existing Conditions The existing conditions analysis included a review of existing zoning and regulatory controls, as well as site constraints observed during site tours.

NW UGA

Numbers in acres

124 Business Park

65

Employment Center

375

Single-Family Residential

14

Multifamily Residential

25

Community Commercial

The NW UGA includes approximately 600 acres characterized by existing large-lot residential development, large parcels of vacant and agricultural land, and some smaller-lot residential development in the central and eastern portions.

NE UGA

Numbers in acres

232 Business Park

104

Single-Family Residential

48

Community Commercial

The NE UGA includes approximately 385 acres and is characterized by residential development and large vacant and agricultural parcels, including a Christmas tree farm in the southeastern portion of the UGA. Buildable land and east-west connectivity in the NE UGA is limited by significant topographic features.

City of Washougal

Employment Land Needs Analysis

The employment land needs analysis assessed the suitability of employment land in the UGAs, and identified alternatives to increase employment land in other areas of Washougal, if the amount of employment land in the UGAs was reduced.

The analysis found that, while the City needs employment land in its UGAs, overall, roughly twice the employment land that will be needed is available throughout the City (including land within the existing City limits and the UGAs) for the 20-year planning horizon. In contrast, the analysis showed that only slightly more residential land is available than the amount that will be needed in the same time frame.

2x

1x

The City has twice the amount of land needed for employment

There is not a surplus of residential land available for the same time frame

These findings would indicate that adding more residential land in the UGAs should be considered and that the amount of employment land could be reduced or reconsidered, while focusing the development of additional employment land in the City Center. For the purposes of this planning process, Washougal’s City Center is defined as the area in the center of the City zoned Town Center Core, Town Center East Village, and Town Center West Village.

The table below is a comparison of employment and population forecasts to land capacity. The full employment land needs analysis report is on file with the Washougal Community Development Department.

Employment and Population Forecast Verses Capacity Employment

Population

Capacity

Scenario A

Scenario B

Scenario C

City limits

2,032

2,032

2,032

4,196

UGA

2,482

2,482

2,482

3,639

Total Capacity

4,514

4,514

4,514

7,835

Projected Increase (2035)

1,516

2,067

2,757

7,177

Capacity as % of Projected Increase

298%

218%

164%

109%

Capacity as a % of Increase (city limits)

134%

98%

74%

58%

The employment scenarios shown in the table are based on an employment forecast for Clark County prepared by the Washington State Employment Security Department. In Scenario A, the number of jobs in the City grows at the same rate as its population, or approximately 2 percent per year, for a total of 1,516 new jobs by 2035.

Under Scenario B, the number of jobs in the City grows at an average annual increase of 2.6 percent for a total of 2,067 new jobs, while Scenario C projects one new job per household for an average annual increase of 3.2 percent and a total of 2,757 new jobs.

Subarea Plan Summary | June 2017

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Visioning and Public Outreach The City understands that creating a healthy, vibrant, and sustainable city requires community involvement. This subarea planning process included stakeholder interviews, a TAC, a City Center focus group, and a community visioning workshop.

Stakeholder Interviews The project team completed seven stakeholder interviews with landowners having significant investments in local employment-related land.

TAC feedback was incorporated into the preferred land use alternative adopted at the conclusion of Phase 1 and into the comprehensive plan and zoning map amendments and code standards adopted at the conclusion of Phase 2.

The interviews solicited feedback on:

City Center Focus Group

• Employment land within the city limits and the UGAs

The City Center Focus Group was convened to assess the potential for policies and strategies to encourage greater employment-related development within Washougal’s City Center. The focus group comprises owners and developers of downtown land, representatives of the Port of Camas-Washougal and the Washougal Planning Commission, economic development interests, and the City Council.

The City Center Focus Group met on March 18, 2016 to discuss potential development incentives and strategies that could be considered to spur development in the City Center.

• Supply and demand of employment land in Washougal • Future development plans for employment land owned by the stakeholders • Opportunities to increase employment land within the current city limits if the amount of employment land in the UGAs was reduced Input received from the stakeholders confirmed initial findings that employment development in the UGAs would be challenging. Steep and winding road access, distance to regional road networks, and distance from services and other employment centers would limit the viability of employment development in the UGAs.

The stakeholders preferred focusing employment development in the City Center area where there are large vacant developable tracts under single ownership, and rezoning for lower density residential development in the UGAs.

The focus group indicated a need for a community vision and certainty regarding the style and type of development allowed. The focus group identified a need for urban amenities and housing types that would support a variety of residents: urban creatives, aging population, and executives.

Higher density residential development within and adjacent to the City Center appears appropriate, and could support additional employment and retail uses.

The group further indicated the City should leverage existing infrastructure (water, sewer, transportation) to support a greater intensity of development in the City Center. Potential strategies to increase employment development in the City Center were included in recommendations adopted at the conclusion of Phase 1.

Technical Advisory Committee

Vision Workshop

The TAC was composed of community members and technical experts that have provided particular insight into the development of land use alternatives for the UGAs. TAC members included owners of land in the UGAs and representatives of economic development interests, the Planning Commission, and the City Council, as well as of the City of Camas. The TAC met three times in March and April 2016 during Phase 1 and three times from August to November 2016 during Phase 2.

City of Washougal

The vision workshop was held in March 2016, with approximately 20 community members participating.

The workshop included stations for the Northeast UGA, Northwest UGA, and the City Center. Participants were encouraged to move from station to station and provide feedback on the types of land uses appropriate in each area of the City. City staff and members of the consultant team were on hand to record comments and to sketch land use alternatives for the UGAs.

Most vision workshop participants expressed a desire for a variety of housing types in the Northwest UGA while maintaining the rural feel of the area. They thought limited commercial or retail uses would be appropriate, but did not desire large employment centers in the Northwest UGA. Parks and trail connectivity were important to participants, as well as the potential for community-serving uses, such as a community center. As with the Northwest UGA, workshop participants wanted to see a variety of housing types in the Northeast UGA but only limited employment-related uses. Participants expressed a desire for community spaces and parks and trails and thought some small, neighborhood-retail uses could be appropriate.

Workshop participants made it clear that Washougal City Center needs to take advantage of its natural setting and proximity to the Gorge, the Columbia and Washougal Rivers, the wildlife refuge, and other natural amenities.

Many participants expressed the need for a vision to knit Washougal together and create a new identity.

While participants want more retail and commercial establishments and recreational amenities in downtown, parking and transportation connectivity will be key to success as Washougal grows.

Subarea Plan Summary | June 2017

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Land Use Alternatives Considering the findings of the employment land needs analysis – and the feedback of the TAC, stakeholders, and the public – two land use alternatives for each UGA were developed that recommended a mix of residential densities and limited neighborhood/community commercial uses.

Guiding Principles Land use alternatives were developed for each UGA based on findings, key observations, and adhering to the following guiding principles: • • • • • • •

Respect what is on the ground now when changing zoning and aim to avoid creating nonconforming uses.

Ensure compatibility between zones through the development of landscaping and buffer standards.

Provide preliminary roadway and trail connectivity throughout the UGAs. Concentrate medium density along transportation corridors and abutting existing development of similar densities.

Ensure compliance with County’s target 75/25 (single-family/multifamily) split over the entire City and UGAs. Ensure compliance with County’s target of six dwelling units per acre over the entire City and UGAs. Focus on lower density residential development with minimal neighborhood/community commercial.

The land use alternatives were refined following TAC input and a preferred alternative plans were prepared. Each preferred alternative includes low-, transitional-, and medium-density residential; neighborhood/community commercial; and locations for public/civic uses, parks, and open space, as well as a preliminary transportation network.

The preferred alternative plans were presented to the Washougal Planning Commission and City Council at a workshop in May 2016. Further refinements were made based on Planning Commission and Council feedback.

The preferred alternative plans were adopted in July 2016.

NW Preferred Land Use Plan

City of Washougal

NE Preferred Land Use Plan

NW

Plan Highlights

NE

Plan Highlights

• Uses average density of 4.8 units per acre

• Uses average density of 4.3 units per acre

• Focuses low-density residential development around existing large-lot residential development to minimize impacts to existing homes

• Creates a neighborhood commercial node with potential public/civic uses at the intersection of 352nd Street and SE 20th Street to take advantage of proximity to existing fire station to the north

• Concentrates medium density along Crown Road, SE 23rd Street, and the proposed east-west roadway • Uses transitional density as a buffer between low- and medium-density zones • Focuses commercial development at the intersection of SE 23rd Street and Crown Road • Identifies potential locations for public/civic uses • Identifies parks of varying sizes to serve neighborhoods and larger community • Locates greenways to ensure connectivity to existing trails, neighborhoods, and to proposed parks and public spaces

• Focuses medium density adjacent to the commercial node and along Lawton Road • Uses transitional density as a buffer between medium density and existing neighborhoods • Retains steep slopes and critical areas as open space • Includes preliminary roadway layout that considers topography and existing street connections • Provides trail connectivity where topography makes roadway connections impractical

• Identifies existing power and gas easements • Retains steep slopes and critical areas as open space

Subarea Plan Summary | June 2017

9

Population Estimates Under the preferred alternative for the UGAs, there is capacity for a total of approximately 6,950 new residents, or a 246 percent increase over the 2,817 baseline estimate (population increase based on existing zoning), and there is enough vacant and buildable residential land within the Washougal city limits and the UGA to support a total population of 27,031 people, or approximately 21 percent more than the projected 2035 population of 22,347 (based on population projections provided by Clark County).

Preferred Alternative Population Estimate Preferred Alternative Population Estimate

City Limits

NW UGA

NE UGA

Other UGA

Total

Current Population

15,170

NA

NA

525*

15,695

Vacant Land Capacity

4,908

3,706

2,195

527

11,336

Total Population Capacity

20,078

3,706

2,195

1,052

27,031

Total Population to Plan for by 2035

22,347

22,347

Total Capacity as a % of 2035 Population

90%

121%

*The April 2015 population in the UGAs was 525 with no data available on specific location. Source: Clark County Comprehensive Update documents; Financial & Management Consulting

Employment Capacity Under the preferred alternatives, there is capacity for 242 new jobs in the UGAs, or a 90 percent decrease from the 2,482 new jobs under the baseline estimate (existing zoning). The preferred alternatives include enough vacant and buildable employment land within the Washougal city limits and the UGA to support total employment of 5,596 jobs, or 8 percent more than the projected 2035 employment of 5,187.

Preferred Alternative Employment Estimate Preferred Alternative Population Estimate

City Limits

NW UGA

NE UGA

Other UGA

Total

Current Employment

3,120

NA

NA

NA

3,120

Vacant Land Capacity

2,234

80

70

92

2,476

Total Employment Capacity

5,354

80

70

92

5,596

Total Employment to Plan for by 2035

5,187

5,187

Total Capacity as a % of 2035 Population

103%

108% Source: Clark County Comprehensive Update documents; Financial & Management Consulting

City of Washougal

Strategies to Increase Employment Capacity The preferred alternatives for the Northeast and Northwest UGAs reduce the total amount of vacant and buildable employment land within the Washougal UGA significantly. The updated employment capacity estimates show that, even with the proposed reduction in employment land in the UGA, employment capacity will be sufficient to accommodate the anticipated growth in employment through 2035. However, the amount of excess employment capacity is reduced and, at 8 percent, is below a targeted capacity market buffer of 15 percent. The following strategies are recommended to increase the capacity of employment land in Washougal.

• Assist the Port of Camas-Washougal and others with investments to mitigate the presence of wetlands on employment land.

• Establish minimum floor area ratios for certain areas/zones or through development agreements.

• Invest in infrastructure, such as parking garages, to support higher density development in urban areas.

• Develop a strategies to support small businesses that bring new ideas and investments to the City of Washougal.

• Use development incentives, such as the m4 development.

• Apply mixed-use zoning to multifamily-zoned property in the City.

• Use transitional zoning to allow commercial uses in residential areas adjacent to commercial zones.

• Develop a master plan for Town Center-East.

• Develop streetscape design at intersections leading into the Town Center districts, which could focus attention on the different character of each district and could better direct attention toward downtown.

• Create a “maker overlay” in the Town Center-Core or Town Center-East that supports the manufacture and sale of specialty goods in the same location, which could facilitate the blossoming of new industries, such as a local food and spirits industry or locally made recreational products.

• Evaluate housing alternatives in the Town Center-West Village area to increase the population around downtown.

• Evaluate sustainable building practices or adaptive reuse strategies and incentives.

• Require ground-floor commercial in the core.

• Develop streetscape design at intersections leading into the Town Center districts, which could focus attention on the different character of each district and could better direct attention toward downtown.

• Consider a pattern book of architectural styles based on Washougal’s historic architecture to strengthen the historic sense of place in downtown.

• Revise the current code to identify the types of businesses Washougal is trying to attract clearly.

Subarea Plan Summary | June 2017

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PHASE 2

Implementation In order to implement the preferred alternative plans, the project team worked with the TAC to develop comprehensive plan and zoning text and map amendments. The comprehensive plan and zoning boundaries were based on the preferred alternative plans with some refinements to address parcel boundaries and roadway alignment.

Comprehensive Plan and Zoning Amendments

The residential densities included in the preferred alternatives correspond to the Washougal zoning districts: • Low – 2.9 units per acre (R1-15) • Transitional – 5 units per acre (average of R1-7.5 and R1-10) • Medium – 8.7 units per acre (R1-5) The neighborhood commercial areas shown on the preferred alternative plans correspond to the convenience commercial zone. Only two comprehensive plan designations apply to the preferred alternative plans – Commercial and Urban Low Density Residential. A portion of the Northwest UGA was annexed into the city during the subarea planning process. The comprehensive plan and zoning amendments for that area were adopted by the City Council in February 2017. The map amendments for the portions still within Clark County will be adopted as those areas are annexed into the City.

The proposed zoning and comprehensive plan maps are included at the conclusion of the document.

In addition to the map amendments, new residential and commercial code standards were developed for the Northwest and Northeast UGAs.

City of Washougal

The new residential standards were adopted with the map amendments and include requirements for trail and open space dedication to implement the preferred alternative plans and reflect the vision outlined by stakeholders and the public.

The residential standards also include lot size beveling requirements to better match adjacent lot sizes on zone perimeters, provisions to respect existing residential development, and view corridor protection to preserve views from public rights-of-way. The amendments are intended to support neighborhood-scale, pedestrian friendly commercial buildings that are compatible with the surrounding residential development. The commercial code standards will be adopted when the land proposed for commercial development within the UGAs is annexed into the City.

Because the commercial nodes in both the Northwest and Northeast UGAs are currently within Clark County, it will be important to coordinate with the County and landowners in refining the commercial code standards prior to annexation and implementation of the new standards.

Subarea Plan Summary | June 2017

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Traffic Impact Analysis The development of the preferred alternative plans included a traffic impact analysis, with input from the Regional Transportation Council. In summary, the traffic impact analysis found the roadway system would be adequate through 2035 with these recommended improvements.

• New roadway networks within the Northwest and Northeast UGAs are being recommended to provide sufficient east-west and north-south connectivity and dissipate peak-period traffic along multiple routes.

• Changes in the Northwest and Northeast UGAs have resulted in a more pronounced AM and PM peak commute pattern along major City routes.

• Existing facilities serving the Northwest and Northeast UGAs should be upgraded to meet the collector or local street standards that are being recommended. This will provide multimodal transportation opportunities and mitigate many of the safety concerns associated with narrow rural roadways and sight distances.

• Speeds should be evaluated and posted on all roadways.

Northwest Urban Growth Area • The northern UGA intersections will operate well without the need for signalized intersections with the minor addition of turn lanes.

• The intersection of SE Crown Road at SE 23rd Street is recommended for realignment to reduce the existing offset of the east and west legs of the intersection.

• The 30th Circle collector takes a significant amount of pressure off SE 23rd Street and the SE 23rd Street/Crown Road intersection.

• The intersection of E Street/Washougal River Road continues to be a concern as it is one of the most direct routes to SR 14 from the Northwest UGA. • With traffic increases along Woodburn Road and N 18th Street, the intersection of Washougal River Road/N 18th Street/N “O” Street should be considered for realignment and a potential traffic signal.

Northeast Urban Growth Area • The SE 32nd Street corridor will continue to become increasingly congested because it is the only convenient route that accesses SR 14 from the Northeast UGA. • As traffic increases, more motorists will use SE 39th Street. This traffic still needs to turn west to SE 32nd Street or east to SE Gifford Road to reach SR 14, and the changes in land use create a more defined peakhour commute. Increases in traffic along SE 39th Street will eventually warrant a signal at the intersection of SE 39th Street/Evergreen Way and SE 39th Street/J Street by the year 2035.

• As the area north of SE Lawton Road experiences increased growth, the intersection of SE Lehr Road/Lawton Road will need turn lanes to accommodate traffic and address safety concerns.

City of Washougal

Conclusion The adoption of the preferred alternative plans and the subsequent adoption of the comprehensive plan and zoning map amendments and residential code standards set the stage for future development in Washougal’s Northwest and Northeast UGAs. The subarea planning process determined by all measures – existing conditions, growth projections and capacity, developer and local advisory committee input – that the UGAs are best positioned for the addition of single-family housing types rather than extensive employment uses. The process further defined the general locations of various housing densities, including density transitions, as well as public and recreational amenities and limited local serving commercial nodes in the Northwest and the Northeast UGAs.

The ultimate result of the process was a palette of plan and code amendments for the entire UGA subarea, with adopted comprehensive plan and zoning code revisions that apply only within the portion of the Northwest UGA that is within city limits. Future annexation and adoption of standards will require coordination with Clark County and the landowners in order to refine and apply the preferred plans.

The resulting reduction of 482 acres of employment land in the UGAs is offset by a policy-level commitment to pursue enhanced employment opportunities in Washougal’s City Center. Initiatives, including the recent City Center Transportation and Infrastructure study, illustrate the City’s commitment to its vision for a balanced community with vibrant employment and housing opportunities. The Northwest and Northeast UGAs are now poised to develop as subarea neighborhoods consistent with the community’s overall vision for the future.

Attachments The proposed Zoning and Comprehensive plan maps are included on the following pages.

The documents, listed below, support the Northwest and Northeast UGA Subarea Plan and are on file with the Washougal Community Development Department: Meeting Summaries, Employment Land Needs Analysis, Washougal City Center: Strategies to Strengthen Economic Opportunity, Recommended Commercial Standards, Residential Standards, Traffic Impact Analysis, Utility Infrastructure Assessment, UGA Residential Density Analysis, Facility Planning, Internal Plan Consistency Memorandum

Subarea Plan Summary | June 2017

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NW Comprehensive Plan

City of Washougal

NW Zoning

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NE Comprehensive Plan

City of Washougal

NE Zoning

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City of Washougal