Milton Comprehensive Plan by Framework

Volume I

ACKNOWLEDGMENTS

MAYOR

Shanna Styron Sherrell

CITY COUNCIL

Steve Whitaker

Bruce White

Steve Peretti

Tim Ceder

Dave Strader

Frances Hall

Bob Whalen

PLANNING COMMISSION

Tom Boyle

Jacquelyn Whalen

Alan Sweat

Sabbatha Elmstedt

Susan Johnson

April Elliott

Dana Ohler

Michaela Zaro

CITY STAFF

Angelie Stahlnecker

Dustin Madden

CONSULTANT TEAM

Framework Cultural Placemaking

Transpo Group

Introduction

Welcome to Milton’s 2044 Comprehensive Plan Update! This is the plan that will shape how Milton grows and develops over the course of the next 20 years. The primary objective of the Comprehensive Plan is to blend the desires of Milton residents in 2024 with state, regional, and county plans to ensure that Milton contributes to making Washington a wonderful place to live. The comprehensive planning process is one of the largest undertakings that cities across Washington State make and requires significant coordination to align competing goals and investments. In this plan, you will find background on the planning process, context and strategies for future growth, goals and policies to govern city priorities, implementation actions, and finally the research that supports these planning decisions.

The plan is split into two volumes – this is Volume I.

Volume I: The purpose of Volume I is to provide an approachable “trail map” to the future of Milton. It is organized around Milton’s community vision which, along with state and regional policies, informs the Future Land Use Map as well as the goals and policies for all plan elements: Land Use, Housing, Transportation, Parks & Recreation, Capital Facilities, and Utilities. Volume I includes a list of implementation actions to help achieve the community vision and state and regional mandates.

Volume II includes supporting research and documentation activities for each plan Element, including existing conditions, that inform the goals, policies, and actions in Volume I. It provides much of the quantitative and qualitative research that the Plan rests on.

ENGAGEMENT EFFORTS

This Plan is the result of a significant community and City effort that has engaged many Milton resident through a wide variety of activities. These included school outreach, focus groups, a community visioning workshop, collaboration with the City of Milton Planning Commission, and the parks board and several community surveys.

COMMUNITY OUTREACH HIGHLIGHTS

School Outreach

Staff spent the day at Fife High School and Columbia Middle School to solicit feedback on community maps, and to get a sense of youth priorities. Key themes included a desire for more programmed park space and facilities, more planned community events, improved sidewalks, better bike infrastructure and street connectivity, more gathering places and services including restaurants, and more facilities and opportunities for work and recreation for youth in Milton.

Parks Survey

Staff administered a survey focusing on Milton’s Parks and Recreation programming to better understand how Milton’s parks and open space assets are currently used, and what the community hopes for the future of Milton’s parks and open space. Eighty people responded to the survey, including sixty five Milton residents. Forty percent of respondents said that they use Milton park facilities weekly. When asked to rank the importance of different park qualities, respondents indicated that providing passive recreation opportunities like trails and open lawn was the most important priority, followed by preserving or enhancing environmentally sensitive areas. Sustainable design was also a priority. When asked about gaps in Milton’s park programming, respondents indicated that they would like an off-leash dog area, more community restrooms, and an outdoor event spaces that can host concerts, festivals, and other events.

Community Visioning Workshop

The project team convened a meeting of community members and City staff to explore priorities for different comprehensive plan elements, and to contribute to an understanding of the community’s existing conditions including service and infrastructure gaps and opportunities. Community members annotated maps of the city and responded to questions pertaining to specific comprehensive plan elements. In conjunction with other community outreach, this event informed the community vision articulated in the next chapter.

Key Takeaways

from the community visioning workshop:

1. People want Milton to be a safe, inclusive, and welcoming community.

2. State-mandated growth requirements are a concern.

3. People are concerned about increased traffic brought on by new development along the Interstate 5 Corridor.

4. Parks and green spaces are highly valued and there is a desire to expand the parks system.

5. The community wants more sidewalks and bike facilities.

KEY TAKEAWAYS

Through community engagement eff orts several key themes came to light which informed the development of the community vision and each of the Comprehensive Plan Elements with special emphasis on the Land Use, Housing, and Parks and Recreation Elements.

Planning Themes:

1. Residents want Milton to be a safe, inclusive, and welcoming community.

2. The community is concerned about accommodating jobs and housing as the region’s population grows while retaining the city’s small town character.

3. Parks and green spaces are highly valued and there is a desire to expand the parks system.

4. Residents want a more walkable and bikeable city.

5. Residents are concerned about worsening traffic impacts from the major highways that bisect the community as the region grows.

6. Residents want greater access to amenities and services.

Community Visioning Workshop

High School mapping exercise

Outreach at the High School

Community Visioning Workshop, land use context

Planning Policy Framework 1

PLANNING POLICY FRAMEWORK

BACKGROUND

Comprehensive planning is a fundamental method for calibrating state, regional, county, and municipal goals and objectives and linking them to strategic policies and actions to guide the City over a twenty-year planning period. Comprehensive plans are updated every twenty years with periodic updates every ten to ensure that the city is growing and changing in alignment with the Plan. Each planning effort is based upon significant community engagement, as well as coordination and participation between city agencies, boards, and elected officials. Comprehensive planning is a rare opportunity for collaboration across departments and across the community that can result in positive and coordinated growth that respects and enhances community character, preserves existing community assets, and identifies opportunities for improvement.

STATE, REGIONAL, AND COUNTY CONTEXT

Washington State Growth Management Act (GMA)

Although prepared and approved by the City, Milton is guided by Washington State planning requirements that are contained in state legal codes and the Growth Management Act (GMA), which is codified in the Revised Code of Washington (RCW) Chapter 36.70A and in other related and amended sections of the RCW. As the name indicates, the Growth Management Act was adopted in 1990 to ensure strategic growth in the state that preserves resource lands and coordinates density in jobs and housing within existing regional centers. This is based on the logic that strategic density reduces infrastructure and other costs and resource consumption while preserving Washington’s environmental assets.

Planning Purpose

The purpose of the Comprehensive Plan, as articulated by state legislation, is to create a policy framework that guides subsequent planning efforts within city agencies, development regulations, and daily actions of the city. It is intended to be a central resource linking goals and objectives, municipal policies, local standards, and implementation actions. Importantly, State legislation includes a requirement that zoning, capital expenditures and development regulations conform to the Goals, Policies, and Actions articulated in the Comprehensive Plan.

Coordinating State, Region, County and Local Growth in Employment and Housing

In advance of planning efforts, the Office of Financial Management (OFM) provides a range of population projections for Washington Counties so that the Counties can plan appropriately to accommodate anticipated growth. For large metropolitan regions such as Puget Sound, a

Figure PF-1 Growth Allocation Methodology

Offi ce of Financial Management (OFM) produces county growth projections. Counties and other member organizations within Puget Sound Regional Council collectively decide on regional growth target within OFM-projected population range.

PSRC allocates growth to Counties.

King and Pierce Counties work with constituent cities to allocate county job and housing growth.

Milton allocates jobs and housing within the city based on existing land capacity (how much land is vacant or redevelopable).

regional body acts as an intermediary for these growth allocations. In Puget Sound, members of Puget Sound Regional Council (PSRC) including Snohomish, Kitsap, King, and Pierce Counties as well as the region’s tribes, cities, transit agencies, and port districts work together to set a regional growth target and then allocate growth to the respective counties. This ensures that large transit and other regional infrastructure investments are coordinated with growth in employment and housing. Finally, the counties work with their constituent cities to allocate jobs and housing, and each city allocates growth within its urban growth area.

Coordinating State, Regional, County and Local Planning Policies

The GMA triggers Comprehensive Plans at the regional, county and city levels. Countywide Planning Policies must be consistent with the Regional Comprehensive Plan, and City Comprehensive Plans must be consistent with both Regional and County Plans. For Milton, this means that this Comprehensive Plan must conform to state requirements, PSRC’s Vision 2050, and Pierce and King Countywide Planning Policies. In the last several years, major amendments to the Growth Management Act, Vision 2050 and Countywide Planning Policies include provisions to address defi cits in aff ordable housing, climate adaptation and mitigation, and racially disparate impact.

For more context on the Growth Management Act, Vision 2050 and other regulations that inform the Comprehensive Plan, please refer to the Existing Conditions report in Volume II.

Figure PF-2 Diagram of Governing Documents infl uencing the Comprehensive Plan

MILTON VISION MILTON GOALS AND POLICIES KING AND PIERCE COUNTYWIDE PLANNING POLICIES

Framework, 2023

Plan Components

The Milton Comprehensive Plan Volume I includes seven chapters. The plan starts with a Community Vision, which articulates what community residents want the city to become over the planning period. The Community Vision guides priorities across the Comprehensive Plan. After the Community Vision, the Plan moves through the Comprehensive Plan elements which are Land Use, Housing, Transportation, Parks & Open Space, and Capital Facilities & Utilities. The Land Use Element includes the Future Land Use Map (FLUM), a key policy tool in accomplishing the mandates of the Growth Management Act. Each plan element includes a series of Goals and Policies. Finally, Volume I concludes with a section on plan implementation includes concrete actions the city can take to advance the Goals and Policies.

For the purposes of this document, the terms "Goal," and "Policy”are defined as follows:

1. Goal – Goals are broad statements indicating a general aim or purpose to be achieved. A goal is a direction setter: an ideal future end, condition, or state related to the public health, safety, or general welfare toward which planning and implementation measures are directed.

2. Policy – Policies are topic-specific statements designed to address a specific objective, providing guidelines for current and future decision-making to make progress towards achieving that objective. A policy indicates a clear commitment of the local legislative body. A policy is an extension of a plan’s goals, reflecting topical nuance as well as an assessment of conditions.

All Goals and Policies are written to achieve compliance with the Growth Management Act (RCW 36.70A.070(1)), PSRC Vision 2050, King County Planning Policies, and Pierce County Planning Policies while furthering the vision articulated by community members found in the following chapter.

Community Vision + Layout 2

COMMUNITY VISION

The Milton 2044 Vision is a synthesis of community aspirations and feedback gathered from multiple sources. This process started in 2021 and included many of the activities mentioned in the introduction.

VISION STATEMENT

In 2044, Milton is successful by retaining its best qualities while adapting to growth and change through thoughtful planning. People love living in Milton because it has the heart of a small town with a mix of urban and rural character. New and long-time residents feel socially connected to their friends and neighbors and feel that their roots and belonging in the community are secure. Milton is seen as a hidden gem that offers a great quality of life, an excellent place to raise a family, housing options, easy access to goods and services, and a connection to nature. The Milton Town Center attracts locals and visitors to meet friends and neighbors, shopping, community events, restaurants, and recreation.

KEY THEMES FOR 2044

A well-planned semi-urban town

1. Retain semi-urban residential areas

2. Plan and design complete neighborhoods

3. Expand multi-generational housing options

4. Preserve and enhance relaxing & high-performing open space

5. Preserve and invest in a system of parks, trails, and open spaces

6. Retain and enhance tree canopy and other environmental amenities

High-quality and accessible transportation and community infrastructure

7. Retain semi-urban residential areas

8. Coordinate with WSDOT to mitigate traffic impacts

9. Invest in infrastructure

Accessible, attractive, and amenity-rich Town Center and commercial areas

10. Develop the Town Center as the heart of Milton

11. Support the local business community

12. Support robust social programming

COMMUNITY LAYOUT IN 2044

VISIONSTATEMENT

In 2044, Milton is successful by retaining its best qualities while adapting to growth and change with thoughtful planning. People love living in Milton because it has the heart of a small town with a mix of urban and rural character. New and long-time residents feel socially connected to their friends and neighbors and feel that their roots and belonging in the community are secure. Milton is seen as a hidden gem that offers a great quality of life, an excellent place to raise a family, housing options, easy access to goods and services, and a connection to nature. The Milton Town Center attracts locals and visitors to meet friends and neighbors, shopping, community events, restaurants, and recreation.

A WELL-PLANNED SEMIURBAN CITY

ACCESSIBLE, ATTRACTIVE, AND AMENITY-RICH TOWN CENTER AND COMMERCIAL

HIGH-QUALITY AND ACCESSIBLE TRANSPORTATION AND COMMUNITY INFRASTRUCTURE

WELL PLANNED SEMI-URBAN TOWN

1 Retain semi-urban residential areas by supporting growth in missing middle housing, and low-rise density that fi ts within the existing character of residential neighborhoods.

2 Plan and design complete neighborhoods that provide a variety of housing types, connect people safely and effi ciently to the goods and services they need, and ensure that access to basic amenities is provided equitably.

3 Expand multi-generational housing options so that people can stay in Milton as their housing needs may change.

4 Preserve and enhance open space to ensure all residents have access to quiet, relaxing, and high-performing green space.

5 Preserve and invest in the system of parks, trails and open space to support an active and engaged recreation community.

6 Retain and enhance existing environmental amenities such as tree canopy and well-functioning riparian and wetland areas.

HIGH QUALITY AND ACCESSIBLE TRANSPORTATION AND COMMUNITY INFRASTRUCTURE

7 Make Milton safer for walking and biking by reducing traffi c impacts and providing safe and connected infrastructure that helps all people to get around their community with ease.

8 Coordinate with WSDOT to mitigate traffic impacts from major highways on our community.

9 Invest in the infrastructure needed to accommodate growth and maintain a high quality of life in Milton.

ACCESSIBLE, ATTRACTIVE, AND AMENITY-RICH TOWN CENTER AND COMMERCIAL AREAS

10 Develop the Town Center as the heart of Milton with a mix of housing, jobs, parks, civic space, and retail and cultural amenities. The Town Center is where Milton comes together as a community.

11 Support the local business community by increasing the proximity of housing to commercial areas with high-quality walking and biking connections.

12 Support robust social programming that brings our community together.

COMMUNITY LAYOUT IN 2044: CONNECTING VISION TO PLAN ELEMENTS

A WELL PLANNED SEMI-URBAN TOWN

1 Retain semi-urban residential areas by supporting growth in missing middle housing, and low-rise density that fits within the existing character of residential neighborhoods.

2 Plan and design complete neighborhoods that provide a variety of housing types, connect people safely and efficiently to the goods and services they need, and ensure that access to basic amenities is provided equitably

3 Expand multi-generational housing options so that people can stay in Milton as their housing needs may change.

4 Preserve and enhance open space to ensure all residents have access to quiet, relaxing, and high-performing green space.

5 Preserve and invest in the parks, trails and open space system to support an active and engaged recreation community.

6 Retain and enhance existing environmental amenities such as tree canopy and well functioning riparian and wetland areas.

HIGH QUALITY AND ACCESSIBLE TRANSPORTATION AND COMMUNITY INFRASTRUCTURE

7 Make Milton safer for walking and biking by reducing traffic impacts and providing safe and connected infrastructure that helps all people to get around their community with ease.

8 Coordinate with WSDOT to mitigate traffic impacts from major highways on our community.

9 Invest in the infrastructure needed to accommodate growth and maintain a high quality of life in Milton.

ACCESSIBLE, ATTRACTIVE, AND AMENITY-RICH

TOWN CENTER

AND COMMERCIAL AREAS

10 Develop the Town Center as the heart of Milton with a mix of housing, jobs, parks, civic space, and retail and cultural amenities. The Town Center is where Milton comes together as a community.

11 Support the local business community by increasing the proximity of housing to commercial areas with high-quality walking and biking connections.

12 Support robust social programming that brings our community together.

Land Use Element 3

LAND USE

INTRODUCTION AND VISION CONNECTION

Milton’s Land Use Element is a key tool for meeting the community’s vision in 2044. Many planning goals start with the Land Use Element because one of the Land Use Element’s chief goals is to coordinate the plan’s other elements. Milton’s updated Land Use Element provides opportunities for expanded housing choices, and improved access to services within neighborhoods. The new Land Use Element enables the creation of more walkable neighborhoods in Uptown, Town Center, and in various Neighborhood Centers. Additionally, it addresses climate change and sustainability, ensures access to jobs, and determines locations for parks. This Comprehensive Plan Update includes the creation of Neighborhood Centers – a new land use designation for smaller neighborhood-service commercial areas. Currently, Milton applies a uniform commercial zone across different areas of the city, many of which would benefit from a more tailored approach to serve local needs. To this end, the Town Center and new Neighborhood Centers will be redesignated to better support the community.

Land Use Element Highlights:

1. New Future Land Use Map categories to provide greater flexibility as a planning tool

2. Addition of Neighborhood Centers

3. Addition of Uptown Mixed-Use District

4. Updates to residential designations in proximity to Uptown, Town Center, and Neighborhood Centers

This is Volume I of the Land Use Element. Volume II includes supporting documentation and background information such as State mandates and the capacity estimates and development assumptions that establish the 2044 growth strategy.

RELATIONSHIP TO OTHER ELEMENTS

The Land Use Element influences all the other elements within the Comprehensive Plan. Land use goals and policies help to determine the distribution of different land use types within the city, as well as to coordinate the other elements in the plan; most of the goals and policies within this chapter concern multiple elements simultaneously. For example, land use goals and policies work to establish a development pattern that collocates multi-modal transportation with higher density housing and amenities. This impacts Housing, Transportation, Capital Facilities and Utilities Elements. Similarly, the land use goals work to establish a lower-density development pattern close to environmentally critical areas including environmental hazard zones. This impacts the Housing Element as well as the Climate Resilience sub-element.

PLANNING THEMES

The goals and policies found at the end of the Land Use Element are foundational to the plan. Key themes derived from both state mandates and from the community are addressed through the goals and policies. Each of the takeaways below stem from local and regional planning efforts and implicate multiple plan elements.

1. Ensure that people of all income levels have access to opportunity including employment, transportation, services, and amenities (influenced elements: Housing, Capital Facilities, Parks and Recreation, Utilities, Transportation).

2. Prioritize approaches that increase physical activity and community health and wellbeing (Housing, Capital Facilities, Parks and Recreation, Transportation).

3. Use land efficiently to protect and preserve the environment and environmental amenities, such as clean water, while providing for the housing and employment needs of the community and reducing exposure to environmental hazards (Parks and Recreation, Housing).

4. Increase service administration efficiency by focusing growth in areas served by high volume infrastructure including, transportation infrastructure (Housing, Capital Facilities, Utilities, Transportation).

5. Address racially disparate impact and racial exclusion through land use planning (Housing, Transportation, Capital Facilities, Parks and Recreation).

LAND USE TODAY

The current land use pattern in Milton includes suburban residential neighborhoods with limited mixed-use, commercial areas, and industrial areas. Residential subdivisions with single-family detached homes predominate the city’s landscape. Commercial uses primarily exist along Highway 99 to the west and along Meridian Ave E., the city limit boundary with Edgewood. Meridian is dominated by a variety of lower-density strip-style developments, gas stations, retail, restaurants, services, and dispersed civic and institutional buildings. Development along Highway 99 and Interstate 5 consists primarily of warehousing, contractor yards, self-storage, and other dispersed, low density uses. Figure LU-2 breaks down the city’s existing land uses based on King County and Pierce County parcel data from 2023.

Figure LU-1 Existing Land Uses by Area, 2022

Figure LU-2 Existing Land Uses, 2022

City of Milton; King County; Pierce County; Framework, 2022

Note: This figure sums parcel acres by current land use activities as defined in county assessment data. It includes some parcels identified as “street” or “public right-of-way.”

Multifamily includes all housing that is greater than a single unit on a lot (including duplexes), however properties with ADUs are not disaggregated in this Assessor data. The purpose is to highlight the high prevalence of single family as an existing use - around 46% of Milton’s land.

Figure LU-3 2044 Population Projection

2023 - 2044 Linear Population Projection

Projection Based on Pierce & King County Growth Targets

Figure LU-4 Combined Estimated Population, Housing, and Jobs; 2023 and projected growth (2044) for Pierce and King Counties Populations within Milton

WA Oﬃce of Financial Management, 2023; PSRC, 2022

*Note: Milton had an estimated 2,114 jobs in 2022. Job data for 2023 is not yet available.

Figure LU-5

TotalHousingTarget PSH* Non-PSH 30-50%AMI50-80%AMI80-100%AMI100-120%AMI120+AMI

Pierce County, King County Growth Allocations, 2023

*Permanent Supportive Housing (PSH). Housing allocations are disaggregated by Area Median Income (AMI) to ensure the production of more aﬀordable housing in Washington State.

Milton is bisected not only by Interstate 5, but also by Hylebos Creek, which forms a long, almost uninterrupted, wilderness corridor. The Interurban Trail, a bike trail on a historic rail bed, follows this natural green belt. Trail advocates and local governments continue to expand the Interurban Trail and auxiliary trails across lower King and Pierce Counties.

Much of the land along both forks of Hylebos Creek is wetland-impacted and some parts run adjacent to heavy vehicular traffi c on Interstate 5 and Highway 99, as well as the industrial and commercial land that abuts these major thoroughfares. The Creek also forms a buff er between these uses in the west and Milton’s predominantly residential areas to the east. Unfortunately, there are currently only weak walking and biking connections between the Hylebos Creek Watershed, Interurban Trail, and the majority of Milton.

Since the inception of this planning effort in 2021, a signifi cant warehousing project has been permitted in the historic quarry site in northwestern Milton. The City has a continued challenge of balancing protection and access for its many environmental amenities, supporting friendly residential neighborhoods and promoting economic growth made possible by its major thoroughfares and proximity to bustling Tacoma.

In the next 20 years, Milton is anticipated to grow by around 1,000 residents from 8,715 to 9,427. This growth will be supported by an additional 295 housing units and 1,341 jobs.

Community Engagement Takeaways

Land use was at the center of many public engagement activities including extensive communication with Milton’s Planning Commission. Milton residents emphasized the importance of preserving green space and environmentally sensitive areas including the Hylebos Creek watershed, providing more economic opportunities, retaining Milton’s residential character, and creating mechanisms to ensure that commercial and retail activities close to primarily residential areas are serving local need and minimizing adverse impacts such as noise and pollution.

LAND USE TYPES

Accommodating local and regional growth

The City of Milton has been issued a 2044 growth target of 295 new housing units (245 in Pierce County and 50 in King County) and 1341 new jobs (441 in Pierce County and 900 in King County). Figure LU-4 estimates population growth based on the average Pierce County household size of 2.63 people per household; Milton is expected to grow to 9,427 people by 2044.

The FLUM establishes sufficient development capacity for the City to fulfill not only its growth target, but the housing types necessary to support the affordable housing need. This need will be addressed in the Housing Element. More information on the 2044 growth strategy, capacity estimates, and development assumptions can also be found in Volume II. king county guidance allows milton to aggregate growth targets, meaning that not all of the city’s king county allocation needs to occur within the portion of the city that falls in king county. this is helpful, because it allows the city to create more contiguous density in strategic locations.

Residential

Milton’s largest land use designation by area is single-family residential. Milton has a large amount of zoned capacity for housing. However, since the last periodic update, Washington State has passed new legislation (HB 1220) that requires that cities provide enough zoned capacity to accommodate affordable housing. These new requirements are highlighted in the Housing Element, but also form the basis for many of the changes in the Future Land Use Map including significant updates to the land use designation of Uptown.

Town Center, Uptown, and Neighborhood Commercial

Milton has enough zoned capacity to accommodate employment allocations from Pierce and King County. However, Milton’s current zoning uses one blanket zoning designation for business which encompasses a wide variety of uses, many of which are most appropriate along main thoroughfares because of their high intensity, space requirements, and disassociation with local service and retail needs. The Future Land Use Map breaks down the “Business” category into more locally serving uses in Town Center and Neighborhood Centers and creates a mixed-use area in Uptown to encourage more walkable and neighborly development.

Manufacturing

The Future Land Use Map shrinks existing manufacturing areas in response to community desires. Manufacturing is focused along Highway 99 and I-5 to ensure good freight access and to mitigate traffic impacts on residents in residential areas.

Figure LU-6 the land use planning process

non-conforming use

EXISTING LAND USE

former industrial/ manufacturing zone

former residential zone

LAND USE AFTER COMP. PLAN UPDATE & REZONE

changing needs over time

Key comprehensive plan update & rezone

industrial

commercial

mixed use

single family residential

multifamily residential

new mixed use designation, e.g. Neighborhood Center

infi ll development

new mixed use zone e.g. NC1

new residential zone e.g. UR2

The Land Use Planning Process

Land Use planning is a cyclical process. With each plan update, land use will be adjusted to better fit the changing needs of the community while still respecting the exisitng uses in an area. It is important to note that the land use designations specified in this document are not zones, rather, these designations are used to guide subsequent rezones. For more information, see the Future Land Use Map.

Park/Open Space

Milton’s open space and parks system includes a key habitat corridor along Hylebos Creek, the Interurban Trail and a series of park properties. The Land Use Element seeks to limit the impact of development on critical areas, and to protect and preserve environmental amenities to decrease the risk of fl ooding, mitigate urban heat island eff ect, and protect water quality. Moving forward, land use and transportation policies in this plan will work to ensure that Milton’s Park and Open Space network are accessible and connected with trails, bike paths, and sidewalks. As the map on the facing page shows, there are currently signifi cant infrastructure gaps between the majority of Milton Residents and pedestrian access to the Hylebos Creek watershed.

Tribal Lands

Much of West Milton falls within the boundary of the Puyallup Tribal Reservation including several large properties that are held in member trusts. All of Milton’s potential annexation areas in Pierce County fall within reservation boundaries. Policy LU 11.1 addresses coordination between the City and the Puyallup Tribe.

Figure LU-8 Parks, Open Space, and Active Transportation Network Map

USGS “The National Map” landcover, US Fish and Wildlife, National Wetland Inventory.

Washington Department of Ecology Framework, 2024

Figure LU-7 Puyallup Tribal Reservation

INTERURBAN TRAIL ENTRANCE

PAA HIGHLY WETLAND IMPACTED

FUTURE LAND USE MAP

The Future Land Use Map (FLUM) shown on the facing page is a planning tool that guides where the City focuses growth in jobs, housing and related capital facilities, open space, utilities, other infrastructure that supports that growth, and where the City retains green and open space. To that end, the FLUM fl ows from the goals and policies articulated in this Plan, while addressing the growth targets allocated by Pierce and King Counties and by other state, regional, and county planning priorities. Eff orts have been made toward a growth plan that supports Milton’s neighborly atmosphere and promotes more compatible uses between community centers and primarily residential areas. The FLUM was developed in collaboration with the City’s Planning Commission, City Council, and relevant City Departments.

How to read this Map

The map is divided into land use designations within industrial, commercial, mixed use, residential, and open space types. The FLUM should not be read as a zoning map – within each of the listed land use designations, diff erent types of zoning can occur so long as they fi t under the umbrella of the designation. For instance, there may be multiple types of residential zoning within “Urban Residential,” but density requirements and allowances within “Urban Residential” will be higher than in “Neighborhood Residential.” The FLUM is meant to create some fl exibility in zoning decisions made by the City but should be the basis for zoning updates. The FLUM is designed to ensure that there is enough employment capacity and housing capacity across diff erent income brackets allocated by Pierce and King Counties.

Figure LU-9 Future Land Use Map 2024

Key Planning Strategies

1. The FLUM pairs higher density uses like multifamily housing and locally serving commercial to create walkable community centers dispersed throughout the city.

2. To fulfill the City’s affordable housing allocation, some of the city must allow mid-rise apartment buildings. The FLUM accommodates that housing in Uptown because this area has the greatest access to transit, schools, services, and amenities. Similarly, there are higher-density residential and commercial areas along Milton Way.

3. The FLUM focuses industrial and high-traffic commercial land use designations along Highway 99 to ensure good freight access and to mitigate the impact of high-volume traffic on lower-capacity roads.

4. The FLUM shows current and proposed open space including significant open space areas along Hylebos Creek. Where possible, low-density residential abuts the watershed, to limit development near environmentally critical areas including wildlife habitat.

5. The FLUM is designed to further the community desires. The diagrams in the following pages show how clustering certain types of land uses can help to orchestrate the community vision.

Framework, 2024

UPTOWN

NEIGHBORHOOD CENTER

TOWN CENTER

UPTOWN MX DISTRICT

Figure LU-10 Proposed Subareas for future tailored planning eff orts.

Subareas

Certain parts of Milton present unique opportunites. The FLUM takes these areas into consideration with the organization of the different land use designations. Subarea plans will be used to further refine the vision for these areas through a more fine-grained approach.

TOWN CENTER SUBAREA

UPTOWN SUBAREA

Figure LU-11 Land Use Comparison of 2015 Future Land Use Map and 2024 Future Land Use Map

City of Milton, Framework, 2022

LAND USE DESIGNATIONS

DEFINING THE LAND USE DESIGNATIONS

The land use designations below are broader than zoning defi nitions to allow the city more fl exibility in establishing its land use code. However, intended density windows are indicated below to ensure that the city provides enough capacity for its housing and jobs allocations.

As the diagram shows, Uptown is slated for the most dense development while parks and neighborhood residential have low land use intensity.

COMMUNITY FACILITIES

UPTOWN MIXED USE

Density: 30-40

dwelling units per acre

8 Jobs per Acre

Typical building typology: Mid-rise apartment

URBAN RESIDENTIAL

Density: 12-18

dwelling units per acre

Typical building typology: Low rise multifamily, middle housing

Most similar to current RM zone (residential multifamily)

PARKS AND OPEN SPACE

Density: 0

dwelling units per acre

Includes parks, open space, trail network

TOWN CENTER

Density: 0-20

dwelling units per acre

8 jobs per acre

Typical building typology: Ground fl oor commercial uses, some second story residential

Most similar to current MX zoning (Town Center mixed use)

NEIGHBORHOOD CENTER

Density: 0-10

dwelling units per acre

8 jobs per acre

Typical building typology: Ground fl oor commercial uses, some second story residential

Most similar to current MX zoning (Town Center mixed use)

MANUFACTURING

Density: No residential

9 jobs per acre

Typical building typology: Warehousing

Most similar to current M-1 zone (industrial and manufacturing)

NEIGHBORHOOD RESIDENTIAL

Density: 10-12

dwelling units per acre

Typical building typology:

Single family and lower density middle housing

Most similar to current RMD and RS zones (Residential moderate density and residential single family respectively)

BUSINESS

Density: No Residential

20 jobs per acre

Typical building typology: Single story commercial including big box and offi ce

Most similar to current B zone (business)

A WELL-PLANNED SEMI-URBAN TOWN

The diagram below shows how the Future Land Use Map furthers the community vision by locating supporting land uses next to each other. For instance, vision statement two directs Milton to: “Plan and design complete neighborhoods that provide a variety of housing types, connect people safely and effi ciently to the goods and services they need, and ensure that access to basic amenities is provided equitably.” This goal can be achieved in a number of locations in the city by creating a gradient of commercial, higher density housing, green space and lower density housing.

UPTOWN MIXED USE

COMMUNITY FACILITIES

URBAN RESIDENTIAL

NEIGHBORHOOD RESIDENTIAL PARKS AND OPEN SPACE

Expand multi-generational housing options so that people can stay in Milton as their housing needs may change.

Retain semi-urban residential areas by supporting growth in missing middle housing, and low-rise density that fi ts within the existing character of residential neighborhoods.

*This diagram is for the purposes of showing general land use relationships. It does not show exact intensities or densities, nor does it show the exact proportion of diﬀerent types of land uses.

** Land use Intensity is meant to signify either density of use, or potential for land uses to cause nuisance. For instance, Uptown has the highest proposed density, while the manufacturing designation is likely to be most disruptive to adjoining uses.

Preserve and enhance open space to ensure all residents have access to quiet, relaxing, and highperforming green space.

NEIGHBORHOOD CENTER

TOWN CENTER

UPTOWN MX DISTRICT

TOWN CENTER

NEIGHBORHOOD CENTER

Retain and enhance existing environmental amenities such as tree canopy and well-functioning riparian and wetland areas. 2 6

Plan and design complete neighborhoods that provide a variety of housing types, connect people safely and effi ciently to the goods and services they need, and ensure that access to basic amenities is provided equitably

BUSINESS

MANUFACTURING

HIGH-QUALITY AND ACCESSIBLE TRANSPORTATION AND COMMUNITY INFRASTRUCTURE

To support high-quality and accessible transportation and community infrastructure the Future Land Use Map collocates density with existing infrastructure. Generally speaking it is more effi cient to add volume to existing infrastructure than to create lower-volume, diff use infrastructure. For instance, to most effi ciently use community resources while serving the most people, multi-modal transportation should be concentrated in high-density areas, supplemented by selective routes to and from lower-density areas.

UPTOWN MIXED USE

Make Milton safer for walking and biking by reducing traffi c impacts and providing safe and connected infrastructure that helps all people to get around their community with ease.

Note: creating denser areas increases the positive impact of sidewalks and other infrastructure and allows co-location of transit, jobs and housing within an accessible area.

NEIGHBORHOOD CENTER

TOWN CENTER

UPTOWN MX DISTRICT

Coordinate with WSDOT to mitigate traffi c impacts from major highways on our community.

Invest in the infrastructure needed to accommodate growth and maintain a high quality of life in Milton.

TOWN

ACCESSIBLE, ATTRACTIVE, AND AMENITYRICH TOWN CENTER AND COMMERCIAL AREAS

To support this vision, the Future Land Use Map creates urban clusters where housing can support local businesses and services. Urban clusters should prioritize the co-location of housing, park space, and community space and facilities with retail, amenities, and services to shrink the distance residents need to go to meet their day-to-day needs. The intensity curve below shows which land uses are co-located - for instance, parks are spread throughout the city and dense housing is prioritized close to community facilities, retail, and services.

Support the local business community by increasing the proximity of housing to commercial areas with high-quality walking and biking connections.

Support robust social programming that brings our community together.

NEIGHBORHOOD CENTER

TOWN CENTER

UPTOWN MX DISTRICT

TOWN CENTER

NEIGHBORHOOD CENTER MANUFACTURING BUSINESS

Develop the Town Center as the heart of Milton with a mix of housing, jobs, parks, civic space, and retail and cultural amenities. The Town Center is where Milton comes together as a community.

LAND USE GOALS AND POLICIES

LU 1 USE LAND USE PLANNING AND DESIGN OF THE BUILT ENVIRONMENT TO FACILITATE POSITIVE AND EQUITABLE PUBLIC HEALTH OUTCOMES THAT SUPPORT PHYSICAL, SOCIAL, AND MENTAL WELLBEING.

LU 1.1 Encourage physical activity by strategically maintaining and expanding walking and biking infrastructure to provide greater accessibility to key community services and amenities including open space and parks, schools, and commercial and mixed use areas.

LU 1.2 Expand access to local, healthy food by supporting initiatives like farmers markets and community gardens.

LU 1.3 Adopt land use strategies that promote public health, and address racially and environmentally disparate health outcomes, and promote access to opportunity. Focus on residents with the highest needs in providing and enhancing opportunities for employment, safe and convenient daily physical activity, social connectivity, protection from exposure to harmful substances and environments, and housing in high-opportunity areas.

LU 1.4 Encourage construction of healthy buildings and facilities (Healthy buildings minimize indoor air pollution, and may also include features that promote wellbeing such as on-site exercise facilities and healthy food).

LU 2 ESTABLISH A DEVELOPMENT PATTERN THAT STRATEGICALLY USES POCKETS OF DENSER DEVELOPMENT TO CREATE AMENITY-RICH CENTERS THAT PROVIDE ACCESSIBLE JOBS, SERVICES, AND AMENITIES THAT ENHANCE MILTON'S NEIGHBORLY AND COMMUNITY-ORIENTED CHARACTER

LU 2.1 Encourage high-quality, compact development in the Town Center, Uptown, and neighborhood centers in order to create vibrant community hubs; encourage walking, bicycling, and transit use, employment opportunities, and provide for mixed uses and choices in housing types. Pursue strategies to make Town Center the heart of the community.

LU 2.2 Through zoning, development standards, and similar strategies, use residential, commercial, and manufacturing land efficiently within the city to create healthy, vibrant, and equitable communities with a full range of urban services, while protecting and enhancing green spaces and semiurban qualities of value to the community. Efficient use can be achieved by encouraging compact and infill development particularly focused in areas with existing amenities and services.

LU 2.3 Focus growth of high intensity business and industrial uses to areas with greater freight mobility access adjacent to the Interstate 5 and Highway 99 corridors in order to limit conflict with residential and community-oriented uses.

LU 2.4 Design public buildings and public spaces that contribute to the unique sense of community and a sense of place.

LU 2.5 Minimize the visual impact of parking in new developments such as placing parking behind buildings, utilizing alleys and shared access, adding tree planting requirements for parking lots, permeable surfaces, and other similar strategies.

LU 2.6 Land use decisions and regulations should promote proximity and walkability between commercial and residential areas, integration of public and private spaces in new development, and integration of landscape and green infrastructure into new development.

LU 2.7 The Future Land Use Map, adopted in this plan, indicates the intended distribution, extent, and location of generalized land uses including areas where the City intends to focus growth.

LU 2.8 Pursue subarea planning for mixed use and commercial areas designated in the Future Land Use Map including the West Milton Subarea along Highway-99. Ensure that the subarea planning process includes concerted public engagement to mitigate displacement of vulnerable, low, very-low, and extremely-low income residents.

LU 2.9 Work with Pierce County to designate Town Center and the Uptown Planning District as Centers of Local Importance.

LU 2.10 Periodically monitor the efficancy of comprehensive plan policies and development regulations using indicators that include added jobs, housing units, and average density by zoning district. Adjust

LU 3 WHERE FEASIBLE, LIMIT DEVELOPMENT AND HIGH INTENSITY LAND USES IN ENVIRONMENTALLY SENSITIVE AND CRITICAL AREAS; WHEN DEVELOPMENT DOES OCCUR IN OR NEAR THESE AREAS, REQUIRE THE USE OF LOW-IMPACT DEVELOPMENT AND GREEN INFRASTRUCTURE TO MITIGATE ENVIRONMENTAL IMPACTS.

LU 3.1 Identify and protect wetlands, river and stream banks, ravines, and other areas that provide essential habitat for sensitive and locally important plant or wildlife species and that play an important role in mitigating the impacts of stormwater.

LU 3.2 In alignment with existing critical area designations including wetlands, fish and wildlife habitat protection areas, frequently flooded areas, critical aquifer recharge areas, and geologically hazardous areas, all development activities including infrastructure expansion must minimize disturbance of and adverse impacts to critical areas. In particular, fish and wildlife resources, including spawning, nesting, rearing and habitat areas, and migratory routes must be protected using Best Available Science (BAS).

LU 3.3 Manage development in erosion hazard areas using best management practices to promote soil stability and control erosion and sedimentation techniques including minimizing changes to site grading, retaining or

replanting site vegetation, and utilizing natural drainage systems. (Best Management Practices [BMP] are physical, structural, and managerial practices that prevent or reduce water pollution.)

LU 3.4 Create standards for onsite stormwater detention including reducing impervious surface lot coverage.

LU 4 REDUCE GREENHOUSE GAS EMISSIONS THROUGH LAND USE AND DEVELOPMENT STRATEGIES.

LU 4.1 Promote a mix of housing, employment, and services at densities sufficient to encourage walking, bicycling, transit use, and other alternatives to auto travel and that promote energy efficiency and the strategic use of renewable energy installations.

LU 4.2 Focus growth in Neighborhood Centers, Town Center, and Uptown Mixed Use district to create walkable, bikable, and transit-oriented development that supports vehicle trip reduction.

LU 5 DESIGN CENTERS, NEIGHBORHOODS, AND INDIVIDUAL DEVELOPMENTS USING TECHNIQUES THAT REDUCE HEAT ABSORPTION, MITIGATE STORMWATER, AND MINIMIZE OTHER CLIMATE-RELATED IMPACTS.

LU 5.1 Design centers, neighborhoods, and individual developments using strategies that limit greenhouse gas emissions by reducing embodied carbon, increasing energy efficiency, and strategically promoting renewable energy.

LU 5.2 Plan denser development in parts of the city least likely to be impacted by climate-related hazards such as flooding, and preserve and enhance open spaces that receive and detain floodwaters.

LU 5.3 Maintain and strategically expand the city's urban tree canopy so that it equitably reduces the impact of urban heat island effect.

LU 6 PROTECT THE CITY’S WATER SUPPLY FROM POTENTIAL CONTAMINATION HAZARDS.

LU 6.1 Enforce water quality mitigation measures where planned development will impact water resources including critical aquifer recharge areas, wetlands, riparian zones, streams, and rivers.

LU 7 PROVIDE ADEQUATE SPACE FOR PUBLIC PURPOSES SUCH AS UTILITY CORRIDORS, TRANSPORTATION CORRIDORS, SEWAGE TREATMENT FACILITIES AND STORMWATER MANAGEMENT FACILITIES, RECREATION,

SCHOOLS, AND OTHER PUBLIC USES. ENSURE THAT THESE FACILITIES ARE SITED TO EFFICIENTLY PROVIDE SERVICES WHILE MITIGATING ADVERSE IMPACTS ON THE SURROUNDING AREA.

LU 7.1 Efficiently use existing corridors and right of ways to collocate compatible infrastructure such as trails, transportation, utilities, and green infrastructure.

LU 7.2 Encourage infill and higher-density development in areas already serviced by existing utilities and services.

LU 7.3 Strive to site public facilities so that they balance the often-competing concerns of efficiently administering services and minimizing impacts on adjacent properties and the natural environment.

LU 7.4 To the extent possible, site public facilities where adjacent land uses are compatible. In cases where this is not feasible, the City should encourage buffers and other mitigation measures.

LU 7.5 To the extent feasible, public facilities should avoid designated resource lands, critical areas, or other areas where the siting of such facilities would degrade the natural environment.

LU 8 MAINTAIN AND ENHANCE A SYSTEM OF PARKS AND OPEN SPACES THAT ACCOMMODATE A WIDE VARIETY OF ACTIVITIES AND POSITIVE ENVIRONMENTAL OUTCOMES, AND THAT ARE EQUITABLY DISTRIBUTED AND ACCESSIBLE THROUGHOUT THE CITY.

LU 8.1 Proactively protect Hylebos Creek, Surprise Lake, and adjoining wetland and riparian habitat as one of the city's key habitat and trail corridors.

LU 8.2 Strategically invest in sidewalks, crosswalks, trails, and other pedestrian and active transporation infrastructure to facilitate access to parks, green space, and open space.

LU 8.3 Study potential property acquisition in parts of the city lacking in existing parks and open space, with a particular focus on areas intended for mixed use and dense residential development.

LU 9 EVALUATE PLANNING IN AREAS FOR POTENTIAL RESIDENTIAL AND COMMERCIAL DISPLACEMENT, AND USE A RANGE OF STRATEGIES TO MITIGATE DISPLACEMENT IMPACTS.

LU 9.1 Support inclusive engagement to ensure land use decisions do not negatively impact historically marginalized communities.

LU 9.2 Evaluate the potential physical, economic, and cultural displacement of residents and businesses within the city, particularly for Black, Indigenous, and other communities of color; immigrants and refugees, low-income

populations; disabled communities; and other communities at greatest risk of displacement. Use a range of strategies to mitigate identified displacement impacts.

LU 10 PROTECT LOCAL HISTORIC, ARCHAEOLOGICAL, AND CULTURAL SITES AND STRUCTURES THROUGH DESIGNATION AND INCENTIVES FOR PRESERVATION.

LU 10.1 Create a protocol for identifying and protecting significant historic, visual, archaeological, cultural, architectural, artistic, and environmental features, especially where growth could place these resources at risk.

LU 10.2 Support cultural resources and institutions that reflect the diversity of the community. Where appropriate, designate individual features or areas for protection or restoration.

LU 10.3 Encourage land use patterns and adopt regulations that protect historic resources and sustain historic community character while allowing for equitable growth and development.

LU 11 WHERE POSSIBLE, PURSUE CROSS-JURISDICTIONAL COORDINATION TO ENSURE THAT LAND USE DECISIONS COMPLIMENT AND AUGMENT EFFORTS MADE IN ADJOINING AREAS.

LU 11.1 Coordinate and partner with the Puyallup Tribe of Indians to ensure efficient development, especially in parts of the city that are within the Puyallup Indian Reservation.

LU 11.2 For areas in the Potential Annexation Area (PAA) that are not currently under the City’s jurisdiction, the City should conduct cooperative land use planning with appropriate county, municipal, and tribal governments.

LU 11.3 Work with the City of Fife and other applicable agencies to determine which jurisdiction will annex the UGA Overlap Area of the PAA, consistent with applicable County-wide Planning Policies.

LU 11.4 In cases of direct petition for annexation, the City of Milton should work with affected jurisdictions to make a determination, consistent with the countywide planning policies. Factors that may be taken into account include site access, common ownership, and the City’s service area for utilities.

LU 11.5 Promote development of an interconnected system of sidewalks and trails in cooperation with regional partners.

LU 11.6 Where possible, ensure that mixed use development in Uptown along Meridian Ave. compliments development patterns in adjoining areas of Edgewood.

LU 11.7 Coordinate with WSDOT to mitigate the impact of major highways on the community brought on by increased regional traffic volumes.

LU 11.8 Work with King County to incorporate the South Trout Lake Gap Planned Annexation Area into the City of Milton.

LAND USE GOALS AND THE COMMUNITY VISION

The matrix below connects the land use goals articulated in this chapter to the community vision statements in chapter 2, highlighting which goals are helping to accomplish different community desires.

Community Vision Statements

A

well planned semi-urban town

1. Retain semi-urban residential areas by supporting growth in missing middle housing, and low-rise density that fits within the existing character of residential neighborhoods.

2. Plan and design complete neighborhoods that provide a variety of housing types, connect people safely and efficiently to the goods and services they need, and ensure that access to basic amenities is provided equitably

3. Expand multi-generational housing options so that people can stay in Milton as their housing needs may change.

4. Preserve and enhance open space to ensure all residents have access to quiet, relaxing, and high-performing green space.

5. Preserve and invest in the parks, trails and open space system to support an active and engaged recreation community.

6. Retain and enhance existing environmental amenities such as tree canopy and well functioning riparian and wetland areas.

High quality and accessible transportation and community infrastructure

7. Make Milton safer for walking and biking by reducing traffic impacts and providing safe and connected infrastructure that helps all people to get around their community with ease.

8. Coordinate with WSDOT to mitigate traffic impacts from major highways on our community.

9. Invest in the infrastructure needed to accommodate growth and maintain a high quality of life in Milton.

Accessible, attractive and amenity-rich Town Center and commercial areas

10. Develop the Town Center as the heart of Milton with a mix of housing, jobs, parks, civic space, and retail and cultural amenities. The Town Center is where Milton comes together as a community.

11. Support the local business community by increasing the proximity of housing to commercial areas with high-quality walking and biking connections.

12. Support robust social programming that brings our community together.

LU 1 Use land use planning and design of the built environment to facilitate positive and equitable public health outcomes that support physical, social, and mental wellbeing.

LU 2 Establish a development pattern that strategically uses pockets of denser development to create amenity-rich centers that provide accessible jobs, services and amenities that enhance Milton's neighborly and community-oriented character.

LU 3 Where feasible, limit development and high intensity land uses in environmentally sensitive and critical areas; when development does occur in or near these areas, require the use of low-impact development and green infrastructure to mitigate environmental impacts.

LU 4 Reduce greenhouse gas emissions through land use and development strategies.

LU 5 Design centers, neighborhoods, and individual developments using techniques that reduce heat absorption, mitigate stormwater, and other climaterelated impacts.

LU 6 Protect the City’s water supply from potential contamination hazards.

LU 7 Provide adequate space for public purposes such as utility corridors, transportation corridors, sewage treatment facilities and stormwater management facilities, recreation, schools, and other public uses. Ensure that these facilities are sited to efficiently provide services while mitigating adverse impacts on the surrounding area.

LU 8 Maintain and enhance a system of parks and open spaces that accommodate a wide variety of activities and positive environmental outcomes, and that are equitably distributed and accessible throughout the city.

LU 9 Evaluate planning in areas for potential residential and commercial displacement and use a range of strategies to mitigate displacement impacts.

LU 10 Protect local historic, archaeological, and cultural sites and structures through designation and incentives for preservation.

LU 11 Where possible, pursue cross-jurisdictional coordination to ensure that land use decisions compliment and augment efforts made in adjoining areas.

Housing Element 4

HOUSING

INTRODUCTION

The purpose of the Housing Element is to create policies that support the development of housing in accordance with local needs and anticipated growth. Of course, merely providing enough housing does not ensure affordability, accessibility, or attractiveness – all of which are essential components of a successful community. The Washington State Growth Management Act (GMA) recognizes this, as reflected in the following GMA goal for housing that was updated in 2022:

“Plan for and accommodate housing affordable to all economic segments of the population of this state, promote a variety of residential densities and housing types, and encourage preservation of existing housing stock.”

Washington State, and the Puget Sound Region particularly, faces a catastrophic housing shortage. Milton’s proximity to Tacoma, a major employment center, creates significant demand for housing. To ensure that present and future Milton residents can affordably live in the community, the City should reduce barriers to denser housing. This includes allowing more middle housing in accordance with HB 1110.

PLANNING THEMES

The goals and policies in this chapter are meant to support expanded access to housing across all economic segments and housing needs. Historically, Milton has produced relatively homogeneous housing stock; community outreach efforts and the demographic analysis found in Volume II indicate that this stock cannot fully accommodate a diversity of ages, household types, and local desires. The goals and policies in this element seek to address housing access while retaining what makes the community a neighborly and comfortable place to live.

1. Ensure that people of all income levels have access to housing close to opportunities including employment, transportation, recreation, services, and amenities.

2. Support missing middle housing that contributes to neighborhood character.

3. Ensure that a diversity of people can afford to live and stay in Milton for the long term.

4. Maintain and support high-quality and attractive housing that contributes to Milton’s vitality.

5. Ensure that housing development does not have a deleterious impact on the environment.

This is Volume I of the Housing Element Volume II includes supporting documentation and background information on Milton’s housing including a report produced by the SSHA3P Middle Housing Project addressing Racially Disparate Impact (RDI).

RESIDENTIAL LAND USE

During the last Comprehensive Plan Update, the City of Milton’s Future Land Use Map (FLUM) devoted around 47% of city land to single family residential and around 21 percent to multifamily housing. The City’s current zoning policy is an almost exact replica of the FLUM. Although Milton has a large amount of zoned capacity for residential uses, the affordability mandate associated with HB 1220 means that Milton’s new FLUM needs to allow higherdensity residential development in certain areas of the city than is currently allowed.

To cohere with HB 1220, Milton’s housing allocations from Pierce and King Counties are divided into five different income brackets tied to Area Median Income (AMI). To determine these allocations, the counties worked with Puget Sound Regional Council (PSRC) to distribute growth across their constituent cities, with higher allocations focused around employment centers like Tacoma, and regional transit corridors. Depending on the income bracket, different types of housing are needed to feasibly hit affordability targets. In the Future Land Use Map, the City provides land use designations that will allow for all affordable housing types primarily in Neighborhood Residential, Urban Residential, and Uptown MixedUse areas.

HOUSING TYPES BY INCOME BRACKET

Extremely Low-Income and Very Low-Income Housing (0-30% AMI, 30-50% AMI)

Required: 140 Units

Because of the high cost of both land and housing construction, state guidance indicates that housing for extremely low, and very low income households (0-30,30-50% AMI respectively) can most feasibly be provided by apartment buildings. To accomplish this, some of the city needs to allow increased density to accommodate low- and mid-rise apartment buildings. Puget Sound Regional Council and the GMA also indicate the importance of collocating affordable housing with amenities, transit, and other services. To this end, the FLUM focuses growth in Uptown along Meridian Ave to create capacity for high-density and affordable units. In addition, HB 1220 distinguishes between Permanent Supportive Housing (PSH) and NonPermanent Supporting Housing (Non-PSH). Permanent Supportive Housing (PSH) combines low-barrier affordable housing, health care, and supportive or “wrap around” services to help individuals and families lead more stable lives. Milton is responsible for providing land capacity to accommodate 43 PSH units.

Low Income and Moderate Income (50-80%, 80-100% AMI)

Required: 62 Units

In addition, HB 1220 and HB 1110 created statewide mandates to allow middle housing in all primarily residentially zoned areas. This means that residential lots in Milton must allow at least two units based on Milton’s size and proximity to Tacoma. Middle housing includes housing with multiple units like duplexes, triplexes, fourplexes, fiveplexes, sixplexes, courtyard apartments, cottage clusters, townhomes, and ADUs. Milton is not required to allow all these housing types across all residential zones. These will primarily be located in urban residential and neighborhood residential areas.

Figure HO-1 City of Milton Housing Growth Targets by income bracket and county and housing density.

Median Income and High Income (100-120%, 120%+ AMI)

Required: 93 Units

State guidance indicates that residents with incomes over 100% median income can afford single family housing. However, even those with more income flexibility desire a wider range of housing types to accommodate them in different stages of life. The future land use map seeks to align housing options more closely with the needs of current and future residents.

Emergency Housing:

Required: 25 Beds

Emergency Housing requirements are discussed in Volume II.

RELATIONSHIPS TO OTHER ELEMENTS

The Housing Element interacts with many other elements within the Comprehensive Plan. Housing goals, policies, and strategies guide the composition of residential neighborhoods because affordability is considered broadly, including living and transportation costs. This ensures that many aspects of this chapter inherently concern other elements simultaneously. For example, housing goals and policies strive to provide safe, connected, and affordable living opportunities for households earning a range of incomes. In addition, residential buildings and energy consumption are two of the largest contributors to greenhouse gas emissions in Milton. This element impacts Land Use, Transportation, Parks & Recreation, Economic Development, Capital Facilities, and Climate Change & Resilience.

The following pages show the types of housing that will be allowed in each land use area at the maximum density The development regulations that flow from this plan will help to ensure that the aesthetic and spatial qualities of new housing will conform with community values.

ACCOMMODATING GROWTH

The graphic below shows Milton’s existing housing stock in both Pierce and King Counties compared to each county’s growth allocation (what needs to be built by 2044). Growth allocation and existing housing stock is divided into income brackets. The housing allocation is further broken down by the housing typology that can most feasibly deliver that type of affordability. For instance, for households earning between 0-50% Area Median Income, apartment buildings are the most financially viable form of housing. Areas on the map are color coded according to where the city intends to accommodate the majority of these different types of housing.

HO-2 City of Milton Housing Growth Targets by income bracket and county with comparison to existing housing stock

County

Pierce County 2044 Allocation

Supportive Housing (PSH).

Figure

King County

Pierce County

UPTOWN MIXED USE

HOUSING DENSITY:

30-40 DU/acre

This area is where the bulk of Milton’s aﬀordable housing allocation will go. Zoning will allow low and mid-rise apartment housing. This area was chosen because of its adjacency to existing transit, services, and amenities.

IssaquahHighlands,WA

TOWN CENTER & NEIGHBORHOOD CENTER

HOUSING DENSITY:

0-20 DU/acre, 0-10 DU/acre respectively

These areas are slated for primarily commercial purposes. These areas include Milton’s small scale commercial and neighborhood serving uses; in order to support local businesses. Some second story residential may be allowed.

URBAN RESIDENTIAL

HOUSING DENSITY:

12-18 DU/acre

This area is primarily where higher-density middle housing and some lower density apartments will go. This will help achieve aﬀordability targets between 50 and 100% AMI

NEIGHBORHOOD RESIDENTIAL

HOUSING DENSITY:

10-12 DU/acre

This area will primarily support single family housing, however, with the passage of HB 1110, this area must now allow at least two dwelling units per parcel.

HOUSING GOALS AND POLICIES

HO 1 ENCOURAGE THE PROVISION OF A VARIETY OF QUALITY HOUSING TYPES, DENSITIES, AND LEVELS OF AFFORDABILITY TO MEET THE DIVERSE NEEDS OF RESIDENTS, AND TO ADDRESS MILTON'S AFFORDABILITY GAP.

HO 1.1 Consistent with the Regional Growth Strategy and HB 1110, the City will update regulations and strategies to reduce barriers to the development and preservation of mid-density housing, such as duplexes, multiplexes, townhomes, and cottage courts, in all residential areas, to address the need for housing between single family and intensive multifamily, and to encourage a higher residential density still in keeping with Milton's existing fabric.

HO 1.2 Strive to set the conditions, including providing adequate public facilities and utilities, to encourage the development of a variety of housing types and densities, including middle housing.

HO 1.3 The City shall provide for accessory dwelling units in residential zones for low to moderate income, small family, single persons, or seasonal occupants, as long as the unit maintains the appropriate residential character and quality living environment.

HO 2 ENSURE ADEQUATE AND AFFORDABLE HOUSING FOR ALL ECONOMIC SEGMENTS OF THE COMMUNITY FOR

CURRENT AND PROJECTED RESIDENTS OF MILTON.

HO 2.1 Explore methods to encourage more intentional, predictable development in Milton, at a range of affordability levels, in order to preserve the architectural, spatial, and cultural characteristics that contribute to the city's identity.

HO 2.2 Identify and explore opportunities to reutilize and redevelop existing parcels where rehabilitation of the building is not cost-effective, while maintaining consistency with county-wide policy on historic, archaeological, and cultural preservation, and with Pierce County Policy AH-8 regarding displacement

HO 2.3 Consistent with King County policy H-13 and Pierce County policy AH4.2, the City should explore strategies to encourage affordable housing development, including participation in county-wide efforts to pursue state legislative changes to give the City authority to provide tax relief to developers of affordable housing

HO 2.4 Study and implement strategies to overcome cost barriers to housing affordability and encourage affordable residential development through the creation of a Housing Action Plan. This plan will create a framework and series of strategies to:

a. Maintain Milton’s existing affordable housing stock.

b. Encourage middle housing in residential neighborhoods.

c. Retain a sense of identity through strategies to encourage contextual conformity in architecture and design.

d. Allow manufactured housing within residential neighborhoods.

e. Utilize inclusionary or incentive zoning techniques.

f. Encourage multi-family housing development in proximity to urban services to create dense, walkable, urban nodes.

g. Utilize available means to support the retention of Milton's existing affordable housing as high-quality living environments, including through code enforcement, grant opportunities, funding and rehabilitation programs, discouraging the conversion of housing to inappropriate nonresidential uses, and require appropriate zoning.

h. Reduce barriers for affordable housing developers and low-income families seeking affordable housing, by acting as a resource hub.

HO 2.5 Allow manufactured homes within all residential areas and ensure that regulations are not more stringent for manufactured homes than for other residential building types.

HO 3 PRIOR TO THE PERIODIC UPDATE, EVALUATE WHETHER HOUSING POLICIES AND THE DEVELOPMENT CODE ARE RESULTING IN THE AFFORDABLE HOUSING AND HOUSING DIVERSITY GOALS OUTLINED IN THE PLAN.

HO 3.1 The City shall implement non-discriminatory zoning regulations for group homes, consistent with the Federal Fair Housing Act.

HO 3.2 Explore partnerships with United Way and other non-profit or religious entities to assist in providing extremely low-income, very low-income and low-income housing, permanent supportive housing, and emergency housing.

HO 3.3 The City should plan to accommodate an adequate and reasonable supply of permanent supportive housing as defined in RCW 36.70A.030 (16), foster care housing, and those requiring special needs housing (i.e., the elderly, developmentally disabled, chronically mentally ill, physically disabled, homeless, persons participating in substance abuse programs, persons with AIDS, and victims of domestic violence) that is equitably and rationally distributed within the city.

HO 3.4 The City will adopt and implement policies that protect housing stability for renter households, and expand protections and supports for extremely low-income, very low-income and low-income renters and renters with disabilities. The City’s development regulations should not unnecessarily add to housing costs.

HO 4 THE CITY WILL INCREASE HOUSING CHOICES FOR ALL INCOME BRACKETS—PARTICULARLY THOSE EARNING LOWER WAGES—THAT IS ACCESSIBLE TO EMPLOYMENT CENTERS.

HO 4.1 Seek to provide a diversity of dense housing options within walking

distance of transit, services, and jobs in order to reduce the need for single occupancy vehicles. Ensure there are zoning, development standards, and incentives in place to encourage housing production at affordability levels that allow people to live and work in Milton.

HO 5 WORK TO UNDO RACIALLY DISPARATE IMPACTS, DISPLACEMENT, AND EXCLUSION IN HOUSING CAUSED BY HISTORIC POLICIES, PLANS, AND ACTIONS.

HO 5.1 Prior to the periodic update, the City should evaluate the success or failure of existing policies and development code on racially disparate impacts including exclusion.

HO 6 THE CITY SHOULD ESTABLISH ANTI-DISPLACEMENT POLICIES, WITH CONSIDERATION GIVEN TO THE PRESERVATION OF HISTORIC AND CULTURAL COMMUNITIES.

HO 6.1 Identify and monitor potential physical, economic, and cultural displacement of low-income households and marginalized populations that may result from planning, public investments, private redevelopment, zoning changes, and market pressures. Use a range of strategies to prevent and minimize cultural and physical displacement and mitigate its impacts to the extent feasible.

HO 6.2 Address the need for housing affordable to low-, very- and extremely low-income households, recognizing that these critical needs will require significant public intervention through funding, collaboration, and City action. Strategies should include:

a. Providing a summary of dedicated resources to meet housing needs in the Housing Needs Analysis.

b. Prioritizing the use of local and regional resources such as funds or surplus property for income-restricted housing.

c. Prioritizing projects that promote access to opportunity, antidisplacement, and wealth-building for Black, Indigenous, (and) People of Color (BIPOC) communities

d. Supporting Pierce County efforts to establish a county-wide housing affordability program.

e. Collaborating with surrounding jurisdictions to maximize available funding opportunities and leverage private resources in the development of affordable housing.

f. Explore opportunities to dedicate revenues from sales of publicly owned properties, including tax title sales, to affordable housing projects.

HO 6.3 The City should consider inclusionary or incentive zoning measures as a condition of major rezones and development.

HO 6.4 The City should utilize available means, including grant opportunities, to maintain its existing housing stock as high-quality living environments and to explore redevelopment of poorly utilized parcels.

HOUSING GOALS AND THE COMMUNITY VISION

The matrix below connects the housing goals articulated in this chapter to the community vision statements in chapter 2, highlighting which goals are helping to accomplish different community desires.