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Approval City of Yelm Community Development Department 105 Yelm Avenue West P.O. Box 479 Yelm, WA 98597   Case Number: SPR-03-8362-YL Applicant: Yelm Community Schools P.O. Box 476 Yelm, WA 98597 Agent: Erling ‘Rocky’ Birkland, Facilities Director Yelm Community Schools P.O. Box 476 Yelm, WA 98597 Summary of Request: Redevelop Yelm High School Summary of Decision: Approved, subject to conditions Proposal Yelm Community Schools has applied for site plan review approval in order to remodel the Yelm High School campus, including the construction of a new 75,531 square foot building, two new additions to the existing gymnasium, demolition of two existing buildings, and the construction of a new parking lot and stormwater treatment system. Findings of Fact Site Plan Review A Notice of Application was mailed to local and state agencies, and surrounding property owners on January 2, 2004. Section 17.84.020 (C) Yelm Municipal Code allows the Site Plan Review Committee to approve a proposal when the site plan conforms to the standards, provisions and policies of the city as expressed in its various adopted plans and ordinances including the applicable sections of the shoreline master program for the Thurston Region.  Property Characteristics The property is located at 1315 Yelm Avenue West, and is identified by assessor tax parcel number 21724210500. The area to the north and west of the property is commercially zoned with some existing commercial uses. The area to the south and west of the property is zoned residential with single family homes and vacant land. The property is over 36 acres in area and currently contains the Yelm High School, including classrooms, a football field and stadium, tennis courts, and a parking lot. The property is mostly rectangular in shape, being approximately 1,700 feet by 1,700 feet with a 400 by 400 section to the northwest. The site is level, with a difference of only 10 feet in elevation over the entire property. The High School is located on Yelm Avenue West (SR 510), an urban arterial. The property is identified by the Yelm Comprehensive Plan Map as Institutional District (ID), which was created to protect and preserve land devoted to existing and future use for civic, cultural, and educational and similar facilities. School facilities are allowed as a permitted use, subject to site plan review approval. Chapter 17.48 YMC establishes the allowed uses and the development standards for the Institutional District, as follows: Maximum height of buildings: 40 feet Maximum development coverage: 70 percent of site. Side yard minimum setback: 15 feet (25 feet to residential zone) Rear yard minimum setback: 15 feet (25 feet to residential zone, with 25 feet of landscaping) Front yard minimum setback: 35 feet (25 feet to minor street) A variance was issued to the District by the Yelm Hearing Examiner (case number VAR-03-8350-YL) from the height requirements of the Institutional District in order to construct a new high school which includes a fly loft in the performing arts area which exceeds 40 feet in height. The City of Yelm will provide police protection, water service, and sewer service to the new High School. Fire protection services are provided by The SE Thurston Fire/EMS District (Thurston County Fire Protection District #2).  Concurrency Chapter 15.40 YMC requires the reviewing authority to determine that required urban infrastructure is available at the time of development. Concurrency with sewer infrastructure is achieved pursuant to Section 15.40.020 (B)(1) YMC when the project is within an area approved for sewer pursuant to the adopted sewer comprehensive plan for the city and improvements necessary to provide city standard facilities and services are present to meet the needs of the proposed development. Concurrency with water infrastructure is achieved pursuant to Section 15.40.020 (B)(2) YMC when the project is within an area approved for municipal water service pursuant to the adopted water comprehensive plan for the city and improvements necessary to provide city standard facilities and services are present. Concurrency with transportation infrastructure is achieved pursuant to Section 15.40.020 (5)(c) YMC when the project: Makes on-site and frontage improvements consistent with city standards and roads necessary to serve the proposed project consistent with safety and public interest; Makes such off-site facility improvements, not listed on the capital facilities plan, as are necessary to meet city standards for the safe movement of traffic and pedestrians attributable to the project; Makes a contribution to the facilities relating to capacity improvements identified in the adopted six-year traffic improvement program, in the form of a transportation facility charge. Concurrency with school infrastructure is achieved when the developer provides a letter from the local school district that the school facilities impacted by the proposed development are present, or are on an approved and funded plan, to assure that facilities will be available to meet the needs and impacts of the proposed development. State Environmental Policy Act Yelm Community Schools was lead agency for the proposal and issued a Mitigated Determination of Non-significance which did not address potential, significant adverse impacts to the transportation system from the High School. The City of Yelm assumed lead agency status pursuant to Section 197-11-360 WAC and issued a Determination of Significance with the scope of the required Environmental Impact Statement being impacts to the transportation system. The District modified their proposal in order to mitigate potential, significant impacts to the transportation system, which allowed the City to withdraw the DS and issue and publish a Mitigated Determination of Non-Significance on April 26, 2004, based on WAC 197-11-158. This determination is final and fulfils the City’s responsibility for disclosure of potential, significant environmental impacts. The Site Plan Review Committee may take action to deny or condition the proposal based on impacts identified in the environmental checklist or other environmental documents. The Mitigated Determination of Non-significance was issued with the following conditions: The applicant shall construct a center turn lane from the intersection of SR 510 and 93rd Street to a point 250 feet east of the easternmost access to the High School. Traffic Facilities Charges shall be credited towards this improvement. The developer shall improve SR 510 to the Urban Arterial standard along the School Districts property abutting SR 510. The developer shall restripe SR 507 west of the intersection of SR 510 and SR 507 (Yelm Avenue and First Street) to Edwards Street with a dedicated left turn to at least Railroad Avenue. Traffic Facilities Charges shall be credited towards this improvement. Transportation Yelm is a small compact community most directly affected by two state highways, SR 510 and SR 507, which bisect the community. These state routes are used by local residents for transportation throughout the City, and for access to commercial and residential areas throughout the community as well as serving regional traffic. The updated Transportation element of the Yelm Comprehensive Plan identifies a number of improvements designed to avoid the need to significantly widen existing streets, and particularly Yelm Avenue. New development impacts the transportation system in Yelm and, unless the improvements identified in the transportation plan are constructed, the City would need to require developers to pay the cost of internal street widening. The City has adopted a Transportation Facility Charge (TFC) of $750.00 per pm peak trip. The TFC Ordinance provides a default table that is used to determine new peak PM trips generated by a proposed use, which in the case of a high schools is 0.04 peak PM trips per student. The TFC, assessed at the time of building permit issuance will be the trip generation rate multiplied by the number of students multiplied by $750.00. Credit is applied for the student design capacity of the existing high school. A credit shall be given for the design capacity of the present school, which is 932 students. The new High School has a design capacity of 1,325 students. The TFC would be 0.04 * (1325 - 932) * $750 = $12,000.00. The actual fee imposed may vary at building permit issuance if the design capacity is different than analyzed in this approval. The property fronts Yelm Avenue West (SR 510), which is identified as an ‘urban arterial’ street. The standards for an urban arterial includes a 12 foot center turn lane, 11 foot drive lane, a 5 foot bike lane, curb and gutter, an 8 foot planter strip and a 6 foot sidewalk. A Traffic Impact Analysis was reviewed during the environmental review for the Yelm School District Capital Facilities Improvements. The resulting Mitigated Determination of Nonsignificance listed conditions to mitigate impacts to the vehicle transportation system related to the high school. These mitigation measures should be conditions of this land use approval. Water Supply The City’s Water Comprehensive Plan identifies the property as being within the water service area and the property is currently served by City water. There is an 8 inch water line which serves the High School property from the south. The current fee to connect to the City water system is $1,500.00 per Equivalent Residential Unit (each ERU equals 240 gallons of water consumption per day). The District will be responsible for the difference between the number of ERU’s paid at the time of the initial connection of the High School to the water system and any subsequent purchases for expansions of the facility and the new design capacity. Sewer System The City’s Sewer Comprehensive Plan identifies the property as being within the sewer service area. There is a 4 inch sewer line located along the front of the property at Yelm Avenue West. Yelm’s Comprehensive Plan and Joint Plan with Thurston County addresses public facilities and utilities in Chapter V, which states at Section V.3.d that the City considers a septic system a temporary system within the urban area and incompatible with long-term urban densities. Development standards shall be developed to identify the timing and nature of funding and conversion obligations for septic systems in the urban area. Groundwater monitoring is appropriate in areas under septic tank management. Most of Yelm is in an area of extreme aquifer sensitivity. The current sewage treatment plant was required due to groundwater pollution concerns. For this reason, development at urban levels of density on septic tanks is not in the public interest. The City’s Development regulations implements the Comprehensive Plan at Section 7A.020 state that it shall be unlawful to construct or maintain any privy, privy vault, cesspool, or other facility intended or used for the disposal of sewage and to install or use any onsite soil absorption systems in such cases where the City’s sewer collection system is available for service as provided herein. The sewer collection system shall be deemed available when the premises are within 200 feet of the City’s collection lines. These policies and regulations have been codified at Section 13.08.020 (A) Yelm Municipal Code, which states that it is unlawful for any person to place, deposit or permit to be placed or deposited, any human or animal excrement, sanitary sewage or other objectionable waste, by any natural or nonnatural means in any manner, upon property of the city or private property within the city sewer boundaries, or in any area under the jurisdiction of the city, except through the city’s sewage collection system or through an approved on-site system as provided in this chapter. The property is currently served by an on-site sewage disposal system. The District has proposed to utilize the existing septic tanks during connection to the City’s sewer treatment system. STEP tanks are owned and maintained by the City of Yelm and the development guidelines require new tanks be installed at the time of development and deeded to the City at final approval. If the existing tanks are utilized, the District should enter into a maintenance agreement with the City that requires the District to replace the tanks when they fail or deteriorate to a level that the City would normally replace a STEP tank. The current fee to connect to the City sewer system is $5,269.00 per Equivalent Residential Unit (each ERU equals 240 gallons of water consumption per day). The number of ERU’s required to be purchased will be determined by approved water consumption calculations. It is the policy of the city of Yelm to reclaim 100 percent of the wastewater generated by the city and that reclaimed water shall be used within the jurisdiction wherever its use is economically justified, financially and technically feasible, and is consistent with legal requirements of Chapter 90.46 RCW, for the preservation of public health, safety and welfare, and the protection of the environment. Reclaimed water uses may include, but are not limited to, the irrigation of food and nonfood crops, landscape irrigation, impoundments, fish hatchery basins, decorative fountains, flushing of sanitary sewers, street cleaning, dust control, fire fighting and protection, toilet and urinal flushing, washing aggregate and concrete production, industrial cooling and industrial processes. Section 13.24.050 YMC requires that reclaimed water be used at identified reuse areas for consumptive beneficial use and ground water recharge areas. This information shall be used by city officials to mandate construction of reclaimed water distribution systems or other facilities in new and existing developments for current or future reclaimed water use as a condition of any development approval or continued potable water service if future reclamation facilities are proposed in the facilities plan indicating reclaimed water could adequately serve the development. The High School is identified as a reuse area and the City has planned to extend reclaimed water to the property boundary. Stormwater Impervious surfaces create stormwater runoff which, when uncontrolled and untreated can create health, safety, and environmental hazards. The City of Yelm has adopted the 1992 Department of Ecology Stormwater Manual, which requires all development to treat and control stormwater when over 5,000 square feet of impervious surface is created. The manual does not allow alternate treatments, such as media filtration or mechanical devices. The 2001 Department of Ecology Stormwater Manual, however, does allow certain alternate treatments when approved by the Department of Ecology. The District has proposed the use of alternate methods of stormwater treatment, which may be allowed provided the systems have been granted Conditional or General Use approvals from the Washington State Department of Ecology for the removal of total suspended solids and oil and grease removal. Alternate methods of stormwater treatment which rely on filter media generally require the scheduled replacement of media in order to remain effective. If alternate methods are utilized by the District, a maintenance agreement for the system should be reviewed and approved by the City. Parking The City of Yelm Development Guidelines, Design Guidelines, and Municipal Code address parking regulations from many aspects, including, but not limited to the design of lots, the number of stalls required, pedestrian pathways within lots, and safety. The requirements of off-street parking and loading facilities and their design shall be regarded as the minimum; however, the owner, developer or operator of the premises for which the parking facilities are intended shall be responsible for providing adequate amounts and arrangement of space for the particular premises even though such space or its arrangement is in excess of the minimum set forth. The minimum parking requirements for a High School is one (1) stall for every four (4) students of driving age, plus one stall for each classroom and office. Places of assembly such as gymnasiums and auditoriums shall be determined separately. The Americans with Disabilities Act (ADA) requires handicap accessible stalls. The requirements for ADA stalls for parking lots between 301 and 400 spaces is eight (8) accessible stalls with at least one of the stalls being van accessible. Fire Fire protection to the buildings must be provided per the International Fire Code. The specific requirements for installation of additional fire hydrants and fire lanes will be determined during civil plan review. The International Building Code (IBC) provides occupancy ratings for different types of uses, including schools. The fire coverage and sprinkler system for the proposed use must meet IBC requirements. Landscaping Landscaping and screening are necessary to provide screening between compatible and incompatible land uses, to safeguard privacy and to preserve the aesthetic assets of the City. Chapter 17.80 YMC requires all development to provide on site landscaping. Section 17.48.080 Open Space/Institutional setback requirements states that if adjacent properties are in any residential district, the year yard setback shall be a minimum of 25 feet and that the entire 25 foot depth shall be landscaped. The entire south property line borders residential properties. Through a previous land use application, it was determined that a waterline is located along a portion of the southeast property line and landscaping near this line would not be possible. As an alternative, privacy slats were installed in the existing chain link fence. The waterline angles off of the property line approximately 70 feet from the southeast corner. From this point to the western property line, a twenty five foot landscape strip with grass and trees, similar to a street tree planting scheme is possible and should be required. Type II landscaping is intended to provide visual separation of uses from streets, and visual separation of compatible uses so as to soften the appearance of streets, parking areas, and building elevation. This landscaping is used around the perimeter of a site when adjoining properties are compatibly zoned, and adjacent to buildings. Type III landscaping is intended to provide visual relief where clear sight is desired. This landscaping is utilized along pedestrian corridors and walks for separation of pedestrians from streets and parking areas. Type IV landscaping is intended to provide visual relief and shade in parking areas. Type V landscaping is required in storm water retention areas, if required. Type VII landscaping states that if landscaping is used as part of a required landscape strip along Yelm Avenue West (SR 510) or Yelm Avenue East (SR 507), the planting shall include at least one evergreen tree, three feet tall, planted at an average of 20 feet on center, but no greater than 30 feet on center. Refuse The City of Yelm Development Guidelines, Design Guidelines, and Municipal Code provides guidance for refuse storage and screening. Refuse areas are required to be assessable by LeMay, screened with a material and design compatible with the overall architectural theme of the associated structure, at least as high as the refuse container, and must be at least six-feet in height with a gate enclosure. No refuse container is allowed between a public street and the front of a building. Refuse collection areas must be designed to contain all refuse generated on site and deposited between collections and refuse should not be visible from outside the refuse enclosure. Conclusions of Law A. The Site Plan Review Committee has jurisdiction to consider and decide the issues presented by this request. B. The applicant has established that the request for site plan review approval satisfies all criteria set forth in Section 18.84.020 (C) YMC, meets all requirements of the Institutional District zoning classification, and meets all other requirements of the Yelm Municipal Code. Therefore, the site plan should be approved subject to the following conditions: 1. The applicant shall mitigate transportation impacts based on the P.M. peak hour trips generated by the project, which is 0.04 trips per student for high schools. A TFC of $750.00 per P.M. peak trip will be assessed for additional student capacity at the time of building permit issuance, and may be credited towards any required off-site transportation improvements. 2. Prior to final occupancy of the new High School, the following transportation improvements shall be completed: The applicant shall construct a center turn lane from the intersection of SR 510 and 93rd Street to a point 250 feet east of the easternmost access to the High School. Traffic Facilities Charges shall be credited towards this improvement. The developer shall improve SR 510 to the Urban Arterial standard along the School Districts property abutting SR 510. The developer shall restripe SR 507 west of the intersection of SR 510 and SR 507 (Yelm Avenue and First Street) to Edwards Street with a dedicated left turn to at least Railroad Avenue. Traffic Facilities Charges shall be credited towards this improvement. 3. The applicant shall connect to the City water system. The cost to connect shall include a fee of $1,500.00 per Equivalent Residential Unit. The number of ERU’s will be calculated on water usage based on the design capacity of the new facility with a credit for water usage based on the design capacity of the existing facilities. The applicant shall provide proposed water usage calculations and water usage calculations at the time of construction of the High School and at the time of any additions to the High School to the Community Development Department for review and approval in order to determine the average daily use. Water connection fees shall be paid prior to issuance of any building permit. 4. The applicant shall connect to the City S.T.E.P. sewer system. The cost to connect shall include a fee of $5,269.00 per ERU required beyond any ERU previously purchased. The number of ERU’s required will be determined by approved water consumption calculations. Sewer connection fees shall be paid prior to issuance of any building permit. 5. Upon completion of the onsite installation as per the City’s Development Guidelines, the S.T.E.P. sewer equipment, appurtenances and lines shall be deeded to the City, and an easement provided for maintenance. If the District chooses to utilize the existing tanks upon connection to sewer, the District shall enter into an agreement with the City which requires the District to replace the S.T.E.P. tanks at the expense of the District upon a determination by the City that the tanks have failed or deteriorated to a point that replacement is necessary. 6. The applicant shall connect to the City’s reclaimed water system at the time it is available. All irrigation systems shall be designed for and utilize reclaimed water. The civil plans shall identify proposed reclaimed water lines, meters, and valves. When available, all irrigation at the High School campus shall utilize reclaimed water. 7. The applicant shall design and construct all stormwater facilities in accordance with the 1992 Department of Ecology Stormwater Manual, as adopted by the City of Yelm. The City will consider the use of alternate technology under the 2001 Department of Ecology Stormwater Manual provided that the technology has been granted Conditional or General Use approval by the Washington State Department of Ecology for the removal of total suspended solids and removal of oil and grease. The District shall also provide a maintenance and operations manual, including a financial component, for review and approval by the City. 8. Parking shall be provided in accordance with the City of Yelm Development Guideline standards based on one space for every four students of design capacity, and one space for every office and classroom. The civil plans shall identify all proposed parking and access areas and shall include building plans showing all classrooms and offices on campus. Assessable spaces shall be provided pursuant to the ADA. The parking area must include provisions for delineated pedestrian access from Yelm Avenue and all parking areas to the school campus. Landscaping in parking lots shall be provided in accordance with Chapter 17.80 YMC, Yelm Development Guidelines, and Yelm Design Guidelines. 9. The applicant shall submit fire flow calculations for all existing and proposed hydrants in accordance with the International Fire Code and International Building Code. All hydrants must meet minimum City standards in the Development Guidelines. The applicant shall submit a fire hydrant plan to the Community Development Department for review and approval. 10. The civil plans shall include a complete landscaping plans in accordance with Chapter 17.80 YMC, including provisions for irrigation and for maintenance of landscaping. A Type II landscape buffer is required along the Yelm Avenue West frontage and the property line adjoining the Moose Lodge property. Type III landscaping is required on Yelm Avenue West frontage, with the additional evergreen planting requirements of Type VII landscaping. Type IV landscaping is required in all parking areas. Type V landscaping is required in any above ground stormwater facilities. A 25 foot grass landscape area along the southern property line shall be provided, including trees planted at 35 feet on center. 11. Refuse collection areas shall be designed to contain all refuse generated on site and deposited between collections. Deposited refuse shall not be visible from outside the refuse enclosure. Screening shall be of a material and design compatible with the overall architectural theme of the associated structure, shall be at least as high as the refuse container, and shall in no case be less than six-feet in height with a gate enclosure. The fence shall be a solid material such as wood or masonry, and shall be designed per the City of Yelm Development guidelines. The civil plans shall include the location of all refuse containers, including access approved by the service provider. Building plans shall include architectural details of the enclosure. 12. The civil plans shall include a phasing plan which addresses the timing of all improvements, demolition of structures and infrastructure and, at a minimum, ensures that the following standards are met at all times during construction: Adequate fire flow is available to protect all structures. Access for fire apparatus meets minimum Fire Code requirements. Potable water supply is available. Sewage is adequately treated. Pedestrian and ADA compliant access is provided from identified parking areas to and throughout those campus buildings in use. 13. No building will be granted occupancy until the following minimum standards are met. The phasing plan required as part of the civil plans shall identify how these requirements are to be met at the time of occupancy. The building shall be connected to the City water system and provide adequate fire flow and potable water for the structure. Access for fire apparatus must meet minimum Fire Code requirements. The building shall either be connected to the existing on-site sewage disposal system with approval from the Thurston County Health Department, or connected to the S.T.E.P. sewer system. There is sufficient parking per the Zoning Code for the facility. Temporary gravel parking is allowed provided that the spaces meet the dimensional requirements of Chapter 17.72 YMC, are clearly marked, and a pedestrian access route from the parking lot to the building is provided. Required ADA parking spaces and access meeting State ADA requirements shall be provided. C. The Site Plan is valid for eighteen (18) months from the date of this approval. The applicant may request a six-month extension on the approval, if the request is made in writing prior to the expiration date of this approval. If you need additional information or assistance, please call the Community Development Department at (360) 458-3835. Decision The request for site plan review approval is hereby granted subject to the conditions contained in the conclusions above. APPROVED this ____________ day of May, 2004. Grant Beck, Director of Community Development Site Plan Review Committee City of Yelm Appeal Site Plan Approval is a Type II Administrative land use approval. An appeal of this decision can be filed within 14 days from the date of this approval, pursuant to YMC, Chapter 15.49, Integrated Project Review Process. Any appeal must be in writing, contain specific factual objections, and include the appeal fee of $50.00.