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HomeMy WebLinkAboutSR_ERC Staff Report #2_Boeing Apron E_201106_v1_FINAL.pdfDEPARTMENT OF COMMUNITY AND ECONOMIC DEVELOPMENT Project Location Map SR_ERC~1 ENVIRONMENTAL REVIEW COMMITTEE REPORT ERC Meeting Date: November 9, 2020 Project File Number: PR19-000304 Project Name: Boeing Apron E Land Use File Number: LUA19-000145, ECF, SA-H, V-H Project Manager: Alex Morganroth, Senior Planner Owner: The Boeing Company, 737 Logan Ave N, Renton, WA 98055 Applicant/Contact: Mark Clement, PO Box 3707, MC 96-01, Seattle, WA 98124 Project Location: 737 Logan Ave N, Renton, WA 98057 Project Summary: The applicant, The Boeing Company, is requesting Environmental (SEPA) Review, Hearing Examiner Site Plan Review, and a variance in order to convert an existing parking lot (S1 Lot) into an aircraft production area. The subject property (APN 0723059001) is to the east of the Cedar River along Lake Washington. The site is home to the Boeing 737 plant and associated support buildings and is located in the Urban Center (UC) zone. The proposal includes three (3) new outdoor production stalls for aircraft and a new 72,145 sq. ft. (footprint) paint hangar with two bays. The existing fire station west of the proposed building would be retained. A sound wall and landscape screening is proposed along the Logan Ave N and N 6th St right-of-way. A parking lot with approximately 45 stalls would be constructed south of the proposed new building. All work would occur further than 200 feet from the Cedar River OHWM. Site access is proposed via a connection between the existing Apron D area to the west and the proposed work area. The applicant is requesting a variance in order to seek relief from the parking lot landscaping requirements in RMC 4-4-070. The project would result in new and replaced impervious surfaces, tree removal, and vegetation removal. The applicant submitted a Drainage Report, Geotechnical Report, Traffic Impact Analysis, Noise Study, Light Impingement Study, and Parking Analysis with the application. Exist. Bldg. Area SF: N/A Proposed New Bldg. Area (footprint): Proposed New Bldg. Area (gross): 72,145 SF 139,589 SF Site Area: 6,676,701 SF (153.3 acres) Total Building Area GSF: 151,589 SF STAFF RECOMMENDATION: Staff Recommends that the Environmental Review Committee issue a Determination of Non-Significance - Mitigated (DNS-M). City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 2 of 14 SR_ERC~1 PART ONE: PROJECT DESCRIPTION / BACKGROUND The Boeing Apron E project scope has changed multiple times since the initial application was accepted for review on July 16, 2019. Initial changes include minor deviations from the original architectural design of the paint hangar, retaining the existing fire station instead of relocating to a different site, reducing the number of parking stalls provided from 89 to 45, minor utility rerouting, and no longer constructing the smaller utility building. The updated scope was submitted on February 6, 2020 and review of the project commenced on the following day. On March 23, 2020, staff presented a recommendation to the Environmental Review Committee (ERC) to issue a Mitigated Determination of Non-Significance with seven (7) mitigation measures. After reviewing staff recommendation, the ERC determined that additional information related to the traffic and parking issues would be needed before a determination could be issued. ERC members recommended that staff get the Traffic Memo (Exhibit 11) and Traffic Impact Analysis (Exhibit 12) reviewed by an outside consultant. In addition, ERC requested additional information related to noise impacts from engine run-ups, aesthetics of the sound wall, and siting of the new building. Staff placed the project “on-hold” on April 22, 2020 pending completion of a secondary review of the Traffic Memo and Traffic Impact Analysis (Exhibit XX). Staff contacted a firm in May and began the process of obtaining a scope and fee estimate. After submitting the scope and fee estimate to Boeing for approval, Boeing requested that staff hold off on a secondary review in order to allow their consultant to prepare a new Traffic Impact Analysis. The new analysis would be based on updated employment numbers and characteristics that reflect the changing realities at Boeing in the past few months including both staff and production decreases. Therefore, the analysis below is based on the updated report and additional information provided by the applicant. The proposed Apron E is located at the current S1 Lot, in the southern portion of Boeing’s Renton campus. The S1 Lot is currently used for vehicle parking and has a total of 976 general parking stalls. The project will convert the parking lot into an airplane apron for the post-manufacture processing. The new apron would connect the existing Apron D located to the west of the S1 Lot. A new paint hangar would be constructed in the southern portion of Apron E. This hangar is anticipated to accommodate two 737 planes and would have dimensions of about 225 feet by 290 feet and a maximum height of about 85 feet. Blast fences, approximately 15 feet in height, will be constructed at the north side of Apron E, and a sound wall, about 25 feet in height, would be construction along the eastern border. Other onsite structures include light-weight crew shelters and tool sheds. New underground utilities include storm, sewer, water, power and communication lines, and stormwater vaults for water quality control. PART TWO: ENVIRONMENTAL REVIEW In compliance with RCW 43.21C.240, the following environmental (SEPA) review addresses only those project impacts that are not adequately addressed under existing development standards and environmental regulations. A. Environmental Threshold Recommendation Based on analysis of probable impacts from the proposal, staff recommends that the Responsible Officials: Issue a DNS-M B. Mitigation Measures 1. The applicant shall comply with the recommendations of the geotechnical report prepared by S&EE, dated June 24, 2019, or an updated report submitted at a later date. 2. The applicant shall draft an official agreement covering the curfew hours for all engine run-up testing on the Boeing plant site. The agreement shall be submitted to the Current Planning Project Manager for review at the time of Construction Permit application submittal. The agreement shall be executed by both parties (Boeing and the City of Renton) prior to issuance of the building permit for the Apron E project. City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 3 of 14 SR_ERC~1 3. The applicant shall implement one or both of the noise reduction methods identified by SSA Acoustics on page 8 of the updated Noise Study Report (Exhibit 14) in order to reduce the maximum ambient noise level increase at the Class A EDNA receiving properties below 10 dBA. The applicant may also propose an alternative option for noise reduction. The applicant would be required to submit detailed plans for the additional noise reduction measures, as well as their expected impact on noise levels during engine run-ups at the receiving properties, at the time of Construction Permit submittal for review and approval by the Current Planning Project Manager. 4. The applicant shall submit an annual Parking Utilization Report (PUR) for a period of five (5) years. The first report shall be submitted no latger than one year after the building permit is issued for the proposed paint hanger. Each annual report shall include the utilization rates at both individual parking lots as well as site-wide. Rates shall be calculated at the current peak demand times (1:00 pm to 1:30 pm and 1:30 pm to 2:00 pm). If the Boeing shift schedules are altered in any way between annual reports, new peak parking demand times shall be calculated to reflect the change. If parking utilization for general purpose stalls is found to exceed 90% site-wide at any time, the applicant shall implement specific measures with six (6) months of the date of the annual report in order to reduce the utilization rate below the 90% threshold. The implementation measures proposed shall be formally submitted to the Current Planning Project Manager for review and approval. 5. The applicant shall pay a transportation impact fee based on the square footage of the building for the manufacturing use in accordance with the City of Renton fee schedule in effect at the time of building permit submittal. 6. If any Native American grave(s) or archaeological/cultural resources (Indian artifacts) are found all construction activity shall stop in accordance with RCW 27.53.060 and 27.44.020, and the owner/developer shall immediately notify the City of Renton planning department, concerned Tribes’ cultural committees, and the Washington State Department of Archeology and Historic Preservation. 7. The applicant shall submit an Archaeological Monitoring and Inadvertent Discovery Plan MIDP to DAHP and any interested Tribes for review prior to the start of any ground disturbing activities. Documentation of the submittal shall be provided to the City of Renton prior to the issuance of building or construction permits. City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 4 of 14 SR_ERC~1 C. Exhibits Exhibit 1: Environmental Review Committee (ERC) Report Exhibit 2: Site Plan Exhibit 3: Neighborhood Map Exhibit 4: Conceptual Landscape Plan Exhibit 5: Arborist Report, prepared by Urban Forestry Services, Inc, dated June 18, 2019 Exhibit 6: Tree Retention and Land Clearing Plan Exhibit 7: Drainage Report, prepared by DOWL, dated December, 2019 Exhibit 8: Conceptual Drainage/Utilities Plan, prepared by DOWL, dated June 21, 2019 Exhibit 9: Geotechnical Report, prepared by S&EE, dated June 24, 2019 Exhibit 10: Architectural Elevations Exhibit 11: Traffic Impact Analysis, prepared by TranspoGroup, dated January, 2020 Exhibit 12: Lighting Impingement Study, prepared by Casne Engineering, dated June 21, 2019 Exhibit 13: Noise Study Report, prepared by SSA Acoustics, dated June 10, 2019 Exhibit 14: Noise Study Report, prepared by SSA Acoustics, dated May 11, 2020 Exhibit 15: Construction Mitigation Description Exhibit 16: Renton Field Operator Guide for Curfew Hours Exhibit 17: On-hold Letter, dated April 22, 2019 Exhibit 18: Transportation Concurrency Memo prepared by Brianne Bannwarth, dated November 6, 2020. D. Environmental Impacts The Proposal was circulated and reviewed by various City Departments and Divisions to determine whether the applicant has adequately identified and addressed environmental impacts anticipated to occur in conjunction with the proposed development. Staff reviewers have identified that the proposal is likely to have the following probable impacts: 1. Earth Impacts: The subject site is located in an area with a known seismic hazard. As such the applicant submitted a Geotechnical Report, prepared by S&EE, dated June 24, 2019 (Exhibit 9). The analysis in the report primarily focused on the area near the proposed footprint of the paint hangar. S&EE relied on the soil characteristics observed in prior geotechnical reports prepared for Boeing, as well as new laboratory testing of nine (9) soil borings collected near the proposed structure. Similar to the results of previous borings across the site, the new borings found fill approximately three to seven feet (3’-7’) in thickness primarily consisting of well-compacted pitrun (mix of sand and gravel). Native alluvial soils with varying degrees of density then extend approximately 100 feet below the fill. Older alluvial soils consisting of medium dense to dense sand, silt and silty clay have been found up to a depth of approximately 170 feet in other areas on the Boeing site. Ground water monitoring wells were installed in seven of the nine borings. Water was found at depths ranging from 7.7 feet to 8.4 feet beneath the surface during analysis between December 2018 and March 2019. The geotechnical report concluded that the project site is located in an area of high liquefaction potential due the close proximity to the Seattle Fault. Due to the high potential for liquefaction near the City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 5 of 14 SR_ERC~1 project area during an earthquake, the report finds the use of a conventional spread concrete footings to be infeasible for the proposed structure. Instead, the report recommends the use of 20-inch diameter Augercast piles drilled to a depth of approximately 75 feet bgs (below ground surface). S&EE recommends that the Augercast piles be installed by an experienced piling contractor due to the various quality control measures necessary and the complexity of the installation process. S&EE estimates that due to the characteristics of the soil and ground water table during testing, approximately four to six inches (4”-6”) of settlement is possible under the proposed floor load. The report recommends preloading the slab area to pre-induce the settlement prior to construction. In addition, the utilizing shallow foundations such as spread footings and mats for the light-weight structures such as the blast fence and sound walls. Due to the specific recommendations outlined in the geotechnical report related to the soil conditions on the site, staff recommends as a mitigation measure that the applicant comply with the recommendation in the provided report or an updated report submitted with the building permit. The geotechnical report would be required to be submitted with the building permit application for the construction of the paint hangar building and compliance with the recommendations would be reviewed at that time. The applicant has indicated the project would result in approximately 365,772 square feet of replaced impervious area. The project would not increase the impervious coverage on-site overall. Total earthwork quantities were estimated at 30,800 cubic yards of excavation and 19,200 cubic yards of fill. Mitigation Measures: The applicant shall comply with the recommendations of the geotechnical report prepared by S&EE, dated June 24, 2019, or an updated report submitted at a later date. Nexus: SEPA Environmental Review, RMC 4-4-060 Grading, Excavation and Mining Regulations 2. Air Impacts: It is anticipated that some temporary air quality impacts could be associated with site work and building construction required to complete the proposed project at this site. Project development impacts during construction activities may include dust as a result of concrete cutting and utility work, as well as exhaust from construction vehicles, equipment and/or machinery. These emissions would be temporary and are anticipated to rapidly dissipate. Dust control would be mitigated through the use of temporary erosion control measures, watering or other best management practices as identified in the construction mitigation memo provided by the applicant (see Exhibit 14). Operations within the paint hangar also have the potential to impact air quality on and near the site. Volatile organic compounds and other hazardous air pollutants are present in the paint used on the airplanes and have the potential to be dangerous to both humans and environmental health. The applicant has proposed the mitigation of the potential impacts through the use of Best Available Control Technologies such as filtering particulate matter and other air pollutants from the paint exhaust and limiting the concentrations of certain organic compounds used in the painting process. In addition, operations on the site would be required to meet all applicable control standards designated by the Puget Sound Clean Air Agency (PSCAA). The applicant already performs painting on the site and has experience with the challenges and requirements of mitigating impacts to the air. Engine run-ups similar to those already performed on other portions of the site are expected to occur a few times per day in the three outdoor stalls. Although the airplane engine run-ups would release particulate matter into the air from the exhaust, the amount is negligible when compared to the exhaust already released during regular airport operations at the Renton Municipal Airport. Therefore, no further site specific mitigation is recommended for the identified impacts from typical vehicle/construction exhaust and additional engine run-ups. In addition, air quality requirements from the PSCAA are expected to adequately mitigate for any impacts created by the painting operations on the site. City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 6 of 14 SR_ERC~1 Mitigation Measures: No further mitigation recommended. Nexus: N/A 3. Water a. Storm Water Impacts: The applicant submitted a Preliminary Drainage Plan and Technical Information Report (TIR) prepared by DOWL, dated December 2019 (Exhibits 7 and 8). The project contains greater than 2,000 square feet of replaced impervious surface and therefore the development is subject to Full Drainage Review in accordance with the 2017 Renton Surface Water Design Manual (RSWDM). Based on the City of Renton’s flow control map, the site falls within the Peak Rate Flow Control Standard area matching Existing Site Conditions and is within the Lake Washington and Cedar River Drainage Basin. All nine core requirements and the six special requirements have been discussed in the TIR. The project site is located within the Lake Washington and Cedar River drainage basin. The flowpath from the project site discharge point is less than a half mile to the 100-year floodplain of Lake Washington; therefore, the project qualifies for the direct discharge exemption in accordance with Section 1.2.3.1 of the 2017 RSWDM and must adhere to all requirements thereof. As a commercial site, Special Requirement #4 “Source Controls” per section 1.3.4 in the RSWDM is applicable. In addition, the site is categorized as a “high-use site” per the Definitions section in Chapter 1 of the RSWDM then Special Requirement #5 “Oil Control” per section 1.3.4 in the RSWDM will be applicable. The applicant has elected to provide enhanced water quality treatment prior to discharge via several Linear Modular Wetland systems before entering the outfalls that discharge the stormwater into Lake Washington. A Construction Stormwater General Permit from Department of Ecology will be required since grading and clearing of the site exceeds one acre. A Stormwater Pollution Prevention Plan (SWPPP) is required for this site. All impacts to stormwater are anticipated to be addressed through the requirements of the RSWDW and no additional mitigation measures are recommended. Mitigation Measures: No further mitigation recommended. Nexus: N/A 4. Historic and Cultural Preservation Impacts: In the SEPA checklist, the applicant indicated that they completed a search of the Washington State Information System of Architectural and Archaeological Records Data. The Checklist concludes that the system did not identify any properties within the project area as being on the historic property inventory or register. The northern portion of the airport was once under the surface of Lake Washington. In addition the Black River used to run out of the lake, flow south through the airport and then west. Based on the probability of the subject site being along the banks of an old river channel and lake shore there is a higher likelihood of cultural resources discovery, through ground disturbing activity. As such, staff recommends as a mitigation measure that if any Native American grave(s) or archaeological/cultural resources (Indian artifacts) are found all construction activity shall stop in accordance with RCW 27.53.060 and 27.44.020, and the owner/developer shall immediately notify the City of Renton planning department, concerned Tribes’ cultural committees, and the Washington State Department of Archeology and Historic Preservation (DAHP). The SEPA checklist indicates that if any archaeological resources are encountered a professional Archaeologist would be called to assess the significance of the find. Due to parts of the proposed project that would occur under the existing pervious surface, DAHP has recommended that the applicant hire a professional archeologist to monitor ground disturbing activities. In City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 7 of 14 SR_ERC~1 addition, DAHP recommended the applicant prepare an archaeological monitoring and inadvertent discovery plan (MIDP) to be submitted to DAHP and the interested Tribes for review prior to any ground disturbance. Mitigation Measures: 1. If any Native American grave(s) or archaeological/cultural resources (Indian artifacts) are found all construction activity shall stop in accordance with RCW 27.53.060 and 27.44.020, and the owner/developer shall immediately notify the City of Renton planning department, concerned Tribes’ cultural committees, and the Washington State Department of Archeology and Historic Preservation. 2. The applicant shall submit an Archaeological Monitoring and Inadvertent Discovery Plan MIDP to DAHP and any interested Tribes for review prior to the start of any ground disturbing activities. Documentation of the submittal shall be provided to the City of Renton prior to the issuance of building or construction permits. Nexus: SEPA Environmental Review, RCW 27.53 Archaeological Sites and Resources, and RCW 27.44 Indian Graves and Records. 5. Environmental Health a. Environmental Health Hazards Impacts: Materials planned for storage and use on the project site are primary related to the paint facility and include paints water-based and solvent-based cleaning materials, primers, and other materials typically used in an industrial painting operation. The applicant identifies the potential for the materials to impact the environmental, but anticipates that the risk would be mitigated by storing the materials according requirements from PSCAA, the Washington Department of Ecology (DOE), and the Uniform Fire Code. In addition, all activities during construction would be operated in compliance with a DOE construction stormwater permit with requirements for the protection of local waterways from pollutants generated during construction. Therefore potential short-term and long-term impacts to environmental health would adequately mitigated through compliance with the requirements of various state agencies. Mitigation Measures: No further mitigation recommended. Nexus: N/A b. Noise Impacts: The applicant submitted a Noise Study Report for the project prepared by SSA Acoustics and dated June 10, 2019 (Exhibit 14). The applicant also submitted an updated report prepared by SSA Acoustics and dated May 11, 2020 (Exhibit 15). The reports are identical except that the updated report includes measurements and data collected from an additional sound level meter near the Cedar River, as requested by staff after the first Environmental Review Committee meeting on March 23, 2020. The updated report evaluates the noise anticipated at the proposed paint hangar and aircraft stalls and how any noise increases would affect the residential properties to the east of the project site, Renton Memorial Stadium to the south, and the Cedar River Trail to the west. The project site is classified as a Class B EDNA (Commercial) Source property per WAC 173-60- 030. Limits on noise levels at the receiving sites are identified in WAC 197-60-40. The school property is classified as a Class B EDNA (Commercial) Receiver and has a noise limit of 60 dBA during all hours per the maximum noise levels outlined in WAC 173-60-040. The Cedar River Trail Park is classified as a Class C EDNA (Industrial) Receiver and has a noise limit of 65 dBA during all hours. The residential uses to the east are classified as Class A EDNA (Residential) receivers and noise is limited to 57 dBA during daytime hours. During the nighttime, defined as the hours between 10:00 pm and 7:00 am, sound level limits are reduced by 10 dBA where the receiving property lies within a residential district of the city (i.e. the residential uses to the east of the project site). Ambient noise levels were measured by Svantek 971 sound level meters at three test sites near the project site. City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 8 of 14 SR_ERC~1 Ambient noise levels at the east receiving properties (Class A EDNA) were measured during daytime hours and ranged from 57 to 63 dBA depending on time of day. Ambient noise levels at the south receiving property (Class B EDNA) was not specifically measured, but was estimated to be in a similar range as the Class A properties, or between 57 and 63 dBA. Ambient noise levels at the west receiving property (Class C EDNA) were measure during daylight hours and ranged from 50 to 55 dBA. The location of the three receivers used to measure ambient sound levels were identified in the updated Noise Study Report (Exhibit 13). According to the report, the primary source of noise on the project site is expected to be from the engine run-up tests occurring at the three outdoor aircraft production stalls at the north end of the site. Engine run-up testing at the Boeing plant only occurs between hours of 8:00am and 6:00pm according to the Renton Field Operator Guide for Curfew Hours document (Exhibit 16). The current run-up test schedule consists of high-power runs allowed between 8:00m and 5:00pm and medium- power runs until 6:00pm. The typical run-up test last between 35 and 40 minutes. During the tests, the engines are at idle approximately two-thirds of the time and are at full power for approximately one-third of the time. In the past, neither Boeing nor the City have been able to produce a copy of an official signed agreement from either party that clearly outlining the times of day that engine run-up are permitted. In order to ensure that engine run-up testing on the future Apron E site are covered under an official agreement and to protect neighboring properties from the noise impacts created by the run-ups, staff recommends as a SEPA mitigation measure that the applicant draft an official agreement covering the curfew hours for all engine run-ups on the Boeing plant site. The agreement should be submitted to the Current Planning Project Manager for review at the time of building permit submittal. The agreement shall be executed by both parties (Boeing and the City of Renton) prior to issuance of the Construction Permit. According the report, the noise levels created by the engine run-up testing would not exceed ambient noise levels by more than 10 dBA at the receiving properties to the east, west, or south after noise mitigation measures are installed. In order to mitigate for and reduce the noise from operations at the site, the applicant has proposed the construction of a 25-foot tall solid steel sound wall along the east side (Logan Ave N) and north side (N 6th St) of the site (see Exhibits 10). The report calculated that the sound wall would reduce noise levels at the Class A EDNA receiving properties to the east by approximately 15 dBA and at both the Class B EDNA and Class C EDNA receiving properties to the south and west by 20 dBA compared to the noise levels on a site with no sound wall. After construction of the sound wall, the estimated max sound levels at the Class A EDNA receiving properties is 70 dBA, or approximately 7 to 13 dBA over the average ambient noise levels. The estimated maximum sound levels at the Class B EDNA and Class C EDNA receiving properties is 60 dBA, or slightly higher than average daytime ambient noise levels. Per the report, the goal of the applicant is to ensure the engine run-ups do not increase the ambient noise levels at any of the receiving sites by more than 10 dBA at any time. WAC 173-60-40 that noise limits at any receiving property may be exceeded if the increase is 10 dBA or less and occurs for less than 5 minutes. The two run-ups per hour (one per engine) would result in ambient noise levels exceeding the 5 minutes allowed per the WAC regulations. Due to the proximity of the site to residential properties, the potential for noise impacts on nearby residents is expected. Currently, the nearest airplane stall where engine run-ups occur is approximately 800 feet from the nearest residential uses to the east. The future run-ups performed on Apron E would reduce the distance by half and would be approximately 400 feet from the nearest residence. Based on the data in the report, the maximum engine run-up noise levels combined with ambient noise levels at the high end of the evaluated range would result in an increase greater than the 10 dBA allowed by the limits in WAC 173-60-40 (approx. 13 dBA over ambient for Class A EDNA receiving properties). In addition, the report states that the multiple City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 9 of 14 SR_ERC~1 engine run-ups performed each hour would exceed the five (5) minutes maximum allowed for noise levels at receiving sites to be between 0 and 10 dBA over the limits. In order reduce the noise levels at receiving properties during engine run-ups even further, the report includes two (2) additional conceptual options as potential noise mitigation measures that could be used in conjunction with the sound wall. The two (2) specific design options include the installation of intermediate noise barriers between individual aircraft stalls and installing localized noise enclosures around the engines during run-ups. In order to ensure that noise levels during engine run-ups do not exceed 10 dBA over ambient noise levels for all Class A EDNA properties and to decrease the impacts of multiple engine run-ups per hour, staff recommends as mitigation measure that the applicant implement one or both of the noise reduction methods identified by SSA Acoustics on page 8 of the updated Noise Study Report (Exhibit 13). The applicant may also propose alternative options for noise reduction if the aforementioned conceptual options identified in the report are determined by the applicant and their consultant to be infeasible. The applicant would be required to submit detailed plans for the additional noise reduction measures, as well as their expected impact on noise levels during engine run-ups at the receiving properties, at the time of Civil Construction Permit submittal to be reviewed and approved by the Current Planning Project Manager. Mitigation Measures: 1. The applicant shall draft an official agreement covering the curfew hours for all engine run-up testing on the Boeing plant site. The agreement shall be submitted to the Current Planning Project Manager for review at the time of Civil Construction Permit application submittal. The agreement shall be executed by both parties (Boeing and the City of Renton) prior to issuance of the building permit for the Apron E project. 2. The applicant shall implement one or both of the noise reduction methods identified by SSA Acoustics on page 8 of the updated Noise Study Report (Exhibit 14) in order to reduce the maximum ambient noise level increase at the Class A EDNA receiving properties below 10 dBA. The applicant may also propose alternative option(s) for noise reduction. The applicant would be required to submit detailed plans for the additional noise reduction measures, as well as their expected impact on noise levels during engine run-ups at the receiving properties, at the time of Civil Construction Permit submittal for review and approval by the Current Planning Project Manager. Nexus: SEPA Environmental Review, WAC 193-60-040, RMC 8-7 Noise Level Regulations 6. Aesthetics Impacts: The proposed project represents a large change in the site’s visual presence. Currently the site contains a single one-story building (existing fire station), multiple security/job shacks, and a large surface parking lot. The proposed project involves the construction of a 25 foot tall sound wall and ~70,000 sq. ft. building approximately 95 feet tall. The applicant submitted color renderings and architectural elevations for both the building and sound wall (Exhibit 10). The renderings and architectural indicate an effort by the applicant to add visual interest to both the sound wall and building. Stylized architectural elements designed to mimic the look of an airplane wing has been added to the sound wall and the paint hangar building uses various types of material on the façade. In addition, the applicant has proposed enhanced landscaping between the proposed sound wall and the public ROW in order to provide pedestrian-scale screening to the large building. Lastly, the applicant has proposed 6-foot tall continuous vine panels on the bottom of the sound wall along the entire perimeter. The vine panel would serve as horizontal visual break and provide additional color to the wall itself. Additional design elements related to the scale and visual impact of the structure are expected to be reviewed and added during the site plan review process. Therefore, measures to limit the visual impact City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 10 of 14 SR_ERC~1 of the project can be added through the site plan review process and no mitigation measures related to aesthetics are recommended. Mitigation Measures: No further mitigation recommended Nexus: N/A 7. Light and Glare Impacts: The applicant submitted a Light Impingement Study prepared by CASNE Engineering and dated January 28, 2020. The study evaluated the potential light impacts on both the residential uses to the east of the site as well as the Cedar River shoreline to the west of the site. The report also analyzed the existing light levels on the site generated by the parking lot lights in the S1 lot. Data was collected with a handheld visible light meter approximately 36 inches above grade at 30-foot intervals around the site perimeter. In addition, data on light levels was collected along the sidewalk east of Logan Ave N and along the sidewalk east of Burnett Ave N. The consultant tested light levels at the night time and found that existing ambient lights levels in the residential neighborhood were ranged from 0.1 to 1.5 foot- candles. The project proposal includes the installation of six (6) 440W LED fixtures mounted on 36-foot tall poles directly adjacent to the three outdoor stalls on the north side of the site (two lights per stall), two (2) 188W LED fixture mounted on a 20-foot tall poles near the northeast corner of the site, eight (8) 288W LED fixtures mounted on 40-foot tall poles in the associated parking lot, and wall-pack lights ranging from 10W to 300W on each the four (4) paint hangar building façades. The consultant modeled future light levels and compared the results with the existing light conditions in the surrounding area. The results of the modeling found minimal (less than 0.1 foot-candle) in light levels directly outside of the perimeter of the site. Light levels at a both Cedar River shoreline (approximately 550 feet from the site) and residential homes to the east (approximately 400 feet from the site) would not increase according to the study. Therefore, no light impacts on the environment or neighboring properties are anticipated as after completion of the project. Mitigation Measures: No further mitigation recommended. Nexus: N/A 8. Transportation Impacts: The applicant submitted a Traffic Impact Analysis (TIA) prepared by Transpogroup, dated September 2020 (Exhibit 11). The TIA analyzes the parking and traffic impacts of the project while incorporating the new economic realities facing Boeing as a result of the COVID-19 pandemic and 737 production challenges. Changes resulting from the various challenges include an approximate 20% reduction in staff and production levels and an increase in permanent telecommuting. The TIA submitted by the applicant primarily focuses on two transportation-related impacts created by the conversion of the S1 parking lot: 1) impacts to the available parking supply and 2) impacts to traffic operations in the immediate area. The S1 parking lot currently has approximately 976 general purpose parking stalls. Parking utilization data was collected as follows: a) 7:00 am and 1:00 pm at 1-hour intervals; b) 1:00 pm to 3:00 pm at 30-minute intervals; and 3:00 pm and 6:00 pm in 1-hour intervals. In order to compare the impact of the Apron E project on overall parking levels for periods where demand was highest, the report uses the site-wide parking utilization rate at times of peak usage (1:00 pm to 1:30 pm and 1:30 pm to 2:00 pm) for analysis. According to the report, the times were chosen as they represent the time of day with the highest parking demand due to the overlapping of the two largest employee shifts (first and second shifts). Due to the current environment facing Boeing, including a reduced work force and a significant reduction in the number of aircraft produced, an updated parking utilization study was not able to be completed this year. In lieu of providing a new parking utilization study, the applicant’s consultant applied a 15% reduction to the parking demand observed at the time City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 11 of 14 SR_ERC~1 the data was initially collected. The consultant estimated that a 15% reduction to parking demand was conservative given the increase in telecommuting and approximately 18% reduction in the total work force that occurred over the past nine (9) months. The original parking utilization analysis estimated a utilization rate of 84% across all Boeing parking lots during the peak times, which was based on a total of 5,565 general purpose stalls if the project is not completed. After applying the 15% reduction to the parking demand data, the consultant calculated the general purpose stall non-project utilization rate to be approximately 72%. If the project is completed, the proposed Apron E improvements would result in the removal of all 976 general purpose parking stalls in the S1 lot which would reduce the total supply to 4,634 general purpose stalls. Based on the previous data, the consultant found that if no new parking stalls are added to the supply to make up for the loss in stalls, conversion of the S1 parking lot would result in a parking utilization exceeding 100% during the PM peak demand period (from 1:00 pm to 2:00pm). The previous finding indicated that the demand for parking would be equal to or greater than the supply and would create significant parking challenges for employees. However, after applying the 15% reduction in parking demand in order to take into account a decrease in production and expected increase in telecommuting, the adjusted parking demand would result in a utilization rate of approximately 85% during the 1:00 pm to 1:30 pm peak time and 86% during the 1:30 pm to 2:00 pm peak time. The consultant concludes that the 85% to 86% parking utilization rate is within the industry standard target for parking lot utilization (typically between 85% and 90%). Although staff concurs with the consultant’s conclusion, with respect to the utilization rate, concern remains about how future demand would be addressed if economic conditions result in a return to previous staffing and production levels. Due the sprawling nature of Boeing’s employee parking system, a low vacancy rate (i.e. 0-10%) exacerbates the issue of excessive cruising for spaces as employees utilize City’s public roads to search for spaces in adjacent lots. This additional driving results in negative impacts such as greater tailpipe emissions, additional traffic congestion on local roads, and an increase in illegal parking on other properties due to drivers who cannot find an open space in timely manner. While economic conditions at Boeing has temporarily reduced the parking demand at the facility, these negative externalities caused by low parking vacancy rates have the potential to resurface if production is increased in the future and more employees are brought back to the plant. The report identifies the potential for this to occur and recommends that the applicant develop a monitoring plan for parking utilization that would ensure the employee parking network maintains at an efficient vacancy rate if parking demand increases in the future. The report recommends conducting an annual site-wide parking demand study in order to determine the parking utilization rate at the peak periods (between the hours of 1:00 pm to 1:30pm and 1:30 pm to 2:00 pm). The consultant recommends not exceeding a maximum parking utilization rate of 90% across the site at any time. According to the report, if the parking utilization rate exceeded 90%, measures to reduce the overall utilization rate could be implemented by the applicant. The consultant identifies four (4) specific potential measures including restriping lots, developing a commute trip reduction (CTR) plan, leasing additional parking stalls, and converting non-general purpose stalls to general purpose. Therefore, in order to monitor utilization rates in the future, staff recommends as a mitigation measure that the applicant be required to submit a Parking Utilization Report (PUR) prepared by a professional traffic engineer annually for a period of five (5) years. Each annual report should include the utilization rates at both individual parking lots as well as site-wide at the peak demand times. If the Boeing shift schedules are altered in any way between annual reports new peak parking demand times should be calculated to reflect the change. If parking utilization is found to exceed 90% site-wide at any time, the applicant would be required to implement specific measures to reduce the utilization rate below the 90% threshold. The second part of the Traffic Impact Analysis analyzes the anticipated project-generated impact on the surrounding roadway network and intersections. The report contains a Level of Service (LOS) analysis for eleven (11) intersections near the project site that includes data on existing conditions, future (2023) City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 12 of 14 SR_ERC~1 conditions without the Apron E project, and future (2023) conditions with the Apron E project. The existing LOS for the eleven intersections ranged from A to E during the peak AM and PM hours. In order to evaluate project impacts on traffic, the study compared future with-project operations to future without-project operation. The future without-project analysis contains data from the expected traffic volumes generated by the Topgolf facility proposed for construction approximately one block northeast of the project site near the intersection of N 8th St and Logan Ave N. According to the report, future without-project conditions would result in a lower LOS for six (6) intersections when compared with existing conditions, including a change from LOS E to LOS F during the PM peak hours at the intersection of Logan Ave N and the S1/E7 Access South. In comparing future with-project conditions to future without-project conditions, the report concluded that the LOS at two intersections is anticipated to decrease by one level within the AM peak hour period (see table below). The project would not result in any intersections decreasing to a LOS F. In addition, one intersection (Logan Ave N and the S1/E7 Access South) would have a LOS D if the project is constructed and a LOS F if the project is not constructed, likely due to the significant reduction in traffic entering and existing the project site after conversion of the S1 lot. Table 7. Future Weekday Peak Hour Intersection LOS Summary 2023 Without-Project 2023 With-Project Intersection LOS Delay WM LOS Delay WM AM Peak Hour 1. Logan Avenue N/N 8th Street B 18 - B 17 - 2. Park Avenue N/N 8th Street B 19 - B 18 - 3. Garden Avenue N/N 8th Street A 6 - A 6 - 4. Lot S6 Access/Internal Road B 12 NBL B 10 SBL 5. Logan Avenue N/N 6th Street C 22 - C 22 - 6. Park Avenue/N 6th Street B 20 - C 21 - 7. Garden Avenue N/N 6th Street A 9 - A 9 - 8. Logan Avenue N/Lot S1/E7 Access North C 15 WB C 16 WB 9. Logan Avenue N/Lot S1/E7 Access South B 12 SBL D 26 WB 10. Park Avenue N/N 5th Street C 20 WBL C 20 WBL 11. Garden Avenue N/N 5th Street B 10 EB B 10 EB PM Peak Hour 1. Logan Avenue N/N 8th Street C 22 - C 30 - 2. Park Avenue N/N 8th Street C 27 - C 28 - 3. Garden Avenue N/N 8th Street A 8 - A 8 - 4. Lot S6 Access/Internal Road B 11 SBL B 11 SB 5. Logan Avenue N/N 6th Street D 27 - D 47 - 6. Park Avenue/N 6th Street D 34 - D 39 - 7. Garden Avenue N/N 6th Street A 9 - A 9 - 8. Logan Avenue N/Lot S1/E7 Access North C 19 WB C 23 WB 9. Logan Avenue N/Lot S1/E7 Access South F 41 WB D 28 WB 10. Park Avenue N/N 5th Street C 15 EB C 19 EB 11. Garden Avenue N/N 5th Street B 11 EB B 11 EBL LOS = Level of Service (A – F) as defined by the Highway Capacity Manual (TRB, 2000) Delay = Average delay per vehicle in seconds. WM = Worst movement reported for unsignalized intersections. The Public Works Transportation Division reviewed the report and concurs with the findings of the roadway network and intersection analysis; therefore, additional mitigation measures related to impacts on LOS are not recommended. Although not addressed in the second Traffic Impact Analysis, the original Traffic Memo (Exhibit 11) prepared by Transpogroup identifies a total of 80 new employees that would work on the site in three City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 13 of 14 SR_ERC~1 shifts. The Institute of Traffic Engineers (ITE) Trip Generation manual identifies two peak hour periods from 6:00 am to 9:00 am (AM Peak Hour) and from 4:00 pm to 6:00 pm (Peak Hour). According to the report, the anticipated shift times for the Boeing site are as follows: 1st Shift – Starts between 5:00 am and 7:00 am, ends between 1:30 pm and 3:30 pm. 2nd Shift – Starts between 1:30 pm and 3:30 pm, ends between 10:00 pm and 12:00 am. 3rd Shift – Starts between 10:00 pm and 12:00 am, ends between 5:00 am and 7:00 am. The report assumes no new trips on the site as a result of the project, as the report anticipates that employees on the site will not be new, but rather existing employees that already work in other areas on the Boeing plant site. Therefore according to the applicant, the project would not be subject to transportation impact fees. Per recommendations in the Institute of Transportation Engineers (ITE) manual and requirements in City of Renton Municipal Code (RMC), transportation impact fees are only assessed on new PM peak hour trips. Due to the utilization of a 24-hour, multi-shift workforce, a type of commute pattern not identified in the ITE manual, new trips to the Boeing plant frequently fall outside of the typical commuting (peak) hours and projects are frequently not subject to code-required impact fees. However, additional trips occurring outside of the peak hour periods still result in additional vehicles on local roads and exacerbate issues such as traffic congestion and road wear that impact fees are designed to mitigate. In addition, while existing employees shifted to the new Apron E site from other areas on the Boeing plant site may not be immediately generating new trips, the proposed project expands production capacity for Boeing and therefore the potential for new employees and new trips to the plant. If employees transferred to Apron E site from other areas in the facility are replaced or the buildings they worked in altered in a manner that expands production, the City does not have the ability to track or capture the additional trips through the assessment of impact fees. Therefore utilizing the typical metric of new PM peak hour trips to determine traffic impacts does not accurately capture the potential for new trips that occur outside of the PM peak hour range or that occur as a result of increased capacity elsewhere on the site. In order to more accurately mitigate the impacts created by the additional trips resulting the expanded capacity the proposed Apron E will create, staff recommends as a mitigation measure that the application be assessed a transportation impact fee based on the square footage of the building for the manufacturing use in accordance with the City of Renton fee schedule in effect at the time of building permit submittal. The Development Engineering Manager has reviewed the Traffic Impact Analysis and determined that the proposed project passes the City of Renton Traffic Concurrency Test per RMC 4-6-070.D. Mitigation Measures: 1. The applicant shall submit an annual Parking Utilization Report (PUR) for a period of five (5) years. The first report shall be submitted no later than one year after the building permit is issued for the proposed paint hanger. Each annual report shall include the utilization rates at both individual parking lots as well as site-wide. Rates shall be calculated at the current peak demand times (1:00 pm to 1:30 pm and 1:30 pm to 2:00 pm). If the Boeing shift schedules are altered in any way between annual reports, new peak parking demand times shall be calculated to reflect the change. If parking utilization for general purpose stalls is found to exceed 90% site-wide at any time, the applicant shall implement specific measures with six (6) months of the date of the annual report in order to reduce the utilization rate below the 90% threshold. The implementation measures proposed shall be formally submitted to the Current Planning Project Manager for review and approval. 2. The applicant shall pay a transportation impact fee based on the square footage of the building for the manufacturing use in accordance with the City of Renton fee schedule in effect at the time of building permit submittal. Nexus: SEPA Environmental Review, RMC 4-1-190 Impact Fees, ITE Trip Generation Manual (10th Edition) City of Renton Department of Community & Economic Development Boeing Apron E Staff Report to the Environmental Review Committee LUA19-000145, ECF, SA-H, V-H Report of November 9, 2020 Page 14 of 14 SR_ERC~1 E. Comments of Reviewing Departments The proposal has been circulated to City Department and Division Reviewers. Where applicable, their comments have been incorporated into the text of this report.  Copies of all Review Comments are contained in the Official File and may be attached to this report. CITY OF RENTON DEPARTMENT OF COMMUNITY AND ECONOMIC DEVELOPMENT STAFF REPORT TO THE ENVIRONMENTAL REVIEW COMMITTEE EXHIBITS Project Name: Boeing Apron E Land Use File Number: LUA19-000145, ECF, SA-H, V-H Date of Meeting November 9, 2020 Staff Contact Alex Morganroth Senior Planner Project Contact/Applicant Mark Clement, PO Box 3707, MC 96-01, Seattle, WA 98124 Project Location 737 Logan Ave N, Renton, WA 98057 The following exhibits are included with the ERC Report: Exhibit 1: Environmental Review Committee (ERC) Report Exhibit 2: Site Plan Exhibit 3: Neighborhood Map Exhibit 4: Conceptual Landscape Plan Exhibit 5: Arborist Report, prepared by Urban Forestry Services, Inc, dated June 18, 2019 Exhibit 6: Tree Retention and Land Clearing Plan Exhibit 7: Drainage Report, prepared by DOWL, dated December, 2019 Exhibit 8: Conceptual Drainage/Utilities Plan, prepared by DOWL, dated June 21, 2019 Exhibit 9: Geotechnical Report, prepared by S&EE, dated June 24, 2019 Exhibit 10: Architectural Elevations Exhibit 11: Traffic Impact Analysis, prepared by TranspoGroup, dated January, 2020 Exhibit 12: Lighting Impingement Study, prepared by Casne Engineering, dated June 21, 2019 Exhibit 13: Noise Study Report, prepared by SSA Acoustics, dated June 10, 2019 Exhibit 14: Noise Study Report, prepared by SSA Acoustics, dated May 11, 2020 Exhibit 15: Construction Mitigation Description Exhibit 16: Renton Field Operator Guide for Curfew Hours Exhibit 17: On-hold Letter, dated April 22, 2019 Exhibit 18: Transportation Concurrency Memo prepared by Brianne Bannwarth, dated November 6, 2020.