HomeMy WebLinkAboutGateway Development Plan Amendment - 2023Gateway
Development
Plan:
2023 Amendment
A Focused Plan for Improvements to the
Flats District
Adopted: October 16, 2023
Ordinance No. 3321
Preface
The Gateway Development Plan has a history of evolution beginning in the 1980’s and continuing
through today with improvements made along the entire corridor. The plan, adopted in 1993,
intentionally set forth a path as a living document to recognize the importance of the Sims Way
gateway into the community. The Port Townsend Gateway Concept Plan, originally adopted in 1988,
then adopted as the formal Gateway Development Plan in 1993, sets the stage for this amendment.
The basic foundation is the Statement of Purpose created, and adopted, in the Gateway
Development Plan as quoted below.
TO IMPROVE AND PRESERVE THE OVERALL QUALITY OF LIFE AND FACILITATE THE CREATION
OF A GRACEFUL COMMUNITY FOR BOTH RESIDENTS AND VISITORS.
A. To create a gateway that provides continuity of positive visual quality and enhances the overall beauty
of the community of Port Townsend.
B. To enhance the economic vitality of the corridor, its businesses and the community as a whole.
C. To provide a safe corridor to and through the community for motor vehicles, pedestrians and bicycles.
D. To maintain continuing dialogue and involvement of the community in development of the corridor.
E. To ensure that the corridor concept is implemented in a timely, cost-effective and efficient way.
In the Gateway Concept Plan, districts and areas were identified with specific treatments suggested for
some locations and various infrastructure improvements throughout. The Concept Plan has continued to
evolve and the work of the Consultant Team has built upon the community decisions to date.
This amendment is the result of an extensive data and community involvement driven process carried
out in 2022. This amendment reflects what was learned and accepted by the City of Port Townsend,
Port of Port Townsend, and Jefferson County PUD as a result of exploring the best way to implement
the Sims Way Gateway and Boatyard Expansion Project specifically in the Flats District.
2
Table of Contents
1.Overview - Impetus 4
2.Process and Public Participation 5
3.Appreciation 7
4.Agency Partnership - Roles 8
5.Background and Timeline 13
6.Amendment Limits and Sideboards 17
7.Range of Alternatives 18
8.Principles 22
9.Preferred Design Concept 46
10.References and Background Material - Appendix A
11.Stakeholder and Agency Meeting Materials – Appendix B
12.Memorandum of Understanding – Appendix C
3
Overview - Impetus
Photographs illustrate conditions in the summer of 2021 when problem between powerlines and
wires were first raised in the boatyard. Powerline and boatyard safety initially brought for
attention to the agency officials to the need to address the boatyard side of Sims Way.
Port Prop. Line
4
Process & Public Participation
1.Develop a stakeholder with diversity of interests and technical skill sets to
provide an array of perspectives and to inform and guide the analysis of
alternative concept plans for the corridor.
2.Develop a project website in which all materials and video recorded
meetings were available for public consumption and invite continuous
public feedback throughout the process.
3.Hold a public open house to share a preferred design concept illustrating
the culmination of the stakeholder, staff, and consultant’s work.
4.Present finding and preferred concept to the City’s Parks, Recreation, Trees
and Trails Advisory Board and solicit a recommendation for City Council
consideration.
5.Request approval of a memorandum of understanding by the elected
bodies of each of the three agency partners in support of implementing the
preferred design concept alternative which would result in a Gateway Plan
Amendment by the City of Port Townsend and a guide project
implementation by the three agencies.
5
In light of the safety and infrastructure problems identified in 2021, two public town hall
meetings were held in the fall of 2021 to understand public concern over the possible
proposed changes to the Flats District along Boat Haven. Recognizing the importance
of the corridor to the public and community as a valued gateway, the agencies
responded by developing a public engagement and stakeholder process designed to
solicit and provide diverse input for the development of a plan. The following process
and steps were developed to be implemented in 2022.
Process Resulted in a Year of
Learning
Much has been learned over the course of a year including details about boatyard operations,
safety requirements, tree health, soil conditions, aesthetic considerations, constructability, and
much more.
6
Appreciation
Many thanks go out to the public, the staff, consultants, and in particular, the following
stakeholders who brought diverse perspectives and viewpoints to the table. The stakeholder
group met 9 times throughout 2022, reviewing and preparing materials for discussion. The
stakeholder group also brought extensive debate over elements of the project proposal with
healthy disagreements over various topics. This helped land a project plan that differed greatly
from initial concepts developed by the agencies at project conception. While the
stakeholders may not agree 100% on all of the elements of the final concept plan, the
stakeholders provided general support for the collective work. This plan represents the best
possible outcomes resulting from the diversity of input from the stakeholders and the public.
The Agency partners appreciate very much the time and effort brought forth in this group of
dedicated community members.
Joni Blanchard (boatyard works)
Forest Shomer (arboriculture and Kah Tail Nature Park experience)
Ron Sikes (Audubon and Kah Tai Nature Park experience)
Russell Hill (constructability and design)
Steve Mader (urban forestry, landscape, and environmental stewardship)
Dan Burden (complete Streets/multimodal transportation)
Jennifer Rotermund (PRTTAB liaison, arboriculture, and landscape arch.)
Arlene Alen (Chamber of Commerce and tourism)
Sarah McQuillen (overall design)
7
Agency Partnership - Roles
Public agencies have the common goal of providing service to the public. However, each of
the three agencies involved in this effort come to the table with specific agency goals as
defined by their purpose under statute. These goals can differ significantly based on each
agencies purpose. The challenge of this planning effort was to develop a project design
concept that met each agency’s purpose while serving the public in each of their
capacities.
Agency Roles9
Recognizing at the onset how agencies work together is the basis for successful
partnerships. The following considerations are the basis for successful partnerships.
Agency Roles: Port10
Agency Roles: PUD11
Agency Roles: City12
Background/Timeline
Concern of powerlines and boatyard safety raised in
July of 2021
Boatyard expansion, powerline undergrounding, and
Gateway implementation plan project scope of work
developed and presented to Parks, Recreation, Tree,
and Trail Advisory Board on 8/24/21
Same presentation provided to City Council on
9/20/21and submittal for Jeff. Co. Public Infrastructure
Funding (PIF) Grant approved.
https://cityofpt.granicus.com/GeneratedAgendaViewe
r.php?view_id=4&clip_id=2290
PIF Grant in the amount of $1,000,000 submitted and
approved on November 2, 2021 by PIF funding board.
The following section of this amendment outlines the timeline from the project conception
throughout the public process and amendment adoption. The timeline illustrates the breadth
and time invested by the agency partners, the stakeholder group, the public, and staff to
study and methodically develop a concept plan for the Flats District.
13
Background/Timeline
Town Hall meetings held on:
11/10/21 – Video link
https://cityofpt.granicus.com/player/clip/2307?view_id=4&redirec
t=true
12/15/21 – Video link
https://cityofpt.granicus.com/player/clip/2318?view_id=4&redirec
t=true
Stakeholder committee of volunteers assembled in February of
2022
8 stakeholder meetings held between April and August of
2022. Meetings video recorded and available on engagePT
website.
Public Open House to present preferred design concept
alternative held at the Uptown Community Center on August
6, 2022. Displays available on engagePT website.
Parks, Recreation, Trees, and Trail Advisory Board August 23,
2022, provided recommendation of preferred alternative.
14
Background/Timeline
Joint Agency Meeting of the City of Port Townsend City
Council, Port of Port Townsend Commission, and the Jefferson
County PUD Commission.
September 12, 2022 – Video link
https://cityofpt.granicus.com/player/clip/2307?view_id=4&redirec
t=true
Planning Commission
December 8, 2022 Presentation – Video link
https://cityofpt.granicus.com/GeneratedAgendaViewer.php?view_id=
4&clip_id=2523
July 12, 2023 – Gateway Development Plan Amendment Hearing
City Council
October 2, 2023 – Gateway Development Plan Amendment First
Reading
October 16, 2023 – Gateway Development Plan Amendment
Second Reading and Adoption
15
Amendment Limits and
Sideboards16
Amendment Limits and
Sideboards
The evaluation process of alternatives and development of this plan amendment
included the following sideboards for the purpose of the specific project. These
sideboards were recognized that the plan must also thing beyond the limitations of
the specific project and meld with other plans and future projects. For example,
work will occur in the pavement in the future in coordination with WSDOT and thus
the plan recognized future work on Sims Way is expected in the longer term.
Key Sideboards include:
No work within limits of pavement unless a proposed crossing which needs
WSDOT concurrence.
No work in the Kah Tai Nature park except to address trees straddling right of
way line
Project must accomplish goals of boatyard expansion and undergrounding of
power.
Consistency with intent of adopted plans, policies, and codes.
Project budget $1.97 Million
17
Range of Alternatives
Considered18
Range of Alternatives
Based on what has been learned about safety
requirements for operating around high voltage
powerlines, doing nothing results in significant
impacts to the trees in terms of pruning and to the
boatyard in terms of setbacks to the traveling crane.
Effectively, row of boats along the fence would be
reduced by 10 to 20 feet.
This amendment recognizes that the no expansion
option is effectively a reduction in the existing boat
yard footprint. This result is contrary to the economic
development goals of the Gate Development Plan.
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Range of Alternatives
Partial expansion is an option, however, concerns
were raised concerning the proximity of the boats
to the existing trees. A partial expansion results in
trees directly overhanging the boats. Partial
expansion also puts additional stress on the already
relatively stressed trees by placing fill over the
critical root zone.
In summary, the partial expansion defers future
maintenance and jeopardizes the health and
longevity of the existing trees. The partial
expansion also does not allow the full realization of
the economic benefit for the marine trades due to
impacts of the trees on the boatyard. This option
was considered for the short term benefit of
retaining the trees.
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Range of Alternatives
Full expansion best meets the objectives of the
project including creating an environment for
healthy vegetation. The remainder of the
presentation illustrates full expansion because it is
the preferred alternative.
This amendment forwards this alternative as the
preferred approach for the Boatyard side of Sims
Way in the Flats Districts.
21
Project Principles
Plans, policies, and codes
Facilitate future improvements
Multimodal mobility
Boatyard considerations
Aesthetics – Gateway, Parkway
Stormwater
Soils
Existing tree health
Tree replacement
Existing tree recycling
Plantings and species selection
22
A series of project principles were reviewed and following in the
development of the preferred design concept. The list outlined below are
explored in greater detail in the following pages of this amendment.
Project Principles:
Plans, Policies, and Codes
Respecting the intent of the following adopted plans is an important
element of the project development of a preferred alternative. These plans
serve as guidance documents that are intended to balance various
objectives. They differ from City code in that they are not intended to be
literal. Following City codes are required elements of the project.
This amendment reflects carrying forward the intent of the adopted
Gateway Plan as reference in the City’s Comprehensive Plan. The
amendment provides additional clarity to the original intent with new
information to support variations in details for the Flats District.
23
Project Principles:
Comprehensive Plan (2016)
The Comprehensive
Plan adopts all other
city plans by reference
including the relevant
Non-motorized, PROS,
Gateway Dev. Plan.
24
Project Principles:
Non-motorized Plan (1998 & 2011)
The Non-motorized plan identifies key walking and biking connections/routes. A
neighborhood connector is identified along Sims Way with a multi-use trail on the Kah Tai side.
25
Project Principles:
Gateway Development Plan (1993)
The Gateway Development Plan provides a balanced set of objectives. Specific attention is
given to all these points and constitutes the basis for this amendment.
26
Project Principles:
Gateway Development Plan (1993)
Illustration of intent of Gateway Plan. The Non-motorized plan adds a multiuse trail on the park
side. The third lane is only at intersections. This amendment updates the linear planting plan to
parkway planting concept to honor the linear corridor, while allowing for a more environmentally
sustainable planting plan with a progression of replacement of the Poplar trees over time.
27
Project Principles:
Gateway Development Plan (1993)
Gateway Development Plan Flats District Key Points:
Linear corridor – created by the existing poplars
Views of shipyard and historic buildings should be enhanced. Views of bluff and
courthouse are also recognized. Trees should be low enough to preserve views of
the Courthouse and Uptown.
Thin poplars and remove sucker growth.
Plant with riparian plantings along Kah Tai.
Utilities should be placed underground.
Trees should be infilled with new ones when others are removed.
Grasses and wildflowers can be used as ground cover
Create a pedestrian link to the Courthouse area.
Pedestrian environment should be enhanced with amenities such as public art.
A sidewalk is shown on the south side of Sims with a nature path on the north side.
Create connection to waterwalk and Discovery Trail
Plantings should strengthen pedestrian environment
This amendment carries forward these project principles with the modifications for
associated with the planting plan and a gradual replacement of the poplars on the park
side with a new planting approach on the Boatyard side associated with the boatyard
expansion and powerline undergrounding effort.
28
Project Principles:
PROS and Kah Tai Park
Work in the park is limited due to grant restrictions and project scope/funding. However,
Sims Way improvements should complement the Nature Park intent.
29
Project Principles:
Kah Tai Development Plan
In 1986, development plan for Kah Tai park was created.
City Council resolutions impacting the development of the park
include: Resolutions 82-20, 83-1, 83-2, 83-2, 84-19, 85-2, 85-9 and a
shoreline development permit for the small lagoon in 1985 (SH10-85).
Zone 12 of the 12-zone Planting Plan for Kah Tai is impacted by this
Sims Way project. See attached Tree Variety List and Planting
information.
This project is outside of the park, but to the extent feasible the
project should honor consider impacts to zone 12 of the Planting Plan.
This amendment memorializes this past work and brings it forward in the
preferred design concept for the Flats District.
30
Project Principles:
City Codes
Applicable sections of City Code include the following:
Chapter 12 addresses right of way development including rules for
management of the right of way, right of way trees, and adoption of
the Gateway Plan as a guidance document.
Chapter 17 addresses land use on private property and development
regulations
Chapter 19 is the State Environmental Policy Act code setting forth
environmental permitting requirements.
Chapter 20 provides the rules and administrative procedures for
processing permit applications.
31
Project Principles:
Facilitate Future Improvements
The stakeholders brainstormed future work that might occur in the area and set the
criteria that the preferred alternative should facilitate future work. A Larry Scott
realignment shown here is an example. Other future work includes possible
roundabout at Haines.
32
Project Principles:
Multimodal Transportation
City’s complete streets policy requires projects to address transportation for all users of all abilities
33
Project Principles:
Boatyard Considerations
Boatyard interface considerations are an important element of preferred
alternative development including the following:
Security and Public Safety: Public access should not be direct
and fenced separation is needed between the right of way and
the boatyard. Access to the boatyard needs to be controlled to
Haines Street, internal roadways, and near the Safeway Gas
pumps.
An updated power supply is needed for boat works.
Tree and shrub species should be selected to minimize branches,
leaves, pollen, and other tree debris falling on the boats under
work.
Maximize the horizontal separation between trees and the boats
by placing trees closer to the roadway.
This amendment recognizes the economic development goals in
consideration of the interface between public and private space along
the Flats District corridor specific to the boatyard.
34
Project Principles:
Aesthetics - Gateway
Stakeholders asked that the Gateway feel like a “warm hug” welcoming residents and visitors
to our community. The following characteristics are key objectives.
Preserve as much green space as possible within the right of way.
Create view corridors consistent with Gateway Plan into the boatyard and park to add
interest. Create view corridors such that those interested in the boatyard, see glimpses
of boats, and those not interested see a welcoming vegetated streetscape.
Make the corridor welcoming to motorists, bicyclists, and pedestrians.
Create a Parkway tree planting form as compared to a columnar row form and still
maintain linear look of the Gateway with a degree of symmetry
This amendment combines the community aesthetic value and data driven basis for
development of a planting approach recognizing the existing soil conditions and interface
goals between the transportation and gateway corridor and the adjoining park to the north
and boatyard to the south.
35
Project Principles:
Aesthetics – Parkway Tree Form 36
Project Principles:
Softscape - examples37
Project Principles:
Soils
1966 aerial photo on left illustrates dredge spoils. 2012 aerial photo on the right shows
park vegetation.
38
Project Principles:
Stormwater and Soils
June 5, 2022 25-yr rainfall event. Water pooled for approx. 3 hours before completely infiltrating.
39
Project Principles:
Existing Tree Health
Many of the existing trees are stressed due to a combination of factors including but
not limited to poor soil conditions, competition for nutrients and water, tree age, 2021
summer heat, lack of maintenance, and impacts to the root zone.
40
Project Principles:
Tree Replacement (Kah Tai Side)
The preferred alternative proposes replacement of the poplars on the
boatyard side associated at the time of this project and thinning of trees on
the Kah Tai park side with replacement over time. Tree replacement over
time on the park side means:
Individual analysis of trees will be made by an arborist to assess tree
health to focus removal on trees in the poorest condition.
Strategic removal and thinning will seek to improve health of nearby
trees and open views into the park as part of the project.
Replacement over time generally means that trees will need to be
evaluated periodically and replaced over a period of approximately
20 years consistent with urban forestry practices.
41
Project Principles:
Existing Tree Recycling
To the extent feasible, the stakeholder committee and design team
recommend recycling the existing trees in the following ways:
Make trees available for public to utilize as a wood product to
honor our maritime, arts, and natural resource values in the
community.
Utilize existing removed trees as habitat strategically placed in Kah
Tai Park or potentially other locations in the region.
Utilize chips as a soil amendment to help new plantings the health
of new plantings.
42
Project Principles:
Planting Considerations
Plantings and landscape architecture design need to include the following
considerations:
Soils are largely devoid of organics, free draining (sand) with high
concentrations of copper and other metals.
Soil amendments are necessary to support the health of plantings.
Irrigation for plant establishment will be required. (5-10 years)
Root volume needs to be sufficient to support tree growth. This means
horizontal and longitudinal separation from hard surfaces should be
maximized.
The boatyard side and park side are distinctly different from an
aesthetic and maintenance standpoint.
The boatyard side green space serves as a stormwater infiltration swale.
43
Project Principles:
Species Selection Considerations
Tree species selection is critical given soil conditions and project goals. The following
principles should be considered:
Trees should not have aggressive root systems causing suckering and upheaval of
road/path and other infrastructure
The boatyard side along the boats needs to have low pollen producing trees and
granular pollen rather than in dust form.
The boatyard side could have greater pollen producing species along existing
buildings, but not along the boats.
Native varieties are preferred on the park side. See attached tree varieties and
planting information illustrating 1986 IACC park planting plan.
The boatyard side trees need to be sturdy and fit a parkway setting.
There is a preference for all trees to be native or cultivars of native species that will
be successful in the right-of-way environment. Climate change should be
considered in species selection.
Shrubs and ground cover need to accompany tree planting for mutual plant
health and for architectural aesthetic purposes.
44
Project Principles:
Species Selection Considerations
A list of tree species and attributes has been developed for the design. Other factors
impacting species selection include:
Tree species availability in the market place.
Whether or not female or male trees are available and their relative pollen/fruit
producing characteristics. If possible, tree sex is important to consider.
Size of trees (3-inch minimum caliper trees are preferred for initial planting)
Deer protection and impacts
Tree replacement if a new planting fails to survive
Shrub maintenance and control (parks maintenance staff capacity and
experience)
The basket of tree species evaluated and recommended are included as a
reference to this presentation. See attached.
45
Preferred Design Concept:
Key visual features of the full expansion alternative illustrated here include: Parkway Setting with
Poplar replacement on the boatyard side and poplar replacement over time on the Kah Tai park
side. The vision is to move to a parkway setting on both sides of the street over time, starting with the
boatyard side with the proposed project. The agency partners accepted this approach on 9/12/22.
46
Recommended Goals and
Policies
The following Goals and Policies are recommended for inclusion in a Comprehensive Plan
Amendment.
Under Goal 3 in the Transportation Element, add the following policy.
Policy 3.15: Enhance the Flats District according to the 2023 Amendment to the Gateway
Development Plan.
47
References and Background
Information – Appendix A
See the City’s website for the project for a complete record of materials, meetings, and videos at
https://cityofpt.us/engagept/page/sims-gateway-and-boatyard-expansion-project
48
Stakeholder and Agency
Meeting Materials – Appendix B
See the City’s website for the project for a complete record of materials, meetings, and
videos at https://cityofpt.us/engagept/page/sims-gateway-and-boatyard-expansion-project
49
Memorandum of
Understanding – Appendix C
The Port of Port Townsend, City of Port Townsend, and Jefferson County PUD entered into a
memorandum of understanding concerning acceptance of the design concept and each
agency’s responsibilities.
50