HomeMy WebLinkAboutRES 4299 CITY �F RENT�N, INASHINGT�N
RES�LUTI�N N�. 4299
A RES�LUT��N �F THE CITY �F RENT�N, INASHINGT�N, AD�PTING BY
REFERENCE THE "RATE STUDY F�R IMPACT FEES F�R TRANSP�RTAT��N�"
DATED JULY 5, Z�1C.
INHEREAS, in the Re�ised Code of 1Nashington �"RCW"� 82.�2.D5��1�, the Legislature has
stated that its intent is to a�low cities to require new growth and de�elopment with�n the�r
boundaries to pay a proportionate share of the cost of system impro�ements to ser�e such new
de�elopment acti�ity through the assessment of impact fees; and
INHEREAS, the City adopted impact fees for transportat�on, par�s, and fire protection in
zo11 and those fees were based on extensi�e research documenting the procedures for
measuring the impact of new growth and de�e�opment on public facilities. That research was
reflected in the "Rate 5tudy for Impact Fees for Transportat�on, Parks and Fire Protection," City
of Renton, dated August 2�, zo11, adopted by the City Council by �rdinance No. 5�7� on
�ctober S, 2�12; and
INHEREAS. the City has again conducted extensi�e research measuring the impact of
new growth and de�elopment on transportation public facilities and that research is ref�ected
in a new "Rate 5tudy for Impact Fees for Transportat�on," C�ty of Renton dated July 5, 201�; and
INHEREAS, the rates charged are I�sted in the 2�17-2018 City of Renton Fee 5chedule;
N�IN� THEREF�RE� THE CITY C�UNCIL �F THE CITY �F RENT�N, WASHINGT�N, D�ES
�RDAiN A5 F�LL�1N5:
SECTI4N I. The abo�e recitals are found to �e true and correct in al1 respects.
1
RES�LUTI�N N�. 4�99
SECTI�N II. The �ity �auncil af the �ity af Rentan hereby adapts by reference as if
fu�ly set farth herein the "Rate 5tudy far Impact Fees far Transpartatian," �ity af Rentan dated
�uly 5, ��16, as it amends the "Rate Study far Im�act Fees far Transpartatian, Parks and Fire
Pratectian," �ity af Rentan, dated August �6, �011, as that study re�ates ta Transpartatian, but
reaffirming its ada�tian af the ��11 study as it relates ta Parks and F�re Pratectian.
SECTI�N �II. �ap�es af each rate study adapted herein by reference will be at a�l times
an file with the �ity �lerk.
PASSED BY THE �iTY ��UN�lL this �1st day af Na�ember, ��16.
r •'�.
�as A. Seth, City �lerk
APPR�VED BY THE MAY�R this �1st day af Na�ember, ��16.
Denis Law, Mayar
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RATE STUDY
FOR
IMPACT FEES
FOR
TRANSPORTATION
CITY OF RENTON , WASHINGTON
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TABLE OF CONTENTS
l. INTRODUCTION ...................................................................................................................................................1
2. STATUTORY BASIS AND METHODOLOGY...................................................................................................3
3. TRANSPORTATION IMPACT FEES................................................................................................................11
APPENDIX A - TRIP GENERATION RATES .....................................................................................................28
LIST OF TABLES
TABLE 1 : TRANSPORTATION IMPACT FEE RATES .......................................................................................................... 1
TABLE 2: STREET PROJECTS ELIGIBLE FOR IMPACT FEES............................................................................................ 12
TABLE 3: COST OF EXISTING DEFICIENCIES................................................................................................................. 16
TABLE 4: COST OF FUTURE RESERVE CAPACITY......................................................................................................... 19
TABLE S: TOTAL PROJECT COST ELIGIBLE FOR IMPACT FEES .....................................................................................21
TABLE 6: GROWTH PERSON TRIPS �P.M. PEAK HOUR� ON THE STREET NETWORK.......................................................25
TABLE 7: COST PER GROWTH TRIP .............................................................................................................................25
TABLE g: TRANSPORTATION IMPACT FEE RATES PER UNIT OF DEVELOPMENT...........................................................27
TABLE 9: TRIP GENERATION RATES .............................................................................................................................30
Rate Study for Impact Fees for Transportation • City of Renton
1 . I NTRODUCTION
The purpose of this study is to establish the rates for impact fees in the City of
Renton, Washington for three types of public facilities authorized by RCW �
82.02.050 - 090. In this study the term "transportation " is used as a shorthand
expression for " public streets and roads" that are authorized for impact fees in
RCW 82.02.090 (7) .
Summary of Impact Fee Rates
Impact fee rates for new development are based on, and vary according to
the type of land use. The following table summarizes the impact fee rates for
several frequently used land use categories. Rates for other non-residential
development are presented in Table 8 of this study.
Ta ble 1 : Tra nsportation I m pact Fee Rates
�� ) �2) �3)
Type of
Development Unit Transportation
Single-Family dwelling unit $ 10,861 .69
Apartment dwelling unit 6,717. 10
Office sq. ft. 14.58
Retail (shopping) sq. ft. 26.58
Industrial sq. ft. 9.50
Restaurant sq. ft. 60.95
Impact Fees vs. Other Developer Contributions
Impact fees are charges paid by new development to pay local governments
for the capital cost of public facilities needed to serve new development and
the people who occupy or use the new development. Throughout this study,
the term "developer" is used as a shorthand expression to describe anyone who
is obligated to pay impact fees, including builders, owners or developers.
Local governments charge impact fees for several reasons: 1 ) to obtain revenue
to pay for some of the cost of new public facilities; 2) to implement a public
policy that new development should pay a portion of the cost of facilities that it
� Revised Code of Washington (RCW) is the state law of the State of Washington.
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requires, and that existing development should not pay all of the cost of such
facilities; and 3) to assure that adequate public facilities will be constructed to
serve new development.
The impact fees that are described in this study do not include any other forms
of developer contributions or exactions, such as: mitigation or voluntary
payments authorized by SEPA (the State Environmental Policy Act, RCW 43.21 C) ;
system development charges for water and sewer authorized for utilities ( RCW
35.92 for municipalities, 56. 16 for sewer districts, and 57.08 for water districts) ;
local improvement districts or other special assessment districts; linkage fees; or
land donations or fees in lieu of land .
Organization of the Study
This impact fee rate study contains three chapters:
• Chapter 1 provides a summary of impact fee rates for frequently used
land use categories, and other introductory materials.
• Chapter 2 summarizes the statutory requirements for developing impact
fees, and describes the compliance with each requirement.
• Chapter 3 presents impact fees for transportation including the
methodology that is used to develop the fees, the formulas, variables
and data that are the basis for the fees, and the calculation of the fees.
The methodology is designed to comply with the requirements of
Washington state law.
• Appendix A shows the calculation of trip generation rates.
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2 . STATUTORY BASIS AND METHODOLOGY
This chapter summarizes the statutory requirements for impact fees in the State of
Washington, and describes how the City of Renton ' s impact fees comply with
the statutory requirements.
Statutory Requirements for Impact Fees
The Growth Management Act of 1990 (Chapter 17, Washington Laws, 1990, 1 st
Ex. Sess.) authorizes local governments in Washington to charge impact fees.
RCW 82.02.050 - 82.02.090 contain the provisions of the Growth Management
Act that authorize and describe the requirements for impact fees.
The impact fees that are described in this study are not mitigation payments
authorized by the State Environmental Policy Act (SEPA) . There are several
important differences between impact fees and SEPA mitigations. Three aspects
of impact fees that are particularly noteworthy are: 1 ) the ability to charge for
the cost of public facilities that are "system improvements" (i.e., that provide
service to the community at large) as opposed to "project improvements"
(which are "on-site" and provide service for a particular development) ; 2) the
ability to charge small-scale development their proportionate share, whereas
SEPA exempts small developments; and 3) the predictability and simplicity of
impact fee rate schedules compared to the cost, time and uncertain outcome
of case-by-case SEPA reviews.
The following synopsis of the most significant requirements of the law includes
citations to the Revised Code of Washington as an aid to readers who wish to
review the exact language of the statutes.
Types of Public Facilities
Four types of public facilities can be the subject of impact fees: 1 ) public streets
and roads; 2) publicly owned parks, open space and recreation facilities; 3)
school facilities; and 4) fire protection facilities. RCW 82.02.050(2) and (4), and
RCW 82. 02. 090(7)
Types of Improvements
Impact fees can be spent on "system improvements" (which are typically outside
the development) , as opposed to "project improvements" (which are typically
provided by the developer on-site within the development project) . RCW
82. 02. 050(3) (a) an d R C W 82.02.090(6) a n d (9)
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Benefit to Development
Impact fees must be limited to system improvements that are reasonably related
to, and which will benefit new development. RCW 82.02.050(3J (aJ and (c) .
Local governments must establish reasonable service areas (one area, or more
than one, as determined to be reasonable by the local government) , and local
governments must develop impact fee rate categories for various land uses.
RC W 82. 02. 060(6)
Proportionate Share
Impact fees cannot exceed the development's proportionate share of system
improvements that are reasonably related to the new development. The
impact fee amount shall be based on a formula (or other method of calculating
the fee) that determines the proportionate share. RCW 82.02.050(3) (bJ and RCW
82. 02. 060( 1 )
Reductions of Im pact Fee Amovnts
Impact fees rates must be adjusted to account for other revenues that the
development pays (if such payments are earmarked for or proratable to
particular system improvements) . RCW 82.02.050( 1 J (cJ and (2) and RCW
82. 02. 060( 1 ) (bJ Impact fees may be credited for the value of dedicated land,
improvements or construction provided by the developer (if such facilities are in
the adopted CFP as system improvements eligible for impact fees and are also
required as a condition of development approval) . RCW 82. 02. 060(3)
Exemptions from Impact Fees
Local governments have the discretion to provide exemptions from impact fees
for low-income housing and other "broad public purpose" development, but all
such exempt fees must be paid from public funds (other than impact fee
accounts) . RCW 82. 02. 060(2)
Developer Options
Developers who are liable for impact fees can submit data and or/analysis to
demonstrate that the impacts of the proposed development are less than the
impacts calculated in this rate study. RCW 82.02.060(5) . Developers can pay
impact fees under protest and appeal impact fee calculations. RCW
82. 02. 060(4) and RCW 82. 02. 070(4) and (5) . The developer can obtain a refund
of the impact fees if the local government fails to expend or obligate the
impact fee payments within 10 years, or terminates the impact fee requirement,
or the developer does not proceed with the development (and creates no
impacts) . RCW 82. 02. 080
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Capital Facilities Plans
Impact fees must be expended on public facilities in a capital facilities plan
(CFP) element or used to reimburse the government for the unused capacity of
existing facilities. The CFP must conform to the Growth Management Act of 1990
( RCW 36.70A.070 (3) ) , and must identify existing deficiencies in facility capacity
for current development, capacity of existing facilities available for new
development, and additional facility capacity needed for new development.
R C W 82. 02. 050(4), R C W 82.02.060(7J, a n d R C W 82. 02. 070(2)
New Versus Existing Facilities
Impact fees can be charged for new public facilities (RCW 82. 02. 060( 1 ) (aJ and
for the unused capacity of existing public facilities (RCW 82.02.060(7J subject to
the proportionate share limitation described above.
Accovnting Reqvirements
The local government must separate the impact fees from other monies,
expend or obligate the money on CFP projects within 10 years, and prepare
annual reports of collections and expenditures. RCW 82. 02. 070( 1 )-(3)
Compliance With Statutory Requirements for Impact Fees
Many of the statutory requirements listed above are fulfilled in Chapter 3 of this
study that presents the calculation of the transportation impact fee. Some of the
statutory requirements are fulfilled in other ways, as described below.
Types of Public Facilities
This study contains impact fees for three of the four types of public facilities
authorized by statute: transportation, parks and fire. This study does not contain
impact fees for schools.
In general, local governments that are authorized to charge impact fees are
responsible for specific public facilities for which they may charge such fees.
The City of Renton is legally and financially responsible for the transportation
facilities it owns and operates within its jurisdiction . In no case may a local
government charge impact fees for private facilities, but it may charge impact
fees for some public facilities that it does not administer if such facilities are
"owned or operated by government entities" (RCW 82.02.090 (7J . Thus, a city or
county may charge impact fees for transportation, and enter into an agreement
with the State of Washington for the transfer, expenditure, and reporting of
transportation impact fees for state roads. A city may only charge and use
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impact fees on State roads if it has an agreement with the State, and the City
CFP includes the state road projects.
Types of Improvements
The impact fees in this study are based on system improvements that are
described in Chapter 3. No project improvements are included in this study.
The public facilities that can be paid for by impact fees are "system
improvements" (which are typically outside the development) , and "designed to
provide service to service areas within the community at large" as provided in
RCW 82.02.050 (9) ) , as opposed to "project improvements" (which are typically
provided by the developer on-site within the development or adjacent to the
development) , and "designed to provide service for a development project,
and that are necessary for the use and convenience of the occupants or users
of the project" as provided in RCW 82.02.050 (6) . The capital improvements costs
contained in Chapter 3 comply with these requirements.
Impact fee revenue can be used for the capital cost of public facilities. Impact
fees cannot be used for operating or maintenance expenses. The cost of public
facilities that can be paid for by impact fees include design studies,
engineering, land surveys, land and right of way acquisition, engineering,
permitting, financing, administrative expenses, construction, applicable
mitigation costs, and capital equipment pertaining to capital improvements.
Benefit to Development, Proportionate Share and Reductions of Fee Amovnts
The law imposes three tests of the benefit provided to development by impact
fees: 1 ) proportionate share, 2) reasonably related to need, and 3) reasonably
related to expenditure (RCW 80.20. 050(3) ) . I n addition, the law requires the
designation of one or more service areas (RCW 82. 02. 060(6)
1 . Proportionate Share.
First, the "proportionate share" requirement means that impact fees can
be charged only for the portion of the cost of public facilities that is
"reasonably related" to new development. In other words, impact fees
cannot be charged to pay for the cost of reducing or eliminating
deficiencies in existing facilities.
Second, there are several important implications of the proportionate
share requirement that are not specifically addressed in the law, but
which follow directly from the law:
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• Costs of facilities that will benefit new development and existing users
must be apportioned between the two groups in determining the
amount of the fee. This can be accomplished in either of two ways: ( 1 )
by allocating the total cost between new and existing users, or (2)
calculating the cost per unit and applying the cost only to new
development when calculating impact fees.
• Impact fees that recover the costs of existing unused capacity should
be based on the government's actual cost. Carrying costs may be
added to reflect the government's actual or imputed interest expense.
The third aspect of the proportionate share requirement is its relationship
to the requirement to provide adjustments and credits to impact fees,
where appropriate. These requirements ensure that the amount of the
impact fee does not exceed the proportionate share.
• The "adjustments" requirement reduces the impact fee to account for
past and future payments of other revenues (if such payments are
earmarked for, or proratable to, the system improvements that are
needed to serve new growth) . The transportation impact fee
calculated in this study includes an adjustment that accounts for any
other revenue that is paid by new development and used by the City
to pay for a portion of growth ' s proportionate share of costs. This
adjustment is in response to the limitations in RCW 82.02.060 ( 1 ) (b) and
RCW 82.02.050 (2) .
• The "credit" requirement reduces impact fees by the value of
dedicated land, improvements or construction provided by the
developer (if such facilities are in the adopted CFP, identified as the
projects for which impact fees are collected, and are required as a
condition of development approval) . The law does not prohibit a local
government from establishing reasonable constraints on determining
credits. For example, the location of dedicated land and the quality
and design of donated street or road can be required to be
acceptable to the local government.
2. Reasonablv Related to Need.
There are many ways to fulfill the requirement that impact fees be
"reasonably related" to the development's need for public facilities,
including personal use and use by others in the family or business
enterprise (direct benefit) , use by persons or organizations who provide
goods or services to the fee-paying property or are customers or visitors at
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the fee paying property (indirect benefit) , and geographical proximity
(presumed benefit) . These measures of relatedness are implemented by
the following techniques:
• Impact fees are charged to properties which need (i.e., benefit from)
new public facilities. The City of Renton provides its infrastructure to all
kinds of property throughout the City, therefore impact fees have been
ca Icu lated for a II types of property.
• The relative needs of different types of growth are considered in
establishing fee amounts (i.e., different impact values for different types
of land use) . Chapter 3 uses different trip generation rates for each
type of la nd use .
• Feepayers can pay a smaller fee if they demonstrate that their
development will have less impact than is presumed in the impact fee
schedule calculation for their property classification . Such reduced
needs must be permanent and enforceable (i.e., via land use
restrictions) .
3. Reasonably Related to Expenditures.
Two provisions of Renton ' s impact fee municipal code comply with the
requirement that expenditures be "reasonably related" to the
development that paid the impact fee. First, the requirement that fee
revenue must be earmarked for specific uses related to public facilities
ensures that expenditures are on specific projects, the benefit of which
has been demonstrated in determining the need for the projects and the
portion of the cost of needed projects that are eligible for impact fees as
described in this study. Second, impact fee revenue must be expended
or obligated within 10 years, thus requiring the impact fees to be used to
benefit to the feepayer and not held by the City.
4. Service Areas for Impact Fees
Impact fees in some jurisdictions are collected and expended within
service areas that are smaller than the jurisdiction that is collecting the
fees. Impact fees are not required to use multiple service areas unless
such "zones" are necessary to establish the relationship between the fee
and the development. Because of the compact size of the City of Renton
and the accessibility of its transportation network to all property within the
City, Renton ' s transportation system serves the entire City, therefore the
impact fees are based on a single service area corresponding to the
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boundaries of the City of Renton .
Exem ptions
The City' s impact fee municipal code addresses the subject of exemptions.
Exemptions do not affect the impact fee rates calculated in this study because
of the statutory requirement that any exempted impact fee must be paid from
other public funds. As a result, there is no increase in impact fee rates to make
up for the exemption because there is no net loss to the impact fee account as
a result of the exemption .
Developer Options
A developer who is liable for impact fees has several options regarding impact
fees. The developer can submit data and or/analysis to demonstrate that the
impacts of the proposed development are less than the impacts calculated in
this rate study. The developer can appeal the impact fee calculation by the City
of Renton . If the local government fails to expend the impact fee payments
within 10 years of receipt of such payments, the property owner can obtain a
refund of the impact fees. The developer can also obtain a refund if the
development does not proceed and no impacts are created . All of these
provisions are addressed in the City' s impact fee municipal code, and none of
them affect the calculation of impact fee rates in this study.
Capital Facilities Plan
There are references in RCW to the "capital facilities plan " (CFP) as the basis for
projects that are eligible for funding by impact fees. Cities often adopt
documents with different titles that fulfill the requirements of RCW 82.02.050 et.
seq . pertaining to a "capital facilities plan " . The Transportation Element, Park
Element and Capital Facilities Plan Element of the City' s Comprehensive Plan
fulfill the requirements in RCW, and are considered to be the "capital facilities
plan " (CFP) for the purpose of this impact fee rate study. In addition, the City' s
Capital Investment Program (CIP) section of the City' s Budget provides up-to-
date and detailed information about the projects in the CFP . The City also
produces an annual update of the multi-year Transportation Improvements Plan
(TIP) All references to a CFP in this study are references to the Comprehensive
Plan elements, City CIP and TIP documents listed above.
The requirement to identify existing deficiencies, capacity available for new
development, and additional public facility capacity needed for new
development is determined by analyzing the volume and capacity of
transportation facilities in Chapter 3.
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New Versus Existing Facilities, Accovnting Reqvirements
Impact fees must be spent on capital projects contained in an adopted capital
facilities plan, or they can be used to reimburse the government for the unused
capacity of existing facilities. Impact fee payments that are not expended or
obligated within 10 years must be refunded unless the City Council makes a
written finding that an extraordinary and compelling reason exists to hold the
fees for longer than 10 years. In order to verify these two requirements, impact
fee revenues must be deposited into separate accounts of the government,
and annual reports must describe impact fee revenue and expenditures. These
requirements are addressed by Renton ' s impact fee municipal code, and are
not factors in the impact fee calculations in this study.
Data Sources
The data in this study of impact fees in Renton, Washington was provided by the
City of Renton, unless a different source is specifically cited .
Data Rounding
The data in this study was prepared using computer spreadsheet software. In
some tables in this study, there may be very small variations from the results that
would be obtained using a calculator to compute the same data . The reason
for these insignificant differences is that the spreadsheet software was allowed
to calculate results to more places after the decimal than is reported in the
tables of these reports. The calculation to extra places after the decimal
increases the accuracy of the end results, but causes occasional minor
differences due to rounding of data that appears in this study.
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3 . TRANSPORTATION IMPACT FEES
Impact fees for transportation begin with the list of projects in the Transportation
Element and Capital Facilities Plan Element of City's Comprehensive Plan and
the City' s CIP and TIP (which are considerer part of the " CFP" , as noted in
Chapter 2) . The projects in these elements are analyzed to identify capacity
costs attributable to new development. The costs are apportioned between
existing deficiencies (if any) and growth capacity. The capacity costs for growth
are further apportioned to eliminate the cost of future reserve capacity. The
costs are adjusted to reflect other sources of revenue that reduce the cost of
the facility that is to be paid by impact fees. The eligible costs are divided by
the growth in trips to calculate the cost per growth trip . The cost per growth trip
is applied to the unique trip generation rates for each type of land use. The
amount of the fee is determined by charging each fee-paying development for
cost of the number of growth trips that it generates.
These steps are described below in the formulas, descriptions of variables, tables
of data, and explanation of calculations of transportation impact fees.
Formula T- 1 : Transportation Proiects Eligible for Impact Fees
The City has many projects in its transportation plan . Only those that add
capacity to the streets in order to maintain the City' s adopted standard for level
of service are eligible for impact fees.
Non-Capacity
All Capital Projects or Not _ Projects Eligible for
T- 1 . . - -
Pro�ects Needed for Level Impact Fees
of Service
There is one variable that requires explanation : (A) street capacity projects
needed for level of service.
Variable (A): Street Capacity Projects
RCW 82.02.050 (4) (c) requires identification of public facility improvements
needed to serve new development. Projects in the Transportation Element and
Capital Facilities Plan Element, the CIP and TIP, and previously constructed
projects are not eligible for impact fees if they do not add capacity to the City's
current street system .
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In addition, capacity projects that are not needed for level of service are also
not eligible for impact fees. For each capacity project, the future traffic volume
(the amount of traffic on the street) was compared to the current capacity of
the street (the amount of traffic the street is designed to carry without exceeding
the adopted level of service standard) . If the future volume is greater than the
current capacity, the project is needed in order to increase the capacity to
serve the future volume, and the project is included in the impact fee. If,
however the future volume is less than the current capacity, the City does not
need the project for level of service, therefore the project is not eligible for
impact fees2.
A similar analysis was conducted of level of service for previously constructed
projects eligible for "reimbursement" impact fees. RCW 82.02.050 (4) (b) requires
this analysis of the additional demands placed on existing public facilities by
new development.
Table 2 lists the transportation projects that are eligible for impact fees.
Numbered projects (i.e., 3, 4, 5, 12, etc .) are new projects that will be built in the
future. Projects A - E were completed by the City and they have unused
capacity that is available to serve new development ( "reimbursement
projects" ) 3.
Table 2: Street Projects Eligible for Impact Fees
(1 ) (2) (3) (4) (5)
# Street From To Description
New Projects
3 Lake Washington Blvd Park Ave N Coulon Park Widen existing roadway to
Entrance provide dual southbound left
turn lanes on Lake
Washington Blvd approach to
Logan Ave/Garden Ave/N
Park Dr intersection.
4 Park Ave N Extension Logan Ave N 1200 ft north of Extend Park Ave N north of
Logan Ave N Logan Ave N by construction
of a new 4-lane roadway with
center left turn lane, where
needed. Include pedestrian
and bic cle facilities.
2 The City may have other reasons to build the project, and the project may provide additional
capacity, but the project is not eligible for impact fees if it is not needed for level of service.
3 RCW 82.02.060(7) authorizes the City to impose impact fees for system improvement costs
previously incurred by the City to the extent that new growth and development will be served
by the previously constructed improvements. RCW 82.02.060 ( 1 ) (d) authorizes the cost of
existing public facilities improvements in the calculation of impact fees.
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