Laurelhurst Community Club
Serving 2800 Households in
Central Puget Sound Growth Management Hearings Board
900 Fourth Avenue, Suite 2470
Seattle, Washington 98264 Fax 206-389-2588
Re: Case No. 03-3-0016—Compliance Hearing on the UW Lease Lid Matter
Dear Growth Board:
The Laurelhurst Community Club, on behalf of the other Petitioners in the above-referenced matter, appreciates the opportunity to submit a statement regarding compliance issues with the order of the Central Puget Sound Growth Management Hearings Board.
The Petitioners in this case are committed to the mandates of the Growth Management Act. Throughout this process the Petitioners have continued to work with the City of Seattle and the University of Washington to respond to the order of the Growth Board. We had hoped that there would be a compromise that could meet the goal of the Growth Management Act to “[e]ncourage the involvement of citizens in the planning process and ensure coordination between communities and jurisdictions to reconcile conflicts.”
We agreed to the final measure passed by the Seattle City Council, primarily because concessions were made shortly after the May 2004 stakeholder meeting at the one and only meeting to address the issues one-on-one with the Petitioners. That was all we figured we could achieve due to the lack of commitment to the GMA goals at the local level and willingness to work towards a compromise. From the initial unveiling of the supposed “compromise” proposal after the May 2004 meeting, there was no effort on the part of the City or the University to really sit down and reconcile differences as mandated by the GMA. The lengthy public process outlined in the “Statement of Actions Taken to Comply” from the City is merely, in our view, a statement to rubber-stamp the earlier measure passed by the Council with the support of the Mayor and the University. We had been told over and over again that this is what would happen—document a public process, no matter how ineffective and the Growth Board would approve it.
We are grateful for the work of the Growth Board. We appreciate the opportunity to comment on the Compliance Hearing. We have attached comments we have submitted to the City on these issues for your information.
Jeannie Hale, President
3425 West Laurelhurst Drive NE
Seattle, Washington 98105
206-525-5135 / fax 206-525-9631
Laurelhurst Community Club
Serving 2800 Households and Businesses in Seattle’s Laurelhurst Neighborhood
March 14, 2004
Council President Jan Drago and
Members of the Seattle City Council
600 Fourth Avenue, Floor 2
P.O. Box 34025
Seattle, Washington 98105 Fax 206-684-8587
RE: UW Lease Lid
Dear Council President Drago and Members of the City Council,
We are writing to urge you to work with the petitioners in the lease lid appeal to develop a compromise that meets the needs of the University, the City and the communities located in the primary and secondary impact zones. While the Central Puget Sound Growth Management Hearings Board determined that the City was noncompliant with the Growth Management Act (GMA) in its actions relating to elimination of the lease lid, we believe that a settlement and compromise would be best for all involved. There were several compromise proposals on the table during the legislative process. We are willing to work with you to develop a solution that meets the needs and addresses the concerns of all of the parties.
Background: One of the goals of the GMA is to “[e]ncourage the involvement of citizens in the planning process and ensure coordination between communities and jurisdictions to reconcile conflicts.” RCW 36.70A.020(11). As the record demonstrates, Mayor Nickel’s proposal to eliminate the lease lid was developed with no involvement of surrounding communities or the City University Community Advisory Committee (CUCAC). This is in stark contrast to the successful 18-month process of compromise between the University and its neighbors leading to adoption of the 1998 City-University Agreement, a process that did comply with the GMA.
That 1998 Agreement was explicitly adopted to:
define certain areas wherein the University, in its planning and development, may fulfill its mission in such a way as to continue to enhance the positive impacts upon the City as a whole and particularly upon the surrounding communities, and at the same time minimize any adverse impact it may have by working cooperatively with appropriate City agencies and community groups in order that problems may be identified at the earliest possible stage and that, where necessary, mitigating actions can be taken to maximize positive impacts and minimize adverse impacts upon the City and particularly the communities surrounding the University, and to promote the health and vitality of the residential, business and academic communities. [Emphases added.]
The 1998 City-University Agreement -- negotiated with substantial input from the communities – complied with the many GMA policies. It provided that the lease lid would be retained in the new Campus Master Plan when it was adopted, and that “any change to these limitations shall be proposed as a major amendment to the Master Plan.” The City, instead, chose to amend the Agreement and to eliminate the major amendment requirement, rather than comply with it. This was despite earlier assurances from the City and the University that this would not happen. (Please see the Petitioners’ Prehearing Brief submitted to the Growth Board which can be found at www.laurelhurstcc.com for specifics.)
Aside from issues relating to notice, dissemination of the proposal and alternatives for public comment, involving impacted communities in formulating the proposal, and adhering to the process called for in the 1998 City-University Agreement, the Council did sponsor a “public forum” on the evening of April 8, 2003 in the University District and a formal public hearing on Thursday, April 10 on the lease lid legislation and proposed changes to the noise ordinance to provide an opportunity for public comment. Representatives of communities surrounding the University attended both meetings and commented extensively, noting grave concerns regarding the Mayor’s proposal and the means by which the Mayor proposed to eliminate the major amendment process established in the 1998 City-University Agreement negotiated by the neighborhoods with the University.
One of the most prominent critics of the Mayor’s proposal was Patrick Doherty, formerly DCLU’s Land Use Planner who managed the University’s first Master Plan, pursuant to the 1983 City-University Agreement, continued in that role or supervisory to other planners in that role for approximately 10 years and who was intimately involved in the Major Institutions Code drafting and redrafting during the 1980s and 1990s. Among other things, Mr. Doherty advised in an April 2, 2003, letter:
You are quite aware of the issues that were in play back in the early 1980’s that spawned Seattle’s nationally innovative major institutions regulations, as well as the issues specifically related to the University of Washington. These issues have not gone away in the past twenty years!
. . .
… [O]f substantially greater concern are the negative impacts that ever-increasing UW leasing/presence in the District will have.
As you know, the University District has a serious jobs/destinations-housing imbalance. This imbalance is the principal reason why traffic congestion and parking impacts in and around the University District are so bad. The imbalance simply means that way too many people cannot live within the District where they would have more ready (pedestrian, bicycle, transit) access to their daytime destinations there.
This is why it is so critical that more and more housing be constructed in the District. Yes, lots of new multifamily buildings have been constructed over the past few years, but so, too, have many new office buildings, hotels and other “destinations.” The imbalance is still great.
If you study the zoning within the District you will see quite readily that the only substantial remaining reservoir of land to accommodate the potential future construction of multifamily housing lies within the commercial zones. The residential zones are either fully developed or offer so little additional development potential that the development costs outstrip the additional profits to be gained by adding density. In fact, the majority of the new units built over the past ten years in the District have been within mixed-use buildings in the commercial zones.
Now here’s the clincher: If the University is allowed to become an even greater presence in the noninstitutionally designated land within the District, it will become a substantial market force for the development of the remaining commercially zoned land for office buildings and other University facilities – NOT housing, which is so direly needed. No one else within the market can compete with the University. Once it’s long, strong arm is allowed to extend even further, our hopes for even more mixed-use buildings on the commercial land to help provide more housing will be even less realistic.
I urge you to reject the University’s request to lift the leasing lid, or at least at a minimum to take a stop back and allow the parties to take a more comprehensive view of the issues, especially the housing issue, in hopes, perhaps, of coming up with a less simplistic action.
Other public comments focused on concerns that lifting the lease lid would result in the de facto expansion of the University’s MIO boundaries, which raises issues because the University does not have to comply with local zoning laws, setback requirements and other development standards; diminution of the livability and vitality of adjacent neighborhoods; decreased housing in the University District – a much-needed commodity to serve the already vast numbers of University students and employees who must commute to the University District, creating some of the worst traffic conditions in the city of Seattle; thwarting the goals, policies and work plan developed through the neighborhood planning process for the University Community Urban Center; the inappropriate conversion of portions of the commercial and residential University District into an office park for institutional uses; piecemeal development with little or no environmental review or mitigation of major traffic and transportation impacts; and the displacement of small businesses and other non-University uses along University Way (“the Ave”).
Between mid-May and early June, prior to the Council’s final vote on the lease lid legislation, at least nine versions of various amendments surfaced. In most cases, citizens received notice of the proposed amendments after committee or council meetings. There was no meaningful notice or opportunity to comment on these proposed amendments to the Mayor’s proposal.
Some of the alternatives considered by the Council would have limited new leases to the University District Northwest Urban Center Village; others proposed an increase in the lease lid with a review after a few years to determine if elimination were appropriate; and still others proposed short-term lease lid elimination with review and possible re-instatement after five years.
Similarly, petitioners were not provided an opportunity to review and comment on the May 2, 2003, University District Market Analysis, a report specifically prepared for and purportedly relied on by the City in adopting the amendments. Significantly, as its title reflects, this market analysis concerned only the University District and did not address any other neighborhoods within the Primary and Secondary Impact Zones. The stated purpose of the Mayor’s proposal was to revitalize The Ave, yet the bulk of the area impacted by the legislation is outside that area.
The Board Decision: As the Central Puget Sound Growth Management Hearings Board stated in its March 3rd decision:
The City conceded, on the record, that the adoption of Ordinance No. 121193 was not adopted under the authority of nor pursuant to the requirements of RCW 36.70A. Transcript, at 20. The only record facts before the Board support a conclusion that the City failed to give notice in compliance with RCW 36.70A.035, failed to “encourage the involvement of citizens in the [GMA] planning process” in compliance with RCW 36.70A.020(11), failed to ‘broadly disseminate proposals and alternatives,” and failed to provide the public with an opportunity for “early and continuous participation” as required by RCW 36.70A.130 and RCW 36.70A.140. For these reasons, the Board finds that Petitioners have carried the burden of proof in showing that the City’s action adopting Ordinance No. 121193 was clearly erroneous. The Board will remand the Ordinance to the City with direction to take legislative action to bring it into compliance with the goals and requirements of the GMA.
The Board issued a finding of noncompliance and set an August 30, 2004 deadline for the City to take appropriate legislative action to achieve compliance with the goals and requirements of the GMA. The City must submit its “Statement of Actions Taken to Comply” to the Board and the petitioners by September 6th, or within a week of taking legislative action. The petitioners then have until September 13th or within two weeks of receiving the City’s Statement to respond. The Board will then hold a “Compliance Hearing” on Monday, September 20.
To us, all of this means that it could be a very long process should the petitioners find the City’s efforts deficient. It is difficult to predict how the Board would respond at the Compliance hearing. It is possible that the Board could address whether the City should proceed through a process similar to the major amendment process of the City-University Agreement to comply with the GMA. It is also possible that the Board could rule on the petitioners’ substantive objections should the Board find the City’s actions insufficient to comply with the GMA. We say this because of a footnote in the Board’s decision which states:
It is possible that, on remand, the substance of the challenged Ordinance could change. Therefore, the Board need not and, in the interests of judicial economy, will not, address either Legal Issues 3 or 4 [relating to consistency with the Comprehensive Plan, respecting Major Institutions, Housing, Neighborhood Planning, and Transportation and the University’s failure to comply with GMA].
We learned secondhand from a reporter that the Deputy Mayor has suggested that all that would be required to comply with the GMA and the Board’s decision would be to hold a public hearing with notice to the public and then the Council could just rubberstamp its earlier vote on the lease lid legislation. We are disappointed that the Mayor’s office has never sought input from impacted community groups on the lease lid legislation nor on the impacts of the Growth Board decision. We disagree that these minimal efforts would comply with the GMA.
We disagree because of the many comprehensive plan goals and policies adopted by the City that call for striking a balance between major institution development and growth with the “livability and vitality” of the surrounding neighborhoods. We believe that the mandatory leasing restrictions in the 1998 City-University Agreement, a result of decades of negotiations among the University, the City and the affected communities achieved the balance necessary to comply with the Comprehensive Plan and procedures necessary to comply with the GMA.
We hope you will work with us in developing a compromise on the UW lease lid. We hope you will review the materials we have submitted to the Central Puget Sound Growth Management Hearings Board that we have posted on our website at www.laurelhurstcc.com. Thank you for considering our request for a compromise.
Jeannie Hale, President
3425 West Laurelhurst Drive NE
Seattle, Washington 98105
206-525-5135 / fax 206-525-9631