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HomeMy WebLinkAbout05-19-1997 Special Council Mtg CITY OF AUBURN SPECIAL MEETING OF THE AUBURN CITY COUNCIL May 19, 1997 5:30 PM Minutes The Special Meeting of the Auburn City Council convened at 5:30 p.m., Monday, May 19, 1997 in the Council Work Area at Auburn City Hall. Those in attendance included Mayor Booth and the following members of the City Council: Rich Wagner, Trish Borden, Sue Singer, Jeanne Barber, Fred Poe, Gene Cerino, and Stacey Brothers. Staff members present included: City Attorney Michael J. Reynolds, Finance Director Diane L. Supler, Fire Chief Bob Johnson, Acting Assistant Fire Chief Russ Vandver, Police Chief Dave Purdy, Personnel Director Brenda Kennedy, Parks and Recreation Director Dick Deal, Public Works Director Frank Currie, Planning and Community Development Director Paul Krauss, Assistant Planning Director Lynn Rued, Senior Planner Bob Sokol, Associate Planner Keith Niven, and City Clerk Robin Wohlhueter. I. Introduction Mayor Booth explained the purpose of the special meeting is to discuss annexations in general and specific Potential Annexation Areas. Planning and Community Development Director Paul Krauss added that the information presented in the special meetin9 is designed to respond to Councilmembers' questions with regard to annexation in general and pending annexation proceedings. II. General Annexation Discussion Mr. Krauss presented a handout titled "Annexations -- Changing the City", which includes a table comparing the existing City statistics, such as land area and population, to Potential Annexation Areas. Mr. Krauss explained the City of Auburn has been studying annexations in the Lea Hill and Lakeland Hills areas for at least fifteen years. Annexations are important to the City in order to control the city's destiny and those areas surrounding the city. The city is directly affected by traffic, environmental issues, development patterns, social issues, and recreational needs for areas surrounding the city. The Growth Management Act prompted counties to realize that they are not local service providers, but are intended to be regional service providers. The Growth Management Act also identified cities as urban service providers. The City provides significant services to the Potential Annexation Areas, but the City still has little impact on how the areas are developed. The City has been fairly successful in extending its development standards in King County through the use of preannexation Minutes of the Special Meeting of the Auburn City Council May 18, 1887 Page 2 agreements for water and sewer service. The City provides services such as water, sewer, storm sewer, and secondary coverage for emergency services to the urban service areas as well as to some islands of King County within the city limits. Transportation issues are also an issue in the Potential Annexation Areas. Mr. Krauss pointed out that annexations will provide a greater income diversity for the city and will hopefully stabilize finances and the need for social Services. He also noted that a number of the annexation areas studied by the City, have a lower cost per capita for providing services than areas within the city. Auburn's policies regarding annexation were revised five years ago, and included the identification of the City's Potential Annexation Areas. Also at that time, the City implemented a policy to require developers who receive City water and/or sewer service to develop to City standards. In 1995, the Comprehensive Plan confirmed the Potential Annexation Areas, and the City took the lead in negotiating interlocal agreements to confirm the City's Potential Annexation Areas. Interlocal agreements with the cities of Kent, Federal Way, Pacific, and Sumner have been signed. Pierce County has confirmed the City's Potential Annexation Areas; however, the City has not been able to negotiate an agreement with Bonney Lake due a water service issue. The City has also been unable to negotiate an agreement with King County. According to Mr. Krauss, the City has laid the groundwork for annexations to occur and in a manner where they become beneficial for the areas annexed as well as for the City. III. Lea Hill Potential Annexation Area Associate Planner Keith Niven presented information related to the Lea Hill Potential Annexation Area (PAA). The Lea Hill area is approximately five square miles in area. The current population of the area is 8,900 with a potential population buildout of 15,000..The majority of the Lea. Hill area consists of single family detached housing with some mobile home parks and apartment complexes. Green River Community College and the future site of the City of Kent water reservoir are located in the Lea Hill area. Mr. Niven explained that City staff members have been working with the Lea Hill Task Force since October, '1996. The residents have indicated their primary concerns are with traffic, density, and growth in the Lea Hill area. The City provides water and sewer service to the majority of Lea Hill. Mr. Niven displayed a map identifying the parcels whose owners have already consented to Minutes ofthe Special Meeting ofthe Auburn City Council May 19,1997 Page 3 annexation by signing a preannexation agreement with the City of Auburn. The City has learned that several other property owners are interested in annexing to the city, and there is at least one area on Lea Hill which is pursuing an annexation petition at this time. The City will need to determine whether the annexation is beneficial to the City as well as to the property owners on Lea Hill. In response to a question from Councilmember Wagner, Senior Planner Bob Sokol pointed out the area on Lea Hill which is currently pursuing an annexation petition. He also added that because the Lea Hill area is so large, the annexation of the area may occur by several petitions for smaller areas of Lea Hill. Councilmember Brothers questioned the factors used to determine the increased density. Associate Planner Niven explained that he utilized the existing density, current King County zoning, and an inventory of developable property to determine a growth factor for the Lea Hill area. Councilmember Brothers asked whether a comparison has been done on the property tax income from Lea Hill per acre or square mile versus area within the city limits. Mr. Niven advised staff reviewed the property valuations. He noted that much of the area is vacant or in an agricultural use. Finance Director Supler added that the primary source of income for the City from the annexation of the Lea Hill area will be from property taxes. There are two commercial businesses on Lea Hill, and it has been assumed that the majority of retail purchases by the residents is already occurring in either Auburn or Kent. Councilmember Brothers pointed out that the City of Kent has taken the position on their annexations that they will provide service only to the extent the annexations are producing income. He asked whether the City of Auburn will be taking a similar position with annexations. Mayor Booth advised that the City will need to consider policy decisions in the future. He acknowledged that the Lea Hill area is primarily residential and will not generate much income. However, the residents of Lea Hill comprise a part of the Auburn community. Further study is needed to determine the affordability of annexation and what type of police and fire services that can be provided. Councilmember Borden asked whether the City obtained statistics on the frequency of police and fire calls for the Lea Hill area. Fire Chief Johnson advised the fire district serving the Lea Hill area runs approximately 1,000 fire and emergency medical calls per year. This compares to 6,000 calls per year within the city. Mr. Niven reported that police response statistics for Lea Hill only Minutes of the Special Meeting of the Auburn City Council May 19, 1997 Page 4 are not available from King County since Lea Hill is part of a larger precinct which extends east of Highway 18. Councilmember Cerino questioned whether the City must determine its ability for concurrency. Mayor Booth advised it may be possible to accommodate concurrency through zoning. IV. West Hill Potential Annexation Area Senior Planner Bob Sokol displayed a map of the West Hill Potential Annexation Area (PAA). The boundaries of the West Hill PAA are established by interlocal agreements with the cities of Kent and Federal Way, and include 277th Street on the'north end, 55th and 51st Avenue on the west, and Peasley Canyon Road on the south. The area is approximately 2-1/2 square miles in area and has a population of approximately 2,000 and approximately 700 dwelling units. The projected buildout includes an additional 1,500 residents and 600 additional dwelling units. The West Hill PAA can be divided into two sub-areas: the lower West Hill or valley floor and the upper West Hill. The lower West Hill includes the Stewart annexation area and the King County agricultural production districts. Mr. Sokol advised that King County has requested the Boundary Review Board to hold a public hearing on the Stewart annexation. Staff have attempted to entertain discussions with King County regarding the Stewart annexation, but have not been successful. Mr. Sokol pointed out that the West Hill PAA is different from the Lea Hill area. One key area of difference is that the City does not provide water and sewer service to the area. The area is served by the Lakehaven Utility District. Public Works Department and utility staff are currently working with the Lakehaven Utility District to develop a transition program for when West Hill areas are annexed to the City. Mr. Sokol anticipated an agreement on the transition program will be reached by the end of the year. Because the City does not serve the area. with. water or sewer service, the City has very few, if any, preannexation agreements for properties in the West Hill PAA. In response to a question from Councilmember Brothers regarding the Lakehaven Utility District infrastructure, Public Works Director Currie advised negotiations with Lakehaven Utility District include a plan where the City would not be required to pay for any of the infrastructure except for general indebtedness for the district, which is minimal. The preliminary agreement provides that the Lakehaven Utility District will continue to serve the residents of Minutes of the Special Meeting of the Auburn City Council May 19, 1997 Page 5 the West Hill until such time as the City annexes 30% of the area. Once the City annexes 30% of the area, the City would acquire the entire system. Senior Planner Sokol pointed out another key difference between the West Hill PAA and the Lea Hill PAA. The West Hill development has less impact on the City than development on Lea Hill. This is evident through transportation impacts. The majority of residents on the West Hill tend not to travel down into the valley. Mr. Sokol also noted that there is less potential for development on the West Hill, and annexation is not urgent. Planning and Community Development Director Krauss advised that a developer is interested in developing a 55 acre piece of property on the West Hill as a single family development with annexation occurring concurrently. Senior Planner Sokol recalled there are two annexation proposals in the West Hill PAA. One is the Stewart annexation, the other is the Thompson annexation. Approximately 15 homes are included in the proposed annexations. V. Pierce County Potential Annexation Area Assistant Planning Director Lynn Rued reported on the Pierce County Potential Annexation Area (PAA). The area consists of approximately two square miles. Henderson Development owns roughly half of the PAA or 680 acres. The Lakeland annexation is in process, and the City Council will be asked this evening to set a date for public hearing on the petition. The City executed an annexation agreement with Henderson Development (Lakeland Company) last year which gave the City the authority to annex the property at any time. The annexation process was delayed in order to develop zoning districts for the property and school impact fees as well as obtain assessed valuation which can be used to include surrounding areas. The zoning has been approved by Pierce County for the Lakeland development and is identified as a planned development district..Pierce County has approved-.3,400 dwelling units and some commercial and school uses. Also located in the Pierce County PAA is the 8th Street connection of the Lake Tapps area to the Valley Freeway. City staff are also working with developers on the Terrace View development which is located directly west of the Lakeland property and will consist of 400 to 500 residential units on the hillside and a small commercial development at the bottom of the hill. The developers have indicated a willingness to execute a preannexation agreement in order to obtain utilities to the site. Minutes ofthe Special Meeting ofthe Auburn City Council May 19,1997 Page 6 Another property owner in the area has indicated a willingness to annex his property of approximately 40 acres in order to receive utility service. Councilmember Borden asked the status of the Terrace View development. Assistant Planning Director Rued advised that the environmental impact statement is complete. Zoning has been established as a mixed use district which allows a mix of commercial and residential uses. VI. Discussion Each Department Director was given an opportunity to convey their thoughts and issues with the proposed annexations. Parks and Recreation Director Deal advised that the park needs for the Lakeland area have already been addressed. The Lea Hill area has less than two acres of developed park property per 1,000 residents. A sale is pending for the Jacobsen tree farm property of 30 acres which will increase the Lea Hill area park acreage. The City's existing standard is 7.25 acres of park property per 1,000 residents. The City is targeting a 7.5 acre standard for the concurrency management impact fee study. Mr. Deal advised that the City's current development ordinance addresses only dedication of property for park purposes. The result has been the dedication of some small parcels which do not meet the needs of the community. Ideally, a neighborhood park should be from three to eight acres in size. Staff members are developing a property value in order to receive a fee-in-lieu-of for the impact fee process and development costs as well. Mr. Deal was unsure of any developed park areas within the West Hill PAA. Councilmember Borden inquired whether the Terrace View development has included any park land. Planning and Community Development Director Krauss a~lvised there-ismo park land designated. It. was suggested that the Terrace View development contribute an impact fee for park land development. Public Works Director Currie advised that the City has been serving the Lea Hill area with water and sewer service for approximately 30 years. Pursuant to state law, solid waste service cannot change until five years after annexation unless the provider agrees to relinquish the service to the City. Curb-side recycling is currently available in the Lea Hill area, and is not a service provided by the City. The City utilizes recycling drop boxes. Public Works Director Currie advised that the addition of curb-side recycling' service would be a cost factor. Storm Minutes of the Special Meeting of the Auburn City Council May 19, 1997 Page 7 drainage facilities have not been identified in the Lea Hill area, and local street maintenance is a concern there as well. Mr. Currie anticipates the West Hill area will develop more slowly and annex in a piece-meal fashion because of the lack of utility service in some of the area. Councilmember Brothers inquired into the amount of sidewalks in the Lea Hill area. Mayor Booth reported there are few if any sidewalks on Lea Hill. Some residents have indicated they would like sidewalks on some of the main thoroughfares for safety purposes. Councilmember Singer reported some residents have expressed their wish to leave the rural areas as rural and without sidewalks or street lights. Mr. Currie advised that most of the street lighting which exists on Lea Hill is paid for by homeowner associations. Mr. Currie reported the arterial streets on Lea Hill are in good condition. Many of the roads in the Lea Hill area are rural roads with readside ditches. Annexation of the area will triple the amount of ditches within the city. Public Works Director Currie explained that the Lakeland area will be new water and sewer service. The Lakeland annexation will have an impact on existing transportation facilities. Councilmember Poe expressed concern that the per acre assessed valuation of property in the Potential Annexation Areas will be considerably less than an equivalent area within the city and will not warrant the same level of service. He expressed concern with the residents' expectations from the City if they are annexed. He urged the City develop a policy statement regarding annexations. Planning and Community Development Director Krauss acknowledged Councilmember Poe's concerns and advised that at the urging of the Mayor, an in-house policy was developed. The policy is that unless an annexation cash flows, the annexation will not be recommended. Councilmember Brothers reported that citizens have indicated to him that the - Lakeland-Hills area has.a. high incidence. of crime. Police Chief Purdy reported- that since the first of the year, there have been six reported burglaries in Lakeland Hills. Only two of the incidents are considered burglaries. In response to a question from Councilmember Wagner, Planning and Community Development Director Krauss suggested that the Green River Community College is a community asset, however it represents a large piece of property which draws a large number of people who may have demands on various services and who do not pay taxes. Mr. Krauss and Mayor Booth identified a number of large land uses within the city that may be regarded in the Minutes ofthe Special Meeting ofthe Auburn City Council May 19,1997 Page 8 public interest but do not contribute to the tax base of the City. These facilities include the FAA, Social Security, GSA, Post Office, 18 school district facilities, four large King County Housing Authority facilities, and three subsidized senior facilities. Planning and Community Development Director Krauss advised there has been discussion to not recommend any significant residential annexation other than the Lakeland area until after the November election and the vote on the property tax reduction. Fire Chief Johnson reported that the average response time in the city is 5.8 minutes. 'l'he target response time is five minutes. In 1982, a fire station location study was conducted and assisted the City in siting two stations and a third temporary station. The existing fire service capacity can adequately serve the existing valley floor of the city. Chief Johnson advised the City has a mutual aid agreement with the Federal Way Fire District which has a five minute response time for most of the West Hill area. The Federal Way District fire station responds to over 1,000 calls a year in the West Hill area. Approximately 1,000 calls can be attributed to the Lakeland area aS well. Timed response studies indicate that the Fire Department can reach the top of Lea Hill area within five minutes, but there is a significant portion of Lea Hill that is outside the five minutes response time. The timed response from Stations 32 and 33 to the King/Pierce County line is approximately seven minutes. Chief Johnson suggested the development of a fire service master plan to give the City options for providing fire service. He suggested a possible strategy to require houses outside the five minute response area must be equipped with sprinkler systems. Councilmember Borden pointed out that a fire station currently exists on Lea Hill. Chief Johnson reported that to fully staff the additional station for fire and aid calls would require $1,350,000 per year for staff costs. The Lea Hill residents are currently paying $700,000 to the fire district. Chief Johnson also expressed concem with the fire district facility located on Lea Hill. He indicated the facility is not suitable as a fire station because its location is in a difficult traffic area, the facility is too small, and there is no room for expansion. Chief Johnson suggested moving the station further to the north, nearer the school facilities, and nearer the new access to Highway 18. Police Chief Purdy explained that the Police Department wants to maintain its ability to respond to emergencies within 3 to 4 minutes for all areas within the city and future annexation areas. Currently the departmenrs response time to nonemergency calls is approximately 30-40 minutes. A study of possible Minutes ofthe Special Meeting ofthe Auburn City Council May 19,1997 Page 9 changes in patrol districts is underway. Since all the Potential Annexation Areas are primarily residential, the impact to police service will not be as great. Chief Purdy advised that in order to have one officer on duty 24 hours a day, seven days a week, requires 5.4 police officers. It was noted that the Green River Community College has its own security company which assists students and provides parking enforcement only. Finance Director Supler presented financial information on the potential annexation of the Lea Hill area. Staff evaluated 25 different revenue sources. Generally, when a Potential Annexation Area is primarily residential, a little more than half of the revenue will be from property taxes. The city as a whole which receives one-third of its revenue from property taxes, one-third from sales tax, and the remaining third from other miscellaneous sources of revenue. In any given annexation, the utility funds will see a loss of income. Utility customers outside the city are charged a surcharge. When they are annexed, the surcharge is no longer applied. The Lea Hill annexation area poses several challenges in the transportation area. Sizable shortfalls are expected over the next six years, and there are no apparent grants available at this time. Finance Director Supler expressed concern with the need for additional City staffing and office space should the annexations occur. She also pointed out that the Lea Hill annexation will require sizable one-time capital investments for such items as maintenance trucks, snow plows, and other equipment. Planning and Community Development Director Krauss pointed out there are a number of potential annexations in the works. Each potential annexation is different from the next will need to be evaluated. As a postscript, Mr. Krauss suggested the City Council consider amending the fee structure for citizen-sponsored annexation petitions. The current fee is $300.00 and can be burdensome to citizen-sponsored annexations. He indicated a proposal for an amendment of the annexation fee structure will be presented at a future Planning. and Community. Development Committee meeting. Minutes ofthe Special Meeting ofthe Auburn Ci~ Council May19,1997 Page 10 VII. Adjournment The meeting adjourned at 7:00 p.m. Approved on the ~'~,~-~_,, day of ~~- ,1997. Charles A. Booth, Mayor Robin Wohlhueter, City Clerk 97M5-19A. DQC