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Home My WebLink AboutCity Council Committees - Planning and Economic Development Committee - 05/20/2003 • 40^ KENT - '� W ASH INGTON PLANNING COMMITTEE CITY COUNCIL Judy Woods May 20, 2003 Council President 220 Fourth Ave. S. Kent,WA 98032-5895 The City Council Planning Committee will meet in Council Chambers East, Kent Phone: 253-856-5712 City Hall, 220 4`h Avenue South, at 3:00 PM on Tuesday, May 20,2003. Fax:253-856-6712 Committee Members: Leona Orr, Chair Tim Clark Bruce White Action Speaker Time 1. Approval of Minutes of YES April 15, 2003 2. Land Use, Transportation, Air Quality NO William Osborne 10 min and Health Study in Kent East Hill 3. Planning Services Work Program NO Charlene Anderson 10 min —2003 4. Zoning Code Amendment YES Charlene Anderson 10 min #ZCA-2003-1, Auto Repair as Home Occupation— Extension of Amortization Period 5. Zoning Code Amendment YES Charlene Anderson 10 min #ZCA-2003-3, Auto Repair and Washing Services in M-3 Zoning District 6. Zoning Code Amendment YES .Kim Marousek 10 min #ZCA-2002-2 NCC, Neighborhood Convenience Commercial District The Planning Committee meets the third Tuesday of each month at 3:00 PM in Chambers East,Kent City Hall,220 4 Ave.South,unless otherwise noted. For agenda information please contact Jackie Bicknell at (253) 856-5712. ANY PERSON REQUIRING A DISABILITY ACCOMMODATION SHOULD CONTACT THE CITY CLERK'S OFFICE AT(253)856-5725IN ADVANCE. FOR TDD RELAY SERVICE CALL THE WASHINGTON TELECOMMUNICATIONS RELAY SERVICE AT 1-800-833-6388. ITEM AA .----PLANNING COMMITTEE May 20,2003 LAND USE, TRANSPORTATION , AI QUALITY AND HEALTH STUDY IN SENT EAST HILL (LUTAQH) Staff will discuss the Cent East Hill study. COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director PLANNING SERVICES • Charlene Anderson,AICP, Manager K E N T Phone:253-856-5454 WASHINGTON Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 DATE: May 13, 2003 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: WILLIAM D. OSBORNE, PLANNER THROUGH: MAYOR JIM WHITE SUBJECT: LAND USE, TRANSPORTATION, AIR QUALITY AND HEALTH STUDY IN KENT EAST HILL (LUTAQH) SUMMARY: A research team has identified Kent East Hill as an area with an ideal mix of retail, office, commercial and residential land uses. However, these land uses are disconnected from each other by fences, and streets that are not pedestrian-friendly. The consequences of such disconnection and dependence on automobile use are being evaluated in a study called "Land Use, Transportation, Air Quality and Health (LUTAQH)" The findings of the study may provide the basis for future County allocation of transit and other transportation-related resources. BUDGET IMPACT: According to King County, the City could qualify for a $100,000 TEA-21 grant for seed projects in Kent East Hill related to the study findings. MOTION: None needed—For Information Only. BACKGROUND: The Land Use, Transportation, Air Quality and Health Study (LUTAQH) is a multi-disciplinary effort that has included public health professionals, transportation engineers, banking officials, and urban planners. Planning Services staff has assisted and advised King County and associated partners in collecting data and increasing survey participation. The research team has been collaborating with the Federal Transit Administration, the National Institutes of Health, the Centers for Disease Control, and the Puget Sound Regional Council to gather household-level response data for three case studies in the Puget Sound, and sixty-four (64) case studies nationwide. The consequences of disconnection and dependence on automobile use have been noted in case studies -- walking and other moderate physical activities are limited (reference materials are included in the agenda packet). The rates of obesity, asthma, and other chronic diseases are anticipated to be higher in study areas with limited facilities for pedestrian travel. A copy of a PowerPoint presentation to be presented by staff at the May 20"' meeting is included in the packet. WO\pm S:1Permit\Plan\Planning Committce120031LUTAQHmemo.doc Enc: PowerPoint presentation Status Report on Countywide Data Analysis,Lawrence Frank and Company,Inc.(Dec.2002) Environmental Correlates of Walking and Cycling:Findings from the Transportation,Urban Design,and Planning Literatures(2003) • Creating a Healthy Environment:The Impact of the Built Environment on Public Health(2001) Urban Sprawl and Public Health(2002) cc: Fred N.Satterstrom,AICP,CD Director Charlene Anderson,AICP,Planning Manager Steve Mullen,Transportation Engineering Manager Project file f r COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director PLANNING SERVICES Charlene Anderson,AICP, Manager • K E N T Phone:253-856-5454 WASHINGTON Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 DATE: May 13, 2003 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: WILLIAM D. OSBORNE, PLANNER THROUGH: MAYOR JIM WHITE SUBJECT: LAND USE, TRANSPORTATION, AIR QUALITY AND HEALTH STUDY IN KENT EAST HILL (LUTAQH) SUMMARY: A research team has identified Kent East Hill as an area with an ideal mix of retail, office, commercial and residential land uses. However, these land uses are disconnected from each other by fences, and streets that are not pedestrian-friendly. The consequences of such disconnection and dependence on automobile use are being evaluated in a study called "Land Use, Transportation, Air Quality and Health (LUTAQH)" The findings of the study may provide the basis for future County allocation of transit and other transportation-related resources. BUDGET IMPACT: According to King County, the City could qualify for a $100,000 TEA-21 grant for seed projects in Kent East Hill related to the study findings. MOTION: None needed—For Information Only. BACKGROUND: The Land Use, Transportation, Air Quality and Health Study (LUTAQH) is a multi-disciplinary effort that has included public health professionals, transportation engineers, banking officials, and urban planners. Planning Services staff has assisted and advised King County and associated partners in collecting data and increasing survey participation. The research team has been collaborating with the Federal Transit Administration, the National Institutes of Health, the Centers for Disease Control, and the Puget Sound Regional Council to gather household-level response data for three case studies in the Puget Sound, and sixty-four (64) case studies nationwide. The consequences of disconnection and dependence on automobile use have been noted in case studies -- walking and other moderate physical activities are limited (reference materials are included in the agenda packet). The rates of obesity, asthma, and other chronic diseases are anticipated to be higher in study areas with limited facilities for pedestrian travel. A copy of a PowerPoint presentation to be presented by staff at the May 20th meeting is included in the packet. WO\pm S:\Pernut\Plan\Planning Committee\2003\LUTAQHmemo.doc Enc: PowerPoint presentation Status Report on Countywide Data Analysis,Lawrence Frank and Company,Inc.(Dec.2002) - Environmental Correlates of Walking and Cycling:Findings from the Transportation,Urban Design,and Planning Literatures(2003) Creating a Healthy Environment:The Impact of the Built Environment on Public Health(2001) Urban Sprawl and Public Health(2002) cc: Fred N. 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Kent East ii,li Stnpr _ �halleng�s � �. 7icl5t hider s�ilgle; j developments no F f other use and are continuous sidev✓alks b- es # streets Fever connections among high density multi-family developments ' and other uses than for single-family''' developments -.Pact rnmmarrial deu<elnr5ltaent a ; Re tea team su r June«_ _::Continued cflor d3nd - regarding participatitx and survey results Review research tea m"hni air dly5' .when available:erad of2l)W? �=- -rzifeligiblefor7EA 2LgrantFupding, corsiderseed-project options - THA aa � a [ i T f A Status Report on Countywide Data Analysis LandUse Jim PA r i i i i "✓ i 1 i i I ( i i I i l y I rz i Prepared For: The King County Land Use, Transportation, Air Quality, and Health Study Prepared by: Lawrence Frank and Company,Inc. December 2,2002 i Status Report on Countywide Data Analysis Page 2 Study Purpose To meet regional mobility, air quality, and public health objectives, it is essential that actions be taken to curb the ever-increasing dependence on the single occupant vehicle. An "action oriented" response is required to provide meaningful and lasting solutions to improve both local accessibility and regional mobility within King County. This study is aimed at directing pedes an and transit-oriented investments and supportive land use actions to create livable Communities, improve mobility through alternative modes of transportation, and increafie levels of physical activity and overall health. As Figure 1 illustrates, there are critical issues at the interface of transportation investment, environment, and health. Through this effort, we will identify strategies that support synergies that exist betwen these "seemingly disparate" policy areas shown in Figure 1 such as promotion of pedestrian oriented environments that mitigate auto usage while promoting physical activit�, reduced levels of obesity, and public health. Figure 1 —Related Policies rt p To date, many efforts to implement transit supportive land use and transportation <t► �► investments have met with resistance in the public and private arenas. This program is designed to equip the County with research- OV' based evidence of the merits of implementing various approaches to land use and o d transportation investments that are in alignment with the policies and plans already adopted by ,. the county, PRSC, and the State of Washington. While the questions that are raised in this study are neither new nor specific only to King County, the fact that a local government is taking the initiative to conduct this effort is noteworthy. Local goverriments are charged with the responsibility of implementing land use and transportation decisions, yet to date, few, if any local governments, have taken the initiative to learn fiVst hand how various land development and transportation investment strategies could be implemented to meet adopted policy. Through this program, a range of land Use strategies and transportation investment options are tested to assess their individual an4 collective efficacy towards the promotion of local accessibility on foot or bike and regional mobility via transit and other higher occupancy modes of travel. Underpinning this exercise is the desire to offset traffic congestion and air pollution while promoting]physical activity. . King County's Leadership While past studies have *ssessed the relationships between land use and travel choice, these efforts have fallen siort in the implementation arena. Studies suggest that increased levels of land use mix, 4iensity, and street connectivity help to promote walking and December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 3 transit usage and reduce vehicle miles of travel and harmful emissions. Unfortunately, these efforts have not led to widespread buy-in by local governments responsible for land use decisions. In addition to land use, King County is also the primary provider of transit service countywide. Our findings will be used to help the County in its planning and allocation of transit service and the direct integration of transit provision and transit supportive land use. Foremost is the considerable leadership being expressed through this initiative by the King County Executive Ron Sims for the promotion of smart growth. This assessment of land use and transportation relationships provides a basis for the allocation of transit and other transportation related resources based upon local land use decisions countywide. Policy Framework A legislative foundation exists on the federal, state, and regional levels, as shown in Figure 2, which encourages jurisdictions, such as King County,to invest in the expansion of non-motorized travel choices, improved air quality, and the livability of urban and suburban areas. Figure 2: Relationship Between Federal, State, and Regional Policies (this graphic needs to be redone) LAND USE TRANSPORTATION AIR QUALITY Washington StateGruwtb , Transportation Efficiency Puget Sound Vision 2020 Act(ISTEM of 1991 � I State Implementation , , .a � � co�tcncy ,• Range , , , , wmm9 __841 Plan(LRTP or NITP) Plan(SIP) Development I , , P7 1 , Ines (Source: WSDOE, Carr and Frank, 1999) In addition to federally funded programs which link transportation, urban form, and air quality, such as the Transportation Equity Act of the Twenty First Century (TEA-21) and the Clean Air Act Amendments (CAAA), a relationship between land use and transportation and also between transportation and air quality is shown at the policy and implementation levels within Washington State, the Central Puget Sound Region, and King County. As seen in Figure 3, efforts such as Washington State's Growth Management Act (GMA), Puget Sound Regional Council's (PSRC) Destination 2030 Metropolitan Transportation Plan, PSRC's Vision 2020 Growth Management Plan, the King County Comprehensive Plan, and the King County Six Year Transit Development Plan speak to the connection between transportation, land use, and air quality and the need for continued coordination between policy and implementation strategies. December 6,2002 Lawrence Frank and Company, Inc. Status Report on CountyVvide Data Analysis Page 4 Figure 3: State,Region4l,and County Policies Land Use ITransporwaon and Air Quality Washington State Growth Management Act IState Transportation Policy Plan Central Puget Sound Region Vision 2020 stination 2030 King County Comprehensive Plan ix Year Transit Development Plan I New Air Quality Policies In terms of air quality, the EPA has released non-attainment area designations for the following pollutants: ozone (03), carbon monoxide (CO), and small particulate matter (PM10). Washington hod three non-attainment areas: Seattle-Tacoma, Spokane, and Vancouver (PSRC, 199j). Due to having met federal standards for several years, a portion of the Central Puget Sound Region including Pierce, Snohomish, and King Counties, was re-designated by the EPA as a maintenance area for CO and 03. The three PM10 areas have also *t federal standards for the past several years and on May 14, 2001, were re-designated as maintenance areas (PSRC, 2001). However, there is growing concern that regional air quality may be on the decline once again with worsening traffic congesttion, and increased regional VMT associated with population growth. The implement tion of the 8 hour standard for defining an ozone exceedance reduces the acceptable threshold from 120 ppb (one hour) to 80 ppb (8 hours) and threatens the regions attainment status once again and makes the findings of this research directly relevant to regional transportation decision making processes. Other Air-Borne Polluta!is -- Additionally, recent evidence suggests that high levels of bezene, and other harmful gases exist in the region. Limited research exists on the sources of these pollutants. Other evidence documents 'a strong linkage between cardiovascular disease and exposure to smaller particulate(PM 2.5). While outside of the scope of this effort, it is critical to consider the effect of these pollutants and their likely linkages with travel choide and public health. While no specific provisions exist for the reduction in greenhouse gases for any region in the U.S., through this study, the Central Puget Sound is providing,leadership for other regions of the U.S. by acknowledging that CO2 is a serious threat to;the future health of our entire ecosystem. Public Health Initiatives There are no federal policies to specifically monitor and to regulate the effects of land use and transportation decisions on physical activity. However, zoning and other development regulations require the careful documentation that land use decisions be in the best interest of public health, safety, and welfare. A large body of evidence documents that moderate forms of physical activity, such as walking and bicycling have beneficial impacts on.health (Blair, et al, A .Report of the U.S. Surgeon General 1996). Public policy interventions designed to improve regional mobility, traffic congestion, and December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 5 + air quality can simultaneously generate significant public health benefits through increasing levels of moderate physical activity. The idea that potential synergies exist • between these economic sectors is far from; new nor is it revolutionary. Frederick Law Olmsted was both a Sanitary Engineer as well as a leading figure in the development of Urban Planning and Landscape Architecture professions. Land use decisions and transportation investments have important but, for the most part, poorly understood influences on walking and bicycling, and, hence, public health. It is believed that the influence of urban form, through micro scale design as well as land use allocation, can have a significant effect on physical activity and public health. Emerging evidence in Atlanta and in Seattle suggests that residents of denser, mixed use, and more connected urban environments are slightly less overweight, all else being equal (Frank and Schmid, 2002). Obesity is a primary predictor of the onset of a host of chronic ailments including cardiovascular related disease and diabetes — two of the most prevalent health concerns of our time. This program funded by King County will provide important information to planning practitioners in the form of much needed information and tools to evaluate the health impacts of specific proposed land use and transportation investment actions leading towards the ideal of a more"health-promotive" environments. Figure 3 Activity Status & Health Recently, the Robert Woods Johnson I Foundation released a call for proposals targeted at the creation of places where physical activity is built into daily routines r once again. Collectively, tools are clearly needed for the evaluation of the overall • �' health related outcomes of given land use t sM and transportation actions. A Health Impact , }, Statement is being considered on several y ' fronts as one approach to addressing the µ need for clear guidance on evaluation of health outcomes of community development A ' z and civic redevelopment. The research that results from this and other related efforts y wi, lll contribute towards this ideal and ti.,... positions King County and the Central Puget Source: Blairet al,1996 Sound as a leader in this area Through technological advancements, industry is becoming increasingly footloose making other quality of life factors primary considerations for business location decisions. Over the coming decade, research will be emerging pointing to primary indicators of a healthy community and regional environment. Those region's that embrace the public health component of community development will likely improve their competitive edge against other regions for business development and economic prosperity. There is no doubt that the stage has been set in King County to develop plans that are consistent between transportation, land use; air quality, and health. The next step is to create better measurements to support transportation investments, development decisions, and behavioral outcomes. • December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countyw4de Data Analysis Page 6 Figure 4 -Applying the Results Methodology The methodology can be classified into three main Omponents: database developments model kStra egtes testing, and the creatipn of an implementation plan for! the three case studies: Kent East Kill, White Center,and Redmond. Communi Oplications The overall methodology for this 4,� 1 project is to inform land use and Kent East Hill Redmond White tenter transportation investment decision- making with objective, locally-based E f f e c t s Land Use research. The project uses state of Travel patterns Demographics the art data developed and collected within the Central P et Sound Attitudes Economics Region by King County d the Puget Sound Regional Council. Specifically,this project incorporates King County Parcel level land use data and Puget Sound Regional Council Travel data. For the database development portion of the project, several types of information, including the parcel based land use data, were obtained and stored in an organized, relational system. A Geographic Information Systems (GIS) format enables household locations, travel choices, and physical activity patterns to be spatially analyzed with attributes of the urban form. Several categories of information were necessary to perform research on the linkage beitween travel behavior,health, and disaggregate land uses at the regional and community levels. These categories of data are listed below and illustrated in Figure 5. • residential locations h, Geo-coded Silver and demographic ; .. � 4r = i Sneakers Physical trs.. ya ia, 4 . information for Health Dataset several thousand l-Jan Network Buffer participant with Land Use households, Trip O-D from FEQ • participant's travel ® [FIN Activity choices, Land Use Measures: • participant's level of Retail Floor Area health, 2000 Census Data by. • characteristics of the ! Blockgroup land use and transportation system,; kffl :v Transit i • and jurisdictional ' 'ik: '+ .r.` , = ,' <; ;` Road boundaries such as year 2000 CenSUS Parcel Level Land Figure 5—Data layers December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 7 blockgroups and traffic analysis zones. h l i Disaggregate land use measures were created based upon the development of a F;: one-kilometer and '/4 mile network and radial (crow-fly) buffers around lfle Hatiic `: household and employment locations of survey participants. The buffer shown in Figure 6 resents that area Bea► � � : � � represents that that is within a given network based travel distance from a survey household or place of employment. Measures of urban form were tested at y differing scales of analysis. The Pali x' i ja, project database supports very detailed =1 exploration of the relationships between various ways in which land Figure 6—Network and Crowflv Buffers use is measured such as square feet, land area, and numbers of times a given type of land use appears within a households immediate environment. Therefore, we were able to test the effect of having five restaurants within walking distance from a household versus only one or two. The results of this analysis suggest that the number of commercial uses have a far greater effect on promoting pedestrian travel than the amount of square feet of a given use. Otherwise stated, people are far more likely to walk to • dinner in their neighborhood if there is a wider selection of restaurants than if there are a few very large restaurants. This finding has an implication on the grain at which commercial land uses are provided within residential areas. For example, a large number of smaller establishments are more pedestrian friendly than fewer but larger establishments. Employment buffers drawn at the %< mile were used in a separate analysis of the journey to work with an emphasis on transit usage. These land use data are then related to the travel patterns of survey households as shown in Figure 7 which conveys the overall project database structure — which incorporates land use, travel, and air quality datasets. Figure 7—Database Structure • December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 8 The database structure sown in Figure 7 enables relationships between urban form and travel choices to be assessed while controlling for specific demographic characteristics of survey populations. Regression and other modeling tools have been employed to enable us to model the effects pf collective sets of land use variables on travel. The resultant models provide a means!to predict how much change in a given travel variable (vehicle miles of travel or walk ti[ip frequency) may be expected from a given change in land use (density,mix, connectivity, or micro scale changes in the pedestrian environment). These models will be employel,d in the next phase of the analysis within each of the survey communities. As shown in Figure 8, below, the land use information was delineated into a range of fine-scaled and course-scaled categories. The ability to study and model land uses such as "neighborhood retail;" "grocery stores," and "fast food restaurants" in relation to household travel choice end level of physical activity paints a clearer picture of the true relationships between urban form, transportation decisions, time use, and activity patterns. Figure 8—Collapsing Land Use Categories Fine to Coarse NP-11 FfjIgliN4mes> K S o�Je Family ,k E i _. Residential _ ..,. . Sin 'le�ami1Ay- a'l � zt Mu1iFFamdy2 F nits ....... Family fwlull-fatr�tYU o tvtorevJmts _` a i Fine-Scaled Course-Scaled i December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 9 Estimating Vehicle Emissions • Relationships between land use and travel choice will be extended to household vehicle emissions through an extrapolation process whereby the air pollution generated for each vehicle trip in the travel survey is calculated. The methodology that will be used includes a new technique to break household trips into the percentage of the trip spent on various road facility types. A network algorithm will be run based on the regional model network's loaded speed for peak and off-peak periods. By including the facility type in this analysis, the model's loaded speed, rather than an average trip speed, is used as a factor to determine emission rates, as shown in Figure 9, below. USEPA sanctioned methods will be used to run the emission estimates to predict gram per mile emissions of HC (hydrocarbons), CO (carbon monoxide), NOx (oxides of nitrogen), and PM (particulate matter) for single and multi-occupant vehicles. And as has been done in previous studies, trips will be broken into emission-specific trip components as it is known that more emissions are released during the cold start portion of the trip. Figure 9: Household Emissions Modeling Methodology oo • • o o - o - o • • u Local RoadIt x aa Minor Artenal Major Arterial is a3s ?wF;.•i Freeway , a - = x i Jk 'Y ay DestUwfbn i�- s Following the production of emission estimates, this critical information will be incorporated into the overall project database to study in relation to aspects of the urban form, as shown in Figure 10, including the intermixing of land uses, street connectivity, and residential and employment density, to name a few. However, the Neighborhood • December 6,2002 Lawrence Frank and Company, Inc. Status Report on County-Wide Data Analysis Page 10 Quality of Life Study is providing additional data collection, including detailed measurements of pedestt<ian infrastructure (sidewalks and crosswalks), buffers from vehicular traffic, building setbacks, and other factors that impact non-motorized travel. Figure)10: Urban Form and Household Emissions Residential Buffer _ i ••„•• Ic _ Local Road � tt i�1`'?�pNI— �—T^ ^�.�T-•-a..—,7,�t�y ; Ly`^- dry! Minor erlal > g - 'Ar Malor Arterial U i FreewayL: d� "YZ 1 � f / I The argument has been made that land use is an important predictor of travel patterns and mobile source emissions jby recent studies including LUTRAQ, Studies by the Center for Neighborhood Technology, and studies within Seattle and Atlanta (Frank, Stone, and Bachman, Transportation Research -- Part D. 2000). These latter efforts are unique in that they directly associat,es vehicle miles of travel, modal choice, and vehicle emissions per household with land] use density and street network connectivity in which a given household is located. ' 'his project will build on these earlier studies funded by the Washington State Department of Ecology and the Turner Foundation and will be the first study of its kind to systt matically associate greenhouse gas emissions with urban form and travel choice at a "s b-trip" or trip link level. A great deal of the thought that has gone into the methodological development process is based on the sensitivity between specific pollutants and vehicle speed. This approach represents a farily sophisticated application of street ne4vork and travel data assignments to estimate per trip vehicle emissions. i i Demographic Profil� The following tables ano figures present a general demographic profile of the activity survey respondents. To determine the accuracy and representativeness of this sample, the data is compared againsj data from the 2000 US Census for King, Kitsap, Pierce and Snohomish counties. December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 11 Racial Makeup of Survey and Region Table 1:Racial Makeup of Native Survey Respondents White Black Asian American Other Activity survey 92.3% 2.0% 3.8% 1.1% 0.8% 93%of survey respondents 2000 census 82.2% 5.1% 9.1% 1.2% 2.4% reported themselves as being Source: Activity Survey Data and 2000 U.S.Census white, compared to 82%of individuals classified as white according to the US Census. Age Pyramid of Activity Survey Respondents Figure 11:Age Pyramid of es i Survey Respondents 80-04 i ` 75-79 : Females Males i i j 70-74 W-69 ' 60E4 SS59 � SP>4 Q 45-49 u 40-44 OWN w a 3539 30-34 25�29 20-24 15-19 NONE 10-14 5.s oa eoo 600 400 200 0 200 400 60o eoo Popubdon • 1998 Household income of Survey Respondents Figure 12: Household Income of Survey Respondents goo The majority of survey 700 households fall into the largest coo income category. Soo a s 400 e 5 300 200 IMENEE 100 0 <$10,000 $10,000ro $15.000 m S25,000 W 535,000 W $45.000 W $35,000 W >S75,000 $14,999 S24,999 SO4,999 S44,999 $54,999 $74,999 Househdd bmm December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 12 Automobile and Bicjcle Ownership Patterns Figure 13:Automobile and Bicycle Ownership Patterns 1,600 075 The average household owns 12r6 1.9 automobiles and 1.6 1,zoo bicycles 9 O y 8DO g 4635 m 453 400 185 l38 45 100 31 63 0 0 1 2 3 4 3 6t Numberof Vehiclm EA=rn&iles ®Bicycle Demographic Characterisfts Table 2: Demographic i Activity Survey 2000 Census Characteristics of Survey A verage Household Size 2.4 3.1 Respondents Percentage White 92% 82%, Female 52% 50% The average household owns Median Respondent Age 40 35 1.9 automobiles and 1.6 bicycles The typical survey household owns 1.9 automobiles and 1.6 bicycles, over$75,000.Activity Si rvey respondents were more likely to be wluie man me population of the 4-Courlity region as a whole (92%vs. 79%), had a slightly smaller household size (2.4 vs. 3;1 persons per household), was slightly more likely to be female, and had a higher median age. When compared against their proportions in the 2000 Census,populations clas$ified as black or Asian were underrepresented in the Activity Survey. Land Use Profile Table 3 summarizes the distribution of land uses in King County by the number of parcels,the useable square footage in that land use type, and the total acreage. Each of these measures is import4nt for different portions of the analysis in later sections of this report. Land Use Distribution Leasable square Table 3: Land Use Distribution Number of Patcels Footage Total Acreage Single Family 79.1% 47.0% 50.1% Single-family residential is the Multi-Enmity a s% 22 s% 7 s% dominant land use type in King vacant s 4° NiA ..15 ago County,both in terms of number .,,.3., N..-V . . V., Entertainment 0.6% ,fi?3.3%4� . ,,,., 29%0.9% of parcels, as well as total Recreation 0 2% NIA 6 4% acreage. Office 'C 046 147'�G6 �8% industrial t�°G n N!A 539ra Institutional.._,.. , ..0.570 6.7% ..<.., x . ..a,..:..,.3.0% ., Educational 0 2% 3 6% 5 4% Open Space 0 0% NfA 0 9% NIA' 2% December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 13 Recreational and industrial parcels are typically quite large, while single-family residential parcels are proportionately smaller. It is interesting to note the disparity in the distribution across number of parcels, square footage, and total acreage. Describing Land Use Countywide Land use data collected a the parcel level can be aggregated to a household's immediate environment as shown above through the creation of a buffer or area around a household, or to any other geographic unit deemed desirable. For the purposes of analyzing land ute in conjunction with available demographic information provided from the 2000 census, land use information is aggregated to the census block group level enabling comparisons i h H tl 4 r t 't tF t. i Walkability Low TI - Medium: High • December 6,2002 Lawrence Frank and Company, Inc. Status Report on County*ide Data Analysis Page 14 to be made between survey households and other nearby households to gain a sense of representativeness. Censbs data also provides data on a variety of factors that are important for this study including the medial age of development for a given area—which is an excellent proxy of the presence of sidewalks. Figure 14 shows where the highest levels of intersection density, land use mix,net residential density, and floor area ratio of retail,exists within King County. This map conveys an important variable that captures several aspects of walkability which is used in the modeling section of the final report. For the purposes of our a> alysis, walkability is measured at the '/.mile buffer around each survey household. j Travel Profile The following section provides descriptive information on the travel behavior for King County, including trip de captions, mode shares for each trip type,as well as summary information on household VMT and VHT. Trip Purposes and N1lode Shares Other 8.9% Work Pick Up/Drop Off 17.7% Figure 15:Trip Purposes 11.8% Work trips accounted for only Work-Related 18%of the total trips made by a 5.0% household, suggesting that land use mixtures aimed at capturing School non-work trips may have a Social/Rec. 6.7 significant impact in reducing 14.6% household travel demand. Eat Out Shop 5.7% 18.3% Personal Business 11.1°k i I i December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 15 King County Activity Survey Trips,By Mode Figure 16: Mode Shares • For all trip purposes, the single occupant vehicle is the single largest travel mode, followed closely by multi-occupant Vehicle vehicle trips,including passenger trips, carpools and vanpools. Carpooling is prevalent for shopping and other Bus non work purposes. Other 0.2% BoatlFerry Pedestrian 0 3% Bicycle 6A% 1.1Ya VMT and VHT 600 Figure 17:Household VMT 500 The average household generated 76 vehicle miles of 400 travel during the two-day survey period, which equates to roughly 37 vehicle miles of travel per y 300 household,per day. a 0 t m � 200 0 S 0 100 Std.Dev=65.22 Mean=76.2 z Z 0 N=2822.00 00 poo 9007-'Oo sOO�Oro eOo2Oo 60 700°o�O 1 10 Vehicle Miles Traveled (VMT) December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 16 600 Figure 18: Household VHT 500 The average household generated 3.8 hours of vehicle travel over the two-day survey 400 period, which corresponds to 1.9 hours of vehicle travel per household,per day. m 300 v c W ro j 200 0 2 0 m 100. Std.Dev=2.49 oa £ Mean=3.8 n Z 0 N=2829.00 0.0 2.0 4.0 6.01 8.0 10.0 12.0 14.0 16.0 18.0 1.0 3.0 5.0 1.0 9.0 11.0 13.0 15.0 17.0 Vehicle Hours TrOveled(VHT) Urban Form & TraVel Behavior Relationships The preliminary analysisi component of the project shown below involved using partial correlations where controls were made for several of the demographic factors shown above that also influence travel. Following the development of correlations, statistical regression was performed to help explain and predict the observed relationships. Multiple land use variables were measured to explain the effects of their presence on other variables, such as (transit ridership. Additionally, variables were created to help explain phenomena observed in the correlation process. The findings from these statistical relationships will be presented in the form of a powerpoint presentation and explained to the Advisoky Committee in person. Then a follow up report on these findings will be released along with the assessment of the application of the most promising strategies within the three specific case study locations. Several findings and recdmmendations for the region and case study areas are conveyed below. These are merely draft suggestions and have yet to undergo careful scrutiny required to assess their !utility or their likely acceptability. For the region, findings included, but are not limited to,the following: 1) Intersection Density a. An excellOt predictor of the frequency of walk trips for non work . purposes. b. Connectivity is important at both residential and employment environments. December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 17 i. People that live and work in places with good connectivity are far more likely to rely on other modes of transportation than the car than are people that only live or work in a connected environment. c. Connectivity is a fundamental partner with density for the journey to work — being near to transit in space does you little good. People that live in dense places with high levels of connectivity are more likely to use transit. d. Connectivity is an essential partner with land use mix for reducing auto usage for the non-work trip within residential and commercial environments. Images are same scale,approximately I sq mi. I t4 i I iI I I i V e. Connectivity does not capture the presence of pedestrian infrastructure • like sidewalks — and therefore can result in the misspecification of findings. f. Connectivity predicts at the margins — the likelihood to be more overweight g. Revealed no direct correlations with specific disease onsets, however cardiovascular had a weak correlation 2) Land Use Mix a. Appears to be more powerful when measured at the '/< mile buffer than at the 1 kilometer buffer level i. Implications for needing to have services within a shorter walk distance from households 1. Supports rapid distance decay functions b. Numbers of retail establishments and restaurants and taverns within a walking distance of households was the strongest predictor of the choice to walk-- all else being equal. c. The land uses most strongly correlated with the percentage of household walk trips proved to be educational facilities, commercial office buildings, restaurants and taverns, and neighborhood-scale retail establishments. Of the seventeen land uses measured, only high-tech industrial uses and office parks failed to have statistically significant correlations for any of the three measurement categories (see Table 4). December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 18 Table 4-How{j Specific Uses Impact Travel Choice Correlations Between Land uqe and%Household Walk Trips (Controlling for Household Size and InoOme,Street Connectivity and Sidewalk Density) Land Use Type ]Viumber of Attractions Rentable Building Area Total Parcel Area Civic i 0.2073(P=0.000) 0.1683(P=0.000) 0.0806(P=0.000) Convenience Stores 0.1183(P=0.0001 0.1060(P=0.000) 0.0472(P=0.000) Doctor-Dentist Offices 0.1394(P=0.0001 0.1661 (P=0.000) 0.0568(P=0.0001 Educational 0.2594(P=0.000) 0.1427(P=0.000) 0.1421 (P=0.000) Entertainment 0.1166 (P=0.000) 0.0066(P=0.728) 0.0057(P=0.7641 Fast Food Restuarants 0.1042 (P=0.000) 0.0985(P=0.000) 0.0630(P=0.001) Grocery Stores 02174 (P=0.000) 0.1717(P=0.000) 0.1194(P=0.000) High-Tech Industry -0.0222(P=0245) -0.0206(P=0.279) -0.0222 (P=0.486) Museums 0.0729 (P=0.000) 0.0424(P=0.026) -0.0056(P=0.767) Office Buildings 0.2557 (P=0.000) 0.2280(P=0.0001 0.1615(P=0.000) Office Parks 0.0074 (P=0.698) 0.0024(P=0.8991 0.0037(P=0.845) Ofce-Miscellaneous 1 0.0718(P=0.000) 0.0486(P=0.011) 0.0587(P=0.002) Parks 0.1206 (P=0.000) NA 0.0211 (P=0268) Playgrounds 0.0665(P=0.000) NA 0A168(P=0.379) Recreational 1-0.0093(P=0.627) -0.0176 (P=0.356) 0.0147(P=0.442) Restrirants and Tavems 10.2757(P=0.000) 02432(P=0.000) 0.1423(P=0.000) Retail-Large 10.1302(P=0.000) 0.1108(P=0.000) 0.0419(P=0.028) Retail-Neighborhood 02965(P=0.000) 02920(P=0.000) 0.1456(P=0.000) Vacant Parcels -0.0369 (P=0.053) NA 0.0160(P=0.401) • Transit and Mixed UsR -- The statistical analysis supported the notion that the ideal land use scenario is a 4mited number of household supporting land uses on the activity side, and a large Bodies of water number of work, Parcels shopping, and. , Agriculture 11 civic entertainment attractions Educational I ®Fntertainrrient on the destination end.; Food Establishment Industrial Institutional Manufacturing • Residential Density - In W wrd-Family Residential addition to the well- MOpenspace known fact that density is CXher Parting required to concentrate M Rectealional Retail trip ends and to facilitate - '_:SingleFamilyResidential walking and transit, this vacant research also confirmed that density is also a fair predictor of body weight. Therefore, residents of higher density environments have a tendency to weigh less - all else being equal. • Physical Activity-- Self reported overall levels of physical activity are not correlated with urban form. Objectively reported measures of physical activity - using accelerometers - are correlated with urban form. Especially for moderate levels of physical activity which is associated with non-motorized travel (Sallis and Saelens, Comparative Study ofTwo Communities in San Diego 2002). • Physical Activity -- SOf reported levels of non-motorized travel are correlated with urban form. December 6, 2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 19 Application to Case Studies These relationships are intentionally stated in very simplistic form. However, the models that have and that will be developed can be applied in specific settings enabling the testing of the relative effects of certain strategies on travel choice. It is important to note that these relationships are likely to vary between communities and thus community specific data is required to calibrate where along a continuum of urban form and travel behavior one is starting from. This is particularly the case because urban form and travel choice interactions are non-linear—meaning that a given unit of gain in density from 2-4 dwelling units per acre may not result in any change in travel choice, but an increase in density from 6 to 8 dwelling units per acre may yield a measurable increase in transit ridership, or level of walking,all else being equal. One of the more interesting findings of this study, from an implementation perspective, is that the type of land use and transportation investment measure employed in planning guidance documents such as comprehensive plans may have an effect on the overall effectiveness of the result. For some measures, the rentable floor area proved to be the best measure for increasing walking, for others, the number of unique attractions proved most important. Selecting the right unit of measurement allows practitioners to better measure their progress as they attempt to achieve goals such as encouraging switches to non-motorized modes. Appropriate performance measurement is necessary for successful implementation. Case Studies White Center, Kent East Hill, and Redmond were selected with the aid of the project Advisory Committee. Each community is comprised of two or three separate census blockgroups with each blockgroup containing 600 to 3,000 people. White Center is considered a "high-walkability, low-income" community, Kent East Hill is considered a "low-walkability, low-income" community, Redmond is considered a "low-walkability, high income"community. The implementation plan for each case study location will be developed with the Advisory Committee input and will encourage land use actions that are consistent with GMA and other regional land use and transportation plans. Furthermore, the implementation plan is specific in terms of locational choice, or where growth should go, and the urban design changes, or how the growth should be implemented. Both regulatory and incentive based approaches will be detailed for each community, and land use actions that are supportive of transit ridership are discussed in detail. A short excerpt of the implementation plan,tied to local policy,is included below for each study area. White Center The provision of sidewalks is foremost along with the creation of east west and north south pedestrian corridors. The opportunities are considerable since the community is laid out on a grid. Demographic factors dictate that safe pedestrian access within the December 6,2002 Lawrence Frank and Company, Inc. Status Report on Countywide Data Analysis Page 20 community and reliable regional transit service are mainstays for this community. It will be important for plannero to consider what uses are vital to the diverse residents of this community. The surveyi can help with this requirement. For instance, day care may be critical as many workers!may need to drop their children off at a day care facility before catching transit to their employment location. If this is the case, a day care facility, along with a grocery store, and;a cafe could be encouraged to open in close proximity to major transit stops. These would be complementary uses, all services that individuals would need or want on their wily to or from the taking transit. Encouraging the availability of uses such as these in close proximity to transit stops further supports regional policies, such as welfare to work end the regional Vision 2020 and Destination 2030 programs. Kent East Hill Recognized within PSRC,'s Metropolitan Transportation Plan as a Suburban Cluster and likely targeted for futuro investment. Needs include roadway connectivity and urban design improvements. T>ansit service improvements in the 256a' Street Corridor (east — west),perhaps including dedicated transit right of way for higher capacity movement e.g. bus rapid transit. The street network needs to establish direct connections between residential areas and commercial districts. Similar to White Center, a pedestrian realm within the street network;plan could help increase the non-motorized trips. Reducing the amount of parking in sukface lots and establishing maximum building setbacks, traffic calming measures, and general streetscape enhancements are important considerations. Incentives for redevelopi�ent of retail / commercial parcels with smaller scale operations could help reduce the grain and establish some areas where walking was possible. Exceptionally high levers of residential density exist in this area and can be an asset. However, mixed use at is smaller scale, increased connectivity, and lack of pedestrian infrastructure are all required to improve the walking environment in this community. Redmond I Pedestrian and bicycle llinkages between the old and new city centers are required to integrate the commerciall core — and are being addressed as part of the communities redevelopment efforts. Pedestrian facilities are needed to link adjacent residential areas with the city center. Specific recruitment of retail and other commercial uses into more traditional retail settings like those found in the old city center would help to foster the sense of a pedestrian ori¢nted environment. Opportunities exist to capitalize on the large amount of open space proximate to the City Center. The scale of development, distances between complementary; uses, and large size and total amount of recreational / open space, suggests that continued promotion of bicycle facilities, could yield significant pay- off. Continued support for more housing in the City Center will be an important component of this commWuty's plan. December 6,2002 Lawrence Frank and Company, Inc. , 1 Environmental Correlates of Walking and Cycling: • Findings From the Transportation,Urban Design, and Planning Literatures Brian E.Saelens,Ph.D. University of Cincinnati College of Medicine and Cincinnati Children's Hospital Medical Center James F.Sallis,Ph.D. San Diego State University Lawrence D.Frank,Ph.D. Georgia Institute of Technology ABSTRACT intensity on most days of the week, including walking and Research in transportation,urban design,andplanning has cycling (I). Healthy People 2010 targeted a greater than 50% examined associations between physical environment variables increase in walking trips made by adults for trips that are less and individuals'walking and cycling for transport. Constructs, than 1 mile (5). It is necessary to understand influences on walking and methods,and findings from these fields can be applied by physi- cal activity,and health researchers to improve understanding of other moderate physical activity behaviors to provider empiri- of cal influences on physical activity. In this review, cal basis for public health action. ors as self-efficacy correlates per- neighborhood environment characteristics proposed to be rele- physical activity,including such factors as self-efficacy and per- vant to walking/cycling for transport are defined,including pop- forted benefits,have been extensively studied,and reviews exist ulation density, connectivity, and land use mix. Neighborhood for that literature physical However, most studies have examined comparison and correlational studies with nonmotorized trans- only vigorous physical activity, and a few studies have exam- port outcomes are considered, with evidence suggesting that fined correlates so iwalking for exercise" le Furthermore,mod- residents from communities with higher density,greater connec- erate intensity and social factors explain much less variance in mod- tivity, and more land use mix report higher rates of walking/cy- orate intensity than vigorous physical activity (6).Unlike most cling for utilitarian purposes than low-density, poorly con- vigorous physical activities engaged in for health-related or rec- nected, and single land use neighborhoods. Environmental reational purposes,activities such as walking and cycling can be *Implications ariables appear to add to variance accounted for beyond done for multiple purposes,likely making them more suscepti- ociodemographic predictors of walking/cycling far transport. ble to environmental influence. Walking and cycling can be of the transportation literatureforphysical activity done for leisure, recreation, or exercise; for occupational pur- and related research are outlined. Future research directions poses;and for basic transportation,including shopping or going are detailed for physical activity research tofurther examine the to work. impact of neighborhood and other physical environment factors Ecological models emphasize that behaviors have multiple on physical activity and the potential interactive effects of levels of influence that include inteapersonal,interpersonal,en- psychosocial and environmental variables. The transportation, vironmental, and policy variables (9). Ecological hypotheses urban design,and planning literatures provide a valuable start- suggest that the combination of psychosocial and environmen- ing point for multidisciplinary research on environmental con- tal—policy variables will best explain physical activity(6,10,11). tributions to physical activity levels in the population. Physical activity research to date is limited in the examination of physical environment influences(12),although recent evidence (Ann Behav Med 2003,25(2):80-91) documents that physical activity is associated with environmen- tal variables (13) and neighborhood context in particular INTRODUCTION (14,15). Researchers in fields other than physical activity and health have explored ways the physical environment is related to Physical activity a It important lifestyle component n walking and cycling,particularly in and around urban areas,in formimproving long-term health (ity Walking k the most common which most Americans reside. Physical activity and health re- identified of adult physical activity al Brisk walking has been searchers are generally unfamiliar with this literature from the benefitts as protective s physical health, independent of the fields of transportation,urban design,and planning.This article benefits tl more vigorous activity co particularly if it is done is designed to(a)introduce terms and methods from the trans- consistently (4). Public health recommendations emphasize portation and planning research literatures to health and physi- cal activity professionals,(b)provide a brief review of findings from transportation studies that have explored the relation be- ReprintAtklress:Brian E.Saelens,Ph.D.,Cincinnati Children's Hospi- tween neighborhood environment and nonmotorized transport tal Medical Center,Division of Psychology MLC 3015, 3333 Burnet (i.e.,walking and cycling),and(c)consider the implications of Avenue,Cincinnati OH 45229.E-mail:brian.saelens@chmcc.org this literature for the health and physical activity fields and fu- 0 2003 by The Society of Behavioral Medicine. ture directions. 80 Volume 25,Number 2,2003 Environment and Physical Activity 91 Community Design and Land Use Variables Factors that influence the choice to use motorized or Related to Transport Choices nonmotorized transport are based primarily on two fundamen- Researchers in transportation, urban design, and planning tal aspects of the way land is used: (a) proximity (distance) have long understood that neighborhood design and the way land and (b) connectivity (directness of travel) (16). Other factors, is developed and used may affect transport choice(auto,transit, such as travel cost, environmental quality, and aspects of con- walking/cycling)(16).Aglossary of sonpe fundamental transpor- venience and access (e.g., parking availability) are also likely tation and urban design and planningterms relevant to walk- influential. Proximity relates to the distance between trip ori- ing/cycling for transport and this revie* is provided in Table 1. c ns(i.e.,where one is)and destinations(i.e.,where one is go- Transportation research has been focus4d largely on the study of ing). Proximity is determined by two land use variables. The vehiculartravel buthas recently become more concerned with hu- first is density, or compactness of land uses. For example, if a man-made environment determinants of nonmotorized or"hu- person lives in a dense area with many apartment buildings, it man-powered"modes of travel The as$essment of walking and will be more convenient for him or her to walk to visit a neigh- cycling makes these studies pertinent to the understanding of an bor than if he or she lives in a low-density area with sin- individual's physical activity.For instance,approximately 83% gle-family homes where there are likely few friends within of all"trips"(each instance of moving from a point of origin to a easy walking distance. The second component of proximity is destination)are short,for nonwork purppses,and occur relatively land use mix, or the distance between or intermingling among close to home (17). The majority of npnwork trips are within different types of land uses, such as residential and commer- walking or cycling distance and are therefore of interest to the cial uses. In older cities there are many residences above physical activity,air quality,and transpoftad on planning fields. street-level shops,making it more convenient to walk to shops TABLE 1 Glossary of Tran4portation and Planning Terms Relevant to Walking/Cycling for Transport Term Definition City planning The profession that studies physical,social,and political systems and how the interactions between these systems can create urban environments that have desired effects on people,communities, and economies. Connectivity The directness or ease of travel between two points that is directly related to the characteristics of street design. Employment density The number of employees or jobs per unit of land area(e.g.,acre). Geographical information systems(GIS) Computer-based systems designed to integrate different types of spatial and attribute information. Data relevant to physical activity can include topography,existing land uses,geological features (e.g.,hills),infrastructure systems(streets,mass transit,sewer,water,utilities),recreation facilities,and residences.Each spatial feature can be linked with attributes about that feature.For example,size,shape,and amenities for a park.and demographic variables of a person living near the park can be linked. Land use mix The level of integration within a given area of different types of uses for physical space,including residential,office,retail/commercial,and public space.land use is controlled by zoning ordinances that reflect political decisions most often made at the local level. New Urbanism An approach to development and redevelopment championed by a group of architects,planners, and urban designers that has similar goals to Smart Growth.Towns and cities developed before widespread use of the automobile are seen as having multiple environmental,social,and health benefits when compared to the sprawling,suburban developments that have dominated land use decisions in the United States since the 1940s(see http://www.cnti.org). Proximity The straight-line distance between different land uses such as residential,office,retail,and commercial activities. Residential density The number of residential dwelling units per unit of land area(e.g.,acre). Smart Growth An approach to neighborhood development that considers impacts on environmental quality,social interactions,population diversity,and transportation choices.Smart Growth is often contrasted with suburban sprawl that assumes automobile dependence.Smart Growth advocates promote development that is higher in density,built around public transit,contains a mixture of residential and commercial uses,and provides housing for a range of income levels.Smart Growth is the efficient usage of transportation infrastructure(e.g.,roads and railways)and therefore encourages growth to be located in areas served by existing transportation investments(see http://www.epa.gov/livability). Urban design A profession that makes decisions about how natural(topography,vegetation)and built(buildings, roads,plazas)elements in a particular space will relate to one another.Urban designers consider how people will perceive and interact with the human-made environment. i 82 Saelens et al. Annals of Behavioral Medicine or to get to work. In modern suburbs, different land uses are end (high connectivity). The top community also possesses purposefully separated, so it may be practically impossible to lower density of land use per unit area and poor land use mix, alk from one's home to the nearest shopping center or place whereas the bottom community integrates, within small areas, employment.High mixed use is characterized by a diversity more and different types of land uses. land uses within a smalls area. By contrast, much modern It is these and otherrelated environmental factors that trans- development is based on single use,with land uses widely sep- portation and urban planning researchers have explored in in- arated, resulting in a lack of land use mix. vestigations of the ways neighborhood characteristics are re- Whereas proximity considers straight-line distances be- lated to nonmotorized transport. Findings from this research tween land uses,connectivity characterizes the ease of moving have the potential to inform physical activity research in the area between origins(e.g.,households)and destinations(e.g.,stores of environmental influences. and employment) within the existing street and sidewalk—path- way structure.Connectivity is high when streets are laid out in a METHODS grid pattern and there are few barriers(e.g.,walls,freeways)to direct travel between origins and destinations.With high con- Studies from the transportation and urban planning re- nectivity, route distance is similar to straight-line distance. In search literature were identified through a search of addition to direct routes,grid patterns offer the choice of taking TRANSPORT, a comprehensive transportation bibliographic different routes to the same destination. By contrast, low con- database containing the Transportation Research Information nectivity is found in the layout of modern suburbs and is charac- Services database (from the Transportation Research Board) terized by a low density of intersections(e.g.,long block size), and other bibliographic transportation data sources. Independ- barriers to direct travel(e.g.,cut de sacs),and few route choices. ent search terms used included walk, walking, and cycling. Methods for systematically evaluating pedestrian connectivity Study titles and abstracts resulting from this search were of a given area have been developed(18). screened to identify research examining environmental factors Figure 1 illustrates two distinct community designs. The related to walking/cycling that contained some measurement of top portion, above the large street that horizontally bisects the individuals'actual or reported walking/cycling rates as an out- figure,depicts a conventional suburban layout,and the bottom come variable. For example, most studies investigating pedes- portion depicts a traditional layout. The community on the top trian safety were not reviewed,as individuals'walking/cycling requires one to traverse large distances within the given street rates were not an outcome in these studies.Reference lists from network to achieve actually relatively short straight-line dis- eligible studies were scanned to identify additional relevant tances (low connectivity). In contrast, the community on the studies. A more detailed review of study methodologies and �ottom provides an interconnected street network and more di- limitations regarding nonmotorized transport research are avail- ct and shorter pathways between where tripswould start and able elsewhere(19,20). t Q ,Q2. a pDeoo O O O D wlwp11uE1.-r5 � )'j D O o0 o e�o R e a ■ eup o L'J )� ® J�C/ /' aoco- 0 0oao • DD o SC.CO. o 0 0 p o I APT 5% P A p 0 0 O MASI Q I)Bt Coo a eoo � ob. ` '` oe e04 -O Da DO O Coo � NOISES o0 0 00'p D' a O OO�o O O e a-o 00� 000 , Oa Op� D .' CO 00��0 FIGURE 1 Two distinct community designs.From"The Traditional Neighborhood Development: How Will Traffic Engineers Respond?"by E Spielberg, 1989,ITE Journal,59, 17-18.Copyright 1989 by the Institute for Transportation Engineers.Reprinted by permission. Volume 25,Number 2, 2003 Environment and Physical Activity 83 RESULTS walk/bike) (17).Studies that used the method of observing pe- destrian and cyclist rates or surveying pedestrians and cyclists Neighborhood Comparison Studies j around or within specified locations within a neighborhood Because it is not feasible to condugt controlled intervention (e.g., around commercial centers)are not included in the table trials manipulating neighborhood built design,researchers have because, for various reasons (e.g., respondent's residence un- relied on quasi-experimental designs. One strategy is to exam- known, multiple counts of the same individual), these proce- ine differences in walking/cycling rates between residents of dures prevent estimating walking/cycling rates per average resi- neighborhoods that differ in environmental characteristics.This dent within a given neighborhood.These targeted observational is consistent with the case study designs often used in transpor- studies,however,can be very informative regarding influences of tation and urban planning research. Traditional neighborhoods specific environmental factors on pedestrian or cycling behavior purported to be highly walkable and aikable are characterized and generally support the findings cited later regarding compari- by high population density, a good rn>ixture of land use, high sons between high-and low-walkable communities(21-25). connectivity, and adequate walk/bike llesign (e.g., continuous The frequency of walking trips per week in comparison to sidewalks). Such neighborhoods are compared with those hav- other travel modes (e.g., automobile) is relatively low in the ing lower population density,more uni orrn land use(e.g.,only United States, regardless of neighborhood environment (17). residential), poorer street connectivit and inadequate pedes- As seen in Table 2, however, the number of estimated weekly t ian and bike facilities (e.g., lack of Sidewalks, bike lanes, or walking/biking trips reported by residents of high-walkable stop signs at intersections),which are deemed low-walkable and neighborhoods appear to be consistently higher than those for low-bikable neighborhoods.After neighborhood selection,resi- low-walkable neighborhood residents. If one sums across trip dents from identified neighborhoods are sampled and asked to purpose for studies that provided walk rates by trip purpose keep a travel behavior log.Ten studies from published transpor- (26-29), and using an unweighted average across all studies tation research were identified that used or approximated this presented in Table 2, one sees that high-walkable neighbor- design approach(see Table 2). ihood residents reported approximately two times more walk- On the basis of these studies,estimates can be made of dif- ing trips per week than residents of low-walkable neighbor- ferences between high versus low-w�lkable and low-bikable hoods (3.1 vs. 1.4 trips). The magnitude differences between neighborhoods in the amount of walking/cycling for transport high- and low-walkable neighborhoods (high-low) range from done by neighborhood residents.Estir$ates of average walking -0.1 to 5.7 walk trips and are partially dependent on the pur- and the summation of walking and biking trips per week for the pose for the walk trip.For instance,walking to work and walk- average resident in high- versus low-walkable neighborhoods ing for errands appear more likely in high- than low-walkable are provided in Table 2.When not provided in the published arti- neighborhoods (26-29). Handy's findings (28,29) suggest that cle or report,absolute weekly walk/bile trip estimates were de- these utilitarian trips (e.g., to go shopping) are the source of rived from the percentage of trips made by walking/cycling, overall differences in walking trips between high- and low- based on the assumption that individuals make approximately walkable neighborhoods because walking for exercise did not 30 trips weekly across various modes (e.g., car, transit, differ between high-and low-walkable neighborhoods(28-30). i i TABLE 2 Estim�ted Average Walking or Walking and Cycling Trips per Week Among esidents of High-Walkable Versus Low-Walkable Neighborhoods High-Walkable Neighborhoods Low-Walkable Neighborhoods Nonwork Nonwork Reference Number Geographic Locatio" Errand Exercise Work Total Errand Exercise Work Total i (26) San Francisco Bay area and Lps Angeles - 0.9 - - 0.3 - (27) San Francisco Bay area i 1.4 0.7 - 0.4 0.1 - (53) Palm Beach County,FL i - - 0.2 - - 0.3 (34) San Francisco Bay area 2.8 0.4 3.6 2.0 0.3 2.4 (28)4 San Francisco Bay area 11.9 2.7 - - 0.7 2.6 - - (29)- Austin,TX 1.5 2.4 - - 0.3 2.0 - - (30)b Austin,TX - - 4.3 - - 0.8 (40)b San Francisco Bay area - - 6.8 - - 1.1 (33)b Orange County,CA - - 2.2 - - 2.1 (36) Portland,OR - - 2.1 - - 0.5 Note. Estimates are for walking trips,unless otherwise noted.Dashes indicate not estimated in the study. -Values for nonwork are errand,exercise.¢Comparison of neighborhoods with highest versus lowest pedestrian-friendly characteristics on percentage of combined walking/cycling trips.cComparisoh of average of neighborhoods with three highest versus three lowest ratings of pedestrian-friendliness on com- bined estimate of walking and cycling trips. 1 84 « Saelens et al. Annals of Behavioral Medicine Methodological issues, study design differences, and the and employment density were independent positive correlates relatively small number of transportation studies documenting of walking rates for commuting and shopping purposes, after alking/cyclina rates render difficult a definitive conclusion accounting for such factors as vehicle ownership,residents'age, out the magnitude of the transport-related physical activity as- and driver's license status.An examination of 32 cities a ound ociated with environmental factors.For instance,some studies the world revealed a positive association between city popula- assessed the percentage of all trips taken by walking or cycling tion density and the percentage of workers walking or cycling to relative to other transport modes (e.g., transit, automobile), work(38),although,as with the Nationwide Personal Transpor- whereas some assessed the absolute number of walking/cycling tation Survey, these associations did not control for potential trips.The lack of a consistent or any quantified objective walk- confounding variables. Studies relying on observational mea- ability index assigned to high- and low-walkability neighbor- surement of rates of pedestrian and cycling behavior within se- hoods based on environmental factors is a common limitation of lected neighborhood areas document higher walking/cycling the studies. The lack of individual or composite reliable and rates in the highest density areas,even after controlling for dif- valid walkability measures makes it difficult to compare neigh- ferences in population demographic characteristics(25). borhoods and walking/cycling rates across studies.Well-speci- Land use mix,especially the close proximity of shopping, fied procedures for determining walkability and neighborhood work,and other nonresidential land use to housing,appears re- selection will allow for translation across neighborhoods and re- lated to greater walking/cycling among residents.As detailed in gions(31).Advancements in the quantification of environmen- Table 3,commuting to work by walking/cycling was higher in tal factors,such as connectivity and land use mix,will be instru- areas of more mixed land use(37)and where commercial facili- mental to improving comparability across neighborhoods(32). ties existed nearby(less than 300 ft,or 0.1 km)(35).Kockelman Studies have also been inconsistent in evaluating potential (32)and other researchers(39)have found that the closer prox- confounding variables. Most transport studies examining walk- imity or accessibility of jobs and services is associated with inglcycling in high- and low-walkable neighborhoods have more walking and cycling. In contrast,long trip distances are matched on or statistically controlled for differences in neigh- negatively related to the likelihood of walking/cycling. borhood socioeconomic status(26 29,33)or eliminated neigh- The walking and cycling infrastructure (e.g., existence of borhoods at socioeconomic extremes (34). Cervero and col- bike paths,sidewalk continuity)has been evaluated infrequently leagues matched neighborhoods on transit access (26,27), a in relation to transport choice. Some empirical evidence sug- potentially important factor in neighborhood walkability(e.g., gests that sidewalks and bicycle paths increase the number of walking to transit stops). However, measuring and controlling walking/cycling trips(40).When sidewalk continuity is used as for individual factors that may affect walking/cycling rates(e.g., one of the criteria for detenmining neighborhood walkability, ofesidents'median age and ethnicity[281)rarely have been con- high-walkable neighborhoods evidence higher rates of walk- idered in comparing residents' walking/cycling for transportinglcycling (36). In one study,better pedestrian facilities were rom high- and low-walkable neighborhoods. Walking/cycling related to higher pedestrian rates at commercial centers even rates provided in most neighborhood comparison studies and when other environmental characteristics,including density and those in Table 2 are not adjusted for these potential individ- land use mix,were constant(22).Although they did not specifi- ual-level confounding variables.The influence of such variables cally examine walking/biking rates in their study,Cervero and has been examined more consistently in transportation and plan- Kockelman(41)found that better pedestrian infrastructure, in- ning studies that have used correlational and regression designs cluding sidewalks and street lighting, was related to greater and analyses. nonautomobile travel,particularly for nonwork trips originating from home. Further evaluation of the effect of the walking/cy- Correlational Analyses cling infrastructure on nonmotorized transport is required;this or Neighborhood Characteristics research has already begun in the health and physical activity Correlational analyses and regression models that provide empirical literatures(42,43). continuous measures of neighborhood characteristics can quan- Studies that have used correlational designs demonstrate tify the relation between neighborhood characteristics and consistent associations of neighborhood walkability factors nonmotorized transport while controlling for either or both indi- with walking and cycling for transport.The inclusion of neigh- vidual and neighborhood sociodemographic variables(e.g.,age, borhood variables significantly adds to the regression models income, automobile ownership) known to be associated with for walking/cycling beyond sociodemographic variables walking and cycling. Table 3 provides information from four (32,37,40),albeit with small magnitude increments.As seen in studies that examined neighborhood characteristics related to Table 3,there is variability in the magnitude of model estimates walking/cycling rates,after controlling for the indicated socio- and variables included. As with the neighborhood comparison demographic variables. studies, this could be the result of methodological differences Population density is among the most consistent positive and limitations in the current transportation studies.Neverthe- correlates of walking trips (17,35,36). In the 1995 Nationwide less,the current findings support the hypothesis that neighbor- Personal Transportation Survey, travel by walking/cycling was hood environmental variables are related to walking and cycling approximately five times higher in the highest versus lowest for transport and provide guidance for environmental constructs ,density areas (17). Frank and Pivo (37)found that population to consider in future physical activity research. Volume 25,Number 2, 2003 Environment and Physical Activity 85' TABLE 3 Regression Model Findings)on the Relations Between Neighborhood Environments and Walking/Bicycling Sociodemographic Neighborhood Characteristics That Reference Geographic Walking/Cycling Variables Remaining Contributed Significantly Number Location Outcome in Regression Model to Regression Model Estimate of Model Fit I 35 Various Probability of No.of autos owned(-) Residing in center of city(+),higher p'-_.532 metropolitan commuting to density(+),commercial or other statistical areas work by ! nonresidential building within 300 in U.S. walk/bikei ft(+),grocery or drug store>300 ft and<I mile(-),adequate public transportation access(+),distance to work(-) 37 Puget Sound area Percentage of L No control variables 1.%walk to work:employment %walk to work,adj. (WA) walking f r enter model of walk to density at origin(+),population R'=.31 1.work trip work density at trip origin/destination(+), %walk to shop,adj. 2.shoppingtrips 2.< 1 vehicle(+),age(-), and mixed land use(+) Rz=35 having driver's license 2.%walk to shop:employment (-) density at destination(+), population density at trip origin and destination(+) 40 San Francisco No.walk/bii:e None in final mode of Neighborhood variables:specific R2=.0303 for Bay area(CA) trips number of neighborhood(+),having neighborhood walking/cycling trips sidewalks/bike paths(+),and transit variable model; containing neighborhood access R'=.0946 for variables Urban attitude variables: neighborhood plus pro-environment(+),pro-transit(+), attitude variable desiring automotive mobility(+) model 32 San Francisco Likelihood of Age(-),having driver's Accessibility(proximity of jobs, p2=219 for control Bay area(CA) taking , license(-),employed services)of origin and destination variable only walk/biko trips (-),autos owned(-), zone(+),trip distance(-) model; having a professional p'-=.226 for job(+),inverse of neighborhood household size(+), male(+) Note. (+)=positive association;(-)=nega(ive association;adj.=adjusted. Alternative Research Designs nonmotorized transport is preferred by individuals for short-dis- One limitation to examining envirmnmental correlates of Lance travel (44). However, the perceived healthfulness of physical activity that will require innovative research designs is walkingis not necessarily related to the intention towalk oractual the inability to randomly assign individulil residents to different rates of walking for transport(45),as would be likely if all walk- neighborhoods or the feasibility of mani(julating the walkability ing/cycling for transport were determined by psychosocial fac- of neighborhood environments.Quasi-etperimental designs do tors related to physical activity and not the neighborhood builten- not prevent the possible confound of individual biases and values vironment. Such issues have been partially addressed among affecting the choice an individual makes about where to live.For transportation and urban planning researchers in thediscussionof example,residential choice is influencedby numerous variables, whether travel is derived. Derived models suggest that travel is perhaps including the surrounding urban form. If individuals engaged in only as a means to an end destination, and thus the choose to live in neighborhoods because of the characteristics travel behavior itself is largely,if not completely,influenced by thatcontributeto their walkability,this m4kesitdifficulttodisen- nonintrapersonal variables (e.g., cost, distance to destination, tanglethe direction of causality between itrdividual values andat- transportation infrastructure). Alternative models suggest that titudes, the built environment, and that individual's non- travel behavioris an activity with its ownsetof individually based motorized travel (30).For example, individuals who choose to values,beliefs,andattitudes,or at least influenced by other vari- live in communities with higher environmental walkability may ables than built form(24,44,46).The contribution to walking/ey- value physical activity and health; copversely, low-walkable cling behavior of attitudes and values regarding physical activity communities maybe selected by individuals with a lower propen- needs to be investigated(see Future Directions for Physical Ac- sity to be physically active through transport.Walking for trans- tivity and Health Research section),as do methodological design port is commonly perceived as a health-promoting activity,and strategies that control for these variables. 86 � Saelens et al. Annals of Behavioral Medicine In attempt to isolate environmental influences,research de- the United States (51).Moderate-intensity physical activity ac- signs would benefit from keeping the same individuals within an quired through more nonmotorized transport, undertaken by a nvironment that is subsequently modified,with the assumption large proportion of the population over time,would have signif- at individual attitudes and values about travel and physical ac- icant public health impact.Indeed,walking or cycling for trans- ivity would remain stable.Measurement of walking/cycling for port to work appears to be associated with lower body weight transport prior to and following a modification in a neighbor- and less adult weight gain over time,independent of the effects hood environment could begin to test causal hypotheses about on body weight of more vigorous physical activity (4). Espe- neighborhood environment factors. Pre—post designs to exam- cially in the current context of no apparent increase in adult ine effects of environmental changes are common in transports- physical activity during the 1990s (5),the potential to enhance tion and urban planning research(e.g.,47).Strategies have been physical activity in entire communities by 15 to 30 min per proposed for neighborhood retrofitting that would enhance fac- week should be taken seriously. tors purported to increase walking(e.g.,increasing connectivity A 15-to 30-min per week increase in physical activity may [18,48]). Future research needs to evaluate the impact of these seem small,and in fact many individually oriented interventions environment modifications on actual walking and cycling have produced larger improvements in physical activity (2,6). among residents before and after retrofitting. However,the potential effects on physical activity of urban form Moving residences also provides another strategy for exam- are fundamentally different from effects of behavior change ining environmental impact on transport. An I 1-year prospec- programs.This literature review reflects differences in physical tive panel design study in Seattle, Washington, assessed the activity across the entire population living in the target neigh- changes in individuals' travel patterns that occuiTed after they borhoods rather than changes in the small proportion of people relocated to a different community. The study concluded that who are motivated and volunteer to participate in intervention some shifts in household members' "alternative" (e.g., transit, studies.Thus,the potential reach of changing neighborhood en- nonmotorized)travel behavior occurred with the introduction of vironments is essentially complete,although it must be assumed a different neighborhood environment (49). The study author there is wide variation in transport-related physical activity stressed the need to continue exploring the influence of individ- within neighborhood types.The other fundamental difference is uals' and households' attitudes around transport and possible that changes in the environment can be expected to be relatively self-selection into neighborhoods based on the existing built en- permanent, in stark contrast to the well-documented lack of vironment.There is a need to control for other events associated maintenance of health behavior change programs (52). Thus, with relocation that could affect changes in household travel modest effect sizes of environment on walking and cycling for patterns,including household size and employment status.With transport may compare very favorably to the population effects these caveats under consideration, panel designs may offer a of more traditional approaches to individual behavior change ""tier control of individual attitudinal and demographic factors when the likely pervasive reach and maintenance of the effects than cross-sectional research designs and could serve as a model are considered. for the longitudinal examination of physical activity change sec- Confidence in the transportation findings is enhanced by ondary to change in environmental exposure. the consistency of results. Virtually every study demonstrated associations between environmental variables such as density, DISCUSSION connectivity, and land use mix and walking/cycling. With the exception of one study (53), residents from communities Implications for Health deemed high walkable according to environmental characteris- and Exercise Science Research tics had higher rates of walking/cycling in comparison to resi- Neighborhood environment characteristics were related to dents from low-walkable communities. The similarly of find- walking and cycling for transport in virtually all of the studies ings across research designs and analytic methods adds further reviewed.The strength of the associations varied but was usu- to confidence in the results. In the correlational studies,neigh- ally substantial.From a physical activity and health perspective, borhood environments may explain similar amounts of variance the estimated mean difference between high-and low-walkable in physical activity as the combination of many psychosocial neighborhoods of approximately one to two walk trips per week variables (6). In the health field, lack of conceptualization of translates into 1 to 2 km,or about 15 to 30 min more walking per specific environmental variables has been identified as a hin- week for each resident of high-walkable neighborhoods.Across drance to research progress (9,12), so incorporating environ- I year, for a 150-lb (68-kg) person, this translates into energy mental variables described here into health research may stimu- expenditure of approximately 3,000 to 6,000 kcal,or about 0.85 late advances in physical activity research. to 1.75 lb(0.39-0.79 kg).Results from a study in China,where motorized transport is less common, found that ownership of a motorized vehicle was related to higher weight and obesity Future Directions for Physical prevalence.Moreover,weight gain and increased obesity preva- Activity and Health Research lence accompanied the transition from not owning a motor vehi- A notable strength of transportation and planning research cle to acquiring one, particularly for men (50). Additional en- is the frequent use of objective measures of environmental vari- ergy expenditure,through more nonmotorized transport,could ables. Land use and census data, combined with specialized help mitigate the estimated average yearly adult weight gain in software tools,provide a powerful approach to greatly improve Volume 25,Number 2,2003 Environment and Physical Activity 81 research on environmental correlates df physical activity. The neighborhoods examined for walkability will also improve our ability to evaluate community design ar�d characteristics such as understanding of environmental impacts on physical activity. density and land use has improved substantially in recent years To date, transportation and urban planning research has been (16).Some 30 years ago,Ian McHarg,In his seminal landscape conducted in only a small number of cities (e.g.,the San Fran- architectural work Design With Natur4 (54), outlined a proce- cisco Bay area;Seattle,WA;Portland,WA),as seen in Tables I dure to "vertically overlay" environmental considerations, in- and 2.The geographic focus of transportation and planning lit- cluding topography, soils, vegetation, and sensitive areas(e.g., eratures remains in urban areas(Tables I and 2),rural areas re- wetlands)with human-made considerations of the built environ- main largely understudied in the transportation literature,with ment(e.g.,road,buildings).This pionegring work led to the ver- some exceptions (43). Factors associated with nonmotorized tical integration of data on which geographic information sys- transport among rural residents are unknown but likely differ tems(GIS)operate.GIS have already been integrated into health from relevant factors in urban and suburban environments. research, especially epidemiology (55). Today's GIS software Developing and standardizing environmental indices of walk- and modern computer capacity enable ooperationalization of spa- ability and bikeability will help in this process. tial measures of the built environmentjnot previously feasible. Many of the neighborhood comparison studies lacked indi- GIS can also provide spatial linkage that enables the integration vidual socioeconomic and ethnic diversity information or did of measures of proximity,connectivity,;density,and other envi- not include analysis of these factors. Often the sociodemo- ronmental factors with systematic assessment of household or graphic characteristics of the neighborhoods and samples were individual behavior.For instance,GIS allow for measurement of not reported, but these can be highly influential factors in the distances from where people live to parks,gymnasiums,and nonmotorized transport behavior(14,22,58).Low-income indi- other recreational opportunities that may affect physical activity. viduals may be more likely to walk for transport purposes than Improvements in transportation research could include a more higher income individuals(59),and gender differences in walk- systematic way of determining the walkability/bikeability of a ing for transport may exist (60). Physical-activity researchers given environment based on objective environmental data.Ex- can infuse the long tradition of assessing sociodemographic in- isting transport methodologies and improvements in environ- fluences into measurement of nonmotorized transport and re- mental assessment methodology coul&be readily integrated to lated physical activity. The possibility that land use has dif- physical activity research. ferential effects on people with varying characteristics (e.g., Transportation experts have identified nonmotorized travel ethnicity, age, socioeconomic status, disability status) rarely usage and user characteristic research as of high priority and has been explored, so increasing the diversity of the neighbor- have identified the many gaps in the exiting empirical literature hoods and samples investigated should be a high priority for re- on walking/cycling for transport(56,57�.The transportation lit- searchers in health fields. Children may be less likely than erature leaves unanswered many questions that are important for adults to walk and bike for transport(with the notable exception health and exercise science.Several resbarch directions and pri- of transport to and from school), and different aspects of the orities for health and exercise science c1m be suggested.For ex- neighborhood environment may influence their physical activ- ample, because travel choice is often:measured categorically ity(e.g.,proximity of playgrounds[61]).Environmental factors (e.g.,walking trip vs.automobile trip),the duration and intensity that have a particular influence on older adults'physical activity of walking and cycling are unknown.Physical activity duration need to be identified. Curbs with ramps may be a particularly and intensity are important considerations for long-term health important environmental characteristic for wheelchair users. benefit.Thus,the contribution of walking/cycling for transporta- Similarly,sloping curbs may provide fewer visual impediments tion to overall physical activity or energy expenditure is not cur- for older cyclists and walkers and are increasingly used in some rently known.Most transport studies aisess only I or 2 days of retirement communities. travel,so there is limited generalizability to habitual physical ac- Data at different levels of aggregation (e.g., individual tivity.Reliance on unvalidated self-report measures of transport psychosocial variables vs.neighborhood environmental charac- behavior also introduces error.Physical-activity researchers can teristics)need to be collected to fully understand the correlates contribute to the transport literature by obtaining more objective of physical activity. Geographical scale can influence the ob- measurements of physical activity(e.g.4 accelerometry)from in- served relation between the built environment and individuals' dividuals in specified environments. transport(62).Future consideration of these factors will require The attempt to identify unique gontributions of specific more sophisticated multilevel modeling and analytic methods neighborhood characteristics is hampe(ed by high interrelated- (e.g.,hierarchical linear models)that have begun to be incorpo- ness of neighborhood—environmental characteristics.Neighbor- rated into transportation research (63). The utility of various hoods with high density also tend to have greater mixed use and statistical approaches for multilevel physical activity research street connectivity. This phenomenon, known as spatial has been discussed(64).Such methods will help to account for multicollinearity,makes it difficult to ddtermine the independent the independent and interdependent influences of both individ- contribution of urban form variables(e.g.,density,land use mix) ual and neighborhood factors. on travel mode choice (27). Researchelrs can overcome this by In addition to density,connectivity,and land use mix,other examining locations and neighborhoo+that differ on only one potential environmental correlates of nonmotorized transport environmental walkability factor (22)JExpanding the range of need to be studied, such as presence and quality of sidewalks; 88 ' Saelens et al. Annals of Behavioral Medicine pedestrian signals and midstreet islands on busy streets;parking perceived environment has an independent, synergistic, or cost, location, and availability; and presence of bicycle lanes shared association with walking and cycling,and it may be most nd trails (42,43). There may be additional physical environ- useful to include both objective and subjective modes of envi- tal factors,some of which are presented in Figure 2,that are ronmental assessment.Perceptions of neighborhood may be es- ly related to recreational physical activity and nonmotorized pecially important in evaluating the reasons for residents' transport but remain largely unstudied,such as park characteris- choice of community in which to live,as this could better inform tics, tree canopy, and topography (e.g., street inclines, natural the nature and directionality of the relation between neighbor- barriers such as waterways). In addition to the built environ- hood environment and walking/cycling. ment,other environmental factors that can be measured objec- Consistent with ecological models of behavior,researchers tively may be related to nonmotorized transport and physical ac- are encouraged to maximize their ability to explain individual tivity, including crime and weather.The effect of weather and variation in physical activity by simultaneously examining season has received some attention in transportation research. psychosocial correlates of physical activity and environmental For instance,rates of cycling to work or school appear to exhibit variables. The examination of psychosocial physical activity some seasonal fluctuation (65,66), but among daily weather correlates may add to the understanding of how"derived"walk- conditions, including temperature, wind, and rainfall, only the ing and cycling are for transport(44). It may also be fruitful to extreme of heavy rain markedly affected commuter cycling examine interactions of environmental and psychosocial vari- (66).We are not aware of any study that has examined the im- ables as well,in addition to the interaction between environmen- pact of crime on rates of walking/cycling for transport. More tal and sociodemographic variables known to influence physical comprehensive investigation of nonbuilt environmental influ- activity. Figure 2, although not comprehensive, proposes a ences clearly is required. model for next possible steps in the evaluation of environmental Although it is clearly valuable to investigate objective mea- and psychosocial variables involved with physical activity and sures of physical environments,it may be useful to collect mea- their interaction. For instance, it is possible that the collective sures of perceived neighborhood environment as well(e.g.,per- psychosocial factors of social support, self-efficacy, and posi- ceived connectivity, aesthetics). It is not clear whether the tive beliefs about physical activity are more closely related to the behavior in the presence of a more walkable physical envi- ronment.Alternatively,individual environmental characteristics Neighborhood Individual Factors walkleyckog Environment purposes related to walkability may interact with specific psychosocial correlates to promote greater walking/cycling.For instance, an individual who perceives a high benefit to being physically ac- car Ownership tive may be more likely to be influenced by street connectivity than a neighbor next door who has less positive beliefs about income physical activity. Age,gender Evaluation of environmental and psychosocial interactions Density connectivitycan also inform physical activity interventions.Educational and u"use nutt111e rranaport behavioral interventions in low-walkable environments may safety le.g.,traffic, need to provide strategies to compensate for the lack of nearby mime,animals) resources or encourage participants to go to other environments flikelwaudng units, to be physically active. Individual-focused interventions in sidewalks,bike lanes more walkable neighborhoods may need to educate people about local physical activity resources and encourage them to parks'community use those resources.On the basis of current estimates of average recreation centers, Recreation/other physical activity exercise walking/cycling rates from transportation and urban design re- facilities search, even residents in the most walkable neighborhoods do Neighborhood not all attain a level of physical activity consistent with health aesthetics and benefits(1).This highlights the continued importance of investi- topography Farchoaxial correlates gating psychosocial factors and interventions and the interaction of physical activity between psychosocial and environmental factors. Other re- searchers have proposed complex models of integrating health promotion and transport policy(67)to perhaps target communi- FIGURE 2 A proposed ecological model of neighborhood environ- ties with environmental risk for low physical activity.Interven- ment influence on walking and cycling.Double lines denote stronger tion and policy studies may also help to determine how envi- relations;single linesdenote weaker relations;dashed lines denote me- ronmental effects may or may not be moderated by diated relations. *Some examples of demographic variables are pro- vided, but should not be considered comprehensive. **Psychosocial sociodemographic and psychosocial factors. Investigators con- correlates of physical activity would include,but are not limited to, ducting physical activity intervention studies could include such variables as self-efficacy,perceived benefits,perceived barriers, measures of neighborhood environments that could be exam- social support,and enjoyment of physical activity. ined as potential moderators of the intervention effects.For ex- 0 Volume 25,Number 2,2003 Environment and Physical Activity 89 ample,it is conceivable that a behavior hhange intervention that discussions,and decisions about environmental factors that are teaches goal setting and other skills 1 would be effective in influencing physical activity and health. high-walkable neighborhoods or those�ith more and better rec- reational facilities.The same intervention may not be effective REFERENCES for people who live in neighborhoods lass"friendly"to physical (1) Pate RR,Pratt M,Blair SN,et al.:Physical activity and public activity. health: A recommendation from the Centers for Disease Con- trol and Prevention and the American College of Sports Medi- cine. Journal of the American Medical Association. 1995, CONCLUSION 273:402-407. Transportation and planning rese#ch supports the proposi- (2) U.S.Department of Health and Human Services:Physical Ac- tion that the physical environment is associated with physical tivity and Health:A Report of the Surgeon General. Atlanta, GA:U.S.Department of Health and Human Services,Centers activity in the form of walking/cyclin for transport. Because for Disease Control and Prevention, National Center for large proportions of people in the United States and other indus- Chronic Disease Prevention and Health Promotion, 1996. trialized countries live in the sprawling and exclusively residen- (3) Manson JE, Hu FB, Rich-Edwards JW, et al.: A prospective tial environments associated with low levels of walking for study of walking as compared with vigorous exercise in the pre- transport,land use and design may alresidy be having a substan- vention of coronary heart disease in women. New England tial,although generally undocumented,(impact on public health. Journal of Medicine. 1999,341:650-658. A growing number of policy experts,utfban planners,and trans- (4) Wagner A,Simon C,Ducimetiere P,et al.:Leisure-time physi- portation experts are concerned that we have built our communi- cal activity and regular walking or cycling to work are associ- ties so it is difficult, and in many cases dangerous, to walk or ated with adiposity and 5y weight gain in middle-aged men: bike and have thus "engineered" physical activity out of our The PRIME Study. International Journal of Obesity and Re- daily lives (68). Approaches to urban design termed Smart toted Metabolic Disorlers.2001,25:94Q 948. 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Leslie E: Environmental factors associ- and land-use characteristics. khban Studies. 1998, ated with adults' participation in physical activity: A review. 35:1155-1169. I American Journal of Preventive Medicine(in press,2002). i Creating A Healthy Environment : The Impact of the Built Environment on Public Health "in its broadest sense, environmental health comprises those aspects of human health, disease, and injury that are determined or influenced by factors in the environment. This includes not only the study of the direct pathological effects of various chemical, physical, and biological agents, but also the effects on health of the broad physical and social environment, which includes housing, urban development, land-use and transportation, industry, and agriculture." —Healthy People 2010, U.S. Department of Health and Human Services ' i Richard J. Jackson, MD, MPH Chris Kochtitzky, MSP Centers for Disease Control and Prevention S P R A W L W A T C H C L E A R I N G H o u s E M O N O G R A P H S E R I E S Acknowledgements Sprawl Watch Clearinghouse 4ould like to thank Jonathan Dushoff,of Princeton University;Peter Engelke,of the City and Regional Planning Program.College of Architecture,Georgia Institute of Technology;Karen Roof,of the National Association of County and City Health Officials;Marla Hollander,of the Robert Wood Johnson Foundation;Rich Killingsworth,of the CDC's National Center for Chronic Disease Prevention and Health Promotion; Pat Meehan,of the CDC's National Center for Environmental Health:Lee Epstein,of the Chesapeake Bay Foundation;Chuck Connerly,of the Florida State University Department of Urban and Regional Planning:Bob Deyle,of the Florida State University Department of Urban and Regional Planning;Rebecca Miles,of the Florida State University Department of Urban and Regional Planning; Rich Shieber,of the CDC's National Center for Injury Prevention and Control; Bruce Stiftel,of the Florida State University Department of Urban and Regional Planning;Dorothy Sussman,of the CDC's National Center for Environmental Health; Patti Seikus,of the CDC's Na6nal Center for Environmental Health:Don Lollar,of the CDC's National Center for Birth Defects and Developmental Disabilities;Maisha Kambon,CDC's National Center for Environmental Health;Robert Weissman,of Essential Information and Betsy Garside,of the American Farmland Trust for their help in editing this report and the Educational Foundation,of America whose support made this report possible. About the Authors Dr. Richard Joseph Jackson.MI,MPH i Dr. Richard Jackson is the Director of the National Center for Environmental Health of the Centers for Disease Control and Prevention. During his tenure atl NCEH,he has worked to increase support for stronger environmental health protection efforts throughout federal agengies,to engage CDC and local and state health departments in the genetics"revolution;'and to increase efforts to improve tfje nutritional status of people in developing countries.In addition.Dr.Jackson is collaborating with groups and individuals from many disciplines;planners,architects,engineers,academicians,and policy makers'to explore the implicatipns of urban sprawl on the nation's environmental health. Jackson received his baccalaureate degree from St. Peter's College in Jersey City;a Master of Medical Sciences degree from Rutgers Medical School in New!Brunswick;his M.D.from the University of California,San Francisco;and his M.P.H.in epidemiology from the University of California at Berkeley. Chris Kochtitzky.MSP Chris Kochtitzky is the Associate Director for Policy and Planning in the Centers for Disease Control and Preventions National Center for Environmental Health,Division of Emergency and Environmental Health Services. Mr.Kochtitzky was hired as senior legislative analy#t at the Centers for Disease Control and Prevention's(CDC's)National Center for Environmental Health(NCEH)!NCEH is one of CDC's key centers with responsibilities involving the impact that the environment(both natural and Imanmade)has on human health.In his years at NCEH.Mr.Kochtitzky has also served as Acting Deputy Associate Directjor of the Office of Planning,Evaluation,and Legislation,which is responsible for strategic planning and policy analysis wikhin the center. Kochtitzky received a BA in pojitical science in 1989 from Millsaps College and an MS in planning,with a concentration in environmental and natural resources planning,from Florida State University in 1992. About Sprawl Watch Cllearinghouse The Sprawl Watch Clearinghouse mission is to make the tools,techniques,and strategies developed to manage growth, accessible to citizens,grassrootis organizations,environmentalists,public officials,planners,architects,the media and business leaders.At the Clearinghouse we identify,collect,compile,and disseminate information on the best land use practices,for those listed abovej. Sprawl Watch Clearinghouse is nonprofit organization based in Washington,DC Allison Smiley,Executive Director This report and many other sources of information on sprawl and smart growth are available on the World Wide Web at www.sprawlwatch.org I Sprawl Watch Clearinghouse • 1400 16th St.,NW• Suite 225 •Washington,DC 20036 • 202-332-7000 •www.sprawlwatch.org Preface Here at the start of the 21st century our understanding of which factors promote health and which damage health has grown considerably. The diseases of the 21st century will be "chronic" diseases, those that steal vitality and productivity, and consume time and money. These diseases-heart disease, diabetes, obesity, asthma, and depression- are diseases that can be moderated by how we design and build our human environment. It is now accepted that, in addition to direct hazards from infectious diseases and environmental toxins, human behaviors play a critical role in determining human health. As we begin to include consideration of these factors into our health-related decision-making, we must additionally guard against using too narrow a definition of the environment. Every person has a stake in environmental public health, and as environments deteriorate, so does the physical and mental health of the people who live in them. There is a connection, for example, between the fact that the urban sprawl we live with daily makes no room for sidewalks or bike paths and the fact that we are an overweight, heart disease-ridden society. Obesity can increase the risk of (adult-onset) type 2 diabetes by as much as 34 fold, and diabetes is a major risk factor for amputations, blindness, kidney failure, and heart disease. The most effective weight loss strategies are those that include an increase in overall physical activity. In a recent type 2 diabetes trial, weight loss and physical activity were more effective in controlling the disease than medication. In addition, for treatment of relatively mild cases of anxiety and depression, physical activity is as effective as the most commonly prescribed medications. It is dishonest to tell our citizens to walk, jog, or bicycle when there is no safe or welcoming place to pursue these "life-saving" activities. Respiratory disease, especially asthma, is increasing yearly in the U.S. population. Bad air makes lung diseases, especially asthma, worse. The more hours in automobiles, driving over impervious highways that generate massive tree-removal, clearly degrade air quality. When the Atlanta Olympic Games in 1996 brought about a reduction in auto use by 22.5%, asthma admissions to ERs and hospitals also decreased by 41.6%. Less driving, better public transport, well designed landscape and residential density will improve air quality more than will additional roadways. In order to address these critical health problems we must seize opportunities to form coalitions between doctors, nurses, and public health professionals and others such as architects, builders, planners and transportation officials, so that we are all "at the table" when environmental decisions are made. Such decisions include whether to install sidewalks in the next subdivision. It means thinking about what constitutes safe and affordable housing, safe neighborhoods, providing green space for people to enjoy where they live and work, and rethinking how we travel from one place to another. Land-use decisions are just as much public health decisions as are decisions about food preparation. What, for example, are the implications for children with asthma of building yet another expressway? We must also question whether a fatality involving a pedestrian isn't actually the result of poor urban planning, thoughtless land use, or inferior urban design rather than "simply" a motor vehicle crash. We must be alert to the health benefits, including less stress, lower blood pressure, and overall improved physical and mental health, that can result when people live and work in accessible, safe, well-designed, thoughtful structures and landscapes. We must measure the impact of environmental decisions on real people, and we must begin, in earnest, to frame those decisions in light of the well being of children, not only in this country but across the globe. Richard J. Jackson, MD, MPH Director, CDC's National Center for Environmental Health i Introduction hen peoplle consider factors adversely affecting their health, they generally focus on influences, such as poor diet or the need for more exercise. Rarely do they consider less traditional factors, such as housing characteristics, land-use patterns, transportation choices, or architectural or urban-design decisions, as potential health hazards. However, when these factors are ignored or poorly executed, the ecosystems in our communities collapse, people suffer the consequences. We have always known that a 2-hour commute to work each dly on America's freeways is not a pleasant experience; it is also becoming clear that it is an unhealthy experience. We see evidence every day that Americans exercise less often and suffer higher levels of stress than they did in the past. Yet we often fail to make the connection between these all-too-common facets of everyday life and how unhealthy we are. As America increasingly becomes a nation that permits and even encourages thoughtless development;and unmanaged growth, the impact of these factors grows clearer, and we ignore them at our peril. L4 .ter #� � :tS � Y J {KR,. N sPP •J. E~" r-•. �1 .� MYHF^CkM M.. x' a 0 a 4 PUBuc HEALTWLANUUSE MONOGRAPH Land-use planning and zoning have their roots in substantially improve the health and quality of a desire to protect the public's health. As far life of the American people. Therefore, in this back as 1926, the U.S. Supreme Court, in monograph, we focus mainly on the following: Village of Euclid us. Ambler Realty Co., cited The relation of land-use decisions to air public health protection as one of the basic quality and respiratory health; responsibilities of local governments, thus giving The built environment (including all man- them a legal mandate to restrict or control land- made physical components of human use decisions in a community.'In this mono- settlements such as buildings, streets, open graph, we address some of these land-use spaces, and infrastructure) in terms of decisions, discuss how they affect our health, whether it promotes or discourages physical and offer some suggestions on how public activity; health professionals can collaborate with their The impact of urban design on the number colleagues in land-use planning and urban of pedestrian injuries and deaths, particularly design to help ensure the health and quality of among children; life of the people in their communities. The choices communities make about the built environment that improve mobility and In recent years, public health organizations have the quality of life for their elderly and emphasized that public health agencies and disabled residents; and programs must not only control disease, but * The ways that various land-use decisions also work to prevent it. The World Health affect community water quality, sanitation, Organization (WHO) has defined health as "a and the incidence of disease outbreaks. state of complete physical, mental, and social well-being, not just the absence of disease or A brief summary of other health impacts of infirmity."' The National Academy of Science's urban sprawl is also included, with a final Institute of Medicine has asserted that the public section that describes some steps that both the health system should "fulfill society's interest in planning community and the public health assuring conditions in which people can be community can take to ensure that public health healthy."' Environmental public health initiatives concerns figure prominently in decisions made have historically been among the most effective about the built environment. approaches for assuring healthy living condi- tions. In 1854, Dr. John Snow was credited with taking bold action when he suspected that contaminated water from a public pump on Broad Street was causing a deadly cholera outbreak in London. As a result of this discovery and Dr. Snow's actions to remove the handle on the pump, the cholera outbreak ended. Much of the improvement in disease death rates in the last century can be attributed to basic environ- mental public health actions such as Dr. Snow's that resulted in improved sanitation, cleaner air and water, injury prevention, and protection of citizens from dangers posed by industrial pollution in their communities. We believe that applying public health criteria to land-use and urban design decisions could PUBLIC HEALTH/LAND-USE MONOGRAPH '5 Land-use and ItsEffeCts on vehicles accounted for about 58 percent of carbon monoxide (CO) emissions in the United Air Quality and Respiratory States, nearly 30 percent of nitrogen oxides Health (NO.), roughly 27 percent of volatile organic compounds (VOCs), and about 9 percent of Sprawl — uncontrolled, Ooorly planned, particulate matter (PM). NOx and VOCs low-density, and single use community contribute to ground level ozone pollution, growth — depends on individual motor which is known as smog.Io. I' vehicles to flourish. As people move farther and Research presented on the impact of auto- farther from cities, they inevitably will travel longer distances to work, shpp, and play. From mobiles and the transportation sector on human health at the Third Ministerial Conference on 1960 through 1990, the pergentage of workers with jobs outside their couniies of residence Environment and Health held in London in 1999 increased by 200 percent, while the proportion indicated the following: of workers commuting within their counties of Motor vehicle traffic is the main source of residence declined.' This trod contributed to an ground level urban concentrations of air increase in the number of vehicle miles traveled Pollutants with recognized hazardous in passenger cars — an increase of more than properties. In Northern Europe, this traffic contributes practically all CO, 75 percent of 250 percent (915 billion miles) from 1960 NO , and about 40 percent of the particulate through 1997.°This dependence on the ' matter (PM 10) concentrations. automobile has only accelerated in recent years. Approximately 36,000 to 129,000 adult For instance, according to the Sierra Club, the deaths a year can be attributed to long-term average American driver spehds 443 hours each year behind the wheel — the equivalent of 55 exposure to air pollution generated by traffic nine-hour days or I I work *eeks.'Residents of in European cities. cities that have grown moreover the last decade Also presented at the conference were results have also experienced a greater increase in the from a recent study of the health effects of air average time spent travelingiin a car than pollutants from traffic in Austria, France and residents of cities where grolwth has remained Switzerland and their related costs. This study, stable. From 1992 through 11996, the increase in using comparable methods, found that air the number of annual persoh-hours of delay pollution caused 6 percent of total mortality in spent in an automobile in Los Angeles was 9 the three countries, more than 40,000 deaths percent; in Atlanta 44 percent; in Orlando 62 per year. About half of all mortality caused by air percent; and in Kansas City 81 percent.' pollution was attributed to motorized traffic. This corresponds to about twice the number of This increase in driving time results in an deaths due to traffic accidents in these countries. increase in air pollution and;in the incidence of When researchers analyzed the data from the respiratory diseases. Despite tremendous study they found that automobile-related progress in reducing U.S. air pollution since the pollution was responsible for more deaths than passage of the Clean Air Aet almost 30 years traffic accidents. The economic burden of the ago, cars and trucks are still a major source of health impact of automobile pollution was pollution, because even though individual cars estimated at more than EUR 27 billion pollute less, the number of icars and trucks and (approximately $23.8 billion in U.S. dollars)." the number of miles people drive increases.' According to a recent report completed by the Data from studies conducted in the United Congressional Research Service, in 1997, on-road States strongly suggest significant links between 6 PUBLIC HEALTH/LAND-USE WNOGRAPH i air pollution and negative health outcomes such Children with asthma are believed to be as asthma. The President's Task Force on particularly sensitive to air pollution."As many Environmental Health Risks and Safety Risks to as 25 percent of children in America live in areas Children reports that: that regularly exceed the U.S. Environmental "Many common air pollutants, such as ozone. Protection Agency's (EPA) limits for ozone, sulfur dioxide, and particulate matter are more than 25 percent of which comes from auto respiratory irritants and can exacerbate asthma. emissions."Asthma rates among children in the Air pollution may also act synergistically with United States more than doubled from 1980 other environmental factors to worsen asthma. through 1995, from 2.3 million" to 5.5 million.1e For example, some evidence suggests that Reducing children's exposure to environmental exposure to ozone can enhance a person's pollutants such as ozone will reduce the responsiveness to other inhaled allergens. frequency and severity of their asthma attacks, Whether long term exposure to - will reduce their depen these pollutants can actually dence on medication for contribute to the development of s asthma management, and asthma is not yet known."13 will improve their overall lung function."The For instance, in the summer off , significant contribution of 1997, smog pollution was L ~ .•. .t' automobile use to the responsible for more than 6 Y _ S ,® overall air pollution million asthma attacks, 159,000 _ atirst problem seems clear. As visits to emergency rooms for _ the American population treatment of asthma attacks, and drives longer distances, these 53,000 asthma-related hospitaliza- � problems will most likely only tions.'4 Results of a study - worsen. Therefore, it seems conducted by the Centers for imperative that new Disease Control and Prevention + transportation options be developed and (CDC) during the 1996 implemented in order to help alleviate the Olympic Games in Atlanta, at public health problems related to worsening which time vehicular traffic was air quality in the United States. kept at artificially low levels by city authorities, showed that the peak daily ozone concentrations decreased 27.9 percent and peak weekday morning traffic counts dropped 22.5 percent; at the same time the number of asthma emergency medical events dropped by 41.6 percent. Non- asthma medical events did not drop during the same time period." Results that support the Atlanta findings were found in a 1999 study of adverse health effects associated with ozone in the eastern United States. This study, conducted by ABT Associates, found that during a single ozone season, asthma attacks that were directly attributed to excessive ozone pollution numbered approximately 86,000 in Baltimore, 27,000 in Richmond, and 130.000 in Washington, D.C.16 PUBLIC HEALTH/LAND-USE MONOGRAPH 0 7 i The Built Enviro�ment and Physical Activit�t People who participate!in regular physical activity reap substantial health benefits. According to the Surgeon General the y most significant are as follows: • Lower mortality rates for both older and younger adults. Even nGoderate increases in 4 ;y activity are helpful; F; • Lower risk for heart dilease and stroke; • Prevention or delay of the onset of high blood pressure and act�al lowering of blood pressure among people;with hypertension; and parks) and fears about safety. Overall, CDC • Decreased risk for coloh cancer; reports that higher levels of perceived neighbor- • Lowered risk for noni*lin-dependent hood safety are associated with higher levels of diabetes; physical activity, with the differences being • Weight loss and redistlibution of body fat; greatest among racial or ethnic minorities and increase in muscle ma$s; people older than 65 years of age.21 Thus, people • Relief of the symptoms of depression and are more likely to use parks, paths, and anxiety and improvemdnt of mood; and bikeways when they are easy to get to and are • Apparent improvement';in health-related safe and well maintained. quality of life by enhancing psychological well-being and by imprpving physical Conversely, people tend to get less exercise as functioning among people with poor health." outlying suburbs are further developed and the distances between malls, schools, and places of The built environment presents both opportuni- employment and residence increases. Many ties for and barriers to participation in physical theories have attempted to explain the radical activity, thereby influencind,whether or not we changes in the health status of American exercise. According to a recent survey about society, but one of the strongest theories is the research studies,20 one of the more important significant decline in activity levels among determinants of physical activity is a person's Americans today compared with levels from 50 immediate environment (orle's neighborhood). or 100 years ago. 'According to the U.S. One study examined envirdnmental variables, Surgeon General's Report on Physical Activity in such as the presence or absence of sidewalks, America," changes in our lifestyles and heavy traffic, hills, street lights, unattended communities have played the greatest role in the dogs, enjoyable scenery, frequent observations decline of activity levels among Americans. of others exercising, and high levels of crime. Millions of Americans drive to and from work Positive environmental determinants of physical and use a car to run almost every errand. In activity included enjoyable scenery (presence 1977, children aged 5 to 15 years walked or associated with more activity), whereas the biked for 15.8 percent of all their trips; by 1995, greatest perceived barrier v}as the lack of a safe children made only 9.9 percent of their trips by place to exercise.20 Research by CDC and others foot or bicycle — a 37 percent decline.'" Results ='.22 has also indicated that two of the main of a study in South Carolina showed that reasons given as reasons fbr not exercising are students are four times more likely to walk to lack of structures or facilities (such as sidewalks schools built before 1983 than to those built 8+N`PUBLIC HEALTH/LAND-US�MONOGRAPH i 1 1 more recently."This would seem to point to factor in the incidence of overweight and some basic change in the "walkability" of newer obesity. From 1976 through 1994, the prevalence schools, possibly because these schools aren't of U.S. adults who were overweight or obese as geographically close to the students they rose from 47 percent to 56 percent, and by 1999 serve or because the school's property and its had risen to 61 percent.26 More disturbing, environs were designed to meet the needs of however, was the fact that the prevalence of automobiles rather than the needs of pedestrians overweight children and adolescents almost and bicyclists. doubled during this same period"Some researchers have estimated that as many as In addition, many different types of urban design 300,000 premature chronic disease deaths each encourage sedentary living habits. For example, year are due to obesity." parking lots are built as close as possible to final destinations in order to increase convenience and Figures 1-3 show the alarming increase in safety for motorists. While older cities and towns obesity prevalence among adults in the United were planned and built based on the practical States during a single decade. idea that stores and services should be within walking distance of residences, the design of Major health care costs are also associated with most new residential areas reflects the supposition the lack of physical activity and concomitant that people will drive to most destinations. rises in obesity rates. In 1995, the direct health Work, home, school, and shopping are often care costs of obesity were estimated at$70 separated by distances that not only discourage billion." Adding to that figure the estimated walking but may even necessitate the use of a direct health care costs of physical inactivity car in order to reach any destination safely. ($37 billion)" we can conservatively attribute an overall health care burden of more than $100 Sedentary living habits also contribute to poor billion to obesity and low levels of physical health outcomes because they are a significant activity in the United States each year. ObcNiL) 4*reu1L6* itiiarig U.S. Adults 331t1=��, J9�y dl �.— : e+ t I r, ! r Figure 1 PUBLIc HEALTH/LAND-USE MONOGRAPH 0 9 I I 06c—,Lcv T'renLls* •Lniong U.S. .Ndults P F-CF-SS, 1993 j L, F55 F r(l Figure 2 i r �µ� r i Figure 3 10 0 PUBLIC HEALTH/LAND-Uk MONOGRAPH Urban Design and Pedestrian Several regulatory and design strategies can be applied to make communities safer for both and Bicyclist Safety child and adult pedestrians and bicyclists. These strategies include (I) setting and enforcing lower nother important issue is the impact of speed limits in residential areas; (2) protecting urban design on a number of injuries pedestrians in crosswalks by using traffic involving pedestrians and bicyclists. signals; (3) instituting and enforcing "traffic- According to a recent report by the Surface calming" measures, such as traffic circles or Transportation Policy Project, in 1997 and 1998, speed bumps; (4) providing sidewalks and 13 percent of all traffic fatalities — 10,696 people pedestrian walkways; (5) providing crossing — were pedestrians. Approximately 1,500 of guards and bike paths in areas where most these victims were children, while 22 percent pedestrians are children, (e.g., near schools, were older than 65 years of age, even though parks, and playgrounds) and (6) providing only 13 percent of the population is elderly 70. overpasses, underpasses or tunnels for Although Americans make fewer than 6 percent pedestrians and bicyclists to bypass particularly of their trips on foot, 13 percent of all traffic dangerous roads and intersections. Inherent in fatalities occur among pedestrians; of the each strategy is a refocusing of design goals pedestrian deaths for which information is toward pedestrians and, to a degree, away from recorded, almost 60 percent occurred in places motorists. where no crosswalk was available.70The report concluded that the most dangerous metropolitan areas for walkers were newer, sprawling, southern and western communities where transportation systems are more focused on the automobile at the expense of other transportation options. A study conducted in New Zealand asserted that there are several potentially modifiable environ- mental risk factors for injury to child pedestrians. �r Particularly strong lei s 1 associations were found 1 r� between the risk for # pedestrian injuries and , high traffic volume. The - risk for injury to children " living in neighborhoods with the highest traffic volumes was 13 times that of children living inST the least-busy areas. ` Restricting curb parking at f specific crossing points 1 o may be an effective ,. approach to reducing x, i children's injuries in this o arena" "f. d PUBLIC HEALTH/LANO-USE MONOGRAPH 0 1 1 Environmental Barriers for For elderly citizens and people with disabilities, these issues are not simply about convenience the Elderly and People With a or even quality of life; rather, they are critical Disability health issues. Without access in the community, these groups cannot adequately participate in ree and easy movement through public areas physical activity, establish a community of in the communities whlere we live is some- support, or get to or use health care facilities. thing most people takefor granted and, if asked, would probably claim as a right. However, Thus, lack of physical access in a community people with disabilities ofter> find that they cannot becomes a factor leading to illness and even move easily from place to place and that they death" Efforts to address these barriers through have trouble gaining access to medical and other "universal design" have begun to show significant basic health care and social)services. People with success. The concept of universal design maintains disabilities are even more vulnerable to "environ- that — "...all products, environments and mental barriers" than childr@n or the elderly. communications should be designed to consider Environmental barriers are d$fined as the "physical the needs of the widest possible array of users. attributes of buildings, facilities, and communities Universal design is a way of thinking about which by their presence, altsence, or design design that is based on the following premises: present unsafe conditions Ind/or deter access varying ability is not a special condition of the and free mobility for the physically handicapped. 32 few but a common characteristic of being These attributes can include the absence of ramps human, and we change physically and intelleetu- for wheelchairs, lack of depressed curbs (periodic ally throughout our life. Usability and aesthetics breaks in curbs that act as;ramps), narrow are mutually compatible.14 doorways that cannot accommodate various assistive devices (such as Wheelchairs, motorized As land use and urban design decisions are made, planners, architects, and engineers must keep in scooters, walkers, etc.), and Zack access to mass mind the needs of all community members. It is transit routes or other public services. easy to see that if citizens in an urban setting Often, something as simplR as the lack of a such as Houston have encountered environmen- sidewalk or curb cut keepseople with disabilities tal barriers to mobility and accessibility, people from getting any physical activity at all. A study living in suburban or rural settings may face in Houston, Texas, for exa tnple, found that three even greater challenges. Residents of the urban out of five disabled and elderly people do not areas of most major cities in the United States have sidewalks between their residences and the such as Houston have access to some type of nearest bus stop." An even greater percentage mass transit and can also find residential of these households lack depressed curbs in housing that permits some amount of pedestrian their neighborhoods (71 percent) and bus shelters access to needed shopping and service facilities. by the nearest bus stops (p6 percent). Although In suburban parts of these cities and certainly in close to 50 percent of the!elderly and disabled more rural areas of the country, mass transit is live within two blocks of a bus stop, the lack of nonexistent, and distances to commercial facilities sidewalks, curb cuts, and bus shelters actually make pedestrian access impossible. Such makes use of the transportation system by these circumstances can therefore make life very people impossible. Fewer than 10 percent of the difficult for anyone who cannot drive or does disabled and elderly use pG blic transportation in not have easy access to an automobile, with the Houston. In addition, fearlof crime prevents pronounced hardships experienced by the elderly close to two-thirds of the IeIderly and disabled and disabled. from walking to the bus stop at night" I 12 PUBLlc HEALTH/LAND*E MONOGRAPH The Impact of Uncontrolled 1994 were preceded by extreme rainfall events. Outbreaks due to surface water contamination Growth on Water Quality were most strongly and most immediately related, while outbreaks due to groundwater ncontrolled growth and the loss of contamination were most often delayed by a greenspace that often accompanies it month or two. These findings can, in some can drastically affect both surface and part, be attributed to the increase in impervious groundwater quality. Between 1970 and 1990, surfaces in areas of population concentration, central Puget Sound experienced a 38 percent thereby rendering the land incapable of increase in population, while the amount of land absorbing and filtering the amount of water that developed in that same period rose by 87 falls during these extreme weather events?7 percent. This large-scale alteration of the natural landscape had profound effects on water An additional threat to water quality posed by resources and quality. Under natural conditions, sprawling uncontrolled growth is the overuse of rainfall is either intercepted by vegetation or septic systems in low-density suburban and rural percolates slowly through the soil to receiving residential development that results in groundwa- waters. In urbanized areas, rainfall that once ter contamination. For instance, according to the filtered slowly downhill becomes surface runoff. 1990 United States Census, approximately 26 It flows across compacted earth and impervious percent of Florida's population was served by man-made surfaces (e.g., asphalt, concrete, onsite sewage treatment and disposal systems rooftops often covered with oil and other (OSTDS). More than 1.8 million systems were pollutants) and is channeled into storm drains. estimated to be in use statewide. Since 1990, This disruption of the natural hydrologic cycle approximately 40,000 new systems have been causes stormwater runoff to reach streams and installed each year. By comparison, in 1998, the rivers more quickly than these water bodies can Department of Health only issued 3,651 OSTDS • absorb it and also before it has had an adequate abandonment permits where establishments chance for filtration of pollutants through the were being connected to a central sewer system. ground (the flush of auto contaminants from It is estimated that OSTDS discharge 450 malls and other large parking areas that runs million gallons per day of partially treated, into surface water bodies during the initial period nondisinfected wastewater.38 of a heavy rainfall contributes significantly to the non-point source loading of pollutants entering streams)'" Undisturbed forested lands generally have the highest capacity to absorb water and subsequently the lowest rates of stormwater runoff. In contrast, impervious surfaces have ) . �. the highest runoff rates. The volume of stormwater that washes off one- acre parking lots is about 16 times greater than that of a comparable size f meadow.3h " According to research published in �'` =a ` o 2001 by Johns Hopkins University, more than 50 percent of waterborne 0 disease outbreaks between 1948 and PUBLIC HEALTH/LAND-USE MONOGRAPH# 13 Other Potential gealth blowing dust, and pesticide overspray potentially can have negative health effects Effects of Land-u! se on the occupants of the residential Decisions development."3 As sprawl-type development pulls people Land-use decisions and the built and resources away from central cities, environment affect the way humans act those left behind can experience many and interact, with my�iad impacts on public negative consequences. School districts health. Sprawl and overdevelopment is closely pressed to save money are often enticed by correlated with a range of harmful public donations of unknowingly contaminated impacts: property or seek out the cheapest land they • In a study of conflict end violence in and can find. Some of these properties, called around public housing)in Chicago, "brownfields;' are touted as the answer to researchers found that!the residents of all of the problems facing financially buildings with surrounding greenspace had a strapped school districts. Brownfields, stronger sense of community, had better defined by EPA as abandoned, idled, or relationships with theii neighbors, and underused industrial and commercial reported using less violent ways of dealing facilities where expansion or redevelopment with domestic conflict!;, particularly with is complicated by real or perceived environ- their partners.79 mental contamination,"" can, in some • Urban heat islands iny+rease the demand for instances, be the only type of property a cooling energy, increale the health risks school district feels it can afford. The land associated with heat-41ated illnesses and is cheap, and in some cases EPA may enter deaths, and acceleratethe formation of into agreements with prospective purchasers smog. Heat islands aro created when natural of property, providing a covenant not to sue vegetation is replaced 6y heat-absorbing for existing contamination q5 Some groups surfaces such as buildling roofs and walls, feel that the supposed community benefit of parking lots, and streets. This phenomenon cleaning up and reusing an abandoned site can raise air temperature in a city by is outweighed by the risks posed if, when between 2-8°F.10-1' these sites are redeveloped, they are only • Sprawl increases the risk of flooding. cleaned up to standards set for commercial Development pressures lead to the destruc- or industrial property, rather than residential tion of wetlands, whidh are natural flood- property standards which are more absorbing sponges. Id the last 8 years, stringentg6 floods in the United States killed more than 850 people and causeid at least $89 billion in property damage. Much of this flooding - occurred in places where weak zoning laws } allowed developers tol drain wetlands and { build on floodplainS.4 g. E >• Residential development next to farmland can pose unique health and quality-of-life o concerns as well. In tkis "zone of conflict," which might extend one-third of a mile from residential development, the spillover effects of agriculture, such al� excess noise, 3 4 Pueuc HEALTH/LANDAPSE MONOGRAPH I School Case Study Planners, Architects, Engineers, and Public Health Marion, OH Professionals Can Make a Military Dump Difference River Valley High School and Middle The challenge facing those with responsibility for School stand on the former site of the assuring the health and quality of life of US Army's Marion Engineering Depot, Americans is clear. We must integrate our part of which served as a dumping concepts of "public health issues" with "urban ground in the 1950s. In 1990, commu- planning issues." Urban planners, engineers, and nity members formed a group in architects must begin to see that they have a response to alarming rates of leukemia critical role in public health. Similarly, public and rare cancers among former students. health professionals need to appreciate that the built environment influences public health as Their efforts led to an investigation that much as vaccines or water quality. revealed widespread campus contamina- tion. Today, no one may exit back doors In a recently published list of the 10 most of the middle school or access several important public health challenges for the new playing fields. Recently a bond issue century, CDC Director Jeffrey Koplan, MD, passed to fund a new school, but included at least four that are significantly linked students remain on the contaminated to some of the land-use and urban design issues. site until completion 4e They are: (I) integrating physical activity into our daily lives; (2) cleaning up and protecting the environment; (3) recog-nizing the contributions of mental health to overall health and well-being; and (4) reducing the toll of violence in society.28 Specific actions from the public health sector to address these issues might include the following: 1 Supporting research to determine the impact that changes in the built environment can have on public health, such as the addition of greenspace, sidewalks, and bike paths, and the reduction in impervious surfaces. Just as traffic studies are completed to ensure that road capacity can support new growth, so too should the public health community conduct research to determine the air quality impacts that increasing numbers of automobiles in use in a community have on its air quality. Just as engineers use data that have been collected over time in other places to determine the diameter of sewer pipe needed to serve a section of a PUBLIC HEALTH/LANDiJSE MONOGRAPH* 15 i community, so too should public health making land-use planning decisions, so too is officials use data on pedestrian injury there an expanded role for urban designers and patterns to create new turban design planners to begin to view themselves as a techniques. previously untapped force for public health. It is Participating in local planning processes, time for the planning community to remember such as comprehensive planning meetings, its roots in public health protection — to zoning hearings, and urban planning remember that in the beginning many, if not workshops known as dharrettes (intense, most, land-use decisions were made to separate community-based, loca� planning and people from land-uses and industrial processes problem-solving workshops where local that posed a threat to their health or safety. leaders and decision-mhkers develop consensus vision of th'e desired future of To reclaim their role as public health protectors, their community). just as the developers, the planners and urban designers might take the the neighbors, the school board, and the following actions: planners have their say in land-use Balancing the potential public health decisions, so too should physicians and consequences of their choices with other public health officials have the opportunity considerations. "Smart growth" doesn't to provide input. It is their role to ask the mean "no growth," but it does mean questions such as "Why aren't there any planned, controlled growth. The health sidewalks in a new subdivision?" or "What impacts of land-use decisions need to is the air quality impart that is expected receive at least as much consideration in from a widening of the local highway?" and development decision making processes as to press for evidence tp substantiate any economic impacts. claims upon which any new growth and Designing communities around people rather development are based. than around automobiles. Reviving the Working with planner¢ and other land-use concept that the end result of urban design professionals to provide them with the should be improved quality-of-life and that strong public health a(guments they need to where people live as it relates to where they work, shop or go to school can have a support "smart-growth" designs and initiatives. dramatic impact on their health and quality of life. The public health and medical community must Changing existing zoning codes to play an active role in the land-use and develop- encourage multiuse land-development ment decisions made in thleir community. It is patterns that make it possible to work, their role to make policy rhakers and planners shop, and go to school within walking aware of the health impacts of the decisions they distance of people's homes. The influence make. It is also critical that when they find that of last century's community designers on no data or analyses exist to answer the questions our communities and on the behavior that they raise, they push!researchers and policy choices that we make everyday was makers to collect the infoomation they need and seriously underestimated. The obesity conduct the research to ensure that all of the epidemic in the United States was never impacts of various land-u$e decisions are known imagined by those who made it difficult, if before irrevocable actions fare taken. not impossible, to walk to the grocery store and to school and who also made it far just as there is an expanded role for health care easier to drive to the shopping mall or the workers and public healtH professionals in movie theater across town then to walk to 16 PUBLIC HEALTH/LAND-OSE MONOGRAPH such neighborhood establishments. Public health professionals and those in Changing existing building codes to architecture, urban design, and planning have encourage building and site design that is much in common. The challenge now is for each accessible to people who have various profession to learn from each other how best to degrees of mobility. It is a clear, if largely address the needs of the communities they unrealized, fact that the more each member serve, to determine what answers each has that of society is able to participate and the other needs, to create a common language, contribute, the better off society is. [Not and to initiate the opportunities to use it. only would those who were previously hampered by the inaccessibility feel better. To meet these challenges, we need a broader but they also need less help to participate in view of those factors influencing public health society and be more able to contribute to and a much better understanding of the their communities.] And all of this could be interdisciplinary nature of the problem. We need possible if appropriate design choices are a collaborative and concerted effort to influence made which, in most cases, would not cost both public health policy and other public policy appreciably more or negatively affect others. on these issues in order for positive changes to Encouraging greenspace development that take place that will improve the health and promotes community, reduces violence, and quality of life for all Americans. improves mental health. The mental and physical health benefits of community parks and other green spaces have been demonstrated. The question that remains is whether communities want to spend money up front to create an environment that prevents violence and increases psychologi- cal well-being or whether they want to spend money after the fact to address the violence and stress which results from communities without parks and communal areas. i CC0 s✓ y3 YT. 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[2001.August 6]. PUBLIC HEALTH/LAND-USE MONOGRAPH* 19 I Sprawl Watch Clearinghouse 1400 16th St., NW • Suite 225 Washington, DC 20036 202-332-7000 www.spraw[watch.org VIEWPOINT i Urban Sprawl and Public Health HOWARD FRUMxtN, MD,DRPH' When regular steam ferry service between Brooklyn and Manhattan began in 1814, the first commuter suburb became possible.' Suburbs continued to de- velop slowly but steadily during the 19th and early 20th centuries, thanks to . transportation advances such as commuter trains and streetcars, the innova- tions of early real estate developers,and the urge to live in pastoral tranquility rather than in urban squalor. As automobile ownership became widespread starting in the 1920s, suburban growth continued, a trend that accelerated greatly during the second half of the 20th century. One in two Americans now lives in the suburbs Y In recent years,the rapid expansion of metropolitan areas has been termed "urban sprawl"—referring to a complex pattern of land use, transportation, and social and economic development.As cities extend into rural areas, large tracts of land are developed in a "leapfrog," • _ low-density pattern. Different land uses- - housing,retail stores,offices,industry,recre- ational facilities, and public spaces such as �s parks—are kept separate from each other, with the separation enforced by both cus- tom and zoning laws. Extensive roads need to be constructed; for suburban dwellers, i most trips, even to buy a newspaper or a :Y � H quart of milk, require driving a car. Newly built suburbs are relatively homogeneous in both human and architectural terms, com- pared with the diversity found in traditional x urban or small town settings. With the ex- pansion of suburbs, capital investment and economic opportunity shift from the center to the periphery. Regional planning and co- ordination are relatively weak.'," Clearly,the move to the suburbs reflects a lifestyle preference shared by many Ameri- _ cans. Such a major shift in the nation's de- "Department of Environmental and Occupational Health,Rollins School of Public Health of Emory University,Atlanta,GA Address correspondence to:Howard Fntmkin,MD,DrPH,Dept.of Environmental and Occupational Health,Rollins School of Public Health,1518 Clifton Rd.,Atlanta,GA 30322;tel 404-727-3697;fax 404-727-8744;e-mail<medhf@sph.emory.edu>. 2002 Association of Sch(ols of Public Health PUBLIC HEALTH REPORTS / MAY-TUNE 2002 / VOLUME 117 0 201 i 202 0 VIEWPOINT mographics and in the form of outs environment might bility and independence.However,it is also associated also be expected to have health; implications, both with health hazards, including air pollution, motor positive and negative. Some of these effects relate di- vehicle crashes, and pedestrian injuries and fatalities. rectly to heavy reliance on automobiles: air pollution, automobile crashes,and pedestriah injuries and fatali- Air pollution ties. Other effects relate to land use patterns that typify Motor vehicles are a leading source of air pollution.211 sprawl: sedentary lifestyles, threats to water quantity Even though automobile and truck engines have be- and quality,and an expansion of the urban heat island come far cleaner in recent decades, the sheer quantity effect. Finally, some mental healtk and social capital of vehicle miles driven results in large releases of car- effects are mediated by the social&mensions of sprawl. bon monoxide, carbon dioxide, particulate matter, Many of these health effects argil individually recog- nitrogen oxides, and hydrocarbons into the air.' Ni- nized as environmental health issues, and certain as- trogen oxides and hydrocarbons, in the presence of pects of sprawl, such as reliance on automobiles, have sunlight,form ozone. been analyzed as public health isslues."Yet the broad Nationwide, "mobile sources" (mostly cars and phenomenon of sprawl, a complex of issues related to trucks) account for approximately 30% of emissions land use, transportation, urban ahrd regional design, of oxides of nitrogen and 30% of hydrocarbon emis- and planning, has been the intellectual "property" of sions.22 However,in automobile-dependent metropoli- engineers and planners. Public health professionals tan areas, the proportion may be substantially higher. have provided neither an intellectual framework nor In the 10-county metropolitan Atlanta area, for ex- policy guidance. This is a strikingl departure from the ample, on-road cars and trucks account for 58% of legacy of the 19th and early 20th denturies,when purr emissions of nitrogen oxides and 47%of hydrocarbon lic health and urban design were overlapping and emissions, figures that underestimate the full impact largely indistinguishable concerns.11�1=' of vehicle traffic because they exclude emissions from This article offers a public health framework for related sources, such as fuel storage facilities and fill- understanding the consequences of urban sprawl.For ing stations.' each of the health outcomes noted earlier, available In various combinations, the pollutants that origi- evidence about the health effect and its connection nate from cars and trucks, especially nitrogen oxides, with sprawl is presented, and issues that require fur- hydrocarbons, ozone,and particulate matter,account ther research are identified. BecAuse the adverse im- for a substantial part of the air pollution burden of pacts of sprawl do not fall equallb across the popula- American cities. Of note, the highest air pollution tion, the distribution of health impacts across the levels in a metropolitan area may occur not at the population and resulting equity concerns are ad- point of formation but downwind, due to regional dressed. Finally, some solutions ate discussed. transport. Thus, air pollution is a problem not only alongside roadways (or in close proximity to other DIRECT EFFECTS OF RELIANCE sources) but also on the scale of entire regions. ON AUTOMOBILES The health hazards of air pollution are well known.' Ozone is an airways irritant. Higher ozone levels are One of the cardinal features of$prawl is driving, re- associated with higher incidence and severity of respi- flecting a well-established, close lielationship between ratory symptoms, worse lung function, more emer lower density development and more automobile gency room visits and hospitalizations, more medica- travel.'"` For example, in the Atlanta metropolitan tion use, and more absenteeism from school and area, one of the nation's leading examples of urban work.' Although healthy people may demonstrate sprawl, the average person travels 34.1 miles in a car these effects, people with asthma and other respira- each day—an average that includes the entire popula- tory diseases are especially susceptible. Particulate tion, both drivers and nowdri%lers.17 More densely matter is associated with many of the same respiratory populated metropolitan areas have far lower per capita effects and, in addition, with elevated mortality.'z' daily driving figures than Atlanta[, e.g., 16.9 miles for People who are especially susceptible to the effects of Philadelphia, 19.9 for Chicago,a0d 21.2 for San Fran- air pollution include the elderly, the very young, and cisco.17 On a neighborhood scale, the same pattern is those with underlying cardiopulmonary disease. observed. In the Los Angeles, Satin Francisco, and Chi- An additional driving-related emission is carbon cago metropolitan areas,vehicle miles traveled increase dioxide, the end product of burning fossil fuels such as neighborhood density decreasjes (see Figure 1)." as gasoline. Carbon dioxide is the major greenhouse Antomobile. use offers extraordinary personal mo- gas, accounting for approximately 80% of emissions PUBLIC HEALTH REPORTS / MAY-DUNE 2002 / VOLUME 117 URBAN SPRAWL AND PUBLIC HEALTH 0 203 Figure 1.Annual vehicle miles traveled per household, by neighborhood residential density Driving vs Residential Density 35000 y 30000 ; i -c 25000 g 20000 - 'l > `, SF � 15000 - - - - LA Chicago d 10000 ,y 5000 0 I 0 50 100 150 200 Households/Residential Acre SOURCE:Reference 18. with global warming potential." Motor vehicles are hazardous levels,and driving can account for a major- also a major source of other greenhouse gases,includ- ity of the emissions. Although ongoing research is ing methane, nitrogen oxides, and volatile organic exploring the pathophysiology of air pollution expo- compounds. As a result, automobile traffic is a major sure and related issues, there are also important re- contributor to global climate change, accounting for search questions that revolve around prevention.Tech- approximately 26%of U.S.greenhouse gas emissions."" nical issues include such challenges as the development During the decade of the 1990s, greenhouse gases of low-emission vehicles and other clean technologies. from mobile sources increased 18%, primarily a re- Policy research needs to identify approaches to land flecdon of more vehicle miles traveled=s In turn, glo- use and transportation that would reduce the need for bal climate change threatens human health in a num- motor vehicle travel.Behavioral research needs to iden- ber of ways, including the direct effects of heat, tify factors that motivate people to choose less-polluting enhanced formation of some air pollutants, and in- travel behaviors,such as walking,carpooling,or use of creased prevalence of some infectious diseases."-w" more efficient vehicles. Thus,the link between sprawl and respiratory health is as follows: Sprawl is associated with high levels of Motor vehicle crashes driving, driving contributes to air pollution, and air Automobiles now claim more than 40,000 lives each pollution causes morbidity and mortality. In heavily year in the United States, a number that has slowly automobile-dependent cities, air pollution can rise to declined from about 50,000 per year in the 19605 34 • PUBLIC HEALTH REPORTS / MAY JuNE 2002 / VOLUME 117 204 O VIEWPOINT Rates of automobile fatalities and injuries per driver falo.The bus did not stop at the mall itself,so Cynthia and per mile driven have fallen thanks to safer cars had to cross a seven-lane highway on foot to complete and roads, seat belt use, laws that discourage drunk her trip to work. On that day, she had made it across driving, and other measures, but Ithe absolute toll of six lanes when a dump truck crushed her."'Her death automobile crashes remains high.Automobile crashes received national media attention; it was seen as are the leading cause of death among people 1-24 exemplifying inadequate mass transportation links, years old, account for 3.4 million nonfatal injuries pedestrian-hostile roadways, and the disproportionate annually,and cost an estimated$260 billion annually'" impact of these factors on members of minority groups. The relationship between spra4i and motor vehicle Each year, automobiles cause about 6,000 fatalities crashes is complex.At the simplest level,more driving and 110,000 injuries among pedestrians nationwide. means greater exposure to the dhngers of the road, Pedestrians account for about one in eight automo- translating to a higher probability of a motor vehicle bile-related fatalities.M1140 Data from Atlanta show that crash."5 Suburban roads may be a particular hazard, as the city sprawled in recent years, the pedestrian especially major commercial thoroughfares and fatality rate increased even as the national rate de- "feeder" roads that combine higlj speed, high traffic clined slightly."The most dangerous stretches of road volume,and frequent"curb cuts"for drivers to use in were those built in the style that typifies sprawl: mul- entering and exiting stores and other destinations."' tiple lanes, high speeds, no sidewalks, long distances However, available data from the National Highway between intersections or crosswalks,and roadways lined Traffic Safety Administration (r�HTSA) show fatal with large commercial establishments and apartments crashes aggregated into only two categories of roads: blocks"Across the country,the pattern seen for driver urban (accounting for approximately 60% of fatali- and passenger fatalities is repeated for pedestrian fa- ties) and rural (approximately 40%)"" talities, with lower annual rates in denser cities: 1.89 The NHTSA data do permit comparison of auto- per 100,000 population in Portland,2.22 in New York, mobile fatality rates by city"" In g,neral, denser cities 2.52 in Chicago, and 2.57 in Philadelphia, compared with more extensive public transportation systems have with 3.03 in Dallas, 3.61 in Atlanta, 4.08 in Phoenix, lower automobile fatality rates (including drivers and and 6.60 in Tampa. However, this pattern is not as passengers, but excluding pedestrians) than more consistent as for driver and passenger fatalities, and sprawling cities: 2.45 per 100,000 population in San there are exceptions, e.g., 2.60 per 100,000 popula- Francisco, 2.30 in New York, 3.21 in Portland, 6.67 in tion in Los Angeles, 2.61 in Houston, 3.86 in San Chicago, and 5.26 in Philadelphia, compared with Francisco, and 4.73 per 100,000 in Detroit."" 10.08 in Houston, 16.15 in Tampa, 12.72 in Atlanta, While many factors contribute to the high toll of 11.35 in Dallas, and 9.85 in Phoenix"" (There are pedestrian fatalities, including alcohol abuse, inad- notable exceptions to this pattern, such as 5.79 per equate lighting, and pedestrian behavior, the prolif- 100,000 population in Los Angeles and 10.93 per eration of high-speed, pedestrian-hostile roads in ex- 100,000 in Detroit.31) panding metropolitan areas likely plays an important According to the American Cdllege of Emergency part.Walking offers important public health benefits, Physicians, "Traffic crashes are 0redictable and pre- but safe and attractive sidewalks and footpaths are ventable, and therefore are not `Iccidents."'"' In fact, needed to attract walkers and assure their safety.Much the determinants of motor vehicle injuries and fatali- of the knowledge needed to make progress is avail- ties are well recognized. For some of these, public able, but further research might help clarify the best health interventions, from seat b@Its to traffic signals, and most cost-efficient ways to build walkways and the have achieved dramatic reductions in injury and fatal- most successful approaches to zoning, financing, and ity rates in the three-quarters of d century since auto- other incentives. mobile use became widespread.A Watively overlooked risk factor, however, is the simple fact of driving and EFFECTS OF LAND USE DECISIONS the number of miles driven.Primary prevention would consist of decreasing exposure, ern approach that is Land use and travel patterns are closely linked. If currently impractical in many myu'opolitan areas. distinct land uses are separated, if the distances be- tween them are great, and if roads are more available Pedestrian injuries and fatalities than sidewalks and paths,then people shift from walk- On December 14, 1995, 17-year-old Cynthia Wiggins ing and bicycling to driving.Accordingly, the U.S. is a rode the public bus to her job at1the Walden Galleria nation of drivers, in which only 1% of trips are on in suburban Cheektowaga, New i 6rk, outside of Buf- bicycles and 9% are on foot 42 For comparison, in the i PUBLIC HEALTH REPORTS MAY-JUNE 2002 VOLUME 117 ' URBAN SPRAWL AND PUBLIC HEALTH O 205 Netherlands 30% of all trips are on bicycles and 18% Sprawl does not fully account for Americans' in- are on foot,and in England the corresponding figures creasingly sedentary lives, and physical inactivity does are 8% and 12%.1='Approximately 25% of all trips in not tell the entire story of the national epidemic of the U.S. are shorter than one mile; of these, 75% are being overweight. However, by contributing to physi- by car.' cal inactivity and therefore to overweight and associ- ated health problems, sprawl has negative health con- Physical activity sequences. Further research will help provide a more A considerable body of research establishes that sprawl— complete understanding of the association between as measured by low residential density,low employment sprawl and physical inactivity."' In theory, a random- density, low"connectivity," and other indicators—is as- ized trial might assign some people to live in walkable sociated with less walking and bicycling and with more neighborhoods and others to live in subdivisions with- automobile travel than denser comm Unities.'s,'` out sidewalks or nearby schools,stores,or workplaces. Low levels of physical activity threaten health both Then, the two groups might be followed for physical directly and indirectly. A sedentary lifestyle is a well- activity patterns and related health outcomes. Such established risk factor for cardiovascular disease,stroke, residential randomization is, of course, impossible. and all-cause mortality,"1" whereas physical activity Observational studies are underway to characterize prolongs life."-"Men in the lowest quintile of physical the relationships among land use, travel patterns,and fitness have two to three times the risk of dying over- physical activity." However, such research is challeng- all, and three to five times the risk of dying of cardio- ing.People living in walkable neighborhoods may have vascular disease, compared with men who are more chosen to live there because of better health and a fit.''' Among women, walking 10 blocks per day or greater inclination to walk. Because children do not more is associated with a 33% lower risk of cardio- choose their neighborhoods, an alternative might be vascular disease 57 The risk associated with poor physi- to study adult physical activity and travel patterns ac- cal fitness is comparable to,and in some studies greater cording to the type of neighborhood of origin to test than, the risk associated with hypertension, high cho- the hypothesis that childhood access to walkable neigh- lesterol, diabetes, and even smoking.'," Among dia- borhoods predicts lifelong travel preferences and ac- betic patients, the higher the blood sugar, the more tivity patterns. Research is also needed on design is- protective is physical fitness."Physical activity also ap- sues (how to build more walkable communities),policy pears to be protective against cancer."'"' issues (how to put incentives in place to encourage In addition to its direct effects on health, lack of needed environmental and behavioral changes), and physical activity is also a risk factor for being over- behavior issues (how to motivate more physical activ- weight.Sedentary lifestyles may help explain the rapid ity, including walking). increase in the prevalence of overweight in recent years. In 1960, 24% of Americans were overweight Water quantity and quality (defined as a Body Mass Index >_25 kg/m'), and by Americans take for granted the availability of clean, 1990 that proportion had increased to 33%." During plentiful,and cheap water.Indeed,the development of the same interval, the prevalence of obesity (defined an excellent water supply—the result of social policy, as a Body Mass Index ?30 kg/m') nearly doubled.' civil engineering,and health advocacy over more than According to data from the Behavioral Risk Factor a century—is credited with a central role in improving Surveillance System, this trend continued during the public health during the first half of the 20th century."'' 1990s,with the prevalence of obesity rising from 12.0% Sprawl may threaten both the quantity and quality in 1991 to 17.9% in 1998!"'6' of the water supply. As forest cover is cleared and Being overweight is itself a well-established risk fac- impervious surfaces built over large areas, rainfall is for for a number of diseases: ischemic heart disease less effectively absorbed and returned to groundwater (overweight increases the risk up to fourfold in the aquifers."Instead,relatively more stormwater flows to 30-44 age group, less at older ages'), hypertension, streams and rivers and is carried downstream. One stroke, dyslipidenria, osteoarthritis, gall bladder dis- study found that about 4% of rainfall on undeveloped ease, and some cancers. Overweight people die at as grassland,compared with 15%of rainfall on suburban much as 2.5 times the rate of non-obese people.`''(�71 land, was lost as runoff." The same is true for snow- Being overweight increases the risk of Type 2 diabetes melt, especially early in the melting process."Model- up to fivefold, and the current epidemic of Type 2 ing shows that higher density development patterns diabetes tracks closely with the increase in being can reduce peak flows and total runoff volumes"With overweight.' less groundwater recharge, communities that depend • f UBLIc HEALTH REPORTS / MAY-JUNE 2002 / VOLUME 117 206 O VIEWPOINT I on groundwater for their drinking water—about one- pollution on drinking water quality, and the optimal third of U.S. communities"0—may iface shortages. control methods. Water quality may be affected irl several ways. With better control of"point sources" of water pollution— The heat island effect factories, sewage treatment plants; and similar facili- On warm days, urban areas can be 6°-8° F warmer ties—"non—point source"water pollution has emerged than surrounding areas, an effect known as an urban as the major threat to watersupplieA,.Non—point source heat island (see Figure 2). The heat island effect is water pollution occurs when rainfall,,or snowmelt moves caused by two factors.First,dark surfaces such as road- over and through the ground, picking up contami- ways and rooftops efficiently absorb heat from sun- nants and depositing them into surface water (lakes, light and reradiate it as thermal infrared radiation; rivers,wetlands,and coastal waters5 and groundwater. these surfaces can reach temperatures of 50"-70° F Much of this problem is specific tb agricultural land, higher than surrounding air. Second, urban areas are the primary source of contamin4don by fertilizers, relatively devoid of vegetation, especially trees, that herbicides, and insecticides. Howolver, growing forms would provide shade and cool the air through "evapo- of non—point source pollution incl6de oil,grease,and transpiration." As cities sprawl outward, the heat is- toxic chemicals from roadways,parking lots,and other land effect expands,both in geographic extent and in surfaces,and sediment from improperly managed con- intensity.This is especially true if the pattern of devel- struction sites,other areas from which foliage has been opment features extensive tree cutting and road con- cleared,or eroding stream banks.Studies of the move- struction.Na,"NASA satellite imagery,available for pub- ment of polycyclic aromatic hydroc$rbons,"zinc,"'-and lic viewing on the Web, documents the heat island organic waste""suggest that so ur�an development is effect for several cities."`' associated with high loading of th se contaminants in Metropolitan expansion involves apositive feedback nearby surface water. loop that may aggravate the heat island effect.Sprawl- Both water quantity and water quality are directly ing metropolitan areas, with greater travel distances, affected by land use and development patterns, and generate a large amount of automobile travel.This, in evidence suggests that sprawl contributes to these prob- turn, results in more fuel combustion,with more pro- lems in specific ways. Further evidence is needed to duction of carbon dioxide, and consequent contribu- identify the precise features of lantl use that best pre- [ions to global climate change."Global climate change, dict non—point source pollution, :the impact of this in turn, may intensify the heat island effect in metro- i Figure 2.An urban heat island Prole Metch of an Urban Heat-Island Profile 92 ,•••. • i Q •• •�•• 1 =• i= •••••.•• i C • •• .� �•••. Y N Y m Rural Suburban Commercial Downtown Urban Park Suburban Rural Residential Residential Residential Farmland SOURCE: Reference 93. i PUBLIC HEALTH REPORTS MAY-JUNE 2002 VOLUME 117 r URBAN SPRAWL AND PUBLIC HEALTH O 207 • politan areas.Thus, not only does the morphology of urbs than in denser urban areas. Moreover, contact metropolitan areas contribute to warming,but so may with nature may offer benefits beyond the purely aes- the greenhouse gas production that results from in- thetic;it may benefit both mental health and physical creased driving. health." In addition, the sense of escaping from the The magnitude of the contribution of sprawl to turmoil of urban life to the suburbs, the feeling of urban heat episodes is unclear. Data from the last half peaceful refuge, may be soothing and restorative to century show a clear increasing trend in extreme heat some people. In these respects, there may be health events in U.S.cities."While global warming may con- benefits to suburban lifestyles. tribute to this trend, the rate of the increase far ex- On the other hand, certain aspects of sprawl, such ceeds the rate of global %arming, suggesting that or- as commuting, may exact a mental health toll. For ban growth patterns may be a primary determinant." sonic time, automobile commuting has been of inter- Further research on this phenomenon is required. est to psychologists as a source of stress, stress-related Heat is of concern because it is a health hazard.' health problems,and even physical ailments.Evidence Relatively benign disorders include heat syncope, or links commuting to back pain, cardiovascular disease, fainting; heat edema, or swelling, usually of depen- and self-reported stress"As people spend more time dent parts such as the legs;and heat tetany,a result of on more crowded roads, an increase in these health heat-induced hyperventilation. Heat cramps are pain- outcomes might be expected. fill muscle spasms that occur after strenuous exertion One possible indicator of such problems is road in a hot environment. Heat exhaustion is a more se- rage, defined as "events in which an angry or impa- vere acute illness that may feature nausea, vomiting, tient driver tries to kill or injure another driver after a weakness, and mental status changes. The most seri- traffic dispute."" Even lawmakers may be involved; ous of the acute heat-related conditions is heat stroke, one press account described a prominent attorney which represents the body's failure to dissipate heat. and former Maryland state legislator who knocked the The core body temperature may exceed 104°F,muscle glasses off a pregnant woman after she had the temer- breakdown occurs, and renal failure and other pro- ity to ask him why he had bumped her Jeep with his:"7 found physiologic derangements may follow. The fa- Available data do not make clear whether road rage tality rate is high. is on the rise.The only longitudinal study available in . There are several well-known risk factors for devel- the U.S.,published by the AAA Foundation for Traffic oping heat stroke or dying during a heat wave,includ- Safety in 1997, reported a 51% increase in reported ing being elderly, bedridden, homebound, or socially annual incidents of road rage during the interval from isolated, having certain diseases or using certain medi- 1990 to 1996."1 The Foundation documented 10,000 cations, and living on an upper floor."'"=' Poverty and reports of such incidents, resulting in 12,610 injuries minority race or ethnicity are also risk markers." and 218 deaths.A variety of weapons was used,includ- Heat also has indirect effects on health, mediated ing gums,knives,clubs,fists,or feet,and in many cases through air pollution. As the temperature rises, so the vehicle itself. However, since the data sources in- does the demand for energy to power air condition- cluded police reports and newspaper accounts, it is ers, requiring power plants to increase their output. possible that the apparent increase reflected growing The majority of U.S.power plants burn fossil fuels,so public awareness and media attention rather than a increased summer demand results in higher emissions true increase in the number or rate of road rage of the pollutants they generate, including carbon di- incidents. oxide, particulate matter, sulfur oxides, nitrogen ox- Road rage is not well understood, and there is a ides,and air toxics. Ozone formation from its precur- multiplicity of reasons for its occurrence.Stress at home sors, nitrogen oxides and hydrocarbons, is enhanced or work may combine with stress while driving to elicit by heat. In summary, through both the direct and anger.""I Data from Australia"" and Europe"' sug- indirect effects of heat, sprawl has potential adverse gest that both traffic volume and travel distance are health consequences. risk factors. Long delays on crowded roads are likely to be a contributing factor. SOCIAL ASPECTS OF SPRAWL Episodes of road rage may reflect a reservoir of frustration and anger on the roads. In national tele- Mental health phone surveys conducted by Mississippi State Univer- One of the original motivations for migration to the sity in 1999 and 2001,'"•104 large numbers of respon- suburbs was access to nature.' People like trees,birds, dents reported both engaging in aggressive behaviors and flowers,and these are more accessible in the sub- while driving and being the objects of such behavior PUBLIC HEALTH REPORTS / MAY-IuNE 2002 / VOLUME 117 i 208 O VIEWPOINT (see Table).The surveys did not identify respondents seniority was 18 years. Among these women, 56% re- who lived in suburban locationsh although the re- ported driving aggressively, 41% reported yelling or sponses differed in several respects across the geo- gesturing at other drivers while commuting, and 25% graphic categories used (rural, small town, small city, reported taking out their frustrations from behind the and large city),suggesting an influence of density and wheel of their cars. Aggressive driving behavior ap- other "built environment" factors ion aggressive driv- pears to be a widespread problem. ing behavior.A similar survey, conducted for NHTSA It seems reasonable to hypothesize that anger and in 1998,found somewhat lower but comparable num- frustration among drivers are not restricted to their bers."" In the NHTSA survey, the 4wo,leading reasons cars. When angry people arrive at work or at home, cited for aggressive driving were (4) being rushed or what are the implications for work and family rela- being behind schedule (23%of respondents),and (G) tions?If the phenomenon known as commuting stress increased traffic or congestion (212%)-common ex- affects well-being and social relationships both on the periences on the crowded roadway$of sprawling cities. roads and off,and if this set of problems is aggravated Moreover, 30% of the NHTSA respondents perceived by increasingly long and difficult commutes on that aggressive driving-their owo and others'-was crowded roads, then sprawl may in this manner increasing over time, and only 4%q thought it was de- threaten mental health. creasing. More recently, Curbow'and Griffin"' sur- veyed 218 women employed by a telecommunications Social capital company. This was a stable, profelssional population; Since World War II,social commentators have ascribed 67% of the respondents had more:than a high school to suburban living a sense of social isolation and lone- education, 76% were parents, arld the average job liness,""" although some of these claims have re- Table. Prevalence of self-reported {!riving behaviors, 1999 and 2000 National Highway Safety Surveys Percent of respondents by response choice How often do you . . . (1999) Never Rarely Sometimes Often Say bad things to yourself about other drivers 15.3 22.9 39.5 22.1 Complain or yell about other drivers to a passenger in your vehicle 25.5 22.2 39.0 13.1 Give another driver a dirty look 41.8 17.6 32.7 7.7 Honk or yell at someone through tho window to express displeasure 61.1 17.9 17.9 2.9 Keep someone from entering your lame because you are angry 80.2 12.9 5.9 0.8 Make obscene gestures to another driver 83.7 9.2 6.1 0.8 Think about physically hurting another driver 89.0 5.4 4.4 1.1 Make sudden or threatening moves to intimidate another driver 94.6 4.0 1.1 0.1 Follow or chase another driver in an er 96.5 3.2 0.3 0.0 Percent of respondents by place of residence Within the last year, another driver.i. . (2001) Rural Small town Small city Large city Total Made an obscene gesture at you 39.7 37.1 44.9 44.3 41.8 Made a threatening move with car 25.4 23.5 30.0 25.9 26.4 Tailgated you 69.1 61.3 70.3 69.8 66.8 Followed or chased you in anger i 9.9 6.4 9.9 11.5 9.4 Got out of car to argue with you 5.8 5.8 4.2 8.3 5.9 Cut you off 32.0 33.7 38.6 48.0 38.1 SOURCE:Adapted from references 103 and 104. PUBLIC HEALTH REPORTS MAY-TUNE 2002 VOLUME 117 URBAN SPRAWL AND PUBLIC HEALTH O 209 • cently been challenged."' "It is no coincidence," ob- causes, independent of income and poverty, accord- serves Yale architecture professor Philip Langdon,"that ing to data from the United States'=''-13 and Great at the moment when the United States has become a Britain.111.1s2 There is evidence that this effect is medi- predominantly suburban nation, the country has suf- ated, at least in part, through effects on social capi- fered a bitter harvest of individual trauma,family dis- tal.'s9,114 Therefore, to the extent that sprawl is associ- tress, and civic decay." "'Indeed, a perceived erosion ated with social stratification and loss of social capital of civic engagement and mutual trust—a loss of what and these phenomena are in turn associated with fin- is called "social capital"—has been widely noted and creased morbidity and mortality, sprawl may have a discussed in recent years."'•"s Some authors have at- negative health impact on this broad scale. tributed this decline, in part, to suburbanization and sprawl.'19A o ENVIRONMENTAL JUSTICE CONSIDERATIONS A full discussion of the complex sociology of subur- ban life is beyond the scope of this article. Several Research over the last 15 years has suggested that poor facts bear mention, however. First, as Robert Putnam people and members of minority groups are dispro- argues in Bowling Alone, the simple fact of more driv- portionately exposed to environmental hazards.'--"17 ing time means less time with family or friends, and Could any adverse health consequences of sprawl dis- less time to devote to community activities,from neigh- proportionately affect these same populations? boyhood barbecues to PTA meetings."' Putnam esti- In general, the pattern of urban development of mates that each additional 10 minutes of driving time which sprawl is a part may deprive the poor of eco- predicts a 10% decline in civic involvement."s Sec- nomic opportunity. When jobs, stores, good schools, ond, suburban development patterns often feature and other resources migrate outward from the core considerable economic stratification. Many housing city,poverty is concentrated in the neighborhoods that developments are built to specific price ranges,so that are left behind.'"" 11 A full discussion of the impact of buyers of$250,000 homes are effectively segregated urban poverty on health is beyond the scope of this from buyers of $500,000 homes (and those at the article, but a large literature explores this relation- bottom of the economic ladders are excluded alto- ship.11111'To the extent that sprawl aggravates poverty, gether).'"-' This pattern creates income homogeneity at least for selected groups of people, it may contrib- within neighborhoods but may intensify income in- ute to the burden of disease and mortality. equality across metropolitan areas. Third, both poll- More specifically, there is evidence that several of ing data and voting records have demonstrated that the specific health threats related to sprawl affect mi- suburban residents prefer more individualized, less nority populations disproportionately.Air pollution is collective solutions to social problems relative to rural, one example. Poor people and people of color are small town,and urban voters,with the possible excep- disproportionately impacted by air pollution for at tion of schools.'rl—Ill Finally,suburban neighborhoods least two reasons: disproportionate exposure, and with capacious houses and lawns offer few options for higher prevalence of underlying diseases that increase older adults once their children have grown tip and susceptibility. Members of minority groups are rela- moved from the home. These "empty nesters" typi- tively more exposed to air pollutants than whites, in- cally have to change neighborhoods if they wish to dependent of income and urbanization.'"s•1i1 Environ- find smaller, lower maintenance homes. The inability mental Protection Agency data show that black people to remain in a single neighborhood through the life and Hispanics are more likely than white people to cycle may also undermine community cohesiveness. live in areas that violate air quality standards.'"' As Collectively, these trends suggest that certain features asthma continues to increase, asthma prevalence and of sprawl tend toward greater social stratification and mortality remain higher in minority group members less social capital. than in white people:"The cumulative prevalence of A large literature has explored the relationship be- asthma is 122 per 1,000 in black people and 104 per tween social relationships and health, focusing both 1,000 in white people, and asthma mortality is ae- on the individual level (one's own relationships) and proximately three times as high in black people as in on the societal level (social capital).'=" In general, a white people.152 Similarly, asthma prevalence is more higher quantity and quality of social relationships is than three times as high among Puerto Rican children associated with health benefits.Conversely,social strati- as among non-Hispanic children.15'Among Medicaid fication, in particular income inequality, is associated patients,black children are 93%more likely,and Latino with higher all-cause mortality, higher infant mortal- children 34% more likely,than white children to have ity, and higher mortality from a variety of specific multiple hospitalizations for asthma.15'Although some • PUBLIC HEALTH REPORTS / MAY-DUNE 2002 / VOLUME 117 210 O VIEWPOINT i i of this excess is related to povertyl the excess persists tion but account for 43% of pedestrian fatalities."'In in analyses controlled for income.` Asthma preva- the Virginia suburbs of Washington, Hispanics repre- lence and mortality are especially Nigh, and rising, in sent 8% of the population but account for 21% of inner cities, where minority populations are concen- pedestrian fatalities.'"The reasons for this dispropor- u-ated.''"'"Both exposure to air pollution and suscep- tionate impact are complex and may involve the prob- tibility to its effects appear to be concentrated dispro- ability of being a pedestrian (perhaps related to low portionately among the poor and!people of color.As access to automobiles and public transportation),road sprawl contributes to air pollutidn in metropolitan design in areas where members of minority groups areas, these populations may bel disproportionately walk, and behavioral and cultural factors (such as be- affected. ing unaccustomed to high speed traffic). Heat-related morbidity and mortality also dispro- These examples illustrate that the health effects of portionately affect poor people and members of mi- sprawl may have disparate impacts on different sub- nority groups. In the 1995 Chico o heat wave,black residents had a 50% higher heat-related mortality rate than white residents."" Similar findiy gs have emerged following heat wavei in Is4 "" "' Texas, Memphis, St.Louis, wind Kansas City"" and are reflected in ha- tionwide statistics."' Of special inter- est in the context of urban sprdwl, r' one heat wave study considered trans- portation as a risk factor and fotlnd �. that poor access to transportation-a correlate of poverty and non-white r r race"'"—was associated with a 7 % ' higher rate of heat-related death.,t There are significant racial/ethmic differences in motor vehicle fatality n>' rates. Results from the Natiopal r` s f Health Interview Survey revealed t t 711 motor vehicle fatality rates of 32.5)er 100,000 person-years among bl ck y Ines, 10.2 among Hispanic men, 19.5 among white men, 11.6 among block f women, 9.1 among Hispanic women, and 8.5 among white women."Mbch yl of the disparity was associated vyith social class. ' However,differences in neighborhood design, road quality, r= � automobile quality,and behavioral fac- torsmay be important, and need to be better understood. t Pedestrian fatalities disproportion- ately affect members of minority groups and those at the bottom of the economic ladder."'In Atlanta;for s instance,pedestrian fatality rates�lur- ing 1994-1998 were 9.74 per 100,000 " for Hispanics, 3.85 for black pe+e, and 1.64 for white people.'I In subur- ban Orange County, Califor�ia, + Latinos represent 28%of the pol:Oa- PUBLIC HEALTH REPORTS / MAY-JUNE 2002 / VOLUME 117 URBAN SPRAWL AND PUBLIC HEALTH 0 211 • populations. in other cases, there is less evidence of SOLUTIONS disparities in the health outcomes associated with As discussed above,further research is needed to clarify sprawl,or when such disparities exist,they are likely to the complex relationships among land use, transpor- relate to factors other than land use and transporta- tation, and health. What approaches to urban plan- tion. Examples include physical activity, water-related ning design, and construction are most likely to re- health outcomes, and mental health outcomes. duce air pollution, reduce urban heat, encourage Physical activity and overweight vary by ethnic and physical activity, reduce automobile-related morbidity racial group. People of color are more likely to be and mortality,and promote mental health and a sense overweight","" and more likely to lead sedentary life- of community? Although this article has focused on styles'"-"than white people.''"'T"In the Third National Health and Nutrition Examination Survey (NHANES- the health consequences of sprawl, other forms of 111), for example, 40% of Mexican Americans and built environment—dense cities, remote rural areas, 35% of blacks reported no leisure time physical activ- and small towns—all have advantages and disadvan- ity, compared with 18% of white people.''' In this urges that need to be assessed. It is likely that many same survey, the mean Body Mass Index was 29.2 different kinds of built environments can promote among black people,28.6 among Mexican Americans, health, and that optimal approaches will borrow ele- and 26.3 among white people.''" The relationships menu of cities, suburbs, and small towns. among race/ethnicity,genetic factors,social class, the Some interventions may be relatively simple, such environment, diet, physical activity, and body weight as planting more trees or providing more sidewalks. are complex.There is no evidence that sprawl dispro- Others are more complex and expensive to implement, portionately affects people of color with regard to such as mass transit and mixed-use zoning.For each of physical activity. In fact, poorer people may be less these, standard health research methods—ranging from clinical trials to observational epidemiology— likely to own cars and therefore more likely to walk may offer insights. This research will require innova- than wealthier people. Given the public health impor- tive partnerships with other professionals, such as ur tance of overweight,obesity,and related health condi- tions, and the fact that relatively little research has ban planners, architects, and real estate developers. to addressed disparities in environmental contributors It is especially important for health researchers recognize and study "natural experiments." Patterns such as sprawl,further data on these relationships are of urban land use are changing, with. migration back needed. into inner cities, urban growth boundaries that re- in contrast,there is no evidence that sprawl-related strict development to certain areas, development of threats to the water supply disproportionately affect mixed-use projects, innovations in mass transporta- poor people members of minority groups. Simi- tion, green space programs, and related initiatives. sequences there is noo evidence that the mental health con- Such efforts offer opportunities for health researchers sequences of sprawl, such as road rage, affect various who can examine their effects on relevant health racial/ethnic groups differently. In the driving behav endpoints.for survey data cited previously, no racial/ethnic dif- endpoints. we recognize and understand the health costs of ferences were found in self-reported aggressive behav As- ior. Although black people were slightly less likely to urban sprawl, we can begin to design solutions. Many be the victims of aggression than white people or mem- potential solutions are found in an urban planning hers of other racial/ethnic groups,this difference was approach that has come to be known as"smart growth," not statistically significant."'1•10° characterized by higher density; more contiguous de- In summary, some of the health consequences of velopment; preserved green spaces; mixed land uses sprawl appear disproportionately to affect vulnerable with walkable neighborhoods; limited road construc- subpopulations,while others do not demonstrate this tion balanced by transportation alternatives; architec- pattern. In many cases we do not have sufficient data tural heterogeneity; economic and racial/ethnic het- to reach firm conclusions. Given the significance of erogeneity; a balance of development and capital the health outcomes involved,the moral imperative of investment between central city and periphery; and p effective, coordinated regional plan ning.""•'''""" im- eliminating racial and ethnic health. disparities, and the steady increase in sprawl, these associations de- portantly,many of the health-related benefits that could flow from this approach—less air pollution,more physi- serve continued public health attention. cal activity,' lower temperatures, fewer motor vehicle crashes—would also yield collateral benefits,such as a cleaner environment and more livable neighborhoods. PUBLIC HEALTH REPOR,rs / MAY-Juror 2002 / VOLUME 117 212 0 VIEWPOINT If the health consequences of spratfvl represent a"syn- 2. Census Bureau(US),Population Division,Population demic"''t'-a combination of synergistic epidemics that Estimates Program.Population estimates of metropoli- contributes to the population burd$n of disease-then tan areas,metropolitan areas inside central cities,met- solutions areas outside central cities, and nonmetro- solutions may also operate synergistically, ameliorat- P ing several health problems. politan areas by state for July 1,1999 and April 1, 1990 Health professionals can play art important role in population estimates base [cited 2002 Jul 30]. Avail- designing and implementing trans{�ortation and land able from: URL: http://wmv.census.gov/population use decisions. Similarly, those who have traditionally /estimates/metro-city/ma99-06.Let 3. Garreau J. Edge city: life on the new frontier. New managed these issues-urban planners, architects, York:Doubleday; 1991. engineers, developers, and others-should recognize 4. 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Special issues regarding obesity in mi- nority populations.Ann Intern Med 1993;119:6504. • PUBLIC HEALTH REPORTS / MAY JUNE 2002 / VOLUME 117 ITEM i3 PLANNING COMMITTEE May 20,2003 AN I IG' SERVICES WORK PROGRAM 2003 INFORMATION ITEM: tall will present Planning Services anticipated work program r the year. COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES KEN T Charlene Anderson,AICP, Manager wA$HINGTON Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent, WA 98032-5895 DATE: May 13, 2003 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: CHARLENE ANDERSON, AICP,PLANNING MANAGER THROUGH: MAYOR JIM WHITE SUBJECT: PLANNING SERVICES WORK PROGRAM- 2003 SUMMARY: Each year the Planning Manager presents to the committee the anticipated work program for the year. This year's work program generally lists only those projects that are mandated by the state or are part of the permit process. Nevertheless, we welcome comments and appreciate the dialogue with the City Council regarding the work program. BUDGET IMPACT: None MOTION: None needed—For Information Only BACKGROUND: Planning Services is responsible for all land use planning matters, including formulation, amendment and implementation of the City's Comprehensive Plan, zoning, subdivision and various other environmental and regulatory codes. Included in the planning efforts are extensive coordination with other city departments and outside agencies, as well as presentation of documents and reports to the Land Use & Planning Board, Hearing Examiner, and City Council, including the Planning Committee. Enclosed in the agenda packet is the anticipated Planning Services work program for 2003. As a means of comparison, the 2002 work program also is included. There are items on the 2002 work program that were not initiated and that are not on the 2003 work program either. These items generally are not included in the state mandates for 2003 or are activities that are intended to be postponed to another year. Included in the list of postponed projects are fairly major updates to the zoning and subdivision codes,the Downtown Strategic Action Plan,historic preservation and the Shoreline Management Program. In this year's work program, staff paid particular attention to the time involved in reviewing major development and applications for subdivisions and other land use matters. Also noted are the considerable efforts on customer service in terms of responses to requests for zoning interpretations and determinations, requests for general information and follow-up from permit center calls. On the long range planning side, most of the efforts will be on the 5-year update of the comprehensive plan, along with the annual plan amendments and periodic minor updates of the regulatory codes. Staff will be available at the May 20`h meeting to further discuss the work program. CA\pm:S:Termit\Plan\Planning Committee\2003\2003workprogram.doc Enc: 2002 and 2003 work programs cc: Fred N.Satterstrom,AICP,C.D Director Charlene Anderson,Planning Manager Project File U U ate+ ao O O GO to d as a O U U W Y M U� u O y z N � en � w o W O C C O a N � it M c d 0 � r q A M ; M O M Zx v) 0 0 n o 0 0 Wn Wn 0 0 c 1�1 iw N N vN1 ,�„ O h N� N [- «+ U 'C F'71 ITV ,� O O 6 O O O d W W ^O m a Pro O � .14 3 0 o " v y 4) mo00 3 90 z aU � c7oA a°i A c °a � Ua -0 .0 a ° z � g QUO oawA '= ° 4 ral �d a "0d F� [y Z a A ^ d A t)d °44�o Ox '> .� U ? a nw m per' > G y �•" " � 0 W se w '� cz �noa C7 c � v • � � ax c o � o2dQ � U C a A U U U U a w U ti i a5,1Z a a 0 0 6i N N U � � w U o p,•^ a o, PQ, E U Y 4n A �c+ 0 0 Y y o z � y � C M d � O ^ as N 3 � tn N w U en 00 0 x v� ee co w C7 c y 0 0 0000 00000 00 Z w y O 00 00 V O h0 00 N p ,.1G Y V CD �nNN7 �O O� Mh " O = Y it O O GTi � •� � z � � c w o C N d Q O o E .� C � O z p .+ Y N N m a o ca ❑ i 11. .0 to = c QA UF" r No Cd7a-; �1 0aAr. .°;cn0 cn0 anwa�° appN '> cbc aNO oc r oU a 0 . 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(7 00 � fy h 0 W 000 0000 7 N C D I.y O N �O ON O N oo 4 co z y0 a � Wb � a eon, w '� •� o m z w .� c in H � •� o � o � ❑ a b 3 a � .�rx z o w G A C7 pw �' z' N 'b a , 60m 3 4) Ea a .� aa E � 0 �° 'S F ° .� 4 o U a o o .� 4 z w q �4 o zpNC7u: Y > Llpv�ia q > tiN P: po ri a W F" F y > ITEM#4 PLAT INM COMMITTEE May 2W3 ZONING CODE AMENDMENT #ZCA-2003-1 (KI A # 030888) AUTO) REPAIR AS HOME OCCUPATION ION EXTENSION OF AMORTIZATION PERIOD ACTION ITEM: To recommend/not, recommend approval of #ZCA-Zoo -1 , as recommended by the Land Use & Planning Board, and to direct the City Attorney to prepare the necessary ordinance. COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES KEN T Charlene Anderson,AICP, Manager WASH IN G T O N Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 DATE: May 13, 2003 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: CHARLENE ANDERSON,AICP,PLANNING MANAGER THROUGH: MAYOR JIM WHITE SUBJECT: ZONING CODE AMENDMENT#ZCA-2003-1 (KIVA#2030888)-AUTO REPAIR AS HOME OCCUPATION,EXTENSION OF AMORTIZATION PERIOD SUMMARY: After considering testimony at their April 281h public hearing, the Land Use & Planning Board recommended, by a 5-0 vote, approval of an amendment to Kent City Code Section 15.08.040. The amendment extends the amortization period for auto repair home occupations to October 18, 2004, three years from the effective date of the initial code amendment that prohibited this type of use. BUDGET IMPACT: None MOTION: I move to recommend/not recommend approval of#ZCA-2003-1, as recommended by the Land Use& Planning Board, and to direct the City Attorney to prepare the necessary ordinance. BACKGROUND: On September 18, 2001 the City Council passed Ordinance No. 3575 prohibiting automotive repair as a home occupation and requiring auto detailers to obtain a special home occupation permit. The code amendment began in response to a complaint to the City Council. Automobile repair is allowed outright only in the commercial-manufacturing zoning districts, in the broadest commercial zoning district, General Commercial, and via conditional use permit in the Community Commercial zoning district. Home occupations are restricted by a number of performance standards; the general nature of automobile repair creates the potential to exceed the performance standards. Furthermore, environmental concerns and more stringent building standards typically are analyzed for commercial auto repair operations. In a March 12`h letter, Mr. Jim Knipp expressed concerns about having to close the auto repair operations at his site; he also testified at the Board hearing about his desire to obtain a commercial land use designation for his property. The proposed amendment extends the deadline for closing auto repair home occupations; and during the ongoing updates to the Kent Comprehensive Plan staff will be considering amendments to the land use and zoning maps. The proposed amendment to KCC 15.08.040(G)(2) states, "Home occupations prohibited by subsection (G)(1) of this section and which were operated lawfully in the city of Kent in compliance with the provision of this chapter as of the date of passage,may continue to operate until October 18, 2004 for one busiiiess hee v. "heve.. -te~ e~; after which date no prohibited home occupations may lawfully operate in the city of Kent." The SEPA Responsible Official has determined that this proposal is a procedural action that is exempt from environmental review. CA\pm S:\Pennit\Plan\ZONECODEAMEND\2003\2030888-2003-1pc.doc Attach: Minutes of 4128/03 Land Use&Planning Board public hearing,4/21/03 staff memo to Board,and 3/12/03 letter from Jim Knipp cc: Fred N.Satterstrom,C.D.Director,Jim Knipp,Other Parties of Interest,Project File#ZCA-2003-1/KIVA#2030888 COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES K GN T Charlene Anderson,AICP, Manager WASHINGTON Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent, WA 98032-5895 DATE: APRIL 21, 2003 TO: CHAIR RON HARMON AND MEMBERS OF THE LAND USE AND PLANNING BOARD FROM: CHARLENE ANDERSON,AICP, PLANNING MANAGER SUBJECT: AUTO REPAIR AS HOME OCCUPATION—EXTENSION OF AMORTIZATION PERIOD ZCA-2003-1/KIVA#2030888 LUPB Public Hearing April 28, 2003 INTRODUCTION: As evidenced during the review of the 2002 annual comprehensive plan amendments, some auto repair home occupations are suffering a hardship because of the one- year amortization period for continuing their business operations. A proposed amendment to the Kent Zoning Code would extend the amortization period for auto repair home occupations to three years from the date of the initial code amendment that became effective on October 18, 2001. BACKGROUND: On September 18, 2001 the City Council passed Ordinance No. 3575 prohibiting automotive repair as a home occupation and requiring auto detailers to obtain a special home occupation permit. The code amendment began in response to a complaint to the City Council over automobile repair in a residential zoning district. As presented by staff at the Land Use & Planning Board, automobile repair is allowed outright only in the commercial-manufacturing zoning districts, in the broadest commercial zoning district, General Commercial, and via conditional use permit in the Community Commercial zoning district. Home occupations are restricted by a number of performance standards that limit number of employees, traffic, hours of operation and utility demand, and prohibit emissions such as noise, vibration, smoke, odors and glare. The general nature of automobile repair creates the potential to exceed these performance standards. Environmental concerns regarding commercial automobile repair operations include disposal of hazardous materials and mitigation for traffic impacts. For commercial auto repair operations, building and fire departments may require fire walls or other more stringent building standards to address the potential for volatility. Kent City Code Section 15.02.030 defines automobile repair as follows: "Automobile repair includes fixing, incidental body or fender work, painting, upholstering, engine tune-up, adjusting lights or brakes, or supplying and installing replacement parts of or for passenger vehicles and trucks." • Staff found that a number of jurisdictions deny outright the use of automobile repair as a home business. Generally, those codes that deny auto repair as a home business identify it as being incompatible with the "residential character" of a neighborhood. As of the October 18, 2001 code amendment, Kent City Code Section 15.08.040(G)(2) states, "Home occupations prohibited by subsection (G)(1) of this section and which were operated lawfully in the city of Kent in compliance with the provision of this chapter as of the date of passage, may continue to operate for one (1) year from the effective date of the ordinance codified in this chapter, or the expiration of a current business license, whichever is longer; after which date no prohibited home occupations may lawfully operate in the city of Kent." As stated by Mr. Jim Knipp in a March 12, 2003 letter to the City of Kent Law Department, "There had been auto repair businesses at this location for over 15 years as testified at (sic) one of the neighbors at the rezone workshops. The present business located there is Kent Air Conditioning. They have been in existence for over 5 years." The letter further states, "Moving this business or closing it down would destroy the owners chance to make a living as well as generate taxes for the City of Kent and King County." RECOMMENDATION: As you know, staff expects to consider general amendments to the Comprehensive Plan Land Use and Zoning Maps during the Comprehensive Plan updates that are in progress. That process is not expected to be completed until late 2003 or early 2004, and might or might not include amendments to parcels on which are being conducted automobile repair operations. In the meantime, staff recommends the Land Use & Planning Board extend the amortization period for automobile repair home occupations to October 18, 2004, three years from the effective date of the last ordinance that amended KCC 15.08.040(G)(2). Code Amendment Details: Amend KCC 15.08.040(G)(2) to state, "Home occupations prohibited by subsection (G)(1) of this section and which were operated lawfully in the city of Kent in compliance with the provision of this chapter as of the date of passage, may continue to operate until October 18, 2004 for one (1) year- f em the _feet_-° date of the or-din""ee eedifid to this ehaptccrvrthe expiffAiea of a euFFent business heense, • -hieheye" is lefige after which date no prohibited home occupations may lawfully operate in the city of Kent." CA\pm:S:\Permit\Plan\ZONECODEAMEND\2003\2030888-2003-1.DOC Enc: Letter dated March 12,2003 from Jim Knipp cc: Fred N. Satterstrom,AICP,CD Director Charlene Anderson,AICP,Planning Manager Jim Knipp Other Parties of Interest Project File#ZCA-2003-1/KIVA#2030888 • Auto Repair as Home Occupation—Extension of Amortization Period Land Use and Planning Board Hearing 4/28/03 Staff Report Page 2 of 2 CQPy RECEIVED 3-12-03 MAR 1 2003 Kent City Attorney Ms. Kim Adams Pratt City of Kent Law Department 220 4ch Avenue South Kent,WA. 98032 Dear Ms. Adams Pratt, . In May of 2002, I started the process of seeking a rezone of the property at 26922 132nd Avenue SE, Kent(referred to as the Knipp proposal at the rezone meetings)I was told by the Kent Planning Department that "Kent is always looking for commercial Property") and was encouraged to "go for it". I did. Ultimately on Tuesday, February 3` , 2002 the request was denied by the zoning board. After the meeting I spoke with you about the rezone and the "grand father clause". Specific statements were made during the council meeting about both of these subjects. During our conversation, you mentioned to me you were the sponsor of the law to rid the city of small auto repair businesses. I have no problem with this, as I would not like to live in a neighborhood with unsavory conditions. The whole scenario began in late April, 2002 when my renter received a notice from the City of Kent that his business had to be off the premises by the end of 2002. 1 started the process of rezoning. Here are the facts about the property located at 26922 132"d Avenue SE. There had been auto repair businesses at this location for over 15 years as testified at one of the neighbors at the rezone workshops. The present business located there is Kent Air Conditioning, they have been in existence for over 5 years. Please note this business is called Kent Air Conditioning, not Kent Auto Repair. He is not listed in the phone book under Auto • Repair. He wanted to differentiate his business from the auto mechanic repair businesses that frequently pop up in residential area(the ones your current law targets). As stated at the Council Meeting by Bruce White and Julie Peterson,both of who visited the property. Unfortunately,Ms. Peterson could not make the meeting,but was instrumental in trying to defer the vote on the property until the next meeting. Mr. White also tried to defer the vote but was refused by Mayor White. Bruce White did speak very highly of the cleanliness and quality of the air conditioning business being run at the location. He stated this information can be verified by the City of Kent, no complaints have even been filed against the business regarding traffic,junk cars or an unsightly location. The Air Conditioning business is operated in an industrial size, two bay building not attached to the brick home on the property. We did not elect to be included within the city limits of Kent. This came well after the business was established. Moving this business or closing it down would destroy the owners chance to make a living as well as generate taxes for the City of Kent and King County. I don't believe a ruling of this nature is fair to the owner of Kent Air Conditioning. I would like to request this business be"grand-fathered in" as Kent Air Conditioning and • allow the owner to continue to make a living for his family and pay the City of Kent taxes they so badly need. I hope you will see this matter the way the neighbors and I do and allow this business to remain a viable business as long as it operates under the present conditions. I have not discussed this letter with council members Julia Petersen or Bruce White so I would request that you speak with them to see how they feel about this subject. Please give this location and the business owner some additional thought before the one year extension runs out. Thank you. 'ncerely, ` l im Knipp 13002 SE 285`h Street Kent, WA. 98030-8873 Work—206-344-3550 Home—253-631-2249 • COMMUNITY DEVELOPMENT Fred N. Satterstrom, C. D. Director • PLANNING SERVICES \Z Charlene Anderson,AICP,Manager �KIENT Phone:253-856-5454 W A S H I N O T O N Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 LAND USE & PLANNING BOARD MINUTES PUBLIC HEARING APRIL 28, 2003 The meeting of the Kent Land Use and Planning Board was called to order by Chair Ron Harmon at 7:00 p.m. on Monday, April 28, 2003 in Chambers West of Kent City Hall. LUPB MEMBERS PRESENT: STAFF MEMBERS PRESENT: Ron Harmon, Chair Charlene Anderson, AICP, Planning Manager Nicole Fincher, Vice Chair Kim Marousek, Principal Planner Steve Dowell Gloria Gould-Wessen, Planner, GIS Coordinator Jon Johnson William Osborne, Planner David Malik Kim Adams-Pratt, Asst City Attorney Deborah Ranniger LUPB MEMBERS ABSENT: Les Thomas, Excused APPROVAL OF MINUTES • Jon Johnson MOVED and Steve Dowell SECONDED to approve the Minutes of February 24, 2003. Motion CARRIED. ADDED ITEMS: None COMMUNICATIONS Planning Manager Anderson stated that on May 6, 2003, City Council will consider the ordinance for the Planned Unit Development Acreage Amendment#ZCA-2002-5 with an effective date thirty days from May 6th. NOTICE OF UPCOMING MEETINGS None #ZCA-2003-1 AUTO REPAIR AS HOME OCCUPATION-EXTENSION OF AMORTIZATION PERIOD Planning Manager Charlene Anderson stated that the Board has discussed difficulties businesses were having with the amortization period that was placed in the code the last time the code was amended regarding auto repair for home occupations. She stated that there was a one year amortization period saying that either a year from the business license or from the date of the ordinance, whichever was later, all auto repair home occupations were no longer allowed. Ms. Anderson stated that the amortization period particularly created some difficulty with an applicant named Mr. Knipp. Ms. Anderson submitted a letter from Mr. Knipp for the record as Exhibit #1, detailing some of the issues of the operation at his site located at 132"d and north of 272nd • Ms. Anderson stated that staff recommends approving an extension of the amortization period for auto repair as home occupations to October 18, 2004, to allow extra time for these operations to be abandoned and removed from the site. Ms. Anderson addressed questions raised by the Board at their workshop, particularly regarding the Knipp property. Ms. Anderson stated the Board questioned if there had been any problems with this business or if there had been any Fire Department review. Ms. Anderson stated that she did not hear that the Fire Department had any issues with this business and that it is her understanding that the Fire Department does not have authority over home occupations unless the business is a full fledged commercial operation. Ms. Anderson stated that she was not aware of any complaints against the particular business that is in operation at that location right now. She stated that in speaking with King County; in 1990 and 1991, there were two code enforcement actions related to auto repair and not allowing that use at the site. Ms. Anderson stated that these issues were closed as the owner stated that they were going to relocate the business and a King County inspector went to the site and did not see evidence of a business being operated. Ms. Anderson stated that since this property was annexed to Kent on January 1, 1996, a code enforcement action at this site under Lester McCracken, resulted in a Hearing Examiner ruling that the auto parts on this site would have to be screened. Ms. Anderson stated that although we are talking about one particular site, the focus of tonight's discussion regards auto repair, home occupations in general. Ms. Anderson stated that the business at this particular site at 132nd is called Kent Air Conditioning. She stated that a planner visited the site and observed that a truck on the site had the words "Auto"along with "Kent Air Conditioning" inscribed on it. Ms. Anderson stated that she has not personally seen evidence of an auto repair operation but it is her understanding from her staff that this is what is being operated at this particular site. In response to Mr. Dowell, Ms. Anderson stated that when the subject site was under King County's jurisdiction, auto repair was not a permitted use. Ms. Anderson stated that Puget Sound Air Quality • Control informed her that there was no registration and no complaints at that location. Jon Johnson MOVED and Steve Dowell SECONDED to open the Public Hearing. Motion CARRIED. James Knipp, 13002 SE 285th, Kent, WA 98032 questioned what it would take to convert his property at 26922 132nd Avenue SE to a commercial use, stating that there has never been a complaint against this particular property. Mr. Knipp stated that the business owner holds numerous credentials, is controlled by the EPA and has never been fined. Mr. Knipp stated that you will not observe transmissions, engines or cars jacked up on this property nor are there any concerns regarding pollutants. Mr. Knipp stated that it is his desire to change the zoning and not just to extend the amortization period. He stated that he would like to see Kent Air Conditioning remain in business at this location saying that this business is his renter's livelihood and provides a valuable service for auto dealerships in the area that are afraid to handle Freon. In response to Mr. Dowell, Mr, Knipp stated that the business owner installs and repairs air conditioning systems for vehicles on site inside a large 2-bay building. Jon Johnson MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. In response to Mr. Dowell, Ms. Anderson stated that it has been suggested at a Board workshop that a commercial zoning be considered for the subject site as part of the Land Use Element update. Ms. Anderson stated that the business is currently not allowed as a home occupation due to the clause for auto repair. • In response to Ms. Ranniger's inquiry as to what Mr. Knipp could do to retain the business on his property, Ms. Anderson stated that Mr. Knipp would have the option of submitting an application for a comp plan amendment during our annual comp plan amendment process. She stated that Mr. Knipp submitted an application this year; however, there were several other parcels included in that application. Ms. Anderson stated that Mr. Knipp could submit a new application with just his parcel if he chose along with the other option of going forward with the land use element update as staff updates the comp plan. Jon Johnson MOVED and Deborah Ranniger SECONDED to accept staffs recommendation on ZCA- 2003-1 extending the amortization period for automobile repair home occupations to October 18, 2004, three years from the effective date of the last ordinance that amended KCC 15.08.040(G)(2). Motion CARRIED unanimously. #ZCA-2003-3 AUTO REPAIR &WASHING SERVICES IN M3, GENERAL INDUSTRIAL DISTRICT Ms. Anderson stated that this is a request for a zoning code amendment to allow auto repair and washing services in M3, resulting from an application submitted by Les Schwab Tire Centers. Ms. Anderson stated that a letter received from Les Schwab's agent proposes an alteration to their request, basically to do what staff has proposed as Option 2, to allow this type of operation in M3 properties only when it is adjacent to or split-zoned with Gateway Commercial. Ms. Anderson stated that the only Gateway Commercial zoning is along 84'h or Central Avenue from 167 north to about 212" Street. Ms. Anderson stated that typically in an M3 zone, the City has been reluctant to present a conflict between autos and truck operations. In the M3 zone heavy truck repair is allowed; however, auto repair is not. Ms. Anderson stated that there are several goals and policies as well as strategies that the city has used to prevent these conflicts from occurring. She stated that in light of the fact that this is a limited use and the suggestion in the Les Schwab case is to allow this use basically only with those properties that abut Central Avenue. Staff agrees the conflict between heavy truck and autos would not be as great. • Ms. Anderson stated that both heavy trucks and autos use 84`h Avenue South. She stated that the options presented in the staff report are 1) No change 2) Allowing auto repair and washing services as a permitted use when the split-zoning or the adjacency occurs and 3) allowing them in all M3 zoning districts only as an accessory use and by a conditional use permit. Ms. Anderson stated that staff does not recommend Option 3 as it opens up the entire M3 zoning district and because of the policies and goals and our Manufacturing designation in the County-wide Planning Policies for M3 zoning, staff did not believe this option to be appropriate. Ms. Anderson entered the letter from Molly Lawrence with Les Schwab Tire Center for the record as Exhibit#2. Chair Ron Harmon declared the Public Hearing Open. David Gibson, 62158 Cody Junior Road, Bend, OR with Les Schwab Tire Centers extended his thanks to both the Land Use and Planning Board and City staff for the opportunity to craft language that fits within the City's objectives for permitting economic development and does not adversely impact residents and other businesses. Mr. Gibson asked the Board to consider supporting the compromise that staff has worked on with Ms. Lawrence, along with Option 2 as recommended by staff. Mr. Gibson stated that Les Schwab's proposal benefits the residents and businesses of Kent and is consistent with the use of 84`h as it is today. Steve Dowell abstained from voting on this issue as the current Les Schwab facility is his good neighbor and he would not want to cause any feelings of conflict. • Molly Lawrence, Buck and Gordon, 1011 Western Avenue, Suite 902, Seattle, WA 98104 stated that the site in question shows that there is a split in the zoning of this property. She stated that when Construction Machinery bought the property they treated the two separate lots as one lot and built a building over the top of that property line. Ms. Lawrence stated that it creates this unfortunate split, where we can have retail sales and service in the forward Gateway Commercial portion of the property but we cannot have it in the M3 zone and at the same time we can have truck repair in the M3 zone but . we cannot do auto repair in the M3 zone. Ms. Lawrence stated that the use on this site meets the City's Comprehensive Plan objectives. She stated that the Comprehensive Plan has two policies in particular LU-16 and ED 4.5 which do not allow the invasion'of retail into the industrial area. Ms. Lawrence stated that this proposal creates a nice transition between the Gateway Commercial and the Industrial by having a use that meets both zones needs and at the same time is limited to the 84"' Street Corridor so that you will not be introducing additional auto traffic into the M3 zone. Deborah Ranniger MOVED and Jon Johnson SECONDED to close the Public Hearing. Motion CARRIED. Deborah Ranniger MOVED and Jon Johnson SECONDED to accept Staffs recommendation of Option #2 for ZCA-2003-3. Motion CARRIED. Mr. Malik arrived as discussion began on#ZCA-2002-2. #ZCA-2002-2 NCC NEIGHBORHOOD CONVENIENCE COMMERCIAL Planner Kim Marousek stated that staff has been looking at modifying allowed uses within the Neighborhood Convenience Commercial (NCC) zoned properties to allow existing uses to continue to legally operate. Ms. Marousek stated that staff proposed two options: • Option 1: No Change Option 2: Allows accessory drive-up/drive-through facilities when they are an accessory use and only by a conditional use permit. This option requires developers to be sensitive in their development to the surrounding neighborhood in terms of the type of commercial developments they choose to build. Ms. Marousek stated that these accessory uses would be attached to a principally permitted use in the NCC zone such as financial real estate insurance services, laundry, dry-cleaning, salons and shoe repair. Ms. Marousek stated that the City has 8 NCC nodes consisting of 20 parcels and 38 acres, a majority of those properties annexed into the City with existing businesses. She stated that there are distinctive differences between what is permitted in the NCC zone and other commercial zoning districts such as Community Commercial (CC) and General Commercial (GC). Ms. Marousek stated that the main commercial zoning strips are located along 104'h, Pacific Highway and the downtown area. Ms. Marousek stated that through Board workshops and discussions with the public, tension has grown in terms of what the City desires concerning maintaining a distinction between the different commercial zones and the desire of property owners to develop their property to a different type of commercial use. Ms. Marousek stated that NCC property is generally surrounded by residential uses and the properties do not lend themselves to blanket zoning. She stated that the NCC properties are different in terms of where they are located, their existing uses and the scarcity of NCC zoned property. • Ms. Marousek stated that staff would like the Board to consider setback reductions so buildings may be moved closer to the street, allowing for placement of parking behind buildings with pedestrian connections from the street to the building. These types of development standards make these developments more compatible with the surrounding residential uses. Ms. Marousek stated that as the code exists today, there is no distinction in development, landscape or signage standards among NCC, Land tlse and Plannina Board Minutes CC and GC uses. Ms. Marousek stated that applying stringent requirements with reference to landscaping and signage within NCC zones, would promote more harmony between the surrounding • residential uses and the neighborhood business. Ms. Marousek submitted a letter from Charles Adams with Kent Realty for the record as Exhibit #3. She stated that this letter specifically addressed the property at the southeast corner of 2401h and 116th Ms. Marousek stated that Mr. Adams is specifically requesting that auto repair and auto services be allowed as well as opening up the uses to tire shops, espresso stands, fast food and similar uses to be approved by a conditional use. Ms. Marousek reiterated staff's position to retain a distinction between Neighborhood Convenience Commercial, Community Commercial and General Commercial zoning, citing General Commercial as the highest density commercial zone in the city with auto repair permitted outright in this zone and only with a conditional use permit in the Community Commercial zone. Ms. Marousek stated that staff wants to maintain NCC zones at a neighborhood level by discouraging types of uses which would generate traffic increases. She stated that the types of uses requested by Mr. Adams for NCC zoning does not meet the standards or goals in the comprehensive plan for NCC zoning, as those uses are more auto dependent. In response to Mr. Harmon, Ms. Marousek commented on Mr. Adams' desire to see all NCC properties rezoned to GC stating that her understanding was that the City converted property to CC zoning near Covington as part of the annual comp plan amendment process. In response, Mr. Osborne stated that SR-6 property located off of Kent Kangley was rezoned to CC with a commercial land use designation. Ms. Marousek stated that property owners have the option to pursue a rezone if they wish. Ms. Marousek stated staff is looking at maintaining the NCC zone and broadening the allowable uses within that zone to provide more flexibility for those properties to redevelop, while maintaining a distinction • between the commercial zoning districts. Ms. Ranniger and Mr. Malik stated that they would abstain from voting on this subject. Chair Harmon declared the Public Hearing open. Karen Gill-More, 25206 132nd Ave. SE, Kent, WA stated that she has owned the existing Short Stop Market property for 25 years located on Interstate 516/ Kent Kanley Road adjacent to the gas station and convenience store being built at the freeway off ramp at 116t Ms. Gill-More stated that the NCC zoning restriction directly limits the type of business that could be developed on her property. Ms. Gill-More stated that she recognizes the City's need to amend the NCC zoning, but voiced her belief that each property is unique, therefore the zoning for these properties should be considered on an individual basis, rather than classified only as NCC. Ms. Gill-More stated that after meeting with staff to consider a rezone of her property to CC, she determined that the application would be a costly enterprise to undertake without some likelihood of obtaining her end result. Mr. Malik excused himself from voting on this item. Ms. Marousek stated that Ms. Gill-More's property is located near the intersection of Kent-Kangley and the 116th exchange from the 277th Corridor as it comes up the hill and fronts on a main arterial. Ms. Marousek stated that staff looked at the properties collectively as this is a city wide zoning code amendment, not specific to one parcel. Ms. Marousek stated that she has conversed with Ms. Gill-More regarding her property and potentially rezoning which is an option for her if she wishes to pursue it. In response to Mr. Harmon, Ms. Marousek stated that she believes that Option 2 will help all of the property owners that currently own NCC property. t and t lca and Pinnninn Board Minutes In response to Ms. Fincher, Ms. Marousek stated that she was unaware of any alternative process that would benefit Ms. Gill-More and exclude her or other property owners from the proposed code revision, unless the city were to look at those particular properties in a collective manner as part of the comprehensive plan update. In response to Ms. Fincher, Ms. Marousek stated that she is unaware of how Ms. Gill-More's property was zoned when it was in King County, but was zoned NCC at the time of annexation to the City of Kent. In response to Mr. Dowell, Ms. Marousek stated that staff does not require a specific site plan prior to an applicant's submittal for a rezone as they are non-project actions and generally blanket rezones. She stated that there needs to be some level of environmental evaluation on the property and some surveying or site plan that needs to be developed. Mr. Harmon stated that although these amendments are not site specific, staff will consider Mr. Knipp's property for CC commercial zoning as part of the comp plan update process and would like this consideration extended to Ms. Gill-More's property as well. Ms. Marousek stated that she believes those parcels could be included in the evaluation. Ms. Gill-More stated that she would support Option 2, although it generally fits everybody but herself and would like the opportunity to move on with her property as she deems appropriate. David Malik MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. Nicole Fincher MOVED and Jon Johnson SECONDED to accept staff's recommendation of Option 2 for ZCA-2002-2 NCC Neighborhood Convenience Commercial zoning code amendment to allow drive- through facilities as an accessory use and only by a conditional use permit. Motion CARRIED. Ms. Anderson stated that due to a State-wide requirement for a 60 day review period; these amendments will go forward to City Council July 1, 2003. ADJOURNMENT Jon Johnson MOVED and Nicole Fincher SECONDED to adjourn the meeting. Motion CARRIED. Chair Harmon adjourned the meeting at 8:10 p.m. Respectfully Submitted, &u&�46&� Charlene Anderson, AICP, Planning Manager Secretary, Land Use and Planning Board S."PemitlPlanLLUPB%2003UnuimW42803rtin.doc Land Use and Planninrl Board Minutes ITEM#5 PLANK NG COMMrrtEE May 20.2003 ZONING CODE AMENDMENT ZGA--2003-3 (DIVA # 030890) AUTO REPAIR AND WASHING SERVICE IN M4, ZONING DISTRICT ACTION ITEM: To recommend/not recommend approval of #ZCA-2003-3, Option 2 "Split-zoning" as recommended by the Land Use & Planning Board and staff, and to direct the City Attorney to prepare the necessary ordinance. COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES KENT Charlene Anderson,AICP, Manager WASHINGTON Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. DATE: MAY 13,2003 Kent, WA 98032-5895 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: CHARLENE ANDERSON, AICP,PLANNING MANAGER THROUGH: MAYOR JIM WHITE SUBJECT: ZONING CODE AMENDMENT#ZCA-2003-3 (KIVA#2030890) AUTO REPAIR AND WASHING SERVICES IN M-3 ZONING DISTRICT SUMMARY: After considering testimony at their April 28th public hearing, the Land Use & Planning Board recommended,by a 5-0 vote,approval of an amendment to Kent City Code Sections 15.04.090 and 15.04.100, Option 2 "Split-zoning" as proposed by staff. The Board's recommendation permits auto repair and washing services in the M3 zoning district when 1) the property is used also for heavy equipment and truck repair, and 2)the property abuts or is split-zoned with GWC, Gateway Commercial property. Gasoline service stations are not permitted. This proposal was initiated through an application for regulatory review from Les Schwab Tire Center. BUDGET IMPACT: None MOTION: I move to recommend/not recommend approval of #ZCA-2003-3, Option 2 "Split- zoning"as recommended by the Land Use&Planning Board and staff, and to direct the City Attorney to prepare the necessary ordinance. BACKGROUND: Heavy equipment and truck repair currently is permitted in the M3 zoning district; however, auto repair and washing services currently are not permitted in that zoning district. The City of Kent historically has attempted to minimize the potential for conflict between automobile and truck traffic. This is evidenced by Policy TR-4.5 of the Transportation Element of the Kent Comprehensive Plan, the designation of Kent as a Manufacturing Center per the Countywide Planning Policies, the purpose statement of the M3 zoning district, and the City's participation in "The Freight Action Strategy for Everett-Seattle-Tacoma"or FAST. Finding the proper balance among the location of service and retail uses that support the manufacturing designation, the necessity for unimpeded movement of freight and promotion of safety by reducing conflicts between automobile and truck traffic can be difficult. The Board's recommendation allows auto repair and washing services as a principally permitted use in the M3 zoning district when the M3 property is also used for heavy equipment and truck repair, and when the M3 property abuts or is split-zoned with Gateway Commercial property. The only location where there is property meeting these parameters is along 84th Avenue South from approximately S. 212th Street on the north to SR 167 on the south. The roadway currently provides for the movement of both truck and auto traffic. The SEPA Responsible Official has determined that the impacts associated with this code amendment are adequately covered in the City of Kent Comprehensive Plan EIS (#ENV-93-51). CA1pm:S:\PermitlPlan\ZONECODEAMEND\2003\2030890-2003-3pc.doc Enc: Minutes of4/28/03 LU&PB hearing,4/21/03 staff memo to Board,Les Schwab application,4/13/03 Letter from Buck&Gordon cc: Fred N.Satterstrom,AICP,CD Director,David Gibson,Les Schwab Tire Centers,646 NW Madras Highway,Pineville,OR 97754 Molly A.Lawrence,Buck&Gordon LLP,1011 Western Ave.,Ste 902,Seattle,WA 98104,File#ZCA-2003-3/KIVA 2030890 COmMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES KEN T Charlene Anderson,AICP, Manager W�3 HINGTON Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent, WA 98032-5895 DATE: APRIL 21, 2003 TO: CHAIR RON HARMON AND MEMBERS OF THE LAND USE AND PLANNING BOARD FROM: CHARLENE ANDERSON, AICP, PLANNING MANAGER SUBJECT: AUTO REPAIR AND WASHING SERVICES—ZONING CODE AMENDMENT 4ZCA-2003-3/KIVA#2030890 LUPB Public Hearing April 28, 2003 INTRODUCTION: Les Schwab Tire Center submitted an application for zoning code text • amendment to permit auto repair and washing services in the M3, General Industrial, zoning district. Heavy equipment and truck repair currently is permitted in the M3 zoning district; however, auto repair and washing services currently are not permitted in that zoning district. In an April 13, 2003 letter to the Land Use & Planning Board,the applicant's attorney suggested an application modification to permit auto repair and washing services in the M3 zoning district when the property abuts or is split-zoned with GWC, Gateway Commercial property. BACKGROUND: The City of Kent historically has attempted to minimize the potential for conflict between automobile and truck traffic. Policy TR-4.5 of the Transportation Element of the Kent Comprehensive Plan states, "Limit heavy, through truck traffic to designated truck routes in order to reduce its disruptive impacts." Furthermore, the M3 zoning district lies within Kent's Manufacturing Center, as designated in the Countywide Planning Policies. The purpose of the M3 zoning district includes discouraging non-industrial uses from locating in the district, in accordance with the Manufacturing Center designation. Countywide Planning Policy No. LU- 52 regarding Manufacturing/Industrial Center includes the following, "Limit the size of offices and retail unless as an accessory use." The City also participates in"The Freight Action Strategy for Everett-Seattle-Tacoma"or FAST. According to their web site, "FAST is working to streamline the movement of freight through the central Puget Sound region of Washington State...Since 1996, the FAST partnership has studied freight movement via rails,roads and shipping ports to develop projects that move freight more efficiently and increase safety for cars, trucks and trains...FAST is an innovative partnership • composed of transportation agencies, ports, cities, economic development organizations, trucking, rail and business interests." Finding the proper balance among the location of service and retail uses that support the manufacturing designation, the necessity for unimpeded movement of freight and promotion of safety by reducing conflicts between automobile and truck traffic can be difficult. OPTIONS: Several options may be considered regarding the application for zoning code text amendment, among them the following: 1. No change Existing regulations do not allow auto repair and washing services in the M3, General Industrial zoning district. This helps to reduce conflicts between truck and auto traffic. On the other hand, those who work in the industrial area need to travel elsewhere to have their autos repaired and serviced. Code Amendment Details: No change 2. Split-zoning Allow auto repair and washing services as a principally permitted use in the M3 zoning district when the M3 property is also used for heavy equipment and truck repair, and when the M3 property abuts or is split-zoned with Gateway Commercial property. The only location where there is property meeting these parameters is along 84`h Avenue South from approximately S. 212`h Street on the north to SR 167 on the south. The Gateway Commercial zoning district allows retail commercial uses appropriate along major vehicular corridors, i.e., 84`h Avenue South. This roadway also serves as one of the major truck routes for the M2, Limited Industrial, and M3, General Industrial zoning districts. As the applicant argues, the roadway currently provides for the movement of both truck and auto traffic. To address some of the Board's concerns expressed at the April 141h workshop, outside storage areas are required typically to be screened by fencing and landscaping. Furthermore, a 15-foot landscaping strip is required for property abutting East Valley Highway (80 Avenue South) from S. 180`h to SR 167. Earth berms and landscaping are required to screen dock-high loading areas from public rights of way. [Reference KCC 15.04.195(51), 15.07.040(C) and (P).] Gasoline service stations are not currently a permitted use within the M3 zoning district. Code Amendment Details: Place a "P" in the M3 column for "Auto Repair and washing services (including body work)" (15.04.090) with a note #21 (15.04.100) that states, "Auto Repair and washing services (including body work) are permitted only when 1) the property is used also for heavy equipment and truck repair and 2) the property also abuts or is split-zoned with Gateway Commercial property. Gasoline service stations are not permitted." 3. Accessory Ilse/Conditional Use Allow auto repair and washing services (including body work) only as an accessory use in the M3, General Industrial zoning district, and require a Conditional Use Permit. Kent City Code 15.02.005 defines accessory use or structure as, "a use or LUPB Public Hearing 4/28/03 Auto Repair&Washing Services ZCA-2003-3MVA#2030890 Staff Report Page 2 of 3 structure on the same lot with, and of a nature customarily incidental and subordinate to, the principal use or structure." The M3 zoning district permits the manufacture and assembly of automobiles and permits other fabrication and manufacturing operations. The district allows heavy equipment and truck repair, and also allows wholesale distribution of automobiles. This proposed option would allow auto repair and washing services (including body work) as an accessory use, determined by square footage devoted to the use, percentage of gross sales, and customarily incidental and subordinate nature to any of the principally permitted uses. An added requirement, once the accessory nature is determined, is a conditional use permit. The Kent Hearing Examiner reviews eight criteria when granting a conditional use permit: 1) proposed use is not detrimental to other uses in district, 2) size of site is adequate, 3) traffic will not unduly burden the traffic circulation system, 4) performance characteristics are compatible with those of other uses, 5) adequate buffering is provided from adverse effects of the use, 6) other uses in the vicinity permit the proposed use to function effectively, 7) proposed use complies with performance standards,parking requirements and other applicable code provisions, and 8) other appropriate similar considerations may be applied. Code Amendment Details: Place a "C" in the M3 column for "Auto Repair and washing services (including body work)" (15.04.090) with a note #21 (15.04.100) that states, "Auto Repair and washing services (including body work) are permitted only as an accessory use with a conditional use permit. The accessory nature of the use must first be determined by square footage devoted to the use, percentage of gross sales, and customarily incidental and subordinate nature to a principally permitted use." RECOMMENDATION: Staff recommends Option 2. That option minimizes the potential for conflict between truck and automobile traffic, supports the Comprehensive Plan and Manufacturing Center designations, and Freight Action Strategy (FAST). Option 3 opens up our heaviest industrial district to retail service operations, contrary to the purpose of the district. The City of Kent SEPA Official has determined that no separate threshold determination, pursuant to SEPA, is required. Any impacts associated with this proposed code amendment have been adequately addressed in the City's Comprehensive Plan EIS. Staff will be available at the April 28"' public hearing to present this proposal and answer questions. CA\pm: S:\Permit\Plan\ZONECODEAMEND\2003\2030890-2003-31upbph.doc Enc: Code Text Amendment Application—Les Schwab Tire Center 4/13/03 Letter from Buck&Gordon cc: Fred N.Satterstrom,AICP,CD Director Charlene Anderson,AICP,Planning Manager David Gibson,Les Schwab Tire Centers,646 NW Madras Highway,Pineville,OR 97754 Molly A.Lawrence,Buck&Gordon LLP, 1011 Western Ave.,Ste 902,Seattle,WA 98104 Project File#ZCA-2003-31KIVA 2030890 LUPB Public Hearing 4/28/03 Auto Repair&Washing Services ZCA-2003-3/KIVA#2030890 Staff Report Pa=e 3 of 3 1 _ Planning Services Location: 400 W. Gowe e Mail to:220 4th Avenue South a Kent,WA 98032-5895 0" KE 0 T Permit Center(253)856 5302 FAX:(253)856 6412 WASHINGTON PLANNING SERVICES Code Text Amendment FILL OUT I N Public Notice Board Fee...$100 each Application Fee...$1500 BLACK .INK ONLY Application #: '7 cc? - a6103-5 KIVA OMCE USE ONLY OFME USE ONLY Application Name: v S SDI ffuh"49 7/a Cry Code Text Amendment Requested: 0 AMENDMENT TO ZONING CODE ❑ AMENDMENT TO SUBDIVISION CODE ❑ AMENDMENT TO MOBILE HOME PARK CODE ❑ AMENDMENT TO OTHER DEVELOPMENT CODE: (Specify) APPLICANT 1: (mandatory) David Gibson *Name: T ps Crbwab m; ra Centers Daytime Phone: (541 ) 416-5342 646 NW MADRAS Highway Mailing Address: P_ n_ Box 667 Fax Number: ( s41 ) 416-5374 City/State/Zip: Pinpv; 1 1 P OR g7754 Signature: xce- APPLICANT 2: (mandatory H different from applicant 1) RECEIVED Name: Daytime Phone: Mailing Address: Fax Number: City/State/Zip: Signature:• SERVICES AGENT/CONSULTANT/ATTORNEY: (mandatory if primary contact is different from applicant) Molly A. Lawrence Name: ra dAn yi,p Daytime Phone: (2n6) 3R2-g54o Mailing Address: loll Western Ave. , Ste-902Fax Number (206) 626-0675 City/State/Zip: Seattle WA 98104 Signature: �Z - OFFICE USE ONLY: DATE APPLICATION RECEIVED: �� /t ' RECEIVED BY: DATE APPLICATION COMPLETE: COMPLETENESS RE EW BY: IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII MAR 'PSoaots p G CFI .V .., n. 10002 031/28/03 10;38 FAX 206 626 0075 BUCK & GORDON LLP 0002 Ms• I �c�. •. y,•.�; �lia�-'bl�l .,I..• .Y .. , n&.-r.e�%�,`�{'.�S', "al'ut'9�..aW;Y,h:•.�r a�, �'� •., CC5 �'pry{ I U'1 � Ff"'.� �y°Aj1�a,f:yliiA •wttll h"'r 1C�:Y'K'r T r . >rr �"' rrl�il..• �.' �a.1 Iyr ,Inyp�r31 �ia11yMIr� JrWI)M�IN'�'r�ir ah✓•.��•��I,j :P ../,a� i r�rH yyJ� 1 17� �} 1. nnlri:f NWd��xyF`r�I Y''i'• •a'�=J,�,�...I:r�r 1 ^:Ja`iL', �J;llfiell'L0. 41'le n��p�_��•tr��} IW'ICyir. q' ,4 rri.�t .r . ' ....A�1.� �;.�r°ml•�i:' .. �Q t,u,A ��I„'�^4ir�T3�"p�.l'lllyu....� r .1� ga"q 'a. YCEI aXa . ... !.,: - Permit C�rl�er1253�856530z.Etk ';{ pg.5Q4'29;lot I ? ' • PLAN NiNO•sERVICPS�- • . rq....:P.ra•"�• ,• rrn•.• Coder T xf 7.a r r - ��Ame�i�m�ent•.' . FILL O V T 11 V Public NdE1ce 113"Ild Pee...$100 each- Application Swe..S450o BLACK INK ONLY Application 4: KIVA OFMCCUMVIGY - DlI4CL tfsl oexr Application Name: Code Text Amendment Requested: 111 AMENDMENTTO ZONING CODE Q AMENDIVIENTTO SUBDIVISION CODE ❑ AMENDMENT TO MOBILE HOME PARK CODE ❑ AMENDMENT TO OTHER DEVELOPMENT CODE: (Specify) APPLICANT 1: (mandatory) David Gibson Name: r. a hwalh Ti ra r n f•e -c Daytime Phone:(541 ) 41 F_S 34 2 646 NW MADRAS Highway - Mailing Address: P n un4. A67 Fax Number City/State/Zip: ping_vi i i P nR 47750. Signature: APPLICANT 2: (mw d"if dlffamrit from ap*=. 1) Name: Daytime Phone: Mailing Address: Fax Number. City/State/Zip: Signature: AGENT/CONSULTANT/ATTORNEY,(mandatoryifprimarycontactistaf rardfromapplicant) Molly A. Lawrence Name: Huck-r.-CvdQj;. 1_1b Daytime Phone: (tor,) -.;R?-asa Mailing Address: 1011 western Ave. , Ste•902 Fax Number-(206) 626-0675 City/State/Zip: Seattle WA 98104 Signature•.2"t OFFICE USE ONLY: DATEAPPUCATIONRECEIVED: RECENEDBY:__..______ DATEAPPUCAMON COMPLETE COMPLETENESS REVIEW BY: Ill itillUllllllalHlllREma - 'PSD4015- psd4015 6/15/01 p. 1 of 1 1 ATTACHMENT Les Schwab Application for Code Text Amendment March 28, 2003 (1) Which ordinance or regulation are you requesting to be amended or added? KCC 15.04.090 and KCC 15.40.100 '.S `rj-L� -- 15-52-- (2) What do you want to change about the Comprehensive Plan and why? Les Schwab is not proposing any change to the Comprehensive Plan. (3) What language revisions to the code text are you requesting and why? Les Schwab proposes amending KCC 15.04.090 and KCC 15.04.100 to permit auto repair and washing services in the M3/General Industrial zone,provided that such auto repair and washing services occur only on lots also used for heavy equipment and truck repair. This will require inserting a "P"on the City's service land use matrix, KCC 15.04.090, at the intersection of the M3/General Industrial zone column and the auto repair and washing services use row. In addition, a new section will need to be added to KCC 15.04.100 limiting auto repair and washing service uses to those properties also used for heavy equipment and truck repair. Les Schwab has attached a redlined version of KCC 15.04.090 and KCC 15.04.100 to illustrate the proposed change. Les Schwab is requesting this proposed code change to enable it to operate a combination auto and truck tire sales and installation store at 22101 84th Ave. S. The property is currently improved with a 20,000 sq/ft,two-story building and a 4,000 sq/ft storage shed, both constructed in 1998, to house Construction Machinery, Inc., a construction equipment repair business. Unfortunately,Construction Machinery, Inc., has since gone out of business, leaving the property vacant for the past year. The existing buildings are ideal for Les Schwab's operation. It is our understanding that when previously in operation, the eastern third of the main building was used for retail part sales, office and warehouse space, and the western two-thirds of the main building was used as service bays for equipment and truck repairs. Les Schwab would like to continue the retail sales component in the eastern third of the building and use the western two-thirds of the building for tire installation and other minor service for trucks and passengers cars. Les Schwab would use the large shed for service on larger trucks. Unfortunately,under current zoning restrictions, Les Schwab may not use the property as proposed. The property is split zoned. See attached map. The eastern third of the property along 84th Ave. S. is zoned GWC/Gateway Commercial,while the western two-thirds is zoned M3/General Industrial. As a result of this zoning combination, Les Schwab may sell its tires on GWC portion of the property,may install tires and other replacement parts on heavy trucks on the M3 portion of the property,but may not currently install tires and other replacement parts on passenger vehicles on the M3 portion of the property. 1 1 If approved, the proposed code amendment will enable Les Schwab to continue to use the eastern third of the property, zoned GWC, for retail sales as permitted, and the western two-thirds of the property, zoned M3, for installation of tires for heavy trucks and passenger vehicles and installation of other ancillary products for passenger vehicles. (4) What are the effects or impacts related to the proposed amendment? (a) How is the proposed amendment consistent with the applicable Comprehensive Plan goals and policies? The Comprehensive Plan calls for a mix of land uses in industrial areas that are compatible with and provide services to surrounding manufacturing, industrial, and warehouse uses. (See Comprehensive Plan, Policy LU-16.2 & 16.4,pp. 4-21 -4-22). The proposed amendment would enable a company like Les Schwab that provides services to heavy truck customers, also to provide services to individuals who work in Kent's industrial and manufacturing districts. Further, the proposed combination of uses acknowledges the practical reality of providing services to industrial and manufacturing companies in the face of current economic times. For example, the 84th Ave. S.property that Les Schwab is currently pursuing was formerly operated by Construction Manufacturing,Inc.,which served manufacturing and industrial companies. After only a few years (1998 to 2002), Construction Manufacturing, Inc. apparently found this business model to be economically infeasible and closed up shop. To enable Les Schwab and others like Les Schwab to provide essential services to their manufacturing and industrial clients while remaining economically viable, they must be permitted to supplement their commercial customer base with individuals,many of whom will likely be the employees of Les Schwab's corporate customers or truck drivers looking for services for their passenger vehicles. (See Comprehensive Plan, Policy ED-4.5,p. 12-6.) In fact, if passenger vehicle service is not permitted in combination with heavy truck repair, Les Schwab simply will not be able to open its proposed store because serving manufacturing and industrial clients exclusively is not financially viable. They need to be able to supplement their commercial clients with income from passenger vehicle customers for the store to be profitable. In addition, the proposed amendment is consistent with several of Kent's Planning Goals. For example, Kent's Planning Goals call for the efficient use of urban land and the consolidation of high-intensity uses in high-density areas. (See Comprehensive Plan,p. 3-5). The proposed amendment will accomplish this goal by consolidating high-impact vehicle repair and service uses on industrial lands, thereby reducing the demand for such services on other lower-density or lower-intensity properties. In addition, the proposed expansion of uses permitted in the M3 zone will not necessitate constructing additional transportation infrastructure. To the contrary,the M3 zone is already served by superior transportation infrastructure designed to accommodate heavy vehicles at high volumes. This infrastructure can easily accommodate passenger vehicles,most • of which already travel these roads as employees of the surrounding industrial and manufacturing companies. (See Comprehensive Plan,p. 3-5). r (b)What is the public necessity and/or convenience that requires this amendment? The proposed amendment will enable Les Schwab to make use of a property and buildings that have been vacant for nearly a year and otherwise would likely remain vacant due to the difficulties presented by the split zoning of the subject property. In addition, the proposed amendment will provide individuals, many of whom work in Kent's industrial core,opportunities to obtain both truck and auto service in the immediate vicinity of their jobs. With regard to Les Schwab's proposed 84th Ave. S. site, current zoning would pen-nit these individuals to purchase parts from this site,but would require them to take the parts elsewhere for installation. The proposed amendment would allow these individuals the added convenience of installation at the same site. (c) What significance will the proposed amendment have to the community? The proposed amendment will provide greater opportunities for Kent businesses and residents to obtain a combination of auto and truck repair services,while at the same time limiting the impact of these activities on the community by consolidating the activities on higher-intensity, industrial properties within the City. In addition, the proposed change will enable companies like Les Schwab to meet the demands of their manufacturing and industrial clients in Kent. Put simply, based on Les Schwab's financial modeling, there is not enough truck-only business in Kent to warrant opening a truck-only tire sales and installation store. When permitted to supplement truck repair services with passenger vehicle services,however, opening a store that serves manufacturing and industrial clients for their heavy truck repair needs becomes economically feasible. (d) What effect will the proposed amendment have on related ordinances, regulations and development standards? Les Schwab has narrowly tailored the proposed text amendment to minimize the impact on other ordinances,regulations and development standards. By restricting auto repair uses in the M3 zone to properties that are also used for heavy equipment and truck repair, Les Schwab has ensured that this newly permitted use will not be incompatible with existing or other permitted uses in the M3 zone. We are not aware of any impacts on related ordinances, regulations or development standards at this time. (e) What impact with the proposed amendment have on: (1) the health, safety and general welfare of the public; The proposed change should not negatively impact the health or safety of the public. in fact, it may have the incidental benefit of consolidating higher impact auto and truck repair uses onto industrial properties, rather than commingling such uses with lower impact retail and service uses in commercial zones. With regard to public welfare, the proposed change will provide additional opportunities for Kent businesses and residents to obtain convenient truck and auto repair services within the City's industrial employment core. (2) the city design; The proposed change should not have any impact on city design. Les Schwab is proposing a very narrow change designed to allow a single business to provide both heavy equipment and truck repair services and passenger vehicle repair services on the same site. This proposed change would permit a less intense land use within the M3 zone. However,because the less intense auto repair use may only be permitted in conjunction with heavy truck repair, the addition of this lesser intense use will not be incompatible with the M3 zone. Moreover,by permitting the combination of truck repair and auto repair services in the M3 zone, the amendment attempts to ensure the continued existence of heavy truck repair businesses in Kent's industrial areas that could not otherwise survive economically if their customer bases were limited to industrial and manufacturing clients. Further, the appearance of the M3/General Industrial zone should not be noticeably altered, as few modifications will need to be made to properties currently used for heavy equipment and truck repair to accommodate the addition of passenger auto services. (3) development interests; The proposed change will allow Les Schwab to operate a combination auto and truck tire sales and installation business along 84th Ave. S. It will allow the reuse of a building constructed approximately five years ago,which currently sits vacant. This type of development and reuse is vital in this time of otherwise declining or stagnant development. (4) neighborhoods; The proposed change affects only the M3/General Industrial zone. As a result, Les Schwab does not anticipate any impacts on neighborhoods. (5) environmentally sensitive areas. Les Schwab does not anticipate any impacts on environmentally sensitive areas. • _. • • YV1[111J RgfUU1 w � S z ��- 62,ILI ° LL U � a � `r a N N C C N \6>l a d vs It r, 1 9 0 CI ITV •w; ••w, ��`��,1'?`+ Aj ntflil�Kry ,-Z 'M •'T.�R phi• A"1�. � �. L 'Y K IL W ., Bu k G o r�o n LLP 10 Waterfront Place lie 011 Western Avenue Attorneys at Law Seattle,WA 98104-1097 206-382-9540 206-626-0675 Fax www.buckgordon.corn April 13, 2003 V1a EMAIL and HAND DEL/VERY Land Use and Planning Board City of Kent Planning & Services 220 4th Ave. S. Kent, WA 98032 Re: Les Schwab's Proposed Code Text Amendment Dear Board Members: Buck & Gordon represent Les Schwab with regard to its application to amend Kent's Zoning Code to permit auto repair and washing services in the M3 General Industrial when conducted on a lot also used for heavy truck and equipment repair. Les Schwab submitted its application on April 4, 2003. Since then, we have had an opportunity to discuss this proposed text amendment with Charlene Anderson, the City's Planning Manager, and to review a memo prepared by Ms. Anderson to each of you regarding the proposal. Based on Ms. Anderson's memo, we understand that the Land Use and Planning Board may have concerns regarding the interface of passenger vehicles with heavy trucks on Kent's industrial roadways. This letter is intended to allay your concerns and to offer an alternative that should both respond to your anticipated concerns and achieve Les Schwab's goal. As Les Schwab's application indicates, it is proposing this code text amendment to enable it to open a store at 22101 84th Ave. S., which would provide tires sales and installation services to a combination heavy truck and passenger vehicles. Les Schwab currently operates 137 stores in Washington. Ninety (90)to 95% of Les Schwab's stores serve this dual function, providing sales and services both to commercial and individual/retail customers. Although we acknowledge your concerns regarding interfacing passenger vehicles with heavy truck traffic, our practical experience has demonstrated that these vehicles can and do successfully share the roadways and service areas. In fact, Les Schwab's largest store in Washington is located in an industrial zone in Longview along a major industrial roadway. This store has operated without incident for several years. Here, by comparison, Les Schwab's proposed store site is along 84th Ave. S. The 84th Ave. S. corridor is zoned Gateway Commercial. The Kent Zoning Code permits a variety of retail uses along this corridor. Based on these uses, it can be inferred that the City previously determined that 84th Ave. S. is an appropriate roadway for use by both passenger vehicles and is heavy trucks. Consequently, Les Schwab's proposed store should not trigger any unintended interface between heavy trucks and passenger vehicles. Land Use & Planning Boar, - 2 - April 13, 2003 As a way of responding to your anticipated concerns, we would like to propose a potential solution. Les Schwab would be willing to modify its application to request that the City permit auto repair and washing services only on M3 General Industrial properties that abut or are split zoned with properties zoned GWC. By doing this, we would ensure that the only road impacted by this change would be 84th Ave. S., which the City has previously recognized is appropriate for both passenger vehicles and trucks. I will be attending the Land Use and Planning Board Workshop on Monday evening. Although I recognize that public participation is not permitted during this Workshop, I would welcome the opportunity to respond to any questions or concerns that any of the Board Members may have before or following the Workshop. I can be reached by telephone at 206- 301-4125 or by email at mlawrence@buckgordon.com. Thank you in advance for your consideration. Very truly yours, Molly A. Lawrence AL cc: Da cc: David Gibson, Les Schwab SC-HWAB\KFf rRITR TO PC 04-13-03 DOC COMMUNITY DEVELOPMENT Fred N. Satterstrom, C. D. Director PLANNING SERVICES • Charlene Anderson,AICP,Manager KEPI T Phone:253-856-5454 W A S M I Y G T O N Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 LAND USE & PLANNING BOARD MINUTES PUBLIC HEARING APRIL 28, 2003 The meeting of the Kent Land Use and Planning Board was called to order by Chair Ron Harmon at 7:00 p.m. on Monday,April 28, 2003 in Chambers West of Kent City Hall. LUPB MEMBERS PRESENT: STAFF MEMBERS PRESENT: Ron Harmon, Chair Charlene Anderson, AICP, Planning Manager Nicole Fincher, Vice Chair Kim Marousek, Principal Planner Steve Dowell Gloria Gould-Wessen, Planner, GIS Coordinator Jon Johnson William Osborne, Planner David Malik Kim Adams-Pratt, Asst City Attorney Deborah Ranniger LUPB MEMBERS ABSENT: Les Thomas, Excused APPROVAL OF MINUTES Jon Johnson MOVED and Steve Dowell SECONDED to approve the Minutes of February 24, 2003. Motion CARRIED. ADDED ITEMS: None COMMUNICATIONS Planning Manager Anderson stated that on May 6, 2003, City Council will consider the ordinance for the Planned Unit Development Acreage Amendment #ZCA-2002-5 with an effective date thirty days from May 6tn NOTICE OF UPCOMING MEETINGS None #ZCA-2003-1 AUTO REPAIR AS HOME OCCUPATION-EXTENSION OF AMORTIZATION PERIOD Planning Manager Charlene Anderson stated that the Board has discussed difficulties businesses were having with the amortization period that was placed in the code the last time the code was amended regarding auto repair for home occupations. She stated that there was a one year amortization period saying that either a year from the business license or from the date of the ordinance, whichever was later, all auto repair home occupations were no longer allowed. Ms. Anderson stated that the amortization period particularly created some difficulty with an applicant named Mr. Knipp. Ms. Anderson submitted a letter from Mr. Knipp for the record as Exhibit #1, detailing some of the issues of the operation at his site located at 132nd and north of 272"d Ms. Anderson stated that staff recommends approving an extension of the amortization period for auto repair as home occupations to October 18, 2004, to allow extra time for these operations to be abandoned and removed from the site. r Ms. Anderson addressed questions raised by the Board at their workshop, particularly regarding the Knipp property. Ms. Anderson stated the Board questioned if there had been any problems with this business or if there had been any Fire Department review. Ms. Anderson stated that she did not hear that the Fire Department had any issues with this business and that it is her understanding that the Fire Department does not have authority over home occupations unless the business is a full fledged commercial operation. Ms. Anderson stated that she was not aware of any complaints against the particular business that is in operation at that location right now. She stated that in speaking with King County; in 1990 and 1991, there were two code enforcement actions related to auto repair and not allowing that use at the site. Ms. Anderson stated that these issues were closed as the owner stated that they were going to relocate the business and a King County inspector went to the site and did not see evidence of a business being operated. Ms. Anderson stated that since this property was annexed to Kent on January 1, 1996, a code enforcement action at this site under Lester McCracken, resulted in a Hearing Examiner ruling that the auto parts on this site would have to be screened. Ms. Anderson stated that although we are talking about one particular site, the focus of tonight's discussion regards auto repair, home occupations in general. Ms. Anderson stated that the business at this particular site at 132d is called Kent Air Conditioning. She stated that a planner visited the site and observed that a truck on the site had the words "Auto" along with "Kent Air Conditioning" inscribed on it. Ms. Anderson stated that she has not personally seen evidence of an auto repair operation but it is her understanding from her staff that this is what is being operated at this particular site. In response to Mr. Dowell, Ms. Anderson stated that when the subject site was under King County's jurisdiction, auto repair was not a permitted use. Ms. Anderson stated that Puget Sound Air Quality Control informed her that there was no registration and no complaints at that location. Jon Johnson MOVED and Steve Dowell SECONDED to open the Public Hearing. Motion CARRIED. James Knipp, 13002 SE 2851", Kent, WA 98032 questioned what it would take to convert his property at 26922 132"d Avenue SE to a commercial use, stating that there has never been a complaint against this particular property. Mr. Knipp stated that the business owner holds numerous credentials, is controlled by the EPA and has never been fined. Mr. Knipp stated that you will not observe transmissions, engines or cars jacked up on this property nor are there any concerns regarding pollutants. Mr. Knipp stated that it is his desire to change the zoning and not just to extend the amortization period. He stated that he would like to see Kent Air Conditioning remain in business at this location saying that this business is his renter's livelihood and provides a valuable service for auto dealerships in the area that are afraid to handle Freon. In response to Mr. Dowell, Mr, Knipp stated that the business owner installs and repairs air conditioning systems for vehicles on site inside a large 2-bay building. Jon Johnson MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. In response to Mr. Dowell, Ms. Anderson stated that it has been suggested at a Board workshop that a commercial zoning be considered for the subject site as part of the Land Use Element update. Ms. Anderson stated that the business is currently not allowed as a home occupation due to the clause for auto repair. In response to Ms. Ranniger's inquiry as to what Mr. Knipp could do to retain the business on his property, Ms. Anderson stated that Mr. Knipp would have the option of submitting an application for a comp plan amendment during our annual comp plan amendment process. She stated that Mr. Knipp submitted an application this year; however, there were several other parcels included in that application. Ms. Anderson stated that Mr. Knipp could submit a new application with just his parcel if he f chose along with the other option of going forward with the land use element update as staff updates the comp plan. Jon Johnson MOVED and Deborah Ranniger SECONDED to accept staff's recommendation on ZCA- 2003-1 extending the amortization period for automobile repair home occupations to October 18, 2004, three years from the effective date of the last ordinance that amended KCC 15.08.040(G)(2). Motion CARRIED unanimously. #ZCA-2003-3 AUTO REPAIR &WASHING SERVICES IN M3, GENERAL INDUSTRIAL DISTRICT Ms. Anderson stated that this is a request for a zoning code amendment to allow auto repair and washing services in M3, resulting from an application submitted by Les Schwab Tire Centers. Ms. Anderson stated that a letter received from Les Schwab's agent proposes an alteration to their request, basically to do what staff has proposed as Option 2, to allow this type of operation in M3 properties only when it is adjacent to or split-zoned with Gateway Commercial. Ms. Anderson stated that the only Gateway Commercial zoning is along 84'h or Central Avenue from 167 north to about 2121h Street. Ms. Anderson stated that typically in an M3 zone, the City has been reluctant to present a conflict between autos and truck operations. In the M3 zone heavy truck repair is allowed; however, auto repair is not. Ms. Anderson stated that there are several goals and policies as well as strategies that the city has used to prevent these conflicts from occurring. She stated that in light of the fact that this is a limited use and the suggestion in the Les Schwab case is to allow this use basically only with those properties that abut Central Avenue. Staff agrees the conflict between heavy truck and autos would not be as great. Ms. Anderson stated that both heavy trucks and autos use 84'h Avenue South. She stated that the options presented in the staff report are 1) No change 2) Allowing auto repair and washing services as a permitted use when the split-zoning or the adjacency occurs and 3) allowing them in all M3 zoning districts only as an accessory use and by a conditional use permit. Ms. Anderson stated that staff does not recommend Option 3 as it opens up the entire M3 zoning district and because of the policies and goals and our Manufacturing designation in the County-wide Planning Policies for M3 zoning, staff did not believe this option to be appropriate. Ms. Anderson entered the letter from Molly Lawrence with Les Schwab Tire Center for the record as Exhibit#2. Chair Ron Harmon declared the Public Hearing Open. David Gibson, 62158 Cody Junior Road, Bend, OR with Les Schwab Tire Centers extended his thanks to both the Land Use and Planning Board and City staff for the opportunity to craft language that fits within the City's objectives for permitting economic development and does not adversely impact residents and other businesses. Mr. Gibson asked the Board to consider supporting the compromise that staff has worked on with Ms. Lawrence, along with Option 2 as recommended by staff. Mr. Gibson stated that Les Schwab's proposal benefits the residents and businesses of Kent and is consistent with the use of 84'h as it is today. Steve Dowell abstained from voting on this issue as the current Les Schwab facility is his good neighbor and he would not want to cause any feelings of conflict. Molly Lawrence, Buck and Gordon, 1011 Western Avenue, Suite 902, Seattle, WA 98104 stated that the site in question shows that there is a split in the zoning of this property. She stated that when Construction Machinery bought the property they treated the two separate lots as one lot and built a building over the top of that property line. Ms. Lawrence stated that it creates this unfortunate split, Land Use and Planrirun Rmrs",v• 4 where we can have retail sales and service in the forward Gateway Commercial portion of the property but we cannot have it in the M3 zone and at the same time we can have truck repair in the M3 zone but we cannot do auto repair in the M3 zone. Ms. Lawrence stated that the use on this site meets the City's Comprehensive Plan objectives. She stated that the Comprehensive Plan has two policies in particular LU-16 and ED 4.5 which do not allow the invasion of retail into the industrial area. Ms. Lawrence stated that this proposal creates a nice transition between the Gateway Commercial and the Industrial by having a use that meets both zones needs and at the same time is limited to the 84th Street Corridor so that you will not be introducing additional auto traffic into the M3 zone. Deborah Ranniger MOVED and Jon Johnson SECONDED to close the Public Hearing. Motion CARRIED. Deborah Ranniger MOVED and Jon Johnson SECONDED to accept Staffs recommendation of Option #2 for ZCA-2003-3. Motion CARRIED. Mr. Malik arrived as discussion began on #ZCA-2002-2. #ZCA-2002-2 NCC NEIGHBORHOOD CONVENIENCE COMMERCIAL Planner Kim Marousek stated that staff has been looking at modifying allowed uses within the Neighborhood Convenience Commercial (NCC) zoned properties to allow existing uses to continue to legally operate. Ms. Marousek stated that staff proposed two options: Option 1: No Change Option 2: Allows accessory drive-up/drive-through facilities when they are an accessory use and only by a conditional use permit. This option requires developers to be sensitive in their development to the surrounding neighborhood in terms of the type of commercial developments they choose to build. Ms. Marousek stated that these accessory uses would be attached to a principally permitted use in the NCC zone such as financial real estate insurance services, laundry, dry-cleaning, salons and shoe repair. Ms. Marousek stated that the City has 8 NCC nodes consisting of 20 parcels and 38 acres, a majority of those properties annexed into the City with existing businesses. She stated that there are distinctive differences between what is permitted in the NCC zone and other commercial zoning districts such as Community Commercial (CC) and General Commercial (GC). Ms. Marousek stated that the main commercial zoning strips are located along 104th, Pacific Highway and the downtown area. Ms. Marousek stated that through Board workshops and discussions with the public, tension has grown in terms of what the City desires concerning maintaining a distinction between the different commercial zones and the desire of property owners to develop their property to a different type of commercial use. Ms. Marousek stated that NCC property is generally surrounded by residential uses and the properties do not lend themselves to blanket zoning. She stated that the NCC properties are different in terms of where they are located, their existing uses and the scarcity of NCC zoned property. Ms. Marousek stated that staff would like the Board to consider setback reductions so buildings may be moved closer to the street, allowing for placement of parking behind buildings with pedestrian connections from the street to the building. These types of development standards make these developments more compatible with the surrounding residential uses. Ms. Marousek stated that as the code exists today, there is no distinction in development, landscape or signage standards among NCC, Lane I o* .. .. --., •i r, .-,. CC and GC uses. Ms. Marousek stated that applying stringent requirements with reference to landscaping and signage within NCC zones, would promote more harmony between the surrounding residential uses and the neighborhood business. Ms. Marousek submitted a letter from Charles Adams with Kent Realty for the record as Exhibit #3. She stated that this letter specifically addressed the property at the southeast corner of 240th and 116th Ms. Marousek stated that Mr. Adams is specifically requesting that auto repair and auto services be allowed as well as opening up the uses to tire shops, espresso stands, fast food and similar uses to be approved by a conditional use. Ms. Marousek reiterated staff's position to retain a distinction between Neighborhood Convenience Commercial, Community Commercial and General Commercial zoning, citing General Commercial as the highest density commercial zone in the city with auto repair permitted outright in this zone and only with a conditional use permit in the Community Commercial zone. Ms. Marousek stated that staff wants to maintain NCC zones at a neighborhood level by discouraging types of uses which would generate traffic increases. She stated that the types of uses requested by Mr. Adams for NCC zoning does not meet the standards or goals in the comprehensive plan for NCC zoning, as those uses are more auto dependent. In response to Mr. Harmon, Ms. Marousek commented on Mr. Adams' desire to see all NCC properties rezoned to GC stating that her understanding was that the City converted property to CC zoning near Covington as part of the annual comp plan amendment process. In response, Mr. Osborne stated that SR-6 property located off of Kent Kangley was rezoned to CC with a commercial land use designation. Ms. Marousek stated that property owners have the option to pursue a rezone if they wish. Ms. Marousek stated staff is looking at maintaining the NCC zone and broadening the allowable uses within that zone to provide more flexibility for those properties to redevelop, while maintaining a distinction between the commercial zoning districts. Ms. Ranniger and Mr. Malik stated that they would abstain from voting on this subject. Chair Harmon declared the Public Hearing open. Karen Gill-More, 25206 132nd Ave. SE, Kent, WA stated that she has owned the existing Short Stop Market property for 25 years located on Interstate 516/ Kent Kangley Road adjacent to the gas station and convenience store being built at the freeway off ramp at 116t - Ms. Gill-More stated that the NCC zoning restriction directly limits the type of business that could be developed on her property. Ms. Gill-More stated that she recognizes the City's need to amend the NCC zoning, but voiced her belief that each property is unique, therefore the zoning for these properties should be considered on an individual basis, rather than classified only as NCC. Ms. Gill-More stated that after meeting with staff to consider a rezone of her property to CC, she determined that the application would be a costly enterprise to undertake without some likelihood of obtaining her end result. Mr. Malik excused himself from voting on this item. Ms. Marousek stated that Ms. Gill-More's property is located near the intersection of Kent-Kangley and the 1161h exchange from the 277th Corridor as it comes up the hill and fronts on a main arterial. Ms. Marousek stated that staff looked at the properties collectively as this is a city wide zoning code amendment, not specific to one parcel. Ms. Marousek stated that she has conversed with Ms. Gill-More regarding her property and potentially rezoning which is an option for her if she wishes to pursue it. In response to Mr. Harmon, Ms. Marousek stated that she believes that Option 2 will help all of the property owners that currently own NCC property. 1 nnri I Ica nnri Plnnninn Rnnrd Minutac ___ r r In response to Ms. Fincher, Ms. Marousek stated that she was unaware of any alternative process that would benefit Ms. Gill-More and exclude her or other property owners from the proposed code revision, unless the city were to look at those particular properties in a collective manner as part of the comprehensive plan update. In response to Ms. Fincher, Ms. Marousek stated that she is unaware of how Ms. Gill-More's property was zoned when it was in King County, but was zoned NCC at the time of annexation to the City of Kent. In response to Mr. Dowell, Ms. Marousek stated that staff does not require a specific site plan prior to an applicant's submittal for a rezone as they are non-project actions and generally blanket rezones. She stated that there needs to be some level of environmental evaluation on the property and some surveying or site plan that needs to be developed. Mr. Harmon stated that although these amendments are not site specific, staff will consider Mr. Knipp's property for CC commercial zoning as part of the comp plan update process and would like this consideration extended to Ms. Gill-More's property as well. Ms. Marousek stated that she believes those parcels could be included in the evaluation. Ms. Gill-More stated that she would support Option 2, although it generally fits everybody but herself and would like the opportunity to move on with her property as she deems appropriate. David Malik MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. Nicole Fincher MOVED and Jon Johnson SECONDED to accept staff's recommendation of Option 2 for ZCA-2002-2 NCC Neighborhood Convenience Commercial zoning code amendment to allow drive- through facilities as an accessory use and only by a conditional use permit. Motion CARRIED. Ms. Anderson stated that due to a State-wide requirement for a 60 day review period; these amendments will go forward to City Council July 1, 2003. ADJOURNMENT Jon Johnson MOVED and Nicole Fincher SECONDED to adjourn the meeting. Motion CARRIED. Chair Harmon adjourned the meeting at 8:10 p.m. Respectfully Submitted, 4 Charlene Anderson, AICP, Planning Manager Secretary, Land Use and Planning Board S.Terrnil\Plan\LU PB\2003Winules\042803min.cloc i ITEM `PcAWNiNG COMMITTEE May 20,2003 ZOMNG CODE AMENDMENT #ZCA ; 2=2 (KIVA #2022899 NCC, NEIGHBORHOOD CONVENIENCE COMMERCIAL DISTRICT ACTION! ITEM: To recommend/riot recommend approval of ZCA-2002-2, Option 2 as recommended by the Land Use and Planning Board and staff, and to direct the City Attorney to prepare the necessary ordinance. 1 1 COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director PLANNING SERVICES T Charlene Anderson,AICP, Manager KEN W A S H I N G T O N Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 DATE: MAY 13, 2003 TO: CHAIR LEONA ORR AND PLANNING COMMITTEE MEMBERS FROM: KIM MAROUSEK,AICP, PRINCIPAL PLANNER THROUGH: MAYOR JIM WHITE SUBJECT: ZONING CODE AMENDMENT#ZCA-2002-2 (KIVA 2022899) NCC,NEIGHBORHOOD CONVENIENCE COMMERCIAL DISTRICT SUMMARY: After considering testimony at their April 28th public hearing, the Land Use & Planning Board recommended, by a 4-0 vote, approval of amendments to the land use, development standards, signage and landscaping requirements for properties zoned NCC. The revisions would allow accessory drive-through facilities, (via conditional use permit), and would require design techniques to enhance compatibility between the commercial • development and surrounding residential uses. BUDGET IMPACT: None MOTION: I move to recommend/not recommend approval of#ZCA-2002-2, Option 2 as recommended by the Land Use &Planning Board and staff, and to direct the City Attorney to prepare the necessary ordinance. BACKGROUND: Within the City, there are eight (8) NCC nodes that are comprised of 20 parcels and about 38 acres of property. Vacant parcels account for roughly 2.9 acres and are primarily located on the West Hill of Kent. Prior to their annexation into Kent, some of the parcels, mainly on Kent's East Hill, were zoned Neighborhood Business by King County, with a Comprehensive Plan designation of Commercial Out of Center. Many of the parcels were zoned NCC upon annexation into the City to allow the existing land uses to continue in a legal conforming manner. Recent workshops and conversations with NCC property owners have identified a need to re-evaluate the permitted uses within the NCC zone. Most notably, property owners have expressed a marketing need to allow drive- up/drive-though facilities. Additionally, since the NCC parcels generally abut residentially zoned properties, there is also a need for development regulations that are more sensitive to surrounding uses. By only allowing drive- through facilities as an accessory use, the NCC zone can still be maintained as primarily a small-scale, pedestrian- oriented commercial zone. Further, the additional development regulations will require that new project proposals are more compatible with the surrounding residential uses. The City of Kent SEPA Official has determined that no separate threshold determination, pursuant to SEPA, is required. Any impacts associated with this proposed code amendment have been adequately addressed in the City's Comprehensive Plan EIS. The specific code amendments recommended by the Board begin on page 2. The Board also asked staff to consider, during the ongoing updates to the Kent Comprehensive Plan, amendments to the land use and zoning maps for the NCC-zoned property at Kent Kangley and 116"'Avenue SE. Planning Committee Meeting 5/20/03 NCC Zoning Code Amendment ZCA-2002-2/KIVA#2022899 Staff Report Page 1 of 2 • Proposed Amendments to Kent Zoning Code • Place a "C" in the NCC column for "Drive thru/Drive up businesses (commercial/retail — other than eating/drinking establishments) in the "Wholesale and Retail Land Uses table (15.04.070). This box should also contain a numerical footnote reference that states, "any drive-up/drive-through facility shall be accessory to the principal use to which it is attached." • Add a "P" in the NCC column for Finance, insurance,real estate services with a numerical footnote in the "Service Land Uses" (15.04.090) NCC column for "Finance, insurance, real estate services" and for "Professional services: Laundry; dry cleaning; barber; salons; shoe repair" that would state, "any associated drive-up/drive-through facility shall be accessory and shall require a conditional use permit." • Modify table 15.04.190 " Commercial and industrial zone development standards for the NCC district to reduce the front yard setback from 15-feet to 10-feet; the side yard from 8-feet to 5-feet and the rear yard from 20-feet to 5-feet. Add a footnote to the side and rear yard column that would state "if property abuts a residential zone or use, the minimum yard shall be 10-feet and shall be fully landscaped." Additional standards would also be added to this table that would state the following: 1. Parking should be located either next to or behind the building. Parking should not be placed between the street and the building. 2. A direct pedestrian connection shall be provided from the street to the building. 3. Screening shall be provided for mechanical equipment, service doors and garbage areas with an enclosure and/or evergreen landscaping. Rooftop equipment shall be enclosed with a parapet or similar design feature. 4. Structures shall be designed to maintain the residential character of the surrounding neighborhood. Modulating the building mass, adding dormer windows, covered entryways or porches are ways to enhance the human scale and provide a residential dimension. • Change the sign code requirements for NCC to be consistent with the Office signage requirements. • Add the following additional landscape requirements to the NCC zone(15.07.060(M)new section): 1. Additional Landscape Requirement. Landscaping requirements shall include the following: a. A landscape strip of at least ten (10) feet shall be provided in the front yard. If a drive or parking aisle abuts the front yard, the required landscaping shall be augmented by an earth berm of at leastelease thirty-six(36) inches in height. b. A landscape strip of at least five (5) feet in depth shall be provided along the side property lines of all independent development sites. No landscaping along the side property lines shall be required between adjacent properties where a common, shared driveway with a perpetual cross-access easement is provided to serve the adjoining properties. Where the side property line of a commercial use abuts a residential district or use, a landscape strip of at least ten(10) feet shall be provided. c. A landscape strip of at least ten (10) feet in depth shall be provided along side property lines flanking the street of a comer lot. Where vehicular drive aisles or parking areas abut the required side yard, an earth berm of at lease twenty-four(24)inches in height shall be provided. d. A landscape strip of at least five (5) feet in depth shall be provided along all rear property lines. Where the rear property line of a commercial use abuts a residential district or use, a landscape strip of at least ten(10)feet shall be provided. KM\pm:S:\Permit\Plan\ZONECODEAMEND\2002\2022899-2002-2pc.doc Enc. Minutes of 4128/03 LU&PB hearing,4/21/03 staff memo to Board cc: Fred N.Satterstrom,AICP,CD Director NCC Parties of Interest Project File#ZCA-2002-2/KIVA 2022899 Planning Committee Meeting 5/20/03 NCC Zoning Code Amendment ZCA-2002-2/KIVA#2022899 Staff Report Page 2 of 2 COMMUNITY DEVELOPMENT Fred N. Satterstrom, AICP, Director • PLANNING SERVICES KEN T Charlene Anderson,AICP, Manager WASHINGTON Phone:253-856-5454 Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent, WA 98032-5895 DATE: APRIL 21, 2003 TO: CHAIR RON HARMON AND MEMBERS OF THE LAND USE AND PLANNING BOARD FROM: KIM MAROUSEK, AICP, PRINCIPAL PLANNER SUBJECT: NCC ZONING CODE AMENDMENT—KIVA 2022899 (#ZCA-2002-2) LUPB Public Hearing April 28, 2003 INTRODUCTION: At their April 14, 2003 workshop, the Board discussed proposed amendments to the NCC, Neighborhood Convenience Commercial, zoning district use and development standards. These revisions would allow accessory drive-through facilities, (via conditional use permit), and would require design techniques to enhance compatibility between the commercial development and surrounding residential uses. The proposed changes would also modify the signage and landscaping requirements for NCC properties. Currently, the NCC zone does not permit drive-through facilities. Additionally, although NCC zoned property is generally in close proximity to residentially zoned property, the development standards are the same as those for both the CC, Community Commercial and GC, General Commercial zoning districts. BACKGROUND: Within the City, there are eight (8) NCC nodes that are comprised of 20 parcels and about 38 acres of property. Vacant parcels account for roughly 2.9 acres and are primarily located on the West Hill of Kent. Prior to their annexation into Kent, some of the parcels, mainly on Kent's East Hill, were zoned Neighborhood Business by King County, with a Comprehensive Plan designation of Commercial Out of Center. Many of the parcels were zoned NCC upon annexation into the City to allow the existing land uses to continue in a legal conforming manner. Recent workshops and conversations with NCC property owners have identified a need to re- evaluate the permitted uses within the NCC zone. Most notably, property owners have expressed a marketing need to allow drive-up/drive-though facilities. Additionally, since the NCC parcels generally abut residentially zoned properties, there is also a need for development regulations that are more sensitive to surrounding uses. i OPTIONS: 1. Option 1• No Change. Existing regulations do not allow vehicular dive-up/drive-through facilities. The code does not distinguish the NCC zone from other commercial zones relative to development standards, signage or landscaping requirements. Code Amendment Details: No change 2. Option 2: Allow drive-up/drive-through facilities when they are an accessory use and only by conditional use permit. Expand the development standards for the NCC zone to require attention to architectural compatibility site design and sensitivity with the surrounding residential uses. One concern that was raised by the Board was potential noise generation associated with drive-up facilities. Both the Zoning Code and the Conditional Use process specifically require the City to evaluate a development proposal for consistency with the performance standards found in KCC 15.08.050. These standards specifically address on-site noise generation as well as lighting and glare. Code Amendment Details: • Place a "C" in the NCC column for "Drive thru/Drive up businesses (commercial/retail — other than eating/drinking establishments) in the "Wholesale and Retail Land Uses" table (15.04.070). This box should also contain a numerical footnote reference that states, "any drive-up/drive-through facility shall be accessory to the principal use to which it is attached." • Add "P" in the NCC column for Finance, insurance, real estate services with a numerical footnote in the "Service Land Uses" (15.04.090) NCC column for "Finance, insurance, real estate services" and for "Professional services: Laundry; dry cleaning; barber; salons; shoe repair" that would state, "any associated drive-up/drive-through facility shall be accessory and shall require a conditional use permit." • Modify table 15.04.190 " Commercial and industrial zone development standards for the NCC district to reduce the front yard setback from 15-feet to 10-feet; the side yard from 8-feet to 5-feet and the rear yard from 20-feet to 5-feet. Add a footnote to the side and rear yard column that would state "if property abuts a residential zone or use, the minimum yard shall be 10-feet and shall be fully landscaped." Additional standards would also be added to this table that would state the following: 1. Parking should be located either next to or behind the building. Parking should not be placed between the street and the building. • LUPB Public Hearing 4/28/03 NCC Zoning Code Amendment ZCA-2002-2/KIVA#2022899 Staff Report Page 2 of 4 • 2. A direct pedestrian connection shall be provided from the street to the building. 3. Screening shall be provided for mechanical equipment, service doors and garbage areas with an enclosure and/or evergreen landscaping. Rooftop equipment shall be enclosed with a parapet or similar design feature. 4. Structures shall be designed to maintain the residential character of the surrounding neighborhood. Modulating the building mass, adding dormer windows, covered entryways or porches are ways to enhance the human scale and provide a residential dimension. • Change the sign code requirements for NCC to be consistent with the Office signage requirements. • Add the following additional landscape requirements to the NCC zone (15.07.060(M)new section): 1. Additional Landscape Requirement. Landscaping requirements shall include the following: a. A landscape strip of at least ten (10) feet shall be provided in the front yard. If a drive or parking aisle abuts the front yard, the required landscaping shall be augmented by an earth berm of at lease thirty-six (36) inches in height. b. A landscape strip of at least five (5) feet in depth shall be provided along the side property lines of all independent development sites. No landscaping along the side property lines shall be required between adjacent properties where a common, shared driveway with a perpetual cross-access easement is provided to serve the adjoining properties. Where the side property line of a commercial use abuts a residential district or use, a landscape strip of at least ten(10) feet shall be provided. C. A landscape strip of at least ten (10) feet in depth shall be provided along side property lines flanking the street of a corner lot. Where vehicular drive aisles or parking areas abut the required side yard, an earth berm of at lease twenty-four (24) inches in height shall be provided. d. A landscape strip of at least five (5) feet in depth shall be provided along all rear property lines. Where the rear property line of a commercial use abuts a residential district or use, a landscape strip of at least ten (10) feet shall be provided. RECOMMENDATION: Staff recommends Option 2. By only allowing drive-through facilities as an accessory use, the NCC zone can still be maintained as primarily a small-scale, • LUPB Public Hearing 4/28/03 NCC Zoning Code Amendment ZCA-2002-2/KIVA##2022899 Staff Report Page 3 of 4 pedestrian-oriented commercial zone. Further, the additional development regulations will require that new project proposals are more compatible with the surrounding residential uses. The City of Kent SEPA Official has determined that no separate threshold determination, pursuant to SEPA, is required. Any impacts associated with this proposed code amendment have been adequately addressed in the City's Comprehensive Plan EIS. Staff will be available at the April 28`h public hearing to present this proposal and answer questions. KM\pm: S:\Permit\Plan\ZONECODEAMEND\2002\2022899-2002-2ph.doc cc: Fred N.Satterstrom,AICP,CD Director Charlene Anderson,AICP,Planning Manager NCC Parties of Interest Project File#ZCA-2002-2/KIVA 2022899 • LUPB Public Hearing 4/28/03 NCC Zoning Code Amendment ZCA-2002-2/KIVA#2022899 Staff Report Page 4 of 4 COMMUNITY DEVELOPMENT Fred N. Satterstrom, C. D. Director PLANNING SERVICES • Charlene Anderson,AICP, Manager �EN T Phone:253-856-5454 W•5"I M G T o M Fax: 253-856-6454 Address: 220 Fourth Avenue S. Kent,WA 98032-5895 LAND USE & PLANNING BOARD MINUTES PUBLIC HEARING APRIL 28, 2003 The meeting of the Kent Land Use and Planning Board was called to order by Chair Ron Harmon at 7:00 p.m. on Monday, April 28, 2003 in Chambers West of Kent City Hall. LUPB MEMBERS PRESENT: STAFF MEMBERS PRESENT: Ron Harmon, Chair Charlene Anderson, AICP, Planning Manager Nicole Fincher, Vice Chair Kim Marousek, Principal Planner Steve Dowell Gloria Gould-Wessen, Planner, GIS Coordinator Jon Johnson William Osborne, Planner David Malik Kim Adams-Pratt, Asst City Attorney Deborah Ranniger LUPB MEMBERS ABSENT: Les Thomas, Excused APPROVAL OF MINUTES Jon Johnson MOVED and Steve Dowell SECONDED to approve the Minutes of February 24, 2003. Motion CARRIED. ADDED ITEMS: None COMMUNICATIONS Planning Manager Anderson stated that on May 6, 2003, City Council will consider the ordinance for the Planned Unit Development Acreage Amendment#ZCA-2002-5 with an effective date thirty days from May 6m. NOTICE OF UPCOMING MEETINGS None #ZCA-2003-1 AUTO REPAIR AS HOME OCCUPATION-EXTENSION OF AMORTIZATION PERIOD Planning Manager Charlene Anderson stated that the Board has discussed difficulties businesses were having with the amortization period that was placed in the code the last time the code was amended regarding auto repair for home occupations. She stated that there was a one year amortization period saying that either a year from the business license or from the date of the ordinance, whichever was later, all auto repair home occupations were no longer allowed. Ms. Anderson stated that the amortization period particularly created some difficulty with an applicant named Mr. Knipp. Ms. Anderson submitted a letter from Mr. Knipp for the record as Exhibit #1, detailing some of the issues of the operation at his site located at 132nd and north of 272nd • Ms. Anderson stated that staff recommends approving an extension of the amortization period for auto repair as home occupations to October 18, 2004, to allow extra time for these operations to be abandoned and removed from the site. Ms. Anderson addressed questions raised by the Board at their workshop, particularly regarding the Knipp property. Ms. Anderson stated the Board questioned if there had been any problems with this business or if there had been any Fire Department review. Ms. Anderson stated that she did not hear that the Fire Department had any issues with this business and that it is her understanding that the Fire Department does not have authority over home occupations unless the business is a full fledged commercial operation. Ms. Anderson stated that she was not aware of any complaints against the particular business that is in operation at that location right now. She stated that in speaking with King County; in 1990 and 1991, there were two code enforcement actions related to auto repair and not allowing that use at the site. Ms. Anderson stated that these issues were closed as the owner stated that they were going to relocate the business and a King County inspector went to the site and did not see evidence of a business being operated. Ms. Anderson stated that since this property was annexed to Kent on January 1, 1996, a code enforcement action at this site under Lester McCracken, resulted in a Hearing Examiner ruling that the auto parts on this site would have to be screened. Ms. Anderson stated that although we are talking about one particular site, the focus of tonight's discussion regards auto repair, home occupations in general. Ms. Anderson stated that the business at this particular site at 132nd is called Kent Air Conditioning. She stated that a planner visited the site and observed that a truck on the site had the words "Auto" along with "Kent Air Conditioning" inscribed on it. Ms. Anderson stated that she has not personally seen evidence of an auto repair operation but it is her understanding from her staff that this is what is being operated at this particular site. In response to Mr. Dowell, Ms. Anderson stated that when the subject site was under King County's Jurisdiction, auto repair was not a permitted use. Ms. Anderson stated that Puget Sound Air Quality • Control informed her that there was no registration and no complaints at that location. Jon Johnson MOVED and Steve Dowell SECONDED to open the Public Hearing. Motion CARRIED. James Knipp, 13002 SE 285t6, Kent, WA 98032 questioned what it would take to convert his property at 26922 132"d Avenue SE to a commercial use, stating that there has never been a complaint against this particular property. Mr. Knipp stated that the business owner holds numerous credentials, is controlled by the EPA and has never been fined. Mr. Knipp stated that you will not observe transmissions, engines or cars jacked up on this property nor are there any concerns regarding pollutants. Mr. Knipp stated that it is his desire to change the zoning and not just to extend the amortization period. He stated that he would like to see Kent Air Conditioning remain in business at this location saying that this business is his renter's livelihood and provides a valuable service for auto dealerships in the area that are afraid to handle Freon. In response to Mr. Dowell, Mr, Knipp stated that the business owner installs and repairs air conditioning systems for vehicles on site inside a large 2-bay building. Jon Johnson MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. In response to Mr. Dowell, Ms. Anderson stated that it has been suggested at a Board workshop that a commercial zoning be considered for the subject site as part of the Land Use Element update. Ms. Anderson stated that the business is currently not allowed as a home occupation due to the clause for auto repair. • In response to Ms. Ranniger's inquiry as to what Mr. Knipp could do to retain the business on his property, Ms. Anderson stated that Mr. Knipp would have the option of submitting an application for a comp plan amendment during our annual comp plan amendment process. She stated that Mr. Knipp submitted an application this year; however, there were several other parcels included in that application. Ms. Anderson stated that Mr. Knipp could submit a new application with just his parcel if he Land I lwP and Pinnninn Fle ,d RM—+— — chose along with the other option of going forward with the land use element update as staff updates the comp plan. Jon Johnson MOVED and Deborah Ranniger SECONDED to accept staffs recommendation on ZCA- 2003-1 extending the amortization period for automobile repair home occupations to October 18, 2004, three years from the effective date of the last ordinance that amended KCC 15.08.040(G)(2). Motion CARRIED unanimously. #ZCA-2003-3 AUTO REPAIR &WASHING SERVICES IN M3, GENERAL INDUSTRIAL DISTRICT Ms. Anderson stated that this is a request for a zoning code amendment to allow auto repair and washing services in M3, resulting from an application submitted by Les Schwab Tire Centers. Ms. Anderson stated that a letter received from Les Schwab's agent proposes an alteration to their request, basically to do what staff has proposed as Option 2, to allow this type of operation in M3 properties only when it is adjacent to or split-zoned with Gateway Commercial. Ms. Anderson stated that the only Gateway Commercial zoning is along 841h or Central Avenue from 167 north to about 2121h Street. Ms. Anderson stated that typically in an M3 zone, the City has been reluctant to present a conflict between autos and truck operations. In the M3 zone heavy truck repair is allowed; however, auto repair is not. Ms. Anderson stated that there are several goals and policies as well as strategies that the city has used to prevent these conflicts from occurring. She stated that in light of the fact that this is a limited use and the suggestion in the Les Schwab case is to allow this use basically only with those properties that abut Central Avenue. Staff agrees the conflict between heavy truck and autos would not be as great. Ms. Anderson stated that both heavy trucks and autos use 84th Avenue South. She stated that the options presented in the staff report are 1) No change 2) Allowing auto repair and washing services as a permitted use when the split-zoning or the adjacency occurs and 3) allowing them in all M3 zoning districts only as an accessory use and by a conditional use permit. Ms. Anderson stated that staff does not recommend Option 3 as it opens up the entire M3 zoning district and because of the policies and goals and our Manufacturing designation in the County-wide Planning Policies for M3 zoning, staff did not believe this option to be appropriate. Ms. Anderson entered the letter from Molly Lawrence with Les Schwab Tire Center for the record as Exhibit#2. Chair Ron Harmon declared the Public Hearing Open. David Gibson, 62158 Cody Junior Road, Bend, OR with Les Schwab Tire Centers extended his thanks to both the Land Use and Planning Board and City staff for the opportunity to craft language that fits within the City's objectives for permitting economic development and does not adversely impact residents and other businesses. Mr. Gibson asked the Board to consider supporting the compromise that staff has worked on with Ms. Lawrence, along with Option 2 as recommended by staff. Mr. Gibson stated that Les Schwab's proposal benefits the residents and businesses of Kent and is consistent with the use of 84'h as it is today. Steve Dowell abstained from voting on this issue as the current Les Schwab facility is his good neighbor and he would not want to cause any feelings of conflict. Molly Lawrence, Buck and Gordon, 1011 Western Avenue, Suite 902, Seattle, WA 98104 stated that the site in question shows that there is a split in the zoning of this property. She stated that when Construction Machinery bought the property they treated the two separate lots as one lot and built a building over the top of that property line. Ms. Lawrence stated that it creates this unfortunate split, I And I lco and Pinnninn Rn.M�Ainufnc where we can have retail sales and service in the forward Gateway Commercial portion of the property but we cannot have it in the M3 zone and at the same time we can have truck repair in the M3 zone but we cannot do auto repair in the M3 zone. Ms. Lawrence stated that the use on this site meets the City's Comprehensive Plan objectives. She stated that the Comprehensive Plan has two policies in particular LU-16 and ED 4.5 which do not allow the invasion of retail into the industrial area. Ms. Lawrence stated that this proposal creates a nice transition between the Gateway Commercial and the Industrial by having a use that meets both zones needs and at the same time is limited to the 84"' Street Corridor so that you will not be introducing additional auto traffic into the M3 zone. Deborah Ranniger MOVED and Jon Johnson SECONDED to close the Public Hearing. Motion CARRIED. Deborah Ranniger MOVED and Jon Johnson SECONDED to accept Staffs recommendation of Option #2 for ZCA-2003-3. Motion CARRIED. Mr. Malik arrived as discussion began on #ZCA-2002-2. #ZCA-2002-2 NCC NEIGHBORHOOD CONVENIENCE COMMERCIAL Planner Kim Marousek stated that staff has been looking at modifying allowed uses within the Neighborhood Convenience Commercial (NCC) zoned properties to allow existing uses to continue to legally operate. Ms. Marousek stated that staff proposed two options: • Option 1: No Change Option 2: Allows accessory drive-up/drive-through facilities when they are an accessory use and only by a conditional use permit. This option requires developers to be sensitive in their development to the surrounding neighborhood in terms of the type of commercial developments they choose to build. Ms. Marousek stated that these accessory uses would be attached to a principally permitted use in the NCC zone such as financial real estate insurance services, laundry, dry-cleaning, salons and shoe repair. Ms. Marousek stated that the City has 8 NCC nodes consisting of 20 parcels and 38 acres, a majority of those properties annexed into the City with existing businesses. She stated that there are distinctive differences between what is permitted in the NCC zone and other commercial zoning districts such as Community Commercial (CC) and General Commercial (GC). Ms. Marousek stated that the main commercial zoning strips are located along 1041', Pacific Highway and the downtown area. Ms. Marousek stated that through Board workshops and discussions with the public, tension has grown in terms of what the City desires concerning maintaining a distinction between the different commercial zones and the desire of property owners to develop their property to a different type of commercial use. Ms. Marousek stated that NCC property is generally surrounded by residential uses and the properties do not lend themselves to blanket zoning. She stated that the NCC properties are different in terms of where they are located, their existing uses and the scarcity of NCC zoned property. • Ms. Marousek stated that staff would like the Board to consider setback reductions so buildings may be moved closer to the street, allowing for placement of parking behind buildings with pedestrian connections from the street to the building. These types of development standards make these developments more compatible with the surrounding residential uses. Ms. Marousek stated that as the code exists today, there is no distinction in development, landscape or signage standards among NCC, c. INA F CC and GC uses. Ms. Marousek stated that applying stringent requirements with reference to landscaping and signage within NCC zones, would promote more harmony between the surrounding residential uses and the neighborhood business. Ms. Marousek submitted a letter from Charles Adams with Kent Realty for the record as Exhibit #3. She stated that this letter specifically addressed the property at the southeast corner of 240th and 1161h Ms. Marousek stated that Mr. Adams is specifically requesting that auto repair and auto services be allowed as well as opening up the uses to tire shops, espresso stands, fast food and similar uses to be approved by a conditional use. Ms. Marousek reiterated staff's position to retain a distinction between Neighborhood Convenience Commercial, Community Commercial and General Commercial zoning, citing General Commercial as the highest density commercial zone in the city with auto repair permitted outright in this zone and only with a conditional use permit in the Community Commercial zone. Ms. Marousek stated that staff wants to maintain NCC zones at a neighborhood level by discouraging types of uses which would generate traffic increases. She stated that the types of uses requested by Mr. Adams for NCC zoning does not meet the standards or goals in the comprehensive plan for NCC zoning, as those uses are more auto dependent. In response to Mr. Harmon; Ms. Marousek commented on Mr. Adams' desire to see all NCC properties rezoned to GC stating that her understanding was that the City converted property to CC zoning near Covington as part of the annual comp plan amendment process. In response, Mr. Osborne stated that SR-6 property located off of Kent Kangley was rezoned to CC with a commercial land use designation. Ms. Marousek stated that property owners have the option to pursue a rezone if they wish. Ms. Marousek stated staff is looking at maintaining the NCC zone and broadening the allowable uses within that zone to provide more flexibility for those properties to redevelop, while maintaining a distinction between the commercial zoning districts. Ms. Ranniger and Mr. Malik stated that they would abstain from voting on this subject. Chair Harmon declared the Public Hearing open. Karen Gill-More, 25206 132"d Ave. SE, Kent, WA stated that she has owned the existing Short Stop Market property for 25 years located on Interstate 516/ Kent Kangley Road adjacent to the gas station and convenience store being built at the freeway off ramp at 116t Ms. Gill-More stated that the NCC zoning restriction directly limits the type of business that could be developed on her property. Ms. Gill-More stated that she recognizes the City's need to amend the NCC zoning, but voiced her belief that each property is unique, therefore the zoning for these properties should be considered on an individual basis, rather than classified only as NCC. Ms. Gill-More stated that after meeting with staff to consider a rezone of her property to CC, she determined that the application would be a costly enterprise to undertake without some likelihood of obtaining her end result. Mr. Malik excused himself from voting on this item. Ms. Marousek stated that Ms. Gill-More's property is located near the intersection of Kent-Kangley and the 1161h exchange from the 277th Corridor as it comes up the hill and fronts on a main arterial. Ms. Marousek stated that staff looked at the properties collectively as this is a city wide zoning code amendment, not specific to one parcel. • Ms. Marousek stated that she has conversed with Ms. Gill-More regarding her property and potentially rezoning which is an option for her if she wishes to pursue it. In response to Mr. Harmon, Ms. Marousek stated that she believes that Option 2 will help all of the property owners that currently own NCC property. ` � P In response to Ms. Fincher, Ms. Marousek stated that she was unaware of any alternative process that would benefit Ms. Gill-More and exclude her or other property owners from the proposed code revision, unless the city were to look at those particular properties in a collective manner as part of the comprehensive plan update. In response to Ms. Fincher, Ms. Marousek stated that she is unaware of how Ms. Gill-More's property was zoned when it was in King County, but was zoned NCC at the time of annexation to the City of Kent. In response to Mr. Dowell, Ms. Marousek stated that staff does not require a specific site plan prior to an applicant's submittal for a rezone as they are non-project actions and generally blanket rezones. She stated that there needs to be some level of environmental evaluation on the property and some surveying or site plan that needs to be developed. Mr. Harmon stated that although these amendments are not site specific, staff will consider Mr. Knipp's property for CC commercial zoning as part of the comp plan update process and would like this consideration extended to Ms. Gill-More's property as well. Ms. Marousek stated that she believes those parcels could be included in the evaluation. Ms. Gill-More stated that she would support Option 2, although it generally fits everybody but herself and would like the opportunity to move on with her property as she deems appropriate. David Malik MOVED and Steve Dowell SECONDED to close the Public Hearing. Motion CARRIED. Nicole Fincher MOVED and Jon Johnson SECONDED to accept staff's recommendation of Option 2 for ZCA-2002-2 NCC Neighborhood Convenience Commercial zoning code amendment to allow drive- through facilities as an accessory use and only by a conditional use permit. Motion CARRIED. Ms. Anderson stated that due to a State-wide requirement for a 60 day review period; these amendments will go forward to City Council July 1, 2003. ADJOURNMENT Jon Johnson MOVED and Nicole Fincher SECONDED to adjourn the meeting. Motion CARRIED. Chair Harmon adjourned the meeting at 8:10 p.m. Respectfully Submitted, Charlene Anderson, AICP, Planning Manager Secretary, Land Use and Planning Board S:1Pefnrt\PlanlL UPB12003%MinutesO42803nrn.dm •